Session No. 15

Course Title: Theory, Principles and Fundamentals of Hazards, Disasters,
and U.S.

Emergency Management

Session Title: Fundamentals of U.S. Emergency Management (Part III)

Time: 1 Hour

Objectives:

15.1 Describe the Four Phases that comprise the disaster life cycle.

15.2 Describe the major tenets of Building Disaster Resilient
Communities.

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**Scope:**

To begin this session, the professor introduces the four phases of the
disaster life cycle and provides brief descriptions of each phase. After
discussing each of the cycles, if time permits, the professor may wish
to conduct a student activity dealing which the phases. During the
activity, the students determine which phase most closely describes
traditional emergency management functions, after which results are
compared and differences of opinion are discussed. Next, the professor
introduces the sustainable development philosophy, Building Disaster
Resilient Communities (BDRC). The discussion focuses on the main tenets
of this philosophy, including a brief review of the principles of
sustainability. Finally, the professor may conclude this session with by
inviting questions from the class about the material covered in the
three-part breakout of the topic, Fundamentals of U.S. Emergency
Management.
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Suggested Student Homework Reading Assignment:

McEntire, David, et al. "A Comparison of Disaster Paradigms: The Search
for a Holistic Policy Guide." *Public Administration Review*. 2002.
62(3): 267-281

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**Instructor Reading:**

Buckle, Phillip 1998-99*. "*Re-defining community and vulnerability in
the context of emergency management". *The Australian Journal of
Emergency Management*. Vol. 13, No. 4, 1999

Neal, David M. 1997. "Reconsidering the Phases of Disaster."
*International Journal of Mass Emergencies and Disasters*, Vol. 15, No.
2, 239-264.

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Additional Sources to Consult:

Beavers, James E., Dennis Mileti, and Lori Peek: 2000. "Dealing with
Natural Hazards Requires A New Approach." *Natural Hazards Review*, Vol.
1, No. 2, May, pp. 65-66.

Crews, David. 1999. "Why Emergency Management as a Profession?" *The
ASPEP Journal 1999*. American Society of Professional Emergency
Planners.

FEMA. 2000. *Strategic Plan, FY 2000 through FY 2006 -- Partnership for
a Safer Future*. Washington, DC: FEMA.

Fothergill, Alice. 2000. "Knowledge Transfer Between Researchers and
Practitioners." *Natural Hazards Review*, May, pp. 91-98.

Hecker, Edward J., William Irwin, David Cottrell, and Andrew Bruzewicz.
2000. "Strategies for Improving Response and Recovery in the Future."
*Natural Hazards Review*, pp. 161-170, August.*\
*

Idaho National Engineering and Environmental Laboratory. 2000. *Public
and Private Integrated Safety Administration Programs -- Native American
Tribes, Rural Communities, States, Major Cities, US Territories, Foreign
Nations and Industry.* October 18.

Mitchell, James K. (ed.). 1999. *Crucibles of Hazard: Mega-Cities and
Disasters in Transition*. Tokyo, NY, Paris: United Nations University
Press.

Mittler, Elliott. 1989. *Natural Hazard Policy Setting: Identifying
Supporters and Opponents on Nonstructural Hazard Mitigation.* Boulder,
CO: Institute of Behavioral Science, University of Colorado, Program on
Environment and Behavior Monograph \# 48.

National Governors' Association. 1978. *1978 Emergency Preparedness
Project -- Final*

*Report*. Washington, DC: Defense Civil Preparedness Agency.

National Governors' Association. 1979. *Comprehensive Emergency
Management -- A Governor's Guide*. Washington DC: Defense Civil
Preparedness Agency, May.

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

Twigg, John. 1999-2000. "The Age of Accountability? Future Community
Involvement in Disaster Reduction." *Australian Journal of Emergency
Management,* Summer, pp. 51-58.

Waugh, William L. Jr. 2000. "Expanding the Boundaries of Emergency
Management." *IAEM Bulletin*, Vol. 17, No. 10, October, pp. 1 & 4.

**Additional Sources to Consult: BDRC.**

Armstrong, Michael J. 2000. "Back to the Future: Charting the Course for
Project Impact." *Natural Hazards Review*, Vol. 1, No. 3, August, pp.
138-144.

Berke, Philip R. and Maria Manta Conroy. 2000. "Are We Planning for
Sustainable Development? An Evaluation of 30 Comprehensive Plans."
*Journal of the American Planning Association*, Vol. 66, No. 1, Winter,
pp. 21-33.

FEMA. 2000. Planning for a Sustainable Future -- The Link Between Hazard
Mitigation and Livability. (Project Impact).

Geis, Donald E. 2000. "By Design: The Disaster Resistant and
Quality-of-Life Community." *Natural Hazards Review*, Vol. 1, No. 3,
August, pp. 151-160.

Gore, Vice President Al. 2000. *Building Livable Communities*. On-line
at URL: http://www.livablecommunities.gov/report2k.htm

Institute for Business & Home Safety. 2000. *Template: IBHS Showcase
State for Natural Disaster Resistance and Resilience -- A Systematic
Management Approach for Disaster Loss Reduction*. (Draft for Ad Hoc
Showcase Committee Review) August 10.

May, Peter J, et al. 1996. *Environmental Management and Governance:
Intergovernmental Approaches to Hazards and Sustainability*. London and
NY: Routledge.

Mileti, Dennis S., JoAnne DeRouen Darlington, Eve Passerini, Betsy C.
Forrest, Mary Fran Myers. 1995. "Toward an Integration of Natural
Hazards and Sustainability." *The Environmental Professional*, Vol. 17,
pp. 117-126.

Monday, Jacquelyn L. and Mary Fran Myers. 1999. *Coping With Disasters
By Building Local Resiliency*. Fairfax, VA: Public Entity Risk
Institute, Internet Symposium, October 4-7, 1999.

Nigg, Joanne, et.al. August 24, 1998. *Disaster Resistant Communities
Initiative: Evaluation Of The Pilot Phase.* Executive Summary. Project
\# SAI 97-09-18-04. FEMA

North Carolina Division of Emergency Management. 2000. *Hazard
Mitigation in North Carolina: Measuring Success -- Executive Summary.*
Raleigh, NC: NCDEM, February.

North Carolina Division of Emergency Management. 2000. *Hazard
Mitigation in North Carolina: Measuring Success.* Raleigh, NC: NCDEM,
February.

Paton, Douglas, Leigh Smith and John Violanti. 2000. "Disaster Response:
Risk, Vulnerability and Resilience." *Disaster Prevention and
Management,* Vol. 9, No. 3, pp. 173-179.

Phillips, Brenda. 2000. \"Environmental Hazards, Sustainability, and
Social Justice: Making a Difference.\" Chapter 24 (pp. 205-209) in
*Analyzing Social Problems: Essays and Exercises* (2nd ed.), Dana Dunn
and David Waller (eds.), Upper Saddle River, NJ: Prentice Hall.

Rhode Island. January 2000. *Showcase State for Natural Disaster
Resistance and Resilience.* Institute for Business & Home Safety (IBHS).

# Tierney, Kathleen J. June 2000. Disaster Resistant Communities Initiative: Evaluation Of The Pilot Phase, Year 2. Executive Summary. Project \# EMW-97-CA-0519. FEMA. 

Tobin, Graham A. 1999. *Sustainability and community resilience: the
holy grail of hazards planning*? [Environmental Hazards]{.underline}.
Vol. 1, No. 1. June.

Twigg, John. 1999-2000. "The Age of Accountability?: Future Community
Involvement in Disaster Reduction." Pp. 51-58 in *The Australian Journal
of Emergency Management*, Vol. 14, No. 4, Summer.

Witt, James L. 2000. *Remarks for James L. Witt, Smart Growth Symposium
Mecklenburg County, NC.* Washington, DC: FEMA, July 14, 2000.

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#### General Requirements:

PowerPoint slides have been prepared to support this session. The
session is not dependent upon the utilization of these visual aids. They
are provided as a tool that the professor is free to use as PowerPoints
or overhead transparencies.

If you have not already distributed the handout, Emergency
Management-Related Terms and Definitions, it is included for use with
this session.

**Note to the Professor:** This session is Part III of a three-part
breakout of the topic, Fundamentals of U.S. Emergency Management. It is
the third of three sessions as outlined on page 8 of the Session 13
notes. Included at the end of these notes are long and short versions of
a student activity on the four phases of emergency management. The
references at the end of this session are inclusive of the material in
all three Fundamentals sessions, with supplementary references on
Building Disaster Resilient Communities.

**Objective 15.1 Describe the Four Phases that comprise the disaster
life cycle.**

The Four Phases of the Disaster Life Cycle

-   Another **fundamental** of U.S. Emergency Management is referred to
    as **"the Four Phases" of the disaster life cycle.**

*Note to the Instructor: At this point, the students should review the
terms relevant to the phases that are listed in the handout, Emergency
Management-Related Terms and Definitions.*

-   It has been written that:

    **"Disasters do not just appear one day. Rather, they exist
    throughout time and have a lifecycle of occurrence which must be
    matched by a series of management phases that include strategies to
    mitigate hazards, prepare for and respond to emergencies, and
    recover from their effects**" (FEMA 1993 (Sep), 1-5).

-   Within the U.S., emergency activities have been categorized **into
    four phases that require different types of organization and
    preparation:**

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-   Mitigation

-   Preparedness

-   Response

-   Recovery

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-   This particular codification gained precedence over others as a
    result of the use of this terminology in the **National Governor's
    Association Report of 1979**.

-   Prior to this time it was not uncommon to see time phases discussed
    in terms of **pre-event**, **event**, and **post-event**; or
    **"prevention" preceding "mitigation"** instead of being collapsed
    into it; **with recovery broken up into such subcategories as
    restoration, rehabilitation, redevelopment and reconstruction**.

-   For example, Fischer describes five stages:

    "The **pre-impact period** is one in which some measure of
    preparation may occur if the need to prepare is clearly communicated
    to potential victims in such a fashion as to provide them with
    sufficient warning time.

    "The **impact period** is often the shortest, yet most dangerous,
    part of the disaster's life cycle. The hurricane blows through; the
    tornado touches down and is gone; the plane crash is virtually
    instantaneous.

    "During the immediate **post-impact period** the survivors must
    confront their new reality. After some disasters, many survivors
    will find that they have not lost anything of value while others
    will have suffered devastating losses, human and/or material.

    "During the **recovery period** debris clearance is usually
    completed; essential services are often restored; insurance claims
    are filed; preliminary reconstruction plans are designed; and a
    sense of normalcy begins to return to the community.

    "Finally, the **reconstruction** period begins which may, depending
    on the scope of the disaster, extend for years"[^1]

-   On the subcategories of "recovery":

    "The term **Recovery is inconsistently used**. . . Those who use
    **Restoration** mean to indicate the putting back of what was
    before. **Reconstruction** carries with it the connotation of
    emphasis on the physical infrastructure, while **Rehabilitation**
    emphasizes the human side of recovery, both physical and
    psychosocial. **Restitution** usually refers to the lengthy process
    of compensation claims, litigation and financial claims against
    insurers, government agencies and those who may have contributed to
    the losses incurred."[^2]

-   There is **nothing "magic" to this lexicon** except that it tends to
    dominate over others in the United States. One can easily find other
    ways to codify the Disaster Life Cycle in disaster literature.[^3]

-   Brief descriptions of each phase follow:

# **MITIGATION:**

-   The first phase is **Mitigation**. Here is a FEMA definition:

    "Mitigation is any action of a **long-term, permanent nature** that
    **reduces** the actual or potential risk of loss of life or property
    from a hazardous event." (FEMA 1998 (March), 9-25)

*Note to the Instructor: Here are a couple other definitions if you
choose to compare and contrast.*

"Mitigation refers to activities which actually **eliminate or reduce**
**the chance of occurrence** or the effects of a disaster....It also
**includes long-term activities which reduce the effects of unavoidable
disasters.**" (FEMA 1993 (Sep), 1-7 and 1-10).

"Mitigation includes activities designed to **postpone, dissipate, or
lessen the effects of a disaster or emergency**. In general,
**mitigation is the initial phase**. It should be considered **long
before an emergency occurs**." (FEMA 1995, II-2)

-   The point is that **Mitigation is**:

    "taking **sustained actions** to reduce or eliminate long-term risk
    to people and property from hazards and their effects." (FEMA 1998
    (May), SM 1-12)

-   As Lindell and Perry note (1992, 12), "the focus here is on
    **prevention---stopping disasters before they happen**."

**Key Terms:**

-   Mitigation includes measures that:

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-   **Are taken long before disaster threatens -- i. e., not upon
    notification**

-   **Eliminate or reduce the threat or the consequences**

-   **Are long-term, permanent or sustained -- i.e., not temporary**

**Examples**

-   **Building Codes, Regulations, Ordinances and Standards:**

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-   Requiring **roof tie-downs** to reinforce roofs in
    hurricane-vulnerable localities

(FEMA 1993 (Sep), 1-7).

-   Requiring **elevation of structures** in floodplains (FEMA 1993
    (Sep), 1-7).

-   Adopting **hazardous materials container** structural codes.

-   Requiring **flame-resistant roofing** material in areas subject to
    bush and wildfires.

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-   **Building/Facility Design:**

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-   **Analyzing building failures** following an earthquake.

-   **Improved design and construction** **techniques**.

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-   **Critical and Public Facilities Policies and Projects such as:**

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-   Mandating measures to **make utilities, structural components, and
    contents resistant to damage**. (FEMA 1998 (March), 9-26).

-   **Dredging waterways** prone to flooding.

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-   **Land-Use Planning, Zoning and Regulations:**

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-   Zoning regulations that **prevent or regulate the use of hazardous
    areas** like floodplains (FEMA 1993 (Sep), 1-7).

-   **Limiting density** of construction to decrease fire spread
    potential.

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-   **Acquisition or Relocation of Structures:**

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-   **Purchase of structures within a floodplain** for the purpose of
    destruction or removal outside the flood plain.

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-   **Hazards Control:**

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-   Dikes, dams, levees

-   Retaining walls and breakwaters

-   Sprinkler systems

-   Slope stabilization measures

-   Windbreaks

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-   **Hazards Regulation:**

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-   Regulation of **transportation of hazardous cargoes** through
    congested urban areas. (FEMA 1995, II-2)

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-   **Real Estate Disclosure Provisions**

-   **Retrofitting Measures:**

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-   Adding **wire mesh to chimneys** in wooded areas

-   **Bolting a house to its foundation** in areas susceptible to
    earthquakes

-   **Bracing pendant** (drop or suspended) **ceilings** for earthquake
    protection

-   **Hurricane clips and shutters**

-   **Mobile home tie-downs**

-   **Reinforcing and/or bracing chimneys** in earthquake prone areas

-   **Replacing unreinforced brick filler walls** with reinforced
    masonry\--earthquake threat

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-   **Public Education, Awareness and Outreach:**

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-   **Contour farming** to help reduce flood potential

-   On **all aspects** of mitigation

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-   **Mitigation is important to:**

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-   **Protect** people and structures

-   **Reduce** the costs of disaster response

-   **Help reduce** the Federal debt. (FEMA 1998 (March), 9-25)

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-   **Prior to the Witt Era, mitigation received the smallest proportion
    of resources devoted to emergency management**. (Lindell and Perry
    1992, 15)

# **PREPAREDNESS**

-   The second phase is **Preparedness**. Here is a FEMA definition:

    "Preparedness is planning how to respond in case an emergency or
    disaster occurs and working to increase resources available to
    respond effectively." (FEMA 1993, 1-8).

-   Another way to say this is that:

    Preparedness is planning **now** on how to respond in case of
    emergency or disaster in order to protect human lives and property,
    and **developing capabilities and programs that contribute to a more
    effective response.**

    Preparedness is an **"insurance policy"** against emergencies since
    we cannot mitigate against every disaster. It is undertaken because
    mitigation activities cannot keep all emergencies from happening.
    (FEMA 1995, II-2)

*Note to the Instructor: Yet another definition is that preparedness is
"building the emergency management profession to effectively prepare
for, mitigate against, respond to, and recover from any hazard by
planning, training, and exercising." (FEMA 1998 (May), SM 1-12)*

**Key Term: Building Response Capabilities**

**Examples:**

-   **Establishing Hazard and Emergency-Related Laws, Regulations and
    Authorities:**

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-   Establishment of an **emergency management organization**

-   Establishment of a **line of succession** for continuity of
    government

-   Regulations requiring posting of **Fire Exit signs**

-   **"Good Samaritan"** Law

-   Hazardous materials **release notification** laws

-   **Mutual aid agreements** with other political jurisdictions.

-   Stand-by **vendor contracts**

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-   **Planning, Policies and Procedures:**

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-   Development of an **Emergency Operations Plan** to ensure the most

effective, efficient disaster response.

-   **Hazards, Vulnerability and Risk Analyses and Maps**

-   **Evacuation and Shelter** policies, plans and procedures

-   **Special Populations** planning (disabled, incarcerated, homebound,
    etc.).

-   **Pets in Shelters** policies, plans and procedures.

-   **Crisis Counseling** plans and procedures

-   **Unsolicited Goods and Services** plans and procedures.

-   **Mass Casualty/Fatality** plans, policies and procedures.

-   **Non-essential functions curtailment** during disaster policy
    development.

-   **Prioritized essential services** restoration plans.

-   **Resource Management** plan, policy and procedures.

-   Policy on **hazard pay** for government employees.

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-   Drafting a **recovery or strategic long-term community mitigation**
    plan.

-   **Special Events Planning** (sporting events, concerts, celebrity
    visits).

-   Developing a **Community Profile** (demographics, resources,
    facilities).

-   **Dependent care policy** for dependents of emergency services
    personnel.

-   **Capability Development,** such as the pre-emergency establishment
    of:

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-   **Budget preparation for the emergency management organization**

-   **Emergency Operations Center**

-   **Hazard forecasting, detection, monitoring and/or warning
    capabilities**

-   **Hiring of emergency management personnel**

-   **Putting family disaster supplies kit together**

-   **Smoke detector placement**

-   **Stockpiling critical emergency supplies and equipment**

-   **Storm shelter construction**

-   **Storm Watch and Warning programs**

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-   **Training and Education:**

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-   Training of emergency services and other personnel to respond.

-   Development and implementation of citizen disaster awareness and
    community disaster education programs.

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-   **Tests, Exercises and Drills for Personnel and Equipment** (FEMA
    1995, II.2).

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-   Public and Private Sectors

-   Community and Family (e.g. fire drills).

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-   **Insurance Coverage**

# **RESPONSE:**

-   The third phase is **Response**.

    "Emergency response activities are conducted during the time period
    **that begins with the detection** of the event and **ends with**
    the **stabilization of the situation** following impact." (Lindell
    and Perry 1992, 13)

-   A FEMA definition:

    **"Conducting emergency operations to save lives and property by
    positioning emergency equipment and supplies; evacuating potential
    victims; providing food, water, shelter, and medical care to those
    in need; and restoring critical public services."** (FEMA 1998
    (May), SM 1-12-13)

    **Response efforts seek to:**

-   **Implement Preparedness Measures upon detection of imminent or
    approaching danger,** as in:

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-   Sounding warning sirens, issuing evacuation advisories, shuttering
    windows prior to hurricane landfall

-   Activating and staffing Emergency Operations Centers

-   Opening and staffing shelters

-   Issuing emergency public information

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-   **Provide or Enable Emergency Assistance,** as in:

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-   Emergency medical care (FEMA 1993 (Sep), 1-10)

-   Shelter operations

-   Emergency food and water provision.

-   Search and Rescue

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-   **Confront Hazard Effects and Reduce Damages**

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-   Flood fighting

-   Debris removal from critical needed roadways

-   Fighting fires and other secondary effects such as contamination

-   Tracking/monitoring the disaster event -- such as a hazardous
    materials plume

-   Securing the impact area

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-   **Enhance Recovery Potential**

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-   Damage Assessment

-   Managing unsolicited goods and services

    "This phase of activity is **marked by time pressures** and a
    **sense of urgency** that is less prevalent in mitigation,
    preparedness, and recovery. In the world of disaster response,
    minutes of delay can cost lives and property" (Lindell and Perry
    1992, 14).

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-   One of the clues that response efforts are turning into recovery
    efforts is when this sense of crisis passes. As David Neal has
    written:

    **"One indicator that the response phase is ending occurs when male
    managers begin wearing ties and jackets again, or when women
    managers begin wearing skirts and hose again"** (Neal 1997, 255).

# 

# **RECOVERY:**

-   The fourth phase is **Recovery.**

-   In the past, the lion's share of financial resources devoted to
    emergency management has gone to disaster recovery. (Lindell and
    Perry 1992, 14)

    Recovery refers to those **non-emergency measures** following
    disaster whose purpose is to return all systems, both formal and
    informal, to as normal as possible (FEMA 1995, Introduction to
    Emergency Management Course, II-2).

    "Recovery means **rebuilding communities** so that individuals,
    businesses, and governments can:

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-   **Function on their own.**

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-   **Return to normal life.**

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-   **Protect against future hazards."**[^4]

    Recovery activities generally begin after the response phase, but,
    depending on the recovery measure, can begin while others are still
    in disaster response -- and can continue for years. (FEMA 1995,
    II-2)

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-   One FEMA Federal Coordinating Officer has stated that one day he
    realized he had just transitioned from a response to a recovery mode
    when he started asking "how much does that cost" questions.

Examples are:

-   Cleanup and decontamination operations

-   Community planning

-   Consumer protection against price-gouging and contractor fraud

-   Crisis counseling that may help victims of catastrophic loss

-   Debris clearance (from non-critical transportation routes)

-   Development of a Recovery Plan or strategy (after the fact)

-   Disaster relief assistance for individuals, families and communities

-   Legal assistance

-   Long-term radiation exposure control

-   Pumping out flooded residential basements

-   Razing burned-out buildings

-   Reconstruction

-   Redevelopment loans

-   Reforestation after wildfire devastation

-   Temporary housing (non-emergency)

**A Cyclical, Non-linear Relationship**

-   The U.S framework of four phases has been adopted abroad, sometimes
    referred to as "prevention, preparedness, response, recovery (PPRR).
    A strictly linear reading of the framework has elicited challenges.
    Mal Cronstedt of the Fire and Emergency Services Authority of
    Western Australia (FESA) writes:

    "This framework was subsequently imported into Australian emergency
    management policy and has held prominence in policy ever since. . .
    The principles have been adapted somewhat with the substitution of
    Mitigation with Prevention (though mitigation often appears appended
    to, or a part of, prevention.)

    "First of all, PPRR sets up artificial barriers between the four
    elements and therefore implies a clear delineation between the
    elements. . . Secondly, the elements always appear equally important
    in all circumstances. . . Thirdly, the elements assume a sequential
    consideration of PPRR and that they must be considered and
    implemented in the same order all the time. . . Fourthly, the
    elements appear biased towards 'action' based treatments, whereas
    there may be softer options involving social dimensions. PPRR tends
    to relate to activity and physical actions. This focus on action
    appears to be a carry-over from the emergency management paradigm
    that focussed on the hazard rather than vulnerability.

    "The risk management methodology should guide the selection,
    application and review of risk treatments without the use of PPRR as
    a means of categorising treatments."[^5]

-   Importantly, however:

    **Experience shows that these phases are cyclical rather than linear
    in their interrelationships**.[^6] (FEMA 1995, II-2)

    **All activities and experiences lead individually and cumulatively
    back to the mitigation phase---we learn to prevent and diminish
    future emergencies from past events, whether through actual
    emergencies or simulations of response activities.** (FEMA 1995,
    II-2)

    The disaster or emergency, actual or potential, can be seen as the
    motivating force for the motion of the cycle. (FEMA 1995, II-2)

*Note to the Instructor: If there is time, you may wish to pose for
discussion the assumption, in general, of a disaster life cycle as
follows: Prevention/Mitigation/Preparedness, then a disaster event,
followed by emergency response, followed by recovery-reconstruction
(which is also Prevention/Mitigation/Preparedness for the next
disaster).*[^7] *Elicit student response on the possible need for a new
phase along the lines of Analysis and Application or lessons learned.*

*Note to the Instructor: If you have the time and inclination, you may
want to try to get your students to think of the four phases in a
personal way. The following is an aid to such an approach.*

**Personalizing the Four Phases:**

-   Typical emergencies that can occur in one's home can illustrate the
    four phases:

-   First, you prepare to protect yourself or others if an emergency
    occurs.

-   If an accident does happen, you administer first aid or get medical
    attention if necessary.

-   Later, you clean up or repair any damage

-   Finally, you ask yourself how the accident happened and how it can
    be prevented from happening again. You take steps you believe would
    lessen the problems you experienced handling the accident.

*Ask if there are any questions. When questioning ends, hand out the
student Four-Phases Handout and give the class approximately twenty
minutes to complete it. Compare results and discuss differences of
opinion.*

*Note that both the long and short versions of the Four-Phases Handout
consist of both an answer key and a blank student version.*

*Notes to the Instructor on the Four Phases Activity*

After going through the activity the Instructor should note that at
times there will be difficulty distinguishing an activity into just one
phase.

Some actions or activities might be reasonably classified differently by
different people.

This is not something to get overly excited about.

The point is to become familiar with the broad range of actions and
activities that can take place with the disaster life cycle and to note
that since this is a cycle, elements can and do blend into each other.

**"At best, such period divisions are arbitrary, and are only useful in
distinguishing the major functional activities of a period. Emergency
activities do not cease suddenly, to be replaced by other types of
activities. There is a blend of activity, with different groups of
people working of different phases or recovery activity at the same
time."**[^8]

**Objective 15.2 Describe the major tenets of Building Disaster
Resilient Communities**

**Building Disaster Resilient Communities**

-   While the concept of building disaster resilient communities (BDRC)
    is not a principle of emergency management itself, it encapsulates
    several principles.

-   BDRC is a **sustainable development** philosophy, some components of
    which are:

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```
-   Recognizing that **unconstrained development leads to disaster**

-   Working toward **smart growth**

-   Implementing **strategic community planning**

-   **Respecting and defending the environment**

-   **Networking and partnering**

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```
-   Because BDRC is too **big for one person or a small number of
    people** to accomplish

-   To **bring people together from a variety of backgrounds and
    disciplines to refract the hazard problem through a prism of
    complementary minds allied in common purpose.**

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-   Communities with the philosophy of BDRC at their core will:

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-   Reduce vulnerability of people

-   Seek inter and intro-governmental equity

-   Strengthen social, economic, and environmental resiliency

-   Practice smart and long-term structural mitigation

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```
-   BDRC public education is needed.

-   The Future of Emergency Management:

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-   From *background* to *boardroom*: Unlike the stereotypical emergency
    manager, today's professional emergency managers will interact with
    all levels of community partners, using a

-   Long-term and global perspective.

-   Emergency Management will become synonymous with BDRC

    **"Emergency managers should provide leadership and mechanisms for
    promoting disaster-resistant communities that include:**

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-   Disaster plans that include planning for recovery.

-   Neighborhood networks organized around hazard risks.

-   Strong community organizations with disaster-related missions.

-   Coordinating mechanism for these agencies (such as Volunteer
    Organizations Active in Disasters)

-   Policies and practices to facilitate family and kinship assistance.

-   Identification and targeting of most vulnerable segments of the
    community.

-   Women and minorities included at every level."[^9]

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-   Four-Phases Disaster Life Cycle

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-   Holistic -- Not Just Advanced Mitigation

    "Disaster risk management and reduction are about **looking beyond
    hazards alone to consider prevailing conditions of vulnerability**.
    It is **the social, cultural, economic, and political setting** in a
    country that makes people vulnerable to unfortunate events. The
    basis of this understanding is simple: the national character and
    chosen form of governance can be as much of a determinant in
    understanding the risks in a given country as are the various
    social, economic, and environmental determinants."[^10]

    "The emergence of a **disaster reduction culture** is conditioned by
    contexts and processes that are described below:

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-   The sustainable development context, the ultimate international
    goal;

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-   The political context, essential for action;

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-   The three contexts linked to the pillars of sustainable development:

    \(a\) The **socio-cultural** system

    \(b\) The **economic** system

    \(c\) The **environmental** system."[^11]

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```
-   Sustainability involves six principles (J. Monday in ISDR, 2000.
    26):

    **1. Maintain and enhance quality of life.**

    **2. Enhance economic vitality.**

    **3. Ensure social and intergovernmental equity.**

    **4. Maintain and enhance environmental quality.**

    **5. Incorporate disaster resilience and mitigation into actions and
    decisions.**

    **6. Use a consensus-building, participatory process when making
    decisions.**

-   A **participatory** approach is key:

    **The key issue is how to build safer communities that are
    affordable for all who live there, not just the privileged classes.
    This, we suggest, requires both a sensitivity to local sociocultural
    complexity and a participatory approach to planning and mitigation
    (e.g. Maskrey 1994). Participation can create the illusion of
    democracy if it is not among equals and if it is used merely to
    ratify elite or technocratic agendas (Milton 1996; Szasz 1994,
    Woods 1995) (Bolin/Stanford 1998, 225).**

-   FEMA's **Project Impact**, under former Director, James Lee Witt,
    was a good example.

    "Project Impact **combined traditional and innovative development
    strategies to create strong and healthy communities.** Through
    Project Impact, **community identity was re-defined and enhanced,
    community consciousness was encouraged, and citizens were more
    likely to participate in disaster reduction activities."**[^12]

-   As proposed by Witt:

    **"By weaving disaster resistance into the fabric of smart growth,
    community planning, and economic development, we can manage sprawl
    and lessen the impact that disasters have on the economic and social
    fabric of our communities, businesses and citizens.**

    **"We share the purpose not simply of protecting lives, but of
    enriching our communities' quality of life.**

    **"By weaving disaster resistance into the fabric of community
    planning, we can replace old divisions about growth with a common
    dedication to safety.\"**[^13]

-   Why would communities invest in this type of effort?

    "The **motivation** to invest in disaster risk reduction **is first
    and foremost a human, people-centered concern**. It is about
    **improving standards of safety and living conditions with an eye on
    protection from hazards to increase resilience of communities**. A
    safer society to withstand disasters may be argued as a case of
    **ethics and social justice and equity**."[^14]

-   Again, BDRC is a **shared** responsibility:

    "In the past, making communities safe was seen as the job of
    engineers, who, for instance, would apply structural solutions to
    flood control and coastal storms. . . Instead of relying on
    structural engineering, the time has come to tap nature's
    engineering techniques---using the services provided by healthy and
    resilient ecosystems.

    "There is still a role for **traditional engineering**. Buildings
    and bridges can be made to better withstand natural hazards

    "**Communities** can also act to reduce the 'hidden hazards' that
    can create a 'disaster after the disaster.' After Hurricane Floyd
    hit North Carolina in 1999, for example, the contents of open waste
    ponds of industrial hog farms spread out over the landscape in the
    floodwaters. Chemical plants and other industrial sites also present
    special hazards. . . \[e\]nsuring safe containment of these
    facilities can save many lives and considerable money in
    post-disaster cleanup efforts.

    "**Governments** have a role to play in investing in hazard and risk
    assessments and in developing databases on losses, mitigation
    efforts, and social data. They can establish land use policies,
    limit subsidization of risk and destructive activities, use
    incentives, to encourage sound land use and sustainable hazard
    mitigation and encourage collaboration between agencies and civil
    society.

    "**Private and public insurers** can help reduce hazard losses by
    providing information and education as well as incentives that
    encourage mitigation."[^15]

***Note to the Instructor:** You may wish to conclude this session by
eliciting any questions that the students may have about the
Fundamentals of Emergency Management.*

###  Four Phases Student Activity -- Short Version

Listed below are many more-or-less traditional emergency management
functions. Enter an **M** for mitigation, **P** for preparedness, **Rs**
for response and **Rc** for recovery for each item.

\_\_\_\_\_\_ Activating warning system when tornado is spotted

\_\_\_\_\_\_ Adding wire mesh to chimneys in wooded areas

\_\_\_\_\_\_ Analyzing building failures following an earthquake

\_\_\_\_\_\_ Bolting a house to its foundation in earthquake country

\_\_\_\_\_\_ Budget preparation for the emergency management
organization

\_\_\_\_\_\_ Building codes, regulations, ordinances, development of
hazard-related

\_\_\_\_\_\_ Community disaster education program

\_\_\_\_\_\_ Community profile (demographics, resources,
facilities)---development of

\_\_\_\_\_\_ Crisis counseling plans and procedures (emergency services
personnel, victims)

\_\_\_\_\_\_ Crisis counseling 2 days after a hurricane

\_\_\_\_\_\_ Crisis counseling 2 months after a hurricane

\_\_\_\_\_\_ Damage assessment plans and procedures, pre-event
development of

\_\_\_\_\_\_ Declaration of a state of emergency or disaster

\_\_\_\_\_\_ Donated goods plans and procedures, pre-event development
of

\_\_\_\_\_\_ Elevation of structures in a floodplain

\_\_\_\_\_\_ Emergency activation call-down list, preparation of

\_\_\_\_\_\_ Emergency Operations Center activation

\_\_\_\_\_\_ Emergency Operations Center, pre-event establishment of

\_\_\_\_\_\_ Emergency Operations Plan, drafting of

\_\_\_\_\_\_ Emergency Public Information plans and procedures,
pre-event development of

\_\_\_\_\_\_ Equipment, stockpiling of emergency-related equipment
(chainsaws)

\_\_\_\_\_\_ Essential services prioritized restoration plans
(electricity, water, sewage, phones)

\_\_\_\_\_\_ Exercise participation

\_\_\_\_\_\_ Federal Disaster Assistance, knowledge of procedures to
apply for

\_\_\_\_\_\_ Floodplain regulation

\_\_\_\_\_\_ Fire exit signs, regulations requiring their placement

\_\_\_\_\_\_ Hazards, vulnerability and risk analysis

\_\_\_\_\_\_ Hazardous materials container structure codes

\_\_\_\_\_\_ Hazardous materials containment and scrubbing equipment,
stockpiling of

\_\_\_\_\_\_ Hazardous materials plume tracking

\_\_\_\_\_\_ Hazardous materials release notification laws and
regulations, development of

\_\_\_\_\_\_ Hazardous materials transportation through a jurisdiction,
regulation of

\_\_\_\_\_\_ Hazardous materials underground storage tank regulations,
enforcement of

\_\_\_\_\_\_ Installation of fire suppression systems in new
construction

\_\_\_\_\_\_ Installation of hurricane clips and shutters by a homeowner

\_\_\_\_\_\_ Land-use controls and procedures, development of

\_\_\_\_\_\_ Laws and legislation, development and passage of
disaster-related

\_\_\_\_\_\_ Limiting density of construction to decrease fire spread
potential

\_\_\_\_\_\_ Mass casualty plans and procedures, development of

\_\_\_\_\_\_ Mobile home tie-downs

\_\_\_\_\_\_ Mobilization of essential services and personnel in
anticipation of disaster

\_\_\_\_\_\_ Mutual aid agreements with neighboring political
jurisdictions

\_\_\_\_\_\_ Ordering an evacuation without the legal authority to do so

\_\_\_\_\_\_ Practicing family fire drills

\_\_\_\_\_\_ Pumping out flooded electrical generating plant

\_\_\_\_\_\_ Pumping out flooded residential basements

\_\_\_\_\_\_ Purchasing warning and communications equipment

\_\_\_\_\_\_ Purchasing plywood and cutting it to fit windows in case of
a hurricane

\_\_\_\_\_\_ Putting plywood over windows as a hurricane approaches the
coastline

\_\_\_\_\_\_ Putting family disaster supplies kit together

\_\_\_\_\_\_ Razing burned-out buildings

\_\_\_\_\_\_ Recovery plan, preparation of during disaster response and
recovery phases

\_\_\_\_\_\_ Regulating hazardous material users or producers in a
jurisdiction

\_\_\_\_\_\_ Replacing unreinforced brick filler walls with reinforced
masonry in earthquake country

\_\_\_\_\_\_ Replacing wood shingle roof with slate roof in area prone
to wildfires

\_\_\_\_\_\_ Requiring hazards disclosure statements in real estate
transactions

\_\_\_\_\_\_ Retrofitting a utility to harden it against earthquake
threat

\_\_\_\_\_\_ Roof reinforcement for hurricane threat

\_\_\_\_\_\_ Search and rescue operations

\_\_\_\_\_\_ Shelter opening and activation in anticipation of hurricane
landfall

\_\_\_\_\_\_ Shuttering windows prior to hurricane landfall

\_\_\_\_\_\_ Slope stabilization measures

\_\_\_\_\_\_ Smoke detector placement in one's home

\_\_\_\_\_\_ Stand-by agreements with commercial vendors for crisis
delivery of goods or services

\_\_\_\_\_\_ Testing warning equipment

### Four Phases Student Activity -- Short Version

**Instructor's Answer Key**

Listed below are many more-or-less traditional emergency management
functions. Enter an **M** for mitigation, **P** for preparedness, **Rs**
for response and **Rc** for recovery for each item.

[\_\_Rs\_\_]{.underline} Activating warning system when tornado is
spotted

[\_\_M\_]{.underline}\_ Adding wire mesh to chimneys in wooded areas

[\_\_M\_\_]{.underline} Analyzing building failures following an
earthquake

[\_\_M\_\_]{.underline} Bolting a house to its foundation in earthquake
country

[\_\_P\_\_\_]{.underline} Budget preparation for the emergency
management organization

[\_\_M\_\_]{.underline} Building codes, regulations, ordinances,
development of hazard-related

[\_\_P\_\_\_]{.underline} Community disaster education program

[\_\_P\_\_\_]{.underline} Community profile (demographics, resources,
facilities)---development of

[\_\_P\_\_\_]{.underline} Crisis counseling plans and procedures
(emergency services personnel, victims)

[\_\_Rs\_\_]{.underline} Crisis counseling 2 days after a hurricane

[\_\_Rc\_\_]{.underline} Crisis counseling 2 months after a hurricane

[\_\_P\_\_\_]{.underline} Damage assessment plans and procedures,
pre-event development of

[\_\_Rs\_\_]{.underline} Declaration of a state of emergency or disaster

[\_\_P\_\_\_]{.underline} Donated goods plans and procedures, pre-event
development of

[\_\_M\_\_]{.underline} Elevation of structures in a floodplain

[\_\_P\_\_\_]{.underline} Emergency activation call-down list,
preparation of

[\_\_Rs\_\_]{.underline} Emergency Operations Center activation

[\_\_P\_\_\_]{.underline} Emergency Operations Center, pre-event
establishment of

[\_\_P\_\_\_]{.underline} Emergency Operations Plan, drafting of

[\_\_P\_\_\_]{.underline} Emergency Public Information plans and
procedures, pre-event development of

[\_\_P\_\_\_]{.underline} Equipment, stockpiling of emergency-related
equipment (chainsaws)

[\_\_P\_\_\_]{.underline} Essential services prioritized restoration
plans (electricity, water, sewage, phones)

[\_\_P\_\_\_]{.underline} Exercise participation

[\_\_P\_\_\_]{.underline} Federal Disaster Assistance, knowledge of
procedures to apply for

[\_\_P\_\_\_]{.underline} Fire exit signs, regulations requiring their
placement

[\_\_M\_\_]{.underline} Floodplain regulation

[\_\_P\_\_\_]{.underline} Hazards, vulnerability and risk analysis

[\_\_M\_\_]{.underline} Hazardous materials container structure codes

[\_\_M\_\_]{.underline} Hazardous materials containment and scrubbing
equipment, stockpiling of

[\_\_Rs\_\_]{.underline} Hazardous materials plume tracking

[\_\_P\_\_\_]{.underline} Hazardous materials release notification laws
and regulations, development of

[\_\_M\_\_]{.underline} Hazardous materials transportation through a
jurisdiction, regulation of

[\_\_M\_\_]{.underline} Hazardous materials underground storage tank
regulations, enforcement of

[\_\_M\_\_]{.underline} Installation of fire suppression systems in new
construction

[\_\_M\_\_]{.underline} Installation of hurricane clips and shutters by
a homeowner

[\_\_M\_\_]{.underline} Land-use controls and procedures, development of

[\_\_P\_\_\_]{.underline} Laws and legislation, development and passage
of disaster-related

[\_\_M\_\_]{.underline} Limiting density of construction to decrease
fire spread potential

[\_\_P\_\_\_]{.underline} Mass casualty plans and procedures,
development of

[\_\_M\_\_]{.underline} Mobile home tie-downs

[\_\_Rs\_\_]{.underline} Mobilization of essential services and
personnel in anticipation of disaster

[\_\_P\_\_\_]{.underline} Mutual aid agreements with neighboring
political jurisdictions

[\_\_Rs\_\_]{.underline} Ordering an evacuation without the legal
authority to do so

[\_\_P\_\_\_]{.underline} Practicing family fire drills

[\_\_Rs\_\_]{.underline} Pumping out flooded electrical generating plant

[\_\_Rc\_\_]{.underline} Pumping out flooded residential basements

[\_\_P\_\_\_]{.underline} Purchasing warning and communications
equipment

[\_\_P\_\_\_]{.underline} Purchasing plywood and cutting it to fit
windows in case of a hurricane

[\_\_Rs\_\_]{.underline} Putting plywood over windows as a hurricane
approaches the coastline

[\_\_P\_\_\_]{.underline} Putting family disaster supplies kit together

[\_\_Rc\_\_]{.underline} Razing burned-out buildings

[\_\_P\_\_\_]{.underline} Recovery plan, preparation of during disaster
response and recovery phases

[\_\_M\_\_]{.underline} Regulating hazardous material users or producers
in a jurisdiction

[\_\_M\_\_]{.underline} Replacing unreinforced brick filler walls with
reinforced masonry in earthquake country

[\_\_M\_\_]{.underline} Replacing wood shingle roof with slate roof in
area prone to wildfires

[\_\_M\_\_]{.underline} Requiring hazards disclosure statements in real
estate transactions

[\_\_M\_\_]{.underline} Retrofitting a utility to harden it against
earthquake threat

[\_\_M\_\_]{.underline} Roof reinforcement for hurricane threat

[\_\_Rs\_\_]{.underline} Search and rescue operations

[\_\_Rs\_\_]{.underline} Shelter opening and activation in anticipation
of hurricane landfall

[\_\_Rs\_\_]{.underline} Shuttering windows prior to hurricane landfall

[\_\_M\_\_]{.underline} Slope stabilization measures

[\_\_P\_\_\_]{.underline} Smoke detector placement in one's home

[\_\_P\_\_\_]{.underline} Stand-by agreements with commercial vendors
for crisis delivery of goods or services

[\_\_P\_\_\_]{.underline} Testing warning equipment

### 

### Four Phases Student Activity---Long Version

Listed below are many more-or-less traditional emergency management
functions. Enter an **M** for mitigation, **P** for preparedness, **Rs**
for response and **Rc** for recovery for each item.

[\_\_\_\_\_\_]{.underline} Acquiring (government) flooded residential
property in flood zone after a flood

[\_\_\_\_\_\_]{.underline} Activating warning system when tornado is
spotted

[\_\_\_\_\_\_]{.underline} Adding wire mesh to chimneys in wooded areas

[\_\_\_\_\_\_]{.underline} Analyzing building failures following an
earthquake

[\_\_\_\_\_\_]{.underline} Bolting a house to its foundation in
earthquake country

[\_\_\_\_\_\_]{.underline} Bracing of pendant (drop or suspended)
ceilings for earthquake protection

[\_\_\_\_\_\_]{.underline} Breakwater construction

[\_\_\_\_\_\_]{.underline} Budget preparation for the emergency
management organization

[\_\_\_\_\_\_]{.underline} Building codes, regulations, ordinances,
development of hazard-related

[\_\_\_\_\_\_]{.underline} Calling 911 upon discovery of a fire

[\_\_\_\_\_\_]{.underline} Commandeering private sector property or
resources during an emergency

[\_\_\_\_\_\_]{.underline} Community disaster education program

[\_\_\_\_\_\_]{.underline} Community profile (demographics, resources,
facilities)---development of

[\_\_\_\_\_\_]{.underline} Consumer protection against price-gouging,
contractor fraud after a disaster

[\_\_\_\_\_\_]{.underline} Contour farming to help reduce flood
potential

[\_\_\_\_\_\_]{.underline} Crisis counseling plans and procedures
(emergency services personnel, victims)

[\_\_\_\_\_\_]{.underline} Crisis counseling 2 days after a hurricane

[\_\_\_\_\_\_]{.underline} Crisis counseling 2 months after a hurricane

[\_\_\_\_\_\_]{.underline} Curfew implementation

[\_\_\_\_\_\_]{.underline} Curtailment of non-essential functions during
disasters---pre-event policy development

[\_\_\_\_\_\_]{.underline} Damage assessment plans and procedures,
pre-event development of

[\_\_\_\_\_\_]{.underline} Debris clearance plans and procedures,
pre-event development of

[\_\_\_\_\_\_]{.underline} Deciding who is in charge of operations after
a terrorist bombing of government building

[\_\_\_\_\_\_]{.underline} Declaration of a state of emergency or
disaster

[\_\_\_\_\_\_]{.underline} Decontamination operations at flood-damaged
water treatment plant

[\_\_\_\_\_\_]{.underline} Dependent care policy for dependents of
emergency services personnel on disaster duty

[\_\_\_\_\_\_]{.underline} Development of improved design and
construction techniques for hurricane protection

[\_\_\_\_\_\_]{.underline} Donated goods plans and procedures, pre-event
development of

[\_\_\_\_\_\_]{.underline} Dredging streams or rivers prone to flooding

[\_\_\_\_\_\_]{.underline} Elevation of structures in a flood plain

[\_\_\_\_\_\_]{.underline} Emergency activation call-down list,
preparation of

[\_\_\_\_\_\_]{.underline} Emergency Operations Center activation

[\_\_\_\_\_\_]{.underline} Emergency Operations Center, pre-event
establishment of

[\_\_\_\_\_\_]{.underline} Emergency Operations Plan, drafting of

[\_\_\_\_\_\_]{.underline} Emergency Operations Plan, putting together
development team

[\_\_\_\_\_\_]{.underline} Emergency Operations Plan, coordination of
draft plan

[\_\_\_\_\_\_]{.underline} Emergency Operations Plan, procedures to
update and maintain

[\_\_\_\_\_\_]{.underline} Emergency Public Information plans and
procedures, pre-event development of

[\_\_\_\_\_\_]{.underline} Equipment, stockpiling of emergency-related
equipment (chainsaws)

[\_\_\_\_\_\_]{.underline} Essential services prioritized restoration
plans (electricity, water, sewage, phones)

[\_\_\_\_\_\_]{.underline} Evacuation plans and procedures, pre-event
development of

[\_\_\_\_\_\_]{.underline} Exercise planning

[\_\_\_\_\_\_]{.underline} Exercise participation

[\_\_\_\_\_\_]{.underline} Federal Disaster Assistance, knowledge of
procedures to apply for

[\_\_\_\_\_\_]{.underline} Fire exit signs, regulations requiring their
placement

[\_\_\_\_\_\_]{.underline} Floodplain regulations

[\_\_\_\_\_\_]{.underline} Forcible evacuation policy, development of

[\_\_\_\_\_\_]{.underline} Generators, purchase of emergency back-up
capability

[\_\_\_\_\_\_]{.underline} Good-Samaritan Law, pre-event development of

[\_\_\_\_\_\_]{.underline} Hazard pay for government employees,
pre-event policy development

[\_\_\_\_\_\_]{.underline} Hazards, vulnerability and risk analysis

[\_\_\_\_\_\_]{.underline} Hazardous materials container structure codes

[\_\_\_\_\_\_]{.underline} Hazardous materials containment operations

[\_\_\_\_\_\_]{.underline} Hazardous materials containment and scrubbing
equipment, stockpiling of

[\_\_\_\_\_\_]{.underline} Hazardous materials identification codes

[\_\_\_\_\_\_]{.underline} Hazardous materials plume tracking

[\_\_\_\_\_\_]{.underline} Hazardous materials release notification laws
and regulations, development of

[\_\_\_\_\_\_]{.underline} Hazardous materials transportation through a
jurisdiction, regulation of

[\_\_\_\_\_\_]{.underline} Hazardous materials underground storage tank
regulations, development of

[\_\_\_\_\_\_]{.underline} Hazardous materials underground storage tank
regulations, enforcement of

[\_\_\_\_\_\_]{.underline} Installation of fire suppression systems in
new construction

[\_\_\_\_\_\_]{.underline} Installation of a floodwall in St. Louis
along the Mississippi River

[\_\_\_\_\_\_]{.underline} Installation of hurricane clips and shutters
by a homeowner

[\_\_\_\_\_\_]{.underline} Insurance, purchase of hazard-related (fire,
flood, earthquake, etc.)

[\_\_\_\_\_\_]{.underline} Inviting media representatives to participate
in planning and exercise activities

[\_\_\_\_\_\_]{.underline} Land-use controls and procedures, development
of

[\_\_\_\_\_\_]{.underline} Laws and legislation, development and passage
of disaster-related

[\_\_\_\_\_\_]{.underline} Levee building

[\_\_\_\_\_\_]{.underline} Limiting density of construction to decrease
fire spread potential

[\_\_\_\_\_\_]{.underline} Line of succession, establishment of

[\_\_\_\_\_\_]{.underline} Long-term jurisdictional mitigation strategy,
development of

[\_\_\_\_\_\_]{.underline} Mass care plans and procedures (food, water,
health and medical)

[\_\_\_\_\_\_]{.underline} Mass casualty plans and procedures,
development of

[\_\_\_\_\_\_]{.underline} Mobile home tie-downs

[\_\_\_\_\_\_]{.underline} Mobilization of essential services and
personnel in anticipation of disaster

[\_\_\_\_\_\_]{.underline} Mutual aid agreements with neighboring
political jurisdictions

[\_\_\_\_\_\_]{.underline} Notification of public officials of hazardous
situation

[\_\_\_\_\_\_]{.underline} Ordering an evacuation without the legal
authority to do so

[\_\_\_\_\_\_]{.underline} Overtime pay for government employees'
disaster duty---establish policy

[\_\_\_\_\_\_]{.underline} Passing law or regulation prohibiting
basements in flood prone areas

[\_\_\_\_\_\_]{.underline} Pets---development of policy on pets in
shelters

[\_\_\_\_\_\_]{.underline} Practicing family fire drills

[\_\_\_\_\_\_]{.underline} Publicizing building designs that lessen the
effects of high winds

[\_\_\_\_\_\_]{.underline} Pumping out flooded electrical generating
plant

[\_\_\_\_\_\_]{.underline} Pumping out flooded residential basements

[\_\_\_\_\_\_]{.underline} Purchasing warning and communications
equipment

[\_\_\_\_\_\_]{.underline} Purchasing plywood and cutting it to fit
windows in case of a hurricane

[\_\_\_\_\_\_]{.underline} Putting plywood over windows as a hurricane
approaches the coastline

[\_\_\_\_\_\_]{.underline} Putting family disaster supplies kit together

[\_\_\_\_\_\_]{.underline} Razing burned-out buildings

[\_\_\_\_\_\_]{.underline} Recovery plan, preparation of prior to
disaster

[\_\_\_\_\_\_]{.underline} Recovery plan, preparation of during disaster
response and recovery phases

[\_\_\_\_\_\_]{.underline} Reforestation of an area after wildfire
devastation

[\_\_\_\_\_\_]{.underline} Regulating hazardous material users or
producers in a jurisdiction

[\_\_\_\_\_\_]{.underline} Regulating mobile-home placement in
flood-prone areas.

[\_\_\_\_\_\_]{.underline} Reinforcing and/or bracing a chimney in
earthquake country

[\_\_\_\_\_\_]{.underline} Replacing unreinforced brick filler walls
with reinforced masonry in earthquake country

[\_\_\_\_\_\_]{.underline} Replacing wood shingle roof with slate roof
in area prone to wildfires

[\_\_\_\_\_\_]{.underline} Requiring hazards disclosure statements in
real estate transactions

[\_\_\_\_\_\_]{.underline} Resource management plan development

[\_\_\_\_\_\_]{.underline} Retrofitting a utility to harden it against
earthquake threat

[\_\_\_\_\_\_]{.underline} Risk maps, development of

[\_\_\_\_\_\_]{.underline} Roof reinforcement for hurricane threat

[\_\_\_\_\_\_]{.underline} Sand bagging operations

[\_\_\_\_\_\_]{.underline} Search and rescue operations

[\_\_\_\_\_\_]{.underline} Shelter opening and activation in
anticipation of hurricane landfall

[\_\_\_\_\_\_]{.underline} Sheltering plans and procedures

[\_\_\_\_\_\_]{.underline} Shuttering windows prior to hurricane
landfall

[\_\_\_\_\_\_]{.underline} Slope stabilization measures

[\_\_\_\_\_\_]{.underline} Smoke detector placement in one's home

[\_\_\_\_\_\_]{.underline} Special event plans and procedures (sporting
events, concerts, celebrity visits)

[\_\_\_\_\_\_]{.underline} Special populations plans and procedures
(disabled, incarcerated, homebound, etc,)

[\_\_\_\_\_\_]{.underline} Spontaneous volunteers plans and procedures

[\_\_\_\_\_\_]{.underline} Stand-by agreements with commercial vendors
for crisis delivery of goods or services

[\_\_\_\_\_\_]{.underline} Stockpiling of essential supplies

[\_\_\_\_\_\_]{.underline} Storm shelter construction

[\_\_\_\_\_\_]{.underline} Storm tracking efforts, routine

[\_\_\_\_\_\_]{.underline} Storm watch and warning programs

[\_\_\_\_\_\_]{.underline} Strapping of water heater to wall studs for
earthquake hazard

[\_\_\_\_\_\_]{.underline} Stream flow monitoring

[\_\_\_\_\_\_]{.underline} Temporary housing provision after a disaster
(debatable)

[\_\_\_\_\_\_]{.underline} Testing warning equipment

[\_\_\_\_\_\_]{.underline} Training shelter managers and staff

[\_\_\_\_\_\_]{.underline} Training volunteers

[\_\_\_\_\_\_]{.underline} Windbreaks

### Four Phases Student Activity---Long Version

**Instructor's Answer Key**

Listed below are many more-or-less traditional emergency management
functions. Enter an **M** for mitigation, **P** for preparedness, **Rs**
for response and **Rc** for recovery for each item.

[\_\_M\_\_]{.underline} Acquiring (government) flooded residential
property in flood zone after a flood

[\_\_Rs\_\_]{.underline} Activating warning system when tornado is
spotted

[\_\_M\_\_]{.underline} Adding wire mesh to chimneys in wooded areas

[\_\_M\_\_]{.underline} Analyzing building failures following an
earthquake

[\_\_M\_\_]{.underline} Bolting a house to its foundation in earthquake
country

[\_\_M\_\_]{.underline} Bracing of pendant (drop or suspended) ceilings
for earthquake protection

[\_\_M\_\_]{.underline} Breakwater construction

[\_\_P\_\_\_]{.underline} Budget preparation for the emergency
management organization

[\_\_M\_\_]{.underline} Building codes, regulations, ordinances,
development of hazard-related

[\_\_Rs\_\_]{.underline} Calling 911 upon discovery of a fire

[\_\_Rs\_\_]{.underline} Commandeering private sector property or
resources during an emergency

[\_\_P\_\_\_]{.underline} Community disaster education program

[\_\_P\_\_\_]{.underline} Community profile (demographics, resources,
facilities)---development of

[\_\_Rc\_\_]{.underline} Consumer protection against price-gouging,
contractor fraud after a disaster

[\_\_M\_\_]{.underline} Contour farming to help reduce flood potential

[\_\_P\_\_\_]{.underline} Crisis counseling plans and procedures
(emergency services personnel, victims)

[\_\_Rs\_\_]{.underline} Crisis counseling 2 days after a hurricane

[\_\_Rc\_\_]{.underline} Crisis counseling 2 months after a hurricane

[\_\_Rs\_\_]{.underline} Curfew implementation

[\_\_P\_\_\_]{.underline} Curtailment of non-essential functions during
disasters---pre-event policy development

[\_\_P\_\_\_]{.underline} Damage assessment plans and procedures,
pre-event development of

[\_\_P\_\_\_]{.underline} Debris clearance plans and procedures,
pre-event development of

[\_\_Rs\_\_]{.underline} Deciding who is in charge of operations after a
terrorist bombing of government building

[\_\_Rs\_\_]{.underline} Declaration of a state of emergency or disaster

[\_\_Rc\_\_]{.underline} Decontamination operations at flood-damaged
water treatment plant

[\_\_P\_\_\_]{.underline} Dependent care policy for dependents of
emergency services personnel on disaster duty

[\_\_M\_\_]{.underline} Development of improved design and construction
techniques for hurricane protection

[\_\_P\_\_\_]{.underline} Donated goods plans and procedures, pre-event
development of

[\_\_M\_\_]{.underline} Dredging streams or rivers prone to flooding

[\_\_M\_\_]{.underline} Elevation of structures in a flood plain

[\_\_P\_\_\_]{.underline} Emergency activation call-down list,
preparation of

[\_\_Rs\_\_]{.underline} Emergency Operations Center activation

[\_\_P\_\_\_]{.underline} Emergency Operations Center, pre-event
establishment of

[\_\_P\_\_\_]{.underline} Emergency Operations Plan, drafting of

[\_\_P\_\_\_]{.underline} Emergency Operations Plan, putting together
development team

[\_\_P\_\_\_]{.underline} Emergency Operations Plan, coordination of
draft plan

[\_\_P\_\_\_]{.underline} Emergency Operations Plan, procedures to
update and maintain

[\_\_P\_\_\_]{.underline} Emergency Public Information plans and
procedures, pre-event development of

[\_\_P\_\_\_]{.underline} Equipment, stockpiling of emergency-related
equipment (chainsaws)

[\_\_P\_\_\_]{.underline} Essential services prioritized restoration
plans (electricity, water, sewage, phones)

[\_\_P\_\_\_]{.underline} Evacuation plans and procedures, pre-event
development of

[\_\_P\_\_\_]{.underline} Exercise planning

[\_\_P\_\_\_]{.underline} Exercise participation

[\_\_P\_\_\_]{.underline} Federal Disaster Assistance, knowledge of
procedures to apply for

[\_\_P\_\_\_]{.underline} Fire exit signs, regulations requiring their
placement

[\_\_M\_\_]{.underline} Floodplain regulations

[\_\_P\_\_\_]{.underline} Forcible evacuation policy, development of

[\_\_P\_\_\_]{.underline} Generators, purchase of emergency back-up
capability

[\_\_P\_\_\_]{.underline} Good-Samaritan Law, pre-event development of

[\_\_P\_\_\_]{.underline} Hazard pay for government employees, pre-event
policy development

[\_\_P\_\_\_]{.underline} Hazards, vulnerability and risk analysis

[\_\_M\_\_]{.underline} Hazardous materials container structure codes

[\_\_Rs\_\_]{.underline} Hazardous materials containment operations

[\_\_P\_\_\_]{.underline} Hazardous materials containment and scrubbing
equipment, stockpiling of

[\_\_P\_\_\_]{.underline} Hazardous materials identification codes

[\_\_Rs\_\_]{.underline} Hazardous materials plume tracking

[\_\_P\_\_\_]{.underline} Hazardous materials release notification laws
and regulations, development of

[\_\_M\_\_]{.underline} Hazardous materials transportation through a
jurisdiction, regulation of

[\_\_P\_\_\_]{.underline} Hazardous materials underground storage tank
regulations, development of

[\_\_M\_\_]{.underline} Hazardous materials underground storage tank
regulations, enforcement of

[\_\_M\_\_]{.underline} Installation of fire suppression systems in new
construction

[\_\_M\_\_]{.underline} Installation of a floodwall in St. Louis along
the Mississippi River

[\_\_M\_\_]{.underline} Installation of hurricane clips and shutters by
a homeowner

[\_\_P\_\_\_]{.underline} Insurance, purchase of hazard-related (fire,
flood, earthquake, etc.)

[\_\_P\_\_\_]{.underline} Inviting media representatives to participate
in planning and exercise activities

[\_\_M\_\_]{.underline} Land-use controls and procedures, development of

[\_\_P\_\_\_]{.underline} Laws and legislation, development and passage
of disaster-related

[\_\_M\_\_]{.underline} Levee building

[\_\_M\_\_]{.underline} Limiting density of construction to decrease
fire spread potential

[\_\_P\_\_\_]{.underline} Line of succession, establishment of

[\_\_P\_\_\_]{.underline} Long-term jurisdictional mitigation strategy,
development of

[\_\_P\_\_\_]{.underline} Mass care plans and procedures (food, water,
health and medical)

[\_\_P\_\_\_]{.underline} Mass casualty plans and procedures,
development of

[\_\_M\_\_]{.underline} Mobile home tie-downs

[\_\_Rs\_\_]{.underline} Mobilization of essential services and
personnel in anticipation of disaster

[\_\_P\_\_\_]{.underline} Mutual aid agreements with neighboring
political jurisdictions

[\_\_Rs\_\_]{.underline} Notification of public officials of hazardous
situation

[\_\_Rs\_\_]{.underline} Ordering an evacuation without the legal
authority to do so

[\_\_P\_\_\_]{.underline} Overtime pay for government employees'
disaster duty---establish policy

[\_\_M\_\_]{.underline} Passing law or regulation prohibiting basements
in flood prone areas

[\_\_P\_\_\_]{.underline} Pets---development of policy on pets in
shelters

[\_\_P\_\_\_]{.underline} Practicing family fire drills

[\_\_M\_\_]{.underline} Publicizing building designs that lessen the
effects of high winds

[\_\_Rs\_\_]{.underline} Pumping out flooded electrical generating plant

[\_\_Rc\_\_]{.underline} Pumping out flooded residential basements

[\_\_P\_\_\_]{.underline} Purchasing warning and communications
equipment

[\_\_P\_\_\_]{.underline} Purchasing plywood and cutting it to fit
windows in case of a hurricane

[\_\_Rs\_\_]{.underline} Putting plywood over windows as a hurricane
approaches the coastline

[\_\_P\_\_\_]{.underline} Putting family disaster supplies kit together

[\_\_Rc\_\_]{.underline} Razing burned-out buildings

[\_\_P\_\_\_]{.underline} Recovery plan, preparation of prior to
disaster

[\_\_Rc\_\_]{.underline} Recovery plan, preparation of during disaster
response and recovery phases

[\_\_Rc\_\_]{.underline} Reforestation of an area after wildfire
devastation

[\_\_M\_\_]{.underline} Regulating hazardous material users or producers
in a jurisdiction

[\_\_M\_\_]{.underline} Regulating mobile-home placement in flood-prone
areas.

[\_\_M\_\_]{.underline} Reinforcing and/or bracing a chimney in
earthquake country

[\_\_M\_\_]{.underline} Replacing unreinforced brick filler walls with
reinforced masonry in earthquake country

[\_\_M\_\_]{.underline} Replacing wood shingle roof with slate roof in
area prone to wildfires

[\_\_M\_\_]{.underline} Requiring hazards disclosure statements in real
estate transactions

[\_\_P\_\_\_]{.underline} Resource management plan development

[\_\_M\_\_]{.underline} Retrofitting a utility to harden it against
earthquake threat

[\_\_P\_\_\_]{.underline} Risk maps, development of

[\_\_M\_\_]{.underline} Roof reinforcement for hurricane threat

[\_\_Rs\_\_]{.underline} Sand bagging operations

[\_\_Rs\_\_]{.underline} Search and rescue operations

[\_\_Rs\_\_]{.underline} Shelter opening and activation in anticipation
of hurricane landfall

[\_\_P\_\_\_]{.underline} Sheltering plans and procedures

[\_\_Rs\_\_]{.underline} Shuttering windows prior to hurricane landfall

[\_\_M\_\_]{.underline} Slope stabilization measures

[\_\_P\_\_\_]{.underline} Smoke detector placement in one's home

[\_\_P\_\_\_]{.underline} Special event plans and procedures (sporting
events, concerts, celebrity visits)

[\_\_P\_\_\_]{.underline} Special populations plans and procedures
(disabled, incarcerated, homebound, etc,)

[\_\_P\_\_\_]{.underline} Spontaneous volunteers plans and procedures

[\_\_P\_\_\_]{.underline} Stand-by agreements with commercial vendors
for crisis delivery of goods or services

[\_\_P\_\_\_]{.underline} Stockpiling of essential supplies

[\_M(?)P]{.underline} Storm shelter construction

[\_\_P\_\_\_]{.underline} Storm tracking efforts, routine

[\_\_P\_\_\_]{.underline} Storm watch and warning programs

[\_\_M\_\_]{.underline} Strapping of water heater to wall studs for
earthquake hazard

[\_\_P\_\_\_]{.underline} Stream flow monitoring

[Rc(?)Rs]{.underline} Temporary housing provision after a disaster
(debatable)

[\_\_P\_\_\_]{.underline} Testing warning equipment

[\_\_P\_\_\_]{.underline} Training shelter managers and staff

[\_\_P\_\_\_]{.underline} Training volunteers

[\_\_M\_\_]{.underline} Windbreaks

### References

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### 

[^1]: Henry W. Fischer, III. Response to Disaster. Fact Versus Fiction &
    Its Perpetuation. *The Sociology of Disaster*, Second Ed. Lanham,
    New York, Oxford: University Press of America, Inc. pp. 7-8

[^2]: Hayim Granot. The Choreography of death: observations from Turkey
    and Greece. *Disaster Prevention and Management*. Volume 11, Number
    5. 2002. p. 392

[^3]: See, for example, Letizia Toscani's lexicon of "prevention,
    preparedness, response, and rehabilitation," {p. 208 in "Women's
    Roles in Natural Disaster Preparation and Aid: A Central American
    View." pp. 207-211 in *The Gendered Terrain of Disaster*, Elaine
    Enarson and Betty Hearn Morrow (eds.). Westport, CN and London:
    Praeger1998}, or Gloria Noel's use of "disaster mitigation,
    prevention, preparedness, response, and recovery" (p. 214 in "The
    Role of Women in Health-Related Aspects of Emergency Management: A
    Caribbean Perspective," pp. 213-223 in the same book.

[^4]: FEMA. 1998 (March), 10-12.

[^5]: Mal Cronstedt. "Prevention, Preparedness, Response, Recovery---an
    outdated concept*?" The Australian Journal of Emergency Management*.
    Vol. 17, No. 2. August 2002. pp. 10-13

[^6]: This point needs to be stressed in that the U.S. system has been
    criticized for encouraging a simplistic notion of emergency
    management:

    "Constructs such as 'PPRR' (prevention, preparedness, response and
    recovery) have facilitated the development of the simplistic notion
    that there is a linear and temporal relationship between elements
    viz. 'first P, then P, then R, and finally R', thereby becoming an
    encumbrance to effective management. Such misunderstanding has
    fostered attitudes of division and hierarchy, such as... 'my
    Response is more important than your Prevention'." (John Salter
    1997-98, 27)

[^7]: A. Cooper Drury and Vincent T. Gawronski. Politics of Disaster,
    CPO 6771. Florida International University Department of Political
    Science. (Draft 4/07/03). p. 4

[^8]: Haas, J. Eugene, Robert W. Kates, and Martyn J. Bowden (eds).
    1977. *Reconstruction Following Disaster*. Cambridge, MA: MIT Press;
    quoted in Neal 1997, 247.

[^9]: Elaine Enarson with Cheryl Childers, Betty Hearn Morrow, Deborah
    Thomas, and Ben Wisner. 2003. A Social Vulnerability Approach to
    Disasters. Emmitsburg, Maryland: Emergency Management Institute,
    Federal Emergency Management Agency.
    <http://www.training.fema.gov/emiweb/edu/completeCourses.asp>

[^10]: International Strategy for Disaster Reduction Secretariat.
    "Contexts and processes linked to disaster risk reduction:
    sustainable development. *Living with Risk: A Global Review of
    Disaster Reduction Initiative*s. Geneva, July 2000. p. 27

[^11]: ISDR 2000. p. 26

[^12]: Jasemin K. Riad. "Advancing Participation and Accountability in
    Disaster Reduction*. Global Blueprints for Change*. First
    Edition---Prepared in conjunction with the International Workshop
    convened on August 12-22, 2001

[^13]: James Lee Witt. 2000. *Remarks for James L. Witt, Smart Growth
    Symposium Mecklenburg County, NC.* Washington, DC: FEMA, July 14,
    2000.
    [www.fema.gov/library/jlw071400.htm](http://www.fema.gov/library/jlw071400.htm)

[^14]: ISDR. 2000, p. 27

[^15]: Janet Abramovitz. "Fostering Resilience in Nature and
    Communities.". *Unnatural Disasters*. Worldwatch paper 158. Linda
    Starke, Ed. Washington, DC. Worldwatch Institute, 2001. p. 40-45