Catastrophe Preparedness:
What are the Local and StateLevel Barriers?
IAEM 2014 CONFERENCE
Rick Bissell, PhD
Scott Wells, MS, CEM
Jim Judge, CEM
Objectives
• Define and describe catastrophe
• Describe research findings
• Describe and assess federal catastrophe
readiness
• Discuss importance of local self-sufficiency
• Discuss barriers to state and local prep for
catastrophes
• Describe several “successful” programs
Catastrophe Definition
• A catastrophe is an extreme event that
overwhelms the nation’s ability to respond
effectively using its own resources.
– Could be rapid or slow onset
– Outside assistance needed
– Internal and external sequelae
– Hypercomplex
Complications/Challenges
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Too large for any one entity to control
Many jurisdictions and levels
Complex dynamics/interactions
Hard-to-predict decision impacts
Demands exceed supply
Massive local isolation
Local knowledge but distant resources
Complications/Challenges - 2
• Vastly insufficient # of responders
• Responders and law enforcement among
victims
• Long wait for outside resources
• Competition for scarce resources
• Lack of household self-sufficiency
• Conventional response mechanisms are not
sufficient
Complications/Challenges - 3
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Outmigration & those left behind
Mass resettlement
Lack of international agreements
Media coverage can impact response
operations
• NIMS compliance
Federal Efforts & Changes
• Scenario-based explorations to examine needs
– Mega earthquake, i.e. New Madrid
– Mega hurricane, S. Florida
– Improvised nuclear device
– Pandemic
• Move to capability-based planning and prep
• “Whole Community” concept
• Focus on volunteers and private sector
Federal Efforts and Changes - 2
• Integrated Planning program
– 15 planning scenarios
– To-down approach
• Catastrophic Planning Program
– Bottom-up in New Madrid Seismic Zone
– South Florida
• PPD-8
Hypercomplexity Approach
• Modern society is hypercomplex with myriad
linkages and interdependencies
• Private business and science may better
understand linkages and interdependencies
better than emergency managers
• Thorough use of non-government actors in
planning and implementation
• Rapid reflection force
Conundra
• Local level has most knowledge of needs, the
affected environment, and responsibility for
direct services
• Has least access to:
– Resources
– Big picture
– Trained logisticians and communications experts
– Ability to re-direct resource flows
Conundra - 2
• Federal government has access to resources
and expertise, but
– Unity of effort is difficult to achieve on a national
scale (Authorities are shared among all levels of
government)
– Often has little understanding of local needs or
capabilities
– Has performance responsibilities but insufficient
personnel
Conundra - 3
Federal, continued
• Habit of legalistic rather than outcomes-based
decisions
• Not a primary mission for virtually all federal
departments
Barriers – State Level Planning
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Small states have limited resources
Erroneous belief in self-sufficiency
Erroneous belief in “manna from Heaven”
Conflicting/changing federal
plans/programs/requirements
• Lack of experience/high turnover
• Filling potholes is more important than writing
emergency plans
Barriers – State Implementation
• Thin resources
• Little control over crucial assets
– Federal highways
– Airports
– International border crossings
– Communications allocations
– Interstate waterways
Barriers – City/County Planning
• Lack of resources/expertise
• Belief in “manna from state”
• Conflicting state/federal regulations, priorities,
and funding requirements
Barriers- City/County Implementation
• Resources quickly overwhelmed
• Failure to see citizens as resources
• Thinly spread human resources
– Rapid expansion very difficult
• Limited domain over crucial resources
Avenues to Explore
• Greater incorporation of
– PVOs, churches, universities, private business
– Health care sector at all levels
– Multi-jurisdictional planning committees
– Response and recovery planning
– Family and business preparedness programs
– Neighborhood block programs
– Technology advances (i.e. GIS)
Avenues to Explore - 2
• Formation of local/state science/tech rapid
advice panel
• Development of citizen response groups
– Citizen Corps
– Maryland Responds
• Development of methods and plans for
incorporating spontaneous volunteers
Avenues to Explore - 3
• Review/revise liability laws re volunteers
• New doctrine
Vignette of a Successful County
• County to be selected by Jim Judge
Open Discussion
• How can we improve our ability to help our
populations survive and recover from
catastrophic disasters?
• How can we integrate “catastrophe thinking”
into routine planning, training, equipping and
testing activities?
Open Discussion - 2
• Are we being too critical? Should expectations
be lowered?
• How can we reduce the feeling that we’re all
alone in this process?
Thank you!
• Rick Bissell, PhD
Bissell@umbc.edu
• Scott Wells, MS, CEM
ascottwells@gmail.com
• Jim Judge, CEM
jjudge@volusia.org