Modern Emergency Planning: Evolving Approaches to Evolving Problems N. Z. (ID Protected) and Stephen Utz (ID Protected) Plan 432: Health and Environment Planning Source: Ultradio ( November 7, 2003

What is an Emergency Plan? Emergency: “An emergency is an abnormal situation which, to limit damage to persons, property or the environment, requires prompt action beyond normal procedures.” (OCIPEP)Plan: “A scheme, program, or method worked out beforehand for the accomplishment of an objective.” (American Heritage Dictionary) Emergency Plan: Contains specific procedures to:  handle sudden and unexpected situations  minimize subsequent damages  facilitate an expedient return to normal operations

Significant Historical Events 1970 FLQ Crisis First peacetime use of the War Measures Act 1984 Bhopal Chemical Spill 3,000 immediate deaths 50,000 long-term illnesses 2001 World Trade Center Disaster 2003 SARS Epidemic 2003 East Coast Power Failure The defining characteristic of all emergency situations is the element of crisis.

Public Perception and Political Action Emerging Trends: Increased public pressure on governments for action Public and political recognition of a greater possible realm of emergency situationsResults: Creation of national and international organizations  Office of Critical Infrastructure Protection and Emergency Preparedness (OCIPEP – Canada) Development of national and international legislative initiatives  Emergency Planning and Community Right-to-Know Act (1986)

Canada’s Emergency Framework Federal Responsibilities: Developed the Office of Critical Infrastructure Protection and Emergency Preparedness (OCIPEP) Created the Joint Emergency Preparedness Program (JEPP) facilitate co-operation between the federal and provincial/territorial governments Provincial Responsibilities: Each of the provinces/territories prepares provincial emergency measures plans for their geographic scope Each province has varying legislative requirements for municipalities Municipal or Corporate Emergency Plans are only required in Ontario if requested by the Lieutenant Governor-in-Council

Emergencies Act (1985) Legislated Tools: May use special temporary measures to ensure safety and security during explicitly defined national emergencies, such as: travel restrictions forced evacuation of persons requisition, disposition or use of property directing qualified individuals to perform an essential service regulation of essential goods, services, and resources State of Emergency: 1.Public Welfare/Public Order 2.International Concerns 3.Armed Conflict The federal government cannot take control of police away from provincial or municipal administration.

Why do Municipal Emergency Planning? Legal reasons: Legislative responsibilities are not fully assumed by the federal or provincial governments Emergency Preparedness is mandated by provincial legislation in six provinces Public reasons: Citizen expectations for security and safety Citizen and corporate dependence on critical infrastructure Increased vulnerability of infrastructure targets since September 11, 2001 Changing and increasing threat environment

Components of A Good Emergency Plan Emergency Preparedness Plan Objectives: 1.Identify Hazards and Assess Risks  Vulnerability Identification Model 2.Prevent or Mitigate Risks 3.Plan for Response  Emergency Response Plans  Emergency Operations Centres  Identifying Emergency Resources 4.Plan for Recovery  Establish Recovery Procedures  Identify Sources of Assistance 5.Ensure Preparedness 6.Evaluate and Renew Emergency Management Program 7.Identification of Responsibilities/Partnerships/Funding

Components of A Good Emergency Plan Emergency Plan Structure: Section One: General Policies and Guidelines Purpose Purpose Scope Scope Authority Authority Emergency Responsibilities Emergency Responsibilities Requests for Assistance Requests for Assistance Emergency Financing/Finance Agreements Emergency Financing/Finance Agreements Emergency Purchasing Capacities Emergency Purchasing Capacities Communications Communications The policies and guidelines of an effective emergency preparedness plan provide definite responses to questions of responsibility and appropriate action in a crisis or emergency situation. Actions to be taken are authorized to the appropriate parties in a hierarchical fashion as prescribed by the emergency preparedness plan.

Components of A Good Emergency Plan Emergency Plan Structure (continued): Section Two: Response Management Definition of a State of Emergency Definition of a State of Emergency Response Structure Response Structure Crisis Decision Support and Management Crisis Decision Support and Management Public Notification Public Notification Recovery Actions Recovery Actions The response management section of an effective emergency preparedness plan outlines the levels of control and support areas for action in a crisis. Section Three: Preparedness Committee Procedure to Create Preparedness Committee Procedure to Create Preparedness Committee Emergency Preparedness Plan Review Procedure Emergency Preparedness Plan Review Procedure The preparedness committee section of an effective emergency preparedness plan identifies the key players and the review process.

Who Should Develop Emergency Plans? Primary Responsibility: Municipal Staff Emergency and Protection Services Department  under the Ontario Municipal Act, emergency plans are required if requested by the Lieutenant Governor-in-Council Secondary Responsibility: Emergency plans should be developed by, or with the support of: Local politicians Constituents Private/Public Interest Groups Other Governmental Agencies/Non-Governmental Agencies  Office of Critical Infrastructure Protection and Emergency Preparedness (OCIPEP)

Application: Actual Emergency Situation Normal Emergencies: Occur on a more frequent basis:  Fire  Crime  Medical Emergencies  Public Order Extraordinary Emergencies: Infrequent and generally catastrophic:  Power Failure  Cyber-Attack  Natural Disasters  Human-Induced Disasters  International events Either type of emergency involves the same front-line personnel, though extraordinary emergencies require a more centralized and planned command structure.

An Unanticipated Emergency Key Players: Reliance on the abilities of emergency services professionals: Provision of services based on established training Adherence where possible to the emergency plan policies Six Decision-Making Strategies: 1. Work from the worst case scenario 2. Deal with definite facts 3. Limit losses 4. Dig for disconfirmation 5. Manage the manageable 6. Form immediate and effective options No plan can anticipate all emergencies. Use this model in the absence of a definitively planned strategy.

Implementation, Review and Amendment Plan Implementation Should be implemented by municipal staff and emergency and protective services departments. One to ten year framework for complete investment and implementation. Plan Review Review by Council sub-committee involving members of the public. Review conducted annually. Plan Amendment May be amended only by decision of the full municipal Council. Required to hold a public meeting in advance of Council decision. Note: Note: Ontario’s Emergency Plans Act does not specify roles for implementation, review or amendment. These are suggestions based on best practices.

Anticipated Benefits and Detriments Benefits: 1. Long-Term Savings 2. Preparedness for the Future 3. Fulfilling Legislative Mandate 4. Facilitate Crisis/Emergency Decision-MakingDetriments: 1. Increased initial expenditure 2. Increased annual staffing and planning costs 3. Poor return on investment in preparing for some emergency situations

Recommendations Decision: 1. Emergency Preparedness Plans (EPP) should be prepared by all municipalities in Ontario 2. The EPP should be prepared by municipal staff in coordination with other bodies 3. The EPP should be subject to annual public reviewRationale: 1. Reasons to plan for emergencies represent a clear social and economic need 2. Costs of emergency plan investment are minute in comparison to lost human, physical and economic capital caused by emergencies 3. Plans facilitate appropriate decisions for crisis situations during non-crisis timeframes

Further Resources 1. Magazines  Emergency Preparedness Digest 2. Refereed journals  International Journal of Emergency Management (IJEM) 3. Training centres  Canadian Emergency Preparedness College 4. Events  Emergency Preparedness Week (May 4-10, 2003) 5. Self-help brochures  Government Canada 6. International organizations  The International Emergency Management Society (TIEMS)