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Emerging Best Practices and Decision-Making in Crisis Emergencies Gail Kulisch, CAPT, USCG (ret) EricTelfer, CDR, USCG Alliance of Hazardous Materials Professionals 13 September 2012
Key Elements Known Situation has Familiar Aspects Methods Exist to Adapt Response to Specific Circumstance Necessary Skills Have Been Trained to Authority Based C2 Structure Suited to Directing Execution Implement Well-Developed and Practiced Routines Familiar Script or Elements Requiring Only Moderate Adjustments or Scaling Hierarchical Structure with WellDefined General Routines
(Ref: Howitt, Arnold and Herman B. Leonard; Managing Crises: Responses to Large-Scale Emergencies, CQ Press, Washington, D.C., 2009.)
All emergencies start as operations Most incidents resolved before ever leaving the stem and entering planning cycle
chaos
For complex or extended response Move to the Spiral: Get Planning ahead of Operations. Responses can start as routine but become crisis emergencies.
Shift and Communicate National, International, and Corporate Level Allocation and Resources - Scale Up Rapidly, Plan for Long Duration. Establish Priorities and Decision-Making for Allocation of Limited Critical Resources.
The Game-Changers
Crisis Emergencies
ANTHRAX ATTACKS: U.S. Mail System as a Delivery System for a Biological Weapon.
Distributed terror attack and unique vulnerability of every citizen to new weapons. 15 Threats Vectors established with corresponding substantial investments in critical infrastructure protection, early warning systems.
Unique Weapon Weaponized biological agent Created Adjusted Structures US Congress Oversees
Response Maintains Continuity of Government. Executive Branch Supports. Supreme Court Facilities Impacted.
Tannery Field Decontamination Protocols. Medical Community/USAMRID Microbiological Sampling Experience. Repurposed Existing Methods for Decon (Chlorine Dioxide and Ethylene Oxide for Medical applications).
Slow it down. Isolate and Control Entry. Deliberate Assessment. Organizational Discipline (Rigor of the ICS Planning Cycle). Life Safety Priorities.
Legislative Branch Culture. Continuity of Government Requirements. Large Area Assessments of Commercial and Government Buildings.
the basic principles of hazmat response. Commercial sector adapted equipment to expedite detection.
Resulted in the SE Louisiana catastrophic hurricane functional plan with some highly detailed, some sketchy, and some TBD sections. Last "Hurricane Pam" training exercise was completed August 24, 2005, less than a week before Hurricane Katrina struck the Gulf Coast.
Largest National Contingency Plan Governed Response In History. Whole of Government Engagement The NIC Role. Novelty Elements Delayed Critical Flattening of Organization. Critically Dependent on Common Operating Picture. Unique Legal, Fiduciary Obligations of Responsible Party (BP) Challenged Decision-Making. Capping at Depth; Limited National Boom Inventory.
The Responsible Party and the National Contingency Plan. NIC Communication Skills Essential. Extraordinary Legal Claims. New legislation required to allow funding for government costs in advance of reimbursements from BP. Limited Technical Solutions and Specialized Equipment.
Identified Air Space Safety As Critical Need Facilitated National Command Authority Action to Control the Air Space. Mobilized Senior Interagency Partners, Cabinet Level Officials - Mechanism for Higher Level Engagement and Decision-Making. Filled Critical Cross-Government Facilitation Role. Effective Communicator: Ability to Simplify Complex Information. Supported Flattened Organization and Broadened Engagement of the Locals in Decision-Making. Drove Development of a Common Operating Picture.
DEEPWATER HORIZON
Single greatest challenge was lack of a common operating picture (adm allen) DWH Example: Authorities: Incident Command authority to prescribe the Persistent Demand for accurate, real time info RRI underfunded and unsupported for years- incomplete and inaccurate inventory of response equipment. Information requirements and authorities Air Tasking Order essential to manage all flights operating above and around the spill site Before ADM Allen implemented it, there were 8 near air-to-air
Establish pre-existing relationships with community based organizations who can take leadership roles. Establish strong engagement with business community (large-scale capabilities, logistics mechanisms) Collaborative decision-making Capture and incorporate info requirements of all stakeholders. Staff and sustain surge versus dribble. Common Operating Picture can they see what you see. The articulate communicator. Elevate quickly to NRF/NIC structure - can always back off.
Proactively Engage at All Levels Collect and Distribute Information Define Information Requirements
Common Orientation.
Consistency. Effective/Efficient Resource Allocation. Accelerate Assessment and Decision-Making. Safety. People do not need to physically be in the danger zone to have
information. Operate moving resources in concentrated areas (air, marine, ground) without physical danger.
Authorities.
Air Space Management. Collection Means Authorized. Decision-Makers Engaged.
Processes.
Requirements Identified and Validated. Standard Requirements Developed in Plans.
Tools.
Common Operating Picture. Real-Time Video. Accessible Network.
Requirements Developed, Validated, Sourced. Collected Information Distributed. Intelligence Cycle Repeatable. Plan, Collect, Analyze, Produce, Disseminate.
Defined By:
Pre-scripted Priority Incident Requirements. Event Specific Requirements.
Collected by: Real-Time Systems In A Repeatable Cycle. Displayed In: A Common Operating Picture.
Augmented By:
Push Tools Such as
Detect unexpected or unusual incidents. Condense and summarize messages maintaining awareness of aggregated content. Classify and review high-value messages during an incident - understand the impact of an incident on people and infrastructure. Identify, track, manage issues within an incident. Pro-actively identify and manage issues that may last for hours, days or weeks. Perform forensic analysis of incidents by analyzing social media content from before, during, and after an incident.
Single biggest impediment to response decision making and communications: lack of common operating picture (ADM Thad Allen) The emergence of ERMA - Emergency Response Management Application.
GIS base/on-line mapping tool. Integrates both static and real-time data
Maps Environmental Sensitivity Index (ESI) maps Ship Locations Weather/Ocean Currents Impacted Areas Industrial Data
Arctic ERMA
Caribbean ERMA
ERMA Architecture
HSIN:
Common Operational Picture (COP) provides situational awareness and analysis; Integrated Common Analytical Viewer (iCAV) gives geographical visualization,; 24/7 availability, document Libraries, instant-messaging tool, Web conferencing, incident reporting, Common Operational Picture (COP) provides situational awareness and analysis, announcements, discussion boards, task lists, requests for Information/or Your Information (RFIs/FYIs), calendars Really Simple Syndication (RSS) Feeds Online training materials ERMA
Reference: Bledsoe, Cheryl; VOST The Basics, Clark Regional Emergency Services, Twitter@CRESA@cherylble
Reference: Bledsoe, Cheryl; VOST The Basics, Clark Regional Emergency Services, Twitter@CRESA@cherylble
Value of a Video
911 - the repeated image of the towers falling created an
enormous emotional impact.
Katrina Clips
Al Qaeda techniques:
IED explosion from multiple angles over mass comms medium
viewer perceives a single attack as multiple attacks. Repeated viewing of same attack exponential emotional impact. Increases emotional impact of the terror.
Yet: 71% of small businesses have no disaster plans 43% with no plan never reopen If they do reopen, only 29% are still open two years laterThe Role of Business in Disaster Response, US Chamber of Commerce (Ref: The Role of Business in Disaster Response, US Chamber of Commerce, Business Civic Leadership Center, 2012
The power of a pictureand the value of a video Airsta Rescue Katrina piece from
Commercial Tools
Rapidly expanding
Pre-incident warning
Backup Slides
Deep Dive into Information Management: DEEPWATER HORIZON Case Study - CDR Erich Telfer, USCG
Its not the size that matters complexity as a differentiator When there is no script the unthinkable aand the new normal US Government Structural Transition and the Rise of the super-NIC NIMS is necessary but not sufficient Situational Awareness on Steroids Tools and schools Brokering limited resources Whole of Effort global private sector players as experts in Scalewho understand large problemsand can opportunity to Scale
In large-scale, a number of issues rise to this level.how best to maximize that opportunity
Invest in a solid NIMS process to bring as many issues into the
NIMS/IC Area Command process as possible; the better the workings and processes inside NIMS, the better the chance issues not addressable at AC level or IC level must Courageous, knowledgable, articulate NIC
Meta-Leader Knows what moves into the brokered sphere Knows how to minimize the disconnects creating unnecessary engagement of senior leaders Communications mastery complex concepts made simple Visible No personal agenda/affiliation agnostic direct report to CIC
Information versus data How do you educate at the same time you inform? What parameters guide or determine how porous and rapid the data flow is versus information assessment by experts does free flow of data (accurate or inaccurate) spur
Can not themselves create more chaos - still need a system, still need some degree of site control, accounting for victims and responders, hazard assessment.
Pentagon 911 response, the DC fire dept and units from MD that they mobilized showed up and operated on the pentagon site without informing or integrating into the professionally well-known ICS structure - acted independently
Words matter careful and deliberate selection of terms can ease tension, minimize misunderstandingpoorly selected terms can fuel rhetoric and misinform perception Cat spirit: Safe anchorage vs harbor of refuge (what is it hiding from) Returned to international svc (conveys acceptance of standards by a legitimate independent body) versus allowed to enter port (implies a personal decision of an individual cotp without context) Others?
KATRINA
Photo clip/Video
The predicted crisis Hurricane Pam 2004 full deliberate effort to plan and exercise reponse to a catastrophic hurricane in NOLA all 12 parishes represented, state agenceis and 15 federal agencies for an 8 day workshop slow moving cat 3 hurricane w20 inchses of rainSE Loisiana catastrophic hurricane functional plan resulted with some highly detailed, some sketchy and some TBD sections assumed there were no levee breaches (yet believed it to be the worst case)communicating the unthinkable
Effective comms and info mgmt and decision making structures will depend on whether there is a culture of self-relience and resilience or a culture of dependence and vulnerability.in either case, the need for extraordinary external engagement and support is necessary, how that becomes interfaced, coordinated, and implemented depends on which circumstance the community is grounded in. Individuals can be either, this is a characterization of the collective behavior not individual behavior.
Precrisis alignement and pre-existing relationships (w/business, govenrment entities, private sector groups, the broader response community) increase resilience Precrisis macro culture (reliance or independence)
Resilient communities
have
Greater percentage of small businesses with disaster plans; - 85% of business is small business (confrim) 71% of small businesses have no disaster plans 43% with no plan never reopen If they do reopen, only 29% are still open two years later
RISK COMMUNICATION
Incredible restorative function of business (Director Fugate) ROB rules in disaster resonse.
Study topics
When is too much info bad How to optimize the theory transparency breeds selfcorrecting behavior
References
The Role of Business in Disaster Response, US Chamber of Commerce/Business Civic Leadership Center, 2012
Wrap
Large-scale have phases that go on for decades still working Katrina issues , still individuals in temp housing; still an active series of recovery issues that are actively managed -
Info needs
Need to add the context against the array of distributed info that spews from an incident Who adds the context, how, how to then distribute it, refresh it, stay relevant How to embrace the disparate nodes and corral them to a more powerful effect. Aggregation tools? visual displays Data and info must be proactively contextualized by credible source?, by an aggregate in a freely dispersed environment
The Cycle
Social media and extensive communications channels, including historically novel and significant expectations on
Expectations
The president was expecdted (via press qs) to everyday know how much ice and water were distributed to new orleans Or in dwh, how much oil had leaked that day info mgmt means accurante info on details has to move from reliable/validated source Info: how much/how many. Will always be many answers unless all agree on as of time and date and from what geographic area a simple question but unless there is a common understandingof the parameters, answers will sound uninformed.get through this by establishing a set time for reporting/freeze the counts, communicate the agreement of parameters
The standup 8 hr (really every 6) change of shiftsL - LB FD reponse to 5000 gal baker tank 30% hydrogen peroxide self-venting.the 36 hour perspective watching 6 shift changes. Whiteboard on a pier each brief, key pieces were dropped perished. Not uncommon continuity of people balanced against fatigue question
Info expectations
All responses have phases Need to be clear about movement from one phase to another and the info expectatIons between different phases Create distinct phases that cause shift in tactics, and communicates the progress
cap hill: emergency phase to recovery phase dwh: katrina: rescue phase to recovery
References
Howitt, Arnold and Herman Leonard, Managing Crises: Responses to Large-Scale Emergencies; CQ Press, Washington DC, 2009. Renaud, Cynthia Leonard, Herman and Arnold M. Howitt, Katrina as Prelude: Preparing for and Respnding to Future Katrina-Class Distrurbances in the United States; Testimony before the U.S. Senate Homealnd Security and Governmental Affairs Committee; 8 march 2006 Townsend, Francis, et al; The Federal Response to Hurricane Katrina Lessons Learned; February 2006. Kulisch, Gail P. et al; LNGC CATALUNYA SPIRIT Adrift Incident After Action Report; une 2008. Telfer, Erich; Unlimited Impossibilities: Intelligence Support to the Deepwater Horizon Response; Center for Strategic Intelligence Research, National Defense Intelligence University, DIA (Unpublished) Dec 2011. Rupert, Richard; Federal on-scene Coordinators Report for the Capitol Hill Site, Washington, D.C.; USEPA Region 3; undated. US Coast Guard, On-Scene Coordinator Report Deepwater Horizon Oil Spill, Submitted to National Response Team, Sept 2011. Floriida Division of Emergency Management, Deepwater Horizon Response 30Apr2010 27AUg2010, After Action Report/Improvement Plan, 2March2011 Papp, Rober t, COMDT USCG, BP Deepwater Horizon Oil Spill, Incident Specific Preparedness Review (ISPR), Final Report, Jan 2011
Impacts to Infrastructure/Physical Effects Information Exchange/Communications National Cyber Incident Response Plan Federal Government Continuity
Recognize the Key Attributes of a Large-Scale Response Novelty, Complexity, Distributed Consequences, Insufficient Quantities of Specialized Equipment Sustainably Staff and Equip National and Corporate Level Allocation and Designations
Tool Time
Volunteer Tracking COP ICS Forms Management/Tracking Notifications and Alerts Interactive Mediums Hybrid Emergency Management Software
Volunteer2.com
VolSoft
www.iamresponding.com
Katrina (2005)
Worst case scenario levees protecting major city breached Required full national engagement Beyond FEMA Led to comprehensive review of National structure and established whole of government mechanisms
Erich
Before Minimize the Impact: Information pushed to potential victims e.g. warning phase
Good Robo Calls : one of the first times robo calls used to scale was LA fires in 200x warned individuals in remote area and communicated instructions e.g. evacuate and go to the Staples Center Downside: Non-receipt and tracking of same this past summers Waldo Canyon fire in Colorado - more then 20,000 evacuation calls never delivered to residents in the path two-thirds of the 32,000 impacted residents
Command and control distributed decision-making and engagement of the local elected leaders (DWH)
Information Management
Proliferation of tools
Emergent and initial incident (warning phase) Incident management (response phase) Post-crisis (recovery phase)
Its not the size that matters complexity as a differentiator When there is no script the unthinkable and the new normal US Government Structural Transition and the Rise of the super-NIC NIMS is necessary but not sufficient Situational Awareness on Steroids Tools and schools Brokering limited resources Whole of Effort global private sector players as experts in Scale who understand large problemsand can opportunity to Scale
Harnessing the Private Sector - People Finder - Satellite Based emergency networks for responders
New environment demands new tools to meet those needs data and information must be contextualized
- rapid evolution of COP tools, incident notification tools, mapping
tools; e.g.
HSIN:
Common Operational Picture (COP) provides situational awareness and analysis; Integrated Common Analytical Viewer (iCAV) gives geographical visualization,; 24/7 availability, document Libraries, instant-messaging tool, Web conferencing, incident reporting, Common Operational Picture (COP) provides situational awareness and analysis, announcements, discussion boards, task lists, requests for Information/or Your Information (RFIs/FYIs), calendars Really Simple Syndication (RSS) Feeds Online training materials ERMA
In large-scale, a number of issues rise to this level.how best to maximize that opportunity
Invest in a solid NIMS process to bring as many issues into the
NIMS/IC Area Command process as possible; the better the workings and processes inside NIMS, the better the chance issues not addressable at AC level or IC level must Courageous, knowledgable, articulate NIC
Meta-Leader Knows what moves into the brokered sphere Knows how to minimize the disconnects creating unnecessary engagement of senior leaders Communications mastery complex concepts made simple Visible No personal agenda/affiliation agnostic direct report to CIC
- How do you educate at the same time you inform? New language, no framework. - what parameters guide or determine how porous and rapid the data flow is versus information assessment by experts does free flow of data (accurate or inaccurate) spur
Pentagon 911 response, the DC fire dept and units from MD that they mobilized showed up and operated on the pentagon site without informing or integrating into the professionally well-known ICS structure - acted independently
Info needs
Need to add the context against the array of distributed info that spews from an incident Who adds the context, how, how to then distribute it, refresh it, stay relevant How to embrace the disparate nodes and corral them to a more powerful effect. Aggregation tools? visual displays Data and info must be proactively contextualized by credible source?, by an aggregate in a freely dispersed environment
Do the same principles apply if - event is predicted - Resources are prestaged - Vulnerabilities and impact area are known
The Averted Crisis LNGC CATALYUNA SPIRIT Disabled Adrift April 2008
Safe Anchorage versus Harbor of Refuge (what is it hiding from) Returned to International Service (conveys acceptance of standards by a legitimate independent body) versus Allowed to Enter Port which others might interpret as a personal decision of an individual without context.
- disaster and crisis phase rely on preexisting natural nodes within the community unique to each community a church, civic group, or school system (joplin high school) serve as comms and coordination nodes Citizens want to engage economic incentives, environmental sensitivity incentives, desire to contribute, feeling of having control (COSCO Busan) The Role of Business
- effective comms and info mgmt and decision making structures will depend on whether there is a culture of self-relience and resilience or a culture of dependence and vulnerability.in either case, the need for extraordinary external engagement and support is necessary, how that becomes interfaced, coordinated, and implemented depends on which circumstance the community is grounded in. Individuals can be either, this is a characterization of the collective behavior not individual behavior.
Influencers
- precrisis alignement and pre-existing relationships (w/business, govenrment entities, private sector groups, the broader response community) increase resilience precrisis macro culture (reliance or independence)
RISK COMMUNICATION
References
The Role of Business in Disaster Response, US Chamber of Commerce/Business Civic Leadership Center, 2012
The standup 8 hr (really every 6) change of shiftsL - LB FD reponse to 5000 gal baker tank 30% hydrogen peroxide self-venting.the 36 hou r perspective watching 6 shift changes. Whiteboard on a pier each brief, key pieces were dropped perished. Not uncommon continuity of people balanced against fatigue question Risk was local if they dropped a key piece of info so didnt illustrate critical need; but you operate for the big one the way you practice for the little ones.
Information Disrupters
Phase Change Significant New Variable
References
Howitt, Arnold and Herman Leonard, Managing Crises: Responses to Large-Scale Emergencies; CQ Press, Washington DC, 2009. Leonard, Herman and Arnold M. Howitt, Katrina as Prelude: Preparing for and Respnding to Future Katrina-Class Distrurbances in the United States; Testimony before the U.S. Senate Homealnd Security and Governmental Affairs Committee; 8 march 2006 Townsend, Francis, et al; The Federal Response to Hurricane Katrina Lessons Learned; February 2006. Kulisch, Gail P. et al; LNGC CATALUNYA SPIRIT Adrift Incident After Action Report; une 2008. Telfer, Erich; Unlimited Impossibilities: Intelligence Support to the Deepwater Horizon Response; Center for Strategic Intelligence Research, National Defense Intelligence University, DIA (Unpublished) Dec 2011. Rupert, Richard;; Federal on-scene Coordinators Report for the Capitol Hill Site, Washington, D.C.; USEPA Region 3; undated. US Coast Guard, On-Scene Coordinator Report Deepwater Horizon Oil Spill, Submitted to National Response Team, Sept 2011. Floriida Division of Emergency Management, Deepwater Horizon Response 30Apr2010 27AUg2010, After Action Report/Improvement Plan, 2March2011 Papp, Rober t, COMDT USCG, BP Deepwater Horizon Oil Spill, Incident Specific Preparedness Review (ISPR), Final Report, Jan 2011
Spare Slides
Wrap
Large-scale have phases that go on for decades still working Katrina issues , still individuals in temp housing; still an active series of recovery issues that are actively managed -
Define Information Requirements Collect and Distribute Information Establish Incident Management Structure
Mature Feedback Loops and Adjust Proactively Engage/Deliberat Response ely Distribute
Mode R: Refine Structure and Processes Mode C: Escalate - Shift Leadership and Structure
Before Minimize the Impact: Information pushed to potential victims e.g. warning phase
Good Robo Calls : one of the first times robo calls used to scale was LA fires
in 200x - warned individuals in remote area and communicated instructions e.g. evacuate and go to the Staples Center Downside: Non-receipt and tracking of same this past summers Waldo Canyon fire in Colorado - more then 20,000 evacuation calls never delivered to residents in the path two-thirds of the 32,000 impacted residents
Information Management
Proliferation of tools.
Emergent and initial incident (warning phase) Incident management (response phase) Post-crisis (recovery phase)
Decontamination techniques.
DWH
- disaster and crisis phase rely on preexisting natural nodes within the community unique to each community a church, civic group, or school system (joplin high school) serve as comms and coordination nodes