Module 6 Compilation
The following are all pages from this module linked as a single file
suitable for printing or saving as a PDF for offline viewing. Please note
that this compilation will not include popup pages, and some
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Module 6 Study Guide and Deliverables - The
Federal Emergency Management System
Lecture 11 - FEMA and NIMS
Lecture 12 - The Stafford Act and Recovery Process
Readings:
Module 6 Online Content
Gordon textbook, chapter 5 (Recovery) pages 95–117
Declaration Process Handout
Stafford Act
Defense Production Act
Sandy Recovery Improvement Act
Disaster Recovery Reform Act
Federalizing Disasters Weakens FEMA
How Do We Deal With This Mess?
Discussions:
Module 6 posts due by Monday, December 13th at 11:59 PM ET
Assignments:
Contagious Disease Outbreak Preparedness Summary due by Monday,
December 13th at 11:59 PM ET
Live
Tuesday, December 7th at 7:00 PM EST - NEIDL Putting the Pieces
Classroom:
Together
Module 6 - Learning Objectives
msm_ad612_13_su2_smorash_w06 video cannot be displayed
here
By the end of this lecture you will be able to:
Explain the role of FEMA.
Identify NIMS and its role in emergency management.
Describe the Emergency Declaration Process.
Describe the Stafford Act and the recovery process.
Lecture 11 - Federal Emergency Management Agency
Back in Week One, you were presented with the current organizational structure of FEMA and its staff. The organization has come under a lot of fire for
its response to Hurricane Katrina. But when all is said and done, FEMA is the place where the states go when they have no place else to go for
manpower, resources, training and relief.
"FEMA's mission is to support our citizens and first responders to ensure
that as a nation we work together to build, sustain, and improve our
capability to prepare for, protect against, respond to, recover from, and
mitigate all hazards."
FEMA's mission statement sums it up rather neatly. Every state and local
emergency management agency and director lives by it. It all goes back
to that Emergency Management Cycle—Mitigation, Preparedness,
Response and Recovery.
You should visit the FEMA website at www.fema.gov for more information
on FEMA's capabilities.
The changes in FEMA since September 11, 2001 have been profound in ways most emergency managers could not have envisioned in the 1990s. Back
then we were just getting started in the Domestic Preparedness Program for CBRNE and Incident Command System Training.
The creation of the Department of Homeland Security was not even a dream. The adoption of a national incident management system and ICS as
mandatory criteria for federal, state and local governments was something some of us wished for, but never expected. Is it a good thing or not? That
debate continues. Please review the handout from the Heritage Foundation. It's definitely a different train of thought on the future of emergency
management. What do you think? It's one of this week's discussion topics.
National Incident Management System
In a memorandum dated March 1, 2004, then Secretary of Homeland Security Tom Ridge carried out the direction of HSPD-5 and implemented the
National Incident Management System (NIMS) to manage ICS. Note that HSPD-5 requires "all Federal departments and agencies to adopt the NIMS." It
further requires "Federal departments and agencies to make adoption of the NIMS by state, tribal and local organizations a condition for Federal
preparedness assistance (grants, contracts and other activities) beginning in Financial Year 2005." Since this will eventually impact your local
community, it could also directly or indirectly impact you as a member of a community. That's neither good nor bad; it just is what it is.
You may have noticed earlier, in the mitigation plan legislation, that federal funding for mitigation grants, plans and public assistance was directly
linked to the requirement that a state completed a mitigation plan as outlined in the federal legislation. While the federal government could not
routinely require states and communities to develop mitigation plans or implement the NIMS system, requiring such plans as a condition of eligibility
for receiving federal funding usually works. Many states and communities receive beneficial and needed funding through federal programs.
Note that ICS is the core, and the National Incident Management System (NIMS) is the system that wraps the other elements around it, including
training, exercises, courses, certification, resource typing and management, administration, standardization, technology, education and public
awareness, protocols, and compliance.
NIMS Overview
Note that the original HSPD-5 was issued on February 28, 2003, and the NIMS system was implemented by DHS on March 2004. It took a year—not
really a long time considering the various drafts, reviews and vetting that occurred among federal, state and local entities and countless other public
and private organizations that are stakeholders in Emergency Management.
The Overview discusses the major components of NIMS, which are good to keep in mind in organizing your mental image of the system. Each of the
components is discussed in a separate section.
Command and Management
Scalability
Preparedness
Resource Management
Communication and Information Management
Supporting Technologies
Ongoing Management and Maintenance
Command and Management
A basic principal of emergency management is that all events occur locally, regardless of how widespread an incident might be. For instance, though a
hurricane may impact all communities in a state, it is always a local resource that initially responds in each community. Local first responders are just
that—they are the first to respond to an incident locally. The larger the area of an event's impact, the longer it will take for assistance to arrive and the
scarcer and more scattered the resources will become.
Scalability
A crucial and practical element of ICS is that it is capable of being utilized by a State Trooper arriving alone at a traffic incident. He or she assumes all
the roles—Incident Commander, Operational Branch, Logistics, Planning—and begins to hand over responsibilities to other responders as they arrive.
ICS can also be scaled up to manage significantly larger incidents or events, such as widespread flooding or public events such as the Olympics. The
terminology, procedures and organization can contract or expand as needed by the situation.
Pay particular attention to the Management Characteristics starting on page 9 of Gordon—common terminology, span of control, and resource
management, etc. All these characteristics are logical, practical, and proven through experience and use to be solid procedures. The NIMS solidifies and
standardizes these characteristics through its written documentation, training, and education. While management systems seem to come and go and
vary through different decades and societal changes, these characteristics have remained basic elements particularly suited to managing incidents and
events. Many corporations and organizations use a form of ICS in their routine organizational structure.
Preparedness
Preparedness is a continual ongoing effort at all levels. Obviously the intent is to be ready for any event, when and where it occurs. And to reiterate,
it's essential to prepare for the consequences of all hazards, not just terrorism. Always keep in mind that in the United States over 200 disasters and
emergencies have occurred that are not terrorist-related since the 9/11 terrorist attacks. Emergency Management's focus is to prepare for the
consequences of an event, which means preparedness for any and all events and/or hazards.
No single plan is ever going to cover all contingencies, consequences and events. Another elemental mantra of military planning is that all plans
generally tend to become muddled the moment enemy opposition is first encountered. The effort made to develop a written plan, the partnerships,
linkages, and input from everyone involved is what's essential when it is time to respond. The time to meet other key people and organizations is not
the day on which an event occurs. Relationships, knowledge, and trust need to be already in place, and planning is the function that achieves that goal.
Exercising a plan
Exercising a plan is a key element. No matter how well thought-out,
designed, or discussed a plan may be, if it hasn't been exercised and
tested, there's no guarantee it will work.
Exercises test plans, but by definition there is a great deal of artificiality in them. For safety and cost reasons, full participation and activation are often
not done during exercises. Large movement of personnel and equipment is inherently a dangerous operation, and no one wants to incur injury, loss, or
excessive costs during an exercise. But exercises are still the only way to at least partially test key aspects of plans. Usually surprise exercises are not
a surprise to the people involved. Oftentimes hundreds of elements and equipment pieces are pre-positioned well before the start of an exercise. If the
intent of the plan is to evaluate response time and movement capability, then a valid criticism can be made of pre-positioning. If other elements of the
plan are the primary purposes for the exercise, then pre-positioning could be, and usually is, acceptable. It's important to keep in mind which elements
of a plan you intend to test.
Resource Management
While not the most exciting part of Emergency Management, Resource Management is a key element. Equipment and personnel have to be delivered to
the event; and they must be the RIGHT equipment and personnel. The logistics of keeping track of the movement of these resources are mindboggling, not to mention the difficulties of applying them to new situations, accounting for them, replacing them, safeguarding them, recovering them
if lost, and paying for them.
Just the difficulty in "resource typing"—standardizing the identification and name of resources so that when you ask for a specific type of equipment,
you get what you ask for—is a complex problem. A brush truck in Kentucky may not be the same thing as a brush truck to fire departments in
California. The number of people who make up a response team in Vermont may not be the same as in New Mexico.
Click on the following link to FEMA's "Resource Management, Resource
Typing" page to learn more about Mutual Aid and Resource Management.
Scroll through the article to open the National Mutual Aid Glossary of
Terms and Definitions. Also open any of the items under Health and
Medical Resources to see how teams are made up and typed. Open
several of the resource listings to become familiar with how equipment
and personnel are typed and classified.
Communication and Information Management
Communications is always a concern for Emergency Management. It is probably the most common problem area identified in after-action reports. With
so many people involved, responding across various agencies and many times across difficult geographical sites that can disrupt transmissions, it's not
surprising that communication is so commonly a concern.
The 9/11 Commission Report identified the communication difficulties faced during the attacks and response phase. In addition to technology
differences, frequency mix-ups, and human error, there can also be turf issues and instances of people or organizations simply not wanting to
communicate even when the technological capability exists.
It is important to manage information and knowledge and to ensure that appropriate information is disseminated within and between the organizations
and personnel involved. This ensures that all involved have a realistic awareness of the event. It is also important to make certain that national
agencies are aware of events and situations going on in states and communities.
The buzz word "interoperability" is usually used to describe interoperable technology; but don't forget the importance of "interoperability" between
people and organizations on a human level. People and organizations have to be willing to talk with each other; they have to have protocols in place;
and they have to set up linkages and partnerships before events occur.
Supporting Technologies
The NIMS system is also designed to ensure that standardization is maintained to provide current and interoperable user-friendly technology. Anyone
who has bought a computer, and is current with what's happening in technology, is aware of how soon one's newly purchased machine is eclipsed by a
faster, smaller, cheaper, and newer model or competitor. Imagine how tough it is to ensure that everyone involved in emergency management remains
updated with the best technology, but still interoperable—that new technologies still communicate with the old, that funding issues are resolved when
volunteer, professional, rich, well-off, economically poor or penniless participants come from innumerable agencies, communities, states, public and
private institutions. It is a really challenging task.
The one area in the field of emergency management where we see increased benefits is in technological advances. It was not long ago when we were
impressed that we could take a picture at the scene of an emergency, send it via email to a command center and have it displayed on incident
management software for a better common operational picture (literally as well as figuratively) for our incident commanders. Today, we're streaming
video, using social media platforms and the cloud to send and store real time information around the words. Emergency Managers were receiving realtime information from Haiti during the earthquake.
Today, we see disaster prediction based on advanced software modeling programs that can simulate deteriorating climate and weather conditions. We
all benefit from satellite pictures and projections of storm systems that allow emergency managers to send out emergency notifications quickly from
NOAA Severe Weather Centers. You will not find many places that do not operate a mass-notification system to warn residents, employees, students
and staff of impending emergency situations.
No one knows what the next leap in technology will bring us, but as George Orwell once said, "Each generation imagines itself to be more intelligent
than the one that went before it, and wiser than the one that comes after it." What will the next ‘big' thing be to make us safer?
Ongoing Management and Maintenance
The NIMS Integration System is the management and maintenance entity of the system; its responsibilities are clearly outlined with the intention of
ensuring that appropriate revisions and updates keep NIMS current and viable.
In the real world, the Integration Center is operational, but it is not fully staffed at this time, resulting in some timelines not having been fully
implemented. While some timelines have been delayed, the will and intention for bringing NIMS to full implementation remains.
NIMS is at the core of the national response system; it is intended to link the national, state, community and family Emergency Management functions
into a seamless partnership.
Now we'll leave NIMS and begin to look at the next step in the progression from ICS to NIMS to the NRF (National Response Framework).
National Response Framework
The National Response Framework (NRF) presents the guiding principles that enable all response partners to prepare for and provide a unified national
response to disasters and emergencies. It establishes a comprehensive, national, all-hazards approach to domestic incident response. The National
Response Plan was replaced by the National Response Framework effective March 22, 2008.
The National Response Framework defines the principles, roles, and structures that organize how we respond as a nation. The National Response
Framework:
describes how communities, tribes, states, the federal government, private-sectors, and nongovernmental partners work together to coordinate
national response;
describes specific authorities and best practices for managing incidents; and
builds upon the National Incident Management System (NIMS), which provides a consistent template for managing incidents.
Information on the National Response Framework including documents, annexes, references and briefings/trainings can be accessed from the NRF
Resource Center.
Lecture 12 - The Robert T. Stafford Disaster Relief and Emergency
Assistance Act
The Robert T. Stafford Disaster Relief and Emergency Assistance Act (the Stafford Act) is the principal legislation governing the federal response to
disasters within the United States. The act spells out—among other things—how disasters are declared, the types of assistance to be provided, and the
cost sharing arrangements between federal, state, and local governments.
The Stafford Act enables the Federal Government to assist States affected by a disaster to expedite the rendering of aid and emergency services as
well as the reconstruction of devastated areas. The Stafford Act is the United States Federal law which constitutes the statutory authority for most
Federal disaster response activities especially as they pertain to FEMA and FEMA programs.
This Act provides a framework for continued disaster relief and provides the authority for FEMA’s role in managing Federal disaster assistance. A key
condition of the Act is that State, tribal, and local governments have the primary responsibility to respond to a disaster. Federal assistance is designed
to supplement the efforts and available resources of State, tribal, and local governments, as well as voluntary relief organizations in alleviating the
damage, loss, hardship, or suffering resulting from a disaster. FEMA may task any Federal agency, with or without reimbursement, to provide
assistance to State, tribal, and local disaster efforts in a declared disaster.
The Stafford Act was signed into law November 23, 1988, amending the Disaster Relief Act of 1974 (PL 93-288). Congress amended the Disaster Relief
Act multiple times, including by passing the Disaster Mitigation Act of 2000 (PL 106-390), and, again in 2006, with the Post-Katrina Emergency
Management Reform Act (PL 109-295) and the Pets Evacuation and Transportation Standards Act (PL 109-308) and yet again (PL 93-288) in August
2007.
Post Katrina Emergency Management Reform Act
The Post-Katrina Emergency Management Reform Act (PKEMRA) of 2006 amends the Stafford Act and expands FEMA’s role for disaster response and
preparedness as well as providing the authority for the Strategy. As authorized by PKEMRA, the Federal Government may provide technical and
advisory assistance to State and local governments for recovery and planning activity. PKEMRA calls for the FEMA Administrator, in coordination the
National Advisory Council, the National Council on Disability, and other Federal agencies, to develop, coordinate, and maintain a disaster recovery
strategy.
Defense Production Act
FEMA exercises the Defense Production Act (DPA) to support the DPA authority and functions of the FEMA Administrator and the FEMA Associate
Administrator for the Office of Policy and Program Analysis (OPPA). The support focuses on promoting effective use of DPA authorities by FEMA and
other DHS components and providing coordination and guidance for the DPA plans and programs of federal departments and agencies.
Sandy Recovery Improvement Act of 2013
On January 29, 2013, President Barack Obama signed into law the Sandy Recovery Improvement Act (SRIA) of 2013 and the accompanying Disaster
Relief Appropriations Act, 2013. In many ways, the passage of SRIA represents the most significant legislative change to the Federal Emergency
Management Agency’s (FEMA) substantive authorities since the enactment of the Robert T. Stafford Disaster Relief and Emergency Assistance Act.
The law authorizes several significant changes to the way FEMA may deliver federal disaster assistance to survivors. This page provides an overview of
the provisions of the Sandy Recovery Improvement Act (SRIA) of 2013 as well as the status of FEMA's implementation.
Disaster Recovery Reform Act of 2018
On Oct. 5, 2018, President Trump signed the Disaster Recovery Reform Act of 2018 into law as part of the Federal Aviation Administration
Reauthorization Act of 2018. These reforms acknowledge the shared responsibility for disaster response and recovery, aim to reduce the complexity of
FEMA, and build the nation’s capacity for the next catastrophic event.
The law contains 56 distinct provisions that require FEMA policy or regulation changes for full implementation, as they amend the Robert T. Stafford
Disaster Relief and Emergency Assistance Act. This page provides an overview of each provision.
In October 2019, FEMA published the Disaster Recovery Reform Act (DRRA) Annual Report. This report provides an overview of the DRRA, highlights its
alignment with FEMA’s strategic goals, and describes FEMA’s efforts to implement the law.
Recovery Process
By far, the longest, least glamorous, most forgotten and least exercised phase of emergency management is Recovery. The response forces and
television crews have packed up and gone home. People are tired and hungry and thirsty. The casualties are being treated or laid to rest.
And now the real work begins!
Once the disaster/emergency is brought under control, recovery begins the process of restoring the community or the affected population and
infrastructure back to normal—and ideally restoring them to a better level than existed pre-disaster. It's essential that individual and family livelihoods
be restored as rapidly as possible. The longer livelihoods remain affected or at risk, the harsher the impact on people—and the more the consequences
of the disaster spread. Infrastructure such as medical and safety facilities, schools, housing, transportation, government, business, industry, etc., all
must be restored to at least the pre-disaster level for people to recover.
We’ve included a reading here titled “How Do We Deal with This Mess? A Primer for State and Local Governments on Navigating the Legal Complexities
of Debris Issues Following Mass Disasters”. This is a very insightful look into some of the problems emergency managers, and victims of disasters, face
during the recovery period.
Module 4 Compilation
The following are all pages from this module linked as a single file
suitable for printing or saving as a PDF for offline viewing. Please note
that this compilation will not include popup pages, and some
animations or images may not work.
Module 4 Study Guide and Deliverables - Incident
Command System, Emergency Management Plan
and Program
Lecture 7 - Incident Command System
Lecture 8 - Emergency Management Plan and Program
Readings:
Module 4 Online Content
Gordon textbook, chapters 3 & 4
Incident Command System, Unit 1
Planning PowerPoint Presentation
Discussions:
Module 4 posts due by Monday, November 29th at 11:59 PM ET
Assignments:
Pandemic Mitigation Summary due by Monday, November 29th at 11:59
PM ET
Live
Tuesday, November 23rd at 7:00 PM EST - Incident Command System
Classroom:
Module 4 - Learning Objectives
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By the end of this lecture you will be able to:
Explain ICS
Describe the value of the Planning Process within the ICS
Identify the content and the difference of an emergency management plan and emergency management program
Lecture 7 - Incident Command System
The Incident Command System (commonly referred to as "ICS") is an organizational tool for responding to disaster/emergencies and/or for managing
events.
ICS Organization
CREDIT: http://www.training.fema.gov/EMIWeb/IS/ISCResources/assetts/reviewMaterials.pdf
The development of ICS began in the west in the 1970s as a response to wildfires that crossed community, county, state and even national borders.
With such a vast area and the involvement of so many organizations with varied experiences, backgrounds and ways of doing things, it became obvious
that common terminology, procedures and processes had to be developed. It was essential to develop a standardized system to provide effective
coordination among the varied organizations. ICS was that system. Using the experience gained and adapting successful best practices, ICS has
developed into the system that has spread throughout the nation, used by most fire departments, police, NASA, and the U. S. Coast Guard, etc. It has
recently been mandated for use by all federal agencies, and most states and many businesses and industries have begun using it. One of the key
features of ICS (in addition to common terminology, resource typing, standardized forms and procedures) is its scalability. It can be used by a Highway
Patrol Officer arriving at a multi-vehicle accident by herself or by the organizing agencies for a complex event like the Salt Lake City Olympics
spreading over vast areas and involving thousands of personnel and hundreds of organizations.
Emergency Management Cycle
Identifies,
assigns,
and
supervise
the
Operations
resources
Section
needed to
accomplish
the
incident
objectives.
Develops incident
Incident
Commander
objectives and
Tracks
approves resource
resources
orders and
demobilization.
Planning
Section
and
identifies
resource
shortages.
Logistics
Section
Orders
resources.
Procures
and pays
Finance/Admin for the
Section
resources.
Reports
costs.
FEMA has developed a five-unit, 168-page course for ICS. But for our purposes, completion of Unit 1, "Introduction to ICS" will provide us with
Please read the "Introduction to ICS" Unit
It's advisable to take the complete five-unit course online at a later date. That will provide much more in-depth information along with the opportunity
to receive a certificate of completion from the Emergency Management Institute. (It will also result in your name being entered into the national data
bank of people who have completed basic ICS instruction.) But again, for our purposes, complete only the Unit 1 "Introduction to ICS" in your package.
This will provide a good basic knowledge that we will be building on and referring to during the remainder of the course.
The Planning Process within ICS
Well, there you have it from the Commander-in-Chief. The Incident Command System revolves around the Incident Action Plan (IAP).
It was recognized early in the development of the ICS that the critical factor of adequate planning for incident operations was often overlooked or not
given enough emphasis. This resulted in poor use of resources, inappropriate strategies and tactics, safety problems, higher incident costs, and lower
effectiveness.
Those involved in the original ICS development felt that there was a need to develop a simple but thorough process for planning that could be utilized
for both smaller, short-term incidents and events, and for longer, more complex incident planning. The planning process may begin with the scheduling
of a planned event, the identification of a credible threat, or the initial response to an actual or impending event. The process continues with the
implementation of the formalized steps and staffing required to develop a written Incident Action Plan (IAP).
The primary phases of the planning process are essentially the same for the Incident Commander who develops the initial plan, for the Incident
Commander and Operations Section Chief revising the initial plan for extended operations, and for the incident management team developing a formal
IAP, each following a similar process. During the initial stages of incident management, planners must develop a simple plan that can be communicated
through concise oral briefings. Frequently, this plan must be developed very quickly and with incomplete situation information. As the incident
management effort evolves over time, additional lead time, staff, information systems, and technologies enable more detailed planning and cataloging
of events and “lessons learned.”
Planning involves:
Evaluating the situation.
Developing incident objectives.
Selecting a strategy.
Deciding which resources should be used to achieve the objectives in
the safest, most efficient and cost-effective manner.
The Planning “P”
The Planning "P" shows the planning process for one operational period.
The Plannin "P"
While it might be oral or a formal written document, the IAP is a critical part of the overall management of the incident, and it both ensures that
personnel understand the objectives for their shift and allows for a unity of effort through action planning. At the state level, the incident action plan
should address the operational objectives/challenges faced by the local/county emergency operations centers. This process is very similar to the IAP
development used in field operations; however, at a higher operational level, the IAP for the state EOC is much broader in scope. The Planning P
process developed by the U.S. Coast Guard, and used in NIMS/ICS, is the basis for key meetings.
To ensure that the Planning P meets the needs for the emergency operations center, the Planning P for EOCs has been modified and adopted by many
local and state emergency management organizations.
Lecture 8 - The Emergency Management Plan and the Program
Simply put the Plan is a part of the Program. While all hazard specific plans have an emergency management cycle, a Comprehensive Emergency
Management Program has the same emergency cycle we talked about in the first module of this course.
Emergency Management Plan
An emergency management plan outlines concepts of operations for coordinated efforts by local officials, emergency responders, other government
departments, volunteer groups, and other individuals or agencies to perform emergency functions. It has been repeatedly demonstrated that
preplanning emergency operations saves time in getting operations underway, facilitates integrated effort, and helps ensure that essential activities are
carried out efficiently. When an emergency plan exists and local officials and emergency responders are familiar with it, they have a common guide for
action.
A properly prepared emergency management plan provides a concise statement of the emergency responsibilities of local officials, departments, and
agencies, as well as descriptions of the emergency functions that volunteer groups, industry, schools, hospitals, and other entities have agreed to
perform so that those individuals who must respond to an emergency have a clear understanding of what they are supposed to do and what others will
be doing.
An emergency management plan is a document that:
Describes the legal basis for emergency management activities.
Outlines lines of authority and organizational relationships during emergency situations, and describes how actions will be coordinated.
Includes a concept of operations for responding to and recovering from emergency situations.
Assigns responsibility to organizations and individuals for carrying out specific emergency actions to protect lives and property.
Identifies personnel, equipment, facilities, supplies, and other resources available within the jurisdiction or by agreement with other jurisdictions
for use during response and recovery operations.
Outlines procedures to request assistance from the state if local resources are insufficient to deal with an emergency situation.
Identifies mitigation actions to reduce the threat posed by a known hazard.
Emergency Management Program (EMP)
A comprehensive EMP enhances a jurisdiction’s ability to manage such emergency events by identifying its vulnerabilities to hazards and coordinating
mitigation and preparedness activities to address those vulnerabilities. This will enhance the jurisdiction’s capability and capacity to conduct emergency
response and recovery operations. The program should be comprehensive, permanent, sustainable, and based on the jurisdiction’s existing systems
and processes.
Emergency Management Programs have four essential components:
Hazard Vulnerability Analysis (HVA): Identifies and prioritizes the hazards and vulnerabilities that confront a jurisdiction.
Incident Management System (IMS): Formalizes the management structure for emergency operations within the jurisdiction.
Emergency Operations Plan (EOP): Guides emergency response and recovery activities.
Exercise Program: Creates a cycle of organizational learning and improvement for all elements of the EMP.
The Emergency Management Program supports the Emergency Management Cycle as seen in the chart below:
Emergency Management Cycle
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