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02 Integrated Emergency Management
Summary
This chapter describes:
- The principle of Integrated Emergency Management ( IEM) and its application to civil contingencies planning.
- The development of flexible response planning based on responders' day to day activities defined as functions under the CCA.
- Five activities to strengthen the integrated approach, covering from risk assessment to recovery.
2.1 Scottish emergency planning and response is based on the principles of Integrated Emergency Management ( IEM). Under IEM both preparation and response to emergencies should focus on the effects of events rather than their causes. Preparation and response should be undertaken as an extension of a local responder's normal day to day activities, defined as its functions in the Civil Contingencies Act. For, example local authorities' social services look after the needs of people daily and can utilise their skills and expertise in that function in response to emergencies. The underlying aim of IEM is to develop flexible and adaptable arrangements that will enable effective joint response to any crisis whether foreseen or unforeseen. It is intended to build the resilience of communities in Scotland to deal with any emergency and, where necessary, to make specific arrangements to deal with particular risks.
2.2 Civil protection arrangements need to be integrated both within and between organisations. They should be an integral part of departmental and organisational planning. Local responders must work individually and in collaboration with each other on certain key activities in areas of common interest.
2.3 The following five activities strengthen an integrated approach.
Assessment
2.3.1 Risk assessment is both an integral component of risk management and the first step in the emergency planning process. It is important that local responders have a realistic understanding of the hazards and threats for which they should be prepared.
2.3.2 Through their Strategic Co-ordinating Group, all local responders should share their assessment of local risks and integrate their planning for specific risks. Further guidance on the duty under the Act and the risk assessment process will be contained in Section 2 and 3 of Preparing Scotland.
2.3.3 Risk assessment is also an important activity during response to an emergency to advise managers on matters such as risk reduction, health and safety and potential secondary effects of the emergency.
Prevention
2.3.4 Prevention requires measures to be taken to eliminate, isolate or reduce identified risks as far as is reasonably practicable. Preparing Scotland deals with carrying out functions in such a way as to prevent an emergency which is about to occur or reduce its impact. For example, public health organisations act to protect people at risk of pandemic 'flu and work with their partners to prepare for the impacts of an outbreak.
2.3.5 It is beyond the scope of the Civil Contingencies Act or Preparing Scotland to deal with other measures or undertake remedial works (for example, flood defences) which might prevent a possible emergency at some future date.
Preparation
2.3.6 Preparation for response to emergencies involves planning, training, exercising and informing people. Planning takes place at different levels to provide the basis for an effective integrated response.
2.3.7 The key to effective planning depends on the engagement and support of the people who will implement the arrangements. Management arrangements should be simple and enable a co-ordinated response to deal with the effects of any emergency.
2.3.8 The framework upon which specific contingency plans are made should build upon the generic planning of all responders. Strategic Co-ordinating Groups are expected to establish local emergency management co-ordination structures for which guidance will be given in Section 3 of Preparing Scotland.
2.3.9 Planning should ensure that individuals, organisations and groups of organisations can use their skills to meet the urgent needs of communities at times of crisis.
2.3.10 Organisations should plan to ensure that, when an emergency occurs, they are able to provide critical services for the community, perform their functions in support of the combined response to emergencies and support staff engaged in response.
2.3.11 Management of activity in response should be based on day to day roles. However, the need for rapid decision making and co-ordination across a number and range of organisations may require the establishment of crisis management structures. Those structures may be planned at a local level through Strategic Co-ordinating Groups, for Scotland through the work of the Scottish Emergency Co-ordinating Committee and for the UK through the Cabinet Office Civil Contingencies Secretariat.
2.3.12 There needs to be clear ownership and commitment to contingency planning from the senior management of all organisations with a part to play. Contingency plans are not simply the domain of emergency planners, they should be seen as an integral part of overall management responsibilities and corporate governance.
2.3.13 Nonetheless, personnel will require additional training to prepare them for the special circumstances experienced during an emergency and for any extra dimensions to their role.It is pointless making preparations if people are unaware of them and are not trained to perform in accordance with them. It is therefore essential to involve those who will have to respond to any emergency in planning, training and awareness raising. Guidance is given on duties to train and exercise under the Act. Section 6 will contain details of programmed exercises and training events in Scotland.
Response
2.3.14 The guidance stresses the importance and objectives of the combined response to emergencies. It builds on current arrangements and seeks to ensure a degree of consistency across Scotland. It highlights the need for flexible and adaptable planning.
2.3.15 The initial response to an emergency aims to deal principally with immediate effects. Rapid implementation of arrangements for collaboration, co-ordination and communication is vital.
2.3.16 With sudden impact emergencies (explosions, major transport accidents, flooding) the initial response is normally provided and led by the emergency services supported by other local public bodies and voluntary organisations. Experience of slower onset or less localised emergencies (health incidents and outbreaks, fuel protests, foot and mouth disease) has shown that other organisations may well need to lead even in the early stages.
2.3.17 Guidance in Section 2 will address the duties on Category 1 responders to plan for emergencies. Section 3 will consider good practice and give practical examples of ways in which a combined response can be planned.
Recovery
2.3.18 Recovery addresses the human, physical, environmental and economic impact of emergencies. Recovery is not a discrete element of emergency preparation and response, it should be an integral part of the combined response as actions taken at all times can influence the longer term outcomes for communities.
2.3.19 Experience of emergencies in Scotland has demonstrated the importance of involving the community in its own recovery. Effective communication and support for self-help activities are important considerations for responders.
2.3.20 Guidance on preparation for recovery will be considered both as good practice in Section 3 and when the integration of arrangements is featured in Section 4.
2.4IEM is aligned with the aim of building greater overall resilience in the face of a broad range of disruptive challenges.
2.5 Certain key features will be common to an integrated approach to preparation and response:
- The core of the initial response will normally be led by the emergency services working in partnership with other local responders
- The basic objectives of the integrated response will be similar on most occasions (saving life, property, protecting the environment, mitigating the impacts of an emergency, etc.)
- The same basic management structure will be applicable
2.6 Planning based on common features (roles, responsibilities and management structures) will assist in:
- the development of multi-agency emergency plans
- the response to unforeseen events
- the extendibility of the planned response to events of a scale that is unforeseen
2.7 Each responder should plan both to perform its functions and to integrate its plans with local joint arrangements for co-ordination and response.
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