# Session No. 4

**Course Title: Disaster Response Operations and Management**

**Session Title: Actors, Roles and Responsibilities I**

## Time: 50 minutes

**Objectives:**

1.  Identify the diverse set of public actors/entities involved in
    disaster response at the local level including their roles and
    responsibilities.

4.2 Identify the diverse set of public actors and entities involved in
disaster response at the state level including their roles and
responsibilities.

4.3 Identify the diverse set of public actors and entities involved in
disaster response at the federal level including their roles and
responsibilities.

4.4 Involve the students in a discussion about public sector response
roles (as outlined in local, state and federal response plans).

**Scope:**

During this session, the professor begins a discussion about the many
actors involved in disaster response operations and management.
Individuals and agencies in the public sector are identified and their
varied responsibilities are discussed. Attention is given to the
positions and functional departments within the local, state and federal
levels of government. Students are expected to learn what public
servants and government agencies do when disaster strikes.

**Session Requirements:**

1.  Instructor Reading:

Brouillette, John R. 1970. "The Department of Public Works: Adaptation
to Disaster Demands." *American Behavioral Scientist* 13 (3): 369-379.

> Durham, Tom and Lacy E. Suiter. 1991. "Perspectives and Roles of the
> State and Local Government." Pp. 101-130 in Drabek, Thomas E. and
> Gerard J. Hoetmer, *Introduction to Emergency Management: Principles
> and Practice for Local Government*. International City Management
> Association: Washington D.C.

Kennedy, Will C. 1970. "Police Departments: Organization and Tasks in
Disaster." *American Behavioral Scientist* 13 (3): 354-361.

> McEntire, David A. 2006. "Understanding the Actors." *Disaster
> Response and Recovery: Strategies and Tactics for Resilience*. New
> York: Wiley.
>
> Schwab, Jim. 1998. "A Primer in Disaster Operations." Pp. 21-41 in
> Deyle, Robert E., Charles C. Eadie, Jim Schwab, Richard A. Smith and
> Kenneth C. Topping. *Planning for Post-Disaster Recovery and
> Reconstruction*. Federal Emergency Management Agency: Washington D.C.
>
> Smith, Eugene. 2005. "Working with the Military." *International
> Association of Emergency Managers Bulletin*. 22(7): 1-6.

Warheit, George J. 1970. "Fire Departments: Operations During Major
Community Emergencies." *American Behavioral Scientist* 13 (3): 362-368.

2.  Student Reading:

> McEntire, David A. 2006. "Understanding the Actors." *Disaster
> Response and Recovery: Strategies and Tactics for Resilience*. New
> York: Wiley.
>
> Schwab, Jim. 1998. "A Primer in Disaster Operations." Pp. 21-41 in
> Deyle, Robert E., Charles C. Eadie, Jim Schwab, Richard A. Smith and
> Kenneth C. Topping. *Planning for Post-Disaster Recovery and
> Reconstruction*. Federal Emergency Management Agency: Washington D.C.
>
> Local, state or federal emergency operations plan. (See Remarks,
> number 4 or 5).

3.  Handout:

> Emergency Support Functions

**Remarks:**

1.  As the actors in the public sector are discussed, it is important
    for the professor to pay special attention to the roles of first
    responders and the emergency manager. However, the activities and
    contributions of other actors should be mentioned as well.

2.  The professor should distinguish between the different
    responsibilities at different levels of government.

3\. The professor may want to note that the functions performed in
disaster response will be covered in further depth later on in the
course.

4.  The professor may want to acquire an emergency operations plan from
    a local emergency management agency and then put it on reserve for
    students at the school library. State and federal response plans can
    be accessed on the Internet at: <http://www.oes.ca.gov/> (search for
    California Emergency Plan),
    [http://www.dca.state.fl.us/bpr/Projects/CEMP%20Online/cemp2000.pdf](http://www.dca.state.fl.us/bpr/Projects/CEMP Online/cemp2000.pdf),
    <http://www.ncem.org.NCEOP/NCEOP2001.pdf>,
    [ftp.texdps.state.tx.us/dem/plan_state/state_plan_20010515.pdf](ftp://ftp.texdps.state.tx.us/dem/plan_state/state_plan_20010515.pdf),
    <http://www.fema.gov/rrr/frp/>. If desired, the professor can ask
    the students to review the emergency operations plan before
    attending class to better comprehend the departments involved in
    disaster response and their respective responsibilities.

5\. This session would provide a good opportunity to review the primary
and support agencies associated with the National Response Plan. See
<http://training.fema.gov/EMIWeb/IS/is800.asp>

**Objective 4.1 Identify the diverse set of actors and entities involved
in disaster response at the local level including their roles and
responsibilities.**

**Requirements:**

Present the following information as a lecture and discussion.

I.  After Hurricane Andrew struck Dade County in 1992, the local
    emergency manager asked the question "**Where's the cavalry on this
    one?**" This brings up two important questions:

A. First, **who are the actors that respond to disaster?**

B. Second, **what are their roles and responsibilities?**

II. The actors involved in disaster response are classified into
    distinct sectors: **the public sector, the private sector, the
    non-profit sector and citizens**. This session will discuss the
    individuals and agencies involved from the public sector at local,
    state and federal levels of government. Other actors will be
    mentioned in subsequent sessions.

III. There are numerous people involved in disaster response at the
     **local level of government** (e.g. cities and counties). This
     includes emergency medical technicians, fire fighters, police
     officers and emergency managers. Other public officials and
     department leaders also play a role in disaster response.

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A.  **Emergency Medical Technicians (EMT)**. Provide emergency **medical
    care** to the injured and transport disaster victims to hospitals
    for further treatment.

B.  **Firefighters**. **Extinguish fires and rescue** and investigate
    their causes. **Respond to other incidents** including
    transportation accidents, industrial explosions and hazardous
    materials spills. Also engage in search and rescue.

C.  **Police Officers**. Maintain **security** at the scene of an
    emergency and disaster. Provide **traffic control** in major traffic
    accidents; close off flooded and disaster-damaged roads.

D.  **Emergency Managers**. **Communicate** with the dispatch center,
    field personnel, department heads and political leaders to implement
    the emergency operations plan, assess damages, acquire resources,
    **develop response priorities and coordinate** response personnel
    and operations.

E.  **Department of Public Works**. **Re-establish public utilities**
    after disaster. Provide personnel and heavy equipment for **debris
    removal activities**.

F.  **Department of Transportation**. **Remove debris** from roads.
    **Make repairs** to signal lights and reconstruct damaged roads,
    bridges and overpasses.

G.  **Department of Parks and Recreation**. **Provide personnel and
    heavy equipment** for debris removal.

H.  **Department of Public/Mental Health**. Work with hospitals to
    **care for disaster victims**. Issue quarantine orders and provide
    medicines in times of a biological terrorist attack. **Counsel
    emergency service personnel and disaster victims** who have been
    affected by critical incident stress.

I.  **Department of Housing**. Find or help **facilitate the building of
    housing** **or relocation of tenants** if large numbers of homes and
    apartments have been damaged or destroyed by disaster.

J.  **Department of Engineering**. **Inspect buildings** to determine if
    they are inhabitable or if they should be condemned. **Promote and
    enforce stronger building codes** during recovery and
    reconstruction.

K.  **Chamber of Commerce**. **Communicate with businesses to determine
    impact of disaster** and facilitate business resumption. **Help
    businesses acquire loans** from the Small Business Administration.

L.  **Coroner's Office**. Gather, store, identify and process
    **corpses** after mass fatality incidents.

M.  **Flood Plain Managers**. Help **warn communities** about potential
    flooding disasters. **Promote property acquisitions** and more
    stringent redevelopment priorities.

N.  **Development and Redevelopment Agencies**. Find ways to **help
    communities recover quickly** while considering the best ways of
    designing/building urban areas and mitigating future disasters.

O.  **Public Information Officer**. **Communicate with the media** to
    help the public understand what has happened and what should they
    should do to respond and recover.

P.  **City Manager**. Work with the emergency manager, mayor and other
    departments to **foster effective and efficient response and
    recovery operations**.

Q.  **Mayor/County Judge/County Commissioners**. **Declare an emergency
    or disaster**, and work with the emergency manager, city manager and
    other department leaders to **mobilize personnel and resources**.
    Work with state and federal officials to **acquire disaster
    assistance** funds and services.

III\. Note that the **local government is the first public entity to
respond to disaster**.

A. **It has ultimate responsibility** in assessing damages, declaring an
emergency/disaster, setting response priorities, acquiring and
mobilizing resources, performing important disaster functions and
seeking outside assistance.

B. Each local government **may have its own unique organization** of who
is involved in disaster response operations and management.

> 1\. The **police or fire department may be in charge of the emergency
> management function** (instead of having an actual emergency manager).
>
> 2\. Some cities **may not have a Parks and Recreation Department or a
> dedicated Public Information Officer**.
>
> 3\. They may have a **strong or weak mayor** in comparison to the city
> manager or city council. This may impact who "calls the shots" in a
> disaster.
>
> 4\. There are many **other variations that impact emergency
> management** in different jurisdictions.

**Objective 4.2 Identify the diverse set of actors and entities at the
state level involved in disaster response including their roles and
responsibilities.**

**Requirements:**

Present the following information as a lecture.

II\. There are a number of individuals and agencies involved in disaster
response at the **state level**. This includes state emergency
management offices, various government departments, and the governor.

A.  **State Emergency Management Offices/Departments**. Help local
    government **perform preliminary damage assessment**. **Meet local
    government requests** for personnel, advice and resources. **Funnel
    monetary assistance and grants** to the local level from federal
    government sources.

B.  **Department of Public Safety**. **Assist the local police
    departments** in securing disaster sites and controlling traffic.

C.  **Department of Transportation**. **Repair roads, bridges and
    highways** that have been damaged in the disaster. Provide heavy
    equipment to the local government for debris removal if needed.

D.  **Department of Public/Mental Heath**. Help local governments
    **identify public health problems and respond accordingly**. Provide
    personnel, advice and resources to deal with disease outbreaks,
    terrorist attacks with biological weapons, and critical incident
    stress.

E.  **Department of Housing**. Help the local community **find temporary
    and permanent housing** after a disaster.

F.  **Department of Environmental Protection**. Work with local
    officials to **limit environmental degradation** and **clean up the
    environment** during disaster response. Provide expertise and
    resources in case of **hazardous materials spills and terrorist
    incidents** involving chemical or nuclear weapons.

G.  **National Guard**. Provide various services including **security,**
    **traffic control, debris removal and engineering** to the local
    governments affected by disaster.

H.  **Governor**. **Declare the disaster** for the state and **seek
    federal funds** from the Federal Emergency Management Agency and
    other funding sources. **Mobilize state resources** as needed.

II\. Note that **states work closely with local governments** if there
has been a state-declared disaster.

> A. In this situation, states **share information, provide resources,
> and facilitate the coordination** of logistical support for local
> government without federal involvement.
>
> B. When there is a federal disaster declaration (which occurs less
> frequently in comparison to state declarations), **the state is the
> go-between for local and federal governments**. It **seeks disaster
> assistance** on behalf of the affected communities and **ensures local
> compliance** with federal disaster programs.

**Objective 4.3 Identify the diverse set of actors and entities at the
federal level involved in disaster response including their roles and
responsibilities.**

**Requirements:**

Present the following information as a lecture.

I.  There are a number of **federal agencies** that fulfill important
    roles in disaster response. This includes the departments that
    participate in the **National** **Response Plan**
    (<http://www.dhs.gov/interweb/assetlibrary/NRP_FullText.pdf>

It also includes other agencies and individuals that respond to or
investigate the causes of disaster, declare disaster or free up
additional emergency assistance. Show overhead transparency.

A. **U.S. Department of Agriculture (USDA).** The USDA **identifies food
needs** after disaster and responds accordingly. This agency also
**suppresses rural and urban fires** and **provides information about
droughts**. [Http://www.usda.gov](http://www.usda.gov/).

B. **U.S. Department of Commerce (DOC).** The DOC performs a variety of
functions in **information and planning, resource support,
communications and hazardous materials incidents**. It mainly acts as a
**liaison to businesses** during and after disaster situations.
[Http://www.doc.gov/](http://www.doc.gov/).

C. **U.S. Department of Defense (DOD).** The DOD performs several major
functions in disaster including **public works and engineering,
transportation, information and planning, resource support, urban search
and rescue, communications, firefighting, mass care, health and medical
services, hazardous materials and food**. The military also plays vital
roles in **detecting weapons of mass destruction** during terrorist
incidents. The **US Army Corps of Engineers assists with public works
and flood mitigation measures**.
[Http://www.dod.gov/](http://www.dod.gov/).

D. **U.S. Department of Education (DOEd).** The DOEd helps to **collect,
process and disseminate critical information** about potential and
actual disasters. [Http://www.ed.gov/](http://www.ed.gov/).

E. **U.S. Department of Energy (DOE).** The DOE is responsible for
**restoring energy systems** after a disaster. It also responds to
disasters involving **nuclear power plants**.
[Http://www.energy.gov/](http://www.energy.gov/).

F. **U.S. Department of Health and Human Services (HHS).** The HHS
provides services to **supplement local and state public health and
medical care operations**. [Http://www.hhs.gov/](http://www.hhs.gov/).

G. **U.S. Department of Homeland Security (DHS).** DHS is **responsible
for public safety and security**, especially for terrorist attacks. DHS
also includes several directorates including **Management, Science and
Technology, Informational Analysis and Infrastructure Protection and
Border and Transportation Security**. The **Federal Emergency Management
Agency is under the Emergency Preparedness and Response directorate**.
It is in charge of the **urban search and rescue** function. In
addition, FEMA also plays a vital role in providing **disaster
assistance** and addressing consequence management issues after
terrorist incidents. The **US Coast Guard** also falls under DHS, and it
is heavily involved in **oil and hazardous materials responses**.
**[Http://www.dhs.gov/](http://www.dhs.gov/).**

H. **U.S. Department of Housing and Urban Development (HUD).** HUD is
responsible for **providing or re-establishing temporary and permanent
housing** after disaster. [Http://www.hud.gov/](http://www.hud.gov/).

I. **U.S. Department of the Interior (DOI).** The DOI is involved in
several issues after disaster including **information and planning,
energy, communications, firefighting, and hazardous materials**.
[Http://www.doi.gov/](http://www.doi.gov/).

J. **U.S. Department of Justice (DOJ).** The DOJ performs **information
and planning, urban search and rescue, health and medical, and hazardous
materials functions after disaster**. It is also **ensures** **that the
response complies with all laws** pertaining to disaster assistance.
[Http://www.usdoj.gov/](http://www.usdoj.gov/).

K. **U.S. Department of Labor (DOL).** The DOL assists with **public
works and engineering, resource support, urban search and rescue, and
hazardous materials** issues after disaster.
[Http://www.dol.gov/](http://www.dol.gov/).

L. **U.S. Department of State (DOS).** The DOS provides
**transportation, energy, hazardous materials** services after disaster.
[Http://www.state.gov/](http://www.state.gov/).

M. **U.S. Department of Transportation (DOT).** The DOT fulfills
**transportation, information and planning, energy, hazardous
materials** functions after disaster.
[Http://www.dot.gov/](http://www.dot.gov/).

N. **U.S. Department of Treasury (TREAS).** The Treasury Department is
responsible for funding **long-term recovery projects and mitigation
measures**. [Http://www.ustreas.gov/.](http://www.ustreas.gov/.)

O. **U.S. Department of Veterans Affairs (VA).** The VA is especially
interested in **meeting veterans' disaster assistance needs**. It is
also involved in **public works and engineering, resource support, mass
care, and health and medical services**.
[Http://www.va.gov/](http://www.va.gov/).

P. **U.S. Environmental Protection Agency (EPA).** The major role of the
EPA is to **respond to and clean up hazardous materials spills**. It
also participates in public works and engineering, information and
planning, firefighting, health and medical services, and food functions.
[Http://www.epa.gov/](http://www.epa.gov/).

Q. **Federal Communications Commission (FCC).** The FCC assists in
**providing communications** support during and after disasters.
[Http://www.fcc.gov/](http://www.fcc.gov/).

R. **General Services Administration (GSA).** The GSA is actively
involved in the performance of several disaster functions such as
**transportation, information and planning, mass care and the provision
of food**. [Http://www.gsa.gov/](http://www.gsa.gov/).

S. **National Aeronautics and Space Administration (NASA).** NASA helps
perform the **urban search and rescue and other functions with
satellites and distance imaging**.
[Http://www.nasa.gov/](http://www.nasa.gov/).

T. **Nuclear Regulatory Commission (NRC).** The NRC provides expertise
in **energy issues and hazardous materials** disasters involving
**nuclear plants and materials**.
[Http://www.nrc.gov/](http://www.nrc.gov/).

U. **Office of Planning and Management (OPM).** The OPM provides
**logistical and resource support** to all other federal entities
involved in disaster response.
[Http://www.opm.gov/](http://www.opm.gov/).

V. **Small Business Administration (SBA).** The SBA provides **financial
disaster assistance** to businesses affected by disaster.
[Http://www.sba.gov/](http://www.sba.gov/).

W. **Social Security Administration (SSA).** The SSA **assists with mass
care, housing and human services** in addition to external affairs.
[Http://www.ssa.gov/](http://www.ssa.gov/).

X. **Tennessee Valley Authority (TVA).** The TVA provides
**transportation, public works and engineering, and energy services**
after disasters. [Http://www.tva.gov/](http://www.tva.gov/).

Y. **Agency for International Development (AID).** The Agency for
International Development assists in **urban search and rescue**
functions after disaster.
[Http://www.usaid.gov/](http://www.usaid.gov/).

Z. **U.S. Postal Service (USPS).** Because of its large fleet of
vehicles, the USPS provides **transportation support** to other federal
agencies in times of disaster.
[Http://www.usps.com/](http://www.usps.com/).

A1. **American Red Cross (ARC).** **The American Red Cross is NOT a
government entity**. However, it has been **mandated by congress** to
fulfill **mass care functions** such as sheltering, feeding, emergency
first aid, and other services to disaster victims and their families.
[Http://www.redcross.org/](http://www.redcross.org/).

II\. In addition to the agencies that perform emergency support
functions in the federal response plan, there are **other federal
actors** that also respond to disasters.

A. **Federal Aviation Administration (FAA).** The FAA **diverts planes**
from airports that are involved in aviation accidents. It also helps to
**resume flights** when emergency responses and **preliminary
investigations** have taken place.
[Http://www.faa.gov/](http://www.faa.gov/).

B. **Federal Bureau of Investigation (FBI).** The FBI is in charge of
**crisis management** for terrorist incidents. It attempts to
**apprehend potential terrorists** and prosecute those who have been
successful in carrying out terrorist attacks.
[Http://www.fbi.gov/](http://www.fbi.gov/).

C. **Congress**. Members of the House of Representatives and U.S. Senate
may **pass ad-hoc legislation** to augment funding for disaster
assistance. [Http://www.house.gov/](http://www.house.gov/).
[Http://www.senate.gov/](http://www.senate.gov/).

D. **National Oceanic and Atmospheric Agency (NOAA).** NOAA is a
governmental organization that **provides information such as warnings**
relating to hurricanes and other weather disturbances.
[Http://www.noaa.gov/](http://www.noaa.gov/).

E. **National Transportation and Safety Board (NTSB).** The NTSB is
actively involved in **investigating transportation related accidents**
such as plane crashes. [Http://www.ntsb.gov/](http://www.ntsb.gov/).

F. **National Weather Service (NWS).** The NWS **provides warnings for
severe weather** including tornadoes and flash flooding. It works with
the **emergency alert system** to relay information about potential
disasters. [Http://www.nws.gov/](http://www.nws.gov/).

G. **Occupational Safety and Heath Agency (OSHA).** OSHA **responds to
industrial accidents** and disasters to investigate their causes and
impose fines for safety violations.
[Http://www.osha.gov/](http://www.osha.gov/).

H. **Office of the Inspector General (IG).** The IG travels to the scene
of disaster to **ensure that federal agencies and disaster victims are
not misusing disaster assistance funds**.
[Http://www.fema.gov/ig/](http://www.fema.gov/ig/).

I. **President**. The President of the United States **reviews local and
state requests for assistance and declares disasters** on their behalf
to initiate the federal response plan and free up federal resources for
those affected by disaster.
[Http://www.whitehouse.gov/](http://www.whitehouse.gov/).

J. **U.S. Geological Survey (USGS).** The USGS provides **technical
expertise** pertaining to the prediction or evaluation of **flooding,
earthquakes and volcanic eruptions**.
[Http://www.usgs.gov/](http://www.usgs.gov/).

III\. Reiterate that the federal government **provides a great many
resources** to victims of disaster and affected governments. It also
**coordinates** with local and state officials to ensure that all
post-disaster needs are addressed.

**Objective 4.4: Involve the students in a discussion about public
sector response roles (as outlined in local, state and federal response
plans).**

**Requirements:**

Involve the students in a discussion about local, state and federal
response plans.

I. Ask the students to **report their thoughts** about local, state and
federal emergency operations plans. Possible questions to be asked in
this discussion include:

> A. **Why are emergency operations plans necessary?**
>
> B. **What public agencies are involved in responding to disasters?**
>
> C. **What roles are performed by public agencies?**
>
> D. **What would happen in disaster response if agency responsibilities
> were not outlined in advance?**
>
> E. **Why are there local, state and federal plans?**

II\. It may be necessary to **reiterate** or **emphasize the following
points**:

A. Emergency operations plans are necessary because **they outline which
agencies will perform certain tasks** in times of disaster. This helps
to **speed up the response** by outlining who will do what when an
emergency or disaster occurs.

B. Each **city and state government** has their own **unique
organization** of actors involved in disasters.

> 1\. In some cases, the emergency management function is **located in
> the fire or police departments** while in other jurisdictions it may
> be located in **an independent office**.
>
> 2\. Many cities give the **debris management function to the public
> works department** while others give it to the **parks and recreation
> department**.
>
> 3\. States also have their own unique **emergency response
> organization**. Emergency management may be housed in the **Department
> of Public Safety**, in the **Governor's Office** or as **an
> independent agency**.

C. Public agencies are involved in **several response activities**
including warning, evacuation, search and rescue, disaster declaration,
debris removal, disaster assistance, etc.

D. Emergency operations **plans are important** to ensure that response
functions are performed quickly and effectively. Without plans, response
operations would **not be completed in a timely, efficient or organized
manner**. There would also likely be a **duplication of services**.

E. Emergency Operations Plans **exist at different levels of
government** because no single plan can address the hazards of each
particular jurisdiction. In addition, local governments have **different
responsibilities** in disasters than state and federal governments.

> 1\. For instance, the **local government** may be responsible for
> **cleaning up debris** while the **state coordinates resource
> acquisition** and the **federal government provides financial
> assistance** for major disasters.
>
> 2\. All **disasters are local**. That is, disasters directly affect
> the impacted jurisdiction and must be addressed at this level. State
> and Federal governments are involved only to support (and not
> supplant) the local response.
>
> 3\. However, it should be noted that local, state and federal
> governments **will typically interact** in major emergencies (although
> this **may or may not be harmonious and coordinated**).

**Questions to be asked:**

1.  What individuals and departments are involved in disaster response
    at the local level?

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5.  What individuals and departments are involved in disaster response
    at the state level?

6.  What individuals and departments are involved in disaster response
    at the federal level?

7.  What are the distinct roles of the local, state and federal
    governments in disaster?

8.  What are the primary responding agencies in the Federal Response
    Plan?

9.  Which organization in the Federal Response Plan is not a federal
    agency?

10. What other federal organizations respond to disasters even though
    they do not participate in the Federal Response Plan?

11. Why are there plans at the local, state and federal levels?

12. Do all government entities organize their emergency management
    function in the same manner?

13. Which level of government has ultimate responsibility for disaster?

**National Response Plan**

**Emergency Support Functions**

1\. Transportation

2\. Communications

3\. Public Works and Engineering

4\. Firefighting

5\. Emergency Management

6\. Mass Care, Housing and Human Services

7\. Resource Support

8\. Public Health and Medical Services

9\. Urban Search and Rescue

10\. Oil and Hazardous Materials Response

11\. Agriculture and Natural Resources

12\. Energy

13\. Public Safety and Security

14\. Long-term Community Recovery and Mitigation

15\. External Affairs