The Disaster Management Planning Process in Public Libraries
Sophie Kenney
LIS 770 – Fall 2012
Final Paper
November 11th, 2012
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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
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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
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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
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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
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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.
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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
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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
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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
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mitigated as much as possible and the library can then aid in the assistance and recovery
for the entire community.
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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.
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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.
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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
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Hamilton, Rebecca. "The State Library of Louisiana and Public Libraries' Response to
Hurricanes: Issues, Strategies, and Lessons." Public Library Quarterly 30, no. 1
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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).
NewJersey.Com “Fanwood Library Shines as Community Hub During Hurricane
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Wessely, Tehani. "Preparing for the end of the world: are you ready for a library
disaster?." Access (10300155) 24, no. 2 (June 2010): 26-29. Library, Information
Science & Technology Abstracts with Full Text, EBSCOhost (accessed November
6, 2012).
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Zavalick, Charlie. “Bernardsville Library Serves as Multi-Purpose Center.” Bernardsville
News, New Jersey Hills.
http://newjerseyhills.com/bernardsville_news/news/bernardsville-library-servesas-multi-purpose-center/article_a8faeaf8-29b6-11e2-bc59-001a4bcf887a.html
(accessed November 10, 2012).
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