Text

Applicant Exhibit A-89,consisting of FEMA May 1984 Instructor Guide 51, Formulating Public Policy in Emergency Mgt
	ML20008D459
Person / Time
Site:	Seabrook
Issue date:	06/19/1989
From:	; Federal Emergency Management Agency
To:	;
References
	OL-A-089, OL-A-89, NUDOCS 9003020274
	Download: ML20008D459 (115)
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I l I-l fi t FORMULATING PUBLIC POLICY IN EMERGENCY MANAGEMENT A COURSE FOR PUBLIC OFFICIALS INSTRUCTOR GUIDE j i Federal Emergency Management Agency National Emergency Training Center Emergency Management Institute Emmitsburg, Maryland Fall 1983

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CONTENTS I Page-i LIST OP ACRONYMS 111. INTRODUCTION v-INSTRUCTIONAL METHODOLOGY vil. I! Course Goal vill ? Course Objectives vill Guides for Instructor lx AGENDA xill COURSE MATERIALS xy LESSON PLANS 1 Section I: Policy Analysis 5 Introduction to Policy Analysis 5 Policy Analysis Exercise: The i Exploding Circle Approach 8 .Section Summary n Section II: Role Analysis _ 11 Introduction to Role Theory 11 Role Analysis Exercise 13 Section Summary 14 Section III: Hazard Analysis-15 Hazard Analysis in Emergency Management 15 Hazard Vulnerability Exercise 19 Section Summary - -20 Section IV: Analyzing Policy 21 v Analyzing Policy Exercise: Sewer Explosion, Central City, Columbia, January 18,1983 21 Section Summary 22 .e j i

1 g p . CONTENTS (continued) L M i Section V: Formulating Polley 25 P Policy Analysis Under Emergency Conditions 25 Media Exercise 29-Section Summary. 31 i Summary and Conclusions 33 -l APPENDICES - A. Selected Bibliography 35 B. Visuals 39 C. Exercises. 49 D. - Video Tape Scripts 87 J E. Media Exercise Handouts '95 1 4 -s L.. I^ l^ 1 L,- I l l - 11 E

1 . LIST OF ACRONYMS EOC Emergency operating center FEMA Federal Emergency Management Agency IG Instructor Guide NETC National Emergency Training Center NGA National Governors' Association SM~ Student Manual i I l i -l i -r l l t til

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1 INTRODUCTION Formulating Public Policy in Emergency Management is an eight-hour course for public officials. The course is presented in a workshop setting with the Course Book and Resource Manual providing the instructional content. Three methodologies are used-lecture, discussion, and exercise-to achieve the course objectives. Emphasis is placed on awareness, information, and skill development. The course consists of four items: a Course Book and Resource Manual for public officials, the Instructor Guide, a video tape, and twelve hazard risk map visuals. Course visuals are included in Appendix B and can be easily reproduced. The Instructor Guide provides a framework for instructional planning that requires you to follow a structured lesson plan for the course. Once you become familiar with the methodology, content, and organization of the course, you will be able to teach from a perspectivedhat reflects the importance of extempora-neous communication in the teachinghearning process. Although knowledge about emergency management is important, the most essential factor to consider in preparing to teach this course is your ability to communicate effectively with the target audience. The significance of the communication factor can be illustrated by presenting one concrete example regarding the teaching / learning connection mentioned above. This connection can be considered by analyzing an assumption about adult learning. The assumption is this: Adults come to the instructional setting motivated to learn, particularly when the training is voluntary. They are a demanding and independent audience. When their expectations for learning are not met, they will not discriminate between the quality of the instructional materials and the quality of the instructional presentation. Consequently, it is important for you to consider your presentation from a perspective that emphasizes communication skills, along with knowledge about public policy and emergency management. No course will ever perfectly suit a particular group. The instructor plays the key role in bridging the gap between the course objectives and content and a specific group of learners. The instructor and the participants must repeatedly remind themselves that application of the course content to suit each individual's needs is essential. The easier, common tendency is to reject the material as " irrelevant" or "not suited for use" rather than to take the time to challenge one's own thinking with new concepts. Learning should always be a mind-stretching experience. v j

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INSTRUCTIONAL METHODOLOGY This course focuses on the public official's role in establishing public policy in emergency management and executing public policy during high-stress emergencies. In it, three methodologies are used-lecture, discussion, and exer-cise-to achieve five objectives that focus on five topics: o Polley Analysis, o Role Analysis, o Hazard Analysis, e Analyzing Policy, and e Formulating Policy. Approximately 40 percent of the instructional time is allotted for the instruc-tor's presentations and about 60 percent of the time is devoted to discussion and exercise. Participants will be divided into four groups that will work as teams throughout the course. The need to work as a team should be stressed. Although all aspects of the course are interrelated, the cornerstone for this course is the Course Book and Resource Manual (referred to in the lesson plans as Student Manual or SM). The manual serves a dual purpose: o First, it provides sufficient content for eight hours of instruction; e Second, it can serve as a reference source after the course is completed. Because eight hours is a limited period of time to consider a serious subject in depth, the Course Book and Resource Manual was designed to provide a link between immediate course activities and long-term utility. - The manual contains an introduction, five sections, and extensive appen-dices. Three basic principles of instructional design-measurable objectives, comprehensive content, and positive reinforcement-were considered with regard to the manual's dual purpose: - e Five measurable objectives achieve the course goal and are directly related to the five toples stated above. These objectives are achieved through five exercises, o Comprehensive content was selected in relationship to the five objec-tives. All of the relevant readings and exercises are presented in the five sections mentioned above. The instructor summarizes the basic concepts in each section so that participants can complete the exer-cises. Original materials are included where required. Materials developed by other organizations for the Federal Emergency Management Agency (FEMA) are also included to avoid " reinventing the wheel." Additional information, derived from a review of relevant sources, is included for future reading and reference. All five sections stress on-the-job application. vil ...,,,,.t,. _j

Overall, the course is consistent with the psychology of learning. Research indicates that if participants practice what they have learned and continue to use it, learning and retention are much higher. Studies have shown that if participants are not actively involved in the learning process, within a year they will forget 50 percent of what they have learned. In two years, participants will forget 80 percent of the content. The Course Book and Resource Manual design, in part, deals with the issue of long-term retention through its dual purpose. COURSE GOAL This course has one basic goal-to increase the public official's ability to establish and execute public policy in emergency management. COURSE OBJECTIVES The course goal will be achieved on the basis of five objectives. After completing this course and reviewing the content included in the Course Book and Resource Manual, the participants will know how to do the following Use policy analysis as it relates to their specific role in an emergency; e Use role analysis to describe the various role relationships and responsi-e bilities that interact during an emergency in their communities; e Use hazard analysis to establish a public policy based on a review of their communities' hazards, resources, and codes; r e Analyze public policy from an analysis perspective that considers the policy's impact on a community; and Formulate a public policy statement that can be delivered through the e news-media to reassure the community-at-large that the emergency situation is being handled by using all available resources, i L vill

GUIDES FOR INSTRUCTOR As the instructor, you should set a tone for this session that clearly communicates the following: e This course is designed to encourage maximum interact!on between you and participants and among the participants themselves, o Participants should compare what they know from their own experience with what is presented in instructor-led discussions, e Participants need not be concerned about correct or incorrect answers or the expected outcome of any discussion or exercise. This course demonstrates an approach or process that participants can and should modify to fit their own needs and circumstances. Consider the following general suggestions: e While this course is designed to encourage participant interaction, you must be prepared to lead discussions and to make presentations about various issues during the course of the eight contact hours. Occasion-ally, groups of adults in' learning settings may be reluctant or unprepared to " carry" a course of instruction forward. In such cases, you must be ready to establish direction, context, and substance. Your preparation to teach this course is critical and will require study beyond the notes and suggestions provided in the lesson plan if you are to possess a working knowledge of the theories and practices addressed in this course. e Throughout this course, participants will be required to engage in exercises and discussions with one another that will encourage them to share information and insights born of their own experiences. To facilitate this process, be sure the work groups are composed of participants with diverse backgrounds. Differences in terms of years of experience, size of emergency management programs, full-time versus part-time positions, geographic locations, and other conditions will contribute to liveller discussions and more diversified points of view. You can form these groups during the introductory phase of this course. Also be sure that each time a spokesperson is chosen within the groups, a different person is selected. The spokesperson will summarize group discussions and conclusions, if time permits, ask other group members to comment, o The course visuals in this book duplicate material provided in Appendix C of the Course Book and Resource Manual. Participants may use them as visual reinforcement and reference tools during your presentation. You should also use a flipchart to record both participant input and your own observations. ix

1 1 o Pacing this course to accommodate the interests and skills of the participants should be a paramount goal of yours. While the material to be covered is extensive, the level of interest and skill demonstrated by L the group should dictate your sense of timing and the speed with which l you proceed through the exercises and points of discussion. e The exercises were designed to tap different skills of participants. Keep in mind what ability each requires. L Policy Analysis Exercise: brainstorming. L Role Analysis Exercise: task analysis. Hazard Vulnerability Exercises recall. ' Analyzing Public Policy Exercise consolidation. Media Exercises communication. L How to Use the Instructor Materials l All written course materials are found in one of two places-the Course i. Book and Resource Manual, or the Instructor Guide. L The Course Book and Resource Manual (SM) contains textual materials, I participant readings, paper copies of the textual visuals, and most exercises and i activities. The Instructor Guide (IG) references the materials in the SM. It represents the complete course and is dhided into sections for easy reference. Designed to facilitate the teaching process, it includes an explicit agenda with suggested time frames, a checklist of course materials, and lesson plans with detailed 1 directions for implementing course activities. 'It also includes the handouts you will need to conduct the media exercise. The lesson plans provide a comprehensive guide to the progression of course topics and activities. However, they are not substitutes for your own preclass preparation for teaching this course. Here are several suggestions for l your preparation: l. o Carefully review all course materials-both textual and audiovisual. l Make sure you have sufficient numbers of copies and that you have viewed the slides and slide tapes. Ascertain ahead of time how many participants you will have and e calculate the logistics occasioned by class size. Clearly understand both the teaching points to be made for each topic e and the dynamics of each activity. Anticipate participant questions, and be prepared to answer them in class. Make sure you can clearly articulate instructions for each activity. l L x l

l e The lesson plans use a combination of visuals (vugraphs), flipcharts, and video tapes. As previously mentioned, paper copies of course visuals are found in the appendices of the Course Book and Resource Manual and Instructor Guide. You may want to make these into transparencies or have participants refer to the copy in the SM, However, note that you do not have paper copies of the map transparencies used in Section III. In the case ot~ flipcharts, prepare as many as possible before the class begins. For ease of reference, number them in the order in which they appear in the lesson plans. If appropriate during the course of instruction, you may wish to display the completed flipcharts on the classroom walls. This permits a gradual development of visual mate-rials, which aids understanding. You can also use the flipcharts to display participant data and the results of exercises. Instructions - If you are presenting this course to participants who are working together for the first t!me, take a few minutes during the registration and orientation period to introduce yourself, other instructors or training personnel, and the participants. One way you can do this is to list the following informational items on a flipcharts e Name. e Hometown. e Title / Responsibilities, e Number of years in field of emergency management. e Purpose in attending this course. Using the flipchart guidelines, introduce yourself first; then ask partici-pants to introduce themselves. Ask participants questions if they seem hesitant or awkward and encourage other participants to ask questions, too. Another way to handle introductions is to have participants form pairs, interviev each other for five minutes, and then introduce their partners to the entire group. Breaks To allow more flexibility in your presentation of the course material, advise participants that they should take individual breaks during the time allotted for the exercise. Ultimately, it is up-to you to decide at what times ' those breaks will be most appropriate. l xi j

3 Physical Arrangement of the Training Room This course is designed for dellVery to 32 to 40 participants arranged in - work groups. : Optimum group size is 36 participants at four work tables of nine each. We recommend the following room setup, if possible: TV MONrrOR PLAYER / RECORDER VBUAL SCREEN / Bf5TRUCTOR TABLE OVERHEAD PROJECTOR PODIUM O O e + 8 9 O O O O O 9 -- e e g e G 8 9 y e O O O e O O. 9 9 TV CAMERA t xii N - - - -- - -

b AGENDA-l Morning l-8:00-8:30 e Registration and Orientation 8:30-9:00 e Course Introduction / Video Montage: " Countdown to l Disaster" SECTION I: POLICY ANALYSIS 9:00-9:05 e Lecture: Overview 9:05-9:15 e Lecture: Introduction to Policy Analysis - 9:15-9:55 e Policy Analysis Exercise / Discussion: The Exploding Circle Approach 9:55-10:00 e Section Summary SECTION II: ROLE ANALYSIS 4 10:00-10:05 e Lecture: Overview 10:05-10:15 e Lecture: Introduction to Role Theory 10:15-10:55 e Exercise / Discussion: Role Analysis - l 10:55-11:00 e Section Summary SECTION III: HAZARD ANALYSIS I 11:00-11:05 o Lecture: Overview 11:05-11:15 e Lecture: Hazard Analysis in Emergency Management 11:15-11:55 o Exercise / Discussion: Hazard Vulnerability 11:55-12:00 e Section Summary r 12:00-1:00 LUNCH s Afternoon SECTION IV: ANALYZING POLICY 1:00-1:15 e Lecture Overview 1:15-2:25 e Video Tape / Exercise / Discussion: Analyzing Policy-Sewer Explosion '2:25-2:30 e Section Summary SECTION V: FORMULATING POLICY 2:30-2:35 e Lecture: Overview l s 2:35-2:45 e Lecture: Policy Analysis Under Emergency Conditions ~ 2:45-4:35 e Exercise /Discussiom Media 4:35-4:40 o Section Summary 4:40-5:00

SUMMARY

AND CONCLUSIONS xill

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p b t(: Ii i - COURSE MATERIALS } t } The following checklists are provided so that you can quickly scan the j particular materials necessary for this course. in preparing, be sure to note that i these items are available and that you are aware of the logistics of the exercises cited. s [ [ AUDIOVISUAL MATERIALS AND SUPPLIES e Video cassette player / recorder and TV monitor e Video tape camera and microphones e Overhead projector / screen e Flipchart or chalkboard e Felt-tipped markers or chalk MED,lA e " Countdown to Disaster" (15-minute video montage) e "Section IV: Analyzing Policy"(17-minute video newsbreaks). E o "Section V: Formulating Policy" (8-minute video newsbreaks) e Twelve hazard map visuals 'j o Visuals 1-8 (optional) 4 9 7 EXERCISES d -., k Policy Analysis Exercise (Section I) e y e Role Analysis Exercise ( Section 11) W e Hazard Vulnerability Exercise (Section Ill) M e Analyzing Policy Exercise (Section IV) F e Media Exercise (Section V) - i I xV

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LESSON PLANS INSTRUCTOR NOTES CONTENT / ACTIVITY COURSE INTRODUCI' ION 8:00 A.M. REGISTRATION AND ORIENTATION (30 minutes) -j - Welcome and introduce I guests. Start the course on time. If individuals have to wait, their interest wanes, and you will never regain j lost time. Introduce yourself.- Ask participants a few questions about their backgrounds. Tell par-P ticipants that the four groups will work as indi-vidual teams throughout -- the course. _' l Participants should take ~ J notes throughout the-course. - OVERVIEW Lecture / Discussion Refer to broad goal Course has one basic goal-to increase public of course, SM p. 5. officials' ability to establish and execute public policy in emergency management. Visual 1. e You are responsible for providing public policy leadership in the area of emergency manage-Define Policy as used ment as part of your duty in protecting the in this course, SM p. 5. general welfare of the people, o As part of an overall training effort, FEMA's NETC is committed to serving the citizens of our country by training those who have execu-tive responsibilities at the state, county, and municipallevels of government. Start video montage. e The video tape, " Countdown to Disaster," illustrates course rationalr. 1 )

C:urse Introducticn, INSTRUCTOR NOTE 8 CONTENT / ACTIVITY - (Running time: l 15 minutes) L Script, Appendix D. L Ask participants a few questions about L their reactions to the policy issues presented l in the video tape. Following the video OBJECTIVES tape, review objectives. Course goal will be achieved on the basis of five - l Visual 2. objectives. After completing this course and re-viewing the material, you will know how to: e Use policy analysis as it relates to your specific role in an emergency. e Use role analysis to describe the various role relationships and responsibilities that interact during an emergency in your community. i L e Use hazard analysis to establish a public policy l-based on a review of your community's - L hazards, resources, and codes. l- [ e Analyze public policy from a perspective that considers the policy's impact on your t i community. t. I e Formulate a public statement that can be delivered through the news media to reassure j. the community-at-large that the emergency situation is handled by using all available resources. Orient participants to SM by drawing atten-( tion to the format and contents: - Points from Over- )- view, SM p.1. - Points from Intro-duction, SM p. 5. - Italie introductions to each section, SM 9, 31,45,61,77. - Agenda, SM p. 7. - Appendices, SM p. 95. 2

Course Introduction- -lNSTilUCTOR NOTES CONTENT / ACTIVITY READINGS AND EXERCISES Readings and exercises are organized to e provide a basis for eight hours of instruction. o You will be assigned to one of four groups that will work as a team throughout the course. 40 percent of time will be instructor e presentation; 60 percent will be exercises and discussion. e Rest of SM must be read outside of class-serves as a general reference document after completion of course. Notes ggggggggggMMMMM O WOM _MMMMMMMM 3

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INSTRUCTOR NOTE 8 CONTENT / ACTIVITY SECTION I: POLICY ANALYSB (Total Sections one hour) OVERVIEW (5 minutes) Lecture OBJECTIVE SM p. 9. Af ter completing this section, you will know how to use polley analysis as it relates to your role in an emergency. Notes (10 minutes) INTRODUCTION TO POLICY ANALYSIS Introduce policy analy-Lecture sis as a specific pro-eedure that can be used Policy analysis will be examined in light of every-to better understand day problems versus crisis situations, the issues, alternatives, and consequences of e Polley analysis is not planning or management-choice associated with but how do they relate? particular polley de-cisions in emergency management. Point out that polley analysis will not guarantee the right I deelslons will always be made, but rather it is a tool to be used in deelslonmaking. 5 s

S2ctirn 1: Pelley Analysis INSTRUCTOR NOTES CONTENT / ACTIVITY Visua.13. WHAT POLICY ANALYSIS IS Definition "A way of structured thinking used to understand an issue by exploring a wide variety of possibilities, examining alternatives for action, and attempting to determine the consequences of taking one of the proposed alternatives." Setting a Goal Use example from What is a goal? your background. o A broad statement of desire. Intuitive as well as scientific skills needed to establish a goal. SM p.13. Defining the Problem Use an example of a e What is a system? " system" in a typical llow does it relate to the goal? community. What are the boundaries? What are subsystems? Ilow is it controlled? It is in constant flux. Gathering and Analyzing Facts e Information gathered in each subsystem. o Analysis determines which alternatives to try. - At this stage, new directions may need to be established. Determining Alternatives and Consequences e Evaluating alternative courses of action is a continuing process. Decisionmakers and staff must monitor progress and assess reactions. Tests are made and adjustments determined. 6

Seetion 1: Poli y Analysis INSTRUCTOR NOTE 8 CONTENT / ACTIVITY i Visual 4. METHODS USED IN POLICY ANALYSIS i SM pp.16-20. o Methods of applying polley analysis to best advantage in dealing with local government problems: i System identification. Mixed team development and review. Scientific methods, j Visual 5. EMERGENCY POLICY ANALYSIS ) i SM p. 20. Polley analysis.cnder normal conditions has sev-Lead participants to eral impilelt criteria see the difference between normal and e Time to think. 1 emergency polley e Option to gather wide range of information. analysis through the o Objective and candid exchances of opinion. following lecture / e Opportunity to test alternatives. t discussion. When an emergency strikes, the implicit criteria i are drastically altered or eliminated. Major impacts of emergency situations are: Briefly explain how each of these facili-e Time restraints, tates sound policy e Changing forums,

analysis, o Randomness, e Limited options, o Strain and pressure, o Complexity, l

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Section 1: Policy Analysis N8TRUCTOR NOTES CONTENT / ACTIVITY (40 minutes) POLICY ANALYSIS EXERCISE: THE EXPLODING CIRCLE APPROACH SM p. 25/1G p. St. , Exercise / Discussion Explain the exploding There is a core policy statement from which circle illustrated on radiate various predictable consequences. " proposed safe streets." SM p. 26/10 p. 52. e The circle can explode outward to extreme limits and, at the same time, constantly turn inward redefining the basic polley and altering the impact. Point out that this is e Application of any one po!!cy cannot be done an example of an ex-in isolation, ploding circle approach used under normal condi-tions. The participants will deal with an emer-gency situation in this exercise. Remind participants that each group should choose a spokesperson who will summarize findings at the con-clusion. Proceed to second cir-Read the instructions on SM p. 27. cle,(choose toples, such as civil unrest, o Before you begin, review the Policy Consid-tornado, hurricane, or erations that are listed on SM p. 28. flood fot core statement). SM p. 27/10 p. 53, o Begin. About ten minutes from end of the section, remind participants that they should now be summarizing within their groups. Give each spokesperson about one minute to summarize the findings to the rest of the class. I 8

Section 1: Polley Analysis i INSTRUCTOR NOTE 8 CONTENT / ACTIVITY Notes l 4 i i (5 minutes) SECTION

SUMMARY

Summarize the main Make any comments or write questions in SM p. Ideas and concepts that 29. were presented and dis-cussed in this section, or ask participants to Identify most important concepts. List comments on flip-chart. Stress emergency polley analysis. i Notes r ) I 9

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l lN8TRUCTOR NOTES CONTENT / ACTIVITY SECTION D: ROLE ANALYSIS J l (Total Sections one hour) 1 l OVERVIEW I (5 minutes) Lecture ( SM p. 31. OBJECTIVE After completing this section, you will know how to use role analysis to describe the various role relationships and responsibilities that interact during an emergency. Notes (10 minutes) INTRODUCTION TO ROLE Tl!EORY Encourage participants Lecture to read SM p. 33-35 for background infor-For our purposes it is important to realize that mation on role theory role theory is really no more or less complex than and how it relates to real-life behavior as it is displayed in genuine, on-other behavioral going social situations, sciences. This is to be done after the e Role analysis examines such problems as course when they review Processes and phases of socialization. what they have learned. Interdependencies among individuals. Characteristics and organization of social As the instructor, you should also read the positions, Processes of conformity and sanctioning. three readings tricluded Specialization of performance. In Appendix B, Division of labor. SM pp.107-119, for your own background Others? information. 11

Section II: Role Analysis INSTRUCTOR NOTE 8 CONTENT / ACTIVITY Expand on these some-what to relate to the roles of the partici-pants. As we discuss role theory, think of the ultimate goal of this section, which is to: Visual 6. e Identify your role as a public official. e identify knowledge and skills necessary to carry out tasks. e Identify role conflicts that might occur. ROLE PERSPECTIVE The role perspective censists of a particular viewpoint regarding those factors presumed to be influential in governing human behavior, e The behavior of an individualis examined in terms of how it is shaped by the demands and roles of life situations. Use theatrical analogy Script. and compare with real-Director. life situations. Performance of fellow actors. Audience. Performance. e Developmental phases of these behaviors are charted from infancy to old age. e Fit between individual and social mold is studied. e Personal factors that influence individual's behavior are examined. BACKGROUND AND PRESENT STATUS Role theory as at: know it did not appear until the ) 1930's and later. SM p. 35. e it is now, possibly, on the way to becoming a coherent specialization in behavioral sciences. 1 12

Section !!: R:13 An: lysis B INSTRUCTOR NOTE 8 CONTENT / ACTIVITY t 1 Notes l p l i t (40 minutes) ROLE ANALYSIS EXERCISE Exercise / Discussion SM p. 37/1G pp. 55-59. Read SM p. 37 for explanation. This exercise is very e This exercise deals with the issue of role con-difficult to complete. fusion regarding comprehensive emergency management. The audience will in-clude policymakers and e Each group should incorporate their core those who play sup-statement from the previous exercise into portive roles related their assigned role analysis sheet. to coordination, opera-tions, and possibly e Policymakers should provide group leadership field response. by completing the three columns first so that p they can help others to clarify their support-Assign each group one ing roles, l r l-of the four role analy-I sis sheets. Prepare Participants who play supporting roles should o examples for each sheet, describe how they can best assist the policymakers by completing the three columns Participants should de-accordingly. termine if they are policymakers or support e Complete the exercise on the basis of the personnel before they policymakers' response, then discuss your begin the exercise. analysis with the rest of the group from the Many public officials standpoint of policy, coordination, operations, believe they are and field response, policymakers when they are actually support e When the exercise is completed, the group personnel, spokespersons will give their summary reports. Inform groups when it is time to end work and begin summarizing. 13

L Secti:n 1: Rtle Analysis INSTRUCTOR NOTES CONTENT / ACTIVITY Call oli spokespctson from Notes each group to summarize and compare the groups' findings.

- - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - ~ ~ - -

(5 minutes) SECTION

SUMMARY

Summarize main ideas Make any comments or write questions on from group discussions SM p. 43. and relate to summa-tion of entire section, or ask participants to identify most import-tant concepts. List comments on flipchart. Stress signifi-cance of readings in Appendix B. Notes i 14

1 i INSTRUCTOR NOTES CONTENT / ACTIVITY (Total Sections one hour) SECTION H1: HAZARD ANALYSIS OVERVIEW (5 minutes) Lecture SM p. 45. OBJECTIVE After completing this section, you will be able to-use hazard analysis to establish a public polley i based on a review of your community % hazards, resources, and codes. Notes (15 minutes) IIAZARD ANALYSISIN EMERGENCY MANAGEMENT Lecture Present NG A colored map ilAZARD M APS visuals of nationwide hazards. Emphasize the Earthquake Risk Zones vulnerability of all areas of the nation to e Dark purple areas are high-hazard zones. emergencies. L e Light purple areas are moderate-hazard zones. l Point out that a local i community could develop e Green rectangles show where major carth-similar maps to emphasize quakes have been reported in the past. its vulnerability. i l e Yellow circles show landslide-prone areas. Agriculture Dark green areas show where little soll erosion e l occurs. l 15

x s Sectirn111: H z:rd An. lysis INSTRUCTOR NOTES CONTENT / ACTIVITY e Lighter green areas indicate moderate soll erosion. e Yellow hatch marks indicate areas subject to varying patterns of severe storms, blight, infestations, range fires, etc. e Tan areas are very dry. Natural Hazards: Flood Plains, Hurricanes, and Tornadoes e Blue areas depict serious flood plains where presidential declarations have been made. o The red coastal streamers to the south and southeast show recent hurricanes. e The red hatched streamers show where the secondary effects of the hurricanes have been

felt, e The yellow circled area shows the most tornado-prone zone.

Dams e The yellow dots depict major federal dams. Volcanic Hazards e Blue ares shows volcanic hazard areas. e The yellow dots show cavernous areas, coal mines, and sink holes. Transportation e Yellow dots designate major airports. e Red lines show interstate highway systems, o Green lines show railroads. o Blue lines show waterways. 16

T i Secti:n !!!: H:zard Analysis INSTRUCTOR NOTES CONTENT / ACTIVITY l Energy Distribution Links e Yellow lines show the transporation system for I crude oil. e Green lines indiente transportation system for natural gas. Hazardous Materials Waste Sites e The orange triangles with orange squares are radioactive waste sites. o Green lines are approved transportation routes. o Yellow dots indicate concentrated nature of the nuclear / radioactive disposal problem. o Orange squares are nuclear dump sites. U.S. Fire Fatalltles e Red areas show where fire fatalities are the highest. e Yellow areas have a moderate amount of fatalities, i l-e Red circles show U.S. cities with highest death risks. 1 l Electrical Power Plants l e Red dots are hydroelectric power plants. o Orange cones are licensed nuclear power plants. e Green cones art nuclear power plants under construction. o Yellow cones are planned nuclear power plants. Storage Military Targets e Red areas refer to direct blast areas. i 17 l-

Section !!h Hazard Analysis INSTRUCTOR NOTES CONTENT / ACTIVITY Gray Map i e When all the hazards are combined, all areas are susceptible. J Next, review the i NG A study. Visual 7. RESEARCH CONCLUSIONS SM pp. 47-48. o Several years ago, the National Governors' Association (NG A) reviewed the state of the art in " vulnerability" analysis and found that: No generally accepted methodology I currently exists for hazards analysis. Most states simply describe disaster incidents and/or profile major known area hazards; few cross-analyze different types of hazards. There is no consensus on their essential elements and interrelationships, At the national level, there is also no accepted method of cross-evaluating all i risks for overall management purposes, although such research has been done and a great number of data exist on individual hazards. Vulnerability analysis is only a part of the process of hazard analysis, e The NGA study concluded that an effective l hazard analysis must address all risks-natural, l manmade, and attack-and that it should l_ consist of five steps: Planning, coordination, and adoption of standardized incidence reporting. Data identification, collection, compila-tion, and all-hazard mapping. local, state, regional, and national hazard profile development, with varying jurisdic-tions contributing to a standardized, interactive process. 18

Section III: H:zard Analysis INSTRUCTOR NOTES CONTENT / ACTIVITY Hazard comparison, using an accepted, standardized, interactive process. Cross-hazard evaluation and ranking, o Read SM p. 47-48. You have about 5 minutes. Notes (35 minutes) HAZARD VULNERABILITY EXERCISE SM pp. 49-57/ Exercise / Discussion 10 pp. 61-69. INSTRUCTIONS Instruct participants e Answer as many questions as possible in brief to read SM p. 49 and

detail, proceed with exercises

( using their community. Call out time after 20 e When the time is up, several members of each l minutes to allow time group will be asked to critique the format and L for group summation. content. 1 Ask several members of each group to critique the analysis fermat e Does exercise help you to analyze your and content. community's potential hazards? Summarize the dis-e Does this give you a better idea of areas that cussion. need attention and/or further analysis? e Could you now initiate a followup to seek the type of technical data essential to the planning process in relation to your area? l 19 )

Section Uli Harcrd Analysis IN8TRUCTOR NOTE 8 CONTENT / ACTIVITY Notes Refer participants to polley issues, SM p. 58 and revlew the issues, asking for comments. (5 minutes) SECTION

SUMMARY

SM p. 59. Summarize main ideas Make any comments or write questions on from group discussion. SM p. 59. List comments on flipchart. We will reconvene at 1:00. Notes LUNCH OO___O___@WM WWWWW__O-O______ _O O 20

l I 1 INSTRUCTOR NOTES CONTENT / ACTIVITY 1 SECTION IV: ANALYZING POLICY l (Total Sections one hour, 30 minutes) OVERYlEW SM p. 61. l (15 minutes) Lecture ] OBJECTIVE ] After completing this section, you will know how ] to analyze public polley from a perspective that considers the impact on your community. J Review the activities e This section consolidates the concepts and for this section ideas presented in Sections I, II, and III. The emphasis is on the an$ lysis process. e Video tape. e Case study, o Exercise. e Exercises emphasize the types of issues public officials have to handle. e There are various views regarding the issues that will be presented. o A video tape and model community are used. Notes (1 hour,10 minutes) ANALYZING POLICY EXERCISE: SEWER EXPLOSIONS CENTRAL CITY, COLUMBIA Video Tape / Lecture The model community is The model community is used in other NETC Central City, Columbia. courses. ?!

Section IV: Analzing Policy INSTRUCTOR NOTES CONTENT / ACTIVITY i Begin video newsbreaks e The video tape establishes a sense of realism (Running time: 17 about Central City over a six-month period. minutes.) Script, Appendix D. e You will view a series of events ending with the sewer explosion. Ask participants to , Case Study / Exercise / Discussion read the case study, SM pp. 63-69/ Read the case study and exercise. IG pp. 71-77. e Take a few minutes to read the questions on SM pp. 71-72/ which you will comment while reading the IG pp. 79-80. case study. e Answer the questions following the case study. e Determine if the events included in the news-breaks are relevant. o Discuss your comments within group and reach conclusions. Group spokesperson will summarize discussion. Conduct summary dis-cussion stressing the concepts presented in Sections I,11, and 111. Notes (5 minutes) SECTION

SUMMARY

Summarize the conclu-sions of each group. SM p. 75. Make any comments on SM p. 75. Identify the most important points raised during the discussion. 22

Section IV: Analyr.ing Pclicy INSTRUCTOR NOTE 8 CONTENT / ACTIVITY Notes l l l 1 f I 1 l L 1 i i

________________._-------~_----________________________

23

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i i Ill8TRUCTOR NOTES CONTENT / ACTIVITY ) l \\ SEC110N V: FORMULATING POLICY (Total Section: 2 hours,10 minutes) OVERVIEW SM p. 77. (5 minutes) Lecture 1 OBJECTIVE 1 After completing this section, you will know how j to formulate a public statement that can be deliv- ) ered through the news media to reassure the community-at-large that the emergency situation is being dealt with by using all available resources. Notes j I l J f (10 minutes) POLICY ANALYSIS UNDER EMERGENCY CONDITIONS Lecture SM p. 79. THE PUBLIC'S PROPRIETARY INTEREST IN EMERGENCIES Under normal conditions, polley analysis and the role of the media are two distinct and separate topics. e Policy is almost always examined under some form of constraint... It is not a communal effort. e An individual or a close-knit group makes policy. 25

Ssetion V: Formulating Polley INSTRUCTOR NOTES CONTENT / ACTIVITY e Emergencies, real or perceived, change this. - Public polley becomes public property. The press (the pubile) is watching and commenting and, in doing so, is participating in shaping polley. The policymaker must look at new options. Policy analysis assumes the gathering of facts, the assessing of weaknesses as well as strengths, considering wide-ranging options, and ultimately making hard--sometimes unpopular-<lecisions. Use examples of emer-gency situations to illustrate these points, from SM pp. 79-82, or from your own experi-ence. Once an emergency is under way or is imminent, the rules of analysis change because of the pervasive presence of the media. Visual 8. POLICY DEVELOPMENT AND Tile MEDIA Use examples in Limited Alternatives SM pp. 82-86, or from your own experience. Alternatives in policy analysis during emergencies are limited when the media become involved. Unintended Messages Unless the media are addressed in a timely manner, speculation rather than fact will be presented to an anxious public. o Once speculation begins, leaders are forced into a reactive mode. Energies are diverted to response rather than to leadership. - Through unintended messages, officials can create situations that must be considered in their policy analysis. 26

j i S:eti:n V: Formulating Poll y i i INSTRUCTOR NOTES CONTENT / ACTIVITY j 1 Blunders The ability of government or private industry spokespersons to answer questions clearly is critleal. Consideration must be given to: e Formally prepared texts. Character of individual who will deliver the message. Preparation time that this person has to respond to a wide range of possible questions. The shaping of response policy, therefore, e must include media impact. e Defining the Media What comes to mind at the mention of the word i media? Elicit responses, o There are numerous emergencies that which will probably seriously disrupt traditional forms of public be " radio, TV, communication. l newspaper." Alternate means of distributing messages List some alternatives; should be considered by deelslonmakers. l' e.g., ham radio opera-tors. Policy analysis should include as broad a i' definition of media as possible, giving consideration to nontraditional information sources. Subtle Messages Leaders have absolutely no control over how their information is presented to the general public. Message may be affceted by: o Position of story in paper. Voice and personality of the radio announcer. e Time allotted to a particular news item. o 27

Section W Formulating Polley INSTRUCTOR NOTES CONTENT / ACTIVITY Policy analysis must allow for the possibility of a wide range of problems being created, not just reported, by the media. Time Pressures The analysis process itself requires breaking i lasues down into components, studying them, and manipulating possible alternatives. I e Newspeople pursuing a disaster demand information immediately. e if officials cannot provide immediate information, it will be gathered from unofficial sources. The structure of the analytical process is changed: e Steps are omitted, o Decisions are made with partial facts and without full appreciation of ramifications. I e Once a decision is made and announced, it is very difficult to reverse. Preparing a comprehensive policy analysis before i an actual emergency must take the time-compression factor into account. Media Attention t The presence of televi?lon cameras may be the catalyst that expands a crisis, e if the media are interested in a subject, the topic immediately takes on added significance. That fact should temper all policy analysis activities during an actual or perceived emergency. 28

Secti:n V: Formulating Polley 3 s l lN8TRUCTOR NOTE 8 CONTENT / ACTIVITY i 1 Notes i 'I i (1 hour,50 minutes) MEDIA EXERCISE Allow 10 minutes. Video Tape / Lecture The model communty, Central City is about to experience an emer-Central City, is also gency. used for the media exercise. e Newsbreaks are again used to provide a sense of realism. Begin video newsbreaks. (Running time 8 minutes) Script, Appendix D. SM pp. 87-90/ Exercise / Discussion 10 pp. 81-84. GOALS c i Briefly tell class the e To instill in participants an understanding of I goals of this exercise. the tremendous importance of media /publie l. roles in emergency management and policy l' development. e To assist participants in obtaining a greater awareness of positive ways to communicate to l the public through the media during crises. o To help participants in preparing for emergency commimication by sound preparation techniques. Instruct participants to pay particular atten-tion to "Tip List for Media Appearance in Take a few minutes to read SM pp. 87-90 to bet-Times of Crisis." ter understand what will be involved in this SM p. 88. exercise. 29 l

Section V: Formulating Poli:y f INSTRUCTOR NOTE 8 CONTENT / ACTIVITY If faellitators are outsiders, be sure that they are in the room at this time. - I Facilitators, whether part of the group or from outside the class, will have been instruct-ed of their duty in this - L exercise before the 1 l beginning of the class. (Instructions,10 pp. 97-99.) Groups will be assigned We will now separate into the same four groups the following roles: and move to assigned rooms. l Two will prepare the j press conference. One will serve as the l reporters. One will critique the l the press conference Give handouts to each e The facilitator of each group will give further facilitator to distribute instructions when you are assembled in your when groups have moved

groups, to separate rooms. (Hand-outs,10 pp.101-108.)

If additional rooms are not available, the exer-cise can be conducted in the classroom with careful plannbg. Groups proceed with exercise. Allow 20 minutes.- At end of 20 minutes, the videotaping should start. i l-l Screen and critique each press conference. l 30

Secti:n V: Formulating Poll;y 1 ( INSTRUCTOR NOTES CONTENT / ACTIVITY Make any appropriate suggestions for improved communication during times of disaster. Focus on the positive aspects of the first If there is sufficient e time, have the same or statement and answers, while avoiding the two different spokes-mistakes. persons make a second video tape. e New questions will be raised by the reporters. View and compare as before. Notes (5 minutes) SECTION

SUMMARY

Summarize the far-reaching impacts of public/ media relations, and the short-and long-j term ability to react l to and recover from i-emergencies. l l After the exercise is Make any comments on SM p. 91, completed, refer parti-cipants to the summary page and proceed accord-Ing;y. SM p.91. l Identify the most impor-tant points raised during the discussion. List comments on flip-chart. 31

4 82ction Summtry g4 [,. INSTRUCTOR NOTE 8 CONTENT / ACTIVITY Notes k,. 32

-) y INSTRUCTORNOTE8-- CONTENT / ACTIVITY (20 minutes)

SUMMARY

AND CONCLUSIONS Refer the participants to the course summary. SM p. 93. Review Visuals 1 and 2. e Course Goal. e Course Objectives. Summarize the course and ask the partici-pants to respond. Refer participants to The final summary and conclusions section is on the questions on the. SM p. 93. summary and conclusions page. SM p. 9340 p. 85. Notes - Dismiss class. END OF COURSE l 33

~~.~K- '. h. P 5 I' .y g. i 34

.-ge,-gi..wpiiuiy L.iei h r ? APPENDIX A SELECTED BIBLIOGRAPHY i l 35

1. f Ausubel, David P. The Psychology of Meaningful Verbal Learning. New York: Grune and Stratton,1963. Guide to Effective Training. New Rochelle: Change Magazine Press,1978. Harris, Howard. "An Assimilation Model of Teaching." APS Review 1 (Autumn 1978): 24-32. Knox, Alan B. Adult Development and Learning. San Francisco: Jassey-Base, 1977. Randall, John S. "You and Effective Training: Parts 3 & 4-Communleation/ Communication Aids.8' Training and Development Journal 32 (August 1978): 36-48, 4 "You and Effective Training: Part 5-Planning Your Sessions." Training and Development Journal 32 (September 1978): 42-43. "You and Effective Training: Part 6-Methods of Teaching." Training and Development Journal 32 (October 1978): 8-11. Scholl, Stephen C. and Inglis, Sandra Cheldelin. Teaching in Higher Education: Readings for Faculty. Columbus: Ohio Board of Regents,1977. 37

t ,). s 4 APPENDIX B VBUAIA \\ 39

r COURSE GOAL ...TO INCREASE THE PUBLIC OFFICIAL'S ABILITY TO ESTABLISH AND EXECUTE PUBLIC POLICY IN EMERGENCY MANAGEMENT. I ? t VISUAL 1 y i l 41

COURSE OBJECTIVES

1. USE POLICY AN ALYSIS AS IT RELATES TO YOUR...ROL'E....

l 2. USE. ROLE ANALYSIS TO DESCRIBE ROLE RELATIONSHIPS THAT INTERACT DURING AN EMERGENCY...

3. USE HAZARO ANALYSIS TO ESTABLISH A PUBLIC POLICY BASE 0 ON...YOUR COMMUNITY'S HAZAROS, RESOURCES,

& CODES.

4. ANALYZE PUBLIC POLICY...THAT CONSIDERS THE POLICY'S IMPACT ON THE COMMUNITY.

5. FORMULATE A PUBLIC STATEMENT THAT CAN... REASSURE THE COMMUNITY-AT LARGE THAT THE EMERGENCY...lS BEING OEALT WITH....

VISUAL 2 42

I POLICY ANALYSIS 1. SETTING A GOAL

2. DEFINING THE PROBLEM

3. GATHERING & ANALYZING FACTS

4. DETERMINING ALTERNATIVES AND CONSEQUENCES VISUAL 3 43

I F S l . METHODS USED IN POLICY ANALYSIS-l: i 1.8YSTEM IDENTIFICATION ..2. MIXED-TEAM DEVELOPMENT & REVIEW

3. SCIENTIFIC METHODS h'

. VISUAL 4-i p 44

T EMERGENCY; POLICY. ANALYSIS L1; TIME RESTRAINTS

2. CNANGING FORUMS

-3. RANDOMNESS

4. LIMITED OPil0NS

5. STRAIN 8 PRESSURE

6. COMPLEXITY:

7. REACTION V010

. VISUAL 5 45

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+' L-I l

I KEY ROLE CONCEPTS

1. ROLE DEFINITION

2. ROLE COMPETENCE L.

t (. L

3. ROLE CONFLICT-u l-t l

L I VISUAL 6 I l 46

y y y EFFECTIVE NAZARD ANALYSIS

1. STANDARO INCIDENT REPORTING

2.. DATA COLLECTION & ALL RISK MAPPING

3. LOCAL, STATE, REGIONAL, & NATIONAL HAZARD PROFILE DEVELOPMENT-

4. HAZAIIOS COMPARISBN

5. CROSS-HAZARDS EVALUATION & RANKING VISUAL 7 47

' al POLICY DEVELOPMENT & THE MEDIA

1. LIMITED ALTERNATIVES

2. UNINTENDED MESSAGES

3. BLUNDERS.

4. DEFINING THE MEDIA

5. SUBTLE MESSAGES 6; TIME PRESSURES

7. MEDIA ATTENTION c

i VISUAL 8-IL 48

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POLICY AllALY818 EXERCISE i THE EXPLODING CIRCLE APPROACH The systems approach in policy analysis emphasizes the interaction of a broad range of issues and entitles. Establishing a policy can initiate so many actions and reactions that foreseeing the total impact is almost impossible. To graphically demonstrate the ramifications of what appears to be a relatively simple policy statement-a desire to have safe streets-the following exercise is used. Called the exploding circle, it reveals just a few of the hundreds of possible outcomes of pursuing a policy. In the center of the next page is the core policy statement from which radiate various predictable consequences. There will be a demand for more police which, in turn, will affect the city employment policy and cost more money. More police, in turn, mean more arrests, therefore, more demands on the city prosecutor and courts. Safety includes fire protection, which translates into pressures for increased fire staff, inspectors, investigators, and fire education specialists. Then there will be more building inspectors needed--since that is, to some officials, where fire safety begins-and stepped up enforcement of building and zoning codes. That, too, will influence the city attorney's office and the courts. The process continues. By following the arrows outward, one can easily see the likely results of taking what originally appeared to be a simple course of action. Ultimately, any safe street program is tied to economic revitalization of an area; thereafter, renovation of housing and the influx.of new residents. They, in turn, will make new demands on city hall and can completely redefine the original policy of safe streets into green streets (more parks) or better traffic flow (safer for vehicles, if not for people), and so on. The circle can explode outward to extreme limits and, at the same time, constantly turn inward redefining the basic policy and altering the impacts. The more you examine the policy through the exploding circle concept, the more you will see how far-reaching and interacting many issues are. You will quickly appreciate that the application of any one policy cannot be done in isolation, that sequences of events can alter the original pattern drastically, and that many forces beyond your immediate control will have significant impact-especially during an emergency. A second exercise follows the first one. The ;econd exploding circle is to be completed as part of a group activity. 51

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i The core polley statement for this second policy analysis exercise will be selected by your instructor. Use the same approach that' was illustrated in the previous exercise. Only this time, you expand the core in a way that deals with the emergency situation. Before you begin, review the policy considerations that' are listed on the next page. After you are finished, think about the similarities and the differences between normal policy analysis and emergency policy analysis in formulating public polley. You will be asked to discuss your response with other members of your group. Each group will present a summary report. 53

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ROLE ANALYSIS EXERCISE This exercise deals with role definition, role competence, and role conflicts as they relate to policymaking responsibilities. The key to effective role analysis in emergency management is to identify those policymaking or supportive tasks for which you have a primary responsibility; however, your tasks must be considered in relationship to your defined role and the extent that the policy decisions and consequences create role conflict. Your instructor will give instructions to each of the four groups. The exercise worksheets provide four role definitions to which you are to respond as assigned. The three columns identify policy areas to be fulfilled and represent the motivational force to work together in a cooperative manner with a policymaker managing the exercise. e Under "Your Pollevmaking Role," define what you are responsible for in your role as a public official, or define your supportive role if you do not have a polleymaking role, o Under "Your Policymaking Tasks," list the tasks necessary to carry out your role as a public official or describe how you help to complete assigned policy tasks if you are not a policymaker. This category can help you identify certain role competencies that are needed to complete the tasks. e The last column should indicate possible policy decisions and consequences that could affect the community-at-large. If you are not a policymaker, describe how you are affected by policy decisions and consequences. When you have completed your assigned worksheet, compare and discuss your analysis with the others in your group and prepare a group report as directed by your instructor. Keep in mind the policy considerations that are listed on page 28. 55

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HAZARD VULNERABILITY EXERCISE i After completing this exercise, you 'will have a better understanding of how to develop a coordinated approach to formulating public policy based on a review of your community's potential hazards, its resources, and legal authority. The exercise is based on a form developed by the International City Management Association for use by NETC in another course. Since this is only a review of potential hazards, you should use the infor-mation gained to put in priority order areas needing the most attention and to determine which ones need further in-depth analysis. Such analysis of-a community's potential hazards is usually based on past incidents. However, there are many sources of information that can be applied to an analysis of potential hazards. When you complete the hazard vulnerability review, you will have enough information to initiate a followup to seek out the type of technical data essential to the planning process in relation to your area. Your instructor will give your group additional instructions concerning policy implications. Answer each question in brief detail. Sketch out a map of your community, if necessary, to refresh your memory about specific conditions that may have impact on your community's ability to prepare for and respond to an emergency situation. Jot down notes or questions that may come to mind while you're doing this exercise because several members of each group will be asked to critique - the analysis format and content. This will make you aware of some of the fac-tors that must be taken into consideration in order to adequately develop, finance, implement, and maintain a dependable emergency management system. 1. What types of emergency situations have occurred in your community during the last five years? 2. Did any of these situations result in an emergency or disaster declaration? )- Yes No if so, describe briefly, i 61

3. What are the potential hazards that your community has the highest proba-bility of facing now and in the future? Numerically rate the incidents according to potential threat and impact. Use the number 4 to indicate the greatest potential descending to number 1 for the least potential. Natural / Industrial / Civil / Environmental Technological Political Se';ere Weather Fire Feonomic emer- ~ Lightning fires Chemical gencies ~ Floods ~ Structural Demonstrations ~ ~ ~ Winds Other Strikes ~ Drought ~ Riots ~ ~ Heat Terrorism Snow Sabotage ~ ~ Hall Transportation Attack ~ Ice Air ~ Conventional ~ Other ~ Rail Chemical ~ Water [ Biological ~ _ Motor vehicle Nuclear ~ ~ Pipeline Other ~ ~ Geological Earthquake Volcanic eruptions ~ Erosion U*ility Services ~ Other _ Electricity Gas ~ Fuel Epidemiological [ Telephone Human Water - ~ Animal Sanitation ~ Agricultural Hazardous Materials Recreational Explosives Accidents ~ Gases ~ ~ Lost persons Corrosives Other ~ Flammable liquids ~ Flammable solids ~ Oxidizing substances Poisons ~ Radioactive material [ Chemical wastes 62

-b + f 4. What geographic factors, such as manmade or natural boundaries, might make your community susceptible to the occurrence of a disaster? Interstate highway Rail system Airport Mar.ine port River Natural drainage plain Coastal area Earthquake faults Other 5. What factors, manmade or natural, might inhibit activities essential to effective response in your areal 1.e., bridges, hills, rivers? 6. What is your area's total population for 1980? What is the projected population for 19907 What is the projected population for 2000? 7. Draw a rough map of your area and pinpoint high population density areas. ( i 63

i f 8. Does your community have identifiable population densities that shift daily g' or seasonallyt Yes No if yes, identify area and describe movement in relation to type and time factors. 1 i 9. Check the special population groups in your area that may need special i attention in an emergency situation. Put two checkmarks by those for i whleh you have a greater concern due to the lack of emergency preparedness measures at this time. Elderly persons Institutionalized populations Jalls Prisons Health care facilities Fependent children i Schools Nurseries Day care centers PFysically or emotionally impaired populations Non-English speaking groups (Identify those languages for t which ad interpreter may be needed most of ten.) ( 10. Rate in descending order the economic composition of your locality, giving the highest number to the highest economic contributor in your area. I Building industry Factories Farms l Commercial business l Educational institutions j Recreation Heavy industry (e.g., steel mill) Light industry (clothing manufacturer) l l 64 1 m

l l 2 11. Do you know what the future land use and zoning plarm for your locality are? Yes No If so, summarite. 12. Are most of the structures in your area Downtown urban Suburban Rural Residential Commercial Industrial Other (describe) 13. What is the projected industrial growth within your area during the next five years? 14. Identify primary commercial and/or industrial transportation routes in your area. 1 65

l 15. What type of underground pipelines run through your arent Natural gas Water Electricity Telephone Sewer Other 16. Do you know the route of the main lines? Yes No 17. Have you surveyed your area for appropriate emergency shelter facilities if, for any reason, people must be evacuated from their homes? Yes No 18. Have you determined how many people could safely be assigned to each identified shelter? Yes No 19. Have adequate numbers of shelter-management personnel been trained for immediate assignment? Yes No 20. Identify any large vacant areas in your community that could be used for locating temporary trailers provided by the federal government after a disaster. 21. Does your community or state have any laws that might prohibit locating such trailers at these locations? Yes No 22. How would you deal with such restrictions? 66

23. Is there currently an emergency management program in your area? Yes No 24. What is the specific legal authority for the emergency management program within your area? No legal provision State statute i l County code or ordinance l City code or ordinance Charter provision Executive order Administrative resolution Other 25. How many staf f personnel are there in this organization? 26. What is the functional responsibility of each person? s 27. Has each staff member received appropriate training in order to fulfill the assigned responsibilities? Yes No l 28. Does this organization have any responsibilities other than the local emer-l t gency management program? Yes No If so, what do these responsibilities include? 67

l } 29. Dc you currently have a formal organizational structure for a comprehensive emergency management gstem? Yes No If so, sketch an outline of the key components and lines of authority. 30. Do administrative activities and emergency operations realistically reflect this organizational structure? Yes No 31. If you do not currently have a formal organization or if informal organiza-tional relationships do exist, outline the informal structure below. 32. Does the responsibility for overall direction and control of emergency operations shift from one public official (chief executive officer, police chief, fire chief, public works director, etc.) to another, depending on the type of the incident? Yes No 33. Briefly describe the authority of each individual who, by law, holds emer-gency power in your area; i.e., setting curfew, evacuation, etc. 4 68 )

34. What do you perceive as the level of public support for the emergency management program in your area? l Above average Average Below average l 35. On what do you base this assessment? Briefly describe. s 36. Describe at what level during an emergency that authority is transferred or proceeds to the next higher level of government. 37. What is that level; i.e., county, state, federal, etc.? 38. What major factors, such as administrative support, skillful program man-agement, training, interagency cooperation, or planning skills, contribute to the successful operation of the emergency management system in your area? ( 39. What major factors - such as lack of local, state, or federal funds; personality conflicts; public apathy - Impede its success? 69

~ ~. AN ALYZING POLICY EXERCISE SEWER EXPLOSION CENTR AL CITY, COLUIRBI A JANUARY 18,1983 BACKGROUND Central City is a medium-sized city in south central Columbia. The city covers a land area of 35 square miles and has a population of 149,000. Located in the county of Liberty, the city is one of nine incorporated areas. The government of Central City is the council-manager form with seven council members making up the legislative body. The council is elected at large on a nonpartisan ballot for four-year terms. It elects one of its own members as mayor to preside over meetings and to vote on matters before the council, but the mayor has no veto power. The manager, who is the chief administrative officer of the city, is selected by the council and serves at its pleasure. The manager carries out the ordinances of the council, makes recommendations to the council, prepares and executes the annual budget, negotiates with labor unions, and appoints and removes department heads and other administrative personnel. The manager has no vote in council meetings. Central City is served by separate police, fire, and ambulance services. There are two private ambulance companies serving the city, with transport made to the three local hospitals. The Central City police and fire dispatch centers are located in the city operations center. The city emergency management center (EMC)is in the same facility. The Central City Fire Department has an authorized field strength of 216. The department is organized into three battalions, operating 11 engines and four truck companies. The Central City Police Department has an authorized field strength of 295. The department has a 20-member SWAT team and four trained bomb technicians. 71 t

n l EVENT On January 18,1983, a number of violent and destractive explosions /!pped through the south central portion of Central City. The affected area is north of the Great Atlantic and Paelfic Railroad and east of the Roaring River. The area has a mixture of residential, business, and industrial occupancies. Initial damage surveys indleated visible surface damage to three miles of streets and sewers. Parts of the roadway collapsed into major sewer trunk lines. Water, gas, electric, and telephone lines were severely damaged by the explosions. Manhole covers were blown out of place along 11 miles of sewers, indicating the possibility of more extensive subterranean damage. Private property damage included moderate to severe structural damage to many buildings. The explosions resulted in seven deaths and 23 injuries. If the incident had happened two hours later, hundreds of serious injuries could have been expected because of the normal morning traffic flow through the area. The weather conditions recorded at the Liberty County Airport were cloudy skies, 0 temperature of 35 F, winds from the northwest at 10 mph, and a 30 percent chance of snow later in the day. The incident described above had its true beginnings two days earlier at the ABC Solvent Extraction Plant located at the intersection of Z and 23rd Streets. The concerned faellity used hexane to extract the oil from soybean flakes. A freeze-up of several components of the plant's extraction system resulted in a 500-gallon spill of hexane into the public sewer system. At 5:36 A.M., a series of devastating sewer explosions took place in Central City. The first call received by the dispatch was from a security officer at the railroad yard who reported smoke in the vicinity of the Minnich Oil Company at S and 23rd Streets. At 5:39 A.M., Engine 6, Engine 8, Truck 8, and Car 36 were dispatched to the scene. At 5:43 A.M., Engine 8 reported that the sewer system at T and 23rd Streets had blown up. Because of the reports from several locations about the explosion, Car 36 requested the response of three more engine companies. By 5:45 A.M., all utility companies were notified to respond to the area. At 5:47 A.M., Car 36 requested the response of all available police units to the area to seal it off. Units were told to stay clear of 23rd Street because of street damage and isolated residential and business fires. Fire companies on the scene began to search the area for victims and to update information. At 6:01 A.M., Car 2, Deputy Police Chief, asked Car 36 about setting up a command post. By 6:36 A.M., the command post was set up at the Central City Police Station at X and 20th Streets. Representatives from the Central City Sewer Authority, Columbia State Police, Central City Water Company, Edison Electric Company, and the Central City Gas Company were present. 72

I At 6:50 A.M., the Central City Police Chief was interviewed at the com-mand post by a reporter from the Central City Times. The pollee chief mentioned that the explosions may have been caused by a terrorist group. This statement led to widespread rumors and the spontaneous evacuation of several i areas in Central City. ' At 7:25 A.M., Central City police units reported to dispatch that the in-i creased traffic flow out of the city has caused several gridlocks at major city intersections (H and 5th, H and 15th, H and 30th, Q and 20th, and Q and 30th Streets). At 7:30 A.M., first responders reported conflicting information to the command post about what caused the explosions. Fire personnel believed that l-some type of chemical in the sewer system caused the explosions, while police personnel believed that the explosions were caused by isolated terrorist bomb-ings. At 7:40 A.M., coordination between operations personnel at the command post and coordination personnel at the city operations center was interrupted because of telephone line overload and saturation of radio frequencies. At 7:50 A.M., the mayor of Central City arrived at the command post and stated that he was in charge. First, the mayor barred all news media from the command post and immediate threat area, causing the media to demand access to additional information. Initial news comments stated that terrorists initiated the disaster and that government officials were preventing the news media access to critical information that would protect the public. At 8:05 A.M., the city manager arrived at the city operations center and ordered a survey and assessment of damage of the affected area. A Liberty County Sheriff Department helleopter was dispatched to the site. At 8:10 A.M., a report of another sewer explosion at X and 24th Streets was received by dispatch. Engine 10 was dispatched and reported a manhole cover had blown out of place. Also, sewer officials at the command post started receiving reports from their field units that enabled the Central City Fire Department to trace the path of the explosions in the system. Also, reports of explosive readings in the affected sewer system downstream of the blast area necessitated the flushing of the system with open hydrants at different locations. At 8:30 A.M., the mayor of Central City declared a local emergency and activated the EMC. At 8:45 A.M., the city manager, in conjunction with the on-scene fire l-commander, ordered the evacuation of a three-block area on both sides of 23rd )- Street between R and Z Streets. U.S. Grant High School was designated and equipped as the evacuation center for displaced persons from the blast area. The city manager issued an emergency broadcast system announcement reflecting the current conditions of the situation and actions taken to control it. A rumor control center was established through the city's public information officer and 73

volunteers from the local chamber of commerce. A media room was set up at the EMC. At 9:00 A.M., after repeated 2.ttempts, the mayor finally contacted the city manager and asked him, "Who in the hell is in charge of the situation?" Confilet ensued between the mayor and city manager about roles and responsibilities. At 9:10 A.M., the Health Department was notified of the explosions and the fact that the sewer authority was diverting the flow directly into the Roaring River instead of through the treatment plant south of the city. Also, the series of blasts were traced to the area of the ABC Solvent Extraction Plant. At 9:30 A.M., an official from the Columbia Emergency Management Agency called the EMC requesting current status of the situation and inquiring if state assistance would be needed. At 9:45 A.M., plant officials from the ABC Solvent Extraction Plant were interviewed by the news media. Plant officials stated that the explosions could not be generated by chemicals from their plant. At 10:15 A.M., various utilities were called together at the EMC by the city manager and mayor to discuss the situation. Notes were taken on the meeting between all the agencies present to assess the damage and to prepare a press release. Also, a tour of the blast area by different agency heads was scheduled. At 10:45 A.M., the mayor's request for a meeting between city and ABC Solvent officials was denied by company officials who stated that they were preoccupied with plant safety at this time. At 12:00 noon, state fire marshal's representatives and city arson squad personnel visited the soybean processing plant for a first-hand inspection of the facility. At this time it was discovered that hexane was flowing from a separation basin into the sewer system. Throughout the afternoon, city, state, and plant officials worked to stop the flow of hexane into the sewer system. At 6:00 P.M., sewer authority crews requested an air bag to plug the plant's effluent to the city sewer system. This plugging of the effluent caused the high readings to eventually drop. Car 23 and Engine 10 were left on the scene until the separation basin was pumped dry. 74

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4 4 3 }2 $g lt l} All ALYZill8 POLICY EXERCISE After watching the video tape and reading the case study, you should i respond to the items listed below and identify to what extent they are relevant to this event by noting specific polley-related examples that reflect your understanding of the concepts presented in the first three sections. After t completing the exercise, you will be asked to share your e.nswers with others in y" your group. Each group will summarize its conclusions. i 1. What was Central City's public polley during the emergency? I i e t .i = 2. What polley decisions were made that seemed to be correct? 3. What polley decisions were made that seemed to be incorrect? i 1 79

i 4. What polley deelslons were not made that could have been? 5. What can the public officials of Central City do to increase their ability to establish and execute public policy in emergency management? 80

IREDIA EXERCISE By now, you have developed some critical skills in analyzing policies established before emergencies and have examined the unique pressures surrounding policymaking during emergencies. Now you must confront one of the most important elements in implementing emergency policy during periods of crisis-working with the media. To further your appreciation of the potential problems and anticipated benefits of proper media relations during disasters, the following exercise has been developed from real-world information. While no actual geographical names are used and some of the events are combinations of past crises, the case studies are sound examples of emergencies likely to occur. GOAL 8 The goals of the case study exercises are: o To instill in participants an understanding of the tremendous impor-tance of media /public roles in emergency management and policy development, o To assist participants in obtaining a greater awareness of positive ways to communicate to the public through the media during times of crises, and e To help participants in preparing for emergency communications by sound preparation techniques. EXERCISE Each of the four groups will be assigned specific tasks. Two groups, together with a facilitator, will adjourn to a private area, preferably a separate room, to prepare for a press conference. The conference, designed to duplicate a live television presentation, will be videotaped. Each group will select a spokesperson and will begin preparing a two-minute statement. Participants will also brief the spokesperson on what questions to anticipate from the press during the three-minute question-and-answer session immediately following the issuance of the statement. The third group will receive directions on how to serve as reporters, and the fourth group will be instructed on how to critique the press conference. 81

One or two emergency scenarios will be used. Once both groups have videotaped their respective press conferences, the participants will reassemble in the main classroom. The two conferences will be screened and critiqued. There will be class discussion during which time you will be asked to make suggestions for improved communications during times of disaster or impending disaster. Because emergencies usually require officials to make repeated public announcements, both spokespersons w!!! be given the opportunity to make a i second video tape, if there is enough time to complete the second taping. The ] group can select either to have the same spokesperson or to choose another person from the group. In either instance, lessons learned from watching the first-round videotaped press conferences and the ensuing class discussion should be incorporated into the second effort. Every attempt must be made to focus on the positive aspects of the first statement and answers, while avoiding the mistakes. Please note that during the second press conference, there is a great likelihood new questions will be raised by the reporter. The second press conference tapes will be alred before the assembled participants. The instructor will make a few cogent observations and compare the two performances. He will then review the basic points necessary for delivering public information immediately before and during an emergency. TIP IJST POR MEDIA APPEARANCE IN TIMES OF CRISIS When any public official, from the President of the United States to the part-time mayor of the smallest village, appe*rs before the news media in times of crisis, there are basic issues that he or she taust understand. Foremost is the need to deliver information to the public that will help citizen' cope with an s emergency, not make the emergency worse. The natural tendency of most 1)oliticalleaders is to immediately frame statements with an eye toward protect-

ng their positions. That means avoiding anything embarrassing, such as admit-ting that police and firefighters are ill equipped or poorly trained. When a disaster is imminent, political instincts must be subordinated to the need to face problems honestly so that the public can have the best chance for survival.

Therefore, above all else, the first rule in media relations during emergencies, is honesty. That does not mean public officials are obliged to cast everything in the worst possible light and forecast defeat. Truth can be preserved, while control is maintained in the face of serious problems. Today's crisis communleation receives overwhelming coverage through television-at least in the initial steps. So to deal with television, here are some tips: e Television is an emotional medium, not an intellectual one. 82

i i h I e Viewers will often forget the content of your message but remember your style-how you looked, how you behaved, and the quality of your voice. e The way you are perce!ved on the television screen is frequently quite different from the way you are accepted in person. Remember that when preparing to appear before camera. i e. Look straight ahead; don't look up for guidance or down to hide. ] e Don't be glib or attempt to add a light touch. When you are talking about a nuclear plant accident, a dam bursting, or impending hurricane, you are talking about people's lives and property. They're not laughing. ] e Don't panic. If you lose control, how can you expect the person on the I street to maintain control? ) e Avoid jargon. Using technteal terminology, such as military or police idioms, confuses the public or leads them to think you're trying to hide something. e Watch out for emotional buzz words. The wrong ethnic label, an inap-propriate term, such as catastre,, hic or holocaust, or disparaging characterizations of groups or individuals involved in an emergency can create minierises all their own. e Don't win a battle at the price of losing a war. In short, don't fight with inquiring reporters on camera; you might win the first round but you'll lose in the long run. e Be clear and to the point. Don't beat around the bush; provide sufficient details so citizens can help themselves. Start any emergency statement with a direct--calmly expressed-o sentence about what is happening or what is expected to happen. Immediately follow that with a description of what authorities have done in response. Example: 'The National Weather Servlee has told us to expect severe storms to arrive in the area within the next three hours. Flooding and possible wind damage are anticipated. Officials, supported by a large number of volunteers, are now moving residents from designated areas. Shelters have been established and emergency supplies are being moved into our ana." e Don't make it worse than it is, but don't try to make it better either. Stick to the facts and don't speculate. l.. 83 I l' v-2

l' e if you cannot control your anger or keep your volee in check during times of stress, try to have someone act as spokesperson for most of the media presentation. Then, remain available for answering questions that the spokesperson cannot, o Emphasir.e the positive action authorities are taking to alleviate the situation. e Don't talk down to the public; they'll know it knd resent it. o Don't ever say, "No comment." To a mass audience you are saying three possible things by such a statement: "I don't know"; "I know, but I'm hiding the information"; or "Go ask someone else." That someone itse could say something a lot worse than what you might be forced to reveal.

SUMMARY

All participants will appreciate the far-reaching impacts of public/ media relations in both the short-and long-term ability to react to and recover from emergencies. The manner in which the press is approached and the message delivered to the public is just as important-if not more so-than the context of the message. 84 m

l SUMM ARY AND CONCLUSIONS After completing Section V, your instructor will summarize the main ideas and concepts that were presented throughout the course. Several days after you have completed the course, you should set aside some time to review the infor-i mation that was not discussed during the six hours of instruction. Once you have completed the content review, stop and think about the significance of the training experience for your being able to do a better job. Consider the course ) goal and the five objectives in relationship to the information, concepts, :.nd ideas that were presented and discussed. Also, consider the extent to which the 1 exercises were realistic and meaningful. After you have completed the above task, review the questions listed below and respond accordingly. These questions can serve as a personal frame of reference for deciding if the course was worthwhile. The questions ares e Were the course objectives achieved? e Did the instructor communicate effectively? Did you have an opportunity to make informed choices in completing ^ o the exercises and to reflect on the consequences of your cholees? e Did you assume an active role in the group discussions? e Were you involved in analyzing and discussing real-life situations? Were you asked to examine toples and issues that citizens in our society e do not normally examine-and that are typically ignored by the major communications media in the nation? e Did the instructor provide you with an opportunity to express your views about the toples and issues that were presented? e Was the content relevant to your reasons for taking the course? If your answer was yes to all of these questions, it is reasoncble for you to conclude that the course was a worthwhile experience that has increased your l ability to establish and execute public polley in emergency management. ) 85

APPENDIK D VIDEO TAPE SCRIPM e " Countdown to Disaster" e " Analyzing Policy" e " Formulating Policy: Civil Unrest in Central City" J 87

l l

COUNTDOWN TO DBASTER" Script for Video Tape WITH THE DAWNING OF MANNED SPACE FLIGHT, COUNTDOWNS HAVE BECOME COMMONPLACE.

(pause for 2 seconds) MOST COUNTDOWNS HAVE LED TO CELEBRATIONS OF SPECTACULAR LAUNCHINGS! (pause for 2 seconds) THERE IS ONE COUNTDOWN WE USUALLY DON'T THINK ABOUT... UNTIL IT'S TOO LATE-THE COUNTDOWN TO DISASTER 1 ALTHOUGH WE RECOGNIZE TilAT DISASTERS COULD OCCUR IN OUR COMMUNITIES, WE SELDOM DEVELOP A PUBLIC POLICY, IN ADVANCE, TO DEAL ,WITH POTENTIAL EMERGENCIES. PUBLIC OFFICIALS INVOLVED AT THE POLICY LEVEL OF

1. O C A L GOVERNMENT NEED TO RECOGNIZE THAT EMERGENCY MANAGEMENT IS DIFFERENT FROM MANAGEMENT UNDER NORMAL CIRCUMSTANCES.

DURING AN EMERGENCY THERE ARE TIME CONSTRAINTS, LIMITED OPTIONS, AND INCREASED STRAIN AND PRESSURE THAT AFFECT HOW WELL YOU RESPOND TO THAT EMERGENCY... THINK ABOUT IT AS YOU WATCil " COUNTDOWN TO DISASTER." NOW THAT YOU HAVE VIEWED SEVERAL COUNTDOWNS, THERE IS ONE QUESTION THAT NEEDS TO BE ANSWERED: j ARE YOU PREPARED TO RESPOND TO AN EMERGENCY IN YOUR COMMUNTTY WITH A POLICY THAT REASSURES THE PUBLIC AT LARGE THAT YOU ARE DEALING WITH THE DBASTER IN EVERY APPROPRIATE WAY? 89

1 i SECTION IV: ANALYZING POLICY VIDEO TAPE OUTLINE i YOU ARE TUNED TO WEMI, TV 9, SERVING CENTRAL CITY AND THE GREATER I LIBERTY COUNTY AREA, WHERE NEXT,IT'S NEWSBREAK 9. August 24; 6 P.M.-footage Blue Water Reactor / Craft Fair September 15 12 noon-footage: East Lake Dam September 20; 6 P.M.-footage: East Lake Dam location shots November 8: 10:20 A.M.-footage: Haz/ mat incident bulletin November 8; 10:45 A.M.-footage Second bulletin Haz/ mat location diots November 916:15 P.M.-footage Local news (fire) Hazmat followup

January 18 7:05 A.M.-footage: Edited sewer explosion bulletin January 18; 12 noon-footage: Sower explosion
preceded by station identification:

WEMI, TV 9, CENTRAL CITY. l l i 7 ) 91

l SECTION V: FORMULATING POLICY CIVIL UNREST IN CENTRAL CITY VIDEO TAPE Narration 104 The apparent accidental shooting of a man by a police officer near a railroad crossing on 25th Street... 13 sparked a major disturbance this evening. Two pollee vehicles were set afire i as frustrated community residents spilled into the streets in the Midtown area of Central City. 306 Police on the scene were overwhelmed by the situation and called for backup units to assist. 05 As the units travelled through Midtown, they were pelted with rocks and bottles that were hurled by angry children and teenagers. 106 Upon arriving on the scene, police in riot gear responded cautiously as hundreds of residents moved through a ten-block area. 112 At first, most of the violence involved looting and the throwing of objects at passersby, But soon, fire became the major weapon as the disturbance grew to riot proportions. 104 Central City firefighters responded slowly. Rumor has it that it was the fear of snipers which made them extremely cautious. 305 They did respond quicMy to the multi-alarm fire on 22nd and Y Streets. 10 The Reichart Furniture Warehouse was totally gutted by flames. From preliminary reports, the fire was evidently the result of a gasoline bomb that was thrown into the highly combustible warehouse. This is Jim Snyder, Newsbreak 9. 307 The scenes you are about to see are not for the squeamish. Police say this couple was attacked at 21st and Z Streets. (scream on tape =.06)

16 Twenty-eight year old Robert Butler was on his way to pick up a date. But shortly after 8 o' clock, he says he was beaten by a crowd that pulled him from his car at 25th and R Streets, after breaking his windows with rocks.

k

10 This scene occurred at about 9 o' clock. The woman was injured while driving 7

on Double G Street. Miraculously, her infant, who was also in the car, was unharmed. 21 0 Some of the victims represent minority groups. Dr. Luther Davis said that he and a busload of students from the Columbia State College Chorus were attacked by a crowd at 23rd and Double D Streets. 93

j l 11 6 The scene in the emergency room of Levine Hospital is one of bedlam as vie-tims keep going in to add to the normally crowded Friday night conditions. Over and over stories are told of people being attacked by crowds of dissidents ... Mike Rabey, Newsbreak 9. !06 Police officers from other parts of Liberty County are standing by as commu-nity leaders ask for calm. Bill Washington is one of the leaders who returned to Central City in the midst of the riot. 107 City Council member, Frank Stark, made similar comments, which were video-taped earlier this evening. 206 Those were the comments of council member Frank Stark when I spoke with him earlier this evening... This is Jim Snyder, Newsbreak 9.

05 This morning the trouble in the Midtown area of Central City is continuing.

More car burnings... 103 more confrontations with the police... 101 and more tear gas in response to those confrontations.

10 At best, police are maintaining only a tenuous control of the areas as angry groups of teenagers move quickly, retreating from police and then striking elsewhere...

303 overturning and burning cars. 230 Columns of smoke float over portions of Central City, where markets and stores have been the overnight targets of arsonists. Our Skycam 9 unit is fly-ing higher than normal to bring back these pictures. That's because of the problem with snipers-something that airborne news units have had to contend with since the trouble began. Senior government officials have scheduled a news conference at City Hall for 10 o' clock this morning. Reporters are certain to ask questions about the pre-sence-or absence-of a public polley that deals with emergency situations such as this one. Were they prepared? Can they reassure the public that they are dealing with the emergency '.n every possible wayt Jim Snyder, Newsbreak 9. I l 94 ~

3.,

4 v f. s. , r i. ;. '\\ m APPENDIK E MEDIA EKERCBE HAN71 OUTS 4 ) Y 2 1 1 1. f[ 1 t i 95 i. 'I .b :

t 4 f' t HANDOUT 1 INSTRUCTIONS FOR FACILITATOR The purpose of this disaster exercise is to place team members in a situation in which they must quickly review a developing emergency situation, draft a public policy statement for the media, and prepare a spokesperson to answer questions during a live i l-press conference. The last activity is by far the most difficult. lL Government and industry leaders rarely commit major blunders when giving prepared statements; it is when they respond to questions extemporaneously that mistakes are made. Under pressure from reporters, confronted with lights, cameras, and microphones, a misphrased response can quickly become a mini-crisis unto itself. Live press coverage tests the mettle of any official under the best of circumstances. When the conference centers on an emergency, pressure is intensified. A slip in answering a question, the display of frayed tempers, or an angry outburst will overshadow the content of any statement, no matter how carefully it has been worded. These will certainly worsen any situation. The facilitator will not serve as either the spokesperson or the group leader during discussion. lie or she will be required to make specific announcements, monitor times and deadlines, and distribute handouts, if the person serving as group facilitator is not part of the staff but a volunteer chosen from the group, then he or she may participate in the group deliberations, but still may not assume a leadership role. STEPS REQUIRED DURING THE EXERCISE Step One l Assemble the group at its assigned location as quickly as possible. Inform the members l they have 15 minutes to prepare a public policy statement for a live press conference called in. the wake' of an unfolding emergency. The group is to function as the policymaking public officials of Central City. 1 in E Step Two l l Distribute a copy of the emergency exercise (Handout 2) to each member of the team. Participants are to read the one-page scenario before taking any action. Once they have finished reading the exercise, they are to select a member of their group to serve as spokesperson for the press conference. (If no one volunteers or if the group cannot choose a spokesperson in a timely manner, then the facilitator should select one of the participants, Priority should be given to that team member who has been one of the more outspoken class members during earlier discussions.) Step Three The facilitator gnnot provide any extraneous or additional material beyond that which is provided in the emergency exercise. The group will be instructed to prepare a two-minute public policy statement to be presented at a live press conference. 97

Sten Four Five minutes into the preparation period, the facilitator will interrupt the group with a bulletin (Handout 3).- he bulletin will reflect changing events in the emergency situation. Step Five. Ten minutes into the preparation period, the facilitator will again interrupt the group with a notice that one of the emergency systems has failed (Handout 4). Step Six One minute before the preparation period is to end, the team is to be deliberately rushed. it must be told that the deadline is approaching and there will be absolutely no delays. Any failure to appear at the press conference at the appointed time could Indicate serious leadership problems. Step Seven Have the spokesperson stand before the floorstand microphone, in front of a television camera. De two-minute statement will be read first, then the spokesperson will answer questions from the press for ten minutes. %e questions are not to be revealed to the team before they are asked-they must be a complete surprise to the spokesperson. Sten Eight The instructor will distribute initial questions (Handout 5) to the assembled press corps. he press corps should plan its strategy for the news conference while the groups are preparing their statements. While no reporter should attempt to be rude or to represent the role of the press as being overly aggressive, it must be kept in mind that the press conference has been called in response to a developing emergency. Lives are at stake! Reporters will be pushing to have solid answers. De pacing is important. Questions should be asked in a firm, relatively quick manner. If - the e information has been covered in the statement, either press for details or move on to the next question. If the spokesperson hesitates or appears indecisive, then jump in with the next e question. No time is given to collect thoughts; there would be other reporters at such conferences wanting to have their questions answered. Keep up the pace. If the spokesperson does not answer the question, then respond with something e such as, "... Mr. Mayor, I don't understand. Are you saying some people have been killed, but you don't know who or how many?" 98

1 + e Remember, if the emergency would have the potential of becoming a major ^ disaster, it would be a national event, with national news media representa-tives coming into the area. While the exercise is a game, in one respect, such a news conference would not be-reporters would be demanding hard answers to serious questions. The public would expect honest, straightforward responses. Step Nine I Once the news conference taping is over, help assemble your group as quickly as possible into the main classroom for the critique and discussion. Step Ten If there will be a second taping, move the group members back to the taping area and . help start the second-round press conference. If the group wants a few minutes to adjust its statement or to make corrections, allow a minimum amount of time. Step Eleven f The questions for round-two should be based on those asked during the first press I conference. Do not allow the participants to know they will be faced with different questions. The second-round questions should be more adversarial and the press corps l should take a few minutes to develop new questions. The group has some experience now and should be able to handle the tougher questions. - Step Twelve Ask the second-round questions, keeping in mind the points reviewed in Step Eight. Step Thirteen 1 l. Assist in moving the participants back to the main classroom for the final briefing and L review of the day, l-L

SUMMARY

The facilitator greases the skids; the participants direct the exercise. Keeping to a tight schedule is very important-so is the admonishment not to embellish the facts surrounding the scenario. A local government leadership team would have to make quick decisions in such situations and would not have an outside professional protnpter looking E over their collective shoulders. The exercise is designed to be fast-paced and real-world t-oriented, with a lasting impact. The' success or failure of the exercise will depend, in great part, on how well the facilitator performs. A positive, punctual, and perceptive facilitator is the key to accomplishing the goals of the exercise. 99

HANDOUT 2 EM?.RGENCY: CIVIL UNREST IN CENTRAL CITY GENERAL BACKGROUND This is an older industrial city of almost 150,000, surrounded by suburbs and manu-facturing/ warehouse districts; total population, 211,000. The metropolitan area is centrally located in Liberty County. The county has an elected sheriff who serves as chief law enforcement officer for unincorporated areas. The city and larger incorporated areas maintain: police and fire departments. In recent years, most jurisdictions have entered into mutual aid agreements, enabling them to call upon their neighbors for police and firefighter assistance. There are, however, wide differences be-tween departmental standards, operating procedures, and command structures. The city often holds itself out as "being above" the problems and conduct of the snialler suburban departments, thus creating friction between city police and firefighters and the small-town law officers and firefighters. EVENTS LEADING UP TO CRISIS The effects of a deepening recession were being felt in 1979; a local reactionary political and social backswing became apparent in 1980-81. Jobs became scarce; costs of housing and food continued to rise. During this period, the Midtown portion of Central City had been particularly hard hit. For the past 40 years, the Midtown area had been almost entirely black. During the past decade, there has been a dramatic influx of Puerto Ricans; during the past two years, a growing number of Asian immigrants (mostly Vietnamese and Laotian) have moved into the area. The Midtown area has also come under socioeconomic attack by a combined group of civic and city leaders who have led an urban renewal charge into the area. As a result, large portions of the Midtown area have been bulldozed to the ground; rebuilding has catered to expensive condo (professional white families) development, shopping parks, and theaters. The deteriorating brownstones and abandoned warehouses that had provided shelter for many of the unemployed poor were gone. The rebuilding of city streets and other structures destroyed by the sewer explosions earlier this year has been slow, causing additional problems to Midtown residents. The media has given scant notice to the worsening conditions in the Midtown area; City Hall has not noticed at all. Tensions are high. Gangs of ethnic / racial unemployed youth have all but declared warfare on one another. THE INCIDENT It is August 20, Friday night. Hot, humid weather has blanketed the city for almost four weeks. Fights have erupted; police have been called repeatedly to the Midtown area of Central City. There is a disturbance and police respond. Two opposing gangs are reportedly involved. During an arrest, there is a scuffle and one person-not an officer-is shot. Conflicting reports circulate-a police officer shot a black, a black shot a Puerto Rican, a bystander was hit by sniper fire. No one is certain. Within minutes there is a crowd. Police on the scene call for help. Reinforcements arrive. Within 45 minutes of the initial call, a full-scale riot has begun, but most senior public officials have left the city for the weekend and must be notified to return as soon as possible. 101

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t l HANDOUT 3 EMERGENCY: CIVIL UNREST IN CENTRAL CITY 1 BULLETIN: NEW INFORMATION FROM THE SCENE Fighting has significantly worsened. There are fatalities, but no one at the scene knows who they are-whether residents of the Midtown area or law officers. Wounded are being taken to area hespitals. Fires have broken out and unrest appears to be spreading out of the Midtown area east into the Hoover Heights area and south into an area surrounding Columbia State University. It has been reported that an administrative aide to the Senator in the State of Columbia has been caught in a cross-fire and is now being held by the Puerto Rican group. They are refusing to allow the young man to receive medical attention. At this time, it is not known how seriously he is injured, and in fact, whether his captors know who he is. No demands have been made. s--.. Announce 5 minutes into 15-minute preparation period. I l l l L-1 103 s

HANDOUT 4 EMERGENCY: CIVIL UNREST IN CENTRAL CITY L l BULLETIN: RESPONSE FAILURE In accordance with the city emergency plan, a command post has been established at the scene. It is supposed to coordinate on-scene activities among municipal law officers, firefighters, EMS (emergency medical service provided by private ambulance companies), and out-of-town police responding to mutual aid agreements. Within the last few minutes, all communication with the on-scene command post has been lost and no one knows what is happening. Confusion between the various response agencies is increasing and fire leaders are demanding to have confirmation ^,. about reports of snipers shooting at their personnel. Announce 10 minutes into 15-minute preparation period.- l l i. 105

gn HANDOUT 5 m EMERGENCY ONE CIVIL UNREST QUESTIONS-PRESS CONFERENCE -(These questions are to be asked by the facilitator accompanying a work group. _ They are to be asked in rapid succession as though raised by different reporters attending a live news conference. Please follow the instructions noted af ter individual questions.) IMPORTAN11 Listen carefully to the statement as read. If the spokee-person has directly addressed any of the following questions, then reptiase them in order to press for more details. - 1. You mentioned fatalities. How many are there and who are they? Have police officers been killed? (If there is a not a direct answer, rephrase the question and ask it again.) 2. How many wounded are there? Can you identify any of them and where-they have been taken? (Again, listen for the answer and press for details.) 3. There are reports that several youngsters have been beaten by police. Is that true? 4. My paper has been told that you have ordered out the National Guard. Have you called the governor? Are members of the Guard coming? (Pay particular attention to the answer.) If the spokesperson says the Guard has been placed on alert, the following questions should immediately be fired at the spokesperson: a. When will the Goard be in place? Who will be in charge? b. Aren't the local police forces sufficient to keep things under control? 5. There have been stories about snipers firing on fire trucks; firefighters have told reporters they're refusing to go anywhere near Midtown, is the situation that serious? 6. Pye heard the rioting is spreading toward the downtown business district. What are you doing to stop it? You're not going to let them just keep destroying our city, are you? 7. Just how much of the city is on fire? We've been hearing conflicting reports; some say there's just one or two abandoned buildings burning, others are telling us whole blocks are on fire. (Press hard for details. Are the buildings owned by minorities or by major business interests, etc.?) 107 i

F 8. The Police Chief of Kingston (a town southeast of Central City), says he thinks the city police have provoked this whole thing and he's not going to send his men in there. - Any comment? (While the inquiring reporter may only be following up on a statement of. another official, the spokesperson could interpret the question as an attempt to take a " cheap shot" at him during a' crisis. The question should be asked briskly. Any evasive answer should immediately be followed up with a demand for more details or further explanation why the Kingston Police Chief is wrong.) 9. Who is in charge at the scene? Is it true that police and the National Guard have been given orders to shoot looters? (if the answer is Les, then immediately ask if any looters have indeed been shot-don't wait for the spokesperson to finish his answer to Question 3 before following up.) 10. What are you doing to keep the rioting from spreading? (Press for details.) 11. Pye heard you have lost contact with the command center in Midtown. Is that true? What are you doing about it? I \\ i 108 ...}}

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