a brief explanation of the comprehensive emergency management system and its “stakeholder”...

A Brief Explanation of the Comprehensive Emergency Management System

and its “Stakeholder” relationship to Hydrometeorological Products, Services

and Supporting Research

September 2008

DisclaimerDisclaimerThe questions, the answers, and the diagrams presented here have been developed by the National Hurricane Program in an effort to understand how best to “programmatically expand” the program within FEMA to support our partners in hurricane emergency management.

This presentation does NOT NOT represent official FEMA policy, and is for discussion purposes only.

Comments and suggestions for improving the concepts contained here are welcomed and encouraged.

What is the PurposePurpose of Emergency Management?

Manage EmergenciesManage Emergencies

What are Emergencies Managed WithWith?

Emergency Management CapabilityCapability

“(T)he governmental function that coordinates and integrates all activities necessary to build, sustain, and improve the

capabilitycapability to prepare for, protect against, respond to, recover from, or mitigate against threatened or actual natural disasters, acts of terrorism, or other man-made disasters.”

-- The Post Katrina Emergency Management Reform Act of 2006 (P.L. 109-295)

“Emergency Management” PKEMRA Definition:

What is

Emergency Management Capability?Capability?

“The term ‘capabilitycapability’ means the ability to provide the means to accomplish one or more tasks under specific conditions and to specific performance standards. A capability may be achieved with any combination of properly planned, organized, equipped, trained, and exercised personnel that achieves the intended outcome.” -- The Post Katrina Emergency Management Reform Act of 2006 (P.L. 109-295)

“CapabilityCapability” PKEMRA Definition:

Emergency Management Capability is the Operational CapacityOperational Capacity (“the ability to provide the means to accomplish one or more tasks”) to manage the consequences or RiskRisk from a hazard or threat (“under specific conditions”) to prevailing ExpectationsExpectations or performance standards (“to specific performance standards.”)

A Simpler Definition of “CapabilityCapability”:

How Do We AssessAssess “Emergency Management

Capability?”

Using the Capability FormulaCapability Formula

The “Capability Formula”

EMC = OC – (R+X)Emergency Management

Capability equals

Operational Capacityminus the sum of

Risk plus Expectations

Definition of Terms:

• Operational CapacityOperational Capacity = (Resources = (Resources + Preparation)+ Preparation)

• RiskRisk = ( = (HazardHazard x Vulnerability X x Vulnerability X Consequences) Consequences)

• Expectations Expectations = Formal (i.e. = Formal (i.e. legislative or executive directed) + legislative or executive directed) + Informal (i.e. academic or media-Informal (i.e. academic or media-driven)driven)

How Do You ImproveImprove “Emergency Management

Capability?”

ControlControl the VariablesVariables of the Formula:

1.1. IncreaseIncrease Operational CapacityOperational Capacity

2.2. DecreaseDecrease RiskRisk

3.3. ManageManage ExpectationsExpectations

How Do We:

Increase Operational Capacity?

Decrease Risk?

Manage Expectations?

Systematically, through the

““Comprehensive Emergency Comprehensive Emergency Management System”Management System”

“Reduce the loss of life and property and protect the Nation from all hazards, including natural disasters, acts of terrorism, and other man-made disasters, by leading and supporting the Nation in a risk-

based, comprehensive emergency management comprehensive emergency management systemsystem of preparedness, protection, response, recovery, and mitigation.”

-- Both PKEMRA and The FEMA Strategic Plan (February 2008)

The FEMA Mission: Lead and Support the “Comprehensive Emergency Management System”

The “Risk-Based, Comprehensive Emergency Management System” -- Post Katrina Emergency Management Reform Act (“PKEMRA” -- HR 5441, Sec. 503[b][1])

Increase Operational Capacity (OC)* Decrease Risk (R)*

MITIGATEPREPARE

RECOVER PROTECT

RESPOND

BUILD CAPABILITY“Readiness”

DEPLOY CAPABILITY“Operations”

EXERCISE or ACTUAL EVENT

Strategy Development &

Process Planning

tIncrease Operational Capacity (OC)* Decrease Risk (R)*

SupplementSupplement Operational CapacityOperational Capacity via Response & Recovery Operations, such as Mutual

Aid, State Declaration, EMAC, and federal declaration (Stafford Act) through full National

Response Framework utilization .

IncreaseIncrease Operational EffectivenessOperational Effectiveness via traditional Hurricane "Preparedness Cycle”

Activities such as: Analyzing, Assessing, Planning, Training, Staffing, Equipping, etc.

BUILD CAPABILITY“Hurricane Readiness”

HURRICANE or EXERCISE

PROTECT

RESPOND

PermanentlyPermanently Reduce Risk Reduce Risk from future Hurricanes via traditional Mitigation measures such as: Land Use and Building Regulation, Structural Retrofit, permanent risk reduction projects, etc.

MITIGATEPREPARE

RECOVER

TemporarilyTemporarily Reduce Risk Reduce Risk in response to a present Hurricane threat via “Protective Actions” – Population Protection (i.e. evacuation, sheltering,

SAR, etc.) as well as temporary risk reduction measures (shutters, sandbags, levee fortification, etc.)

DEPLOY CAPABILITY“Hurricane Response”

Comprehensive Hurricane Emergency Management Strategy (CHEMS) & Process

Planning

- TIME +

- CAPABILITY +

= STRATEGY DEVELOPMENT & PROCESS PLANNING

= EXERCISE OR EVENT

PRE-EVENT

POST-EVENT

Katrina

- TIME +

CAPABILITY +

E = EXERCISE OR EVENT

PRE-EVENT

POST-EVENT

Katrina

- TIME +

CAPABILITY +

E = EXERCISE OR EVENT

PRE-EVENT

POST-EVENT

NEW FEMA/ PKEMRA

MITIGATEPREPARE

RECOVER PROTECT

RESPOND EXERCISE, INCIDENT or

Strategy Development & Process Planning

INTEGRATED PLANNING SYSTEM (IPS) & CPGs

ANNUAL APPROPRIATIONS & GRANT PROGRAMS

National Preparedness System

National Mitigation System

NATIONAL INCIDENT MANAGEMENT SYSTEM (NIMS)

STAFFORD ACT RELIEF PROGRAMS & THE DRF

National Response Framework

National Exercise Program

DEPLOYDEPLOY CAPABILITY

BUILDBUILD CAPABILITY

OUTPUTSOUTPUTS:: Risk Reduction Cycle Metrics

MITIGATEPREPARE

RECOVER PROTECT

OUTPUTSOUTPUTS:: Preparedness Cycle Metrics

OUTPUTSOUTPUTS:: Response/ Recovery Metrics

OUTPUTSOUTPUTS:: Response/ Protective

Action Metrics

MITIGATEPREPARE

RECOVER PROTECT

*Capability Formula: EMC = OC – (R+X)*Emergency Management

Capability [EMC] = Operational Capacity [OC] – (Risk [R] +

Expectations [X])

Action Metrics

MITIGATEPREPARE

RECOVER PROTECT

Prevention Mission: “DETER”

Prevention Mission: “DISRUPT”

Expectations [X])

Action Metrics

MITIGATEPREPARE

RECOVER PROTECT

Expectations [X])

(RE)ASSESSMENTS: Capacity, Risk &

Expectations

Action Metrics

MITIGATEPREPARE

RECOVER PROTECT

Expectations [X])

“CUSTOMER” PERCEPTIONS & EXPECTATIONS:

Executive/Legislative, Media, Academic, Government & Public

Expectations

Action Metrics

MITIGATEPREPARE

RECOVER PROTECT

Expectations [X])

GUIDANCE:Oversight, Policy, Law & Doctrine

Expectations

Action Metrics

MITIGATEPREPARE

RECOVER PROTECT

Expectations [X])

INFORMATION & ANALYSIS:Capacity, Risk & Expectations

Expectations

Action Metrics

MITIGATEPREPARE

RECOVER PROTECT

Expectations [X])

Expectations

OUTCOMEOUTCOME: Improved Performance, as observed during a “no notice” exercise or actual event, using standard and objective (to the degree practicable) assessment criteria.

Action Metrics

MITIGATEPREPARE

RECOVER PROTECT

Expectations [X])

RESPOND HURRICANE – Actual or Exercise

CHEMS Development & Process Planning

Expectations

OUTCOMEOUTCOME: Improved Performance, as observed during a “no notice” exercise or actual event, using standard and objective (to the degree practicable) assessment criteria.

OUTCOMEOUTCOME:: Reduced Risk, as measured using continuously improved national consensus standard methodologies for hazard, vulnerability and consequence assessment.

Action Metrics

So, what IS the relationship between the Comprehensive Emergency

Management System and

Hydrometeorological Products, Servicesand Supporting Research?

QUESTION:

In order to build emergency management capability, it is necessary to have consistent,

credible, defensible, national-consensus standard methodology and calculation of

Answer:

In other words:

“Capable of Managing What?”

DEPLOY CAPABILITY

EMERGENCY MANAGEMENT

(Non-Adaptive Threat)

HOMELAND SECURITY

(Adaptive Threat)

REDUCE RISK INCREASE CAPACITY REDUCE RISK

PREVENTION MITIGATION

EVENT EVENT or Exercise

RESPOND

PREPARE MITIGATE

PROTECTRECOVER

DETER PREPARE

DISRUPT RECOVER

RESPOND

DEPLOY CAPABILITY

INCIDENT INCIDENT or Exercise

Risk Reduction: Permanent

Risk Reduction: Temporary

Counter-Terrorism: Deterrence

Counter-Terrorism: Disruption

PREPAREDNESS

RECOVERY

“CUSTOMER” PERCEPTIONS & EXPECTATIONS:Executive, Legislative, Media, Academic & Public

GOVERNANCE/GUIDANCE:Policy, Strategy, Law and Doctrine

INTELLIGENCE & ANALYSIS:Capacity, Risk & Expectations

PROTECTIONPROTECTION

(RE)ASSESSMENTS & MEASUREMENTS

Strategy & Process Planning

RESPONSE

BUILD CAPABILITY

EMERGENCY MANAGEMENT(Non-Adaptive Threat)

HOMELAND SECURITY(Adaptive Threat)

REDUCE RISK REDUCE RISK

BUILD CAPABILITY

RESPOND

PREPARE MITIGATE

PROTECTRECOVER

DETER PREPARE

DISRUPT RECOVER

RESPOND

BUILD CAPABILITY

DEPLOY CAPABILITY

PREPAREDNESS

GOVERNANCE/Guidance:Policy, Strategy, Law and Doctrine

ASSESSMENTS & ANALYSES:Capacity, Risk & Expectations

RECOVERY

RESPONSE

INCREASE CAPACITY

DEPLOY CAPABILITY

BUILD CAPABILITY

RESPOND

PREPARE MITIGATE

PROTECTRECOVER

DETER PREPARE

DISRUPT RECOVER

RESPOND

BUILD CAPABILITY

DEPLOY CAPABILITY

PREPAREDNESS

RECOVERY

RESPONSE

PREPARE MITIGATE

PROTECTRECOVER

DETER PREPARE

DISRUPT RECOVER

PREPAREDNESS

RECOVERY

DEPLOY CAPABILITY

BUILD CAPABILITY

RESPONDRESPOND

BUILD CAPABILITY

RESPONSE

DEPLOY CAPABILITY

The Components of Capability Measurement & Improvement:

1. The accuracy of the Risk Assessment for the hazard or threat;

2. The effectiveness of the efforts to reduce (or Mitigate) that risk;

3. The level of risk management ability – operational capacity, preparation, and the readiness to apply it (a.k.a. Preparedness) – relative to the residual (or “un-mitigated”) risk from the hazard or threat.

Summary:The purpose of emergency managementpurpose of emergency management is to

Manage EmergenciesManage Emergencies with

Emergency Management CapabilityEmergency Management Capability

developed systematically through the Comprehensive Emergency Comprehensive Emergency

Management SystemManagement System

Conclusion:The purpose of

The National Hurricane ProgramThe National Hurricane Program

Manage Manage HurricaneHurricane Emergencies Emergencies with

HurricaneHurricane Emergency Management Emergency Management Capability Capability

developed systematically through the

Comprehensive Comprehensive HurricaneHurricane Emergency Emergency Management SystemManagement System

a brief explanation of the comprehensive emergency management system and its “stakeholder”...

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