**Risk and Emergency Management**

**Case Studies Textbook**

**Development Project**

**Prepared By:**

**George Haddow and Damon Coppola**

**Bullock & Haddow LLC**

**315 Boyd Ave.**

**Takoma Park, MD 20912**

**301-270-5554**

The purpose of this effort is to develop an Emergency and Risk
Management Case Studies Textbook designed to provide a resource for
practitioners and students in the crisis, disaster, and risk management
disciplines that displays various best practices, lessons learned, and
success stories, through in-depth case studies. The result of this
effort will be the authorship of a college-level crisis, disaster, and
risk management textbook containing numerous real-world case studies of
disaster preparedness, mitigation, response, and recovery actions.

The textbook will be developed in electronic format to support upper
division undergraduate college and graduate-level emergency management
classes within an emergency management major or certificate program to
students who may someday enter an emergency management related
profession.

The planned book will include the following ten chapters:

Chapter 1. Introduction to Crisis, Disaster, and Risk Management
Concepts

Chapter 2. Preparedness

Chapter 3. Mitigation

Chapter 4. Response

Chapter 5. Recovery

Chapter 6. Communications

Chapter 7. Statutory Authority

Chapter 8. Business Continuity Planning

Chapter 9: International Disaster Management

Chapter 10: Future Trends and Issues

Text chapters will support a minimum of ten three-hour blocks of
instruction, unless otherwise agreed upon by the contractor and FEMA.
Information derived from published sources shall be properly cited
within textbook chapters, either within the text or by utilizing
footnotes. Numerous information and data sources will be consulted in
drafting the case studies including but not limited to:

\* Reports by Federal, State and local government organizations

\* News reports developed by the media

\* Studies and reports developed by academic institutions

\* First hand accounts by participants and witnesses

\* Official testimony to government bodies

\* Previously published emergency and risk management textbooks

\* Interviews with available participants and officials

\* Reports prepared by voluntary agencies

\* Reports and information developed by business community sources

\* Data collected by public and private sector sources

Each Chapter will include:

-   [Chapter Outline]{.underline} - Bulleted-format outline detailing
    major topics to be discussed in each chapter

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-   [Chapter Introduction]{.underline} - Introduction of topics and
    concepts to be discussed in each chapter. Each chapter will explore
    a disaster management concept through the medium of one or more case
    studies

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-   [Full Instructional Text]{.underline} - Generally, this will consist
    of one or more case studies

-   [Sidebars]{.underline} - Interesting commentary and important
    concepts that are provided in the outer page margins to expand upon
    the case studies and other instructional material

-   [Discussion Questions]{.underline} - Questions that challenge
    readers to consider how the events and actions described in the
    cases would apply in their local context

-   [Illustrations]{.underline} - Photographs, charts, graphs, diagrams,
    and other material that adds visual enhancement to materials
    provided

-   [Information Resources and Website Links]{.underline} - Additional
    sources of information available in the public, private, and
    non-profit sectors, both conventional and on-line

-   [Glossary of Terms and Acronyms]{.underline}

-   [Suggested Out-of-Class Exercises]{.underline} - Additional
    projects, to be assigned at the discretion of the instructor, that
    provide students with additional practical experience with the
    material discussed in the comprehensive chapter material

As of June 7, 2005, Chapters 1 through 5 have been completed in draft
from and submitted fro review to FEMA. Presented in the following
sections are an outline of the topics and concepts discussed and a list
of the case studies included in each of these chapters.

**Chapter 1: Introduction to Crisis, Disaster, and Risk Management
Concepts**

The purpose of this chapter is to introduce the reader to current and
historical crisis, disaster and risk management concepts, to define the
four phases of emergency management, and to highlight issues concerning
communications, business continuity planning and international disaster
programs. Also included in this chapter is a discussion of the
attributes of a successful emergency management system that will be
illustrated in the case studies presented in this book.

This chapter includes the following sections:

-   Review of Historical Trends in Emergency Management

-   Four Phases of Emergency Management

-   Communications

-   Business Continuity Planning and Emergency Management

-   International Disaster Programs

-   Emergency Management and the New Terrorism Threat

-   Attributes of Successful Emergency Management Programs and Functions

-   Brief Descriptions of Case Studies

####### **Chapter 2: Preparedness**

1.  Introduction of topics and concepts to be discussed in the chapter

    1.  Preparedness Cycle

    2.  Preparedness Programs

    3.  Education and Training Programs

    4.  Community Involvement

2.  Case Studies:

    1.  Washington State Emergency Management Division -- Comprehensive
        Public Disaster Preparedness Campaign

    2.  TsunamiReady -- An Effective Tsunami Preparedness Program

    3.  The Emergency Management Institute -- The Federal Role in
        Emergency Management Education in the United States

Chapter 3: Mitigation

1.  Introduction of topics and concepts to be discussed in this chapter.

    a.  Tools for Mitigation

        i.  Hazard Identification and Mapping

        ii. Design and Construction Applications

        iii. Land Use Planning

        iv. Financial Incentives

        v.  Insurance

        vi. Structural Controls

    b.  Impediments to Mitigation

2.  Case Studies

    a.  Deerfield Beach, Florida: A Project Impact Community

    b.  Avalanche Mitigation in the Western United States

    c.  Tornado Safe Rooms

**Chapter 4: Response**

1.  Introduction of topics and concepts to be discussed in this chapter.

    a.  Local Response

    b.  State Response

    c.  Volunteer Group Response

    d.  Federal Response

    e.  Incident Command System

2.  Case Studies

    a.  2003 California Wildfire Response

    b.  Space Shuttle Columbia Disaster

    c.  Pentagon Attack on September 11, 2001

**Chapter 5: Recovery**

1.  Introduction of topics and concepts to be discussed in the chapter.

    a.  Federal individual community and business assistance programs

    b.  State and local assistance programs

    c.  Roles and responsibilities

    d.  Volunteer groups

    e.  Resources

    f.  Role of business sector

    g.  Coordination

    h.  Customer service

    i.  Insurance

2.  Case studies

    a.  Federal Government Recovery Efforts Following the 1993 Midwest
        Floods

    b.  Housing Reconstruction after the 1994 Northridge Earthquake

    c.  September 11 Philanthropic Recovery Efforts

Presented in the following sections are the proposed topics and concepts
to be discussed in Chapters 6-10 and lists of potential case studies to
be considered for inclusion in each chapter.

**Chapter 6: Communications**

3.  Introduction of topics and concepts to be discussed in the chapter.

    a.  Leadership commitment

    b.  Customer Focus

    c.  Inclusion of communications in planning and operations

    d.  Media partnership

    e.  Information collection and dissemination

    f.  Accurate and timely information

    g.  Crisis communications

    h.  Preparedness Communications

    i.  Tools

4.  Case studies to be examined of which 3-5 will be included:

    a.  2001 Anthrax Attacks

    b.  Northridge Earthquake

    c.  Hurricane Floyd

    d.  September 11^th^ Terrorist Attacks -- National Focus

    e.  Ready.gov Campaign

    f.  Washington, DC Sniper Attacks

    g.  Homeland Security Advisory System (HSAS)

**Chapter 7: Statutory Authority**

5.  Introduction of topics and concepts to be discussed in the chapter.

    a.  Why statutory is important

    b.  Budget authority

    c.  Program eligibility

    d.  Focus of authority

    e.  Roles and responsibility

6.  Case studies to be examined of which 3-5 will be included:

    a.  Civil Defense Act

    b.  Homeland Security Act

    c.  Flood Insurance Act

    d.  Disaster Mitigation Act

    e.  Civil Defense Act

    f.  NEHRP

    g.  Rhode Island club fire

**Chapter 8 Business Continuity Planning**

7.  Introduction of topics and concepts to be discussed in the chapter.

    a.  Business continuity planning elements and definitions

    b.  Business impact analysis

    c.  Establishing a business continuity planning capability

    d.  Working with public sector emergency managers

8.  Case studies to be examined of which 3-5 will be included:

    a.  Marsh Consulting

    b.  American Express

    c.  Marriott Hotels

    d.  Global Partnership for Preparedness Small Business Preparedness
        Campaign

    e.  Fidelity Investments

**Chapter 9: International Disaster Management**

9.  Introduction of topics and concepts to be discussed in the chapter.

    a.  Statutory and budget authority

    b.  Role of NGOs

    c.  Role of international financial institutions

    d.  Donor nation support

    e.  Leadership issues

    f.  Agency responsibilities

    g.  Tools, technology and staffing

10. Case studies to be examined of which 3-5 will be included:

    a.  2001 Gujarat Earthquake

    b.  PAHO Preparedness Programs

    c.  USAID OFDA Disaster Response Mechanism

    d.  Hurricane Mitch in Honduras

    e.  Hurricane Mitch in Guatemala

    f.  Hurricane Georges in the Dominican Republic

    g.  MEER Project (Turkey)

**Chapter 10: Future Trends and Issues**

11. Continuing evolution of emergency management in the United States

    a.  Department of Homeland Security

        i.  NRP

        ii. NIMS

        iii. Statutory authorities

        iv. Budget issues

        v.  Interdiction as the primary focus

    b.  FEMA

        i.  Resources

        ii. Staffing

        iii. Programs

        iv. Role in Federal actions

        v.  Relationship with State and local government and emergency
            managers

    c.  Other Federal agencies

        i.  HHS

        ii. EPA

        iii. DOJ

        iv. USDA

        v.  DOD

    d.  State and local emergency management

        i.  Evolving role in state and local government

        ii. Education and training

        iii. Staffing and resources

    e.  Role of the business sector

        i.  BCP evolution

        ii. Partnering with government

        iii. Education and training

        iv. Certification

        v.  Expanding role inside the corporate world

12. Continuing evolution of emergency management internationally

    a.  Role of international financial institutions

        i.  Disaster relief

        ii. Capacity building

        iii. Shift in focus to mitigation

        iv. Reconfiguring development plans

    b.  Government agencies

        i.  Statutory Authority

        ii. Budget authority

        iii. Technology and tools

        iv. Staffing

        v.  Education and training

        vi. Resources

        vii. Coordination within the government

    c.  NGOs

        i.  Shift of focus to mitigation

        ii. Resources

        iii. Coordination with government

        iv. Education and training

    d.  Role of US Government and other donor nations

        i.  Mitigation

        ii. Resources

        iii. Incorporation in development assistance

        iv. Relief assistance

13. Future Considerations

    a.  Community based programs

    b.  Public safety position

    c.  FEMA's role

    d.  Understanding the new terrorism threats

    e.  Consolidating business continuity and recovery planning in the
        corporate world

    f.  Disaster mitigation institutionalized in international
        development planning

    g.  Organizational capacity building in emergency management
        operations in developing countries

***Presented in the following section is a Case Study from Chapter 2 as
an example of the case studies to be included in the book:***

## Case Study 2.1: TsunamiReady -- An Effective Tsunami Preparedness Program 

## The Tsunami Hazard

A tsunami (pronounced "soo-nah-mee") is a series of waves generated by
an undersea disturbance such as an earthquake. The term tsunami is
Japanese in origin, represented by two characters: \"tsu\" (harbor) and
\"nami\" (wave). Tsunamis are often referred to, incorrectly, as \"tidal
waves.\" In truth, tides result from the gravitational influences of the
moon, sun, and planets, a phenomenon that has absolutely nothing to do
with the generation of tsunamis (although the ultimate height of a
tsunami striking a coastal area is determined by the tide level at the
time of impact.)

There are many events that result in the generation of a tsunami, but
earthquakes are the most prevalent.  Other forces that generate the
great waves include landslides, volcanic eruptions, explosions, and
though extremely rare, the impact of extra-terrestrial objects, such as
meteorites.

Tsunamis are generated when a large area of water is displaced, either
by a shift in the sea floor as would occur following an earthquake, or
by the introduction of mass, as described in the other generative forms
listed above. Waves are formed as the displaced water mass attempts to
regain its equilibrium.  It is important to note that not all
earthquakes generate tsunamis; to do so, earthquakes must occur
underneath or near the ocean, be large in magnitude (studies have
indicated a minimum 6.9 on the Richter Scale), and create movements in
the sea floor. While all oceanic regions of the world can experience
tsunamis, the countries lying in the Pacific Rim region face a much
greater frequency of large, destructive tsunamis because of the presence
of numerous large earthquakes in the seismically active 'Ring of Fire'.

From the area of the disturbance, the resulting waves that are generated
will travel outward in all directions, much like the ripples caused by a
rock thrown into standing water. The time between wave crests can range
from as little as 5 to as many as 90 minutes, and the wave speed in the
open ocean will average a staggering 450 to 600 miles per hour.

Tsunamis reaching heights of more than 100 feet have been recorded. In
the open ocean, tsunamis are virtually undetectable to most ships in
their path. As the waves approach the shallow coastal waters, they
appear normal but their speed decreases significantly. The compression
of the wave resulting from the decrease in ocean depth causes the wave
to rise in height and crash onto land -- often with great destruction,
injuries and death as the result. (NTHMP, 2003)

Tim Folger, in his article "Waves of Destruction", described the
generation of tsunamis. He wrote, \"As the tsunami wave reaches the
shallower water above a continental shelf, friction with the shelf slows
the front of the wave. As the tsunami approaches shore, the trailing
waves pile onto the waves in front of them, like a rug crumpled against
a wall creating a wave that may rise up to 30 feet before hitting the
shore.  Although greatly slowed, a tsunami still bursts onto land at
speeds of around 35 miles per hour, with enough momentum to flatten
buildings and trees and to carry ships miles inland.\" (Folger, 1994)

The areas facing the greatest risk from the tsunami hazard are those
populated centers that lie within one mile of the coastline and rise
less than 50 feet above sea level. It is in these areas that public
education and planning for tsunamis has been focused. Misinformation
about tsunamis can be deadly, as has been exhibited when people have
fled an initial tsunami wave of a series, only to be killed upon
returning too soon by successive waves that followed. Strange phenomena
that precede a tsunami, such as the ocean receding for 100s of feet
exposing the ocean floor, have resulted in the death of misinformed
citizens who ventured out to explore, only to be drowned in a sudden
return of water height.

The following list provides a small sample of the range of tsunami
experiences that have occurred within the United States and Canada:

-   In 1964, an Alaskan earthquake generated a tsunami with waves
    between 10 and 20 feet high along parts of the California, Oregon,
    and Washington coasts. This tsunami caused more than \$84 million in
    damage in Alaska and a total of 123 fatalities.

-   Although tsunamis are rare along the Atlantic coastline, a severe
    earthquake on November 18, 1929, in the Grand Banks of Newfoundland
    generated a tsunami that caused considerable damage and loss of life
    at Placentia Bay, Newfoundland.

-   In 1946, a tsunami with waves of 20 to 32 feet crashed into Hilo,
    Hawaii, flooding the downtown area and killing 159 people.

Most deaths during a tsunami are a result of drowning. Other risks
associated with the tsunami hazard include flooding, polluted water
supplies, destruction of crops, business interruption, loss of
infrastructure (roads, electrical lines, etc.), and damaged gas lines.
Since 1945, more people have been killed as a result of tsunamis than as
a direct result of an earthquake's ground shaking.

Presently, the National Oceanic &Atmospheric Administration (NOAA)
participates in the Tsunami Warning System, operating two Tsunami
Warning Centers. The Alaska/West Coast Tsunami Warning Center (ATWC) in
Palmer, Alaska, serves as the regional Tsunami Warning Center for
Alaska, British Columbia, Washington, Oregon, and California. The
Pacific Tsunami Warning Center (PTWC) in Ewa Beach, Hawaii, serves as
the regional Tsunami Warning Center for Hawaii and as a
national/international warning center for tsunamis that pose a
Pacific-wide threat. (NTHMP, 2003)

An important part of the effort to reduce the impacts of tsunamis in
these high-risk areas has been public education and community
preparedness. Early efforts included the identification and marking of
public evacuation routes, teaching supplies provided to schools, and
literature distributed to the population at large. However, a more
comprehensive program was needed, and the NOAA National Weather Service
(NWS) developed the TsunamiReady program to address this need.

## The TsunamiReady Program

TsunamiReady is an initiative that promotes tsunami hazard preparedness
as an active collaboration among Federal, state and local emergency
management agencies, the public, and the NWS tsunami warning system.
This collaboration functions for the purpose of supporting better and
more consistent tsunami awareness and mitigation efforts among
communities at risk. Through the TsunamiReady program, NOAA's National
Weather Service gives communities the skills and education needed to
survive a tsunami before, during and after the event. TsunamiReady was
designed to help community leaders and emergency managers strengthen
their local tsunami operations. (NOAA, N/D)

The TsunamiReady program is based on the NWS StormReady model (which can
be viewed by accessing <http://www.stormready.noaa.gov/>). The primary
goal of TsunamiReady is the improvement of public safety during tsunami
emergencies. As stated above, TsunamiReady is designed for those coastal
communities that are at known risk of the tsunami hazard (tsunami hazard
risk maps can be seen by accessing
<http://www.pmel.noaa.gov/tsunami/time/>).

Traditionally, tsunami hazard planning along the U.S. West Coast and
Alaska has been widely neglected because of the statistically-low
incidence of tsunamis. As result of that perceived 'rarity', many
individuals and communities have not worked to become as
\"tsunami-aware\" as they could and should be. Among those communities
that are considered to be prepared, that level of exhibited preparedness
varies significantly (NWS, N/D).

However, as is true with the earthquakes and other rare events that
generate tsunamis, avoidable casualties and property damage will only
continue to rise unless these at-risk communities become better prepared
for tsunamis. As previously mentioned, readiness involves two key
components: *awareness* and *mitigation*. Awareness involves educating
key decision makers, emergency managers, and the public about the nature
(physical processes) and threat (frequency of occurrence, impact) of the
tsunami hazard, while mitigation involves taking steps before the
tsunami occurs to lessen the impact (loss of life and property) of that
event when it does occur. Like is true with earthquakes, there is no
question tsunamis will strike again.

The National Weather Service (NWS) TsunamiReady program was designed to
meet both of the recognized elements of a useful readiness effort: it is
designed to educate local emergency management officials and their
public, and to promote a well-designed tsunami emergency response plan
for each community.

**Program Objectives**

TsunamiReady promotes tsunami hazard readiness as an active
collaboration among Federal, state and local emergency management
agencies, the public, and the NWS tsunami warning system. This
collaboration supports better and more consistent tsunami awareness and
mitigation efforts among communities at risk. The main goal is
improvement of public safety during tsunami emergencies. To meet this
goal, the following objectives need to be met by the community:

-   Create minimum standard guidelines for a community to follow for
    adequate tsunami readiness

-   Encourage consistency in educational materials and response among
    communities and states

-   Recognize communities that have adopted TsunamiReady guidelines

-   Increase public awareness and understanding of the tsunami hazard

-   Improve community pre-planning for tsunami disasters

P**rogram Methodology**

The processes and guidelines used in the TsunamiReady program were
modeled to resemble those of the National Weather Service "StormReady"
program. TsunamiReady established minimum guidelines for a community to
be awarded the TsunamiReady recognition, thus promoting minimum
standards based upon expert knowledge rather than subjective
considerations. Communities that accept the challenge to become
TsunamiReady, and are deemed to have met these requirements set by the
NWS TsunamiReady program, are designated as "TsunamiReady Communities."
Guidelines to achieve TsunamiReady recognition are given in the
following table, and discussed in detail in the pages immediately
following. Four community categories (based upon the population of the
community, and provided in the table's heading) are used to measure
tsunami readiness.

Note the Guideline 3 has been skipped as it refers exclusively to the
StormReady program, which shares these guidelines with the TsunamiReady
program. This is a key factor to consider, as it ensures by default that
all communities that are StormReady will also be TsunamiReady (as of
2002). As such, all communities being certified for TsunamiReady also
must pass all StormReady criteria. StormReady requires access to local
weather monitoring equipment (Guideline 3) and some further
administrative requirements (Guideline 6). Other than that, the
requirements are identical.

  --------------------------------- -------------------------------------
  **Guidelines**                    **Population**

  --------------------------------- -------------------------------------

  ---------------------------------- ---------------- ----------- ------------ --------------
                                     **\< 2,500**     **2,500 -   **15,000 -   **\>40,000**
                                                      14,999**    40,000**     

  **1: Communications and                                                      
  Coordination**                                                               

  24 hr Warning Point (WP)           X                X           X            X

  Emergency Operations Center                         X           X            X

  **2: Tsunami Warning Reception**                                             

  Number of ways for EOC/WP to       3                4           4            4
  receive NWS tsunami messages (If                                             
  in range, one must be NWR with                                               
  tone-alert, NWR-SAME is preferred)                                           

  **4: Warning Dissemination**                                                 

  Number of ways for EOC/WP to       1                2           3            4
  disseminate warnings to public                                               

  NWR tone-alert receivers in public X                X           X            X
  facilities (where available)                                                 

  For county/borough warning points, X                X           X            X
  county/borough communication                                                 
  network ensuring information flow                                            
  between communities                                                          

  **5: Community Preparedness**                                                

  Number of annual tsunami awareness 1                2           3            4
  programs                                                                     

  Designate/establish tsunami        X                X           X            X
  shelter/area in safe zone                                                    

  Designate tsunami evacuation areas X                X           X            X
  and evacuation routes, and install                                           
  evacuation route signs                                                       

  Provide written, locality          X                X           X            X
  specific, tsunami hazard response                                            
  material to public.                                                          

  Schools: encourage tsunami hazard  X                X           X            X
  curriculum, practice evacuations,                                            
  and provide safety material to                                               
  staff and students                                                           

  **6: Administrative**                                                        

  Develop formal tsunami hazard      X                X           X            X
  operations plan                                                              

  Yearly meeting/discussion by       X                X           X            X
  emergency manager with NWS                                                   

  Visits by NWS official to          X                X           X            X
  community at least every other                                               
  year                                                                         
  ---------------------------------- ---------------- ----------- ------------ --------------

**Guideline 1: Communications and Coordination Center**

It is well known that key to any effective hazards management program is
effective communication. This could not be truer when considering
tsunami-related emergencies, since the arrival of the giant waves can
occur within minutes of the initial precipitating event. These so-called
\"short-fused\" events, therefore, require an immediate, but careful,
systematic and appropriate response. To ensure such a proper response,
TsunamiReady requires that communities establish the following:

1\. [24-Hour Warning Point.]{.underline} It is the NWS, not the
community, which determines a Tsunami threat exists. Therefore, in order
to receive recognition under the TsunamiReady Program, an applying
agency needs to establish a 24-hour warning point (WP) that can receive
NWS tsunami information in addition to providing local reports and
advice to constituents. Typically, the functions of this type of
facility are merely incorporated into the existing daily operation of a
law enforcement or fire department dispatching (Emergency Communications
Center (ECC)) point.

For cities or towns without a local dispatching point, a county agency
could act in that capacity for them. In Alaska, where there may be
communities that have populations of less than 2,500 residents and no
county agency to act as a 24-hour warning point, the community is
required to designate responsible members of the community who are able
to receive warnings 24 hours per day, and who have the authority to
activate local warning systems. Specifically, the warning point is
required to have:

-   24-hour operations.

-   Warning reception capability.

-   Warning dissemination capability.

-   Ability and authority to activate local warning system(s).

2\. [Emergency Operations Center.]{.underline} Agencies serving
jurisdictions larger than 2,500 people are required to have the ability
to activate an emergency operations center (EOC). It must be staffed
during tsunami events to execute the warning point\'s tsunami warning
functions. The following list summarizes the tsunami-related roles
required of the EOC:

-   Activate, based on predetermined guidelines related to NWS tsunami
    information and/or tsunami events.

-   Staff with emergency management director or designee.

-   Establish warning reception/dissemination capabilities equal to or
    better than the warning point.

-   Maintain the ability to communicate with adjacent EOCs/Warning
    Points.

-   Maintain the ability to communicate with local NWS office or Tsunami
    Warning Center.

**Guideline 2: Tsunami Warning Reception**

Warning points and EOCs each need multiple ways to receive NWS tsunami
warnings. TsunamiReady guidelines to receive NWS warnings in an EOC/WP
require a combination of the following, based on population:

-   NOAA Weather Radio (NWR) receiver with tone alert. Specific Area
    Message Encoding (SAME) is preferred. Required for recognition only
    if within range of transmitter.

-   NOAA Weather Wire drop: Satellite downlink data feed from NWS.

-   Emergency Managers Weather Information Network (EMWIN) receiver:
    Satellite feed and/or VHF radio transmission of NWS products.

-   Statewide Telecommunications System: Automatic relay of NWS products
    on statewide emergency management or law enforcement system

-   Statewide warning fan-out system: State authorized system of passing
    message throughout warning area

-   NOAA Weather Wire via Internet NOAAport Lite: Provides alarmed
    warning messages through a dedicated Internet connection

-   Direct link to NWS office: e.g. amateur or VHF radio

-   E-mail from Tsunami Warning Center: Direct e-mail from Warning
    Center to emergency manager

-   Pager message from Tsunami Warning Center: Page issued from Warning
    Center directly to EOC/WP

-   Radio/TV via Emergency Alert System: Local Radio/TV or cable TV

-   US Coast Guard broadcasts: WP/EOC monitoring of USCG marine channels

-   National Warning System (NAWAS) drop: FEMA-controlled civil defense
    hotline

**Guideline 4: Warning Dissemination**

1\. Upon receipt of NWS warnings or other reliable information
suggesting a tsunami is imminent, local emergency officials must be able
to communicate this threat information with as much of the population as
possible. This is fundamental to making the preparedness program
effective. As such, receiving TsunamiReady recognition requires that
communities have one or more of the following means of ensuring timely
warning dissemination to their citizens (based upon population, as
described in the table above):

-   A community program that subsidizes the purchase of NWR. (NWR
    receiver with tone alert. SAME is preferred. Required for
    recognition only if within range of transmitter.)

-   Outdoor warning sirens.

-   Television audio/video overrides.

-   Other locally-controlled methods, e.g. local broadcast system or
    emergency vehicles.

-   Phone messaging (dial-down) systems.

2\. It is required that at least one NWR, equipped with a tone alert
receiver, be located in each critical public access and government-owned
building, and must include 24 hour warning point, EOC, School
Superintendent office or equivalent. Critical public access buildings
are defined by each community\'s tsunami warning plan. Locations that
are recommended for inclusion by the NWS include: all schools, public
libraries, hospitals, fairgrounds, parks and recreational areas, public
utilities, sports arenas, Departments of Transportation, and designated
shelter areas. (SAME is preferred. This is required for recognition only
if the community exists within range of a transmitter.)

3\. Counties/Boroughs only: a county/borough-wide communications network
ensuring the flow of information among all cities and towns within those
administrative borders. This would include provision of a warning point
for the smaller towns, and fanning out of the message as required by
state policy.

**Guideline 5: Community Preparedness**

Public education is vital in preparing citizens to respond properly to
tsunami threats. An educated public is more likely to take the steps
required to receive tsunami warnings, recognize potentially threatening
tsunami events when they exist, and respond appropriately to those
events. Therefore, communities that are seeking recognition in the
TsunamiReady Program must be able to:

-   Conduct or sponsor tsunami awareness programs in schools, hospitals,
    fairs, workshops, and community meetings (the actual number of talks
    that must be given each year is based upon the community's
    population).

-   Define tsunami evacuation areas and evacuation routes, and install
    evacuation route signs.

-   Designate a tsunami shelter/area outside the hazard zone.

-   Provide written tsunami hazard information to the populace,
    including:

    -   Hazard zone maps

    -   Evacuation routes

    -   Basic tsunami information

> These instructions can be distributed through mailings (utility bills,
> for example), within phone books, and posted at common meeting points
> located throughout the community, such as libraries, supermarkets, and
> public buildings.

-   Local schools must meet the following guidelines:

    -   Encourage the inclusion of tsunami information in primary and
        secondary school curriculums. NWS will help identify curriculum
        support material.

    -   Provide an opportunity biennially for a tsunami awareness
        presentation.

    -   Schools within the defined hazard zone must have tsunami
        evacuation drills at least biennially.

    -   Written safety material should be provided to all staff and
        students.

    -   Have an earthquake plan.

**Guideline 6: Administrative**

No program can be successful without formal planning and a proactive
administration. The following administrative requirements are necessary
for a community to be recognized in the TsunamiReady Program:

1\. A tsunami warning plan must be in place and approved by the local
governing body. This plan must address the following:

-   Warning point procedures.

-   EOC activation guidelines and procedures.

-   Warning point and EOC personnel specification.

-   Hazard zone map with evacuation routes.

-   Procedures for canceling an emergency for those
    less-than-destructive tsunamis.

-   Guidelines and procedures for activation of sirens, cable TV
    override, and/or local system activation in accordance with state
    Emergency Alert System (EAS) plans, and warning fan-out procedures,
    if necessary.

-   Annual exercises.

2\. Yearly visits or discussions with local NWS Forecast Office Warning
Coordination Meteorologist or Tsunami Warning Center personnel must be
conducted. This can include a visit to the NWS office, a phone
discussion, or e-mail communication.

3\. NWS officials will commit to visit accredited communities, at least
every other year, to tour EOCs/Warning Points and meet with key
officials.

### **Administration of the TsunamiReady Program**

Oversight of the TsunamiReady program is accomplished within the NWS by
the National StormReady Board (The Board). The Board is responsible for
changes in community recognition guidelines. Proposed guideline changes
shall be directed to the Board for action. The Board consists of the NWS
Regional Warning Coordination Meteorologist (WCM) Program Leaders, the
National WCM Program Manager, a Federal Emergency Management Agency
(FEMA) representative, a National Emergency Management Association
(NEMA) representative, and an International Association of Emergency
Managers (IAEM) representative.

Oversight of the TsunamiReady program at the local level is provided by
the appropriate Local StormReady board. The Local StormReady board has
the authority to enhance TsunamiReady to fit regional situations. At a
minimum, this board consists of:

-   NWS Weather Forecast Office\'s Meteorologist-in-Charge

-   NWS Weather Forecast Office\'s Warning Coordination Meteorologist

-   State emergency service director or designee

-   Local emergency management association president or designee

-   Tsunami Warning Center\'s Geophysicist-in-Charge

-   Tsunami Hazard Mitigation Program representative

The Local StormReady Board is responsible for all steps leading to the
recognition of the TsunamiReady community. This includes implementing
procedures for site verification visits and application review.

#### **Benefits of the TsunamiReady Program**

The following benefits of participation in the TsunamiReady Community
program include:

-   The community is more prepared for the tsunami hazard

-   Regularly scheduled education forums increase public awareness of
    existing dangers

-   Contact with experts (emergency managers, researchers, NWS
    personnel) is increased and likewise, enhanced

-   Community readiness resource needs are identified

-   Positioning to receive State and Federal funds is improved

-   Core infrastructure to support other community concerns is enhanced

-   The public is allowed the opportunity to see first-hand how their
    tax money is being spent in hazard programs

##### Conclusion

Through the TsunamiReady program, NOAA's National Weather Service gives
communities the skills and education needed to survive a tsunami before,
during and

after the event. TsunamiReady helps community leaders and emergency
managers strengthen their local tsunami operations. TsunamiReady
communities are better prepared to save lives from the onslaught of a
tsunami through better planning, education and awareness. Communities
have fewer fatalities and property damage if they plan before a tsunami
arrives. No community is tsunami proof, but TsunamiReady can help
communities save lives.

**[References:]{.underline}**

FEMA. 2004. Fact Sheet: Tsunamis.
<http://www.govexec.com/dailyfed/1104/111804h1.htm>

Folger, Tim. 1994. "Waves of Destruction." *Discover* Magazine. May. Pp.
69-70.

NOAA (National Oceanic & Atmospheric Administration). N/D. The National
Tsunami Hazard Mitigation Program Brochure.
<http://wcatwc.arh.noaa.gov/tsunamiready/trbrochure.pdf>

NTHMP (National Tsunami Hazard Mitigation Program). 2003. Frequently
Asked Questions.
<http://www.pmel.noaa.gov/tsunami-hazard/tsunami_faqs.htm>

NWS. N/D. TsunamiReady; The Readiness Challenge.
<http://www.prh.noaa.gov/ptwc/tsunamiready/tsunami_ready_full_document.pdf>

# Sidebar 2.1.1: Press Release; - NOAA\'S National Weather Service Honors Washington Community for Earning \"TsunamiReady\" Recognition (from <http://www.wrh.noaa.gov/sew/tsu_pressRels.htm>) 

At a recognition ceremony, held during the Ocean Shores (Wash.) Sand
Festival on Saturday June 30, 2001, the National Weather Service (NWS),
an agency of the Commerce Department\'s National Oceanic and Atmospheric
Administration (NOAA), honored officials representing both the city of
Ocean Shores and Grays Harbor County for their efforts in simultaneously
earning the nation\'s first \"TsunamiReady\" and \"StormReady\"
designations for their communities.

During the ceremony, Scott Gudes, NOAA\'s acting administrator, said,
\"Today we are making history. We are honoring the State of Washington,
its elected and appointed officials, for completing a process that
enables them to better protect its citizens from severe weather and
tsunamis. These communities have demonstrated a strong commitment to
putting the infrastructure and systems in place that will save lives and
protect property in the event of these damaging and hazardous events.\"

City and county officials received both \"StormReady\" and
\"TsunamiReady\" road signs from NOAA officials. The road signs are
posted to inform residents and travelers that this is a NWS recognized
\"StormReady and TsunamiReady\" community. Many local and state
representatives were also on hand to witness the unique ceremony and
view the informational exhibits on the beach staffed by weather and
disaster related agencies.

![](media/image1.jpeg){width="2.0833333333333335in"
height="1.2291666666666667in"}Vickie Nadolski, NWS Western Region
director, emphasized the key safety message is awareness. \"If there is
an earthquake in or near a seaside community such as Ocean Shores,
people do not understand the importance of moving to higher ground or
inland immediately in case a tsunami occurs.\"

Nadolski pointed out local evacuation signs tell residents and visitors
to seek higher ground after they feel an earthquake. She said the
Pacific Northwest is prone to earthquakes. \"We are here to help people
understand if they live in or participate in recreational activities in
this region, they must know how to protect themselves from Mother
Nature\'s fury that can range from tsunamis to high wind and surf,
flooding events and dense fog in coastal areas.\"

The recent Feb 28 Nisqually earthquake was recently named the state of
Washington\'s costliest natural disaster, even when compared to the
winter flooding of 1996. Officials have approved nearly \$105 million to
assist people whereas about \$85 million in assistance was distributed
following the winter flooding of 1996.

\"When severe weather is headed our way, we encourage you to tune in to
NOAA Weather Radio or local media for the latest reports,\" said Chris
Hill, meteorologist in charge of the NWS forecast office in Seattle.
\"We want to have people know how to protect themselves from a variety
of severe weather. During the 1990s, Washington experienced 19 Federally
declared disasters and dozens more local disasters. When disasters
occur, a \"StormReady\" or \"TsunamiReady\" community will be better
prepared and will gain the most benefit for its citizens.\"

\"StormReady\" and \"TsunamiReady\" are voluntary preparedness programs
providing communities with clear-cut advice on how to best use a
grassroots approach and develop plans to handle local severe weather
threats from floods, wind storms, or snow storms. \"StormReady\" and
\"TsunamiReady\" will also strengthen a community\'s ability to receive
![](media/image2.jpeg){width="2.0833333333333335in"
height="1.2395833333333333in"}and use severe weather watches and
warnings from the NWS.

To receive the \"StormReady\" and \"TsunamiReady\" designation, this
community had to be approved by an advisory board made up of local
county emergency managers, representatives from Washington State
Emergency Management and the National Weather Service.

The Sand Festival draws master sand castle sculpting teams and several
thousand onlookers. One of the entries this year featured a tsunami wave
and larger-than-life replica of the tsunami evacuation route.

For more information about the \"StormReady\" program, please visit
[http://www.stormready.noaa.gov](http://www.stormready.noaa.gov/). .
Each NWS forecast office posts daily forecasts and severe weather
warnings on their Web pages. Links to NWS offices across the country are
available through [http://weather.gov](http://weather.gov/). For more
information on the TsunamiReady program, please see
<http://wcatwc.gov/tsunamiready/tready.htm>.

## Sidebar 2.1.2: Recent TsunamiReady Communities

  ------------ ---------------------------------------------- ------------
  **Date**     **Community**                                  **State**

  06/30/2001   Ocean Shores                                   Washington

  01/10/2002   Long Beach                                     Washington

  01/18/2002   Seward                                         Alaska

  05/29/2002   Crescent City                                  California

  06/04/2002   Quinault Indian Tribe                          Washington

  08/12/2002   Cannon Beach                                   Oregon

  09/09/2002   Homer                                          Alaska

  07/07/2003   Sitka                                          Alaska

  10/07/2003   Kodiak City                                    Alaska

  06/21/2004   University of California Santa Barbara (UCSB)  California
  ------------ ---------------------------------------------- ------------

From <http://www.prh.noaa.gov/ptwc/tsunamiready/community.htm>

**Sidebar 2.1.3: Tsunami Safety Advice**

![](media/image3.png){width="5.822222222222222in"
height="7.993055555555555in"}

from <http://wcatwc.arh.noaa.gov/tsunamiready/safety1.pdf>

## Illustration 2.1.1: TsunamiReady Brochure Pages 1 and 2

![](media/image4.png){width="8.8125in" height="6.4375in"}

![](media/image5.png){width="8.572916666666666in" height="6.53125in"}

From
<http://www.prh.noaa.gov/ptwc/tsunamiready/tsunami_ready_brochure.pdf>

**Illustration 2.1.2: Hawaii Tsunami -** Photograph courtesy of the
[**Pacific Tsunami Museum**](http://www.tsunami.org/), in Hilo, Hawaii,
posted by the USGS
([**http://volcanoes.usgs.gov/Products/Pglossary/tsunami.html**](http://volcanoes.usgs.gov/Products/Pglossary/tsunami.html))

People run from an approaching tsunami in Hilo, Hawaii, on 1 April 1946;
note the wave just left of the man\'s head in right center of image.

![](media/image6.jpeg){width="9.4in" height="5.875in"}

![](media/image7.png){width="2.375in" height="2.375in"}**Illustration
2.1.3: Tsunami Evacuation Sign** - From the Washington State Department
of Transportation
(<http://www.wsdot.wa.gov/biz/trafficoperations/traffic/newsigns.htm>)

![](media/image8.png){width="2.0729166666666665in"
height="1.6458333333333333in"} **Illustration 2.1.4: Tsunami Evacuation
Sign** - From the Washington State Department of Transportation
(<http://www.wsdot.wa.gov/biz/trafficoperations/traffic/newsigns.htm>)

**Additional sources of information on tsunami readiness:**

-   Earthquakes, FEMA-159, August 1992, 169p.

-   Guidance for Local Officials, National Tsunami Hazard Mitigation
    Program, 2001, 58p.

-   Local Planning Guidance on Tsunami Response, California Office of
    Emergency Services, OES Earthquake Program, State of California,
    195p. <http://www.oes.ca.gov/>

-   StormReady Organization and Operations Manual for further
    information on the National StormReady Board and program.
    <http://www.stormready.noaa.gov/resources/fy2001manual.pdf>

-   Strategic Implementation Plan for Tsunami Mitigation Projects, NOAA
    Technical Memorandum, Pacific Marine Environmental Laboratory, NOAA,
    Dept. of Commerce.
    <http://www.pmel.noaa.gov/tsunami-hazard/loriplan.html>

-   Tsunami Curriculum - K-6 Grades, Washington State Military
    Department, Emergency Management Division, 2000, 67p.

-   Tsunami Curriculum - 7-12 Grades, Washington State Military
    Department, Emergency Management Division, 2000, 51p.

-   West Coast/Alaska Tsunami Warning Center\'s web page.
    <http://wcatwc.gov/> or <http://wcatwc.arh.noaa.gov/>

-   TsunamiReady Organization and Operations Manual.
    <http://www.stormready.noaa.gov/resources/fy2001manual.pdf>

-   NWS Pacific Tsunami Warning Center - <http://www.prh.noaa.gov/ptwc/>

-   1997-1999 activities of the Tsunami Mitigation Subcommittee: a
    report to the Steering Committee, National Tsunami Hazard Mitigation
    Program.
    <http://www.pmel.noaa.gov/tsunami-hazard/TsunamiActivitiesBooklet.pdf>

-   "How the Smart Family Survived a Tsunami" Childrens' Book -
    <http://emd.wa.gov/5-prep/trng/pubed/02-campaign/smart/smart-book.pdf>

-   State of Alaska TsunamiReady Annual Report (FY2003)
    <http://www.pmel.noaa.gov/tsunami-hazard/AK03Accomplishments.pdf>

***Discussion Questions***

**TsunamiReady -- An Effective Tsunami Preparedness Program:**

> 1\. Identify the early efforts in tsunami public education and
> community preparedness.
>
> 2\. What is the goal of the National Weather Service TsunamiReady
> program?
>
> 3\. Name the three principal groups that collaborate in TsunamiReady
> to promote tsunami hazard readiness.
>
> 4\. Identify the five guidelines used in the TsunamiReady Program.
>
> 5\. Identify and discuss the two critical elements in the
> Communications and Coordination Center.
>
> 6\. Discuss the actions involved in the Community Preparedness
> guideline.
>
> 7\. Discuss possible obstacles communities might face in their drive
> to become TsunamiReady

## 

## Glossary of Terms

Pacific Rim - referring to countries and economies bordering the Pacific
ocean, is an informal, flexible term which generally has been regarded
as a reference to East Asia, Canada, and the United States. At a
minimum, the Pacific Rim includes Canada, Japan, the People\'s Republic
of China, Taiwan, and the United States. It may also include Australia,
Brunei, Cambodia, Hong Kong/Macau, Indonesia, Laos, North Korea, South
Korea, Malaysia, New Zealand, the Pacific Islands, the Philippines,
Russia (or the Commonwealth of Independent States), Singapore, Thailand,
and Vietnam. As an evolutionary term, usage sometimes includes Mexico,
the countries of Central America, and the Pacific coast countries of
South America. (www.logisticsfocus.com/Glossary/glossary-p.asp)

Tsunami - a series of waves generated by an undersea disturbance such as
an earthquake.

StormReady - NWS designed StormReady to help communities better prepare
for and mitigate effects of extreme weather-related events. StormReady
also helps establish a commitment to creating an infrastructure and
systems that will save lives and protect property. Receiving StormReady
recognition does not mean that a community is storm proof, but
StormReady communities will be better prepared when severe weather
strikes.

TsunamiReady - an initiative that promotes tsunami hazard preparedness
as an active collaboration among Federal, state and local emergency
management agencies, the public, and the NWS tsunami warning system.

## Suggested Out Of Class Exercises

1.  Find out if your community is StormReady or Tsunami Ready. This can
    be done by accessing
    <http://www.stormready.noaa.gov/communities.htm>. If it is,
    interview your local manager about the difficulties they encountered
    in establishing StormReady in their jurisdiction. Find out if they
    plan to renew their status. If the community is not StormReady,
    discuss with the emergency manager the why the community is not
    storm ready, and find out what it would take to attain StormReady or
    TsunamiReady (if a Pacific coastal community) status.

2.  Find out what disaster preparedness public education is conducted in
    your community. Check with local and state government agencies, as
    well as non-governmental agencies (i.e., the American Red Cross).
    Suggest to your local emergency manager an event that could be held
    or a publication that could be developed that would help members of
    the community prepare for a risk for which they are vulnerable.

3.  Design a simple disaster preparedness tool that could be used in
    primary or secondary schools in your community. Discuss with your
    emergency manager the possibility of distributing the publication to
    the community's schools.

4.  Talk to a students in a local school about individual and family
    disaster preparedness.

5.  Find out if your college or university is currently offering FEMA
    EMI courses. If not, meet with representatives from your school to
    see if such courses could be offered, and help to implement them.

6.  Research the EMI Independent study courses online. Select one or
    more that you are interested in taking, and take the test for
    certification. Find out from your college or university if the
    course credits are transferable.