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Crisis Management and Emergency Planning


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Table of Contents

Policy and Laws Relating to Emergency Management Planning; Michael J. Fagel, Stephen Krill , and Matthew Lawrence
Authorities and Directives
Robert T. Stafford Act
Presidential Decision Directives
Homeland Security Act of 2002
Post-Katrina Emergency Management Reform Act
Homeland Security Presidential Directives
Other References
Presidential Policy Directives
The Shift from Target Capabilities to Core Capabilities
Federal Disaster Assistance Nonprofit Fairness Act of 2013
Response Plans
Federal Response Plan
National Response Plan
National Response Framework
Emergency Support Functions
ESF Support Agencies


Emergency Operations Center Readiness Continuum; Derek Rowan
The Training and Exercise Plan
Instructor-Led Classroom Training
Online Independent Study Training
Online Instructor-Led Distance Learning Training
Online Facilitator-Led Discussion-Based Exercises
In-Person Exercises
Creating the Continuum

Stress Management and Responders;
Kathryn R. Juzwin
Why Stress Management is Important to Emergency Managers?
Stress-Related Disorders
Understanding Stress along the Continuum
Stress Reactions
Acute Stress
Manager's Responsibilities in a Critical Event
Planning: Helping Take Care of Your Responders in Advance
Suggestions for Supporting Your Responders
Psychological First Aid
Critical Incident Stress Management
Briefing and Debriefing
Suggestions and Considerations

Facility Vulnerability and Security; Larry Cunningham
The Key to Effective Security Surveys: Accounting for Human Factors
The Elements of an Effective Security Survey
Organizational Structure Dysfunction

Immediate Response to Active Shooter Situations; Rick Mathews
Reducing the Casualties from Active Shooter Attacks
Immediate Response to Active Shooters
Training and Exercises


Coordinated Terrorist Attacks and the Public Health System;
Raymond McPartland and Michael Fagel
Case Study
Mumbai, India November 26-29, 2008
The City of Mumbai
Preassault Preparations
Water Incursion and Landing
The Leopold Cafe and Bar
The CST Attack
The Taj Mahal Hotel
The Trident-Oberoi Hotel
Taxi Explosion
The Nariman House
Taxi Explosion
Swarm Attack Characteristics
Terror Medicine
The Macro Level: Public Health System Issues When Facing a Coordinated Attack
The Micro Level: Untraditional Response Protocols

Emergency Management, Public Health, and Private Sector Healthcare: New Opportunities for Collaboration;
Ruth Cover
Histories of the Programs, Including Funding
The Pandemic and All Hazards Preparedness Act of 2006, Public Law 109-417
Healthcare Coalitions, Medical Surge Capacity and Capability
Moving toward Health Preparedness Grant Alignment
Current PHEP and HPP Program Collaboration Requirements
Collaborative Opportunities

Hospital Management and Disaster Planning
; Robert Muller
Hospital Inspection and Analysis
The Joint Commission
Mitigation, Preparation, and Planning
Types of Disaster for Planning Purposes
Hospital Preparation
Personnel Pool
Staff Education and Training
Antenna Systems
Command Structure
Emergency Operations Center
Go Kits for the PIO
Decontamination Team
Facility Management
Food Preparation
Hospital Identification System
Par Values
Surge Capacity
Communications Sheet

Hospital Business Continuity
; Linda Reissman and Jacob Neufeld
Historical Prospective
Early Hospital Preparedness
Why Business Continuity?
What Is the Business Impact Analysis?
Business Impact Analysis
Physical Risk Assessment Process
Advantages of Using a Business Continuity Planning Tool
Level 1-Self-Governed
Level 2-Supported Self-Governed
Level 3-Centrally Governed
Level 4-Enterprise Awakening
Level 5-Planned Growth
Level 6-Synergistic
Key Continuity Definitions

Communications and Mass Casualty Events;
Jeremia h W. Dunlap
A Historical Look
A Failure to Communicate
The Tragedy at Virginia Polytechnic Institute
The Terrorist Attacks of September 11, 2001
Hurricane Katrina
Improving on the Past: A Retrospective
Current Event: Hurricane Sandy
Emergency Communications 101
A Local Matter
Building a Communications Network
Communication Devices and Platforms

Emergency Management and the Media;
Randall Duncan
Social Network Sites and the World Wide Web
Dealing with the Media in a Crisis
Public Information Officer
Joint Information System/Joint Information Center

Volunteer Management
; Mark Chambers
Volunteer Types
Volunteer Assessment

Legal Considerations in Threat Response Management;
Ernest P. Chiodo
Legal Counsel
Federal Legal Issues
State Legal Issues
Local Legal Issues
International Legal Issues
Supplies of Prescription Drugs
Federal Legal Issues
State Legal Issues
Local Legal Issues
International Legal Issues
Hoarding of Nonprescription Drugs and Other Health Supplies
Federal Legal Issues
State Legal Issues
Local Legal Issues
Autonomy and Direction of Care
Federal Legal Issues
International Legal Issues
Qualifications of Physicians Making Public Health Decisions
Federal, State, Local, and International Legal Issues

Sport Venue Emergency Planning; Stacey Hall
Emergency Management
The Sport Venue Command Group
Emergency Response Plan
Staff Training and Exercise
Establishing a Command Center
Evacuation Planning
Communication and Information Sharing
Risk Management
Business Continuity
Appendix A: General Guidelines Checklist for Emergency Preparedness
Facility Preparedness
Documentation and Record System
Emergency Medical
Bomb Threat
Appendix B: Evacuation Plan Template for Stadiums
Relevant Plans
Command Structure/Response Organization
Preevent Planning Considerations
Potential Hazards/Scenarios

Pandemic Preparedness
; Douglas Himberger
Nature of Pandemics
Health Concerns of Pandemics
Community Continuity Concerns of Pandemics
Psychosocial Concerns of Pandemics
Economic Impacts of Pandemics
Unique Preparedness Requirements of Pandemics
Pandemics at Hand-Pandemic Influenzas: Avian and Swine
Persistence and Pervasiveness of Pandemics
Temporal Requirements of Pandemic Preparedness
Pandemic Preparedness Planning
Developing a Pandemic Preparedness Plan
Training for and Exercising Pandemic Preparedness
Dynamically Replanning for Pandemic Preparedness
During and After a Pandemic
Responding to Pandemic Infection
Communicating during a Pandemic
Recovering after a Pandemic


Presidential Policy Directive 8: An Overview; Elizabeth Dawson and Jacob Dickman
PPD-8: An Introduction
PPD-8: An Overview
National Preparedness Goal: An Overview
Five Mission Areas
The 31 Core Capabilities
Common Core Capabilities: Defined
Capability Targets
Strategic National Risk Assessment
National Preparedness System
National Frameworks
Building and Sustaining Preparedness

Emergent Group Theory and Whole Community Capability-Building;
Joseph Lombardo
Emergent Group Theory
Disaster Research Center Typology
Emergent Groups in the Context of National Preparedness Policy
Whole Community Approach: Opportunities and Challenges
Capabilities-Based Preparedness Policy
Building Capabilities in a Whole Community Context
Examples of Emergent Groups Filling Capability Needs
Search and Rescue
Situational Awareness/Communications
Areas for Future Study
Understand Community Perceptions of Threat and Risk
Identify and Partner with Community Leaders and Prominent Organizations
Keep Existing Volunteer Groups Engaged in Informed in Any Relevant Activity
Be Creative with Training and Exercise Opportunities
Implement Solutions Using Social Media
Foster and Support Evolution of Emergent Groups into Enduring Organizations
Build a Structure and Have a Plan for Volunteer Reception


Exercise Design and Development Challenges;
Matthew Lawrence
Exercise Design
Identifying the Exercise Manager
Deciding Capabilities to Exercise
Establishing a Planning Team
Establishing Trusted Agents
Developing a Scope
Developing Goals and Objectives
Exercise Development
Establishing Planning Conferences
Recruiting SMEs
Developing the Scenario
Developing the MSEL
Validating the Events
Developing Evaluation Criteria

Operational Exercise Design;
Derek Rowan
Exercise Type
Exercise Development
Revealing the Simulation

Exercises: Testing Your Plans and Capabilities in a Controlled Environment;
James A. McGee
Importance of Testing Plans and Capabilities
Establishing a Foundation to Exercise Plans
Design and Development of Exercises
Identify Key Personnel to Be Involved in the Exercise Process
Exercise Conduct
Design and Develop an Exercise to Include an After Action Report
Evaluation and Improvement Planning
Active Shooter Threat
Handling Instructions
General Instructions
Exercise Structure
Exercise Objectives
Exercise Guidelines
Module 1: Warning (Credible Threat)
Key Issues
University Critical Incident Response Team
Module 2: Notification and Initial Response
Key Issues
University Critical Incident Response Team
Module 3: Continued Response/Evacuation and Recovery
Key Issues
University Critical Incident Response Team


Determining Your Impacts: Impact Assessment Teams
; S. Shane Stovall
Impact Assessment Defined
Need for Impact Assessment Teams
Missions and Functions of Impact Assessment Teams
Staffing Impact Assessment Teams
Managing Impact Assessment Teams
Management by Intimidation
Absentee Managers
Management by Example
Training Impact Assessment Teams
Administrative Training
Functional Training
Drills and Exercises
Equipping an Impact Assessment Team
Personal Equipment
Administrative Team Equipment
Functional Team Equipment
Financing Impact Assessment Teams
Other Considerations for Impact Assessment Teams
Lack of Commitment/Lack of Interest
Lack of Planning/Training
Lack of Post-Disaster Critical Incident Stress Debriefing

Vulnerability Assessments; James Peerenboom, Ronald E. Fisher, and Wade Townsend
Vulnerability Assessment
Methodological Approaches to Vulnerability Assessment
Simple Rating
Risk Matrix
Risk Equation
Required Expertise
Outline of Risk Management Steps
Step 1. Identify Critical Assets and the Impacts of Their Loss
Step 2. Identify What Protects and Supports the Critical Assets
Step 3. Identify and Characterize the Threat
Step 4. Identify and Analyze Vulnerabilities
Step 5. Assess Risk and Determine Priorities for Asset Protection
Step 6. Identify Mitigation Options, Costs, and Trade-Offs
Appendix: Key Definitions and Nomenclature
Key Definitions

Critical Infrastructures and Interdependencies;
James Peerenboom and Ronal d E. Fisher
Concepts and Terminology


Nuclear and Radiological Incidents;
Andrew Bramnik
Section I: Background
Radiation Basics
Common Uses of Radioactive Materials
Individual Protection
Roles and Responsibilities
State and Local Agencies
U.S. Department of Homeland Security
Federal Emergency Management Agency
U.S. Nuclear Regulatory Commission
U.S. Environmental Protection Agency
U.S. Department of Health and Human Services, the Centers for Disease Control and Prevention, the Food and Drug Administration, and the U.S. Department of Agriculture
U.S. Department of Energy
Types of Incidents
Low-Level, Contained Event
Midlevel, Localized Event
Section II: Significant Events
Types of Significant Events
Nuclear Detonation
Radiological Dispersal Device
Radiological Exposure Device
Transportation Incident
Release of Material
Events at Commercial Power Reactors
Section III: Protective Actions
Protective Action Recommendations
Primary Protective Actions
Secondary Protective Actions
Ongoing Protective Actions

Michael J. Fagel and Kelly Hamilton
Agriculture as a Target: Overview of Terrorist Threat
Importance of Agriculture in the United States
A Brief History of Agricultural Bioweapons
Economic Consequences
Federal Recognition of Agroterrorism Threats
Congressional Hearings and Laws
Bioterrorism Preparedness Act
New FDA Rules on Food Processors and Importers
Registration of Food Processors
Prior Notice of Imports
Administrative Detention
Maintenance of Records
Security for Biological Agents and Toxins
Homeland Security Act
Agricultural Border Inspections
Adding Agricultural Specialists
Executive Branch Actions
Homeland Security Presidential Directive 7
Homeland Security Presidential Directive 9
Federal Appropriations
Possible Pathogens in an Agroterrorist Attack
Animal Pathogens
OIE List
Select Agents List
Agent Analysis
Plant Pathogens
Countering the Threat
Deterrence and Prevention
Detection and Response
Laboratories and Research
Federal Authorities
Recovery Management


About the Author

Michael Jay Fagel, PhD, CEM, CH S-IV, has been involved in many phases of public service. His professional career spans nearly four decades in Fire, Rescue, Emergency Medical Services, Law Enforcement, Public Health, Emergency Management, as well as corporate safety and security. Since 2003, he has supported many phases of Homeland Security operations in numerous capacities. Currently, he is an instructor at the Illinois Institute of Technology-Stuart School of Business, Masters in Public Affairs Program, as well as at Northwestern University in the Masters of Public Policy and Administration Program, delivering master level courses in biodefense, terrorism, and homeland security. He also teaches Homeland Security at Northern Illinois University, Benedictine University's Masters in Public Health Program, as well as an instructor at Eastern Kentucky University, Safety Security Emergency Management Masters program. Also, he supported the U.S. Army's SBCCOM at Aberdeen Proving Grounds in their WMD facility support operations for 48 months. He spent 32 months standing up the National Guard Bureau's CERIAC Fusion Center operations. He is a senior instructor at Louisiana State University's National Center for Bio Medical Research and training (NCBRT). He serves as an SME for the National Center for Security and Preparedness, based in Albany, supporting New York State Division of Homeland Security and Emergency Services. He has been involved in the training of Fusion Center and Intelligence officials in numerous training classes for DHS. He has delivered several hundred lectures across the nation and written over 200 articles on safety and disaster planning. Also, he served the National Domestic Preparedness Office SLAG team (NDPO) at the FBI in Washington. Fagel spent 10 years at FEMA in their Occupational Safety and Health Cadre in Washington, responding to incidents and disasters such as the Oklahoma City Bombing where he worked as a safety officer and CISD de briefer. He spent over 100 days at the World Trade Center for FDNY at Ground Zero after the 9/11 attacks.He was involved in numerous NLE efforts as well as Salt Lake City EOC operations in 2002. He has been an exercise developer and lead for several regional operations as well as for specific federal partners. He has spent several deployments in the Middle East helping to create a national response plan and create a new FEMA-type organization. He was a delegate to the European Conference on Emergency Management held in Budapest in 2007. Along with other assignments, Fagel is a Homeland Security Analyst at the Argonne National Laboratories engaged in the protection of critical infrastructure. He has served on numerous OSHA VPP inspection teams as an SGE, with a background in safety, security, and disaster preparedness. Also, he is a member of the Northern Illinois Critical Incident Stress Debriefing team, the International Association of Fire Chiefs Committee on Safety and Health, and served on their Terrorism Committee. He served on the Illinois Terrorism Task Force and was the Region V President for the International Association of Emergency Managers; also, he was a Certified Emergency Manager Commissioner (CEM) for IAEM as well. He spent 28 years at North Aurora Fire as EMS Coordinator and Emergency Management Planner. Currently, he is a member of the board of trustees for the Sugar Grove (Illinois) Township Fire Protection District: he was a Sheriff's Deputy for 10 years, and has returned to the Kane County Sheriffs office in various training and support roles. He has published four textbooks on Emergency Planning, Emergency Operations and Food Safety Law, as well as an editor for numerous trade textbooks. He serves as a columnist for several national trade publications. Fagel, M.J., Principles of Emergency Management: Hazard Specific Issues and Mitigation Strategies, Boston, MA, Taylor & Francis, 2011. Fagel, M.J., Principles of Emergency Management and Emergency Operations Centers (EOC), Boston, Massachusetts, Taylor & Francis, 2010. Fagel, M.J., Emergency Operations: EOC Design, Louisville, Kentuky, Chicago Spectrum Press, 2008. Fagel, S.S., Food Safety Law, New York, Van Nostrand Reinhold, 1997. He has appeared on FOX, NBC, CBS, NPR, NY1, and local media outlets.


Dozens of emergency management experts collaborated with author Michael Fagel to create this detailed volume on designing, populating, and implementing a crisis management plan that is based on hard-earned knowledge gleaned from incidents such as the 9-11 attacks, Hurricane Katrina, Superstorm Sandy, and the SARS pandemic. ... this excellent book, filled with information and guidance, is a valuable reference for those in the business of crisis management and will be invaluable to emergency planning professionals.
-ASIS Dynamics, March/April 2015

A true professional, Mike Fagel arrived at FDNY WTC Incident Command Post on Duane Street, a short distance from Ground Zero, as chaos was still not contained. He organized, directed, and cajoled until order again appeared in our health and safety efforts for the thousands of personnel struggling at rescuing and recovering the victims of 9/11.
-Charles R. Blaich, Deputy Chief of Department, FDNY (Ret.), Colonel, USMC (Ret.)

... state-of-the-art strategies and procedures useful for identifying potential or actual hazards, preparing for such hazards, mitigating the cascading system failures during an incident, and facilitating a community's bouncing back economically and culturally from disasters. ... this book is essential for anyone focused on the art and science of community resiliency and the whole of community emergency management approach-focused on saving communities-the primary role of an emergency manager.
-J. Howard Murphy, MBA, MSS, FAcEM, CEM, Senior Homeland Security Program Manager and Former Commander of the U.S. Army's first CBRNE Incident Response Force

... a must-read for emergency managers, planners, first-line responders plus faculty and students involved in the study of emergency response, homeland security, and public health. Mike Fagel has a rare combination of both superb academic and hands-on, first-responder credentials.
-Colonel Randall J. Larsen, USAF (Ret.), Director, Institute for Homeland Security

Mike Fagel demonstrates in his third textbook his on-the-job expertise as an emergency manager; as someone who has known Mike for many years, I highly recommend his approach and his concepts. He continues to pursue the professional development of the field of emergency management and this is demonstrated in his most recent work. Dr. Fagel is committed to using his real world "on-the-job" approach to making the rest of us safer.
-Edward Plaugher, Fire Chief (Ret.), Arlington County Fire Department, Arlington, Virginia

If you have ever had an emergency management situation, Mike's classroom teachings and publications are a must for your agency. Mike's real-world experience, most recently involving many events we see in the news and his willingness to educate our first responders, is an opportunity that should be utilized by all agencies.
-Patrick B. Perez, Kane County Sheriff

This book complements earlier treatments of EOC design and operations by Dr. Fagel, and offers the practitioner new confidence- building measures for confronting a range of public health, agroterrorism, and active shooter incidents that can impact a community and shake the confidence of the populace to return to normalcy. His focus on the best use of social media and other communication modalities is timely and important in shaping contemporary planning and community resilience. Maintaining the trust and confidence of the element of effective emergency management and this book is a toolkit for best practices in citizen-centric preparedness.
-Robert J. Coullahan, CEM, CPP, CBCP, President, Readiness Resource Group

Dr. Fagel has experience in both traditional emergency management and agriculture operations that provide a unique understanding required for successful crisis management and emergency planning.
-Jeff M. Witte, Director/Secretary, New Mexico Department of Agriculture

Dr. Michael Fagel has assembled a group of experts in a variety of areas of emergency management and has edited a highly usable book that belongs on the desks of EM professionals. ... The organization of Fagel's book around hazard-specific issues makes it easy to find useful guidance when planning for a wide range of critical incidents ... . The coverage is very up to date, as evidenced by references in 2013 and coverage of such modern topics as the impact of social media on emergency management. ... In conclusion ... a book that is easy to recommend.
-Frank K. Cartledge, Alumni Professor of Chemistry Emeritus, Louisiana State University

... Dr. Fagel has meticulously detailed all the important aspects associated with preventing, responding, and recovering from an attack on agribusiness and the food supply. Mike introduces the subject by showing the immense scope and size of the number-one industry in the United States, agriculture, and the allied industries of food production. He outlines the complexity of the farm-to-table continuum making a special effort to point out where security should be improved.
-Stan W. Casteel, DVM, PhD, Professor of Veterinary Pathobiology, University of Missouri, College of Veterinary Medicine

Dr. Fagel and his colleagues offer a must-read, crucial body of knowledge for any professional involved in disaster management; from incident commanders to first responders in the field.
-Kimble L. Richardson, MS, LMHC , LCSW, LMFT, LCAC

These chapters provide evidence-based guidelines in terms of funding, disaster planning, and business continuity for hospitals in preparing for an all-hazards event. Given recent natural and man-made catastrophic events in our country, there could be no better time for hospitals to focus on their individual and collective emergency preparedness and response. Facts and questions are posed in a way to give hospitals a pause for thought of a serious and planned approach to evolving their emergency response beyond the typical internal situations.
-Sheila Mishler, MSN, RN, PMHCN S-BC

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