Risk and Emergency Management

Case Studies Textbook

Development Project

Prepared By:

George Haddow and Damon Coppola

Bullock & Haddow LLC

315 Boyd Ave.

Takoma Park, MD20912

301-270-5554

The purpose of this effort is to develop an Emergency and Risk Management Case Studies Textbook designed to provide a resource for practitioners and students in the crisis, disaster, and risk management disciplines that displays various best practices, lessons learned, and success stories, through in-depth case studies. The result of this effort will be the authorship of a college-level crisis, disaster, and risk management textbook containing numerous real-world case studies of disaster preparedness, mitigation, response, and recovery actions.

The textbook will be developed in electronic format to support upper division undergraduate college and graduate-level emergency management classes within an emergency management major or certificate program to students who may someday enter an emergency management related profession.

The planned book will include the following ten chapters:

Chapter 1.Introduction to Crisis, Disaster, and Risk Management Concepts

Chapter 2.Preparedness

Chapter 3.Mitigation

Chapter 4.Response

Chapter 5.Recovery

Chapter 6.Communications

Chapter 7.Statutory Authority

Chapter 8.Business Continuity Planning

Chapter 9: International Disaster Management

Chapter 10:Future Trends and Issues

Text chapters will support a minimum of ten three-hour blocks of instruction, unless otherwise agreed upon by the contractor and FEMA. Information derived from published sources shall be properly cited within textbook chapters, either within the text or by utilizing footnotes. Numerous information and data sources will be consulted in drafting the case studies including but not limited to:

* Reports by Federal, State and local government organizations

* News reports developed by the media

* Studies and reports developed by academic institutions

* First hand accounts by participants and witnesses

* Official testimony to government bodies

* Previously published emergency and risk management textbooks

* Interviews with available participants and officials

* Reports prepared by voluntary agencies

* Reports and information developed by business community sources

* Data collected by public and private sector sources

Each Chapter will include:

  • Chapter Outline - Bulleted-format outline detailing major topics to be discussed in each chapter
  • Chapter Introduction - Introduction of topics and concepts to be discussed in each chapter. Each chapter will explore a disaster management concept through the medium of one or more case studies
  • Full Instructional Text - Generally, this will consist of one or more case studies
  • Sidebars - Interesting commentary and important concepts that are provided in the outer page margins to expand upon the case studies and other instructional material
  • Discussion Questions - Questions that challenge readers to consider how the events and actions described in the cases would apply in their local context
  • Illustrations - Photographs, charts, graphs, diagrams, and other material that adds visual enhancement to materials provided
  • Information Resources and Website Links - Additional sources of information available in the public, private, and non-profit sectors, both conventional and on-line
  • Glossary of Terms and Acronyms
  • Suggested Out-of-Class Exercises - Additional projects, to be assigned at the discretion of the instructor, that provide students with additional practical experience with the material discussed in the comprehensive chapter material

As of June 7, 2005, Chapters 1 through 5 have been completed in draft from and submitted fro review to FEMA. Presented in the following sections are an outline of the topics and concepts discussed and a list of the case studies included in each of these chapters.

Chapter 1: Introduction to Crisis, Disaster, and Risk Management Concepts

The purpose of this chapter is to introduce the reader to current and historical crisis, disaster and risk management concepts, to define the four phases of emergency management, and to highlight issues concerning communications, business continuity planning and international disaster programs. Also included in this chapter is a discussion of the attributes of a successful emergency management system that will be illustrated in the case studies presented in this book.

This chapter includes the following sections:

  • Review of Historical Trends in Emergency Management
  • Four Phases of Emergency Management
  • Communications
  • Business Continuity Planning and Emergency Management
  • International Disaster Programs
  • Emergency Management and the New Terrorism Threat
  • Attributes of Successful Emergency Management Programs and Functions
  • Brief Descriptions of Case Studies

Chapter 2: Preparedness

1.Introduction of topics and concepts to be discussed in the chapter

1.Preparedness Cycle

2.Preparedness Programs

3.Education and Training Programs

4.Community Involvement

2.Case Studies:

1.WashingtonState Emergency Management Division – Comprehensive Public Disaster Preparedness Campaign

2.TsunamiReady – An Effective Tsunami Preparedness Program

3.The Emergency Management Institute – The Federal Role in Emergency Management Education in the United States

Chapter 3: Mitigation

  1. Introduction of topics and concepts to be discussed in this chapter.
  2. Tools for Mitigation
  3. Hazard Identification and Mapping
  4. Design and Construction Applications
  5. Land Use Planning
  6. Financial Incentives
  7. Insurance
  8. Structural Controls
  1. Impediments to Mitigation
  1. Case Studies
  2. Deerfield Beach, Florida: A Project Impact Community
  3. Avalanche Mitigation in the Western United States
  4. Tornado Safe Rooms

Chapter 4: Response

1.Introduction of topics and concepts to be discussed in this chapter.

  1. Local Response
  2. State Response
  3. Volunteer Group Response
  4. Federal Response
  5. Incident Command System

2.Case Studies

  1. 2003 California Wildfire Response
  2. Space Shuttle Columbia Disaster
  3. Pentagon Attack on September 11, 2001

Chapter 5: Recovery

  1. Introduction of topics and concepts to be discussed in the chapter.
  2. Federal individual community and business assistance programs
  3. State and local assistance programs
  4. Roles and responsibilities
  5. Volunteer groups
  6. Resources
  7. Role of business sector
  8. Coordination
  9. Customer service
  10. Insurance
  11. Case studies
  12. Federal Government Recovery Efforts Following the 1993 Midwest Floods
  13. Housing Reconstruction after the 1994 Northridge Earthquake
  14. September 11 Philanthropic Recovery Efforts

Presented in the following sections are the proposed topics and concepts to be discussed in Chapters 6-10 and lists of potential case studies to be considered for inclusion in each chapter.

Chapter 6: Communications

  1. Introduction of topics and concepts to be discussed in the chapter.
  2. Leadership commitment
  3. Customer Focus
  4. Inclusion of communications in planning and operations
  5. Media partnership
  6. Information collection and dissemination
  7. Accurate and timely information
  8. Crisis communications
  9. Preparedness Communications
  10. Tools
  11. Case studies to be examined of which 3-5 will be included:
  12. 2001 Anthrax Attacks
  13. Northridge Earthquake
  14. Hurricane Floyd
  15. September 11th Terrorist Attacks – National Focus
  16. Ready.gov Campaign
  17. Washington, DC Sniper Attacks
  18. Homeland Security Advisory System (HSAS)

Chapter 7:Statutory Authority

  1. Introduction of topics and concepts to be discussed in the chapter.
  2. Why statutory is important
  3. Budget authority
  4. Program eligibility
  5. Focus of authority
  6. Roles and responsibility
  7. Case studies to be examined of which 3-5 will be included:
  8. Civil Defense Act
  9. Homeland Security Act
  10. Flood Insurance Act
  11. Disaster Mitigation Act
  12. Civil Defense Act
  13. NEHRP
  14. Rhode Island club fire

Chapter 8 Business Continuity Planning

  1. Introduction of topics and concepts to be discussed in the chapter.
  2. Business continuity planning elements and definitions
  3. Business impact analysis
  4. Establishing a business continuity planning capability
  5. Working with public sector emergency managers
  6. Case studies to be examined of which 3-5 will be included:
  7. Marsh Consulting
  8. American Express
  9. Marriott Hotels
  10. Global Partnership for Preparedness Small Business Preparedness Campaign
  11. Fidelity Investments

Chapter 9: International Disaster Management

  1. Introduction of topics and concepts to be discussed in the chapter.
  2. Statutory and budget authority
  3. Role of NGOs
  4. Role of international financial institutions
  5. Donor nation support
  6. Leadership issues
  7. Agency responsibilities
  8. Tools, technology and staffing
  9. Case studies to be examined of which 3-5 will be included:
  10. 2001 Gujarat Earthquake
  11. PAHO Preparedness Programs
  12. USAID OFDA Disaster Response Mechanism
  13. Hurricane Mitch in Honduras
  14. Hurricane Mitch in Guatemala
  15. Hurricane Georges in the Dominican Republic
  16. MEER Project (Turkey)

Chapter 10: Future Trends and Issues

  1. Continuing evolution of emergency management in the United States
  2. Department of Homeland Security
  3. NRP
  4. NIMS
  5. Statutory authorities
  6. Budget issues
  7. Interdiction as the primary focus
  1. FEMA
  2. Resources
  3. Staffing
  4. Programs
  5. Role in Federal actions
  6. Relationship with State and local government and emergency managers
  1. Other Federal agencies
  2. HHS
  3. EPA
  4. DOJ
  5. USDA
  6. DOD
  1. State and local emergency management
  2. Evolving role in state and local government
  3. Education and training
  4. Staffing and resources
  1. Role of the business sector
  2. BCP evolution
  3. Partnering with government
  4. Education and training
  5. Certification
  6. Expanding role inside the corporate world
  1. Continuing evolution of emergency management internationally
  2. Role of international financial institutions
  3. Disaster relief
  4. Capacity building
  5. Shift in focus to mitigation
  6. Reconfiguring development plans
  1. Government agencies
  2. Statutory Authority
  3. Budget authority
  4. Technology and tools
  5. Staffing
  6. Education and training
  7. Resources
  8. Coordination within the government
  1. NGOs
  2. Shift of focus to mitigation
  3. Resources
  4. Coordination with government
  5. Education and training
  1. Role of US Government and other donor nations
  2. Mitigation
  3. Resources
  4. Incorporation in development assistance
  5. Relief assistance
  1. Future Considerations
  1. Community based programs
  1. Public safety position
  1. FEMA’s role
  1. Understanding the new terrorism threats
  1. Consolidating business continuity and recovery planning in the corporate world
  1. Disaster mitigation institutionalized in international development planning
  1. Organizational capacity building in emergency management operations in developing countries

Presented in the following section is a Case Study from Chapter 2 as an example of the case studies to be included in the book:

Case Study 2.1:TsunamiReady – An Effective Tsunami Preparedness Program

The Tsunami Hazard

A tsunami (pronounced “soo-nah-mee”) is a series of waves generated by an undersea disturbance such as an earthquake. The term tsunami is Japanese in origin, represented by two characters: "tsu" (harbor) and "nami" (wave). Tsunamis are often referred to, incorrectly, as "tidal waves." In truth, tides result from the gravitational influences of the moon, sun, and planets, a phenomenon that has absolutely nothing to do with the generation of tsunamis (although the ultimate height of a tsunami striking a coastal area is determined by the tide level at the time of impact.)

There are many events that result in the generation of a tsunami, but earthquakes are the most prevalent. Other forces that generate the great waves include landslides, volcanic eruptions, explosions, and though extremely rare, the impact of extra-terrestrial objects, such as meteorites.

Tsunamis are generated when a large area of water is displaced, either by a shift in the sea floor as would occur following an earthquake, or by the introduction of mass, as described in the other generative forms listed above. Waves are formed as the displaced water mass attempts to regain its equilibrium.It is important to note that not all earthquakes generate tsunamis; to do so, earthquakes must occur underneath or near the ocean, be large in magnitude (studies have indicated a minimum 6.9 on the Richter Scale), and create movements in the sea floor. While all oceanic regions of the world can experience tsunamis, the countries lying in the Pacific Rim region face a much greater frequency of large, destructive tsunamis because of the presence of numerous large earthquakes in the seismically active ‘Ring of Fire’.

From the area of the disturbance, the resulting waves that are generated will travel outward in all directions, much like the ripples caused by a rock thrown into standing water. The time between wave crests can range from as little as 5 to as many as 90 minutes, and the wave speed in the open ocean will average a staggering 450 to 600 miles per hour.

Tsunamis reaching heights of more than 100 feet have been recorded. In the open ocean, tsunamis are virtually undetectable to most ships in their path. As the waves approach the shallow coastal waters, they appear normal but their speed decreases significantly. The compression of the wave resulting from the decrease in ocean depth causes the wave to rise in height and crash onto land – often with great destruction, injuries and death as the result. (NTHMP, 2003)

Tim Folger, in his article “Waves of Destruction”, described the generation of tsunamis. He wrote, "As the tsunami wave reaches the shallower water above a continental shelf, friction with the shelf slows the front of the wave. As the tsunami approaches shore, the trailing waves pile onto the waves in front of them, like a rug crumpled against a wall creating a wave that may rise up to 30 feetbefore hitting the shore. Although greatly slowed, a tsunami still bursts onto land at speeds of around 35 miles per hour, with enough momentum to flatten buildings and trees and to carry ships miles inland." (Folger, 1994)

The areas facing the greatest risk from the tsunami hazard are those populated centers that lie within one mile of the coastline and rise less than 50 feet above sea level. It is in these areas that public education and planning for tsunamis has been focused. Misinformation about tsunamis can be deadly, as has been exhibited when people have fled an initial tsunami wave of a series, only to be killed upon returning too soon by successive waves that followed. Strange phenomena that precede a tsunami, such as the ocean receding for 100s of feet exposing the ocean floor, have resulted in the death of misinformed citizens who ventured out to explore, only to be drowned in a sudden return of water height.

The following list provides a small sample of the range of tsunami experiences that have occurred within the United States and Canada:

  • In 1964, an Alaskan earthquake generated a tsunami with waves between 10 and 20 feet high along parts of the California, Oregon, and Washington coasts. This tsunami caused more than $84 million in damage in Alaska and a total of 123 fatalities.
  • Although tsunamis are rare along the Atlantic coastline, a severe earthquake on November 18, 1929, in the Grand Banks of Newfoundland generated a tsunami that caused considerable damage and loss of life at Placentia Bay, Newfoundland.
  • In 1946, a tsunami with waves of 20 to 32 feet crashed into Hilo, Hawaii, flooding the downtown area and killing 159 people.

Most deaths during a tsunami are a result of drowning. Other risks associated with the tsunami hazard include flooding, polluted water supplies, destruction of crops, business interruption, loss of infrastructure (roads, electrical lines, etc.), and damaged gas lines. Since 1945, more people have been killed as a result of tsunamis than as a direct result of an earthquake’s ground shaking.

Presently, the National Oceanic &Atmospheric Administration (NOAA) participates in the Tsunami Warning System, operating two Tsunami Warning Centers. The Alaska/West Coast Tsunami Warning Center (ATWC) in Palmer, Alaska, serves as the regional TsunamiWarningCenter for Alaska, British Columbia, Washington, Oregon, and California. The Pacific Tsunami Warning Center (PTWC) in Ewa Beach, Hawaii, serves as the regional TsunamiWarningCenter for Hawaii and as a national/international warning center for tsunamis that pose a Pacific-wide threat. (NTHMP, 2003)

An important part of the effort to reduce the impacts of tsunamis in these high-risk areas has been public education and community preparedness. Early efforts included the identification and marking of public evacuation routes, teaching supplies provided to schools, and literature distributed to the population at large. However, a more comprehensive program was needed, and the NOAA National Weather Service (NWS) developed the TsunamiReady program to address this need.

The TsunamiReady Program

TsunamiReady is an initiative that promotes tsunami hazard preparedness as an active collaboration among Federal, state and local emergency management agencies, the public, and the NWS tsunami warning system. This collaboration functions for the purpose of supporting better and more consistent tsunami awareness and mitigation efforts among communities at risk. Through the TsunamiReady program, NOAA’s National Weather Service gives communities the skills and education needed to survive a tsunami before, during and after the event. TsunamiReady was designed to help community leaders and emergency managers strengthen their local tsunami operations. (NOAA, N/D)

The TsunamiReady program is based on the NWS StormReady model (which can be viewed by accessing The primary goal of TsunamiReady is the improvement of public safety during tsunami emergencies. As stated above, TsunamiReady is designed for those coastal communities that are at known risk of the tsunami hazard (tsunami hazard risk maps can be seen by accessing

Traditionally, tsunami hazard planning along the U.S. West Coast and Alaska has been widely neglected because of the statistically-low incidence of tsunamis. As result of that perceived ‘rarity’, many individuals and communities have not worked to become as "tsunami-aware" as they could and should be. Among those communities that are considered to be prepared, that level of exhibited preparedness varies significantly (NWS, N/D).

However, as is true with the earthquakes and other rare events that generate tsunamis, avoidable casualties and property damage will only continue to rise unless these at-risk communities become better prepared for tsunamis. As previously mentioned, readiness involves two key components: awareness and mitigation. Awarenessinvolves educating key decision makers, emergency managers, and the public about the nature (physical processes) and threat (frequency of occurrence, impact) of the tsunami hazard, while mitigationinvolves taking steps before the tsunami occurs to lessen the impact (loss of life and property) of that event when it does occur. Like is true with earthquakes, there is no question tsunamis will strike again.

The National Weather Service (NWS) TsunamiReady program was designed to meet both of the recognized elements of a useful readiness effort: it is designed to educate local emergency management officials and their public, and to promote a well-designed tsunami emergency response plan for each community.

Program Objectives