InfoGram 18-07: May 10, 2007

This InfoGram will be distributed weekly to provide members of the Emergency Services Sector with information concerning the protection of their critical infrastructures. For further information, contact the Emergency Management and Response - Information Sharing and Analysis Center (EMR-ISAC) at (301) 447-1325 or by email at emr-isac@fema.dhs.gov.

Characteristics of a Resilient Community

Modern communities rely on the efficient functioning of critical infrastructure networks to provide public services, protect life and property, enhance quality of life, sustain private profits, and spur economic growth. However, man-made and natural disasters in recent years exemplify the propensity for disruption or failure of local critical infrastructure systems. While a complete collapse of community infrastructures is uncommon, Hurricanes Katrina and Rita demonstrated the horrendous consequences of a catastrophic breakdown.

In a well-functioning municipality with relatively comfortable circumstances, it is difficult to imagine what happens—or fails to happen—when nothing works. In many places of the United States, community leaders have not yet been challenged with sudden multiple and cascading failures, long-term power blackouts, extensive telecommunication interruptions, overwhelmed emergency services, severe transportation grid-locks, rampant civil disorder, etc. Undoubtedly, such effects are the worst nightmare of local leaders as well as the citizens they serve.

For several months the Emergency Management and Response—Information Sharing and Analysis Center (EMR-ISAC) examined the fundamental qualities that distinguish a resilient community with the abilities to overcome a major calamity and promptly restore essential services. After attending conferences and reviewing countless studies on this matter, the EMR-ISAC synthesized three characteristics of a resilient community. They appear below for the planning deliberation of emergency managers and the leaders of the emergency services.

• Identified and comprehended the multiple vulnerabilities to all hazards resulting from the interdependencies among the departments, agencies, corporations, industries, and organizations that comprise the public and private sectors of a community.
• Meticulously assessed the probable consequences of all hazards considering the identified vulnerabilities and the cascading effects of a disaster among all community service providers.
• Developed a community security plan that eliminates vulnerabilities and mitigates predicted consequences to ensure stakeholder functions can be quickly restored after an incident and the community can return to normal operations as soon as possible.

Active Hurricane Season Predicted

The first named storm this year, “Andrea,” presently exists off the Georgia coast and is moving southward. The arrival of this subtropical storm is a reminder that the official Atlantic hurricane season begins on 1 June. According to researchers at the Tropical Meteorology Project of Colorado State University, “the 2007 Atlantic hurricane season should be ‘very active’ with nine hurricanes.” This leading team of experts in forecasting hurricanes predicted 17 named storms and 9 hurricanes this year. They further indicated there is a 74 percent probability of a major hurricane making landfall on the U.S. coast before the end of the season on 30 November.

The Emergency Management and Response—Information Sharing and Analysis Center (EMR-ISAC) remembers that 2004 and 2005 hurricanes seriously degraded the capabilities of several emergency departments and agencies in affected areas. Whereas some degree of incapacitation may be realistic in hurricane-prone states, there must be reasonable expectation that preparedness measures are ongoing to prevent the reduction of essential services caused by any storms occurring this year. Necessary preparatory activities inevitably present the leaders of communities and their first responders with major operational, logistical, and personnel challenges. Therefore, the EMR-ISAC encourages exclusive focus on those matters that will preserve survivability, continuity, and “response-ability” for this year’s hurricanes and all other hazards.

Emergency Services Sector (ESS) organizations nationwide strive for uninterrupted mission-essential task performance before, during, and after catastrophes. To support this constant struggle by ESS departments and agencies susceptible to hurricanes, the EMR-ISAC offers the following “best practices” for consideration by sector leaders:

• Revise emergency plans to include methods to transport stranded ESS personnel to and from their stations when necessary.
• Ensure plans include all roads expected to flood during heavy rains, ways to avoid them, and procedures to access emergencies along these roads.
• Update plans to address “last refuge,” and “shutdown,” as well as sudden storm change contingencies.
• Know how to access mass communication technologies to push or pull storm information.
• Examine the benefits of participation in the National Weather Service Storm Ready Program.
• Prepare to reset generators that have failed because of low air pressure and high winds commonly associated with hurricanes.
• Guarantee electricity for gas pumps that provide fuel for emergency vehicles and LPG for emergency generators.
• Move apparatus, vehicles, and equipment to safe, but accessible locations.
• Make sure each station has sufficient food and supplies for at least 72 hours of non-stop emergency operations.
• Remain alert for gas leaks, electrical system damage, downed or loose power lines, sewage and water line damage, etc.
• Remember terrorists or criminals may attempt to take advantage of the distraction caused by natural disasters.

ESS Pandemic Guidance

The Emergency Management and Response—Information Sharing and Analysis Center (EMR-ISAC) learned of the recent release of Pandemic Influenza Best Practices and Model Protocols (PDF, 355 Kb, Adobe Acrobat (PDF) Help), containing guidance assembled specifically for the Emergency Services Sector (ESS) by the U.S. Fire Administration (USFA) and the Emergency Management Institute (EMI).

Initially drafted in early 2007 at the request of the Chief Medical Officer of the Department of Homeland Security, the final version includes model protocols for the fire service, emergency medical services, law enforcement, emergency management, 9-1-1 call centers, and public works. Acknowledging that various geographic areas would have different and valid procedures and equipment engaged in a pandemic, the particular sector components were further examined based on their status as metropolitan, urban, suburban, rural, and tribal, and their proximity to special locations, e.g., military bases or sea ports.

The content, a synopsis of input from federal, state, local, territorial, and tribal organizations, is applicable to other emerging infectious disease occurrences or acts of bioterrorism. It emphasizes that a pandemic event would not have clearly defined “trigger points” to guide the implementation of a pandemic plan. However, since a community would continue to require public services, ESS organizations “must take a pro-active stance and be prepared to recognize hazards associated with a potential outbreak and implement prevention and protection measures for their workforce.” The EMR-ISAC recognizes this as appropriate critical infrastructure protection planning.

One of the significant challenges for response organizations during a pandemic is that mutual aid would be hindered by “an anticipated loss of 30 to 40 percent” of a local workforce in neighboring communities. Therefore, it is imperative for all components of the ESS within a defined region to work together to plan and develop pandemic response procedures. These courses of action should be tested and refined to ensure that responders “remain healthy and essential capabilities to protect communities remain viable and available” if a pandemic occurs.

Additional information about pandemic influenza and planning is available at www.pandemicflu.gov.

EMS Helicopter Operations

Recognizing that there have been more than 60 Emergency Medical Services (EMS) aviation accidents between 2002 and 2005, the Emergency Management and Response—Information Sharing and Analysis Center (EMR-ISAC) reviewed Federal Aviation Administration (FAA) and National Transportation Safety Board (NTSB) accounts regarding EMS air operations. This examination verified that the EMS lost members of its most critical infrastructure—pilots, flight paramedics, and flight nurses—and sustained losses to its aircraft and equipment (i.e., physical assets) infrastructure. The EMR-ISAC also learned that the FAA now reports on actions taken since it established a task force to improve the safety culture of Helicopter Emergency Medical Service (HEMS) operations.

The FAA inspects HEMS operators, but is prompting changes beyond inspection and surveillance. The agency is moving to a risk-based system that includes initiatives that focus on the leading causes of HEMS accidents. The following are the key initiatives that contribute to protecting the critical infrastructures of HEMS organizations:

• Funded the National Center for Atmospheric Research (NCAR) to develop and implement a graphical flight planning tool for ceiling and visibility assessment along direct flights in areas with limited surface observations capability. The tool aims to improve the quality of go versus no-go decisions for HEMS operators.
• Established a committee to develop terrain awareness warning systems for helicopters for use in future FAA rulemaking projects. A report is expected in March 2008.
• Approved a total of 15 designs for Night Vision Goggles (NVGs) for helicopter installation. Initiated and wrote minimum standards for NVG/cockpit lighting, and revised the NVG guidance in the Air Transportation Operations Inspectors Handbook.
• Issued guidance and/or revised standards in the areas including risk-assessment programs, decision-making skills, Air Medical Resource Management (AMRM) training, inspections, surveillance and oversight of public aircraft operators for HEMS operations.
• Created a new Commuter, On Demand, and Training Center Branch with a staff of six, including four of whom are helicopter-qualified.
• Studying alternatives to costly and heavy airliner-style flight data recorders before establishing a standard appropriate to the helicopter flight envelope.

A fact sheet containing a full list of initiatives with more specific information is available at the FAA Website. An abstract of the 2006 NTSB investigative report can be seen at NTSB.gov.