ML20207C705

Intervenor Exhibit I-SC-1(BD),consisting of Vol 2 to Emergency Mgt Review, Dtd 1985

ML20207C705
Person / Time
Site:	Shoreham File:Long Island Lighting Company icon.png
Issue date:	05/17/1988
From:	Herman R AFFILIATION NOT ASSIGNED
To:
References
OL-3-I-SC-001, OL-3-I-SC-1, NUDOCS 8808100112
Download: ML20207C705 (5)

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THE LEGAL LI ABILITY OF EMERGENCY MANAGERS & PERSONNEL by LEONARD KNEE PUBLIC AND PAIVATE SECTOR COOPERATION IN EMEPGENCY V AN AGEMENT PLANNING by JEAOLYN ROSS LYLE TER AORISM. THE THAEAT OF VIOL ENCE. AND POLICY 4AAKING Part Two by ANN FILLMOAE

• RO' E CONFLICT & ABANDONMENT IN EME AGENCY WOAKEAS by DENNts S MtLt Tl j THE STATE AND LOCAL DIS ASTER AECOVEAY M AN AGEA by WIL LI AM G C AL LAH AN -

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fiUCLtAR RiGULATO3Y COMMISSION 130cket NoMMn-l. Offici;lExh.NJ.(b _s in the matter of _h_ ESI_Md.34d4_Qi Stoff _ _10ENiliiED __/ . _ _ .

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a conclusion from empirical evidence about how emergency workers resoiv$d their family work role conflict. He statss ,

"The great majonty of persons interviewed who were mvolv;d R0le COnfin1gg gMd in such dilemas resolved them in favor of the family, or,in v 441 s %4 some cases, to friendship groups. Much of the initial con-fusion, disorder and seemingly complete sisorganization O

V Abandonment repor1ed in disaster communities was the result of famihes to find and tejoin their families (1952:311)."Other early disas-ter studies offered similar conclusions. For example, a study ln Emer90nCY of the 1953 Holland flood disaster (Instituut Voor Sociaal Onderzock Van Het Nederlandse Volk Amsterdam Volume IV,1955:11) concluded that "The choice of most men was to y]fM 1

r F VE 98kUI #% 98 O8 by Dennis S. Mileti be with their f amilies rather than fulfilling the tasks which they snould have done in their positions as members of another group;" and "The number of men in rescue increased,if they knew that their wives and children were safe."

Other studies, apparently, followed which provided ad-The notion that people occupy and perform a multitude of ditional "evidence" that role conflict in disasters was resolved by the abandonment of emergency worker roles in favor of social roles is a long standing tenant in the disciplines of performing family roles. Moore (1958:245), in a study of a human behav ior. This view is extended by recognition that a disastrous tornado, concluded that Efforts to reunite the person can often find themselves in the position of alternative family were the first thing done in many cases. Until this was roles competing for attention at the same time; indeed,it is done everything etse was postponed and reported to have quite easy for most people to readily recall the strain of need-been insignificant." Moore also provided three case examples ing to be in two places at the same time. Concern over role to illustrate the general conclusion. First, the mayor, on be-conflict or strain - 11is labelled differently by different re- coming aware of the disaster while driving home went home searchers - is particularly acute when it references the be- first, picked up his wife, and th9n started out to see what had havior of emergency workers dunng emergencies. Here the happened. Second, the civil defense director was at the scene issue becomes, during emergencies when emergency work- when the impact occurred, and after making calls to alert ers can find themselves torn between competing demands several disaster agencies, he then telephoned his family and on them to play the roles of emergency worker versus those went home. Third, the city manager, who was also close to the of family mernbers or protectors of intimates, which role wins scene of the disaster, checked with this wife in the course of out and can emergency workers be counted upon to do their his offeial activities to see if she was injured; he was able to emergency jobs. It is the purpose of this essay to trace the do this because he was at police headquarters which had history of research on this topic, and set the record clear on special lines.

the true character, determinants and consequences of role Accounts of findings of role abandonment by emergency conflict in emergency workers in disasters in such a way as workers because of role conflict in disasters continued to may prove useful to those who plan for and manage emer- mount. Fogleman (1958:343) concluded that the roles of hus-s j gencies. band and father were primary in structuring activity in the period of disaster impact. Form and Nosow (1958) provided several generahzations based on accumulated evidence:

The Prevailing Image "seip tor family members. close frie nds. ano neignbo rs comes first; then, but apparently only then, other victims can oe it was in the specialized literature of disasters and emer-looked after" (p.66); "Only half of those persons (belonging gencies that the concept of role conflict was first conceptual- to disaster onented organi2ations) . . sought to relate tnear ized in sociological terms. This was accomplished by Lewis activities to occupational organizational statuses" (pp.114-Killian (1952:309-314) who sought to develop a typology for 115);" , greater conflict exists for those who have injured role conflict types. That is, Killian did not seek to document family members than for those who do not" (p.102); and the occurrence of role conflict in a set of partcular disaster "

.those who experienced. . conflict showed a greatercon.

Situatione, but rather to describe a concept he thought im- cern for f amily neighbors and friends" (p.109). Finally. Moore portant to the general sociological enterprise. Killian de- et al.,(1963) conducted a major hurricane disaster study and scribed the concept well, and his original article has become concluded that the presence of conflicting role obligations a classic but abused work. The classic "cell'in Killian's typo- was an important factor in directing the behavior of some per-logy has become role conflict that is experienced by emer- sons in disasters. These studies, and perhaps a few others, gency workors who are torn between conflicting loyalties to provided "evidence" that role conflict in disasters is resolved family and work groups when disaster strikes. Disasters pro- in favor of primary f amily roles at the expense of emergency vided the discipline of sociology with a good example sitsa- work roles.

tion in which to illustrate to students role conflict of this type. The portrait of role conflict in disasters provided by these it is easy to be able to imagine role conflict by thinking about studies has been summarized in several texts on disaster having a family at home in a disaster stricken area when an (Mileti, et al.,1975; Barton,1969) and is typically and un-emergency begins while being at work and having an emer- questioningly referenced in most freshman textbooks. The gency job that must be performed. implied social process is: (1) disasters produce role conflict in Killian's original work, however, seemingly went beyond emergency workers, (2) role conflict elicits abandonment of defining a concept. He also reported on what appears to be emergency worker roles,(3) and abandonment of emergency About c%e Auttw: Dentws S. Muell has stud,ed betworst aspects an the m:tsstron of, preps wness for, and emergency response to natural arn p humar>made emergences and dassters for some dozen part He ss currentty snvoksd in resostch on emergmcy p;snning for nuclest power piant Q cccidents. He has receney spent a yest, whike on leave from Co@rado State Unnsrstry. as a coley analyst for the Catutomos Seosme Satory Comme.

sicm and has recently pubbshed a monograph on Earthquek e Prediceon Respnee and Ophons ior Pvwe Poicy. He ss currentry Director of the Ms2 cics Assessment Laboratory at Colore00 State Unnsrsity where he as s 'so an Assocrate Professcv otSoc&ogy. He recervedhis Ph D. from the Unw stry of CoJorado where he began his tssaarch on hazarcs, d.ssstars and emergencies.

20 Emergency Management Rev>ew

I worker roles contnbutes, at Izast initially, to the social dis-organizttion imposed on human communitics by disasters. that roto conflict can contribute to "personal disorganization" This is, indeed, the conventional "wisdom" or image of the or "anxiety" while emergincy workers do thdr work. On the determinants and consequences of role conflict in disasters basis of this view, therefore, one would suspect that role con-and emergencies. It also has been amf a currently topic for flict is a mentas phenomenon that desenbes an emergency national concern in the litigation et omesegenc y plan adequacy worker's need to know that loved ones are safe rather than a in many states in proceeding M iicente rMcitar power plants. behavioral phenomenon that could result in emergency role

{s abandonment and consequent social disorganization, Additional Research Eridence This alternative (psychological rather than behavioral) view of role conflict (for emergency workers wno know they Several questions must be formulated 1M taen answered have an emergenc/ role rather than those who are unsure or before we conclude that a tor.iado, ea rthqmtk t; chemical spill. do not know a bout an emergency role for themselves) rests on nuclear power plant accident and othe,r forms of riatural and more than Killian's (1954) second article. For example. Fntz technological calamities mean the brandown in normative (1961) attempted to provide an overview of how families, structures for emergency responso that society has erected people with emergency roles, and people without emergency to combat disaster when it strikes. Who, for example,"aban- roles all relate when disaster stnkes. In essence, a reading dons

• emergency roles in favor of family obligationJ durin9 of Fritz would lead a reader to hypothesize the following:

(1) all people are concemed for loved-ones in disaster, (2)

= - '- - ' most people do not have emergency roles, and these folks ate torn between loyalty to intimates versus the community when

. . . Tole ConfllCt do0S not result in role aban. disaster straes - most of these people tend to theirintimates first and only then volunteer for einergency work, (3) people donment in disasters, if emergency workers with clearty defined emergencyjobs perform their emergency are Srovided - before an emer9encY - with r les, but under personal stress until they are assured of the safety of intimates. (4) provisions can be irnprovised, or planned a Clear idea of what would be their emergency for. to assure emergency workers of fr.mily and intimate safety role. and remove this stress for them during the initial aftermath of 23 r uo...  :;m- . s disaster, and (5) finally, that rolo conflict for emergency workers who have a clear pre-emergency notion of their emergency disaster? Are they people who know that they have an emer* role is a mental and not behavioral phenomenon. Another gency job, or are they people who do not perceive themselves study (Bates, et al.,1963) investigating the impact of a hurrl-to be part of emergency response, but whom outside ob* cane on impacted communities reported no role conflict in sorvers judge should have thought one up during the emer- emergency workers: everyone opted for family instead of gency? Outside observers could be sociologists expectin9 work role. However, there was no emergency plan in the com-to find "social disorganization" (the field of disaster research munity studied - no one had a pre-emergency notion about was called "social disorganization" by some when it first be* their emergency role. The picture presented thus far did offer qsn), or anyone else. is role conflict something that results in Some insights aoout role conflict and for whom it might mean bplaying one versus another rola in en emergency orcanit and psychological stress while doing emergency work and for U s iti rosvived by doing botn? If there are cases where people whom it would mean doing emergency wc-k only after inti-who knew they had an emergency job left that job, did they mates were attended. However, these conclusions were still leave without regard for whether or not the emergency work somewhat hypotheses, and no one had as yet offered a clear could get done, or was it clear before they left that others theoretical explanation as to why.

staying on the job would be able to handle it? The answers to questions like these woulo help us understand it role conflict results in role abandonment in emergencies (and if early ac. . . . for emergency workers who have Clear counts of role abandonment were, for example, merelv bawd on some researchers observing a person who did not know he and Certa,n i notions about their emergency had an emergency job not doing that emergency job); why it worker role, emergency work role perform-occurs if it does; the theoretical character of how role con-anCO takOS precedence over other roles, in-flict is resolved or played out in emergencies; and if it is a . .

problem, how it can be managed by those who would use ClUding family togOS.

Sociological knowledge to prepare their communities for -

disasters.

It is interesting that the scholar who gave us the concept An answer to this question was provided by White (1962) of role conflict in disasters was the first to step forward to in an unpublisned MA thesis at the University of Chicago.

begin a clarification. Killian (1954) provided the field with White investigated data on emergency role performance in some important but too often overlooked insights only two three different emergencies. The findings were that 82% of years after his initial publication. He suggested (1954.69) that the emergency work force contnbuted to disaster response "The possession by the individual of a clear conception of a activity first - over family roles; and that this figure rose to role which he can or should play seems to be condusive to 89% af ter the first four hou rs from disaster impact had elap sed.

organized adaptive behavior." Killian was suggesting that She concluded that

• role-certainty" was the key factor that disasters are not social disorganization, and that role conflict eaplained what emergency workers do in reference to emer-does not result in tole abandonment in disasters,if emergency gency roles when disasters strikv. That is, if an emergency workers are provided - before an emergency - with a cfear work role is "uncertain

• to a worker when an emergency be-idea of what would be their emergency role, if Killian was g ns, that worker will opt for other roles -like femaly roles -

correct, it would be quite inappropriate to observe the be- thst are more cle ariy known and "certain."However, for emer-

~

havior of a Nould-be" emergency worker without a pre- gency workers who have clear and certain notions about mergency idea of his/her emergency role not domg emer- their emergency worker role, emergency work role perform-ency wort in a disaster, and then conclude that role conflict ance takes precedence over other roles including family roles, led to role abandonment and social disorganization. Such White (1962), therefore, provided a theoretical rationale and observations would not be role abandonment since it is dif* explanation for the performance of roles in disasters: role ficult to see how one could "abandon

• a role if they did not conflict exists in emergencies, role certainty in emergency know that they had it. Killian (1954) went on to also suggest (cont. on page 22) 1985 Votume 2. Numbar 1 '

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. ROLE CONFLICT AND ABANDONMENT,(cont. from p;pe 21) through a lack of training or planning - for emergency work-work rol ls yiolds p;rforming em;rgency rolss over family ers, role conflect in emergencIss can resuitin seeirg would be workers play more certam roiss toward intimates before at-roles and family roles over emergency roles when emergency work roles are not clear and cartain. This explanation could tending to emergency work. Third, role confhet - for emer-account for why research had sometimes found emergency gency workers on-the job during an emergency can elicit psychological stress or at least concern about the safety of worker "role abandonment" and sometimes not. intimates; and workers can improvise or emergency plans can Finally. perhaps the most all inclusive work on rote con-flict/ abandonment in emergency workers performed to date forrnalize ways that emergency workers can Check on the was by E.L. Quarantelli (no date). This work looked in 150 safety of intimates. Conclusions such as these suggest that if an emergency worker- before disaster strikes - has a clear different disaster events and the behavior of over 6000 emer. (Killian,1954:69; Frit2,1961; Bates et al.,1963) and certain gency workers. The conclusion was (cf., page 3) that role (White,1962) image of their emergency role which can be conflici was nct a serious problem in the loss of manpower in emergency situations. Six emergency events were ex- achieved through planning and training (Dynes.1970:154-155), that emergency workers resolve role conflict in emer-amined m more detail. No one at work when the emergency began abandoned their emergencyjob. A dozen people.how- gencies in favor of emergency work roles while improvising ever, left their job temporarily; they were not needed for the ways to check on the safety of intimates (Quarantelli nodate) organization to do its work. The general conclusion of this unless formalized ways to accomplish this same objective work was that role abandonment is absent in emergencies are drafted into emergency plans. This conclusion would because of social changes that occur in communities when certainly explain why researchers (cf. Killian,1952;instituut emergencies begin; for example, other family members pick Voor Sociaal Onderzock Van Het Neoerlandse Volk Amster-dam,1955: IV 11; Moore,1958:245; Fogleman,1958:343, Form up internal deligations to the family, kin, neighbors and so and Nosow, 1958:66; Moore et al.,1963, and others) reported en which allows other family members to participate in emer-gency roles, role conflict in emergencies resulting in role abandonment during times when emergency planning and training - and consequent low levels of emergency worker role certainty -

Conclusions and Implications for were slight in American communities. It would also explain wny other researchers (for example, Quarantelli, no date)

Emergency Management f

.ound so little role abandonment resulting from role conflict in more contemporary emergencies where emergency work.

The conclusions one might now reach about role conflict ers could have had more certain (cf. White,1962) pre-emer-and role abandonment on the part of emergency workers are gency notions about their emergency roles.11 Seems, there-straightforward. First, when emergency work roles are "cer- fore, that the abandonment of emergency work ro!es by tain" - perhaps through training and planning - for emer- emergency workers is not a problem in d;sasters if emer.

gency workers, role conflict in emergencies does not result gencies are prefaced by emergency worker training. It is, in the abandonment oi emergency work roles. Second, when however, one very real reason among others why emergency emergency work roles are not clear or "certain"- perhaps planing and emergency worker training is essential, o

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