Integrating Homeland Security into Emergency
Management Courses:
Some Grounding Concepts
and
Some Suggested Materials and Approaches
Paula D. Gordon, Ph.D.
An Expanded Version of a June 5, 2008 Presentation
Given at the FEMA Higher Education Conference,
Emmitsburg, Maryland
As Modified July 12, 2009
1
An All-Hazards Approach
• A case for an all-hazards approach that
encompasses a full range of possible hazards and
catastrophic events that face us post 9/11 and
post Katrina.
• The shift in Federal policy evident in the National
Strategy for Homeland Security released October
5, 2007, a precursor to perspectives prevalent
after January 20, 2009.
2
Excerpts from the
National Strategy for Homeland Security
released October 5, 2007
The following excerpt underscores dimensions of the
challenges before us:
"While protecting the lives and livelihoods of the
American people demands that we work to prevent and
disrupt terrorist attacks in the Homeland, it also requires
that we undertake measures to deter the threat of
terrorism, mitigate the Nation's vulnerabilities, and
minimize the consequences of an attack or disaster
should it occur. Our efforts include, among other things,
protecting our population from infectious diseases and
catastrophic public health threats, as well as reducing the
effects and consequences of all hazards through
improved systems to notify, alert, and warn the public."
3
Excerpts from the
National Strategy for Homeland Security
released October 5, 2007 (Continued)
In the National Strategy, the need to carry out
and "advance readiness activities" is also
emphasized in the following way:
"There are times when we are able to anticipate
impending or emergent events that will require a
national response, such as an upcoming
hurricane season, a potential pandemic, or a
period of heightened terrorist threat."
4
Some Perspectives Concerning
Emergency Management
And the Role of Homeland Security Concerns
in Emergency Management
• Is the focus of emergency management solely on natural
hazards?
• Does the focus on emergency management include an allhazards approach that encompasses terrorism and
homeland security threats and challenges?
• Does the focus on emergency management encompass
both an all-hazards approach and attention to catastrophic
events?
• Does the focus on emergency management encompasses a
goal of helping individuals develop the knowledge base,
skill sets, and capabilities needed to assume and more
effectively carry out their roles of responsibility relating to
an all-hazards approach to emergency management?
5
Some Organizing Typologies, Concepts, and Tools
•
Todd Stewart’s Counter-Terrorism Strategic Model:
Similarities between this depiction
of the homeland security cycle
and the emergency management cycle
• Paula Gordon’s Adaptation of Todd Stewart’s Model:
An All Hazards Emergency Management Cycle
•
A Typology of Emergencies of
Differing Levels of Severity
•
The Homeland Security Impact Scale and its
Applicability to an All-Hazards Approach to
Emergency Management
•
The Public Safety/National Security Grid
6
Todd Stewart’s
Counter-Terrorism Strategic Model and
Paula Gordon’s Adaptation
of the Stewart Model:
• Todd Stewart's model is helpful in depicting a
comprehensive approach to preventing as well as
preparing for and responding to potential terrorist-related
events.
• Stewart’s model helps clarify key similarities and
differences between the homeland security cycle and the
emergency management cycle
• Gordon’s adaptation of the Stewart model focuses on An All
Hazards Emergency Management Cycle.
7
Todd Stewart’s Counter-Terrorism Strategic Model
Identify & Characterize
Threats
Recovery &
Restitution
Post-Event
Response
Forensics &
Attribution
Deterrence
TERRORISM
EVENT OR
CAMPAIGN
Prediction
Prevention
Crisis
Management
(Pre-emption)
Mitigation
(Preparation
and Protection)
8
Identify, Assess, &
Characterize Hazards
Recovery & Restitution
Plus Mitigation &
Preparedness Measures
For the Future
Post-Event
Response
Crisis
Management
& Event Response
Preparedness
AN ALLHAZARDS
EMERGENCY
MANAGEMENT
CYCLE
Remediation,
Protective
Measures, &
Mitigation
Contingency
Planning &
Continuity of
Operations Planning
Situational Awareness & Assessment
When & If the Event is Foreseeable or
Imminent & When the Event Occurs
Paula D. Gordon, Ph.D,
http://gordonhomeland.com 3/26/2009
Modeled Loosely on an Adaptation of Todd Stewart’s Counter Terrorism Strategic Model
9
A Typology of Emergencies
of Differing Levels of Severity
• A typology that is pertinent to an all-hazards
approach to emergency management as well
as to a natural hazards approach to
emergency management
•
A typology that helps clarify the differences
in impacts of emergencies of differing levels
of severity and the implications of those
differences for the emergency management
cycle
10
A Typology of Emergencies
Size of
Emergency
Number
of Dead &
Injured
Roles of
Approach
Government
Characteristics
of Care
Skill &
Training
Needs
Small Scale
Scores
Local, State,
and Regional
Surge of
capabilities
Manageable
Surge capability
Medium
Scale
Hundreds
All levels of
government
Modified
Normal to
minimal
Networked
surge
capability
Large
Scale
Thousands
All levels of
government
Modified
to
makeshift
Normal to
minimal
Networked
surge
capability
Catastrophic
Scale
Millions
All levels of
government
Mostly
makeshift
Minimal or
worse
Make do
capability
MegaCatastrophe
Multimillions to
billions
Remaining
vestiges of
government
Totally
makeshift
Minimal if
existent
Improvisational
skills
11
Adapted from Paula D. Gordon " Comparative Scenario and Options Analysis: Important Tools for Agents of Change Post 9/11 and Post Hurricane Katrina," Homeland
Security Review, Vol. 1 No. 2 , 2006 (http://users.rcn.com/pgordon/homeland/options/Analysis.html )
The Homeland Security Impact Scale: Its
Applicability to an All-Hazards Approach to
Emergency Management
• The Homeland Security Impact Scale provides a
common frame of reference that can be useful in
considering and arriving at a consensus
concerning the impacts of disasters.
• The Homeland Security Impact Scale provides a
common frame of reference that can be useful in
considering actions that can be taken to mitigate
the impacts of disasters or emergencies of
differing levels of severity or to address and help
reverse them once they have occurred.
12
Homeland Security Impact Scale
•
0 -- No real impact on national security, economic security, or
personal security
•
1 -- Local impact in areas directly affected
•
2 -- Significant impact in some areas that were not directly affected
•
3 -- Significant market adjustment (20% plus drop); some business
and industries destabilized; some bankruptcies, including increasing
number of personal bankruptcies and bankruptcies of small
businesses, and waning of consumer confidence
•
4 -- Economic slowdown spreads; rise in unemployment and
underemployment accompanied by possible isolated disruptive
incidents and acts, increase in hunger and homelessness
•
5 -- Cascading impacts including mild recession; isolated supply
problems; isolated infrastructure problems; accompanied by possible
increase in disruptive incidents and acts, continuing societal impacts
13
Homeland Security Impact Scale
(Continued)
•
•
•
•
•
6 -- Moderate to strong recession or increased market volatility; regional
supply problems; regional infrastructure problems accompanied by
possible increase in disruptive incidents and acts; worsening societal
impacts
7 -- Spreading supply problems and infrastructure problems accompanied
by possible increase in disruptive incidents and acts, worsening societal
impacts, and major challenges posed to elected and non-elected public
officials
8 -- Depression; increased supply problems; elements of infrastructure
crippled accompanied by likely increase in disruptive incidents and acts;
worsening societal impacts; and national and global markets severely
impacted
9 -- Widespread supply problems; infrastructure verging on collapse with
both national and global consequences; worsening economic and societal
impacts accompanied by likely widespread disruptions
10 -- Possible unraveling of the social fabric, nationally and globally,
jeopardizing the ability of governments to govern and keep the peace
14
Homeland Security Impact Scale
(Continued)
•
"Disruptions" and "incidents" can include demonstrations, work
stoppages, strikes, organized or spontaneous vandalism,
looting, and riots. Also included are sabotage and terrorist acts
and attacks. (The scale and these notations have been
adapted by Paula D. Gordon from the Y2K Impact Scale
developed by Bruce F. Webster of WDCY2K and sent by him to
the membership of WDCY2K on March 4, 1998.)
•
"Supply problems" and "infrastructure problems" may include
food shortages; availability of potable water; degradation of
water purity, water distribution and/or waste management;
fuel/heating oil shortages, disruptions in utilities (power, gas,
telecommunications), disruption in the financial sector,
disruptions in transportation (airlines, trains, trucking, ports,
ships); pharmaceutical shortages; disruption of health care
services or emergency medical services; disruption of fire and
public safety services; disruptions or inadequacies, or
overwhelming of public works operations and services.
15
The Public Safety/Homeland Security Grid
•
A way of seeing public safety and homeland
security as being mutually inclusive
•
A balanced and integrated emphasis on both
public safety and homeland security, not one over
the other.
16
The Public Safety/
Homeland Security Grid
9,1
Public Safety
1,1
9,9
5,5
Homeland Security
1,9
17
Some Selected Materials
The following are materials, websites, videos, and DVD’s that can be
used in the development of courses and curricula focusing on an
all-hazards approach to homeland security and emergency
management. Complete references for these materials can be
found in the “Extensive List of References and Resources”
compiled by Paula D. Gordon and posted at
http://gordonhomeland.com * or see
http://users.rcn.com/pgordon/homeland/resources.html#13
* GordonHomeland.com (http://gordonhomeland.com ) includes
articles, reports, publications, and presentations on homeland
security and emergency management and organizational,
managerial, ethical, and educational issues. The website has
been developed by Paula D. Gordon and is provided as a free
public service.
18
Some Selected Materials
(Continued)
• Paula D. Gordon, “Improving Homeland Security & Critical
Infrastructure Protection and Continuity Efforts”
http://users.rcn.com/pgordon/homeland/hscipreport.pdf or
use link at http://gordonhomeland.com.
• Paula D. Gordon, “The Different Nature of Terrorism and
Terrorist Threats Post 9/11and the Implications of These
Differences” use link at http://gordonhomeland.com or
http://users.rcn.com/pgordon/homeland/thedifferentnature
ofterrorism.htm.
• Paula D. Gordon, “Pre- and Post-9/11 Perspectives:
Understanding and Teaching about Differences in Perspectives
Affecting Governance and Public Administration Post-9/11”
(Publication pending in two parts in Ethics Today, Volume 11
Number 1 and 2, Spring and Summer 2009) (Posted at
GordonPost9-11.com and GordonHomeland.com.)
19
Some Selected Materials
(Continued)
• Walid Phares, February 27, 2007 Presentation on Radical
Extremism, C-SPAN video or DVD
• Walid Phares, “Education VS Jihad,” HS Today, November
2006
• “Obsession: Radical Islam’s War Against the West,” a
documentary, 2006. Available on DVD at
http://obsessionthemovie.com .
20
Some Selected Materials
(Continued)
•
David A. McEntire, Introduction to Homeland Security:
Understanding Terrorism with an Emergency Management
Perspective, Wiley, 2009.
•
Claire B. Rubin, editor, Emergency Management: The
American Experience 1900 – 2005, Public Entity Risk Institute,
(http://riskinstitute.org ), 2007
21
Some Selected Materials
(Continued)
• Stephen Flynn, March 27, 2007 Presentation on The
Edge of Disaster, C-SPAN video or DVD. Also see CNN
archives.
• Stephen Flynn, The Edge of Disaster, Random
House, 2007
• Michael Leavitt, April 18, 2006 Presentation
concerning pandemic flu preparedness planning, CSPAN video or DVD, ID: 192090 (1-877-ONCSPAN)
• Naval Postgraduate School Course Materials and
videos on radical extremism and the resources of the
Homeland Security Digital Library
22
Some Selected Materials
(Continued)
• April 2003 Frontline Program: Cyberwar (PBS) (Also see
archived program, transcript, and interviews online at
http://www.pbs.org .) (To obtain a copy of this video, ID:
FROL-2116, contact PBS Video at 1-800-424-7963)
• Paula D. Gordon, "Infrastructure Threats and Challenges:
Before and After September 11, 2001". PA TIMES, Vol.
24, Issue 12, December 2001. Reprinted as a commentary
in the Journal of Homeland Security, April 16, 2002.
Also posted at
http://users.rcn.com/pgordon/homeland/homeland_infra.ht
ml or see link at http://gordonhomeland.com .
23
Some Selected Materials
(Continued)
• DHS Homeland Security Advisory Council Critical
Infrastructure Group The 1-10-2006 Report is available at
on the DHS Homeland Security Advisory Council website.
(To obtain a copy of the C-SPAN video or DVD, ID: 190653,
contact 1-877-ONCSPAN.)
• Ted G. Lewis, Critical Infrastructure Protection in Homeland
Security ~ Defending a Networked Nation, WileyInterScience, 2006
24
Some Selected Materials
(Continued)
•
Lt. General Russel Honore, Presentation on Hurricane Katrina, CSPAN video or ID: 191243, February 13, 2006*
•
Lt. General Russel Honore, September 9, 2005 CNN transcript in
which General Honore compares the crisis to a football game in
which you cannot expect to win any ground in the first quarter*
•
Lt. General Russel Honore (Ret.) with Ron Martz, Survival: How a
Culture of Preparedness can Save You and Your Family from
Disasters. Atria Books, May 2009. ISBN: 978-1-4165-9900-5*
•
Michael Brown, Presentation on Hurricane Katrina and Weather
Emergency Preparedness, January 18, 2006, C-SPAN video or
DVD ID 190789.*
* For particularly significant insights into the massive challenges
relating to catastrophic event planning, preparedness, mitigation,
and response and the Federal approach to Hurricane Katrina
25
Some Selected Materials
(Continued)
• Susan B. Glasser and Michael Grunwald, "Department's
Mission Was Undermined From Start", Washington Post,
December 22, 2005 *
• Michael Grunwald and Susan B. Glasser, "Brown's Turf Wars
Sapped FEMA's Strength" Washington Post, December 23,
2005 *
* For extraordinary insights into the background Federal
homeland security efforts from after 9/11 through
Hurricane Katrina
26
Some Selected Materials
(Continued)
• Paula D. Gordon, Presenter, "Improving Homeland Security
- Continuing Challenges and Opportunities," transcript of
Emergency Information Infrastructure Partnership (EIIP)
Virtual Forum, March 24, 2004. Posted at
http://gordonhomeland.com.
• Paula D. Gordon, "Transforming and Leading
Organizations," (Examples from disaster management.)
(Posted at http://gordonhomeland.com. Also published in
Government Transformation, Winter 2004-05 issue.
27
Some Selected Materials
(Continued)
•
Paula D. Gordon, "Capabilities and Skills Needed by Those in New
Roles of Responsibility for Homeland Security at the Federal,
State, and Local Levels of Government." Posted at
http://gordonhomeland.com and published in the PA TIMES, Vol.
28, Issue 3, March 2005 (a publication of the American Society for
Public Administration).
•
Paula D. Gordon, "Comparative Scenario and Options Analysis:
Important Tools for Agents of Change Post 9/11 and Post
Hurricane Katrina," Homeland Security Review, Vol. 1 No. 2,
2006. Posted at http://gordonhomeland.com or
http://users.rcn.com/pgordon/homeland/optionsAnalysis.html.
28
Some Selected Materials
(Continued)
• Paula D. Gordon, "Public Administration in the Public
Interest: Thoughts About Public Administration Post
September 11, 2001". Posted at
http://users.rcn.com/pgordon/homeland/public_administrat
ion_in_the_pub.html or see link at
http://gordonhomeland.com
• Paula D. Gordon, "The 9/11 Commission as an Incident
Debriefing" May 18, 2004. Posted at
http://users.rcn.com/pgordon/homeland/911debriefing.pdf
or see link at http://gordonhomeland.com.
29
Some Selected Materials
(Continued)
• Paula D. Gordon, “The Homeland Security Impact
Scale: An Alternative Approach to
Assessing Homeland Security and Critical Infrastructure
Protection Efforts and a Frame of Reference for
Understanding and Addressing Current Challenges”
http://users.rcn.com/pgordon/homeland/thehomelandsecur
ityimpactscale.htm or use link at
http://gordonhomeland.com .
• Paula D. Gordon, “Strategic Planning and Y2K Technology
Challenges:Lessons and Legacies for Homeland Security”
http://users.rcn.com/pgordon/homeland/homeland_strat.ht
ml or use link at http://gordonhomeland.com .
30
Some Selected Materials
(Continued)
•
Paula D. Gordon, “Using E-Technology to Advance Homeland Security
Efforts
http://users.rcn.com/pgordon/homeland/etechnology.html or use link at
http://gordonhomeland.com .
•
Paula D. Gordon, “A Common Goal for Contingency Planning and
Management, Emergency Management, and Homeland Security: Building a
Disaster Resilient Nation”
http://users.rcn.com/pgordon/homeland/CommonGoal.html or use link at
http://gordonhomeland.com .
•
Paula D. Gordon, "Key Challenges for the Future of Homeland Security and
Emergency Management Education," PA TIMES, Vol. 31, Issue 8, August
2008. (The PA TIMES is a publication of the American Society for Public
Administration.) (Posted at GordonHomeland.com)
•
Paula D. Gordon, “Some Conceptual Tools for Understanding and
Addressing Catastrophic Challenges As Well As Other Lesser Emergencies,”
June 15, 2009 (Posted at GordonPost9-11.com and
GordonHomeland.com.)
31
Some Selected Materials
(Continued)
• Paula D. Gordon, "The State of Emergency Management
and Homeland Security," PA TIMES, Vol. 30, Issue 8,
August 2007. Also posted at http://gordonhomeland.com
or see or
http://users.rcn.com/pgordon/homeland/stateofEM.html .
• Paula D. Gordon (compiler) "List of Selected Homeland
Security References and Resources” (Extensive List)
(http://gordonhomeland.com or
http://users.rcn.com/pgordon/homeland/resources.html#1
3 ) This list includes seventeen categories of information,
including URLs for websites and portals relevant to
homeland security and emergency management.
32
Contact Information & Websites
Paula D. Gordon, Ph.D.
Educator/Analyst/Writer/Consultant
E-Mail:
Websites:
pgordon@erols.com
http://gordonhomeland.com
http://GordonPost9-11.com
http://www.jhu.edu/pgordon
33
Paula D. Gordon is an educator, consultant, analyst, and writer. She has also served in a variety of
capacities in the Federal government, including staff officer, policy analyst, and special projects director
for a wide range of Federal agencies and Departments. She has an extensive background in several
domestic policy arenas including drug abuse prevention, emergency management, and homeland
security. Her websites at http://GordonDrugAbusePrevention.com and http://gordonhomeland.com
include her articles, reports, publications, and presentations on drug abuse prevention and on
emergency management and homeland security respectively. Her doctoral dissertation, Public
Administration in the Public Interest (posted at http://www.jhu.edu/pgordon) focuses on complex
societal problem solving and governmental change. She is based in Washington, D.C. E-mail:
pgordon@erols.com.
http://gordonhomeland.com
Return to Paula Gordon's Homeland Security Page
34