# Service Learning in the Emergency Administration and Planning Program

David A. McEntire

Emergency Administration and Planning

Department of Public Administration

University of North Texas

P.O. Box 310617

Denton, Tx 76210-0617

One of the most popular text books in emergency management contains a
cartoon illustration of a scholar and an emergency manager facing each
other as they stand over the banks of a deep ravine (Drabek and Hoetmer
1991, p. 329). Both individuals are encouraging the other to "come over
here" as a way to bridge the divide between theorists and practitioners.

This tension between academic and applied perspectives has had a long
and, perhaps even justified, history. On the one hand, scholars are
correct to assert that practitioners must become more aware of the
academic research on disasters. Scholars acquire, edit, simplify, assess
and distribute knowledge which is based on empirical evidence. This
research would have a profound impact upon the effectiveness of
emergency management if it were only applied. On the other hand,
practitioners assert that scholars need to be more sensitive to the
issues of the "real world." The argument is that scholars may not fully
understand the intricacies involved in emergency management nor the
constraints inhibiting the complete acceptance and implementation of
theory. Regardless of these divergent and defensible viewpoints, the gap
between scholars and practitioners is both artificial and detrimental.
Scholars obtain much of their knowledge from practitioners and the
future success of emergency management depends on educating today's
students with sound research. In addition, emergency management
education would be incomplete without a strong theoretical foundation
while discussions about research alone do not help students acquire
skills and abilities that are needed in today's competitive,
technologically-driven and results-oriented world. When we consider the
complexities of modern hazards, the ongoing increases in vulnerability
and the associated rise in the toll of disaster, it becomes apparent
that more must be done to prepare our current students for careers in
emergency management.

This goal -- overcoming the limits of either a pure theory-based or
training-focused education -- is one of the overarching missions of the
Emergency Administration and Planning (EADP) program at the University
of North Texas. While building on the success of program's initial
founders (see Neal 2000), efforts are continually being made to
integrate theory and application to facilitate the transition from
student to emergency manager. In medical school, for instance, students
receive book learning through lectures and discussions, and then apply
their knowledge and acquire skills in the laboratory setting. In a
similar way, EADP curriculum attempts to mirror the education of other
professionals. Many of the required courses (e.g. Introduction to
Emergency Management, Emergency Preparedness) cover the theoretical
aspects of emergency management. Other core and elective courses (e.g.
Financial Aspects of Government, Computers in Emergency Management,
Hazardous Materials Planning and Management) provide practical knowledge
and/or on-hands experience.

In contrast to the courses mentioned above, Capstone in Emergency
Management is unique in that it intentionally and explicitly combines
emergency management theory with practical knowledge, skills and
abilities. Besides addressing advanced emergency management theory in an
in-depth manner, the class reviews several important disaster case
studies and generates discussion about controversial issues and
policies. What is more, the class helps students apply the knowledge
they have gained in previous classes because of its service-learning
orientation. In the past, students have created exercise scenarios,
participated in mock drills, updated resources lists and written
emergency operations plans. This has had several positive impacts upon
students and practitioners. In the short term, this service learning
benefits the student by reinforcing theory and illustrating its
applicability in the practical world. It has also helped emergency
managers in the Cities of Denton and Irving, and the risk manager at the
University of North Texas fulfill important functions that they could
not complete alone or in a timely manner. In the long term, this service
learning has helped students develop skills and abilities which will
improve the profession of emergency management. Through service learning
students become more familiar with the "how to" of emergency management
which has a positive impact upon their ability to enter the work force
in the future.

Having made this introduction, the following paper contains information
about one particular service learning project in a recent Capstone in
Emergency Management course at the University of North Texas. It
provides background information about the project, discusses how it was
carried out, identifies challenges inhibiting its completion, reiterates
the importance of service learning, and includes the final product as an
example of what can be done with students to reinforce theory and
develop practical knowledge.

## Background

After arriving at the University of North Texas in Fall of 1999, the
author (hereafter referred to as the professor) was approached by the
Office of the President (UNT) and invited to participate as a member of
the university's crisis response team. While attending various planning
meetings, university officials (including the risk manager) discussed
their desire to improve the level of preparedness at this educational
institution. The professor was therefore asked if he could work with
EADP students to revise and expand the university's emergency operations
plan. As part of this assignment, it was determined that the university
needed an updated hazards and vulnerability analysis. Thus, one of the
service learning projects undertaken included an identification of
hazards, a brief assessment of risk and a list of recommendations for
the university. This project was initiated and completed during the
Spring semester in 2002, although minor editing took place in the
summer. The emergency operations plan continues to be revised at the
time of this writing (a student intern is editing and adding to the work
performed by students in the Spring semester).

## Method

Prior to the Spring 2002 semester, the professor incorporated the hazard
and vulnerability service learning project into the syllabus. Sufficient
time was dedicated to the assignment (approximately 1 hour every third
class period) over the semester. When Spring classes began, the
professor divided students into different groups. A small group was
assigned to work with an emergency manager to update information for a
Nunn-Lugar-Domenici grant for the City of Irving. Another small group
was assigned to create an exercise scenario for the University of North
Texas. Two other larger groups were task with the university's hazard
and vulnerability analysis and emergency operations plans.

In regards to the hazard and vulnerability analysis, the author assigned
each student in this particular group to be responsible for a specific
hazard. The students were then asked to obtain information about their
hazard, including past events at the university, in the City of Denton,
in North Texas or around the country. Students were encouraged to talk
to the Risk Manager at the university and the Emergency Management
Coordinator in Denton, and/or search the Internet for useful
information. Time was set aside in class so that the students could meet
to discuss the project periodically and seek advice from each other and
the professor.

As the search for information was underway, the professor identified a
standard format to be used in the assignment. Students were asked to
complete a 1-2 page (single-spaced) analysis which included: background
information about the hazard, a list of previous incidents at the
university, the identification of relevant response and recovery
concerns, and recommendations for the university. The professor also
requested that students assess the hazards according to the hazard event
profiles as outlined by Burton, Kates and White in *The Environment as
Hazard* (1993, p 41). This included a description of frequency,
duration, areal extent, speed of onset, spatial dispersion, and temporal
spacing.

Students were asked to complete portions of the project (e.g. obtain
information, write an outline, complete the draft, etc.) over the course
of the semester. The professor then requested that students review each
other's work and provide comments to improve individual sections. At the
conclusion of the semester, a student compiled all of the hazard
analyses into one document. The professor then reviewed the document not
only to assign grades to each student, but to identify issues that would
have to be corrected to improve the draft (e.g. spelling, grammar, lack
of information, content, etc.). A student intern then worked with the
professor over the summer to make these corrections. The hazard and
vulnerability analysis was turned into the university in August and is
now being reviewed by the risk manager and others.

## Challenges

This hazard and vulnerability service learning project presented
challenges to both students in the class and the professor. As is common
in group projects, some students are more reliable in completing the
work than others. Therefore, a few students felt that their peers were
not pulling their weight on the project or did not have their
assignments completed on time. While it may be impossible to prevent
this type of student behavior, the professor did take a few steps to
minimize the problems this created. For instance, the professor included
this project as part of the grading for the course. He also advised the
students that they were to advise him of any student that was not
performing at expected levels (and the professor talked to these
individuals to encourage them to work harder). When the assignment was
turned in, students were again asked to report (on an attached sheet of
paper) if they still had misgivings with other students. Only two
students provided negative feedback at this time, which was taken into
consideration when the assignment was read and graded.

Another challenge with the hazard and vulnerability analysis was the
short time frame in which it was to be completed. Although the project
spanned the entire semester, it was still somewhat difficult to complete
in that it was only one of several assignments due during the semester.
For this reason, each student only had to write one or two pages on each
hazard (which would undoubtedly not be sufficient for a more thorough
and detailed assessment of risk). Questions also arose about how the
hazard and vulnerability analysis was to be completed. The professor
reiterated the goals of the assignment and worked with individuals and
the group to ensure that the objectives were being met. Finally, the
editing process was time consuming for the professor. The draft did have
to be read several times while editing was being done by the student
intern. However, the professor did not let the project take priority
over other important teaching and research obligations.

## Importance

In spite of minor problems, the hazard and vulnerability analysis proved
to be a valuable project for several reasons. Students felt that the
experience reinforced the theory taught in class. Some commented that
the project opened their eyes as to what actually takes place in
emergency management before a disaster occurs. Students were also glad
to have contributed to the university's preparedness, and to have
something to reference in resumes or show to prospective employers.
Although the university is still reviewing the document at this time,
officials have expressed their appreciation to the professor for the
student's work on the hazard and vulnerability analysis. While the
assignment required extra work on the part of the professor, the time
spent on this assignment was regarded as worthwhile. EADP students
continually ask for more hands-on, practical experience. The professor
will therefore retain similar service learning projects in this class
and will work with other professors in the major to see where it would
be applied in other courses.

## References

Burton, Ian, Robert W. Kates and Gilbert F. White. 1993. *The
Environment as Hazard*. Guilford Press: New York.

Neal, David M. 2000. "Developing Degree Programs in Disaster Management:
Some Reflections and Observations." *International Journal of Mass
Emergencies and Disasters* Vol. 18, No. 3, pp. 417-437.