TABLE OF 

CONTENTS

PAGE

Course Overview...................................................................................................................1 

Unit 1: Course Introduction 

Introduction ....................................................................................................................1.1

How to Complete This Course .......................................................................................1.1 

Unit 1 Objectives ............................................................................................................1.4 

Course Objectives..........................................................................................................1.4 

Case Study: Tornado in Barneveld, Wisconsin.............................................................1.5 

Your Place in the Emergency Management System......................................................1.7 

Case Study: Hazardous Chemical Release ..................................................................1.8 

Activity: Where Do I Fit?..............................................................................................1.10 

Summary and Transition ..............................................................................................1.11 

Unit 2: Overview of the Integrated Emergency Management System 

Introduction and Unit Overview ......................................................................................2.1 

Why an Integrated Emergency Management System?..................................................2.2 

Emergency Management Concepts and Terms.............................................................2.2 

Partners in the Coordination Network ............................................................................2.4 

Activity: Partners in the Coordination Network..............................................................2.8 

Emergency Management in Local Government...........................................................2.10 

Activity: Where Is Emergency Management in My Community?.................................2.12 

Summary and Transition ..............................................................................................2.13 

For More Information....................................................................................................2.13 

Knowledge Check ........................................................................................................2.14 

Unit 3: The Emergency Management Cycle 

Introduction and Unit Overview ......................................................................................3.1 

Introduction to the Emergency Management Cycle .......................................................3.1 

Mitigation........................................................................................................................3.3 

Activity: Identifying Mitigation Measures .......................................................................3.8 

Preparedness.................................................................................................................3.9 

Response .....................................................................................................................3.16 

Activity: Response Operations ....................................................................................3.19 

Recovery ......................................................................................................................3.20 

Summary and Transition ..............................................................................................3.22 

For More Information....................................................................................................3.22 

Knowledge Check ........................................................................................................3.23 

Principles of Emergency Management Page i 
TABLE OF CONTENTS

PAGE

Unit 4: Roles of Key Participants 

Introduction and Unit Overview ......................................................................................4.1 

The Role of the Local Emergency Program Manager....................................................4.1 

State Emergency Management Role .............................................................................4.3 

How the Private Sector and Voluntary Organizations Assist Emergency Managers .....4.6 

Federal Emergency Management Role..........................................................................4.7 

The Federal Response Plan ..........................................................................................4.8 

Activity: Emergency Management Partners ................................................................4.11 

Emergency Management Functional Groups...............................................................4.13 

Case Study: Emergency Management Coordination ..................................................4.15 

Summary and Transition ..............................................................................................4.18 

For More Information....................................................................................................4.18 

Knowledge Check ........................................................................................................4.19 

Unit 5: The Plan as Program Centerpiece 

Introduction and Unit Overview ......................................................................................5.1 

What Is an EOP and What Does It Do? .........................................................................5.1 

Activity: Where Do I Fit Into the EOP? ..........................................................................5.3 

Case Study: An EOP in Action......................................................................................5.4 

Importance of the Hazard Analysis to the Planning Process .........................................5.5 

What Is In a Hazard Analysis? .......................................................................................5.5 

Job Aid 5.1: Hazard Analysis Worksheet ......................................................................5.6 

Using a Hazard Analysis to Determine Risk ................................................................5.10 

EOP Structure and Contents........................................................................................5.11 

Summary and Transition ..............................................................................................5.18 

For More Information....................................................................................................5.18 

Knowledge Check ........................................................................................................5.19 

Unit 6: Planning and Coordination 

Introduction and Unit Overview ......................................................................................6.1 

Linking Hazard Analysis to Capability Assessment .......................................................6.2 

Activity: What Can Your Organization Offer?................................................................6.4 

The EOP and the Incident Command System ...............................................................6.5 

The EOP and the EOC...................................................................................................6.7 

Activity: The EOP, ICS, and EOC ...............................................................................6.10 

Case Study: Multiple-Agency Coordination.................................................................6.12 

Augmenting Local Resources ......................................................................................6.15 

Maintaining an Effective EOP ......................................................................................6.18 

Interfacing With Other Plans ........................................................................................6.20 

Summary and Transition ..............................................................................................6.22 

For More Information....................................................................................................6.22 

Knowledge Check ........................................................................................................6.23 

Principles of Emergency Management Page ii 
TABLE OF CONTENTS

PAGE

Unit 7: Functions of an Emergency Management Program 

Introduction and Unit Overview ......................................................................................7.1 

Introduction to Emergency Management Functions.......................................................7.1 

Basis in Local Law .........................................................................................................7.2 

Emergency Management Core Functions......................................................................7.2 

Emergency Management Program Functions................................................................7.3 

Case Study: Train Derailment Review ..........................................................................7.6 

Activity: Emergency Management Functions in Action .................................................7.8 

Activity: Comparing Functions.....................................................................................7.10 

Summary and Transition ..............................................................................................7.12 

Knowledge Check ........................................................................................................7.13 

Unit 8: Applying Emergency Management Principles 

Introduction and Unit Overview ......................................................................................8.1 

Applying the Integrated Emergency Management System ............................................8.1 

Activity: Interdependence Within the Emergency Management Team..........................8.2 

Activity: Problem Solving In Crisis-Prone County..........................................................8.7 

Summary and Transition ..............................................................................................8.12 

Knowledge Check ........................................................................................................8.13 

Unit 9: Course Summary

Introduction and Unit Overview ......................................................................................9.1 

Integrated Emergency Management System.................................................................9.1 

The Emergency Management Cycle..............................................................................9.2 

The Plan as Program Centerpiece.................................................................................9.3 

Planning and Coordination.............................................................................................9.4 

Functions of an Emergency Management Program.......................................................9.6 

Emergency Management Program Partners..................................................................9.7 

Applying Emergency Management Principles................................................................9.8 

Next Steps......................................................................................................................9.9

Appendix A: Job Aid 

Appendix B: Acronym List 

Appendix C: Emergency Supply Kit 

Principles of Emergency Management Page iii 
Course Overview
COURSE 

OVERVIEW

About This Course 

All communities are vulnerable to a variety of hazards. Emergency 

management provides a structure for anticipating and dealing with 

emergency incidents. 

Emergency management involves participants at all governmental levels 

and in the private sector. Activities are geared according to phases 

before, during, and after emergency events. The effectiveness of 

emergency management rests on a network of relationships among 

partners in the system. 

This course is one in the Federal Emergency Management Agency 

(FEMA) Professional Development Series. The goal of this course is to 

introduce you to the fundamentals of emergency management as an 

integrated system, surveying how the resources and capabilities of all 

functions at all levels can be networked together in all phases for all 

hazards. 

FEMA’s Independent Study Program 

FEMA’s Independent Study Program is one of the delivery channels that 

the Emergency Management Institute (EMI) uses to provide training to 

the general public and specific audiences. This course is part of FEMA’s 

Independent Study Program. In addition to this course, the Independent 

Study Program includes other courses in the Professional Development 

Series (PDS), as well as courses in floodplain management, radiological 

emergency management, the role of the emergency manager, hazardous 

materials, disaster assistance, the role of the Emergency Operations 

Center, and an orientation to community disaster exercises. 

FEMA’s independent study courses are available at no charge and 

include a final examination. You may apply individually or through group 

enrollment. When enrolling for a course, you must include your name, 

mailing address, social security number, and the title of the course in 

which you wish to enroll. 

Principles of Emergency Management Page 1 
COURSE OVERVIEW

FEMA’s Independent Study Program (Continued) 

If you need assistance with enrollment, or if you have questions about 

how to enroll, contact the Independent Study Program Administrative 

Office at: 

FEMA Independent Study Program 

Administrative Office 

Emergency Management Institute 

16825 South Seton Avenue 

Emmitsburg, MD 21727 

(301) 447-1200 

Information about FEMA’s Independent Study Program also is available 

on the Internet at: 

http://training.fema.gov/EMIWeb/IS 

Each request will be reviewed and directed to the appropriate course 

manager or program office for assistance. 

Course Completion 

The course completion deadline for all FEMA Independent Study courses 

is 1 year from the date of enrollment. The date of enrollment is the date 

that the EMI Independent Study Office will use for completion of all 

required course work, including the Final Examination. If you do not 

complete this course, including the Final Examination, within that 

timeframe, your enrollment will be terminated. 

Course Prerequisites 

Principles of Emergency Management does not have any prerequisites. 

Final Examination 

This course includes a written Final Examination, which you must 

complete and return to FEMA’s Independent Study Office for scoring. To 

obtain credit for taking this course, you must successfully complete this 

examination with a score of 75 percent or above. You may take the Final 

Examination as many times as necessary. 

Principles of Emergency Management Page 2 
Unit 1: Course Introduction
UNIT 1 

COURSE 

INTRODUCTION

Introduction 

When an emergency or disaster strikes, you work as part of a complex 

emergency management network that calls upon many functions, 

resources, and capabilities. Your ability to function effectively relates to 

your understanding of how the emergency management system works 

and how your agency fits into the network. This course will present the 

fundamental emergency management principles and provide 

opportunities for you to apply what you learn. 

How to Complete This Course 

This independent study course is designed so that you can complete it on 

your own, at your own pace. Take a break after each unit, and give 

yourself time to think about the material, particularly how it affects your 

work and some of the situations you have encountered as an emergency 

management professional. 

On the other hand, this course may be done in a group setting guided by 

an instructor. This Independent Study can also be used in such groups. 

Principles of Emergency Management contains nine units. Each unit is 

described below. 

 Unit 1, Course Introduction, offers an overview of the course 

content. 

 Unit 2, Overview of the Integrated Emergency Management 

System, presents an overview of the integrated emergency 

management system. 

 Unit 3, The Emergency Management Cycle, describes the phases 

of the emergency management cycle. 

 Unit 4: The Plan as Program Centerpiece, focuses on communityspecific risks and describes the hazard analysis process, and links 

hazard analysis to the EOP. 

 Unit 5: Planning and Coordination, addresses resource 

requirements, how to supplement resources, the ICS-EOC interface, 

and the connection between planning and emergency management. 

Principles of Emergency Management Page 1.1 
UNIT 1: COURSE INTRODUCTION

How to Complete This Course (Continued) 

 Unit 6, Functions of an Emergency Management Program, 

presents the core functions of an emergency management program. 

 Unit 7, Emergency Management Program Participants, examines 

the role of the local emergency program manager and relationships 

with State and Federal emergency managers. 

 Unit 8, Applying Emergency Management Principles, provides 

practice in applying emergency management principles in a problemsolving activity. 

 Unit 9, Course Summary, summarizes the course content. At the 

conclusion of this unit, you will have an opportunity to evaluate the 

course and your success in meeting your personal learning goals. 

Activities

This course will involve you actively as a learner by including activities 

that highlight basic concepts. It will also provide you with guidance on 

actions required in specific situations through the use of case studies. 

These activities emphasize different learning points, so be sure to 

complete all of them. Compare your answers to the answers provided 

following each activity. If your answers are correct, continue on with the 

material. If your answers are incorrect, go back and review the material 

before continuing. 

Knowledge Checks

To help you know when to proceed to the next unit, Units 2 through 8 are 

followed by a Knowledge Check that asks you to answer questions that 

pertain to the unit content. The answers are given at the end of each 

knowledge check. When you finish each Knowledge Check, check your 

answers, and review the parts of the text that you do not understand. Do 

not proceed to the next unit until you are sure that you have mastered the 

current unit. 

Appendix

In addition to the nine units, this course includes an appendix that 

contains an acronym list. 

Principles of Emergency Management Page 1.2
UNIT 1: COURSE INTRODUCTION

How to Complete This Course (Continued) 

Final Examination

This course includes a written examination, which you must complete and 

return to FEMA’s Independent Study Office for scoring. To obtain credit 

for taking this course, you much successfully complete this examination 

with a score of 75 percent or above. You may take the final examination 

as many times as necessary. 

When you have completed all of the units, take the final examination 

online or use the answer sheet provided. EMI will score your test and 

notify you of the results. 

Sample Learning Schedule

Complete this course at your own pace. If you are working 

independently, you should be able to finish the entire course—including 

knowledge checks, activities, and the final examination—in approximately 

10 hours. This following learning schedule is only an example, intended 

to show relative times devoted to each unit. 

Unit Suggested Time

Unit 1: Course Introduction 

Unit 2: Overview of the Integrated Emergency 

Management System 

Unit 3: The Emergency Management Cycle 

Unit 4: Roles of Key Participants 

Unit 5: The Plan as Program Centerpiece 

Unit 6: Planning and Coordination 

Unit 7: Functions of an Emergency Management 

Program 

Unit 8: Applying Emergency Management Principles 

Unit 9: Course Summary 

 30 minutes 

 60 minutes 

 60 minutes 

 60 minutes 

 90 minutes 

120 minutes 

 60 minutes 

 60 minutes 

 30 minutes 

Principles of Emergency Management Page 1.3
UNIT 1: COURSE INTRODUCTION

Unit 1 Objectives 

After completing this unit, you should be able to: 

 Relate the topics to your job and community. 

 Determine a strategy for completing the course successfully. 

Course Objectives 

This course is designed to introduce you to the fundamentals of 

emergency management. At the conclusion of this course, you should be 

able to: 

 Organize emergency management functions, organizations, and 

activities using concepts and terms explained in the course. 

 Explain the all-hazard emergency management process that 

integrates the resources of local, tribal, State, and Federal 

governments and voluntary and business assets. 

 Explain the local, tribal, State, Federal, and citizen roles in 

emergency management. 

 Explain what citizens can do to protect themselves in emergencies. 

 Describe the elements of an emergency management program. 

 Discuss the role of individuals and organizations, as well as their 

relationships with one another, in emergency management. 

 Explain the importance of networking to emergency management. 

 Explain the social, political, and economic implications of a disaster. 

 Recognize opportunities for self-help and empowerment in 

emergency management. 

 Describe alternate models for organizing emergency management 

programs. 

Principles of Emergency Management Page 1.4
UNIT 1: COURSE INTRODUCTION

Case Study Case Study: Tornado In Barneveld, Wisconsin 

The case study on the following pages illustrates the need for emergency 

management. Read the case study and answer the questions that follow. 

On June 8, 1984, at 12:50 a.m., a devastating tornado struck the small village of Barneveld, 

Wisconsin. Although a tornado watch was in effect, no warning was issued because the 

tornado originated near the town. The town, which had approximately 580 residents, was 

literally flattened by winds in excess of 200 miles an hour. Casualties add up about 11% of the 

population: 9 lives were lost and 57 persons were treated for injuries. The storm destroyed 120 

homes, 11 businesses, the village elementary school, 5 churches, and all of the municipal 

buildings, including a new fire station and the equipment in it. The village was left without 

electricity, telephone service, or water. Damage was estimated at over $20 million. 

The local power company was in radio contact with the sheriff’s office within 5 minutes and was 

moving trucks into the area within 40 minutes, encountering such hazardous conditions as 

exposed fuel oil and LP tanks. The telephone company set up an emergency bank of phones. 

Both companies needed several days to complete repairs. A command post was established to 

coordinate emergency operations. Local officials immediately began to clear debris from the 

stricken area. Police, fire, and emergency medical personnel concentrated their efforts on 

search and rescue operations for those who were trapped in collapsed structures. The village 

was evacuated to another town where congregate care was set up by the Red Cross, which 

also assisted in preliminary damage assessment. 

The town received State assistance immediately. The State patrol directed traffic and assisted 

in securing portions of the affected area, and the National Guard assisted in security and law 

enforcement, as well as emergency operations. The Department of Natural Resources assisted 

in security, traffic control, and recovery operations. The State Department of Health and Social 

Services supported the county social service offices, which were quickly overwhelmed with 

requests for assistance. The State response was coordinated through the EOC, which was also 

dealing with other tornado damage. 

The State requested Federal assistance on June 9, and it was granted. The disaster assistance 

center was located 20 miles from the town to serve victims in other locations as well. Because 

few residents had cars in working order, transportation to the center was difficult. Many 

residents were angered to find that emergency loans required several months to process. 

Having no way to earn a living, many left the village. 

The after-action plan noted that the county had no plan for debris removal, and that 

combustibles and noncombustibles should have been separated. There was no plan for a 

systematic turn-off of gas or for identification of hazardous materials and toxic substances. 

There was no plan designating who would be in charge of cleanup, although the highway 

commissioner eventually took this role. The best site for disposal had not been predesignated. 

With 20-20 hindsight, officials realized that each county’s emergency program manager should 

identify landfills in advance and mark out procedures for getting burning permits. 

Principles of Emergency Management Page 1.5
UNIT 1: COURSE INTRODUCTION

Case Study: Tornado In Barneveld, Wisconsin 

The town also lacked a plan to coordinate volunteer agencies. While there were many 

volunteers, no one was clearly in charge. 

While our case study has focused on short-term effects, such a disaster can shatter a local 

economy and change the lives of residents for years. The emotional damage of living through 

such a disaster is less obvious than the physical devastation, but no less real. Providing 

emotional support to residents and helping them reconstruct their lives, including the economic 

base for their community, is a critical part of the recovery phase of any such emergency. 

1. What effects can an emergency have on a small community—in this case, Barneveld, 

Wisconsin? 

2. What kinds of emergency services are needed during and after an emergency? 

3. What effects do emergency planning activities have on the response to a disaster such as 

the tornado and recovery from it? 

Principles of Emergency Management Page 1.6
UNIT 1: COURSE INTRODUCTION

Your Place in the Emergency Management System 

Normally, you work in a setting where day-to-day responsibilities are clear 

and lines of communication are well-established through experience. 

However, you also are part of a complex network of people and 

organizations responsible for dealing with emergencies in your local 

community. It is important that when the need arises, you know where 

you fit into that network and how to work within it. 

Principles of Emergency Management Page 1.7
UNIT 1: COURSE INTRODUCTION

Case Study Case Study: Hazardous Chemical Release 

The case study that follows will help you think about where you fit into 

your community’s emergency management network. Read the following 

description of a hazardous chemical release. 

Think about what your role might be in such an incident. Your community 

may be exposed to a similar risk from hazardous chemical spills because 

of nearby rail lines, highways, or chemical plants or you may have 

responded to a similar incident. 

When you have finished reading the case study, answer the questions 

that follow. 

A freight train derailed in the upper Midwest in January 2002, in a county with a population of 

60,000. Fifteen of the cars on the train contained anhydrous ammonia. (Anhydrous means 

“without water.” Anhydrous ammonia seeks water from any source—even the human body. 

The compound will, therefore, seek the moisture in the eyes, nose, mouth, and lungs, causing 

caustic burns as it dissolves into body tissue. Inhaling large amounts of anhydrous ammonia 

will cause swelling of the throat and suffocation. Anhydrous ammonia is transported as a liquid 

under pressure.) 

When the train derailed, eight of the fifteen cars ruptured, causing an explosion of the 

pressurized chemical. The force of the explosion sent one piece of a car slicing into a house a 

mile away. The blast caused the release of 240,000 to 290,000 gallons of anhydrous ammonia 

gas—the largest release in the world to date. 

The incident occurred at 3:00 AM, when warning systems that rely on radio or television 

transmission fail to alert most people. Any evacuation attempt would have exposed residents to 

greater hazard. As a result, they were initially advised to shelter in their homes. Eventually 21 

homes were evacuated. One resident died while attempting to leave the area. Approximately 

one third of a nearby city was also affected, but residents were not able to evacuate. Those 

affected were advised to shelter in place. 

There were also some delays in activating responders, who could not enter the accident vicinity 

without proper gear. Fire-fighting gear does not offer adequate protection. One responder was 

trapped after he drove into a ditch trying to leave the scene because his vehicle windshield was 

coated with frozen gas in the toxic cloud. The responder was rescued some time later. 

Residents were told to turn off their furnaces to avoid drawing outside air into their homes. 

Public heath was a major concern. Approximately 400 patients were processed through 

hospitals. 

Principles of Emergency Management Page 1.8
UNIT 1: COURSE INTRODUCTION

Case Study: Hazardous Chemical Release (Continued) 

Media attention was intense. Citizens needed public information on treating exposure 

symptoms, cleaning homes, and dealing with exposed pets and livestock. Many horses, being 

especially sensitive to airborne contaminants, died. 

The cause for the derailment is still unknown, but was probably a faulty rail or wheel on the 

train. Possible sabotage has not been ruled out. 

Principles of Emergency Management Page 1.9
UNIT 1: COURSE INTRODUCTION

Activity Activity: Where Do I Fit? 

Many agencies are involved in such an incident. Emergency 

management, fire and police departments from different jurisdictions, 

voluntary agencies, emergency medical and health officials, and 

environmental agencies are among those to respond or deal with the 

aftermath of a hazardous materials release, such as that described in the 

scenario. 

Think about what your department or agency would have done if the 

derailment and subsequent chemical release had happened in your 

community, and answer the questions below. 

1. What role would your agency, department, or organization play during 

and after this incident? 

2. What types of duties would you be likely to perform? 

3. Name three points of contact who would be important to completing 

your responsibilities successfully during and after such an incident in 

your community. 

Principles of Emergency Management Page 1.10
UNIT 1: COURSE INTRODUCTION

Summary and Transition 

This unit provided an overview of the course content and asked you to 

think about where you fit in your community’s emergency management 

system. Unit 2 presents an overview of the integrated emergency 

management system. 

Principles of Emergency Management Page 1.11
Unit 2: Overview of the 

Integrated Emergency 

Management System
UNIT 2 

OVERVIEW OF THE 

INTEGRATED 

EMERGENCY 

MANAGEMENT 

SYSTEM

Introduction and Unit Overview

This unit will provide an overview of an integrated emergency 

management system, and where you fit within the system. 

After completing this unit, you should be able to: 

 Describe the integrated emergency management system and what 

the system should do. 

 Define emergency management concepts and terms. 

 Identify the players in the emergency management network. 

 Describe the roles of the key players in the emergency management 

system. 

 Identify the location of the emergency management function within 

their local government. 

Principles of Emergency Management Page 2.1 
UNIT 2: OVERVIEW OF THE INTEGRATED EMERGENCY MANAGEMENT SYSTEM

Why an Integrated Emergency Management System? 

When an emergency or disaster occurs: 

 Personnel from different agencies, jurisdictions, and governmental 

levels need to work together. 

 Quick decisions are required. 

Without planning and coordination, emergency operations can suffer from 

serious misdirection. To facilitate rapid, efficient emergency operations, a 

system is required that enables all participants in the incident to work 

together. An integrated emergency management system is a 

conceptual framework to increase emergency management capability by 

networking. That increased capability would not be readily available, 

especially in a disaster, without establishing prior networking, 

coordination, linkages, interoperability, partnerships, and creative thinking 

about resource shortfalls. The system should address all hazards that 

threaten a community, be useful in all four phases of emergency 

management, seek resources from any and all sources that are 

appropriate, and knit together all partnerships and participants for a 

mutual goal. 

Emergency Management Concepts and Terms 

Many emergency management terms are used throughout this course. 

To avoid confusion, this course establishes a single definition for each 

term. These may differ from how you use the terms in your community. 

For clear reference during the course, however, please use the definitions 

on the pages that follow. 

Disaster: A dangerous event that causes significant human and 

economic loss and demands a crisis response beyond the scope of local 

and State resources. Disasters are distinguished from emergencies by 

the greater level of response required. 

The Stafford Act defines a major disaster that can result in Federal 

assistance. 

Principles of Emergency Management Page 2.2
UNIT 2: OVERVIEW OF THE INTEGRATED EMERGENCY MANAGEMENT SYSTEM

Emergency Management Concepts and Terms (Continued) 

 “Major disaster’ means any natural catastrophe (including any 

hurricane, tornado, storm, high water, winddriven water, tidal wave, 

tsunami, earthquake, volcanic eruption, landslide, mudslide, 

snowstorm, or drought) or, regardless of cause, any fire, flood, or 

explosion, in any part of the United States, which in the 

determination of the President, causes damage of sufficient 

severity and magnitude to warrant major disaster assistance under 

this Act to supplement the efforts and available resources of State 

and local governments, and disaster relief organizations in 

alleviating the damage, loss, hardship, or suffering caused 

thereby.”

Emergency: A dangerous event that normally can be managed at the 

local level. The Robert T. Stafford Disaster Relief and Emergency 

Assistance Act, 42 USC 5121, et seq., as amended by the Disaster 

Mitigation Act of 2000, Pub L. No. 106-390, 114 Stat. 1552 (2000) (the 

Stafford Act) defines an emergency that can result in Federal assistance. 

“‘Emergency’ means any occasion or instance for which, in the 

determination of the President, Federal assistance is needed to 

supplement State and local efforts and capabilities to save lives 

and to protect property and public health and safety, or to lessen or 

avert the threat of a catastrophe in any part of the United States.”

Note: Your State Governor can request and receive Federal assistance 

for some severe emergencies. 

Emergency Management: Organized analysis, planning, decisionmaking, and assignment of available resources to mitigate, prepare for, 

respond to, and recover from the effects of all hazards. 

The goals of emergency management are to: 

 Save lives. 

 Prevent injuries. 

 Protect property and the environment. 

Hazard: A dangerous event or circumstance that has the potential to 

lead to an emergency or disaster. Natural hazards are caused by 

natural events that pose a threat to lives, property, and other assets. 

Technological hazards are caused by the tools, machines, and 

substances we use in everyday life. Intentional hazards, such as 

terrorism or riots, are deliberately caused by people attacking or 

damaging what is valuable in a society. 

Principles of Emergency Management Page 2.3
UNIT 2: OVERVIEW OF THE INTEGRATED EMERGENCY MANAGEMENT SYSTEM

Partners in the Coordination Network 

Effective response to and recovery from an emergency or disaster 

requires the active involvement of numerous partners. 

Government Partners

Each level of government participates in and contributes to emergency 

management. 

 Local government has direct responsibility for the safety of its 

citizens, knowledge of the situation and accompanying resource 

requirements, and proximity to both event and resources. Within 

local government are Emergency Support Services—the departments 

of local government that are capable of responding to emergencies 

24 hours a day. They include law enforcement, fire/rescue, and public 

works. They may also be referred to as emergency response 

personnel or first responders. 

 State government has legal authorities for emergency response and 

recovery and serves as the point of contact between local and 

Federal governments. 

 Federal government has legal authorities; fiscal resources; research 

capabilities, technical information and services; and specialized 

personnel to assist local and State agencies in responding to and 

recovering from emergencies or disasters. 

Organizations at all three government levels can share their knowledge 

and resources with nongovernmental service providers. For example: 

 At the local level, first-response agencies share information about 

injuries with local medical providers. Information about those who 

are left homeless from a disaster is shared with The American Red 

Cross and other community service organizations. 

 At the State level, the Governor’s Authorized Representative (GAR) 

and others share information with State agencies (e.g., Department 

of Agriculture) and FEMA regional representatives to bring the 

necessary response and recovery resources to bear on the incident. 

 At the Federal level, FEMA has the capability to draw on the 

resources of 27 Federal Agencies (including The American Red 

Cross) to provide response and recovery assets and technical 

information to assist State and local governments. 

Principles of Emergency Management Page 2.4
UNIT 2: OVERVIEW OF THE INTEGRATED EMERGENCY MANAGEMENT SYSTEM

Partners in the Coordination Network (Continued) 

Private Sector Partners

Government agencies are responsible for protecting the lives and 

properties of their citizens and promoting their wellbeing. But the 

government does not—and cannot—work alone. 

In all facets of emergencies and disasters, the government works with 

private-sector groups as partners in emergency management. 

The term private sector includes non-profit organizations that offer 

critical emergency services, such as The American Red Cross, as well as 

businesses that have resources to contribute. 

Together, government agencies and the private sector form a 

partnership. This partnership begins at the grassroots level, depending 

on the local and State resources that are in place, to provide the 

backbone for disaster management. Humanitarian and volunteer 

organizations also are essential to the team. 

The private sector (both for-profit and non-profit entities): 

 Bears the greatest casualties and costs of emergencies. 

 Provides voluntary expertise and support for emergency 

management. 

The private sector makes its concerns known to the government, and 

holds the government accountable for actions taken or not taken. 

Regardless of government accountability, communities could not respond 

to or recover from emergencies or disasters without the assistance of and 

cooperation from the private sector. 

Private Citizens as Partners

Although not formally a part of emergency management, private citizens 

play an important role in the overall emergency management process. 

Private citizens can contribute by: 

 Reducing hazards in and around their homes. By taking simple 

actions, such as raising utilities above flood levels or taking in objects 

that could become projectiles in a high wind, citizens can reduce the 

amount of damage caused by an emergency or disaster event. 

Principles of Emergency Management Page 2.5
UNIT 2: OVERVIEW OF THE INTEGRATED EMERGENCY MANAGEMENT SYSTEM

Partners in the Coordination Network (Continued) 

 Preparing a disaster supply kit. By assembling disaster supplies in 

advance of an event, citizens can take care of themselves until firstresponders arrive. (See the recommended disaster supplies list in 

Appendix C to this course.) 

 Monitoring emergency communications carefully. Throughout an 

emergency situation, critical information and direction will be released 

to the public via electronic and other media. By listening and 

following these directions carefully, citizens can reduce their risk of 

injury, keep emergency routes open to response personnel, and 

reduce demands on landline and cellular communication. 

 Volunteering with an established organization. Organizations and 

agencies with a role in emergency response and recovery are always 

seeking hard-working, dedicated volunteers. By volunteering with an 

established voluntary agency, citizens can become part of the 

emergency management system and assure that their efforts are 

directed to where they are most needed. 

 Taking training in emergency response. Taking training in 

emergency response, whether the training is basic first aid through 

The American Red Cross or a more complex course through a local 

community college, will enable citizens to take initial response actions 

required to take care of themselves and their families, thus freeing 

first-response personnel to respond to higher-priority incidents that 

affect the entire community. 

Community Emergency Response Team (CERT) training is one way for 

citizens to prepare for an emergency. CERT is designed to prepare 

citizens to help themselves, their families, and their neighbors in the 

event of a catastrophic disaster. Because emergency services personnel 

may not be able to help everyone immediately, citizens can make a 

difference by using the training obtained in the CERT course to save lives 

and protect property. 

Principles of Emergency Management Page 2.6
UNIT 2: OVERVIEW OF THE INTEGRATED EMERGENCY MANAGEMENT SYSTEM

Partners in the Coordination Network (Continued) 

This training covers basic disaster survival and rescue skills that are 

important to have in a disaster when emergency services are not 

available. Some of the topics covered are: 

• Disaster preparedness—anticipating the impact on an 

infrastructure, safety precautions during a disaster, and the role 

of CERTs in disaster response. 

• Basic fire safety—identifying and reducing potential fire hazards, 

how to evaluate fires, and firefighting resources and techniques 

(e.g., use of portable fire extinguishers). 

• Disaster medical operations—principles of triage, assessment of 

injuries, and treatment. 

• Light search and rescue operations—priorities and resources; 

lifting, cribbing, and victim removal; and rescuer safety. 

• Disaster psychology team organization—the psychological 

impact of a disaster on rescuers and victims, and how to provide 

psychological “first aid.”

Additional courses of interest are available through FEMA’s 

Emergency Management Institute home study program 

(www.fema.gov/emi). Your State may also offer training opportunities 

through its Emergency Management Agency. 

Principles of Emergency Management Page 2.7
UNIT 2: OVERVIEW OF THE INTEGRATED EMERGENCY MANAGEMENT SYSTEM

Activity Activity: Partners in the Coordination Network 

The purpose of this activity is to ensure that you understand the functions 

of key participants in emergency management. 

For each participant in Column A, choose a description from Column B. 

Matching Participant to Description 

1. ____ Emergency support services 

2. ____ Private sector 

3. ____ Local government 

4. ____ State government 

5. ____ Federal government 

a. Acts as a liaison between local and Federal 

authorities 

b. Includes law enforcement, fire/rescue, and public 

works 

c. May offer fiscal resources, technical assistance, and 

specialized personnel 

d. Has proximity to the event and resources 

e. Experiences the greatest casualties and costs of 

disasters 

Principles of Emergency Management Page 2.8
UNIT 2: OVERVIEW OF THE INTEGRATED EMERGENCY MANAGEMENT SYSTEM

Answers Activity: Emergency Management Participants (Continued) 

1. b 

2. e 

3. d 

4. a 

5. c 

Principles of Emergency Management Page 2.9
UNIT 2: OVERVIEW OF THE INTEGRATED EMERGENCY MANAGEMENT SYSTEM

Emergency Management in Local Government 

Resources for an integrated emergency management system include 

both personnel and equipment. 

Personnel resources in your area include: 

 Elected and appointed officials and executives. 

 Emergency program managers. 

 Emergency operations staff. 

 Police and fire departments. 

 Other local service providers, such as the local council on aging and 

public works agency. 

 Voluntary organizations such as The American Red Cross and The 

Salvation Army. 

An integrated emergency management system links these personnel 

resources through: 

 Planning.

 Direction.

 Coordination.

 Clearly defined roles and functions. 

A successful emergency management program facilitates the 

development of a network of relationships among local officials and staff 

who understand their roles and are able to act when needed. 

The organizational placement of emergency management affects the way 

that relationships are developed. 

Principles of Emergency Management Page 2.10
UNIT 2: OVERVIEW OF THE INTEGRATED EMERGENCY MANAGEMENT SYSTEM

Emergency Management in Local Government (Continued) 

Where is the emergency management function in your local government’s 

organization chart? Some options include placing it within: 

 A separate organization that reports directly to a governing or 

executive body. 

 The fire/rescue department. 

 Law enforcement, located in a police department or sheriff’s office. 

Separate Emergency Management Organization

An advantage of working within a separate organization is that the 

perception of bias is minimized. The emergency management function 

may become more visible and have increased access within local 

government. 

A disadvantage of working within a separate organization is that the 

emergency management staff must work to build rapport and avoid 

becoming isolated. Also, emergency management may become more 

directly involved in local political issues than if it were a fire or law 

enforcement function. 

Placement Within Fire/Rescue or Law Enforcement Departments

These agencies are among the traditional first responders to 

emergencies and disasters, so placing the emergency manager within a 

first-response agency is logical. 

An advantage of working within a first-response agency is that being 

close to the day-to-day operations of law enforcement or fire personnel 

builds personal relationships that pay off in coordination when developing 

and maintaining an emergency management program. 

A disadvantage of working within a first-response agency is that 

association with one or another of these basic services may hamper 

coalition-building efforts if others perceive the emergency management 

staff as owing allegiance to its own service. 

Principles of Emergency Management Page 2.11
UNIT 2: OVERVIEW OF THE INTEGRATED EMERGENCY MANAGEMENT SYSTEM

Activity Activity: Where Is Emergency Management in My Community? 

This activity will provide you with an opportunity to explore the emergency 

management functions in your community. Please take some time to 

research your local emergency management functions. Then, answer the 

questions below. 

1. The local emergency management function is located 

(organizationally): 

F As part of the fire department. 

F As part of law enforcement. 

F As an independent agency. 

2. Who is the local emergency manager? 

3. To whom does the emergency manager report? 

4. What are the advantages and disadvantages of this reporting 

relationship? Also, think about recent emergency responses. How 

do you think the emergency management’s organization facilitated 

that response? 

Principles of Emergency Management Page 2.12
UNIT 2: OVERVIEW OF THE INTEGRATED EMERGENCY MANAGEMENT SYSTEM

Summary and Transition 

This unit described the fundamentals of an Integrated Emergency 

Management System, and who is involved in making the system work. 

Unit 3 will explore the phases of emergency management. 

Reference

Library For More Information 

 The CERT program: 

http://training.fema.gov/EMIWeb/cert/mtris.htm

 Disaster Information for Citizens: 

www.fema.gov/pubs

 The Stafford Act: 

http://fema.gov/r-n-r/pa/papd/105.htm

Principles of Emergency Management Page 2.13
UNIT 2: OVERVIEW OF THE INTEGRATED EMERGENCY MANAGEMENT SYSTEM

Check Knowledge Check 

Carefully read each question and all of the possible answers before selecting the most 

appropriate response for each test item. Circle the letter corresponding to the answer you have

chosen. 

1. A(n)_______________is defined as a dangerous event or circumstance that has the 

potential to lead to an emergency or disaster: 

a. Hazard 

b. Chemical spill 

c. Emergency activation 

d. Drought 

e. Power outage 

2. In emergency management, personnel are considered one type of resource. 

a. True 

b. False 

3. One goal of emergency management is to: 

a. Predict and minimize damage resulting from earthquakes. 

b. Conduct exercises based on simulated incidents. 

c. Supplement State and local efforts and capabilities. 

d. Identify hazards. 

e. Prevent injuries resulting from hazards. 

4. A local emergency manager and staff often serve as a function of which department in the 

local government? 

a. Finance department 

b. Public works department 

c. Planning commission 

d. Fire/rescue service 

e. Volunteer coordination office 

5. An emergency management program will work well in practice if most emphasis and 

attention focus upon ___________________. 

a. A comprehensive written plan 

b. Well-established, day-to-day relationships 

c. Reliance on State assistance 

d. Mutual aid 

Principles of Emergency Management Page 2.14
UNIT 2: OVERVIEW OF THE INTEGRATED EMERGENCY MANAGEMENT SYSTEM

Answers Knowledge Check (Continued) 

1. a

2. a 

3. d 

4. d 

5. b 

Principles of Emergency Management Page 2.15
Unit 3: The Emergency 

Management Cycle
UNIT 3 

THE EMERGENCY 

MANAGEMENT 

CYCLE

Introduction and Unit Overview

This unit examines the four phases of the emergency management cycle. 

After completing this unit, you should be able to: 

 Describe the four phases of the emergency management cycle. 

 Identify measures that the community and citizens can take in 

connection with each of the four phases. 

 Describe the planning activities and documents that pertain at the 

local, State, and Federal levels. 

 Identify the types of assistance that may be available from the 

Federal government. 

Introduction to the Emergency Management Cycle 

An emergency management program examines potential emergencies 

and disasters based on the risks posed by likely hazards; develops and 

implements programs aimed toward reducing the impact of these events 

on the community, prepares for those risks that cannot be eliminated; and 

prescribes the actions required to deal with the consequences of actual 

events and to recover from those events. 

Emergency activities are divided into four phases that form a cycle. The 

phases of the cycle are: 

 Mitigation—Taking sustained actions to reduce or eliminate long-term 

risk to people and property from hazards and their effects. 

 Preparedness—Building the emergency management function to 

respond effectively to, and recover from, any hazard. 

 Response—Conducting emergency operations to save lives and 

property by taking action to reduce the hazard to acceptable levels 

(or eliminate it entirely); evacuating potential victims; providing food, 

water, shelter, and medical care to those in need; and restoring 

critical public services. 

Principles of Emergency Management Page 3.1
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Introduction to the Emergency Management Cycle (Continued) 

 Recovery—Rebuilding communities so that individuals, businesses, 

and governments can function on their own, return to normal life, and 

protect against future hazards. 

Following the emergency, we learn how to mitigate, prepare, and respond 

better. As we revise our efforts, the cycle repeats. 

The illustration at the top of the next page provides a simplified picture of 

the emergency management cycle. Phases often overlap to fit individual 

situations and events. 

Each of the phases will be described in more detail in the next sections. 

Principles of Emergency Management Page 3.2
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Mitigation 

As the costs of disasters continue to rise, it is necessary to take sustained 

action to reduce or eliminate the long-term risk to people and property 

from hazards and their effects. These sustained actions are also known 

as mitigation.

Mitigation is the initial phase of emergency management and should be 

considered before a disaster or emergency occurs. Mitigation, however, 

should also be a continuing activity that is integrated with each of the 

other phases of emergency management to employ a long-range, 

community-based approach to mitigation. 

The goals of mitigation activities are to: 

 Protect people and structures. 

 Reduce the costs of response and recovery. 

Mitigation is accomplished in conjunction with a hazard analysis (which 

will be covered in Unit 4). A hazard analysis helps to identify: 

 What events can occur in and around the community. 

 The likelihood that an event will occur. 

 The consequences of the event in terms of casualties, destruction, 

disruption to critical services, and costs of recovery. 

To be successful, mitigation measures must be developed into an overall 

mitigation strategy that considers ways to reduce hazard losses 

together with the overall risk from specific hazards and other community 

goals. 

Principles of Emergency Management Page 3.3
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Mitigation (Continued) 

Developing a Mitigation Strategy

A sound mitigation strategy is one that is based on several factors: 

 Prevention measures are intended to prevent existing risks from 

becoming worse based on new development or other changes within 

the community (e.g., road construction, zoning or building code 

changes). Prevention measures can be very effective in areas that 

have not been developed or are in an early phase of development. 

By implementing prevention measures, such as open space 

preservation and storm water management, future development can 

be directed in such a way as to minimize the risk from known hazards 

while maintaining other community goals and the overall quality of life 

in the community. 

 Property protection measures are used to modify buildings or their 

surroundings to reduce the risk of damage from a known hazard. 

Property protection measures directly protect people and property at 

risk and may be simple and relatively low cost (e.g., raising utilities or 

strapping water heaters) or they may be more elaborate and 

expensive (e.g., acquiring land and using that land for recreational 

purposes or building earthquake-resistant structures in earthquake 

zones). 

 Natural resource protection measures are used to reduce the 

consequences of a known hazard and to improve the overall quality 

of the environment. Natural resource protection measures can range 

from erosion and sediment control to wetlands protection to 

controlling runoff from farmland sediment into downstream 

waterways. 

 Emergency services measures protect people before and after an 

event occurs and may include: 

• Warning. 

• Response. 

• Protective measures for critical facilities. 

• Maintenance of health and safety. 

To be effective, emergency protective measures should be built into the 

emergency planning process, exercised, and revised to incorporate 

lessons learned from both exercises and actual emergencies. 

Principles of Emergency Management Page 3.4
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Mitigation (Continued) 

 Structural projects directly protect people and property that are at risk 

from a known hazard. Structural projects involve the construction of 

man-made structures (e.g., dikes, levees, elevated roadways) to 

control the damage from a known hazard. These projects can be 

very expensive, and over the long-term, may actually disrupt the 

environment in such a way as to increase the overall risk from other 

hazards. Additionally, some structural mitigation measures may 

provide the public with a false sense of security, especially in the 

case of an extreme event, such as the Midwest floods, during which 

many levees were breached by the flood waters. 

 Public information serves to inform and remind people about the 

hazards they face and measures they should take to avoid damage 

or injury. Public information measures may include: 

• Outreach projects. 

• Real estate disclosure requirements. 

• Technical assistance. 

• Education programs. 

The mitigation strategy developed must consider the hazards faced, the 

potential for damage from those hazards, and the overall needs of the 

community. Mitigation measures must be consistent with the strategy but 

can be effective only if considered as part of the larger emergency 

management cycle. 

Mitigation measures can be developed and implemented at the local or 

State level. Two examples of mitigation measures that have been cited 

for their effectiveness are included below. 

Principles of Emergency Management Page 3.5
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Mitigation (Continued) 

Hazard Minimization Program: State of Massachusetts 

The Hazard Minimization Program was instituted in November 1991, as a way to reduce 

repetitive losses from disasters. The program funds mitigation measures, such as basement 

window replacement and installation of interior flood walls as a way of reducing repetitive losses 

from flooding. To be eligible for the minimization program, individuals or families must have 

suffered a loss that can be minimized through a one-time mitigation measure. 

Following a major storm in December 1992, the State conducted a survey to measure the 

program’s success. Of the 71 homeowners who responded to the survey, 49 (69 percent) 

indicated that they had homes exposed to floodwaters from the storm, but only 3 (less than 1 

percent) were affected by the floodwaters. 

Of the three homes affected by the floodwaters, only one case related to a failed minimization 

project. During a follow-up survey, most participants stated that they would have been affected 

by the storm had minimization measures not been undertaken. These survey results indicated 

that the program could have a major impact on reducing future storm losses, both in terms of 

human suffering and in taxpayer dollars saved. 

Hazard Mitigation Program: Borough of Avalon, Cape May County, New Jersey

The Borough of Avalon, Cape May County, New Jersey developed a mitigation strategy 

designed to minimize the impact of storm damage through the implementation of structural and 

nonstructural mitigation projects. Projects completed under the program included: 

 Developing flood-level maps and installing flood-level indicators at specific points in the 

borough. These maps were then mass-mailed, together with a letter of explanation, to all 

borough residents. 

 Preparing and distributing a quarterly newsletter to inform residents of emergency 

management proposals, such as evacuation routes, dredging and beach-fill projects, and 

shelter locations. 

 Preparing a hazard mitigation plan for the borough, including goals and objectives, proposed 

measures, programs, and actions to avoid vulnerability to hazards and overall beach 

protection strategies. 

 Conducting educational seminars in the borough on measures, procedures, and problems 

related to severe weather emergencies; distributing informational material; and creating an 

instructional videotape. 

 Adopting land use and development ordinances and funding appropriations for property 

development restrictions; maintaining beaches, including installing sand fencing, planting 

dune grass, and implementing beach renourishment projects. 

Principles of Emergency Management Page 3.6
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Mitigation (Continued) 

Hazard Mitigation Program: Borough of Avalon, Cape May County, New Jersey

(Continued) 

 Elevating the municipal building, police headquarters, and public works garage above the 

base flood elevation. 

 Installing a boroughwide public address warning system that includes television access 

through the local cable television company. 

This strategy was awarded First Place for municipalities by the 1993 National Coordinating 

Council on Emergency Management. 

Source: Partnerships in Preparedness: A Compendium of 

Exemplary Practices in Emergency Management, 

Federal Emergency Management Agency, 

December 1995 

Principles of Emergency Management Page 3.7
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Activity Activity: Identifying Mitigation Measures 

This activity will provide you with an opportunity to identify mitigation 

measures in the community or in your home that will reduce or eliminate 

future damage from a high-risk hazard. To complete this activity, read 

and answer each of the questions below.

1. What is the hazard for which your community or home is at highest 

risk? 

2. What type(s) of damage is/are likely to occur if an event involving the 

selected hazard occurs? 

3. What steps can be taken to reduce damage from this hazard? 

4. How will you know if the mitigation efforts have been successful? 

Principles of Emergency Management Page 3.8
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Preparedness 

Because it is not possible to mitigate completely against every hazard 

that poses a risk, preparedness measures can help to reduce the impact 

of the remaining hazards by taking certain actions before an emergency 

event occurs. Preparedness includes plans or other preparations made 

to save lives and facilitate response and recovery operations. 

Preparedness measures involve all of the players in the integrated 

emergency management system—local, State, and Federal agencies and 

citizens—and, at the local level, may include activities, such as: 

 Developing an Emergency Operations Plan (EOP) that addresses 

identified hazards, risks, and response measures. 

 Recruiting, assigning, and training staff who can assist in key areas 

of response operations. 

 Identifying resources and supplies that may be required in an 

emergency. 

 Designating facilities for emergency use. 

Principles of Emergency Management Page 3.9
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Preparedness (Continued) 

The EOP

Generally, the EOP describes how the community (or State) will do 

business in an emergency. The EOP: 

 Assigns responsibility to organizations and individuals for carrying out 

specific actions that exceed the capability or responsibility of any 

single agency. 

 Establishes lines of authority and organizational relationships, and 

shows how all actions will be coordinated. 

 Describes how people and property will be protected in emergencies 

and disasters. 

 Identifies personnel, equipment, facilities, supplies, and other 

resources that can be made available—within the jurisdiction or by 

agreement with other jurisdictions—for use during response and 

recovery operations. 

 Identifies steps to address mitigation concerns during response and 

recovery operations. 

Local government is responsible for attending to the public’s emergency 

needs. Therefore, the local EOP focuses on measures that are essential 

for protecting the public, including: 

 Warning and communications: How the local government will warn 

the public of an existing or impending emergency and communicate 

internally before, during, and after an event occurs. 

 Emergency public information: How government will communicate 

with the public before, during, and after an emergency occurs. 

Emergency public information is especially critical in light of the 

recent terrorism threat. Decisions about what to tell the public and 

when are critical to gaining a reasoned response from the public, 

providing confidence that the government is doing all it can to protect 

the public and control the situation, and—perhaps most importantly—

making the public into a response asset will be crucial. 

 Mass care: Where and for how long the public’s emergency needs, 

such as shelter and food distribution, will be accomplished. What 

facilities will be available, what supplies will be stocked, and how the 

supplies will be distributed are all covered under mass care in the 

EOP. 

Principles of Emergency Management Page 3.10
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Preparedness (Continued) 

 Health and medical care: How victims will be cared for, where, and 

by whom are addressed in the health and medical portion of the 

EOP. Special issues, such as decontamination, must also be 

addressed for hazardous materials and terrorist events. 

 Evacuation: What routes will be used if evacuation becomes 

necessary, special transportation or routing requirements (e.g., 

evacuating the disabled or making evacuation routes one way to 

accommodate increased traffic flow), and other issues dealing with 

emergency egress are all part of the evacuation portion of the EOP. 

States also have EOPs. State EOPs serve three main purposes: 

 To facilitate a State first response to certain emergencies. 

 To assist local jurisdictions during emergencies in which local 

response capabilities are overwhelmed. 

 To serve as a liaison with the Federal government in cases where 

Federal assistance is necessary and authorized. 

The State EOP establishes the framework within which local EOPs are 

created and through which the Federal government becomes involved in 

response and recovery operations. As such, the State government acts 

as the coordinating entity to ensure that all levels of government are able 

to respond to safeguard the well-being of its citizens. 

The Federal EOP is called the Federal Response Plan (FRP). When 

activated following a Presidentially declared emergency or disaster, the 

FRP enables FEMA to coordinate the efforts of 27 Federal agencies 

(including The American Red Cross) to assist State and local response 

and recovery efforts. The FRP is similar to local and State EOPs in terms 

of its overall goals, but the Federal government also can bring highly 

specialized resources to bear (e.g., Nuclear Emergency Support Teams 

(NEST), Metropolitan Medical Response Teams, and Urban Search and 

Rescue Task Force) on emergencies and disasters that are outside the 

response capabilities of local and State governments. 

More information on the EOPs as they relate to preparedness is included 

in Unit 5 of this course. 

Principles of Emergency Management Page 3.11
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Preparedness (Continued) 

Recruiting, Assigning, and Training Staff

During an emergency or disaster response, it may be necessary to assign 

personnel to jobs other than those that they normally perform. Some 

personnel may already be employed within the community, but others 

may be recruited specifically for service in emergencies. Regardless of 

employment status, these personnel must be recruited, assigned, and 

trained for their jobs before an emergency event occurs. Whenever 

possible, these persons should be included in exercises that enable them 

to practice the job under simulated emergency conditions so that, when 

an actual emergency occurs, they are ready to perform in their new 

capacities with little or no time lost in learning the job. 

Identifying Resources and Supplies

Identifying the resources and supplies that will be available for an 

emergency response is a crucial part of preparedness. Virtually all 

jurisdictions take an inventory of their personnel and equipment 

resources to determine what they have and compare it with what they 

may need in an emergency. Those gaps between on-hand resources 

and probable requirements can be filled in a number of ways. Among the 

most common are: 

 Mutual aid agreements with neighboring jurisdictions. Mutual aid 

agreements are formal, written agreements between jurisdictions that 

provide the conditions under which resource sharing can take place 

during an emergency. Mutual aid agreements are most common 

among fire departments and law enforcement agencies but may be 

developed to cover other resources and equipment (e.g., construction 

equipment) as well. 

 Standby contracts with suppliers of critical equipment and supplies. 

Standby contracts typically are made for equipment, such as dump 

trucks or other construction equipment, but are also used for 

supplies, such as plastic sheeting. Under a typical standby contract, 

the supplier agrees to provide an established quantity of an item at 

the unit cost in effect on the day before the emergency occurs. 

Standby contracts are a good way for local governments to meet their 

resource supply requirements without incurring the costs of 

stockpiling and without paying the rapidly increasing prices that often 

follow an emergency. 

Principles of Emergency Management Page 3.12
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Preparedness (Continued) 

In some large emergencies, State and Federal resources may be 

available. For example, the National Guard may be activated following 

an extremely heavy snow, in the case of wildfire, or following a terrorist 

incident. Federal resources, including Disaster Medical Assistance 

Teams (DMATs) and Disaster Mortuary Teams (DMORTs) may be 

activated following a mass-casualty incident. All requests for State and 

Federal resources must be processed through the State. 

Designating Facilities for Emergency Use

To ensure an effective and efficient response, certain facilities are 

designated as part of the emergency planning process. Typically, these 

facilities include: 

 The Emergency Operations Center (EOC), which is the central 

location from which all off-scene activities are coordinated. Senior 

elected and appointed officials are located at the EOC, as well as 

personnel supporting critical functions, such as operations, planning, 

logistics, and finance and administration. The key function of EOC 

personnel is to ensure that those who are located at the scene have 

the resources (i.e., personnel, tools, and equipment) they need for 

the response. In large emergencies and disasters, the EOC also acts 

as a liaison between local responders and the State. (Note that 

States operate EOCs as well and can activate them as necessary to 

support local operations. State EOC personnel report to the 

Governor and act as a liaison between local and Federal personnel.) 

 Shelters, which are used to house victims and first responders who 

are displaced by the event. Shelters should be designated before an 

event occurs, and the public should be aware of shelter locations and 

transportation routes from their neighborhoods or workplaces to the 

shelters. In most areas, The American Red Cross operates shelters 

and coordinates with the local volunteer program manager to ensure 

that sheltering needs are met. 

 Distribution centers, from which food and emergency supplies are 

made available to the public. In most areas, The American Red 

Cross, together with other local voluntary agencies, coordinate 

distribution centers. 

 Storage areas for specific types of equipment. Warehouses, supply 

yards, and other facilities that will be used as providers of the 

equipment necessary for a response should be designated as part of 

the planning process. 

Principles of Emergency Management Page 3.13
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Preparedness (Continued) 

Other facilities may also be designated in advance, based on the 

jurisdiction’s resources and the areas of the community that are likely to 

be affected. On-scene facilities, such as the Incident Command Post 

(ICP) and staging areas, typically are not designated in advance because 

of the requirement for close proximity to the incident site. 

Text Telephone (TTY) Alert: Lee County Division of Public Safety, Fort Myers, Florida 

TTY Alert is an emergency warning system for deaf and hard-of-hearing residents in northwest 

Florida. It is the first system of its kind in the United States. When an emergency occurs, the 

Lee County EOP sends out an alert to the TTY machines with information about the emergency 

and information about what to do to every registered TTY user in the county. If necessary, the 

system can target a specific area. TTY Alert also allows TTY users to access the system to 

obtain headline news, weather bulletins, and family disaster preparedness information. 

TTY Alert has been well received by the hearing-impaired community and has been recognized 

by the National Institute on Disabilities Rehabilitation Research. 

Local Emergency Management/Industry Partnership: St. Charles Parish, Louisiana 

The local emergency management/industry partnership program offers a telephone hotline 

system to coordinate response to disasters and emergencies. The program was established by 

the St. Charles Parish EOC in cooperation with 26 petrochemical companies. The system 

serves as a 24-hour warning system, an emergency information exchange, and a link between 

the companies and the parish Department of Emergency Preparedness for support during 

emergencies. 

This system has been recognized by the Chemical Manufacturers Association as a model of 

government–industry cooperation. 

Source: Partnerships in Preparedness: A Compendium of 

Exemplary Practices in Emergency Management, Federal Emergency Management Agency, 

December 1995 

Preparedness covers a range of activities and can be taken at all levels of 

government. Some examples that have been cited as being particularly 

effective for citizens are shown on the next page. 

Principles of Emergency Management Page 3.14
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Preparedness (Continued) 

Citizen Preparedness

Private citizens can and should also prepare for emergencies. There are 

several simple steps that you, as a citizen, can take to prepare yourself 

for an emergency. Personal preparedness activities can not only keep 

you and your family safe but can help you become a response asset 

rather than a response burden. 

 Complete your own hazard analysis. If you have lived in the 

community for any period of time, you are probably aware of the 

hazards that are high risk for your area. If you are new to the area, 

talk to some long-time residents to determine what events have 

occurred historically in your area. Don’t forget the “small” 

emergencies, such as fire or an extended electrical outage. 

 Develop your own emergency plan. Play the “what if” game with 

each of the hazards you selected. What would you do if

__________________ occurs? Then ask yourself what supplies you 

would need to take the action(s) you identify, and gather the supplies 

together. 

 Practice your plan. Even simple tasks can become difficult during an 

emergency. Practice your plan before an emergency occurs until you 

are thoroughly familiar with the procedures you need to follow if the 

event occurs. 

Principles of Emergency Management Page 3.15
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Response 

Response begins when an emergency event is imminent or immediately 

after an event occurs. Response encompasses all activities taken to 

save lives and reduce damage from the event and includes: 

 Providing emergency assistance to victims. 

 Restoring critical infrastructure (e.g., utilities). 

 Ensuring continuity of critical services (e.g., law enforcement, public 

works). 

In other words, response involves putting preparedness plans into action. 

One of the first response tasks is to conduct a situation assessment. 

Local government is responsible for emergency response and for 

continued assessment of its ability to protect its citizens and the property 

within the community. To fulfill this responsibility, responders and local 

government officials must conduct an immediate rapid assessment of 

the local situation. 

Principles of Emergency Management Page 3.16
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Response (Continued) 

Rapid assessment includes all immediate response activities that are 

directly linked to determining initial lifesaving and life-sustaining needs 

and to identifying imminent hazards. The ability of local governments to 

perform a rapid assessment within the first few hours after an event is 

crucial to providing an adequate response for life-threatening situations 

and imminent hazards. Coordinated and timely assessments enable 

local government to: 

 Prioritize response activities. 

 Allocate scarce resources. 

 Request additional assistance from mutual aid partners, as well as 

the State, quickly and accurately. 

Obtaining accurate information quickly through rapid assessment is key 

to initiating response activities and needs to be collected in an organized 

fashion. Critical information, also called essential elements of 

information (EEI), includes information about: 

 Lifesaving needs, such as evacuation and search and rescue. 

 The status of critical infrastructure, such as transportation, utilities, 

communication systems, and fuel and water supplies. 

 The status of critical facilities, such as police and fire stations, 

medical providers, water and sewage treatment facilities, and media 

outlets. 

 The risk of damage to the community (e.g., dams and levees, 

facilities producing or storing hazardous materials) from imminent 

hazards. 

 The number of citizens who have been displaced as a result of the 

event and the estimated extent of damage to their dwellings. 

Essential elements of information also include information about the 

potential for cascading events. Cascading events are events that occur 

as a direct or indirect result of an initial event. For example, if a flash 

flood disrupts electricity to an area and, as a result of the electrical failure, 

a serious traffic accident involving a hazardous materials spill occurs, the 

traffic accident is a cascading event. If, as a result of the hazardous 

materials spill, a neighborhood must be evacuated and a local stream is 

contaminated, these are also cascading events. Taken together, the 

effect of cascading events can be crippling to a community. 

Principles of Emergency Management Page 3.17
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Response (Continued) 

Good planning, training, and exercising before an event occurs can help 

reduce cascading events and their effects. Maintaining the discipline to 

follow the plan during response operations also reduces the effects of 

cascading events. 

Citizens and Response Operations

What can private citizens do to facilitate an emergency response? 

Surprisingly, there is much that citizens can do, and many of the actions 

that will help the response most are relatively simple. 

 Follow your own emergency plan. Assuming that you developed a 

plan and practiced what you would do during the preparedness 

phase, this is the time to implement it. Follow your plan unless 

something related to the event makes it unworkable or unsafe. 

 Pay attention to and follow emergency directions provided by local 

officials. Listen to emergency broadcasts on the local media and 

follow the directions provided in the broadcasts. Emergency 

announcements are prepared by those who are most familiar with 

what is actually happening at the incident site and will provide you 

with the information you need to remain safe during the emergency. 

 Don’t make unnecessary phone calls, either by cellular phone or land 

line. Keep critical lines of communication open for emergency use. 

Very importantly, if you think you want to help during an emergency, don’t 

just show up at the scene to help. Volunteer with an established 

voluntary agency now. Volunteering before an emergency occurs will 

enable you to receive the training you need so that, when an emergency 

occurs and your services are needed, you know where you need to go 

and what you will do. Volunteering before an emergency also helps the 

agency and local authorities identify their resources and plan their needs. 

Principles of Emergency Management Page 3.18
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Activity Activity: Response Operations 

This activity provides you with the opportunity to reflect on past response 

operations in your community. To complete this activity, read and 

respond to the questions below. 

1. Think about a recent emergency event that occurred in your 

community. What types of damage occurred as a result of the event?

2. Were you involved in the response? If yes, what was your job? 

3. What do you think worked well with the response? 

4. If the situation occurred again, what would you do differently (or what 

would you want local officials to do differently)? 

5. List ways in which you think that preparedness activities contributed 

to the response. 

Principles of Emergency Management Page 3.19
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Recovery

The goal of recovery is to return the community’s systems and activities 

to normal. Recovery begins right after the emergency. Some recovery 

activities may be concurrent with response efforts. 

Long-term recovery includes restoring economic activity and rebuilding 

community facilities and housing. Long-term recovery (stabilizing all 

systems) can sometimes take years. 

Although recovery is primarily a responsibility of local government, if the 

emergency or disaster received a Presidential Declaration, a number of 

assistance programs may be available under the Stafford Act. There are 

two major categories of Federal aid: Public Assistance and Individual 

Assistance. 

Public Assistance is for repair of infrastructure, public facilities and debris 

removal, and may include. 

 Repair or replacement of non-Federal roads, public buildings, and 

bridges. 

 Implementation of Mitigation measures. 

Individual Assistance is for damage to residences and businesses or for 

personal property losses, and may include: 

 Grants to individuals and families for temporary housing, repairs, 

replacement of possessions, and medical and funeral expenses. 

 The Small Business Administration (SBA) loans to individuals and 

businesses. 

 Crisis counseling for victims and responders; legal services; and 

 disaster unemployment benefits. 

Principles of Emergency Management Page 3.20
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Principles of Emergency Management Page 3.21
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Recovery (Continued) 

Recovery from disaster is unique to each community depending on the 

amount and kind of damage caused by the disaster and the resources 

that the community has ready or can get. In the short term, recovery is 

an extension of the response phase in which basic services and functions 

are restored. In the long term, recovery is a restoration of both the 

personal lives of individuals and the livelihood of the community. 

After the short term recovery when roads have been opened, debris 

removed, supplies and shelters secured, communication channels, water 

and power, life safety and other basic services restored, the community 

and its leadership must rebuild. 

Once the early stage of recovery has brought the community back to a 

safe and operational level of functioning, the long term state can build on 

that. 

Long term recovery may take several months or even extend into years 

because it is a complex process of revitalizing not just homes but also 

businesses, public infrastructure, and the community’s economy and 

quality of life. 

There are many long term leadership and planning considerations. 

Applying for assistance programs available from the Federal government, 

as mentioned previously, is important to consider for obtaining financial 

and other resources in the case of a Presidential Disaster Declaration. 

Other considerations include: 

 Keeping citizens informed and preventing unrealistic expectations. 

 Mitigation measures to ensure against future disaster damage. 

 Donations 

 Partnerships with business and industry for resources. 

 Competing interests of groups involved in the planning process. 

 Environmental issues. 

 Public health measures to take against the risks of diseases, 

contamination, and other cascading effects from a disaster. 

 The unmet needs of victims. 

 Rebuilding bridges, roads, public works, and other expensive parts of 

the infrastructure. 

Principles of Emergency Management Page 3.22
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Summary and Transition 

This unit described the four phases of emergency management. Unit 4 

will describe the roles and responsibilities of key players in an integrated 

emergency management system. 

Before proceeding to the next unit, take a few minutes to complete the 

Knowledge Check on the next page. 

Reference

Library For More Information 

 Mitigation Programs: 

http://www.fema.gov/mit/

 National Flood Insurance Program: 

http://www.fema.gov/nfip/

 Disaster Information for Citizens: 

http://www.fema.gov/pubs

 The Stafford Act: 

http://www.fema.gov/r-n-r/pa/papd/105.htm

 Public Assistance Program: 

http://www.fema.gov/r-n-r/pa/index.htm

 Individual Assistance Programs: 

http://www.fema.gov/r-n-r/inassist.htm

Principles of Emergency Management Page 3.23
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Check Knowledge Check 

Carefully read each question and all of the possible answers before selecting the most 

appropriate response for each test item. Circle the letter corresponding to the answer you have

chosen. 

1. Each phase of the emergency management cycle ends before the next one begins. 

a. True 

b. False 

2. One example of mitigation is: 

a. Preparing a home disaster kit. 

b. Ordering citizen evacuation. 

c. Learning cardiopulmonary resuscitation. 

d. Passing an ordinance controlling development in a floodplain. 

3. The four phases of emergency management are useful for: 

a. Limiting activities to certain times. 

b. Keeping staff within boundaries. 

c. Prioritizing actions and resources. 

d. Providing categories to organize similar activities. 

4. The Response phase imposes the greatest time pressures on emergency management. 

a. True 

b. False 

5. Federal assistance is available for which of the following purposes? 

a. Mitigation measures 

b. Medical and funeral expenses 

c. Temporary housing 

d. All of the above 

Principles of Emergency Management Page 3.24
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Knowledge Check (Continued) 

6. Match each of the following activities with the emergency management phase when the 

activity would occur from the phase from the activity list. 

Activity

a. Conducting a training exercise 

b. Floodplain mapping 

c. Opening shelters 

d. Rebuilding roads 

Phase

____ Mitigation 

____ Recovery 

____ Preparedness 

____ Response 

Principles of Emergency Management Page 3.25
UNIT 3: THE EMERGENCY MANAGEMENT CYCLE

Answers Knowledge Check (Continued) 

1. b 

2. d 

3. d 

4. a 

5. d 

6. b, d, a, c. 

Principles of Emergency Management Page 3.26
Unit 4: Roles of Key 

Participants
UNIT 4 

ROLE OF KEY 

PARTICIPANTS

Introduction and Unit Overview

In the previous unit, you learned about emergency management core 

functions and program functions. After completing this unit you should be 

able to: 

 Describe the role of the local Emergency Program Manager. 

 Discuss the State’s emergency management role. 

 Describe how private sector and voluntary organizations assist 

emergency managers. 

 Discuss the Federal role in emergencies through the Federal 

Response Plan (FRP). 

 List the emergency management functional groups. 

The Role of the Local Emergency Program Manager 

The local Emergency Program Manager has the day-to-day responsibility 

of overseeing emergency management programs and activities. And 

most emergencies are handled at the local level without State or Federal 

assistance. This role entails coordinating all aspects of a jurisdiction’s 

mitigation, preparedness, response, and recovery capabilities. The 

Emergency Program Manager: 

 Coordinates resources from all sectors before, during, and after an 

emergency. 

 Manages activities relating to mitigation, preparedness, response, 

and recovery. 

 Ensures that all players of the process: 

• Are aware of potential threats to the community. 

• Participate in mitigation and prevention activities. 

• Plan for emergencies using an all-hazards approach. 

• Operate effectively in emergency situations. 

• Conduct effective recovery operations after a disaster. 

Principles of Emergency Management Page 4.1
UNIT 4: ROLES OF KEY PARTICIPANTS

The Role of the Local Emergency Program Manager (Continued) 

The Emergency Program Manager coordinates all components of the 

emergency management system for the community, including: 

 Fire and police services. 

 Emergency medical programs. 

 Public works. 

 Volunteers and voluntary organizations. 

 Other groups involved in emergency activities. 

Other duties of the local Emergency Program Manager might include the 

following: 

 Coordinating the planning process and working cooperatively with 

organizations and government agencies. 

 Advising and informing the Chief Elected Official about emergency 

management activities. 

 Identifying and analyzing the potential effects of hazards that threaten 

the jurisdiction. 

 Taking inventory of personnel and material resources from private 

sector sources that would be available in an emergency. 

 Identifying resource deficiencies and working with appropriate 

officials on measures to resolve them. 

 Developing and carrying out public awareness and education 

programs. 

 Establishing a system to alert officials and the public in an 

emergency. 

 Establishing and maintaining networks of expert advisors and 

damage assessors for all hazards. 

 Coordinating a review of all local emergency-related authorities and 

recommending amendments, when necessary. 

Principles of Emergency Management Page 4.2
UNIT 4: ROLES OF KEY PARTICIPANTS

The Role of the Local Emergency Program Manager (Continued) 

Earlier in the course, you reviewed the placement of the emergency 

manager within local government. Based on the community’s 

organization strategy, the Emergency Program Manager may serve as: 

 Part of the fire/rescue department staff. 

 Part of a law enforcement agency staff, located in a police 

department or sheriff’s office. 

 Head of a separate organization that reports directly to a governing or 

executive body. 

Regardless of location, the person in this position obviously must devote 

significant time and energy coordinating with a variety of people and 

organizations within and outside of the community. 

State Emergency Management Role 

The role of State government in emergency management in many ways 

parallels the role of the local emergency management function. 

 Legislative and executive authorities exist for State emergency 

programs, with a range of programs usually operating in a variety of 

State agencies. 

 The State has a responsibility to develop and maintain a 

comprehensive program for mitigation, preparedness, response, and 

recovery activities. 

The State’s role is to supplement and facilitate local efforts before, during, 

and after emergencies. The State must be prepared to maintain or 

accelerate services and to provide new services to local governments 

when local capabilities fall short of demands. 

Principles of Emergency Management Page 4.3
UNIT 4: ROLES OF KEY PARTICIPANTS

State Emergency Management Role (Continued) 

A State government is in the unique position to serve as a link between 

those who need assistance and those who can assist. It is able to: 

 Coordinate with local governments to meet their emergency needs. 

 Assess available State and Federal resources. 

 Help the local government apply for, acquire, and use those 

resources effectively. 

The State also provides direct guidance and assistance to its local 

jurisdictions through program development, and it channels Federal 

guidance and assistance to the local level. In a disaster, the State office 

helps coordinate and integrate resources and apply them to local needs. 

The State’s role might best be described as “pivotal.” 

The Governor of a State, who is responsible for the general welfare of the 

citizens of that State, has certain legislated powers and resources that 

can be applied to all-hazards emergency management. 

All State Governors have authority and responsibility for: 

 Issuing State or area emergency declarations. 

 Initiating State response actions (personnel, materials). 

 Activating emergency contingency funds and/or reallocating regular 

budgets for emergency activities. 

 Overseeing emergency management for all four phases. 

 Applying for and monitoring Federal assistance. 

Principles of Emergency Management Page 4.4
UNIT 4: ROLES OF KEY PARTICIPANTS

State Emergency Management Role (Continued) 

The State Emergency Management Agency: 

 Carries out statewide emergency management activities. 

 Helps coordinate emergency management activities involving more 

than one community. 

 Assists individual communities when they need help. 

 Provides financial assistance on a supplemental basis through a 

process of application and review. 

(The Governor reviews the application, studies the damage estimates 

and, if appropriate, declares a state of emergency.) 

If the local community’s resources are not adequate, the first place to turn 

for additional assistance is to the county or State Emergency 

Management Agency. 

Drawing on these resources occurs during restoration, which involves 

actions that repair critical infrastructure. This may include restoring utility 

services, conducting radiological decontamination, and removing debris. 

Acting on the information provided, the county or State office will dispatch 

personnel to the scene to assist in the response and recovery effort. 

Only the Governor, however, can request the Federal aid that comes with 

a Presidential Declaration. 

State laws require that all States have a State Emergency Management 

Agency and an EOP coordinated by that agency. 

Principles of Emergency Management Page 4.5
UNIT 4: ROLES OF KEY PARTICIPANTS

How the Private Sector and Voluntary Organizations Assist 

Emergency Managers 

The private sector, including private citizens and voluntary organizations, 

plays a major role in assisting emergency managers before, during, and 

after an emergency. 

 Private industry contributes by: 

• Developing and exercising emergency plans before an 

emergency occurs. 

• Working with emergency management personnel before an 

emergency occurs to ascertain what assistance may be 

necessary and how they can help. 

• Providing assistance (including volunteers) to support 

emergency management during an emergency and throughout 

the recovery process. 

 Citizens contribute by: 

• Taking the time necessary to understand the types of 

emergencies that are likely to occur and preparing a personal 

disaster kit and emergency plans for those events. 

• Volunteering with an established organization and receiving 

training before an emergency occurs. 

• Taking direction and responding reasonably to alerts, warnings, 

and other emergency public information. 

 Voluntary organizations contribute by: 

• Training and managing volunteer resources. 

• Identifying shelter locations and needed supplies. 

• Providing critical emergency services, such as the provision of 

cleaning supplies, clothing, food, and shelter or assisting with 

post-emergency cleanup, to those in need. 

• Identifying those whose needs have not been met and 

coordinating the provision of assistance. 

Each of these players is critical to ensuring an appropriate and efficient 

response. However, each must become involved during the 

preparedness phase of the integrated emergency management system 

to ensure that, when an emergency occurs, all players understand their 

roles and are ready to contribute without delay. 

Principles of Emergency Management Page 4.6
UNIT 4: ROLES OF KEY PARTICIPANTS

Federal Emergency Management Role 

The Federal government’s involvement in emergency management 

crosses all four phases of emergency management. Assistance may take 

the form of fiscal support, technical assistance, or information about 

materials, personnel resources, and research. 

The Federal government provides legislation, Executive Orders, and 

regulations that influence all disaster activities. It also maintains the 

largest pool of fiscal resources that can be applied to emergency 

response and recovery. 

The Federal Emergency Management Agency (FEMA) takes a lead role 

in national preparedness for major crises. It also plays coordinating and 

supportive/assistance roles for integrated emergency management in 

partnership with State and local emergency management entities. As 

necessary, FEMA provides funding, technical assistance, services, 

supplies, equipment, and direct Federal support. 

FEMA provides technical and financial assistance to State and local 

governments to upgrade their communications and warning systems, and 

it operates an emergency information and coordination center that 

provides a central location for the collection and management of disaster 

and emergency information. 

FEMA provides information to the President concerning matters of 

national interest to help with decisions about disaster declarations. The 

President of the United States is responsible for: 

 Protecting the public. 

 Making a disaster declaration before Federal funds are released to 

aid disaster victims. 

Principles of Emergency Management Page 4.7
UNIT 4: ROLES OF KEY PARTICIPANTS

The Federal Response Plan 

When State and local governments are overwhelmed by a catastrophic 

disaster, the Federal government is used as a framework to: 

 Mobilize resources from any of the Federal agencies that are 

partners in the Federal Response Plan (FRP). 

 Assist the State and local governments in carrying out certain 

response functions. 

The concept of the FRP is simple. When implemented, the Federal 

government provides State and local governments with personnel, 

technical expertise, equipment, and other resources, and assumes an 

active role in coordinating the response. 

Resources are grouped into 12 emergency support functions (ESFs) (see 

the table on pages 4.9 and 4.10). They are provided by one or more of 

the 27 Federal departments and agencies, including The American Red 

Cross. 

Each ESF is headed by a primary agency. Other agencies provide 

support as necessary. Each agency may also respond within its own 

statutory authority. The following table describes the 12 ESFs and the 

lead agency responsible for coordination. 

Principles of Emergency Management Page 4.8
UNIT 4: ROLES OF KEY PARTICIPANTS

The Federal Response Plan (Continued) 

ESF Responsibility Primary Agency

1. Transportation Provide civilian and military transportation 

support 

Department of 

Transportation (DOT) 

2. Communications Provide telecommunications support National Communications 

System 

3. Public Works & 

Engineering 

Restore essential public services and 

facilities 

U.S. Army Corps of 

Engineers, 

Department of Defense 

(DOD) 

4. Fire Fighting Detect and suppress wildland, rural, and 

urban fires 

U.S. Forest Service, 

Department of Agriculture 

(USDA) 

5. Information & Planning Collect, analyze and disseminate critical 

information to facilitate the overall Federal 

response and recovery operations 

FEMA 

6. Mass Care Manage and coordinate food, shelter, and 

first aid for victims; provide bulk distribution of 

relief supplies; operate a system for assisting 

family reunification 

The American Red Cross 

7. Resource Support Provide equipment, materials, supplies, and 

personnel to Federal entities during response 

operations 

General Services 

Administration 

8. Health & Medical 

Services

Provide assistance for public health and 

medical care needs 

U.S. Public Health Service, 

Department of Health and 

Human Services (HHS) 

9. Urban Search and 

Rescue 

Locate, extricate, and provide initial medical 

treatment to victims trapped in collapsed 

structures 

FEMA 

10. Hazardous Materials Support Federal response to actual or 

potential releases of oil and hazardous 

materials 

Environmental Protection 

Agency (EPA) 

Principles of Emergency Management Page 4.9
UNIT 4: ROLES OF KEY PARTICIPANTS

The Federal Response Plan (Continued) 

ESF Responsibility Primary Agency

11. Food Identify food needs, ensure that food gets to 

area affected by disaster 

Food & Nutrition Services, 

Department of Agriculture 

(USDA) 

12. Energy Restore power systems and fuel supplies Department of Energy 

(DOE) 

Principles of Emergency Management Page 4.10
UNIT 4: ROLES OF KEY PARTICIPANTS

Activity Activity: Emergency Management Partners 

The purpose of this activity is to match the emergency management 

partner to a description of that partner’s role in emergency management. 

For a role in Column A, choose a partner from Column B. 

Emergency Management Partners

1. ____ Declares a local emergency 

2. ____ Requests a Presidential Declaration of Disaster 

3. ____ Activates the Federal Response Plan 

4. ____ Responds reasonably to public information 

5. ____ Supplements and facilitates local emergency 

efforts

6. ____ Coordinates all components of the emergency 

management system for the community 

7. ____ Provides mass care 

a. Citizen 

b. Local government official(s) 

c. Voluntary agency 

d. Local emergency manager 

e. State Emergency Management 

Agency 

f. State Governor 

g. FEMA 

Principles of Emergency Management Page 4.11
UNIT 4: ROLES OF KEY PARTICIPANTS

Answers Activity: Emergency Management Partners (Continued) 

1. b

2. f 

3. g 

4. a 

5. e 

6. d 

7. c 

Principles of Emergency Management Page 4.12
UNIT 4: ROLES OF KEY PARTICIPANTS

Emergency Management Functional Groups 

An integrated approach to emergency management is based on solid 

general management principles and the common theme of protecting life 

and property. It provides direction so that participants can begin working 

together with all of the principals in the network. 

On this team are individuals who have obvious responsibilities in 

emergency response, as well as others whose roles may appear to be 

minor but which are, in fact, very important. For example, the editor of 

the local newspaper and the supervisor of a local construction crew may 

be important members of the emergency management community. 

It is helpful to imagine the working relationships of the team as divided 

into four broadly defined groups at each governmental level, typical of 

those that exist in many organizations. 

 Policy Group. This is an informal and flexible grouping of senior 

public officials representing State, county, and municipal 

governments. They meet to develop emergency policies and then, 

as required by the disaster situation, discuss the economic, political, 

legal, and social implications of both the threat and the response to 

determine the best general approach to the situation. 

Members of a policy group can include the Governor, Adjutant 

General, State Director of Emergency Services, County Manager, etc. 

The Emergency Program Manager serves as the liaison between the 

policy group and the coordination group. 

Principles of Emergency Management Page 4.13
UNIT 4: ROLES OF KEY PARTICIPANTS

Emergency Management Functional Groups (Continued) 

 Coordination Group. This group typically consists of the assistants, 

deputies, and staff of agencies and departments represented in the 

policy group. The coordination group performs a staff function by 

coordinating the types and number of personnel and material 

resources deployed, providing logistical support to field units, 

contracting for relief of forces, and carefully monitoring both the 

immediate emergency situation and other threats. 

The Emergency Program Manager is responsible for coordinating the 

efforts of various agency and department personnel assigned to this 

group. Typically, the coordination group does not command field-level 

personnel. 

 Operational Response Group. Persons with specific roles and 

responsibilities necessary for fully supporting the field response 

group and who are supervised by an event coordinator are included 

in this group. The operational response group must include 

individuals who are responsible for operations, logistics, planning, 

and finance. These functions interface directly with the ICS structure 

in the field response group. 

 Field Response Group. This group represents fire, law enforcement, 

medical, military, and public works units that normally would be on 

the scene. 

Principles of Emergency Management Page 4.14
UNIT 4: ROLES OF KEY PARTICIPANTS

Case Study Case Study: Emergency Management Coordination

The following description of the response to a tornado illustrates the 

coordination among local, State, and Federal agencies and the roles of 

functional groups at different levels. When you have finished reading the 

case study, answer the questions on the following page. 

Tornadoes caused massive property damage and loss of life along a path from northeast 

Mississippi through central Alabama into northern Georgia. Hardest hit were Jefferson and St. 

Clair Counties in Alabama. Casualties included 36 fatalities, 273 injuries, and property damage 

estimated at over $300 million. 

After the tornado, the first priority was search and rescue to assist the injured and find missing 

people. The second priority was to care for people and identify those needing shelter and other 

assistance. 

Local agencies responded quickly to assist the injured and find missing people, joined by county 

and State agencies coordinated through the Emergency Operations Center (EOC). 

The agencies listed below were involved in the response: 

Fire and rescue services. Three fire and rescue services from the affected areas coordinated 

with 26 other fire departments to assist them with search and rescue and emergency medical 

support. 

Law enforcement. The Jefferson County Sheriff’s Department and the City of Birmingham 

police department were the primary responding agencies, assisted by numerous other local and 

State agencies. 

Public Works. The primary response agencies were the Jefferson County Roads and 

Transportation Department and the City of Birmingham Streets and Sanitation Department, 

along with Horticulture and Urban Forestry Department, assisted by Public Works Departments 

from other cities within the county. 

EOC Staff. 35 or more agencies, departments, and organizations provided personnel to 

coordinate the response and recovery efforts. 

Other local agencies. Many community groups, churches, State and Federal assistance 

organizations, and numerous volunteer groups provided assistance, including shelter, mass 

care, mental health, donated goods and services, and animal rescue and care. 

State and Federal agencies. The State Emergency Management Agency coordinated State 

assistance that included the National Guard, public safety, the State Department of 

Transportation, and the State Forestry Commission. FEMA provided disaster and community 

relations teams, established Disaster Recovery Centers to assist victims seeking individual and 

housing assistance, and held applicant’s briefings for jurisdictions that suffered damage to their 

infrastructure. 

Principles of Emergency Management Page 4.15
UNIT 4: ROLES OF KEY PARTICIPANTS

Case Study Case Study: Emergency Management Coordination (Continued) 

Did Alabama receive a Presidential disaster declaration for the disaster? How can you tell? 

Name two Jefferson County agencies that were involved in the response and recovery. 

Name two State agencies or organizations that were involved in the response and recovery. 

Name two services performed by voluntary agencies after the tornado. 

Principles of Emergency Management Page 4.16
UNIT 4: ROLES OF KEY PARTICIPANTS

Answers Case Study: Emergency Management Coordination (Continued) 

Did Alabama receive a Presidential Declaration of Disaster? How can you tell? 

Yes, there was a Presidential Declaration. Disaster Recovery Centers were established, 

Community Relations and disaster teams were provided, and applicant’s briefings for 

damaged infrastructure were being held. 

Name two Jefferson County agencies that were involved in the response and recovery. 

Any two of the following: 

Sheriff’s Department, Emergency Management Agency, Jefferson County Roads and 

Transportation Department 

Name two State agencies or organizations that were involved in the response and recovery. 

Any two of the following: 

State Emergency Management Agency, National Guard, State Department of 

Transportation, State Forestry Commission 

Name two services performed by voluntary agencies after the tornado. 

Any two of the following 

Shelter, mass care, mental health services, donated goods and services, and animal rescue 

and care 

Principles of Emergency Management Page 4.17
UNIT 4: ROLES OF KEY PARTICIPANTS

Summary and Transition 

In this unit, you learned how the partners in an emergency management 

program interact at the local, State, and Federal levels. In unit 5, you will 

learn how to assess your community’s risk from various types of hazards. 

Reference

Library For More Information 

 Federal Response Plan: 

http://www.fema.gov/fema/fed1.htm

Principles of Emergency Management Page 4.18
UNIT 4: ROLES OF KEY PARTICIPANTS

Check Knowledge Check 

Carefully read each question and all of the possible answers before selecting the most 

appropriate response for each test item. Circle the letter corresponding to the answer you have 

chosen. 

1. The local emergency program manager coordinates: 

a. The Federal Response Plan. 

b. Urban Search and Rescue. 

c. The National Guard. 

d. The disaster declaration process. 

e. The emergency medical programs. 

2. The State government is in a unique position to serve as a link between those who need 

assistance and those who can assist. 

a. True 

b. False 

3. If the local community’s resources are not adequate to deal with an emergency, it can 

request assistance from: 

a. Neighboring jurisdictions. 

b. Congressional representatives. 

c. The President. 

d. FEMA. 

4. If a disaster response demands more resources than any local governments can supply 

without assistance, the next step is to request assistance from: 

a. Congressional representatives. 

b. The President. 

c. FEMA. 

d. The State Emergency Management Agency. 

5. The purpose of the Federal Response Plan is to ______________________. 

a. Restore essential public services and facilities 

b. Provide information and planning services in catastrophic disasters 

c. Mobilize resources from Federal agencies to respond to catastrophic disasters 

d. Conduct all-hazard exercises involving local, State, and Federal participants 

e. Restore power systems and fuel supplies 

Principles of Emergency Management Page 4.19
UNIT 4: ROLES OF KEY PARTICIPANTS

Answers Knowledge Check (Continued) 

1. e 

2. a 

3. a 

4. d 

5. c 

Principles of Emergency Management Page 4.20
Unit 5: The Plan as 

Program Centerpiece
UNIT 5 

THE PLAN AS 

PROGRAM 

CENTERPIECE

Introduction and Unit Overview

This unit will describe the hazard analysis process and why conducting a 

thorough hazard analysis forms the basis for all emergency operations 

planning. After you complete this unit, you should be able to: 

 Describe why an Emergency Operations Plan (EOP) must be the 

centerpiece of an Emergency Management program. 

 Identify the high-risk hazards facing their communities. 

 Describe the structure of an EOP. 

 Determine the annexes and appendices that should be included in 

their plans. 

What is an EOP and What Does It Do? 

An EOP is a key component of an emergency operations program. It 

establishes the overall authority, roles, and functions performed during 

emergencies. 

The emergency operations program is in continuous operation and 

includes non-emergency activities such as training and exercises. The 

EOP does not come into play for non-emergency activities. 

The EOP is activated to guide emergency response and recovery, and is 

implemented only after being triggered by emergencies. Even during 

emergencies, only those parts of the EOP that are required for the 

response are activated. 

Principles of Emergency Management Page 5.1
UNIT 5: THE PLAN AS PROGRAM CENTERPIECE

What is an EOP and What Does It Do? (Continued) 

The EOP enables the community to be prepared to take immediate action 

when disaster threatens or strikes. An EOP describes: 

 What emergency response actions will occur. . . 

 Under what circumstances. . . 

 By whom. . . 

 By what authority. . . 

 Using what resources. 

An EOP describes how the government does business in an emergency. 

Developing and maintaining an EOP is a crucial task of an emergency 

operations program. The program should bring together representatives 

of all involved agencies who could have a role in a response. Agency 

participation is necessary to ensure that all who have a role in a response 

are brought into the process and understand their responsibilities 

thoroughly. 

To illustrate how an EOP organizes a response to an emergency, 

consider the train derailment and subsequent hazardous chemical 

release described earlier in the course. 

Principles of Emergency Management Page 5.2
UNIT 5: THE PLAN AS PROGRAM CENTERPIECE

Activity Activity: Where Do I Fit Into the EOP? 

This activity will provide you with an opportunity to analyze the role you 

(and your agency) would play in a response similar to the train 

derailment. To complete this activity, respond to the questions below. 

You may need to refer to the local EOP for this activity. 

1. Would your agency or organization participate in the response 

described in the case study? 

F Yes 

F No 

If your agency would not be deployed based on the procedures in 

your community’s EOP, do you see a role that it might have played? 

If yes, describe the role that your agency could perform. 

2. If you answered yes to question 1, where would your agency deploy? 

F To the scene 

F To the EOC 

F Representatives would be deployed to the scene and to the EOC 

3. Describe the specific duties your agency would perform in the case 

study. 

Principles of Emergency Management Page 5.3
UNIT 5: THE PLAN AS PROGRAM CENTERPIECE

Case Study Case Study: An EOP in Action 

The freight train derailed at approximately 3:00 AM, releasing anhydrous ammonia. 

The local EOP designates the Emergency Management Agency (EMA) as the county’s 24-hour 

crisis monitor. The EMA received first notification of the incident from a railroad official shortly 

after 3:00 A.M.. 

Because the derailment occurred outside of the city limits, the Chairman of the County Board of 

Supervisors had direction and control under the plan, and declared a State of Emergency in the 

county soon after being notified. 

Each department listed in the plan was notified and alerted its employees and volunteers. The 

EMA activated the Emergency Operations Center (EOC). County communications staff moved 

operations to the EOC, and following the procedures in the Communications Annex, 

representatives of fire departments, law enforcement agencies, public works agencies, and the 

Department of Health deployed to the EOC. 

The plan designated the hazardous chemical release as a level 3 emergency, which is used for 

all major technological disasters. The State EOC was notified, as was required for level 3 

emergencies. 

The designated on-scene Incident Commander was the County Fire Chief. The fire department 

checked the Material Safety Data Sheet (MSDS) for anhydrous ammonia and discovered that 

protective gear would be needed for any response personnel at the scene. No one was allowed 

near the toxic gas cloud until gear could be obtained. 

A Hazardous Materials Appendix to the EOP listed sources for protective gear, protective 

actions that could be taken, and information that should be given to the public. The appendix 

established cleanup of the site as the responsibility of the railroad company in coordination with 

the county fire department, as the controlling authority for incidents involving hazardous 

materials.

The EMA followed the procedures included in the Warning Annex by activating warning sirens 

and broadcasting instructions to citizens to “shelter in place” by closing all windows and turning 

off furnaces to avoid bringing outside air into their homes. Public works employees set up a 

perimeter a safe distance from the scene that was manned by police and sheriff’s officers to 

limit access to the release area. 

After the immediate danger passed, the “shelter in place” advisory was lifted, and citizens could 

seek medical treatment. Hospitals activated procedures to mobilize extra staff to treat hundreds 

of victims suffering from exposure to the chemical. 

Principles of Emergency Management Page 5.4
UNIT 5: THE PLAN AS PROGRAM CENTERPIECE

Importance of the Hazard Analysis to the Planning Process 

When completed, the community’s hazard analysis should form the basis 

for the entire emergency planning process because it will guide response 

actions by highlighting: 

 The hazards that pose the greatest risks to the community. 

 The types and degree of damage the can be expected for each type 

of hazard, including the areas and populations with the highest 

probability for damage. 

 The types of resources that will most likely be needed to respond. 

 Potential resource shortfalls that need to be filled. 

Refer to the hazard analysis throughout the planning process to help 

keep the planning team on track. 

What Is In a Hazard Analysis? 

As described in the previous unit, a hazard analysis involves examining 

the likely hazards that could affect your community and quantifying the 

risk posed by each hazard. 

Hazards are conditions or situations that have the potential for causing 

harm to people, property, or the environment. 

Hazards can be classified into three categories: 

 Natural (e.g., tornadoes and earthquakes) 

 Intentional (e.g., terrorism or civil disturbance) 

 Technological (e.g., failure of the power grid or hazardous materials 

spills) 

Hazard analysis itself includes three steps: 

1. Identifying the types of hazards to which a community is vulnerable. 

2. Developing a profile of each hazard. 

3. Quantifying the risk posed by each hazard. 

Job Aid 5.1 on the following page is a sample Hazard Analysis 

Worksheet. Developing a worksheet such as that shown in the job aid 

can help you determine how high a risk your community faces and what 

your resulting response needs may be. 

Principles of Emergency Management Page 5.5
UNIT 5: THE PLAN AS PROGRAM CENTERPIECE

Job Aid 5.1: Hazard Analysis Worksheet

 

Hazard: ____________________________________________________________________ 

Frequency of Occurrence: 

 Highly likely (Near 100% probability in the next year) 

 Likely (Between 10% and 100% probability in the next year, or at least one chance in the 

next 10 years) 

 Possible (Between 1% and 10% probability in the next year, or at least one chance in the 

next 100 years) 

 Unlikely (Less than 1% probability in the next 100 years) 

Seasonal pattern? 

 No 

 Yes. Specify season(s) when hazard occurs: __________________________________ 

Potential Impact:

 Catastrophic (Multiple deaths; shutdown of critical facilities for 1 month or more; more 

than 50% of property severely damaged) 

 Critical (Injuries or illness resulting in permanent disability; shutdown of critical facilities for 

at least 2 weeks; 25% to 50% of property severely damaged) 

 Limited (Temporary injuries; shutdown of critical facilities for 1-2 weeks; 10% to 25% of 

property severely damaged) 

 Negligible (Injuries treatable with first aid; shutdown of critical facilities for 24 hours or 

less; less than 10% of property severely damaged) 

Are any areas or facilities more likely to be affected (e.g., air, water, or land; 

infrastructure)? If so, which? 

Principles of Emergency Management Page 5.6
UNIT 5: THE PLAN AS PROGRAM CENTERPIECE

Job Aid 5.1: Hazard Analysis Worksheet (Continued)

Speed of Onset: 

 Minimal or no warning 

 6 to 12 hours warning

 12 to 24 hours warning

 More than 24 hours warning

Potential for Cascading Effects? 

 No 

 Yes. Specify effects: 

Principles of Emergency Management Page 5.7
UNIT 5: THE PLAN AS PROGRAM CENTERPIECE

What Is In a Hazard Analysis? (Continued) 

Hazard Identification

The first step, then, is to develop a list of hazards that may occur in your 

community. This list is usually based on historical data about past 

events. Sources of information about past events may include: 

 Newspaper files. 

 Weather records. 

 Insurance records. 

 Accident reports (e.g., for hazardous materials incidents). 

 EOC records. 

 Fire department inspections. 

 Anecdotal information from long-time residents. 

Be aware that information about recent or costly events is relatively easy 

to locate, but information about older or less costly events may be more 

difficult to find. Do not ignore hazards simply because they have not 

occurred recently or, at last occurrence, did not cause extensive damage. 

A hazard that was low impact 15 years ago may have catastrophic 

consequences today because of the hazard itself or because of changes 

(e.g., new development in higher-risk areas) since the last occurrence. 

Keep in mind that you may need to consider potential hazards that are 

located in neighboring jurisdictions if the hazards could pose a threat to 

your community or affect your community’s response. For example, an 

explosion in a hazardous materials plant on the border of a neighboring 

State could result in toxic fumes in your community, depending on the 

wind direction; a dam that breaks in a city located upstream could result 

in a flash flood in your community. 

Principles of Emergency Management Page 5.8
UNIT 5: THE PLAN AS PROGRAM CENTERPIECE

What Is In a Hazard Analysis? (Continued) 

Developing Hazard Profiles

Merely identifying the hazards that occur in your community does not tell 

you how to plan for those hazards. The next step is to develop a profile 

of each identified hazard according to the following characteristics: 

 Predictability (i.e., frequency and/or likelihood of occurrence, 

seasonal pattern, etc.). 

 Magnitude or severity of impact on the community (i.e., extent of 

damage expected, the types of damage that can be expected to the 

infrastructure, etc.). 

 Speed of onset (e.g., hurricanes usually provide some amount of 

preparation time before they strike, while earthquakes or explosions 

could occur without warning). 

 The potential for cascading effects (e.g., flooding following a 

hurricane or fires following an earthquake because of gas line 

ruptures). 

Principles of Emergency Management Page 5.9
UNIT 5: THE PLAN AS PROGRAM CENTERPIECE

Using a Hazard Analysis to Determine Risk 

After compiling information for each hazard that your community is 

vulnerable to, your next step is to assess the risks associated with each 

hazard so that the planning team can predict and prepare for those of 

highest potential impact on people, services, facilities and structures. 

When assessing risk, it is important to keep in mind the following 

hierarchy of response priorities: 

1. Life safety. Conditions that could affect the health and/or safety of 

the population. 

2. Essential facilities. Facilities, such as fire houses, precinct houses or 

waste water treatment facilities that, if affected by the hazard would 

seriously and adversely affect the community’s ability to respond. 

3. Critical infrastructure. Roadways, utilities, and other components of 

the infrastructure that, if damaged, would seriously and adversely 

affect life safety or response capability. 

When surveying your community for risks to these important resources, 

include such elements as geographic features, infrastructure lifelines, 

essential facilities, special facilities, population densities and shifts 

(demographics), and availability of response resources. 

Principles of Emergency Management Page 5.10
UNIT 5: THE PLAN AS PROGRAM CENTERPIECE

EOP Structure and Contents 

Although FEMA does not mandate a specific format, for ease of use and 

consistency in response, FEMA does recommend that EOPs be 

developed to follow a standard format and organization. State and Local 

Guide 101, Guide for All-Hazard Emergency Operations Planning

(September 1996), recommends that the EOP be organized into the 

sections shown below. 

Basic Plan

Implementing

Instructions

HazardSpecific

Appendices

Functional

Annexes

This format is not required but is based on FEMA’s experience in 

responding to disasters and with working with State and local 

governments as they develop their plans. Regardless of how your 

community’s EOP is organized, the important point to note is that it must 

be easy to understand and easy to use by all who have a role in a 

response. 

The Basic Plan

The Basic Plan provides an overview of your community’s response 

organization and policies. It also cites the legal authority for conducting 

emergency operations, describes the hazards that the EOP is intended to 

address, explains the general concept of emergency operations, and 

assigns responsibility for emergency planning and operations. 

Principles of Emergency Management Page 5.11
UNIT 5: THE PLAN AS PROGRAM CENTERPIECE

EOP Structure and Contents (Continued) 

The Basic Plan is typically organized into the following sections: 

 Introductory Material. The introductory material provides the 

authority and responsibility for responding agencies to perform their 

tasks under the plan. It also facilitates the ease of use for the overall 

document. Typically, the introductory material includes: 

• A promulgation document that provides the legal authority and 

the responsibility to respond to emergencies. 

• A signature page that includes the signatures of the agency 

executives for responding agencies. The signature page 

indicates that the signatory agencies have worked together in the 

plan’s development and agree to the performance commitments 

made in the plan. 

• A dated title page and record of changes that indicates the date 

of original publication and of any subsequent changes to the 

plan. Including a change record in the Basic Plan helps users 

keep the plan up to date and know that they are using the most 

recent version. 

• A record of distribution that indicates the individuals and 

agencies (or organizations) that received a copy of the plan. The 

record of distribution provides proof that the EOP has been 

distributed and that the individuals and agencies have had a 

chance to review the plan. 

• A Table of Contents that includes all of the section titles and 

subtitles for the plan to provide a topical overview of the 

document. 

 Purpose. The Purpose statement explains why the plan has been 

developed and what it is meant to do. When properly developed, all 

other information contained in the plan flows logically from the 

purpose statement. 

 Situation and Assumptions. The Situation and Assumptions 

statement provides a statement of the scope of the EOP, outlining the 

hazards that the plan addresses, community characteristics that may 

affect the response, and assumptions on which the plan is based 

(e.g., that, in the case of a catastrophic disaster affecting adjacent 

communities, mutual aid might not be available). 

Principles of Emergency Management Page 5.12
UNIT 5: THE PLAN AS PROGRAM CENTERPIECE

EOP Structure and Contents (Continued) 

 Concept of Operations. The Concept of Operations provides a basic 

statement of what response activities should occur, within what 

timeframe, and at whose direction. A good Concept of Operations 

describes the community’s approach to emergency response. 

Typically, the Concept of Operations should include such topics as: 

• Division of responsibilities between local and State responders. 

• The procedure for activating the EOP. 

• Alert levels and the tasks that should be performed at each level. 

• The general sequence of actions to be taken before, during, and 

after an emergency. 

• Who can request aid and under what conditions. 

 Organization and Assignment of Responsibilities. The Organization 

and Assignment of Responsibilities describes how the community will 

be organized to respond to emergencies. The section includes a list, 

by position and organization, of the types of tasks that will be 

performed. At a minimum, the Organization and Assignment of 

Responsibilities should include a task listing for the: 

• Chief Elected Official. 

• Fire Department. 

• Police Department. 

• Health and Medical Coordinator. 

• Public Works Department. 

• Warning Coordinator. 

• EOC Manager. 

• Emergency Manager. 

• Communications Coordinator. 

• Public Information Officer (PIO). 

• Evacuation Coordinator. 

• Mass Care Coordinator. 

• Resource Manager. 

• School Superintendent. 

• Animal Care and Control Agency. 

Principles of Emergency Management Page 5.13
UNIT 5: THE PLAN AS PROGRAM CENTERPIECE

EOP Structure and Contents (Continued) 

 Administration and Logistics. The Administration and Logistics 

section describes the support requirements and the availability of 

support and services for all types of emergencies. It also includes 

general policies for managing resources, including policies on 

keeping financial records, reporting, tracking resource needs, 

tracking the source and use of resources, procurement, and 

compensating owners of private property used by the community 

during the response. Mutual aid agreements with neighboring 

jurisdictions should be referenced, but not included, in this section. 

 Plan Development and Maintenance. The Plan Development and 

Maintenance section describes the community’s overall approach to 

planning, including the assignment of planning responsibilities. 

 Authorities and References. The Authorities and References section 

should provide the legal basis for emergency operations. The section 

should include a list of laws, statutes, ordinances, Executive Orders, 

regulations, and formal agreements related to emergency response. 

This section should also provide the limits of the emergency authority 

of the Chief Elected Official, the circumstances under which the 

authorities become effective, and when they are terminated. 

The Basic Plan may also include maps of the community and other 

documents that will assist the overall response. Despite the number of 

sections in the Basic Plan, it need not be long and complicated. In fact, a 

simple, concise Basic Plan that is easy to use is far preferable to one that 

includes too many details and too much verbiage. 

Functional Annexes

Functional annexes include those parts of the plan that are organized 

around broad functions. For example, evacuation and communication 

are functions that are typically included in annexes. Each annex focuses 

on one function that the community believes will be necessary during an 

emergency. The number and type of functional annexes may vary, 

depending on the community’s needs, capabilities, risks, and resources. 

Principles of Emergency Management Page 5.14
UNIT 5: THE PLAN AS PROGRAM CENTERPIECE

EOP Structure and Contents (Continued) 

FEMA recommends that communities include the functions listed below 

as functional annexes to their Basic Plan: 

 Direction and Control. This annex allows the community to analyze 

the emergency and decide how to respond by directing and 

coordinating the efforts of the jurisdiction’s response forces and 

coordinating with the mutual aid partners to use all resources 

efficiently and effectively. 

 Communications. This annex focuses on the systems that will be 

relied on for responders and other emergency personnel to 

communicate with each other (i.e., not with the public) during 

emergencies. It describes the total communications system, 

including backup systems, and provides procedures for its use. 

 Warning. This annex describes the warning systems in place and the 

responsibilities and procedures for issuing warnings to the public. All 

components of the warning system should be described, including 

contingency plans, to ensure that warning information is available to 

the public. 

 Emergency Public Information. The Emergency Public Information 

(EPI) Annex describes the methods that the community will use to 

provide information to the public before, during, and after an 

emergency. Historically, the EPI Annex has been developed based 

on the assumption that an emergency is imminent or has occurred. 

Recent terrorism incidents, however, demand that some degree of 

preparedness be incorporated into the EPI Annex so that, when a 

terrorist incident occurs, the public is already aware of the potential 

implications of the incident and understands that government 

authorities are doing everything possible to control the situation. This 

expansion of the concept behind EPI will help ensure that the public 

takes the appropriate action. It will also minimize a panic response 

among the public and will give the public confidence that the 

government is in control. 

 Evacuation. The Evacuation Annex addresses the movement of 

people from an area that has been affected by an emergency to a 

safe area. Considerations for evacuating persons with special needs 

should always be included in the Evacuation Annex. 

Principles of Emergency Management Page 5.15
UNIT 5: THE PLAN AS PROGRAM CENTERPIECE

EOP Structure and Contents (Continued) 

 Mass Care. This annex addresses the actions that will be taken to 

protect evacuees and others from the effects of the event. The Mass 

Care Annex describes how sheltering, food distribution, medical care, 

clothing, and other essential life support needs will be provided to 

those who have been displaced by a hazard. (Note that communities 

that are at risk from hurricanes should include a discussion of refuges 

of last resort in this annex.) 

 Health and Medical. The Health and Medical annex addresses the 

activities associated with the provision of health and medical services 

in emergencies, including emergency medical, hospital, public health, 

environmental health, mental health, and mortuary services. 

 Resource Management. Because emergencies can require more—

and more specialized—resources than responding agencies have 

available, the Resource Management Annex facilitates the 

identification of existing resources, the identification of probable 

resource needs, and a description of how additional resources will be 

acquired and distributed. 

Annexes should be organized in the same way as the Basic Plan (i.e., 

Purpose, Situation and Assumptions, etc.) but should not repeat the 

information that is included in the Basic Plan. Rather, annexes should 

include only the information that is specific to the emergency function 

covered by the annex. 

Hazard-Specific Appendices

Appendices to plan annexes should be developed for each hazard that 

the plan addresses (e.g., tornado, earthquake, terrorism), and the 

decision of whether or not to include a specific annex should be based on 

the community’s hazard analysis. They are developed based on special 

planning requirements that are not common across all hazards addressed 

by an annex. 

By developing hazard-specific appendices, planners address the special 

or unique response considerations related to each hazard for which the 

community is at high risk, including regulatory requirements associated 

with specific hazard types (e.g., hazardous materials). Appendices are 

supplements to functional annexes. 

Like annexes, appendices should be organized in the same way as the 

Basic Plan and should not repeat information that is included in either the 

Basic Plan or the annexes to which they are attached. 

Principles of Emergency Management Page 5.16
UNIT 5: THE PLAN AS PROGRAM CENTERPIECE

EOP Structure and Contents (Continued) 

Implementing Instructions

Implementing instructions delineate the actual procedures that response 

personnel will follow in an emergency. Although many local and State 

response agencies refer to implementing instructions as Standard 

Operating Procedures (SOPs), they are actually much more than SOPs. 

Implementing instructions include any resource that responders may use 

to help them remember what to do in an emergency. In addition to SOPs, 

implementing instructions may include: 

 Checklists. 

 Worksheets. 

 Instruction cards. 

Implementing instructions are developed by the response agencies and 

are included in the EOP by reference only. 

Principles of Emergency Management Page 5.17
UNIT 5: THE PLAN AS PROGRAM CENTERPIECE

Unit Summary and Transition 

Unit 5 discussed the hazard analysis process, consisting of the following 

steps: 

 What an EOP is. 

 That the hazard analysis provides an assessment of the threats 

faced by the community and therefore, hazards that must be 

addressed through planning. 

 That the structure of an EOP is designed to enable communities to 

respond to all types of hazards. 

 That when trained and exercised, the EOP becomes the foundation 

for all emergency response activities. 

In Unit 6, you will learn how emergency managers can prepare for highrisk hazards by developing an EOP. 

Reference

Library For More Information 

 HAZUS: National Hazard Loss Estimating Methodology: 

http://www.fema.gov/hazus/fl_main.htm

 Flood Hazard Mapping Hazard Analysis Tools (list of commercially 

available tools): 

http://www.fema.gov/mit/tsd/en_coast.htm

 Hazardous Materials Risk Analysis (G-305.3), Emergency 

Management Institute. 

http://www.fema.gov/emi

Principles of Emergency Management Page 5.18
UNIT 5: THE PLAN AS PROGRAM CENTERPIECE

Check Knowledge Check 

Carefully read each question and all of the possible answers before selecting the most 

appropriate response for each test item. Circle the letter corresponding to the answer you have

chosen. 

1. A hazard analysis is the first step in the emergency planning process. 

a. True 

b. False 

2. The first step in a hazard analysis is __________________________________. 

a. Identifying sources of additional resources needed to respond to each hazard. 

b. Determining the risk that each hazard poses to your community. 

c. Prioritizing the risk of each hazard to your community. 

d. Identifying all hazards that pose a risk to your community. 

3. A hazard that causes a second emergency event to occur is called a: 

a. Double event. 

b. Cascading event. 

c. Major disaster. 

d. Complex response. 

4. When assessing risk, the top response priority is: 

a. Essential facilities. 

b. Critical Infrastructure. 

c. Life safety. 

5. The Organization and Assignment of Responsibilities describes how the community will be 

organized to respond to emergencies. 

a. True 

b. False 

Principles of Emergency Management Page 5.19
UNIT 5: THE PLAN AS PROGRAM CENTERPIECE

Answers Knowledge Check (Continued) 

1. a 

2. d 

3. b 

4. c 

5. a 

Principles of Emergency Management Page 5.20
Unit 6: Planning and 

Coordination
UNIT 6 

PLANNING AND 

COORDINATION 

Introduction and Unit Overview

An integrated emergency management system depends on an EOP to 

organize response and other emergency activities. Most communities 

also have other plans, such as a comprehensive plan, that should be 

integrated with emergency management. In this unit, you will learn about:

 Identifying resources that your organizations can offer during an 

emergency. 

 

 Describing the benefits of using the Incident Command System for 

emergency response. 

 Describing the interrelationships between ICS and the Emergency 

Operations Center. 

 Listing four ways to augment local resources, and give an example of 

when each is appropriate. 

Principles of Emergency Management Page 6.1 
UNIT 6: PLANNING AND COORDINATION

Linking Hazard Analysis to Capability Assessment 

Each responding agency or organization in the community should have 

personnel rosters, training records, equipment inventories, and other 

information needed to develop a complete picture of the resources that 

are available in an emergency. During the planning process, this 

information should be compared with anticipated resource needs for 

emergencies of varying types and scales. Only by completing such a 

comparison can resource shortfalls be anticipated. 

It would be useful to maintain a list of resources needed to respond to all 

or most of your community’s identified hazards. The list should include: 

 The resource type and number available. 

 The number of each item that is available. 

 A point of contact and 24-hour contact phone numbers for activation 

of the resource. 

 The cost or fee for use of the resource. 

 The date that resource availability was last verified. 

 Procedures for inspection, pick-up, and return of the resource. 

After identifying potential resource shortfalls, the planning team must 

determine how to obtain the additional resources necessary. Some 

options for obtaining needed resources include: 

 Mutual Aid Agreements with neighboring jurisdictions. Mutual aid 

agreements are usually voluntary agreements to pool resources 

when any participating community experiences a shortfall. The most 

common mutual aid agreements are for fire, police, and Emergency 

Medical Services (EMS) services, but mutual aid agreements can be 

developed for any type of resource. 

Note: Do not assume that, because your community has mutual aid 

agreements in place, its resource needs will be met. Emergencies 

that affect multiple communities may make resource sharing 

impossible. Contingency plans should be developed to deal with 

situations in which mutual aid is not available. 

 Standby contracts are contracts for critical equipment and supplies 

that become effective only if necessary following an emergency 

event. Typically, standby contracts establish prices as those in effect 

on the day before the event occurred. The use of standby contracts 

can help ensure that emergency supplies are available in the 

quantities needed and at a reasonable price. 

Principles of Emergency Management Page 6.2
UNIT 6: PLANNING AND COORDINATION

Linking Hazard Analysis to Capability Assessment (Continued) 

 Private-sector organizations that have specialized expertise and 

equipment. Often, industrial facilities have their own response 

personnel and equipment that can be called upon in a general 

emergency. 

 Local military installations have a sense of ownership in the 

community. They also have personnel with specialized training and 

equipment that can be used in a general emergency. Local 

governments can develop agreements, similar to mutual aid 

agreements, with commanders of local military installations to 

augment local response capabilities. 

 State governments have additional technical and response 

capabilities that can be requested when local resources are over 

stretched. Additionally, most State governments have Emergency 

Mutual Aid Compacts (EMACs), which are similar to the local mutual 

aid agreements, with neighboring States to supplement their 

resources. 

 The Federal government can provide technical and other emergency 

assistance when requested by the Governor of the affected State if

the President declares the area a major emergency or disaster. 

When an emergency or disaster declaration occurs, FEMA can draw 

upon the assets and capabilities of 27 Federal agencies and The 

American Red Cross to assist in response and recovery operations. 

There may be other ways to obtain the resources necessary for a given 

response need. Think expansively as you consider resource 

management so that no potential resource is missed. 

Principles of Emergency Management Page 6.3
UNIT 6: PLANNING AND COORDINATION

Activity Activity: What Can Your Organization Offer? 

This activity is designed to make you think about the types of resources 

(i.e., personnel, tools, and equipment) that your organization or agency 

could provide in the event of an emergency. Consider your agency’s role 

in an emergency response. Then, list the resources that the agency 

could provide to fulfill its response requirements. 

Agency: __________________________________ 

Primary Response Role: ___________________________________________ 

Personnel Tools Equipment

Principles of Emergency Management Page 6.4
UNIT 6: PLANNING AND COORDINATION

The EOP and the Incident Command System 

An EOP calls for a coordinated response to various events from a 

number of different governmental, private sector, and volunteer 

organizations. 

ICS is an emergency management model for command, control, and 

coordination of a response operation. It is based on core principles that 

have been proven successful in managing a wide range of emergencies, 

from wildfires to terrorism. 

ICS is an “all-risk” system that has been endorsed or adopted by many 

emergency response organizations including: 

 The National Fire Academy (NFA). 

 International Association of Chiefs of Police (IACP). 

 National Fire Protection Association (NFPA). 

In an emergency, responders may be not be working for their day-to-day 

supervisors, or may be working in different locations. They need to 

function as part of a larger system. ICS provides a standardized 

structure that can pull the many parts of the on-scene response together. 

An ICS can be made up of many different players, such as fire, police, 

medical, community and State officials, and The American Red Cross. 

Federal law requires that ICS be used to manage some specific types of 

incidents, such as hazardous materials incidents. Most EOPs specify 

that ICS will be used in emergency operations. The Direction and Control 

Annex of most EOPs describes the interface between ICS and the EOP. 

ICS is not set in stone, but can be molded to fit different situations. The 

point of the ICS is not to give one player complete control, but to provide 

one system in which all of the players work together in making decisions. 

Principles of Emergency Management Page 6.5
UNIT 6: PLANNING AND COORDINATION

The EOP and the Incident Command System (Continued) 

There are eight major principles of ICS. These are:

1. Common terminology: ICS uses a common terminology as its base. 

This allows anyone from any part of the country to communicate 

effectively within an ICS system. Common terms for common 

functions, actions, and personnel prevent confusion. 

2. Modular organization: The ICS organizational structure can contract 

or expand depending on the magnitude of the incident or the 

operational necessity. The structure includes five functional areas: 

 Command 

 Operations 

 Planning 

 Logistics 

 Finance 

3. Integrated communication: All responding agencies use standard 

operating procedures, common radio networks, etc., so that all 

response personnel can communicate easily throughout the 

response. 

4. Unified command structure: In a unified command structure, all 

agencies contribute to the command process by: 

 Jointly determining overall goals and objectives. 

 Jointly planning tactical activities. 

 Conducting integrated tactical operations. 

 Maximizing the use of all assigned resources. 

A unified command structure means that, to maximize all resources 

such as staff and equipment, agencies might reassign staff to do 

additional or different work than they normally do. 

5. Consolidated action plans: An action plan is required for all 

responders to operate effectively. In small incidents, this may be a 

mental or verbal plan. In large-scale events, a written plan may be 

required for each operational phase of the event. 

Principles of Emergency Management Page 6.6
UNIT 6: PLANNING AND COORDINATION

The EOP and the Incident Command System (Continued) 

6. Manageable span of control: Manageable span of control is defined 

as the number of subordinates one supervisor can effectively 

manage. Typically, a manageable span of control is between three 

and seven persons. 

7. Designated incident facilities: All incidents should have one 

command post from which direction, control, coordination, and 

resource management are conducted. 

8. Comprehensive resource management: All resources should be 

tracked by a central, status-keeping function to: 

 Maximize resource use. 

 Consolidate control. 

 Reduce the communications load. 

 Provide accountability. 

 Reduce self-assignment. 

Again, the goal is to use resources, including both personnel and 

equipment, most effectively. 

The EOP and the EOC 

An EOC is a central location where agency representatives can 

coordinate and make decisions when managing an emergency response. 

The EOP designates the facility that will serve as the EOC during 

emergencies. Specifying an EOC allows decisionmakers to operate in 

one place to coordinate and communicate with support staff. 

Principles of Emergency Management Page 6.7
UNIT 6: PLANNING AND COORDINATION

The EOP and the EOC (Continued) 

The advantages of a single EOC location include: 

 Centralized direction and control. 

 Simplified long-term operation. 

 Increased continuity. 

 Better access to all available information. 

 Easier verification of information. 

 Easier identification and deployment of available resources. 

The EOC should be located away from vulnerable, high-risk areas but 

accessible to the local officials who will use it. A convenient, secure 

location will: 

 Provide a single, recognizable focal point for emergency or disaster 

management. 

 Allow emergency organizations to respond as a team. 

 Permit a faster response and recovery than a fragmented approach 

would provide.

Also, a single facility can function more efficiently because calls for 

assistance can be made to a single location where key officials can: 

 Meet. 

 Make decisions. 

 Coordinate activities. 

Principles of Emergency Management Page 6.8
UNIT 6: PLANNING AND COORDINATION

The EOP and the EOC (Continued) 

The EOC does not provide on-scene management but manages the 

overall event through five key functions: 

1. Direction and control (broad guidance, not tactical). 

2. Situation assessment. 

3. Coordination. 

4. Priority setting. 

5. Resource management.

Principles of Emergency Management Page 6.9
UNIT 6: PLANNING AND COORDINATION

Activity Activity: The EOP, ICS, and EOC 

The purpose of this activity is to match each feature to the EOP, ICS, or 

EOC. For every feature in Column A, choose the appropriate category 

for that feature from Column B. 

The EOP, ICS, and EOC 

1. ____ Modular organization 

2. ____ Single location 

3. ____ Responsibilities for core emergency management functions 

4. ____ Comprehensive resource management 

5. ____ Roles of participating agencies 

6. ____ Method of working together 

7. ____ Unified command structure 

a. EOP 

b. ICS 

c. EOC 

Principles of Emergency Management Page 6.10
UNIT 6: PLANNING AND COORDINATION

Answers Activity: The EOP, ICS, and the EOC (Continued) 

1. b 

2. c 

3. a 

4. b 

5. a 

6. b 

7. b 

Principles of Emergency Management Page 6.11
UNIT 6: PLANNING AND COORDINATION

Case Study Case Study: Multiple-Agency Coordination 

The following description of the response to an elevator grain explosion 

illustrates the complex coordination among the EOP, ICS, EOC, and 

individual agencies. When you have finished reading the case study, 

complete the questions on the following page. 

A grain elevator exploded in DeBruce, Kansas, a largely rural area, in 1998. There were 7 

fatalities, 10 people injured, and 30 who had to be evacuated from the scene. 

Sedgwick County and the Kansas State Governor declared a State of Emergency, and the 

disaster received a Presidential Declaration of Emergency. An Urban Search and Rescue Task 

Force was dispatched to the site. 

The following local, State, and Federal personnel were involved in the response: 

 4 appointed officials 

 22 communications personnel 

 10 elected officials 

 73 emergency management personnel 

 250 fire/rescue personnel 

 12 health and medical specialists 

 9 human services personnel 

 62 law enforcement officers 

 28 military personnel 

 4 public relations officers 

 33 public works personnel 

 10 utility personnel 

 20 volunteers

The scene remained open for response operations over a period of 1 month and 2 days. 

Principles of Emergency Management Page 6.12
UNIT 6: PLANNING AND COORDINATION

Case Study: Multiple-Agency Coordination (Continued) 

How did all of these responders know who was in charge at any given time? 

What source did communications personnel consult for correct technical protocols and 

procedures? 

Where did elected officials and agency heads meet to make policy decisions? 

Principles of Emergency Management Page 6.13
UNIT 6: PLANNING AND COORDINATION

Answers Case Study: Multiple-Agency Coordination (Continued) 

Answers to Case Study

How did all of these responders know who was in charge at any given time? 

The ICS provides for unity of command. The Direction and Control Annex of the EOP 

specifies how the ICS is implemented. 

What source did communications personnel consult for correct technical protocols and 

procedures? 

Their agencies’ SOPs. 

Where did elected officials and agency heads meet to make policy decisions? 

In the EOC. 

Principles of Emergency Management Page 6.14
UNIT 6: PLANNING AND COORDINATION

Augmenting Local Resources 

As mentioned earlier, resources for an integrated emergency 

management system include both personnel and equipment. 

Response to an incident, such as the grain elevator explosion, called for 

far more personnel and equipment than local agencies could provide. 

Most ongoing emergency management programs anticipate possible 

resource shortages, and seek ways in which to augment them. 

Some strategies for obtaining additional resources include: 

 Pre-emergency purchase and storage of items that are known to be 

needed during an emergency, but are not currently in inventory (e.g., 

chain saws and other tools, plywood, plastic sheeting, drinking 

water). 

 Stand-by contracts, which allow the community to purchase or lease 

needed items (ranging from plastic sheeting to heavy equipment) at a 

price equal to the price in effect on the day before the emergency. 

 Mutual aid agreements with other neighboring communities, local, 

and State governments, in which resources from those groups are 

transported to the community experiencing the emergency, then 

returned when they are no longer needed. 

 Solicited donations. 

The Resource Management annex to the EOP directs how resource 

needs will be met during response to an emergency. 

Principles of Emergency Management Page 6.15
UNIT 6: PLANNING AND COORDINATION

Augmenting Local Resources (Continued) 

As resource shortages occur, the resource management staff at the EOC 

receives reports of any needs that cannot be met with an agency’s 

resources. The Resource Management staff gathers essential 

information before trying to fulfill the needs. This information includes: 

 What is needed. 

 How it will be used. (Information should be as specific as possible 

because a different item might work as well or better and be readily 

available). 

 How much is needed. 

 Who needs it. 

 Where it is needed. 

 When it is needed. 

It is important for EOC staff to set priorities when meeting needs. After a 

resource need is identified, it should be logged, passed on to those 

responsible for obtaining and committing resources, and then tracked. 

Pre-Emergency Purchase

Some communities make the decision to purchase and store items that 

are known to be needed in an emergency. The main advantage of 

purchasing items in advance of an emergency is that, when an 

emergency occurs, the items may not be available or may be available at 

a much higher price. 

There are two key disadvantages to pre-emergency purchase, however: 

 Purchase ties up funds for items that may not be used within a known 

timeframe. Emergency Managers and community leaders will have to 

determine whether the benefit of pre-emergency purchase outweighs 

the cost—especially for items that require controlled storage or that 

deteriorate over time. 

 Purchase is not the only cost involved with the resources. The 

resources must be inventoried, stored, and maintained, adding an 

additional cost burden to the community. 

After considering the costs versus the benefits of pre-emergency 

purchase, many communities opt for standby contracts as a more costeffective alternative. 

Principles of Emergency Management Page 6.16
UNIT 6: PLANNING AND COORDINATION

Augmenting Local Resources (Continued) 

Standby Contracts

Standby contracts allow communities to purchase or lease items needed 

for an emergency response at the price in effect on the day before the 

emergency occurred. These contracts offer several advantages over preemergency purchase: 

 They ensure that the resources required will be available within a 

specified timeframe and at an established price. 

 They eliminate the need for inventory, storage, and maintenance that 

accompanies pre-emergency purchase. 

A potential disadvantage exists with standby contracts if, in the aftermath 

of an emergency, the local infrastructure is so disrupted that accessing 

and distributing the contracted materials becomes a logistical nightmare. 

Additionally, in a widespread emergency, suppliers may be overextended 

and unable to deliver the supplies as agreed to in the contract. 

Mutual Aid Agreements

Most emergencies and disasters do not receive Federal disaster 

declarations. Developing mutual aid agreements with adjacent 

communities can be important to ensuring that adequate resources are 

available to address an emergency situation. 

In any emergency or disaster, mutual aid partners may be able to 

provide: 

 Emergency personnel. 

 Equipment, such as bulldozers or dump trucks. 

 Communications capability. 

 Overall management strategy and program management. 

 Sandbags. 

 Facilities, such as warehouses or temporary shelters. 

Principles of Emergency Management Page 6.17
UNIT 6: PLANNING AND COORDINATION

Augmenting Local Resources (Continued) 

Mutual aid agreements usually are documented in the Resource 

Management Annex to the EOP. Although mutual aid agreements are 

designed for emergency situations, emergency management 

partnerships should operate outside of a disaster setting as well. 

Training, preparedness, and mitigation efforts also can be shared and 

enhanced through partnerships 

Solicited Donations

During some types of emergency situations, it may be possible to solicit 

donations of needed supplies from suppliers or directly from the public. 

Typically, solicited donations involve items such as four-wheel drive 

transportation following a blizzard or boats following a flood. Soliciting 

other types of donations, such as emergency supplies, can cause major 

problems, however. 

After-action reports are full of issues relating to unsolicited donations that 

arrive at a disaster site in trailers that are filled with unsorted, unneeded 

goods. Even in communities that have an established mechanism for 

dealing with donated goods, unsolicited donations create huge logistical 

problems. Most communities, therefore, prefer to request cash instead of 

goods. 

Maintaining an Effective EOP 

Regardless of how good an EOP is, it will not work if it is not 

communicated. At a minimum, the plan must be communicated to: 

 Local, State, and Federal officials who need to coordinate the plan 

with their EOPs. 

 Response personnel both inside and outside of the community who 

share responsibility for implementing the plan, reducing damage, and 

saving lives. 

 The local community, which has expectations concerning the 

government’s role in an emergency and, collectively, is critical to the 

plan’s success. 

Principles of Emergency Management Page 6.18
UNIT 6: PLANNING AND COORDINATION

Maintaining an Effective EOP (Continued) 

The best way to communicate the plan to response agencies that are 

responsible for implementing it is through training and exercising. 

Training is critical to response personnel so that they know: 

 What they are supposed to do. 

 When they are to do it. 

 How they are to do it, including: 

• Procedures for accomplishing their task or mission. 

• Coordinating their efforts with personnel within and outside of the 

agency. 

• Communicating their needs and status. 

Training can include a wide range of activities from classroom training; to 

on-the-job training; to the use of checklists, worksheets, and instruction 

cards. The type and duration of the training selected depends on the: 

 Frequency with which the task is performed. (Tasks that responders 

perform often will require less training than tasks that they perform 

only during an emergency situation.) 

 The complexity of the task. 

Exercises are critical to a plan’s success and a successful response 

because they: 

 Test and evaluate plans, policies, and procedures. 

 Identify planning weaknesses. 

 Identify resource gaps. 

 Improve interagency coordination and communication. 

Principles of Emergency Management Page 6.19
UNIT 6: PLANNING AND COORDINATION

Maintaining an Effective EOP (Continued) 

Exercises will show whether what appears to work on paper actually does

work in practice. Exercising will help to: 

 Clarify the roles and responsibilities of all who play any part in the 

response. 

 Improve individual performance by providing an opportunity for 

responders and others to practice their assigned duties. 

 Gain public recognition that the local government has taken steps to 

protect their safety—and gain the support of public officials who will 

support the response effort during an emergency. 

There are several types of exercises graduating in realism, complexity, 

and stress levels. 

Interfacing with Other Plans 

Many cities and counties employ professional planners to develop and 

maintain comprehensive plans for their areas. A comprehensive plan 

includes a study of the traffic and transportation characteristics, 

population, economy and sociology, and the physical features of the 

community. 

Emergency plans and comprehensive plans have obvious overlaps. 

While there is a mitigation component in local emergency management 

programs, comprehensive plans also address mitigation. For example, 

the land use element of the comprehensive plan may call for acquisition 

of park land where property is vulnerable to residential development 

within a floodplain. The community’s land use plans may specify the 

location of future growth and development, as well as the stated goals 

and policies of the community. Regulations serve as tools for 

implementing plans and managing development. 

Land use planning considers the impact of changes in land use and 

development that also change the hazard profile of the community. 

Potable water, sewer service, roads, stormwater runoff patterns, and 

water quality all may be affected by development. Storms and erosion 

also alter a community’s hazard areas. 

Principles of Emergency Management Page 6.20
UNIT 6: PLANNING AND COORDINATION

Interfacing with Other Plans (Continued) 

Communities can incorporate emergency management policies and goals 

into the local planning process through enactment of regulations and 

policies that support structural and non-structural mitigation measures. A 

close working relationship between the emergency planning and 

comprehensive planning functions strengthens both programs. 

One critical area of interface between the EOP and other plans is in the 

hazardous materials arena. 

 Hazardous materials are accompanied by their own planning 

requirements, as established by the Department of Transportation 

(DOT) in 49 Code of Federal Regulations (CFR), and the 

Occupational Safety and Health Administration (OSHA) in 29 CFR. 

 The Environmental Protection Agency (EPA) places additional 

requirements for hazardous waste under 40 CFR. 

These regulations cover a range of requirements, including: 

 Transport and storage of hazardous materials, including placarding 

requirements (49 CFR). 

 Hazard communication under SARA Title III (29 CFR). 

 Clean up and disposal of hazardous materials (49 CFR) and 

hazardous waste (40 CFR). 

Additionally, these regulations require that all incidents involving 

hazardous materials or hazardous waste be managed using ICS. 

If you are unfamiliar with planning requirements related to hazardous 

materials or hazardous waste, consult with your HazMat officers, Local 

Emergency Planning Committee (LEPC), or State emergency 

management agency to ensure that your local EOP also meets the 

requirements for hazardous materials and hazardous waste response. 

Principles of Emergency Management Page 6.21
UNIT 6: PLANNING AND COORDINATION

Summary and Transition 

In this unit, you reviewed the role of the EOP in an emergency 

management program. You also learned about augmenting local 

resources, maintaining an EOP, and interfacing with other plans. In Unit 

7, you will study the core functions of an emergency management 

program. 

Before you proceed to the next unit, take a few minutes to complete the 

Knowledge Check on the next page. 

Reference

Library For More Information 

 Comprehensive guide for developing and maintaining EOPs: State 

and Local Guide 101, Guide for All-Hazard Emergency Operations 

Planning: 

http://www.fema.gov/library/allhzpln.htm 

 Incident Command Systems Independent Study Course: 

http://training.fema.gov/emiweb/IS195.htm

Principles of Emergency Management Page 6.22
UNIT 6: PLANNING AND COORDINATION

Check Knowledge Check 

Carefully read each question and all of the possible answers before selecting the most 

appropriate response for each test item. Circle the letter corresponding to the answer you have

chosen. 

1. Standby contracts establish the price as that which is/was in effect: 

a. On the day before the emergency event. 

b. On the day of the emergency event. 

c. On the day after an emergency event. 

2. The Incident Command System provides a model for command, control, and coordination of 

a response operation. 

a. True 

b. False 

3. The EOP provides _______________________during emergencies. 

a. A method of working together 

b. Centralized direction and control 

c. A source of overall authority, roles, and functions 

d. Communications capabilities 

e. Recommended mitigation measures 

4. Which of the following is not a feature of the Incident Command System? 

a. Central location 

b. Consolidated action plans 

c. Manageable span of control 

d. Common terminology 

e. Modular organization 

5. Mutual aid agreements may provide ________________ when invoked. 

 

a. Unity of command 

b. Emergency public information 

c. Policy decisions 

d. Training 

e. Equipment such as bulldozers or dump trucks 

Principles of Emergency Management Page 6.23
UNIT 6: PLANNING AND COORDINATION

Answers Knowledge Check (Continued) 

1. a 

2. a 

3. c 

4. a 

5. e 

Principles of Emergency Management Page 6.24
Unit 7: Functions of an 

Emergency Management 

Program
UNIT 7 

FUNCTIONS OF 

AN EMERGENCY 

MANAGEMENT 

PROGRAM

Introduction and Unit Overview

This unit examines the functions of an emergency management program. 

After completing this unit, you should be able to: 

 Describe the emergency management core functions that are 

performed during emergencies. 

 Describe the emergency management program functions that 

continue on a day-to-day basis. 

 Distinguish between core functions and program functions. 

 Discuss the role of local laws in establishing emergency management 

authorities and responsibilities. 

Introduction to Emergency Management Functions 

Emergency management is most visible during emergencies, but 

successful response operations require continual operations between 

incidents. 

There are two ways to categorize emergency management activities: 

1. Emergency management core functions that are performed during 

emergencies. 

2. Emergency management program functions that continue on a dayto-day basis. 

In this unit you will learn about the emergency core functions and the 

essential functions of an ongoing emergency management program. 

Principles of Emergency Management Page 7.1 
UNIT 7: FUNCTIONS OF AN EMERGENCY MANAGEMENT PROGRAM

Basis in Local Law

Specific areas of authority and responsibilities for emergency 

management should be clearly stated in local ordinances. Local 

ordinances should spell out who has responsibility for: 

 Emergency management operations in normal, day-to-day activities. 

 Policy decisions affecting long-term emergency management. 

 Final authority in actual disaster situations. 

These ordinances should also stipulate when emergency authorities 

begin during an emergency and end following the response. 

Local laws: 

 Provide for a specific line of succession for elected officials and 

require that departments of government establish lines of succession. 

This ensures continuity of government and leadership in an 

emergency. 

 Define and delineate responsibilities, scopes of authority, and 

standards for the position of emergency program manager for an allhazards integrated local emergency plan, and for mutual support.

Emergency Management Core Functions 

State and Local Guide 101, Guide for All-Hazard Emergency Operations 

Planning, suggests dividing emergency management into eight core 

functions. Your community’s EOP includes these functions as annexes. 

The eight core functions are: 

1. Direction and Control. 

2. Communications. 

3. Warning. 

4. Emergency Public Information. 

5. Evacuation. 

6. Mass Care. 

Principles of Emergency Management Page 7.2
UNIT 7: FUNCTIONS OF AN EMERGENCY MANAGEMENT PROGRAM

Emergency Management Core Functions (Continued) 

7. Health and Medical. 

8. Resource Management. 

Assigning work based on these core functions helps to ensure that 

continuity with the EOP is maintained during a response. 

Note that some State and local EOPs use different terms for the eight 

core functions. If that is the case in your State, review the functions in 

your EOP to see where each of the core functions from SLG-101 are 

covered. 

Emergency Management Program Functions 

Most emergency management reports and surveys are organized 

according to a standard set of emergency management functions. The 

functions serve as a means to divide day-to-day program activities into 

categories. The Emergency Manager uses these functions to organize 

and direct the emergency management program. 

The standard emergency management program functions used by most 

local governments are shown in the following table. These functions 

reflect categories in Capability Assessment for Readiness (CAR) surveys. 

Principles of Emergency Management Page 7.3
UNIT 7: FUNCTIONS OF AN EMERGENCY MANAGEMENT PROGRAM

Emergency Management Program Functions (Continued) 

Emergency Management Program Functions 

Function Description

1. Laws and Authorities A legal basis for the establishment of the emergency management 

organization, the implementation of an emergency management 

program, and continuity of government exists in local law/ordinance 

and is consistent with State statutes concerning emergency 

management. 

2. Hazard Identification and 

Risk Assessment

The jurisdiction has a method for identifying and evaluating natural 

and technological hazards within its jurisdiction. 

3. Hazard Mitigation The jurisdiction has established a pre-disaster hazard mitigation 

program. 

4. Resource Management The local emergency management organization has the human 

resources required to carry out assigned day-to-day responsibilities. 

5. Planning The jurisdiction has developed a comprehensive mitigation plan and 

an EOP. 

6. Direction and Control EOC operating procedures are developed and tested annually. 

7. Communication and Warning Communications system capabilities are established. 

8. Operations and Procedures The jurisdiction has developed procedures for conducting needs and 

damage assessments, requesting disaster assistance, and 

conducting a range of response functions. 

9. Logistics and Facilities The primary and alternate EOCs have the capabilities to sustain 

emergency operations for the duration of the emergency and have 

developed logistics management and operations plans. 

10. Training The jurisdiction conducts an annual training needs assessment, 

incorporates courses from various sources, and provides/offers 

training to all personnel with assigned emergency management 

responsibilities. 

11. Exercises, Evaluations, and 

Corrective Actions 

The jurisdiction has established an emergency management 

exercises program, exercises the EOP on an annual basis, and 

incorporates an evaluation component and corrective action 

program. 

Principles of Emergency Management Page 7.4
UNIT 7: FUNCTIONS OF AN EMERGENCY MANAGEMENT PROGRAM

Emergency Management Program Functions (Continued) 

Emergency Management Program Functions 

Function Description

12. Public Education and 

Information 

An emergency preparedness public education program is 

established, procedures are established for disseminating and 

managing emergency public information in a disaster, and 

procedures are developed for establishing and operating a Joint 

Information Center (JIC). 

13. Finance and Administration The jurisdiction has established an administrative system for day-today operations. 

Principles of Emergency Management Page 7.5
UNIT 7: FUNCTIONS OF AN EMERGENCY MANAGEMENT PROGRAM

Case Study Case Study: Train Derailment Review

The train derailment and anhydrous ammonia release incident that was 

described earlier in this course is recapped below. You will use the facts 

to identify how each of the emergency management program functions 

could be applied to this event. 

The freight train derailed at approximately 3:00 AM, releasing anhydrous ammonia, a toxic gas. 

The Chairman of the County Board of Supervisors declared a State of Emergency, activating 

the local EOP. The local EOP includes the county and all incorporated towns and cities within 

the county. There are mutual aid agreements with surrounding counties. 

The EOC opened, and policymakers gathered to direct the response. Because warning 

systems that rely on radio or television transmission would fail to alert most people, warning 

sirens were used. 

Any evacuation attempt would have exposed residents directly to the hazard, so they were 

initially advised to shelter in their homes. Eventually 21 homes were evacuated. One resident 

perished while attempting to leave the area. 

Approximately one third of a nearby city was also affected, but residents were not able to 

evacuate. All those affected were advised to shelter in place. 

There were some delays activating responders, who could not enter the accident vicinity without 

proper gear. 

One responder was trapped after he drove into a ditch trying to leave the scene because his 

vehicle windshield was coated with frozen gas from the toxic cloud. The responder was 

rescued some time later. 

Hazardous Materials appendices in the EOP listed sources for protective gear, procedures for 

working with hazardous materials, protective actions that could be taken, and information that 

should be given to the public. The Emergency Management Agency had provided training on 

hazardous materials to local responders, and a disaster simulation involving a hazardous 

chemical release is scheduled. 

The Emergency Management Agency followed appendix procedures by activating warning 

sirens and broadcasting instructions to citizens to “shelter in place” by closing all windows and 

turning off furnaces to avoid bringing outside air into their homes. 

Media attention was intense. Citizens needed public information on treating exposure 

symptoms, cleaning homes, and dealing with exposed pets and livestock. Many horses, being 

especially sensitive to airborne contaminants, died. 

Principles of Emergency Management Page 7.6
UNIT 7: FUNCTIONS OF AN EMERGENCY MANAGEMENT PROGRAM

Case Study: Train Derailment Review (Continued) 

Transportation of hazardous materials is Federally regulated and imposes requirements on 

carriers. The railroad contracted with a HazMat team to clean up the site. 

The railroad also contacted those with hospital bills and assumed responsibility for payment. 

The railroad had victims sign releases of liability for additional damages. The State eventually 

forced the railroad to cease requiring releases. 

The State Health Department has been monitoring air and water quality in the area. Some 

contaminated dirt has been removed. 

Principles of Emergency Management Page 7.7
UNIT 7: FUNCTIONS OF AN EMERGENCY MANAGEMENT PROGRAM

Activity Activity: Emergency Management Functions in Action 

Jot down one way that each emergency management function actually 

applied or could apply to the train derailment and hazardous materials 

release described earlier. For example, the Laws and Authorities 

function established the legal basis for the emergency response by the 

involved jurisdictions. 

Emergency Management 

Function Application to the Derailment/Anhydrous Ammonia Release 

1. Laws and Authorities 

2. Hazard Identification and 

Risk Assessment

3. Hazard Mitigation 

4. Resource Management 

5. Planning 

6. Direction and Control 

7. Communication and 

Warning 

8. Operations and 

Procedures 

9. Logistics and Facilities 

10. Training 

11. Exercises, Evaluations, 

and Corrective Actions 

12. Public Education and 

Information 

13. Finance and 

Administration 

Principles of Emergency Management Page 7.8
UNIT 7: FUNCTIONS OF AN EMERGENCY MANAGEMENT PROGRAM

Answers Activity: Emergency Management Functions in Action (Continued) 

Here are some sample answers. There are many possible applications 

for each of the functions. 

Emergency Management 

Function Application to the Derailment/Anhydrous Ammonia Release 

1. Laws and Authorities The transportation of hazardous materials is Federally regulated, so 

Federal regulations affect the local response. 

2. Hazard Identification and 

Risk Assessment

Transportation of hazardous materials close to population centers causes 

risk of releases. The EOP should have an appendix dealing with 

hazardous materials that address this risk. 

3. Hazard Mitigation Zoning changes and better management by the railroad are possible 

measures. 

4. Resource Management There were delays in getting protective gear for responders. 

5. Planning A single plan that tied together county and city responders avoided 

conflicts due to competing emergency plans. 

6. Direction and Control Policymakers gathered in the EOC to establish the overall direction of the 

response. 

7. Communication and 

Warning 

Warning sirens were used. 

8. Operations and 

Procedures 

Each department listed in the plan was notified, and alerted its 

employees and volunteers. 

9. Logistics and Facilities The EOC was activated. 

10. Training Local responders had received training in dealing with hazardous 

materials releases. 

11. Exercises, Evaluations, 

and Corrective Actions 

A simulation that includes a hazardous materials release is scheduled. 

12. Public Education and 

Information 

Residents were advised to shelter in place, and also received information 

on treating exposure symptoms, cleaning homes, and dealing with 

exposed pets and livestock 

13. Finance and 

Administration 

The Emergency Management Agency maintained records of expenses 

for possible compensation by the railroad. 

Principles of Emergency Management Page 7.9
UNIT 7: FUNCTIONS OF AN EMERGENCY MANAGEMENT PROGRAM

Activity Activity: Comparing Functions 

Check one or both columns to show which functions are part of the eight 

core functions of emergency management, and which are functions of an 

emergency management program. 

Function Core Function Program 

Function 

Operations and Procedures 

Logistics and Facilities 

Mass Care 

Direction and Control 

Training 

Communications 

Exercises, Evaluations, and Corrective Actions 

Public Education and Information 

Evacuation or Sheltering In-Place 

Health and Medical 

Finance and Administration 

Warning 

Laws and Authorities 

Hazard Identification and Risk Assessment 

Hazard Mitigation 

Emergency Public Information 

Resource Management 

Planning 

Communication and Warning 

Principles of Emergency Management Page 7.10
UNIT 7: FUNCTIONS OF AN EMERGENCY MANAGEMENT PROGRAM

Answers Activity: Comparing Functions (Continued) 

Function Core Function Program 

Function 

Operations and Procedures 4

Logistics and Facilities 4

Mass Care 4

Direction and Control 4 4

Training 4

Communications 4

Exercises, Evaluations, and Corrective Actions 4

Public Education and Information 4

Evacuation or In-Place Sheltering 4

Health and Medical 4

Finance and Administration 4

Warning 4

Laws and Authorities 4

Hazard Identification and Risk Assessment 4

Hazard Mitigation 4

Emergency Public Information 4

Resource Management 4 4

Planning 4

Communication and Warning 4

Principles of Emergency Management Page 7.11
UNIT 7: FUNCTIONS OF AN EMERGENCY MANAGEMENT PROGRAM

Summary and Transition 

This unit covered the functions of an emergency management program, 

and the difference between program and emergency functions. In unit 8, 

you will practice applying the principles that you learned throughout the 

course. 

Principles of Emergency Management Page 7.12
UNIT 7: FUNCTIONS OF AN EMERGENCY MANAGEMENT PROGRAM

Check Knowledge Check 

Carefully read each question and all of the possible answers before selecting the most 

appropriate response for each test item. Circle the letter corresponding to the answer you have

chosen. 

1. Which statement is true? 

a. Emergency program functions and emergency management core functions are totally 

separate. 

b. Emergency program functions can be emergency management functions at the 

discretion of the emergency manager. 

c. All emergency program functions also are emergency management core functions. 

d. Some emergency program functions also are emergency management core functions. 

2. The 13 emergency management program functions are the categories reported in 

Capabilities Assessment for Readiness surveys. 

a. True 

b. False 

3. As an emergency management core function,______________________ is defined as a 

process to quickly procure, distribute, and utilize personnel and materials needed in an 

emergency. 

a. Direction and Control 

b. Logistics and Facilities 

c. Resource Management 

d. Communications 

4. As an emergency management program function, Resource Management is described as 

_____________________. 

a. The human resources required to carry out assigned day-to-day responsibilities 

b. An administrative system for day-to-day operation 

c. A process to quickly procure, distribute, and utilize personnel and materials needed in 

an emergency 

d. Meeting the needs of the population despite disruption of commerce and infrastructure 

5. In the train derailment case study, what function served to provide overall leadership to the 

response effort? 

a. Resource Management 

b. Laws and Authorities 

c. Direction and Control 

d. Operations and Procedures 

Principles of Emergency Management Page 7.13
UNIT 7: FUNCTIONS OF AN EMERGENCY MANAGEMENT PROGRAM

Answers Knowledge Check (Continued) 

1. d 

2. a 

3. c 

4. a 

5. c 

Principles of Emergency Management Page 7.14
Unit 8: Applying Emergency 

Management Principles
UNIT 8 

APPLYING 

EMERGENCY 

MANAGEMENT 

PRINCIPLES

Introduction and Unit Overview

In the previous unit, you learned about local, State, and Federal 

participants in emergency management programs. In this unit, you will 

learn how to apply the principles you have learned up until now. 

Applying the Integrated Emergency Management System 

The force behind integrated emergency management must be the desire 

to build partnerships for safer communities. 

The approach to an integrated emergency management system includes: 

 All hazards. 

 All resources. 

 All jurisdictions. 

 All emergency management phases. 

An integrated approach to emergency management is based on solid 

general management principles, with the common theme of protecting life 

and property. 

To achieve a truly integrated system, local, State, and Federal 

governments, as well as private sector agencies and citizens must share 

responsibility for applying resources effectively at every stage and phase 

of emergency management. While each group, unit, and individual in the 

system has its own role and function, the ultimate responsibility is shared 

among all. The result of their joint effort is a team product that reflects 

the insights, experiences and skills of the entire team. 

Principles of Emergency Management Page 8.1 
UNIT 8: APPLYING EMERGENCY MANAGEMENT PRINCIPLES

Activity Activity: Interdependence Within the Emergency Management 

Team 

This activity presents a structured format with which to explore 

relationships among emergency personnel in various programs and 

functional areas. Because a central goal of this course is to promote 

interrelationships, the effort you devote to exploring interdependence is 

especially valuable. 

1. To begin, choose a role to play (not your own) from the following list 

of roles. 

 Local Fire Chief 

 Local Executive Officer (Chief Elected Official) 

 Chief of Emergency Medicine at the Local Hospital 

 State Director of Emergency Services 

 Superintendent of Schools 

 Local Public Information Officer 

 Red Cross Disaster Director 

 Hazardous Chemicals Safety Officer at Local Plant 

 Vice-President of Local Utility Company 

 Vice President for Operations of Major Regional Rail Freight 

Carrier 

 Local Police Chief 

2. Fill out the Interdependence Worksheets on the following pages. The 

worksheets will ask you to consider the following factors of the role 

you chose: 

 Emergency protection responsibilities 

 Possible contacts 

 Resource and information needs 

 Results or accomplishments of specified interactions 

 Possible effects 

Principles of Emergency Management Page 8.2
UNIT 8: APPLYING EMERGENCY MANAGEMENT PRINCIPLES

Activity: Interdependence Within the Emergency Management Team 

(Continued) 

Proceed through your worksheets in order, completing each question 

before moving on to the next. 

Your answers may be general. For example, if you know a function for a 

person or organization, but not the correct title, a description of the type is 

sufficient. Also, if you are unsure about a contact but think it would be 

valuable, include it. The value of this activity is in thinking as expansively 

as possible. 

You may not have the detailed knowledge of this role that you have of 

your own, but you do not need in-depth knowledge for this activity—just 

empathy, imagination, and appreciation for the general role of that person 

in all-hazards management. 

Use what you know about emergency management to develop answers. 

Principles of Emergency Management Page 8.3
UNIT 8: APPLYING EMERGENCY MANAGEMENT PRINCIPLES

Activity: Interdependence Within the Emergency Management Team 

(Continued) 

Interdependence Worksheets 

Your Role: 

In what sector do you operate in this position (Federal, State, local, or non-government)? 

Briefly describe your role (in this position) in relation to: 

 Mitigation/prevention. 

 Emergency preparedness. 

 Emergency response. 

 Recovery. 

Principles of Emergency Management Page 8.4
UNIT 8: APPLYING EMERGENCY MANAGEMENT PRINCIPLES

Activity: Interdependence Within the Emergency Management Team 

(Continued) 

Name ten contact points (by position or role) in various functional areas with whom you should 

interact. Consider contacts in all three levels of government as well as with voluntary 

organizations and business/industry. To generate this list, review your role statements and 

consider what you will need from others to accomplish that role. 

Position or role of contact In what sector is this contact? 

__________________________________ 

__________________________________ 

__________________________________ 

__________________________________ 

__________________________________ 

__________________________________ 

__________________________________ 

__________________________________ 

__________________________________ 

__________________________________ 

__________________________________ 

__________________________________ 

__________________________________ 

__________________________________ 

__________________________________ 

__________________________________ 

_____________________________________

_____________________________________ 

_____________________________________ 

_____________________________________ 

_____________________________________ 

_____________________________________ 

_____________________________________ 

_____________________________________ 

_____________________________________ 

_____________________________________ 

_____________________________________ 

_____________________________________ 

_____________________________________ 

_____________________________________ 

_____________________________________ 

_____________________________________ 

Principles of Emergency Management Page 8.5
UNIT 8: APPLYING EMERGENCY MANAGEMENT PRINCIPLES

Activity: Interdependence Within the Emergency Management Team 

(Continued) 

Select five of the contacts you listed on the previous page. For each, name one activity you will 

undertake involving this contact. Then briefly describe information or resources you will need 

from that person. Consider needs in all four emergency management phases (mitigation, 

preparedness, response, recovery). 

Contact Result or Activity Phase Your Needs

Principles of Emergency Management Page 8.6
UNIT 8: APPLYING EMERGENCY MANAGEMENT PRINCIPLES

Activity Activity: Problem Solving In Crisis-Prone County

When you completed the Interdependence Worksheets on the preceding 

pages, you practiced thinking about an integrated emergency 

management system as a network of relationships. In this activity, you 

will apply your knowledge of the fundamental principles and advantages 

and of an integrated emergency management system. The purpose of 

this activity is to practice taking an integrated emergency management 

approach to a specific problem. 

You meet a young woman at a business meeting. She is a new employee in Crisis-Prone, a 

county in another part of your State. She has a background in management and administration 

and is anxious to prove herself, yet she also is mindful of politics and diplomacy. 

Six weeks later, you receive a letter from her asking for your assistance in an emergency 

management project. 

Review this letter closely and prepare a written outline of an appropriate response. The 

questions that follow the letter will help you prepare the outline. 

Her letter begins on the next page, and a structured guideline for outlining your response 

follows it. Be sure to cover, at a minimum, all issues identified in the guideline. 

Principles of Emergency Management Page 8.7
UNIT 8: APPLYING EMERGENCY MANAGEMENT PRINCIPLES

Activity: Problem Solving In Crisis-Prone County (Continued) 

CRISIS-PRONE COUNTY 

Division of Administration 

Office of the County Executive 

Dear ______________________: 

Since our last conversation, Crisis-Prone County has experienced a near catastrophe. As a 

result, the county commissioners have decided that it is time to review the county’s ability to 

respond to emergencies and to ascertain whether there is a need for a program beyond what is 

provided by the county. 

The task of developing a briefing for the commissioners has been assigned to me. This is an 

opportunity to give them their first introduction to integrated emergency management, but, as a 

junior analyst in the organization, I will need to rely on the expertise of my more knowledgeable 

colleagues to develop an outline that sufficiently explains an integrated approach to emergency 

management. 

The event that brought this need to the attention of the commissioners demonstrates both the 

nature and the urgency of our situation. As you know, our county has a population of 650,000 

people and is situated primarily in urban and suburban communities. A variety of transportation 

systems crisscross the county, presenting a considerable resource and challenge. Substantial 

rail traffic passes through the county on a daily basis—including commercial freight traffic that 

runs adjacent to the AMTRAK passenger lines. 

A week ago, a freight train carrying an explosive material derailed at a major rail 

crossing/intersection, just as a passenger train was passing on an adjacent track. Six of the 30 

cars of the freight train derailed and were precariously perched—in such a way that any 

measurable jostling could have caused one or all of them to fall completely off the track, and 

perhaps even rupture and explode. At this time, the cause of the derailment is still under 

investigation. 

The passengers from the AMTRAK train were evacuated (after some confusion) to a nearby 

auditorium, where they waited for several hours before AMTRAK could make alternative plans 

for them. 

Meanwhile, five police officers and other public officials converged on the scene. Soon they 

were joined by officials from the freight and passenger lines. The group of “experts” grew 

substantially as time passed, and a heated debate erupted as to what steps should be taken, by 

whom, and when. Issues of authority and liability were raised and discussed—but never 

resolved. The entire discussion was observed and recorded by several reporters from 

newspapers, radio, and television. When the discussion concluded, it had been decided that 

the police chief and fire chief jointly would oversee operations to ensure the safety of life and 

property in the area surrounding the derailment. 

Principles of Emergency Management Page 8.8
UNIT 8: APPLYING EMERGENCY MANAGEMENT PRINCIPLES

Activity: Problem Solving In Crisis-Prone County (Continued) 

In summary, the problem was resolved without loss of life or serious damage to property. 

However, media coverage of the event caused a public outcry the likes of which the county has 

not seen for years. Public scrutiny and demands for accountability have increased markedly. 

The commissioners are outraged at methods demonstrated during the event and have 

demanded a full inquiry and explanation of the entire episode. 

So, we come to my task—preparing the initial outline of the briefing for the commissioners. 

While I certainly do not have any direct or significant influence on the final outcome, I am 

convinced that good work on this project will contribute to a more constructive approach. Any 

advice you can provide will be helpful. While this is all new to me, I recognize the crucial nature 

of integrated emergency management and want very much to cover at least the fundamentals in 

my submission. 

I look forward to your response. 

 Sincerely Yours, 

Jane Novice 

Junior Management Analyst 

Crisis-Prone County 

Principles of Emergency Management Page 8.9
UNIT 8: APPLYING EMERGENCY MANAGEMENT PRINCIPLES

Activity: Problem Solving In Crisis-Prone County (Continued) 

1. What is the central problem presented in Jane Novice’s letter? 

2. What alternative solutions/responses are appropriate for Novice to consider? 

3. Of the alternatives listed, which one do you prefer and recommend? 

Principles of Emergency Management Page 8.10
UNIT 8: APPLYING EMERGENCY MANAGEMENT PRINCIPLES

Activity: Problem Solving In Crisis-Prone County (Continued) 

4. Assuming that Novice accepts your recommendation, what strategies do you suggest for 

implementing it? 

5. Assist Novice further by briefly outlining how your recommendations and strategies for 

implementation might affect a situation such as the train derailment she described. 

Principles of Emergency Management Page 8.11
UNIT 8: APPLYING EMERGENCY MANAGEMENT PRINCIPLES

Summary and Transition 

In this unit, you practiced applying emergency management principles of 

coordination and interdependence and explained the fundamental 

features of an Integrated Emergency Management System. Unit 9 will 

provide a summary of what you have learned in this course. 

Principles of Emergency Management Page 8.12
UNIT 8: APPLYING EMERGENCY MANAGEMENT PRINCIPLES

Check Knowledge Check 

Carefully read each question and all of the possible answers before selecting the most 

appropriate response for each test item. Circle the letter corresponding to the answer you have 

chosen. 

1. The Red Cross Disaster Director works in the ________________sector. 

a. Federal government 

b. State government 

c. local government 

d. non-government 

2. The Superintendent of Schools works in the __________________sector. 

a. Federal government 

b. State government 

c. local government 

d. non-government 

3. The central problem in Crisis-Prone County, as revealed by Jane Novice’s letter, was: 

a. Media attention that embarrassed local officials. 

b. Lack of a coordinated plan for dealing with local emergencies. 

c. Disagreements between police and public officials on resolving the derailment situation. 

d. Lack of plans for dealing with evacuated AMTRAK passengers. 

e. Failure to recognize the hazard posed by rail line locations. 

4. Disagreements among police officers and public officials in Crisis-Prone County could have 

been avoided by: 

a. Reaching agreement on direction and control of local emergencies. 

b. Appointing the Board of Commissioners to oversee emergency operations. 

c. Assuring that a Public Information Officer is always present to advise officials. 

d. Conducting training courses on conflict resolution. 

5. The best outcome of an official inquiry into the derailment incident would be 

______________________. 

a. Banning rail traffic through populated areas 

b. Identifying officials who failed to properly perform their duties 

c. Payment of damages by the railroad carrying the explosive material 

d. Determination to develop an integrated emergency management system 

e. Banning of transport of hazardous materials through populated areas 

Principles of Emergency Management Page 8.13
UNIT 8: APPLYING EMERGENCY MANAGEMENT PRINCIPLES

Answers Knowledge Check (Continued) 

1. d 

2. c 

3. b 

4. a 

5. d 

Principles of Emergency Management Page 8.14
Unit 9: Course Summary
UNIT 9 

COURSE 

SUMMARY

Introduction and Unit Overview

This unit will briefly summarize what you have learned in the Principles of 

Emergency Management Course. 

At the end of this unit, you should be able to: 

 Discuss the main points of the course. 

 Resolve any questions that you may have about any of the materials. 

When you are finished with this unit, be sure to take the Final Exam, 

either online or using the answer sheet provided in your course packet. 

Integrated Emergency Management System 

When an emergency or disaster occurs: 

 Agencies from different jurisdictions and government levels need to 

work together. Major emergencies and disasters ignore city, county, 

and State boundaries. 

 Rapid decisionmaking is required. 

Without planning and coordination, emergency operations can suffer from 

serious misdirection and mistakes. 

An integrated emergency management system provides a conceptual 

framework for organizing and managing emergency protection efforts. 

This framework prescribes when and how local officials and agencies will 

work together to deal with a full range of emergencies, from natural 

disasters to terrorism. 

Principles of Emergency Management Page 9.1 
UNIT 9: COURSE SUMMARY

Integrated Emergency Management System (Continued) 

Each level of government participates in and contributes to emergency 

management. 

 Local government has direct responsibility for the safety of its 

citizens, knowledge of the situation and personnel, and proximity to 

both the event and resources. Emergency Support Services are the 

departments of local government that are capable of responding to 

emergencies 24 hours a day. They include law enforcement, 

fire/rescue, and public works. They may also be referred to as 

emergency response personnel or first responders. 

 State government has legal authorities for emergency response and 

recovery and serves as the point of contact between local and 

Federal governments. 

 Federal government has legal authorities; fiscal resources; research 

capabilities, technical information and services, and specialized 

personnel to assist local and State agencies in responding to and 

recovering from emergencies or disasters. 

The Emergency Management Cycle 

Emergency activities are divided into four phases that form a cycle. The 

phases of the cycle are: 

Phase 1: Mitigation—Taking sustained actions to reduce or eliminate 

long-term risk to people and property from hazards and their effects. 

Phase 2: Preparedness—Building the emergency management 

profession to mitigate against, prepare for, respond to, and recover from 

any hazard by planning, training, and exercising. 

Phase 3: Response—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. 

Phase 4: Recovery—Rebuilding communities so that individuals, 

businesses, and governments can function on their own, return to normal 

life, and protect against future hazards. 

Following the emergency, we learn how to mitigate, prepare, and respond 

better. As we revise our efforts, the cycle repeats. 

Principles of Emergency Management Page 9.2
UNIT 9: COURSE SUMMARY

The Plan as Program Centerpiece 

Between emergencies and disasters, emergency managers can focus on 

mitigation and preparedness measures. Hazard analysis is a crucial first 

step. 

Hazard analysis determines: 

 What can occur. 

 How often it is likely to occur. 

 The devastation it is likely to cause. 

 How likely it is to affect the community. 

 How vulnerable the community is to the hazard. 

The first step is to develop a list of hazards that may occur in the 

community. 

Next, hazard profiles should address each hazard’s: 

 Duration. 

 Seasonal pattern. 

 Speed of onset. 

The availability of Warnings also will play a crucial role in a hazard profile. 

Hazard-specific information is combined with a profile of your community 

to determine the community’s vulnerability—or risk of damage—from the 

hazard. 

After information about the community is gathered, emergency managers 

use it to develop the community’s hazard analysis. After a hazard and 

community profile has been compiled, it is helpful to quantify the 

community’s risk by merging the information so that the community can 

focus on the hazards that present the highest risk. 

Risk is the predicted impact that a hazard would have on people, 

services, and specific facilities and structures in the community. A 

severity rating quantifies the expected impact of a specific hazard. 

Principles of Emergency Management Page 9.3
UNIT 9: COURSE SUMMARY

Planning and Coordination 

An Emergency Operations Plan (EOP) is a key component of an 

emergency program. 

 The emergency program is in continuous operation and includes nonemergency activities, such as training and exercises. 

 The EOP is activated to guide response to emergencies, and is only 

in effect during emergencies. 

When an emergency threatens or strikes, the community must be 

prepared to take immediate action. An EOP describes: 

 What emergency response actions will occur. . . 

 Under what circumstances. . . 

 Using what resources. . . 

 Who will be involved and by what authority. 

An EOP consists of the following components: 

 The Basic Plan 

 Annexes 

 Appendices 

 SOPs 

The EOP provides overall authority, roles, and functions during 

emergencies. 

An Emergency Operation Center (EOC) is a central location where 

agency representatives can coordinate and make decisions when 

managing an emergency response. EOC personnel do not control the 

on-scene response but help on-scene personnel by establishing priorities, 

coordinating the acquisition and assignment of resources, and acting as a 

liaison with other communities and the State. The EOC is a place for 

working together. 

The Incident Command Center (ICS) is an emergency management 

model for command, control, and coordination of a response operation. 

ICS is a method of working together according to the EOP. 

Principles of Emergency Management Page 9.4
UNIT 9: COURSE SUMMARY

Planning and Coordination (Continued) 

Conclusion of mutual aid agreements to augment local resources is an 

important part of developing and maintaining an emergency management 

program. 

In any emergency or disaster, mutual aid partners may be able to 

provide: 

 Communications capability. 

 Emergency personnel. 

 Overall management strategy and program management. 

 Equipment such as bulldozers or dump trucks. 

 Sandbags. 

 Facilities such as warehouses or temporary shelters. 

The best way to communicate the plan to response agencies that are 

responsible for implementing the plan is through training and exercising. 

Training is critical to response personnel so that they know: 

 What they are to do. 

 When they are to do it. 

 How they are to do it. 

Principles of Emergency Management Page 9.5
UNIT 9: COURSE SUMMARY

Functions of an Emergency Management Program 

There are two ways to categorize emergency management activities: 

 Emergency management core functions that are performed during 

emergencies. 

 Emergency management program functions that continue on a dayto-day basis. 

The eight emergency management core functions performed during 

emergencies are: 

1. Direction and control. 

2. Communications. 

3. Warning. 

4. Emergency public information. 

5. Evacuation (or in-place sheltering). 

6. Mass care. 

7. Health and medical. 

8. Resource management. 

Principles of Emergency Management Page 9.6
UNIT 9: COURSE SUMMARY

Functions of an Emergency Management Program (Continued) 

Day-to-day emergency management program functions include: 

 Hazard Identification and Risk Assessment. 

 Hazard Mitigation. 

 Resource Management. 

 Planning. 

 Direction and Control. 

 Communication and Warning. 

 Operations and Procedures. 

 Logistics and Facilities. 

 Training. 

 Exercises, Evaluations, and Corrective Actions. 

 Public Education and Information. 

 Finance and Administration. 

Emergency Management Program Partners 

Emergency management partners include local, State, and Federal 

emergency managers. 

The local Emergency Program Manager has the day-to-day responsibility 

of managing emergency programs and activities. The role entails 

coordinating all aspects of a jurisdiction’s mitigation, preparedness, 

response, and recovery capabilities. 

The State’s role is to supplement and facilitate local efforts before, during, 

and after emergencies. The State must be prepared to maintain or 

accelerate services and to provide new services to local governments 

when local capabilities fall short of disaster demands. 

Principles of Emergency Management Page 9.7
UNIT 9: COURSE SUMMARY

Emergency Management Program Partners (Continued) 

The State provides direct guidance and assistance to local jurisdictions 

through program development, and it channels Federal guidance and 

assistance down to the local level. In a disaster the State office helps 

coordinate and integrate resources and apply them to local needs. The 

State’s role might be best described as “pivotal.” 

The Federal government provides legislation, Executive Orders, and 

regulations that influence all disaster activities. It also maintains the 

largest pool of fiscal resources that can be applied to emergency 

management. Assistance may take the form of fiscal support, technical 

assistance, and information about materials, personnel resources, and 

research. FEMA takes a lead role in national preparedness for major 

crises. It also plays coordinating and supportive/assistance roles for 

integrated emergency management in partnership with State and local 

emergency management entities. 

Applying Emergency Management Principles 

Emergency management partners at all levels need to form 

interdependent networks to function as a team when responding to a 

given emergency situation. 

You practiced describing a network of relationships connected to one 

emergency management system participant. You also provided a 

rationale for developing an integrated emergency management system in 

Crisis-Prone County. 

Principles of Emergency Management Page 9.8
UNIT 9: COURSE SUMMARY

Next Steps 

You have now completed IS 230 and should be ready to take the Final 

Exam. 

Complete the final exam in the back of the book by marking the correct 

responses. 

To submit the final exam online, go to http://www.fema.gov/emiweb/IS

and click on the courses link. Click on the title for this course, and scroll 

down the course description page to locate the final exam link. After you 

have selected the final exam link and the online answer sheet is open, 

transfer your answers, and complete the personal identification data 

requested. 

To submit the final exam by mail using the standard answer sheet, follow 

the instructions printed on the form. 

Principles of Emergency Management Page 9.9
Appendix A: Job Aid
APPENDIX A 

JOB AID

Job Aid 5.1: Hazard Analysis Worksheet

 

Hazard: ____________________________________________________________________ 

Frequency of Occurrence: 

 Highly likely (Near 100% probability in the next year) 

 Likely (Between 10% and 100% probability in the next year, or at least one chance in the 

next 10 years) 

 Possible (Between 1% and 10% probability in the next year, or at least one chance in the 

next 100 years) 

 Unlikely (Less than 1% probability in the next 100 years) 

Seasonal pattern? 

 No 

 Yes. Specify season(s) when hazard occurs: __________________________________ 

Potential Impact:

 Catastrophic (Multiple deaths; shutdown of critical facilities for 1 month or more; more 

than 50% of property severely damaged) 

 Critical (Injuries or illness resulting in permanent disability; shutdown of critical facilities for 

at least 2 weeks; 25% to 50% of property severely damaged) 

 Limited (Temporary injuries; shutdown of critical facilities for 1-2 weeks; 10% to 25% of 

property severely damaged) 

 Negligible (Injuries treatable with first aid; shutdown of critical facilities for 24 hours or 

less; less than 10% of property severely damaged) 

Are any areas or facilities more likely to be affected (e.g., air, water, or land; 

infrastructure)? If so, which? 

Principles of Emergency Management Page A.1
APPENDIX A: JOB AID

Job Aid 5.1: Hazard Analysis Worksheet (Continued)

Speed of Onset: 

 Minimal or no warning 

 6 to 12 hours warning

 12 to 24 hours warning

 More than 24 hours warning

Potential for Cascading Effects? 

 No 

 Yes. Specify effects: 

Principles of Emergency Management Page A.2
Appendix B: Acronym List
APPENDIX B 

ACRONYM LIST

CAR Capabilities Assessment for Readiness 

CERT Community Emergency Response Team 

DOD Department of Defense 

DOE Department of Energy 

DOT Department of Transportation 

DMAT Disaster Medical Assistance Team 

DMORT Disaster Mortuary Team 

EEI Essential Elements of Information 

EMA Emergency Management Agency 

EMAC Emergency Mutual Aid Compacts 

EMI Emergency Management Institute 

EMS Emergency Medical Services 

EOC Emergency Operations Center 

EOP Emergency Operations Plan 

EPA Environmental Protection Agency 

EPI Emergency Public Information 

ESFs Emergency Support Functions 

FEMA Federal Emergency Management Agency 

FRP Federal Response Plan 

GAR Governor’s Authorized Representative 

HHS Department of Health and Human Services 

IACP International Association of Chiefs of Police 

ICP Incident Command Post 

ICS Incident Command System 

JIC Joint Information Center 

NEST Nuclear Emergency Support Team 

NFA National Fire Academy 

NFPA National Fire Protection Association 

NSDS National Safety Data Sheet 

PDS Professional Development Series 

PIO Public Information Officer 

SBA Small Business Association 

SOPs Standard Operating Procedures 

Principles of Emergency Management Page B.1
APPENDIX B: ACRONYM LIST

TTY Text Telephone 

USDA U.S. Department of Agriculture 

Principles of Emergency Management Page B.2
Appendix C: Emergency 

Supply Kit
APPENDIX C 

EMERGENCY 

SUPPLY KIT

Emergency Supply Kit 

Water

Store water in plastic containers such as soft drink bottles. Avoid using containers that will 

decompose or break, such as milk cartons or glass bottles. A normally active person needs to 

drink at least 2 quarts of water each day. Hot environments and intense physical activity can 

double that amount. Children, nursing mothers, and ill people will need more. 

 Store 1 gallon of water per person per day 

(2 quarts for drinking, 2 quarts for food 

preparation/sanitation.)* 

 Keep at least a 3-day supply of water for 

each person in your household. 

If you have questions about the quality of the water, purify it before drinking. You can heat 

water to a rolling boil for 10 minutes or use commercial purification tablets to purify the water. 

You can also use household liquid chlorine bleach if it is pure, unscented 5.25% sodium 

hypochlorite. To purify water, use the following table as a guide: 

Ratios for Purifying Water with Bleach 

Water Quantity Bleach Added 

1 Quart 

1 Gallon 

5 Gallons 

4 Drops 

16 Drops 

1 Teaspoon 

After adding bleach, shake or stir the water container and let it stand 30 minutes before 

drinking. 

Principles of Emergency Management Page C.1
APPENDIX C: EMERGENCY SUPPLY KIT

Emergency Supply Kit (Continued) 

Food

Store at least a 3-day supply of nonperishable food. Select foods that require no refrigeration, 

preparation, or cooking and little or no water. If you must heat food, pack a can of Sterno®. 

Select food items that are compact and lightweight. *Include a selection of the following foods 

in your Emergency Supply Kit: 

 Ready-to-eat canned meats, fruits, and 

vegetables 

 Canned juices, milk, soup (if powdered, 

store extra water) 

 Staples⎯sugar, salt, pepper 

 High-energy foods⎯peanut butter, jelly, 

crackers, granola bars, trail mix 

 Vitamins 

 Foods for infants, elderly persons, or 

persons on special diets 

 Comfort/stress foods⎯cookies, hard 

candy, sweetened cereals, lollipops, 

instant coffee, tea bags 

First Aid Kit

Assemble a first aid kit for your home and one for each car. A first aid kit* should include: 

 Sterile adhesive bandages in assorted 

sizes 

 2-inch sterile gauze pads (4-6) 

 4-inch sterile gauze pads (4-6) 

 Hypoallergenic adhesive tape 

 Triangular bandages (3) 

 Needle 

 Moistened towelettes 

 Antiseptic 

 Thermometer 

 Tongue blades (2) 

 Tube of petroleum jelly or other lubricant 

 Assorted sizes of safety pins 

 Cleaning agent/soap 

 Latex gloves (2 pairs) 

 Sunscreen 

 2-inch sterile roller bandages (3 rolls) 

 3-inch sterile roller bandages (3 rolls) 

 Scissors 

 Tweezers 

Nonprescription Drugs 

 Aspirin or nonaspirin pain reliever 

 Antidiarrhea medication 

 Antacid (for stomach upset) 

 Syrup of Ipecac (used to induce vomiting if 

advised by the Poison Control Center) 

 Laxative 

 Activated charcoal (used if advised by the 

Poison Control Center) 

Principles of Emergency Management Page C.2
APPENDIX C: EMERGENCY SUPPLY KIT

Emergency Supply Kit (Continued) 

Tools and Supplies

 Mess kits, or paper cups, plates and plastic 

utensils* 

 Emergency preparedness manual* 

 Battery-operated radio and extra batteries* 

 Flashlight and extra batteries* 

 Cash or traveler’s checks, change* 

 Nonelectric can opener, utility knife* 

 Fire extinguisher: small canister, ABC type

 Tube tent 

 Pliers 

 Tape 

 Compass 

 Matches in a waterproof container 

 Aluminum foil 

 Plastic storage containers 

 Signal flare 

 Paper, pencil 

 Needles, thread 

 Medicine dropper 

 Shutoff wrench, to turn off household gas 

and water 

 Whistle 

 Plastic sheeting 

 Map of the area (for locating shelters) 

Sanitation 

 Toilet paper, towelettes* 

 Soap, liquid detergent* 

 Feminine supplies* 

 Personal hygiene items* 

 Plastic garbage bags, ties (for personal 

sanitation uses) 

 Plastic bucket with tight lid 

 Disinfectant 

 Household chlorine bleach 

Clothing and Bedding

*Include at least one complete change of clothing and footwear per person. 

 Sturdy shoes or work boots* 

 Rain gear* 

 Blankets or sleeping bags* 

 Hat and gloves 

 Thermal underwear 

 Sunglasses 

Principles of Emergency Management Page C.3
APPENDIX C: EMERGENCY SUPPLY KIT

Emergency Supply Kit (Continued) 

Special Items

Remember family members with special needs, such as infants and elderly or disabled persons. 

For Baby* 

 Formula 

 Diapers 

 Bottles 

 Powdered milk 

 Medications 

For Adults* 

 Heart and high blood pressure medication 

 Insulin 

 Prescription drugs 

 Denture needs 

 Contact lenses and supplies 

 Extra eye glasses 

 Entertainment⎯games and books 

 Important Family Documents ⎯keep these 

records in a waterproof, portable container 

 Will, insurance policies, contracts, deeds, 

stocks and bonds 

 Passports, social security cards, 

immunization records 

 Bank account numbers 

 Credit card account numbers and 

companies 

 Inventory of valuable household goods, 

important telephone numbers 

 Family records (birth, marriage, death 

certificates) 

Principles of Emergency Management Page C.4
FINAL EXAM

1. The overall goal of emergency management is to: 

a.

b. 

c. 

d. 

Respond quickly to all emergencies and disasters. 

Save lives, protect property, and protect the environment. 

Prevent disasters from occurring. 

Restore communities to pre-disaster condition. 

2. The role of the local Emergency Program Manager could best be described as : 

a.

b. 

c. 

d. 

Coordinating resources and activities in all four phases of emergency management. 

Always directing all operations at the scene of an emergency. 

Usually working directly with the State and Federal governments. 

Issuing press releases and making statements to the media about disasters. 

3. A request for a Presidential Declaration of Disaster must be made by the: 

a.

b. 

c. 

d. 

Chief elected official of the affected area. 

Governor of the affected State. 

State Emergency Program Manager of the affected State. 

Designated Federal Coordinating Officer. 

4. An example of a Mitigation phase activity would be: 

a.

b. 

c. 

d. 

Training. 

On-site operations to provide emergency assistance. 

Building earthquake-resistant structures in earthquake zones. 

Debris removal. 

5. Providing Disaster Unemployment Assistance is an example of a ________ phase activity. 

a.

b. 

c. 

d. 

Mitigation 

Preparedness 

Response 

Recovery 

6. Most emergencies are handled at the local level without State or Federal assistance. 

a. True

b. False

Principles of Emergency Management Page 1 
FINAL EXAM

7. Which is the guiding document used to coordinate response and recovery actions? 

a.

b. 

c. 

d. 

Standard Operating Procedures 

Emergency Operations Plan 

Risk Management Plan 

Community Comprehensive Plan 

8. An individual will have responsibilities primarily in one of the four functional groups within 

emergency management. These functional groups are: 

a.

b. 

c. 

d. 

Mitigation, Preparedness, Response, and Recovery. 

Incident Command, Safety, Operations, and Administration. 

Federal government, State government, local government, private sector. 

Policy, Coordination, Operational Response, and Field Response. 

9. Which statement is true? 

a.

b. 

The four phases of the emergency management cycle usually overlap. 

The four phases of the emergency management cycle have distinct beginnings and 

endings. 

10. A hazard is defined as: 

a.

b. 

c. 

d. 

A quantified measure of risk. 

A severity rating. 

A dangerous event or circumstance that has the potential to lead to an emergency or 

disaster. 

Vulnerability to a technological hazard. 

11. One of the planning factors to be considered during a hazard analysis is: 

a.

b. 

c. 

d. 

Federal assistance that may be available. 

How quickly the community can recover. 

The speed of onset for each hazard. 

What local industry can contribute to the response. 

12. Training and exercising is an example of a ________________ activity. 

a.

b. 

c. 

d. 

Mitigation 

Preparedness 

Response 

Recovery 

13. After a Presidential Disaster Declaration for individual assistance, Federal help may be for: 

a.

b. 

c. 

d. 

Aiding local officials. 

Building contractors’ repairs. 

Medical and funeral expenses of individuals. 

Contractors hauling debris. 

Principles of Emergency Management Page 2
FINAL EXAM

14. Demographics is an element to survey for response priorities in a(n): 

a.

b. 

c. 

d. 

Multi-hazard Mitigation Plan. 

Emergency Operations Plan. 

Hazard analysis. 

Risk assessment. 

15. The predicted impact that a hazard would have on people, services, and specific facilities 

and structures in the community is called: 

a. 

b. 

c. 

d. 

Hazard identification. 

Risk. 

Crisis index. 

Sector profile 

16. The _________________ serves as a model for command, control, and coordination of a 

response operation. 

a.

b. 

c. 

d. 

Emergency Operations Center 

Standard Operating Procedures 

Incident Command System 

Emergency Operations Plan 

17. An agreement between two government entities for mutual support to one another in time 

of emergency is called: 

a.

b. 

c. 

d 

Mutual Aid. 

Services Contract. 

Reciprocity. 

Resource Sharing Contract. 

18. Individuals responsible for logistics, planning, and finance during an emergency belong to 

which emergency management functional group? 

a.

b. 

c. 

d. 

Coordination 

Field Response 

Operations 

Policy 

19. The State government has the pivotal role of coordinating and channeling national 

resources to meet local needs in a major disaster. 

a.

b. 

True 

False 

Principles of Emergency Management Page 3
FINAL EXAM

20. Overall authority, roles, and functions during emergencies are established by the: 

a.

b. 

c. 

d. 

Emergency Operations Center. 

Emergency Operations Plan. 

Incident Command System. 

Federal Response Plan. 

21. When the local community’s resources are not adequate to deal with an emergency, 

mutual aid contracts offer a way to augment resources. 

a.

b. 

True 

False 

22. Federal agencies mobilize their resources to respond to catastrophic disaster through: 

a.

b. 

c. 

d. 

The Catastrophic Response Group. 

A Presidential Declaration of Disaster. 

The Federal Response Plan. 

Civil Emergency Preparedness. 

23. The eight emergency management core functions usually are the annexes to the 

Emergency Operations Plan. 

a.

b. 

True 

False 

24. The thirteen emergency management program functions are activities during emergencies, 

and the eight core functions reflect how day-to-day activities are organized. 

a.

b. 

True 

False 

25. Local emergency plans should be coordinated with ___________________. 

a.

b. 

c. 

d. 

The community’s comprehensive plan 

The Incident Command System 

The Federal Response Plan 

Congressional representatives 

Principles of Emergency Management Page 4