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DISASTERS ROUNDTABLE THE EMERGENCY MANAGER OF THE FUTURE AB ST RACT From hurricanes to terrorism to chemical spills, natural, technological, and other disasters can have potentially life-~reatening effects. Emergency managers of the future wid need to contend with these events in addition to other global changes in demographics, climate, and geography to further useful mttigatton/preveniton, preparedness, and response and recovery efforts to disasters. To address these issues, the Disasters Roundtable held its eighth public workshop to identify and discuss the role and responsibility of emergency managers of the future and the resources needed to meet forthcorritng challenges. Some challenges discussed included the need for emergency managers to maintain an "ah-hazards" approach, despite the recent focus on homeland security, and the need to enhance interoperability among key stakeholders especially in terms of training, communications, and organization. The opportuniites of higher education and research, in addition to the role of technology, were noted to play vital roles in the advancement of emergency management. Presented in this summary are several other observations made on the emergency manager of the future as a result of the exchange of perspectives shared at this workshop. INTRODUCTION The Disasters Roundtable~ 0)R) held its eighth public forum on June 13, 2003 at the Deck Center of the National Academies in Washington, D.C. This one-day workshop served as a clearinghouse for practitioners, decision makers, researchers, and other stakeholders to discuss and exchange perspectives on the challenges and opportuniites that face future emergency managers, based on current knowledge and experience. The anticipated challenges and opportuniites for the emergency manager of the future have evolved since the concept of emergency management fast emerged forgoing the detonation of the Soviet's first nuclear device in 1949 and the beginning of the Korean Conflict (1950). As a consequence of those events and thus the beginning of the 'Cold War', President Truman established Me Federal Civil Defense ~ The National Research Council (NRC) defines a "roundtable" as a type of convening activity of the National Academies that provides a means for representatives of government, industry, and academia to gather periodically for the identification and discussion of issues of mutual concern. In contrast to NRC study committees and other committees of the National Academies, roundtables are intended solely to enable dialogue and discussion among key leaders and representatives on a particular issue. They provide a valuable forum for exchanging information and for the presentation of individual views. However, because roundtables are not subject to institutional requirements concerning conflicts of interest, composition, and balance that apply to NRC committees, roundtables are prohibited by the National Academies from providing any advice or recommendation. This paper presents the rapporteur's summary of the workshop discussions and does not necessarily reflect the views of the roundtable members or other participants. s
Administration in 1949; the Federal Civil Defense Act (FCDA) of 1950 provided the statutory authority for the Federal Civil Defense A~ninistraiion and included authority for planning, sheltering, and evacuation and support to states and localities with planning, technical guidance and assistance, training, and f~fty-f~fty matching grants for equipment.2. Civil defense was elevated to a national perspective during the Kennedy Eras, and was expanded to include natural disasters in the 1970s. The Federal Emergency Management Agency (FEMA) was formed by President Carter in 1978 to assist in responding to both natural and human- made disasters. Thel980s brought the notion of the Integrated Emergency Management System HEMS), an all-hazards approach (including natural and man-made disasters).4 Today's "all-hazards" approach to emergency management extends far beyond the focus of the 1950s and 1960s "civil defense" to address epidemic risks, terrorism, and other societal threats.5 This National Research Council (NRC) workshop provided the medium for addressing the role and responsibility of emergency managers and the resources needed to meet future challenges. The workshop also addressed the opportunities for higher education and research to support the emergency manager of He future, in addinon to exploring the role of technology in furthering the effectiveness of emergency management. The Disasters Roundtable Steering Committee selected a diverse group of speakers and panelists extending from the practice of emergency management, to academia, and policy makers (See Appendix A for agenda). The first six sessions of He workshop involved both individual and panel presentations who a moderated discussion. After each session, the speakers entertained questions from the audience. In the final session, an attendees were encouraged to participate in an open discussion related to the emergency manager of the fixture. Approximately 115 people attended the workshop (See ~j~ for attendees list and Appendix C for speaker bias). This document is a summary of the workshop presentations and discussions. PERSPECTIVES OF THE EMERGENCY MANAGER OF THE FUTURE The workshop began with opening remarks by the DR Chair, William H. Hooke, Senior Fellow and Director of the Atmospheric Policy Program of the American Meteorological Society. Ellis M. Stanley, Sr., Certified Emergency Manager (CEIL), DR Steering Committee Member, and General Manager 2 Green, W. G., III, ed. 2003. Civil Defense: The Truman Administration (entry 01 13) in The Electronic Encyclopedia of Civil Defense and Emergency Management. Online: <http://www.rich~nond.edu/ --when/ cUtrumc~ll.htm>. Accessed: August 2003. 3 Green, W.G., III, ed. 2003. Civil Defense: The Kennedy Administration (entry 0110) in The Electronic Encyclopedia of Civil Defense and Emergency Management. Online: <http://www.richmond.edu/~wgreen/Ecdkennedy.htm>. Accessed: August 2003. 4 Green, W.G., III, ed. 2003. Civil Defense: The Reagan Administration (entry 0112) in The Electronic Encyclopedia of Civil Defense and Emergency Management. Online: <http://www.richmond.edu/~wgreen/Ecdreagan.htm>. Accessed: August 2003. 5 National Emergency Management Association (NEMA). 2003. A Governor's Primer on All-Hazards Emergency Management. Online: <http://www.nemaweb.org/docs/Gov_Primer.pdP. Accessed: ~uly2003. 6
of the City of Los Angeles Emergency Preparedness Department provided an overview of the workshop objectives. Mr. Stanley also challenged the audience to learn the name of their local emergency manager, especially since every state, in addition to Washington D.C., Puerto Rico, and the U.S. Virgin Islands, has an emergency manager. As evidenced in past tragic events, Mr. Stanley emphatically reminded the audience of the civic responsibility of local citizens, who are often the unofficial "first responders" before the professional first responders arrive on the scene. Thomas E. Drabek, Professor of Sociology at the University of Denver, addressed global issues of the future in emergency management based on his experience conducting forty years of research in this area. U.S. population trends, such as steady growth and an aging population, place increased demands on emergency management, including the need to care for more potential victims. Additionally, emerging trends indicate that emergency managers will also need to take into account matters of cultural, ethnic, racial, and gender diversity when addressing the needs of disaster victims. A framework for emergency managers to follow in assessing major trends can be based on a sociological model called "POET"6 population, organization, environment, and echnology. Emergency managers of the future will need to also consider how regional conflicts, ethnic strife, or religious and cultural militancy abroad may trigger terrorist activity against Americans at home. Dr. Drabek challenged the emergency manager of the future to "grasp the big picture" but not be controlled by it. VIEWS OF PRACTITIONERS AND DECISION MAKERS This session of the workshop, moderated by Ellis M. Stanley, Sr., involved discussions from the perspective of emergency experts and decision makers concerning challenges that future emergency mangers will face. These challenges are based on the anticipated vulnerability of the nation to particular types of risks, such as natural, technological, and human-induced hazards. T.R. Thomas, CEM, Director of Franklin County, Ohio Emergency Management Agency and President of the International Association of Emergency Managers discussed various aspects of the emergency management profession. He noted that increased disaster threats demand increased emphasis on emergency management capabilities. Emergency managers of the future will need to have a multi-disciplinary education ant! be well-versed in elements of criminal justice, seismology, meteorology, chemistry, public administration, public health, public budgeting and community planning. Emergency managers could be 6 Duncan, Otis Dudley and Leo Schnore. 1959. "Cultural, Behavioral, and Ecological Explanations of Social Organization." American Jo~rnalofSociolof~y. 65:132-153. 7
more proactive in warning the public of unsafe development by being knowledgeable in matters such as environmental clean up, building code Fotmula~aon and enforcement, and building location (e.g., zoning). To prepare for the future, Thomas suggested that emergency management should be integrated or co-located with intelligent transportation centers7 to provide video images from various transportation routes, avowing for better and safer transportation, especially for first responders when navigating emergency routes. Figure 1: Intelligent Transportation System control facility. Source: Presentation by l. R. Thomas, lune 13, 2003. Thomas continued by stating that emergency managers should also work towards regionalization to better integrate individual community emergency plans into a multi-jurisdici'onal response that would affect a more cohesive and seamless approach to a large scale event. He concluded by expressing the need for emergency managers of the future to have shared visions, where multi-discipline administration and organization, and interoperability (e.g., training, communications, language, and culture) are paramount. Eric Tolbert, Director, Response Division, Federal Emergency Management Agency (FEMA), Department of Homeland Security, provided his "10 Steps" on how the profession of emergency management can survive and prosper in a multi-hazard prone environment: 1) Collaborate with other agencies, organizations, governments, and the private sector to establish a shared vision and commitment. 2) Learn to compromise, adapt and standardize for the greater good. 7 Intelligent transportation centers use real-time video images to better manage traffic on well-traveled roads to reduce congestion. Traffic management technologies are designed to communicate real-time information on traffic and road conditions for drivers, transit users, and the general public through navigational systems, variable message signs, television, internet, radio or fiber optical . . commumcatlons. 8
Strategic planning skills are critical in the development of tangible, appropriate and measurable capacity building. Higher education institutions should support the development of these critical skills. 4) Look beyond your own geo-political boundaries to coordinate the development of new capabilities that are appropriate and sustainable. Regional cooperation, not duplication, will be the key to our success in building and maintaining adequate emergency response capabilities. 5) Academic institutions aid the identification of, and exploitation of new and emerging emergency response technologies. Retain an "all-hazards" approach to contingency planning and capacity development. 6) 7) 8) 9) Retain "compassion" for the victims, whom we are all here to serve. 10) Be patient with the changing environment and ambiguities. Advertise your successes to promote continued support. Retain a "passion" for the emergency management profession, which has just begun to evolve. Mr. Tolbert stated that more collaboration is needed to end "bureaucratic" turf battles. He described the national initiatives aimed at adapting and standardizing the National Response Plan (NRP) and the National Incident Management System (NIMS), as required by Homeland Security Presidential Directive 5 (HSPD-5) - "a comprehensive revision of all previously published directives and executive orders related to the transition of Office of Homeland Security to the new Department, and applies to all agencies/departments with equities in the Department of Homeland Security."8 Along the lines of having a well-written strategic plan, Tolbert expressed the need for academia to place more emphasis on emergency planning, including hazard, risk and vulnerability assessments. Emergency managers should look beyond their boundaries to re~onali~e, exploit technology, and retain an "all-hazards" focus. Lastly, Tolbert implored emergency managers to focus on the needs of past, present and future disaster victims as the customer, and to formulate policies and resource allocations based on their ultimate benefit. In the open discussion that followed, particular challenges and concerns were noted. One of the greatest challenges to emergency managers, is that they cannot plan for every event. Thus they must have the ability to improvise, encourage educational sharing between academics and practitioners, and effectively interact and communicate with stakeholders. Other comments focused on the status and sustainability of federal disaster funding for emergency management, and funding for related science and technology contributions. In fiscal year 2003, FEMA will provide grant funds to states and territories to be used to International Association of Emergency Management. 2003. Background Paper on Homeland Security Presidential Directive 5 (HSPD-53. Online: ~http://ww~v.iaem.com/HomelandSecurityPresidentialDirective51.doc>. Accessed: July 2003. 9
expand the Community Emergency Response Team (CERI)9 program. The ( Ll(T program provides training for community emergency preparedness. CERT members learn to aid htst responders, assist victims, and organize volunteers at a disaster site. The grant funds are allocated for state-offered train-the-trainer courses as well as to help communities start CERT programs and expand existing teams. The grant money for fiscal year 2003 is in addition to funds distributed through the fiscal year 2002 supplemental appropriation. Furthermore, the U.S. Department of Homeland Security (DHS) has announced awards to ten states for enhancing the response and preparedness capabilities for first responders and state and local governments.~° Also, in terms of science and technology, DHS has implemented a Science & Technology Directorate, which is "tasked with researching and organizing the scientific, engineering and technological resources of the United States and leveraging these existing resources into technological tools to help protect the homeland." HIGHER EDUCATION NEEDS OF THE EMERGENCY MANAGER OF THE FUTURE This panel discussed emergency management, and how university-based programs can best meet the needs of future emergency managers and decision makers given the challenges they will face this century. Lacy Suiter, Naval Postgraduate School and former Assistant Director of FEMA, moderated this panel. John R. Harrald, Director, Institute for Crisis, Disaster, and Risk Management (ICDRM), George Washington University, opened with a brief description of his program, the ICDRM, which was chartered in 1994 to improve the disaster, emergency, and crisis management plans, actions, and decisions of government, private, and not for profit organizations. His program confers master's and doctoral degrees and graduate certificates in crisis, emergency, and risk management within the Department of Engineering Management and Systems Engineering. Harrald stressed the importance that graduate education becomes a critical component of the emergency management profession. He also indicated that emergency management involves a relationship between two streams, domain expertise and the application of theory. As such, academics need to integrate these streams into a professional degree program given the high interest in emergency management since the September 11, 2001 terrorist attacks. Professor Harrald's program benefits from Ended research projects from the National Science Foundation (NSF;), the U.S. Army Corps of 9 The CERT program was developed and implemented by the Los Angeles City Fire Department in 1985 and FEMA made this training available nationally in 1993. Since this time, CERT programs have been established in more than 340 communities in 45 states. ~° For more information on "Funding Report: Helping Our Nation's First Responders," see: http: / /www.dhs.gov/dhspublic/display?theme=63. i~ For more information on DHS Science and Technology Directorate, see: http://www.dhs.gov/dhspublic/theme_home5.jsp. 10
Engineers, and the American Red Cross, to name a few. In addition to his research, Dr. Harrald is also in the process of launching a new electronic journal, Joel of Homelai~<l 5er~r~ty a~7dli~eroe~G: A/la~~apei~t which will respond to the need for more rapid interchange between practitioners and researchers in the held. B. Wayne Blanchard, Higher Education Project Manager, Emergency Management Institute, Federal Emergency Management Agency (FEMA), tracks the growth and diffusion of higher education emergency management programs across the United States, noting that today there are 47 states that have at least one emergency management collegiate program. Dr. Blanchard estimated that the number of emergency management collegiate programs is growing at an average rate of about one and a half a month, yielding a net increase of 18 new programs. . ~ _ . -I ~ . _ ~ ~~ ~ 1 I. ~ ~ _ Emer. Mgmt. Program in Place = hi_ it: Proposed Emer. Meant. Program = ~ I_ Related Emer. Mgmt. Program = ~0 No Program = ~ Figure 2: Map Showing Emergency Management College Programs by State. Source: Presentation by B. Wayne Blanchard, June 13, 2003. Dr. Blanchard disclosed that emergency management doctoral, master's, bachelor's, associate, and certificate programs have mushroomed in number since September 11, 2001. In fact, approximately 15 institutions sponsor homeland security degree programs and many more have developed terrorism focused degrees and curricula. The fli~,rher Education Project has subsidized and supervised professor-developed instructor guides made freely available via the Internet to academics interested in, or seeking help to develop, their own emergency management-related courses. These guides cover a range of disciplines, specialties, and sub-herds. Blanchard noted that among the goals of the Higher Education Project is helping emergency managers to learn management principles and skies, master tools of their trade, draw from experts studying the legal, political, economic, social, ethical, planning, geographical, and administrative aspects of emergency management, and advance their own ability to pursue research in their field. 1 1
Brenda Phillips, Professor, Institute for Emergency Preparedness (IEP), Jacksonville State University, Alabama, stated that universities function to prepare the next generation, in this case, emergency managers well versed in sound research and best practices. Traditionally, universities function to produce students with degrees and/or certificates. However, because universities serve multiple functions they must also become involved in creating and disseminating new knowledge. Particular needs include textbooks, anthologies, articles, web sites and course syllabi sets pertinent to emergency management. Faculty must also be engaged in identifying, elaborating, and critiquing theories, perspective, methods and models useful to the held of emergency management. University programs will need to meet the unique needs of emergency management students who are often unable to leave jobs and families. Distance learning technologies can help meet those needs, including internet based learning, college by cassettes, web casts, video and satellite courses. Because of a significant lack of qualified faculty, universities must educate not only emergency managers, but the future professoriate as well. Some of the discussion comments for this session pertained to several key issues in developing higher education programs in emergency management such as the lack of teaching materials, appropriate education and training, and increasing the number of doctoral graduates. The lack of teaching materials has presented a challenge in terms of resources used for training and education. Although core competencies for 21St century emergency managers include the development of both interpersonal skills and management skills and principles, there is a need for research findings to be converted to more practical "how-to" formats. More collaboration among researchers, educators, practitioners, and student feedback will help to contribute to the development of core curriculum for higher education programs in emergency management. Some discussion participants pointed out that to increase the number of doctoral graduates, funding is needed to support doctoral programs. Hiring practitioners as adjunct faculty also enhances the number of educators who can contribute to the development of training and educational programs for emergency managers of the future. RESEARCH NEEDED TO SUPPORT THE EMERGENCY MANAGER OF THE FUTURE This session was comprised of representatives from research and emergency management related practice communities to discuss prominent research that is needed to help advance the field of emergency management and how to transfer the knowledge to end users once the research results have been obtained. Ann-Margaret Esnard, DR Steering Committee Member and Associate Professor at Cornell University, moderated this panel discussion. 12
Dennis Wenger, Program Director, Infrastructure Management and Hazard Response, National Science Foundation (NSF), highlighted the significant and rapid changes that have been occurring in the field of emergency management over the past decade. Recent events have challenged some of the earlier directions taken by the field, and fundamental research is still needed in a variety of areas such as interdisciplinary work, applied research on hazards and disasters, and program evaluation. NSF's Division of Civil and Mechanical Systems joined with NSF's Division of Social, Behavioral and Economic Sciences to sponsor a program solicitation that paired social scientists with engineers, encouraged multi-disciplinary research, and addressed emergency management for critical infrastructure and related systems. NSF anticipates granting approximately seven awards from this program, and plans to hold another round of competition next year. Dr. Wenger deemed this effort to be a forerunner of how hazards research will progress in the future. He also felt that the Integrated Emergency Management System, the Incident Command System and Project Impact all deserved much more research and analysis in terms of program evaluation than each has garnered thus far, and that an all-hazards approach to emergency management deserves more theory-based research to determine its advantages and practical limitations. The Earthquake Engineering Research Institute (EERI) has already extended their concern to an all-hazards approach. Wenger advocated research that helps to optimize local emergency management. To improve upon the current "loosely coupled" local emergency management system, Wenger cats for work that addresses the strengths, weaknesses, and "goodness of fit" between current models and local emergency management effectiveness. Some focal points include urban planning and local law enforcement that are better linked to local emergency management. Dr. Wenger also emphasized the importance of continuing research on warning and risk communication and the effectiveness of community-wide preparedness and response efforts. Few have examined the effectiveness of community-wide preparedness and response organizations, such as Local Emergency Planning Committees (LEPC) and Community Emergency Response Teams ACERB. The emergency management community has embraced the Incident Command System, which manifests many command and control features. However, Wenger observed that research suggests that in contrast emergency managers usually work in a decentralized, flexible environment that values consensual, brokering behavior. Thus, the Incident Command approach deserves significant evaluation by researchers for its effectiveness. According to Wenger, multidisciplinary research is also needed on the efficacy of evacuation, in-place sheltering, mass inoculation and mass quarantine efforts. Wenger stated the appropriateness and limitations of these measures for a wide variety of natural, biological, chemical, and nuclear hazards must be examined. Michael Lindell, Director, Hazard Reduction and Recovery Center, Texas A&M University, explained how his staffing analysis of emergency management led him to conclude that there is not much
research on what the job of an emergency manager is really like. Lindell posed a question to the audience- "Where are the applicant pools for emergency management positions?" He disclosed that many emergency managers are volunteers or part-time workers who may not even have adequate resources. Many emergency managers have police, fire service, or emergency medical backgrounds while others emerge from university or college programs. Today, emergency managers are being asked to devise scenarios of emergency response to weapons of mass disaster events while they must simultaneously address more common and probable types of disasters and emergencies. Lindell, like I. R. Thomas, maintained that emergency managers need to be familiar with basic public administration and public budgeting. In terms of the appraisal of emergency management work performance, Lindell was disappointed to discover in his research that authorities sometimes do not evaluate this kind of work at all. Furthermore, matters of compensation, tangible and intangible rewards, and tenure on the job are seldom systematically analyzed. Dr. Lindell posed the question of how much emergency management software contributes to emergency management work and information needs for hazard vulnerability analysis (HVA). He also asked what knowledge, skills, and material resources do local emergency managers need to perform HVAs? In particular, he discussed the utilization of HAZUS (Hazards U.S.), a version of emergency management software that employs geographic information systems (GIS) for hazard mitigation. HAZUS is a natural hazard loss estimation methodology developed by FEMA under contract with the National Institute of Building Sciences. HAZUS loss simulation models contribute to emergency management by making credible hazard vulnerability analysis possible in order to further more precise disaster impact projections. Lindell concluded by asking what new measurement tools are needed for guiding and monitoring disaster recovery, especially managing "unmet needs"? John Pine, Professor in the Department of Environmental Studies at Louisiana State University, works as director of the Disaster Science and Management Program. Dr. Pine presented some of the developments for emergency management, such as remote sensing of environmental data, new sources of land elevation data using LIDAR Alight Detection And Ranging), digital flood maps, and impact analysis for flooding and air dispersion modeling, to name a few. Pine also discussed the opportunities provided by HAZUS, by which science and technology have become more specialized and various technologies have become essential tools of academic work. HAZUS-MH (Multi Hazard), applying standardized methodology in a software program that contains models for estimating potential losses from earthquakes, floods, and hurricanes, is to be released in August 2003. It promises to characterize events at a very detailed level, and to facilitate use in real time to support response and recovery following natural disasters. ]2 HAZUS: Natural Hazard Loss Estimation Methodology. 2003. Online: ~http://~.fema.gov/hazus/hz_index.shtm>. Accessed: July 2003. 14
HAZUS-MH Loss Estimation Methodology 4. Estimate Losses 3. Determine Damage 2. Define and Overlay Inventory 1. Define Hazard: (Flood Surface- Land Surface) Figure 3. HAZUS-MH Loss Esitmaiton Model. Source: Presentation by~ohn C. Pine, June 13, 2003. Programs such as HAZUS serve education and training needs on several levels and help emergency management practitioners to better understand physical phenomenon. Dr. Pine concluded with a system focus of future research needs: 1) clarify the role of the emergency manager, 2) facilitate realistic expectations, 3) integrate technology into the system, 4) access and integrate data in a timely fashion, and 5) examine human and system factors. In discussing the research needed for the emergency manager of the future, emphasis was given to interdisciplinary and multidisciplinary research. This was seen as especially important when analyzing the effectiveness of alternative models for managing emergency preparedness and response activities. It was noted that it would be advantageous for research initiatives to integrate applied research, case studies, and held experiments. The need for the development of more effective technologies, warning systems, and decision support systems was also discussed as well as the need to apply existing technology and knowledge in the emergency management enterprise. THE ROLE OF TECHNOLOGY IN FURTHERING THE EFFECTIVENESS OF EMERGENCY MANAGEMENT This moderated discussion consisted of experts familiar with modern technological tools, such as GIS, that can help meet today and tomorrow's emergency management challenges. The use and deployment of such tools for emergency management planning, response, communication, and other relevant activities were discussed. William "Al" Wallace, Professor, Rensselaer Polytechnic Institute, New York moderated this panel discussion. 15
John Young, Director, Enterprise Solutions, ESRI, stated that geographic information systems (GIS) "are more than maps." He said that GIS aids in management, is a tool for information sharing, provides an integrating framework for people working on widely different dimensions of the same problem, and offers decision support in times of crisis or emergency. Young added that ESRI GIS products compile prodigious quantities of geospatial data that researchers or managers may link to other sources of data and subsequently analyze. He emphasized that fixed sensor detection systems linked to GIS information bases may make it possible for emergency managers at an emergency operations center to know more about the spatial dimensions or characteristics of disasters or emergencies as they occur. Young provided a scenario of a hazardous chemical release and how GIS technologies can further emergency management. He noted Hat plume modeling over GIS mapped terrain and demographic areas serve a vital role in evacuation management and modeling around nuclear or chemical facilities. Figure 4. GIS Analysis of chemical plume spreading over Washington, DC. Source: Presentation by John Pine, June 13, 2003. GIS and Global Positioning System (GPS) technology might make it easier for emergency managers to identify who among their personnel is in an unsafe location. Tablet personal computers and hand held palm- top computer devices operated in wireless mode might help revolutionize future emergency responses. Young indicated that GIS serves recovery operations via monitoring contamination in spatial terms, marshals data, and even provides a means of managing and documenting workflow in emergency management. GIS helps present a common operational picture such that the enterprise of emergency management is both data and network centric. Matt Walton, President, E-Team, Inc., was responsible for the transition of E-Team's software from military to commercial use through a public/private partnership with the City of Los Angeles, and its 16
widespread adoption among leading government and corporate organizations. E Team, Inc. provides collaborative software to public agencies and corporations for use in emergency response management, facility and event security, disaster preparedness and recovery, and business continuity. Mr. Walton predicted that a new challenge is to prepare emergency managers to work in a wireless fashion. He anticipates that more emergency managers will be prepared for regional deployment and will get "pull downs" of city specific information and broad national overviews (e.g., displaying the location of various emergency resources or specialists). Walton presented Eve key sets of emergency management players: 1) software vendors, 2) system integrators, 3) corporations (i.e., Microsoft, Oracle, etc.), 4) government agencies, and 5) non-prof~t organizations. He stated that another challenge will be establishing an Emergency Management (EM)-XME consortium able to produce verified and validated XML conventions and compliance standards. XME, or Extensible Markup Language, can be used to store any kind of structured information, and to enclose or encapsulate information in order to pass it between different computing systems which would otherwise be unable to communicated. Walton serves as Chairman of the EM-XME Consortium, a public/private effort that is working closely with the Department of Homeland Security to develop effective interoperability standards for emergency response using Internet services. Mr. Walton favors allowing emergency managers to practice and beta test E-Team system products. He expects his firm and others to build partnerships with academics and their institutions, sharing data as they proceed. Walton expressed the view that the tools now available are "knowledge discovery" tools, but he warned that these tools cannot be the decision maker. This session revealed how technology enhances interoperability, allowing for multi-agency deployment, which can further the effectiveness of emergency management. One attendee noted that the problem with interoperability relates more to human behavior not technology. Recognizing this challenge, it was stated that technology tools are available across the spectrum and can be chosen to fit behavioral models that reflect emergency management exercises and meet the ability of the users. It was stated that software assists in the decision making process, where the humanistic components are heuristic based on situation awareness, identification needs, available resources, and accountability, to name a few. Decision-making software tools are designed to facilitate accountability and liability, in addition to providing information for people to make informed decisions. )3 Flynn, Peter. 2003. The ~ Faq. Online: ~http://~.ucc.ie:8080/cocoon/xmlfaq#acro>. Accessed: July 2003. 17
THE NEXT GENERATION This session was a moderated panel discussion with emergency management researchers and practitioners at the beginning of their careers. Each of the speakers provided their perspectives regarding tomorrow's challenges and opportunities for research and practice in the emergency management field. {ames Kendra, Research Coordinator, Disaster Research Center, University of Delaware, and Assistant Professor in the Department of Public Administration at University of North Texas, identified various challenges facing emergency managers, from earthquakes, tornadoes, and chemical spills to threats of terrorist attacks and weapons of mass destruction. Dr. I(endra suggested that future emergencies might be characterized by ambiguity about when they begin or end, and might occur in sequences that are difficult to understand. Emergency management is shifting so that even familiar hazards and emergency management needs will be viewed differently. I(endra also conveyed the need for research to be translated into practice. As such, close collaboration between researchers and practitioners is an urgent matter. Ethan Beckcom, Student, Arkansas Tech University, discussed his experience at a Disaster Resistant University J)RU) and its benefits to everyone, including entire communities, current emergency managers/public officials, and future emergency managers. Mr. Beckcom explained how DRU is much like Project Impacts, except on a campus level instead of a community level. Within a DRU, students get to work on an Emergency Operations Plan (EOP) or Emergency Action Plan (EAP) as a part of making their university disaster resistant. To make Arkansas Tech University a disaster resistant university, some students are currently working on the logistics, using a four phase approach consisting of 1) organizing their resources, 2) hazard identification and risk assessment, 3) developing the mitigation plan, and 4) adoption and implementation. DRU, a program created by FEMA, has components of research developed and Ended by the University of California, Berkeley. DRUs were established to not only promote disaster mitigation in the nation's universities, but also to reduce the impact of any hazard that a specific university may face. FEMA intends to award grant assistance to various universities to reduce and manage their vulnerability to hazards. This initiative facilitates the development of loss reduction measures to avoid damages that may kill or injure students, faculty and staff, cost millions to repair, interrupt teaching and harm research activities. The University benefits as a participant by receiving national recognition for being considered disaster resistant. t4 Project Impact communities initiate mentoring relationships, private and public partnerships, public outreach and disaster mitigation projects to reduce damage from potentially devastating disasters. Previous community projects have included creating disaster resistance strategies, revising local building and land use codes, and passing bond issues to construct prevention measures that will impact the entire community.
Chris Wright, Manager, Emergency Operations, Amgen Inc., is responsible for the Emergency Planning, Mitigation, and Training Programs and for the operation of the Corporate Emergency Operations Center (EOC). He stated how the next generation will likely be comprised of more corporate practitioners because of boardroom recognition of need, insurance constraints, increased monetary loss due to incidents, smarter emergency managers, and public sector budget constraints. Some reasons for more corporate practitioners as emergency managers may be attributed to e-businesses, global business environment, 24/7 operations, and insurance coverage limits and expenses. To better address these exposure losses, Wright emphasizes better preparedness and the need for an "all-hazards" approach. Better mitigation should include nonstructural elements as well as structural mitigation. According to Mr. Wright, some needs for the future include more research specific to the private sector, partnerships, and educational programs. Mr. Wright also encouraged the research community to reach out to the corporate sector and ask boldly for assistance with programs. From this final session, the discussion covered the evolution of emergency management and trends for the next generation of managers. A participant predicted that in the future corporate enterprises may lean more towards emergency management, whereas non-corporate enterprises may focus on risk management. It was noted that because society is rapidly and constantly changing the responsibilities and tasks of future emergency managers may look quite different than they do today. Thus a question was posed as to whether or not emergency managers may become obsolete. However, the panelists did not feel that this would occur. One panelist mentioned that some of the trends may change to involve risk management as a part of emergency management, and that there will be many opportunities for emergency managers to pursue in order to ward off obsolescence. Some of the panelists also commented on the need for proactive approaches in terms of more research, training, and outreach to the private sector. WRAP-UP: WHERE HAVE WE COME FROM AND WHERE ARE WE GOING? This workshop unveiled and addressed some of the challenges and opportunities that the emergency manager of the future will have to face in a society that is constantly changing. Some of the key observations from the workshop are summarized as follows: · The emergency manager of the future will need to assess major trends in society related to such aspects as population, organization, environment, and technology. 19
Ideally, the emergency manager of the future will have some understanding of matters related to a broad range of issues, including criminal justice, seismology, public administration, and community planning, to name a few. There is a need to maintain an "all-hazards" approach for effective mitigation/prevention, preparedness, and response and recovery efforts. Better relationship building and collaboration, especially between researchers and practitioners, are important for the advancement of emergency management. Technology and research should also play a vital role in the advancement of emergency management. The workshop concluded with final remarks from the audience and Mr. Stanley, who adjourned the workshop. 20
