STANDARD TWO
THE LOCAL CIVIL PREPAREDNESS DIRECTOR/COORDINATOR
DISCUSSION
The selection, development, and retention of a competent, professional local civil preparedness Director or Coordinator is of major importance to all jurisdictions. With such a professional, jurisdictions will be better able to attain an adequate level of readiness to conduct lifesaving operations in major emergencies, whether peacetime or attack-caused.
This Standard outlines the responsibilities of the position, and establishes criteria for the employment of local Directors/Coordinators, for their training, and for appropriate salaries.
The fact that this Standard describes the functions and responsibilities of a professional Director/Coordinator does not necessarily mean that this should be a person who has no other duties. Larger jurisdictions will require a full-time professional, but in smaller jurisdictions, civil preparedness may not be a full-time job, just as many other functions of government do not require full-time employees. However, local Director/Coordinator duties should be performed by a competent and professionally qualified person who:
(1) will be able to function on a full-time basis as a Director/Coordinator during periods of emergency; (2) has received adequate training; (3) has the confidence and support of the elected heads of government; and (4) can work effectively with the other agencies and services in the jurisdiction.
STANDARDS
1. Position and Responsibilities of the Local Civil Preparedness Director/Coordinator
a. Position - Each jurisdiction shall be served by a professionally competent local civil preparedness Director/Coordinator, who shall report directly to the chief executive, or whomever the chief executive designates. Where two or more jurisdictions support a civil defense agency under joint- action arrangements, the Director/Coordinator shall report directly to each of the chief executives, or to a council of chief executives or similar group, as established by the participating jurisdictions.
b. Responsibilities in Non-Emergency Periods - The essence of the Director/Coordinator's job in non-emergency periods is to act on behalf of the chief executive to build readiness for coordinated operations in both peacetime and attack-caused emergencies. This requires working with the operating departments of local government, with non-governmental groups, and with the public. These are primarily staff, not 'command," functions. Where the Director/Coordinator serves un- der joint-action arrangements, the responsibilities described below apply to each participating jurisdiction.
Major responsibilities of the local Director/Coordinator include:
(1) Taking the lead in coordinating the development of emergency preparedness, e.g.:
(a) Development of local government emergency plans outlining which governmental forces and supporting groups will do what, under various emergency contingencies, by coordinating the planning of all departments and groups with emergency missions (as out- lined in Standard Three).
(b) Development of an Emergency Operating Center (EOC) facility (or facilities, as required), as well as EOC staffing and internal procedures to permit key executives to control coordinated operations by local forces, under emergency conditions (as outlined in Standards Four and Six).
(c) Arranging for exercises to give local officials practice in directing coordinated operations under simulated emergency conditions (as outlined in Standard Six).
(2) Developing unique skills and capabilities not found in existing departments of government (e.g., development of radiological monitoring, warning, damage assessment, and shelter systems, including trained personnel; and assisting police, fire, and other operating departments with radiological defense and other training needs (as outlined in Standards Four and Five).
(3) Providing or arranging for training needed by the public at large (as outlined in Standard Five).
(4) Administering the jurisdiction's civil preparedness program.
The test of the Director/Coordinator who is doing the job well can be briefly stated: Is he (or she) taking the lead effectively in developing local capabilities to conduct coordinated operations in extraordinary emergencies, making maximum use of all public and private resources available to local government?
To be an effective Director/Coordinator requires two things: (1) The necessary personal qualities, and professional training and expertise; and (2) the active support of the chief executive and of the local governing body. The chief executive is responsible for all emergency preparations, and this responsibility cannot be delegated. But, the Director/Coordinator should be delegated the authority needed to develop emergency readiness, working with the heads of key operating departments that have emergency responsibilities.
The Director/Coordinator can, and desirably should, assist the chief executive and local government in additional areas, growing out of his responsibilities in building emergency preparedness. For example, he may develop expertise in procedures and criteria for Federal-assistance programs other than the civil preparedness program, and be able to assist local department heads in applying for assistance in such areas as law enforcement, highway safety, communications procurement, or emergency medical services.
c. The Director/Coordinator's Responsibilities During Emergencies - During a peacetime or attack-caused emergency, the chief executive is in overall command. The sheriff or chief of police, fire chief, and other department heads command the operations of their forces. Hospital and news media staffs, and other groups with emergency responsibilities, carry out their functions in coordination and cooperation with the emergency operations of governmental forces.
During emergencies, the Director/Coordinator acts as principal advisor or aide to the chief executive on local government emergency operations. His major responsibility is to assure coordination among the operating departments of government (and with higher and adjacent governments), primarily by seeing that the Emergency Operating Center functions effectively. He also assists the chief executive in assuring execution of operations, plans, and procedures required by the emergency.
2. Civil Preparedness Staffing for Jurisdictions of Various Sizes
a. Local Director/Coordinator - The local civil preparedness Director/Coordinator must be available for emergency duty 24 hours a day, 7 days a week, if or when an emergency occurs. The amount of effort he (or she) needs to invest in developing emergency readiness depends upon the amount of work to be done, and this is closely related to the size of the jurisdiction. Minimum standards for employment of a Director/Coordinator are as follow, subject to reasonable modification to meet local needs and situations:
(1) A full-time paid Director/Coordinator shall be employed (a) in all cities of approximately 25,000 population or greater; (b) in all counties of approximately 15,000 population or greater; and (c) in all joint-action groupings of two or more jurisdictions.
(2) A paid Director, working at least half-time, shall be employed (a) in cities between approximately 5,000 and 25,000 population; and (b) in counties between approximately 5,000 and 15,000. In both instances, however, the employment of a full-time Director/Coordinator is strongly recommended. The half-time Director/Coordinator shall be a person also serving the local government in some other non-elective paid capacity (with total employment being full-time), unless otherwise approved by the State.
(3) Jurisdictions of less than approximately 5,000 population shall employ a Director/Coordinator meeting each of the following criteria, except if specifically waived by the State on a case-by-case basis:
(a) The Director/Coordinator shall serve local government in some other, non-elective paid capacity (total employment being full- time or as near thereto as feasible).
(b) As a minimum, the Director/Coordinator shall work no less than 8 hours per week on civil defense and disaster preparedness duties, and as much additional as required to conduct an adequate program as described in these Standards.
(c) The Director/Coordinator shall be paid a salary commensurate with the extent and difficulty of the duties of the job and with other salaries paid by local government.
b. Supporting Staff-At least a half-time paid Deputy Director/Coordinator should be employed in jurisdictions with between approximately 50,000 and 75,000 population, and a full-time paid deputy should be employed in jurisdictions with more than approximately 75,000 population.
In all jurisdictions, competent persons should be designated and trained for civil preparedness functions such as operations, shelter, communications, and radiological defense-to carry out these functions in emergencies as well as to assist in developing readiness for emergencies. In larger jurisdictions, these positions should be full-time paid, to assure professionally competent services, rather than assigning the functions to other government employees, "in addition to regular duties."
The need for such professional positions within the local civil preparedness agency will depend in part on how many elements of the program have been delegated to operating departments (e.g., the fire department or health department may handle the radiological defense program). In small jurisdictions, specialist positions such as Radiological Defense Officer may be filled by a suitably qualified volunteer, such as a college or high school physics instructor, or an engineer from a local industry.
The possibility of securing a military reserve Mobilization Designee (MOBDES) to fill such positions should be considered- State civil preparedness offices can assist in securing MOBDES personnel -
In all jurisdictions, the local Director/Coordinator requires stenographic or typist support. In smaller jurisdictions the stenographer or typist can often assume additional duties, and act as an administrative assistant.
c. Minimum professional Staffing of Civil preparedness Agency-Total civil preparedness agency professional staffing (the Director/Coordinator plus other professionals, not counting clerical or stenographic employees) will vary considerably from one jurisdiction to another, depending on local organization and the tasks assigned. State civil preparedness agencies can advise on staffing levels required by specific local jurisdictions, in light of local conditions and needs.
The following standards for minimum professional staffing are provided as general guidance, subject to reasonable adaptation to meet local needs:
Population
Equivalent
Full-Time
(Approximate)
Professional
Positions
Over 1,000,000
15
to 40
500,000 to 1,000,000
6
to 15
250,000 to 500,000
4
to 6
100,000 to 250,000
3
to 5
50 to 100,000
2
to 3
25 to 50,000
1¼
to 2
15 to 25,000
1
to 1¼
5 to 15,000
¼
to 1
Under 5,000
1/5
to ¼
3. Selection, Qualifications, and Salary of Local Director/Coordinator
a. Selection - Vacancies in paid civil preparedness Director/Coordinator positions shall be filled by selection procedures designed to secure the best- qualified person available. Local governments may elect not to give their Director/Coordinator merit- system tenure, although the position should provide reasonable job security if it is to be filled by a well-qualified professional.
If the jurisdiction needs assistance, State personnel departments or civil preparedness agencies can provide guidance on selection procedures. A written job or position description should be developed for the Director/Coordinator position, and State civil preparedness agencies can provide examples.
Selection procedures include; (1) Wide publicity, to get as many qualified applicants as possible; (2) administering a written test, if desired (bearing in mind that most people with poor scores on a written test will not do well on the job, but that there is no assurance that all people with high scores will do well); (3) oral interview by a board of 3 to 5 local government executives or others experienced in job interviews and selection of employees; (4) personal interview by the local chief executive of the highest-ranked candidates, to select the candidate who appears to be best qualified, and who would be compatible with the chief executive and his department heads; and (5) a probation period of six months to a year for the candidate to prove himself capable on the job.
Similar selection procedures should be used in filling other professional positions in the local civil preparedness agency.
b. Qualifications - The oral interview board and chief executive should look for the following experience and personal traits in applicants for the local civil preparedness Director/Coordinator position:
(1) Experience - Applicants should have experience of 1 to 6 years (depending on the size and needs of the community) in such areas as:
(a) Planning, organizing, coordinating, implementing, and directing a major phase of a local government program, or a program of a major business or industry; or
(b) Providing emergency or safety services for large groups of people and requiring frequent contacts with public officials; or
(c) Organizing a community-wide program involving large numbers of citizens to engage in a civic program on a volunteer basis.
(2) Personal - Since the bulk of the Director/ Coordinator's responsibilities will involve contacts with the heads of local government departments, as well as officials from other government levels, applicants should show leadership qualities, and an ability to manage and coordinate the civil preparedness program. In addition, applicants should have the ability to meet and deal with the public effectively, and be reliable and trustworthy. According to field studies, personal traits considered important for the civil preparedness Director/ Coordinator, by chief executives and other local officials, included enthusiasm for the job, ability to work with others, integrity, friendliness, cooperativeness, ability to coordinate and expedite, administrative ability, and reputation and stature within the community. Probably the most important single personal trait is dedication to the civil preparedness program.
In evaluating candidates, interview boards and chief executives should keep in mind the duties of the local Director/Coordinator in emergency periods. They should ask themselves, "Would I place confidence in the recommendations and advice of this applicant, in making decisions that could affect the preservation of life and property, in an emergency affecting this jurisdiction?"
c. Salary - The salary provided for the position of civil preparedness Director/Coordinator must be adequate to attract and retain a competent professional. This requires paying a salary commensurate with those for other local government positions of a similar degree of difficulty and responsibility. Where a person already serving in local government is assigned the additional duties of part-time Director/Coordinator, an appropriate salary should be paid for the additional duties.
State civil preparedness agencies can advise on salaries paid in communities of similar size and complexity that have competent, professional local Directors or Coordinators, who are conducting adequate civil preparedness programs as described in these Standards.
4. Professional Training and Growth
A person selected for the position of Director/ Coordinator should either have or soon get the special knowledge and skills needed to perform the tasks described in Standard Two.
a. Qualifications-The unique professional qualifications required by the Director/Coordinator primarily include:
(1) Ability to prepare the community to conduct coordinated emergency operations under extraordinary circumstances where normal cooperative procedures are not sufficient. This is the most important single qualification.
(2) Ability to provide for developing unique emergency skills and capabilities not found in operating departments (e.g., warning, shelter, radiological defense).
(3) Ability to advise operating departments of special disaster conditions that would call for modification of normal operating techniques. These range from fallout and other effects of nuclear weapons, to conditions created by other hazards that could affect the jurisdiction. The Director/Coordinator must be the person in government who analyzes such potential hazards, and their effects on local operations.
b. Professional Training - Standards for professional training of the Director/Coordinator are set forth below. Note that training standards are related to the size of the jurisdiction, and thus to the type of Director/Coordinator it should have- not necessarily the type of Director the jurisdiction actually has.
(1) Smaller jurisdictions (approximately 5,000 population or less): First year, successfully complete the home study courses "CD, U.S.A.," "The CD Director/Coordinator," and "Introduction to Radiological Monitoring," and in addition, attend a basic management work- shop conducted by the State agency, when such a workshop is available. Every second year thereafter, attend an NCP seminar or advanced workshop if available. In addition, complete Phase I of the Career Development Program within two years and any new home study course for local Directors/Coordinators within one year from the time such courses become available. It is also highly desirable that Directors/Coordinators enroll in the remaining phases of the Career Development program, which is the primary vehicle for continued professional training, and in courses in the areas of emergency operations planning and radiological defense.
(2) Medium sized jurisdictions (cities approximately 5,000 to 25,000, counties 5,000 to 15,000): The Director/Coordinator shall meet the first-year criteria in (1) above and shall in addition complete Phase I of the Career Development program within the first 16 months of employment. In the second and each succeeding year, the Director/Coordinator shall attend a State-conducted workshop or seminar, if available. In the second or third year, he or she shall complete Phase II of Career Development. In addition, it is highly desirable that in subsequent years he or she complete Phases III and IV of the Career Development program, and courses in emergency operations planning and radiological defense.
(3) Larger jurisdictions (cities over approximately 25,000, counties over 15,000): The Director/Coordinator shall meet the first and second year criteria in (2) above and shall also successfully complete Phases III and IV of the Career Development program during the third and fourth years. In addition, it is highly desirable that the Director/Coordinator successfully complete additional Civil Preparedness courses, including the Career Development Graduate Seminar, and courses in emergency operations planning and radiological defense, as well as college or university courses in public administration or fields related to the professional development of the Director.
The courses specified above are those now available, and this Standard will be revised if and as other relevant training becomes available. The efforts of a competent and qualified Director/Coordinator are the key to emergency readiness. Professional training, in turn, is essential to being an effective local Director/Coordinator. Therefore, the training specified above must be completed (or have been applied for) unless the State, with Regional concurrence, evaluates the local Director/Coordinator's job experience and study as being equivalent to the formal training described. Experience in actual disaster operations should be given special weight in evaluating equivalent experience. (However, successful completion of the Career Development program requires actual completion of the Phase II, III, and IV courses; i.e., equivalent study or experience can be substituted for Phase I only )
c. Staff Training - Staff members of the local civil preparedness agency, other than the Director/ Coordinator, shall take professional training as required for adequate job performance. Standards for training of professional staff members (paid and volunteer) are set forth below. (Standards for training of radiological defense personnel are set forth in Standard Five, and standards for training and exercising the local EOC staff are in Standard Six.)
(1) Smaller jurisdictions (approximately 5,000 population or less): All professional staff members shall successfully complete the home study course "CD, U.S.A." In addition, it is highly desirable that professional staff members complete other available home study courses concerning skills or knowledge needed in their positions, and attend State-conducted workshops and NCP seminars if attendance is approved by the State and training is available.
(2) Medium-sized jurisdictions (cities approximately 5,000 to 25,000, counties 5,000 to 15,000): Staff members who serve as Deputies or in equivalent roles shall receive the same training as specified for the Director/Coordinator in a jurisdiction of this size (see item b(2) above). Other professional staff members shall successfully complete the home study course "CD, U.S.A."; shall attend a State-conducted workshop or NCP seminar every second year, if attendance is approved by the State and training is available; and shall complete home study and resident courses which cover areas in which particular staff members require specialized skills or knowledge (e.g., courses in emergency operations planning such as the Civil Preparedness Planning Workshop and in radio- logical defense.) In addition, it is highly desirable that such other staff professionals complete other available home study and resident courses, including Phases I and II of the Career Development program.
(3) Larger jurisdictions (cities over approximately 25,000, counties over 15,000): Staff members who serve as Deputies or in equivalent roles shall receive the same training as specified for the Director/Coordinator in a jurisdiction of this size (see item b(3) above). All other professional staff members shall successfully complete the home study course, "CD, U.S.A."; shall attend a State-conducted work- shop or NCP seminar every second year, if attendance is approved by the State and training is available; and shall complete home study and resident courses which cover areas in which particular staff members require specialized skills or knowledge (e.g., courses in emergency planning such as the Civil Preparedness Planning Workshop and in radiological defense). Those other staff members who serve full-time shall successfully complete Phases I and II of the Career Development program. In addition to the foregoing, it is highly desirable that staff professionals other than those serving as Deputies or in equivalent roles complete other available home study and resident courses.
(4) Professional experience and study may be substituted for the formal training outlined above, if evaluated by the local Director/Coordinator as equivalent, and if the State concurs in this evaluation. (However, successful completion of the Career Development program requires actual completion of the Phase II, III, and IV courses; i.e., equivalent study or experience can be substituted for Phase I only.)
(5) In jurisdictions of any size, all newly assigned military reserve Mobilization Designee (MOBDES) personnel shall complete the home study course "CD, U.S.A." In addition, it is highly desirable that MOBDES personnel take additional home study and resident courses as agreed with the local Director/Coordinator. For suggested MOBDES training, see Annex C of Civil Preparedness Guide 1-11, "Defense Civil Preparedness Mobilization Designee Program"; special consideration should be given to the Emergency Readiness Exercise Development Course.