Emergency Management

LUCIEN G. CANTON, CEM, CPP CBCP, has over 40 years' experience in hazard and risk analysis, loss reduction, and emergency planning. As the Director of Emergency Services for the City of San Francisco from 1996 to 2004, he was responsible for coordinating the City's emergency management program and served as a policy advisor on emergency management and Homeland Security issues. Prior to his appointment, Mr. Canton was an Emergency Management Specialist with the Federal Emergency Management Agency from 1990 to 1996.

• Preface to the Second Edition xiiiPreface to the First Edition xvIntroduction xvii1 Historical Perspectives: The Evolution of Emergency Management 1Why Study History? 2Lessons from History 5The Advent of Disaster Legislation 14The Growth of Disaster Bureaucracy 22From Military to Civilian Leadership 23Civil Defense and Disaster Relief Merge 27Conclusion 322 Historical Perspectives: Toward a National Response Strategy 33The Origins of National Planning 34September 11 and the Impact of Homeland Security 36The Marginalization of Emergency Management 36Capabilities‐based Planning Replaces All‐Hazards Planning 39The Pendulum Swings Back: Hurricane Katrina 43A Failed Response? 43Degraded Capabilities and Confused Planning 45Reform and New Planning Concepts 47Conclusion 493 Social Science and the Beginnings of Emergency Management Theory 51Social Science as an Emergency Management Tool 51Social Science Evolves Emergency Management Theory 52Emergencies, Disasters, and Catastrophes 54Disaster Mythology 65Organizational Response 69Conclusion 714 The Emergency Manager: Evolving Roles and Shifting Paradigms 73Conflicting Roles 74The Emergency Manager as Program Manager 78Toward Professionalization 84Emergency Management as a Field 84Emergency Management as a Discipline 88Emergency Management as a Profession 89Conclusion 905 Establishing the Emergency Management Program 93Program Administration 94Developing a Governance Structure 94The Administrative Plan 99Strategic Planning 99Formulating Vision 101Establishing Goals and Objectives 106Developing the Strategic Plan 108Enabling Authorities and Legislation 109Grant Requirements 111Best Practices 112Program Elements 113Resource Management 113Training 115Finance 116Program Evaluation 118Quantitative Assessment Tools 118Qualitative Assessment Tools 119Exercise Programs 120Actual Incidents 123Corrective Action Program 124Conclusion 1256 Assessing Risk 127The Nature of Risk 128Risk Assessment Methodologies 129Hazard Identification 133Hazard Analysis 140Simple Matrix Analysis 140Indicators and Numerical Ranking 143THIRA and Context Analysis 148Intuition 149Impact Analysis 150Business Impact Analysis (BIA) 150Adaptive Business Continuity 154Continuity of Government/Continuity of Operations 155Federal Guidance 155Critical Functions and Process Analysis 158Conclusion 1607 Developing Strategy 163A New Look at an Old Model 164Risk Management Strategy 166Mitigation Strategy 168Recovery Strategy 173Response Strategy 180Preparedness Strategy 185Using Strategy to Guide Planning 187Conclusion 1898 Planning Concepts 191Plans Versus Planning 191The Planning Continuum 197Planning Methodologies 201Planning Assumptions 201Scenario‐Based Planning 202Functional Planning 205Capabilities‐Based Planning 207Effective Planning 208Simplicity in Planning 209Operational Phases 210All‐Hazards Planning 212Decentralized Execution 212Putting the Pieces Together 214General Planning Principles 215Conclusion 2179 Planning Techniques and Methods 219Establish a Planning Structure 219Use a Meeting Facilitation Process 222Meeting Agenda 225Conducting the Meeting 226The Meeting Memorandum 227Develop an Action Plan and Set Deadlines 229Managing Multiple Projects 230Annual Work Plans 230Graphic Planning Tools 231Facilitate Decision‐Making 232Use Common Plan Formats 234Determining Plan Content 236Use Graphic Tools 238Use Exercises to Test Concepts 242Keep it Simple 244Conclusion 24510 Coordinating Response 247Operational Response 247Incident Management Systems 251Unified and Area Commands 256Multiagency Coordination Systems 258Emergency Operations Centers 264Communications and Interoperability 269Information Processing 272Mutual Aid 273Resource Management and Logistics 274The Joint Information Center 276Conclusion 27811 Leading in Crisis 279Principles of Emergency Management 280Program Leadership 282Building a Leadership Team 282Establishing Relationships 284Making Decisions 285Operational Leadership 286The Effects of Crisis 286Barriers to Decision‐Making 287Crisis Decision‐Making 289Conclusion 29112 Crisis Management 293Barriers to Crisis Management 294Disengagement and Inexperience 294Common Leadership Problems 295Appropriate Roles for Senior Officials 297Crisis Management 299Identifying the Crisis 299Isolating the Crisis 300Preparing for Crisis Management 301Hurricane Katrina: Crisis Management Failure 302Increasing Organizational Effectiveness 304Crisis Communications 305Strategic Recovery Issues 307Catastrophic Events 312Conclusion 315Conclusion 317Bibliography 321Index 327