The Disaster Management Planning Process in Public Libraries Sophie Kenney LIS 770 – Fall 2012 Final Paper November 11th, 2012 1 There has been an alarming trend of natural disasters and other crisis situations in recent history. From Hurricane Katrina to the Haiti earthquakes and most recently Hurricane Sandy, extreme events have severely impacted millions of lives across the globe. Public libraries are susceptible to both natural disasters like the ones mentioned above as well as man-made crises like power outages and arson. This paper will discuss the role of management in public libraries during disaster situations by examining the disaster management planning process. While it is difficult to predict when a crisis will occur, there are steps a library can take to prepare for a future catastrophe. Public library managers can save lives and minimize damage to the building and its materials by creating a disaster management plan. A comprehensive disaster management plan consists of several smaller, interrelated plans that cover each of the following phases: preparedness/prevention, response and recovery1. Simply put, these plans outline the library’s strategy for before, during and after a disaster. Each of these plans should address the actions required in regards to the staff, the building and its collection. According to Dr. Jan Lyall there are five main components of disaster management planning: “conducting a risk analysis, identification of existing preventive and preparedness procedures, making recommendations to implement additional preventive and preparedness procedures, allocating responsibilities, and devising procedures to respond to and recover from disasters.”2 Risk Analysis Conducting a risk analysis is the first step in developing a disaster management plan. Each public library must assess the probability of unexpected events and develop actions necessary in reducing their negative impacts. Potential threats are not universal 1 2 and will vary depending on factors such as geographic location, climatic environment, community/user constituency, and condition of the library building3. For example, coastal libraries are far more likely to experience natural weather disasters such as hurricanes while libraries in the Midwest may be more prone to tornadoes. Categorizing the risks from high to low probability will help the library address the most likely events and be as prepared as possible in those situations. Another component to risk analysis includes identifying vulnerabilities within the collection itself4. Some materials may be more fragile than others and some may be duplicate copies, which may make them more “expendable” in the event of a disaster. The second step in the disaster management planning process requires identifying existing preventive and preparedness procedures based on the threats outlined in the risk analysis. Preventive and Preparedness Procedures Preventive procedures consist of the routine maintenance of the library while preparedness procedures include the necessary actions for being equipped to deal with an unexpected event. On the surface it may seem that keeping up the with maintenance of the library may not directly contribute to disaster prevention, however ensuring the library building and facilities are in working order at all times can help minimize damage and loss5. Routine maintenance tasks should be given time guidelines and assigned to appropriate staff members. These tasks should include daily checks for housekeeping items such as clean and usable restrooms as well as annual reviews of vital equipment like heating and air conditioning systems. Preparedness encompasses many tasks such as having the library repairs and improvements up to date so that the library in the best possible state to react during any 2 3 emergency. All public libraries should possess the basic emergency materials: plastic sheeting to cover shelves, packaging tape, gloves, first aid kit, flashlights, batteries and disposable digital cameras6. These are essential items that should be updated routinely as part of the preparedness procedures. Review of both preventive and preparedness procedures should not be limited to the library building and facilities. The library’s collection is equally important and management should ensure there is a process in place to safeguard or salvage invaluable items. One of the first things that should be done is an inventory for parts of the collection that are not included in the online catalog7. Public libraries often house invaluable local collections so it is essential that the library keep a copy or digitally back up the records for these items in case they are damaged or destroyed. Another important piece in preparedness regarding the collection consists of creating a list of prioritized items to be saved/salvaged during an emergency. The list should be communicated to staff members and documented so that outside resources like first responders can help accordingly. Finally, the library insurance policy and vendor contracts should be reviewed and an analysis of the cover value of the collection should also take place8. The final and most important component of preventative and preparedness procedure review should include an assessment of staff roles during an emergency. Responsibilities and duties should be reviewed and grounded in realistic expectations of what the staff can execute. The staff should be aware of the overall disaster management plan and knowledgeable about the external resources available for help. Preparedness actions such as evacuation drills and first aid training are essential. Taking the time to walk staff through high probability disaster scenarios will help familiarize roles and 3 4 possibly ease some of the stress experienced by staff members during a real emergency9. After examining existing preventative and preparedness procedures, the next step in the disaster planning process is to recommend and implement additional measures. Recommendations and Additional Measures This third step involves critically evaluating the current plan against the risk analysis to form recommendations on improvements and addressing any missing elements. Managers must consider several factors when making these recommendations and deciding which to implement. The availability of funds is a major issue in determining which recommendations will be added into the final plan. For example, before ordering new supplies like plastic sheeting intended for shelf and material protection, library management must confirm there is money in the budget or that additional funds can obtained. Recommendations may have to be prioritized and managers could face the realization that not all additions to the plan can be accommodated. Another factor that must be considered for new implementations is the length of time required to integrate them into the plan. Some tasks could require heavy time commitments on behalf of the staff, which would take away from normal, everyday operations. Managers must weigh this cost versus the value added to the plan in these situations. Once the recommendations have been included into the plan, the next step is to implement them by allocating responsibilities. Allocating Responsibilities The fourth step of the disaster management planning process involves assigning duties and providing clear direction for staff members that align with the overall disaster plan strategies. These duties should encompass the protection of patrons and visitors, the 4 5 building, and the collection and comprise both preventive and preparedness tasks. There may be a need for additional staff training depending on the threats outlined in the risk analysis. All staff should be able to at least recognize a developing or occurring emergency situation. According to Ames and Heid, “library staff should be trained to recognize toxic fumes (often present because of broken or leaking waste pipes, mechanical or electrical fires, chemical spills, and carbon monoxide); flooding; fire; weather (tornado and other severe weather); and accident or serious injury.”10 Management may also determine that someone on staff should be trained in the field of preservation and conservation if no one currently possesses that skill set. While external facilities that aid in these efforts exist, managers should determine if it is beneficial to have someone on the team professionally educated. Overall, the responsibilities for each staff member should be clearly communicated to that person as well as the rest of the staff. The disaster management plan and staff roles should be made available in several locations other than the library to increase its accessibility. Finally, it is critical that the disaster management plan designate which staff members are allowed declare a state of crisis and launch the plan into action11. Responding and Recovery Developing procedures to respond to and recover from a crisis is the final stage in the disaster management planning process. Once a plan has been activated, each staff member should be able to respond quickly and accordingly. In most cases authorities should be contacted for help. Staff members should be informed of the appropriate organizations to contact such as local police departments, fire departments and hospitals. 5 6 Once immediate dangers to staff, patrons and visitors have been mitigated, focus can be diverted to salvaging damaged materials. One key to the success of salvaging damaged materials is quick action. Decision trees that outline requirements for salvageable materials have been useful in reducing time wasted on less important parts of the collection12. There are several methods employed in preserving materials depending on the type of damage incurred. The Northeast Document Conservation Center is a comprehensive resource that advocates the process of freezing water-damaged library materials because it inhibits mold growth and provides adequate time for management to evaluate the materials and determine a course of action.13 Freezing also provides allows for thorough review of insurance policies and vendor contracts14. In some cases, a disaster will devastate large parts of or even the entire collection. One fast and inexpensive method for public libraries to acquire new materials is to ask the community for support. This support can be delivered through donated materials as well as monetary funds. Public libraries can also look beyond their local communities and reach out to government entities on the state and federal level to help their institution recover from a disaster. Now more than ever, it is important for public libraries to engage in the disaster management process so that they can continue to provide their critical services to the community during times of crisis. Public libraries as Community Centers In 2011, the Federal Emergency Management Agency (FEMA) declared libraries as “essential” institutions thus allowing libraries to be eligible as temporary relocation centers during major disasters and emergencies under the FEMA Federal Assistance 6 7 Program15. Previously, libraries were not considered essential like other public institutions such as police and fire departments. Known as the Stafford Act, this piece of legislation recognizes public libraries as vital to disaster response and provides federal support to resources so libraries can continue to serve their communities during disasters16. A provision also exists for funding of temporary facilities for these essential community services when it is related to saving lives, protecting and preserving property, and/or public health and safety17. This welcome change in policy addresses the community demand for library services during disasters. After Hurricane Katrina, the state libraries of Louisiana found that community expectations were one of the most important lessons learned from the disaster aftermath.18 People look to libraries as safe places where they can find someone willing to help them obtain information. Their research showed that people who had never entered the library before used their services during the state of crisis. Further demonstrating their “essentialness” is the statistic that with 35% of the public library system closed, the overall number of visitors only decreased by 1%19. These facts prove that the general public relies heavily on their local library to be available during crisis situations. Most recently Hurricane Sandy ravaged the East Coast and left many residents displaced and even homeless. The current situation remains unstable however some local libraries have been able to provide resources that many so desperately need. The Fanwood Memorial Library in New Jersey acted as a safe haven for over 5,000 people from October 30th through November 6th 20. The library entrenched its status as a community hub during this recovery period by providing heat through natural gas 7 8 powered generators, a functioning internet connection that allowed visitors to check their email and outlets to charge phones and other devices21. Residents from Fanwood and across the region that go to the library are receiving help in several different but equally meaningful tasks. While some of these tasks are recovery related, like contacting FEMA and reviewing contracts, the library still continues to assist in everyday activities that aim to restore a sense of normalcy, like doing homework, working, and staying in touch with family and neighbors22. Along these same lines, the Benardsville Public Library in New Jersey is currently being utilized as the community’s multi-purpose center23. Residents are able to use meeting rooms and have come to depend on the library for up to date information on town happenings such as where the general election would be taking place. Activities to target the entire population during this troubling time have been implemented. Storytelling and the youth services department has stepped up to entertain bored kids and teens and the library is even offering manual book check outs24. These examples prove how public libraries act as a beacon of hope and a standard for how citizens can unite together for the greater good. By meeting the community’s need for crucial resources and information, public libraries like the ones mentioned above have displayed effective and successful disaster management planning. As institutions serving the public, public libraries have the honorable duty of supporting its community during times of crisis. This support can come in the form of meeting basic human needs like providing shelter and warmth to entertaining visitors so they are distracted from the trauma they recently endured. It is imperative that management of public libraries engage in disaster management planning to protect the library, its staff and assets. By doing so, threats to the library can be prevented or 8 9 mitigated as much as possible and the library can then aid in the assistance and recovery for the entire community. 9 10 Notes 1. Dr. Jan Lyall, “Disaster Planning for Libraries and Archives: Understanding the Essentials” National Library of Australia Staff Papers, National Library of Australia, http://www.nla.gov.au/openpublish/index.php/nlasp/article/view/979/1249. 2. Ibid. 3. Beth Lindblom Patkus and Karen Motylewski, “Disaster Planning” Northeast Document Conservation Center, Northeast Document Conservation Center, http://www.nedcc.org/resources/leaflets/3Emergency_Management/03DisasterPlanning.p hp. 4. Ibid. 5. Kathryn Ames and Greg Heid, “Building Maintenance and Emergency Preparedness,” Georgia Library Quarterly, 48 no 1. (Winter2011 2011): 10 6. Ibid. 7. Sonya L. Green, and Thomas H. Teper, "The Importance of Disaster Planning for the Small Public Library," Public Library Quarterly 25, no. 3/4 (April 2006): 50. 8. Tehani Wessely, "Preparing for the end of the world: are you ready for a library disaster?," Access (10300155) 24, no. 2 (June 2010): 27. 9. Green and Teper, Public Library Quarterly, 54. 10. Ames and Heid, Georgia Library Quarterly, 11. 11. Lyall, National Library of Australia Staff Papers. 12. Green and Teper, Public Library Quarterly, 53. 13. Lindblom and Motylewski, Northeast Document Conservation Center. 14. Ibid. 15. Michael Kelly, “ALA Midwinter 2011: FEMA Reconizes Libraries as Essential Community Organizations,” Library Journal Archive, Library Journal. http://www.libraryjournal.com/lj/home/888739264/ala_midwinter_2011_fema_recognizes.html.csp 16. Ibid. 17. Ibid. 10 11 18. Rebecca Hamilton, "The State Library of Louisiana and Public Libraries' Response to Hurricanes: Issues, Strategies, and Lessons," Public Library Quarterly 30, no. 1 (January 2011): 43. 19. Ibid., 44. 20. Suburban News, “Fanwood Library Shines as Community Hub During Hurricane Sandy,” NewJersey.Com, New Jersey On-Line LLC. http://www.nj.com/suburbannews/index.ssf/2012/11/fanwood_library_shines_as_comm.h tml 21. Ibid. 22. Ibid. 23. Charlie Zavalick, “Bernardsville Library Serves as Multi-Purpose Center.” Bernardsville News, New Jersey Hills. http://newjerseyhills.com/bernardsville_news/news/bernardsville-library-serves-as-multipurpose-center/article_a8faeaf8-29b6-11e2-bc59-001a4bcf887a.html 24. Ibid. 11 12 Bibliography Ames, Kathryn, and Greg Heid. "Building maintenance and emergency preparedness." Georgia Library Quarterly 48, no. 1 (Winter2011 2011): 10-13. Library, Information Science & Technology Abstracts with Full Text, EBSCOhost (accessed November 6, 2012). Green, Sonya L., and Thomas H. Teper. "The Importance of Disaster Planning for the Small Public Library." Public Library Quarterly 25, no. 3/4 (April 2006): 47-59. Library, Information Science & Technology Abstracts with Full Text, EBSCOhost (accessed November 6, 2012). Hamilton, Rebecca. "The State Library of Louisiana and Public Libraries' Response to Hurricanes: Issues, Strategies, and Lessons." Public Library Quarterly 30, no. 1 (January 2011): 40-53. Library, Information Science & Technology Abstracts with Full Text, EBSCOhost (accessed November 6, 2012). Kelley, Michael. “ALA Midwinter 2011: FEMA Reconizes Libraries as Essential Community Organizations.” Library Journal Archive, Library Journal. http://www.libraryjournal.com/lj/home/888739264/ala_midwinter_2011_fema_recognizes.html.csp (accessed November 7, 2012). Lindblom, Beth Patkus and Karen Motylewski. “Disaster Planning” Northeast Document Conservation Center, Northeast Document Conservation Center, http://www.nedcc.org/resources/leaflets/3Emergency_Management/03DisasterPla nning.php (accessed November 7, 2012). Lyall, Dr. Jan,. “Disaster Planning for Libraries and Archives: Understanding the Essentials” National Library of Australia Staff Papers, National Library of Australia, http://www.nla.gov.au/openpublish/index.php/nlasp/article/view/979/1249 (accessed November 6, 2012). 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