STANDARD ONE

ORGANIZATION AND ADMINISTRATION OF CIVIL PREPAREDNESS

DISCUSSION

This Standard outlines steps needed in the organization and administration of civil preparedness, and includes information on budget levels needed to support civil preparedness programs.

Standard One primarily applies to single counties, cities, or other local jurisdictions. However, jurisdictions will often find it advantageous to join together in "joint-action" civil preparedness programs. This includes employing a full-time professional civil preparedness Director/Coordinator, who can work with chief executives and heads of operating departments in the counties or other jurisdictions in the area, help them develop emergency plans and preparedness, and assist in coordination of operations should an emergency occur.

STANDARDS

1. Statement of Purpose

Each local jurisdiction needs an officially approved statement of purpose for its civil preparedness program. In some States it appears in the State statute and is applicable to all localities. In some States it is desirable to include it in local ordinances (see item 3b below). In any case, it should be incorporated in the local government's emergency plan (see Standard Three).

A sample Statement of Purpose is as follows:

"It is an operational assumption of the Civil Preparedness program that existing agencies of government will perform emergency activities related to those they perform in normal times. Auxiliary groups will be formed and trained, under the direction and control of the operating department of government they are to support, and non-governmental groups will be assigned emergency missions, as necessary to develop a capability to augment, or supplement, existing agencies of government in responding to emergencies. A basic purpose of the local civil preparedness agency, and its (Director) (Coordinator), shall be to provide for coordination of the operations of all such governmental and non-governmental forces in emergencies, and to provide those unique civil preparedness skills and capabilities not available in existing government organizations. The civil preparedness (Director) (Coordinator) shall also inform the operating departments of government of those special conditions arising out of a nuclear attack which would call for a modification of traditional operating techniques."

The foregoing statement of purpose, or one similar, clearly distinguishes the civil preparedness agency, and its Director/Coordinator, from the operating agencies of government. Hence, civil preparedness is not the police department or the fire department, nor does it desire to usurp their roles; but these departments are a part of civil preparedness action. The civil preparedness agency is a coordinating agency, and a reservoir of unique skills and capabilities.

2. Joint-Action vs. Individual

Jurisdiction Approach

The decision to establish and maintain a separate civil preparedness program or to join with one or more other jurisdictions to form a joint agency should be decided by fully considering the resources, the hazards, the people, and the jurisdiction's requirements.

Each jurisdiction should determine, in conjunction with the State civil preparedness agency, whether it should establish and maintain its own civil preparedness program, or whether its needs will be better met by joining together with one or more other jurisdictions. The joint-action approach usually results in more progress for a given investment, particularly in the case of counties or municipalities of low population. Joint programs are often advantageous even for cities and counties with a larger population. Joint-action arrangements are usually voluntary, and each jurisdiction involved must agree to participate, by appropriate official action. However, some States' statutes may require some form of joint action.

The State civil preparedness office can advise whether the State statutes authorize joint action for civil preparedness, and if so, what local ordinances or resolutions would need to be enacted. The State can also give advice on how other joint-action arrangements (if any) in the State have worked out, and on such practical details as the sharing of costs between the jurisdictions involved.

Where a jurisdiction decides to enter into a joint-action arrangement with one or more others, the steps described in the balance of this Standard must be adapted as required by the fact that two or more jurisdictions are involved.

 3. Organizing Local Civil Preparedness Action

The following eight-step checklist is provided as a guide in organizing for local civil preparedness. It should be followed to the extent applicable in a specific jurisdiction, adapting the steps as necessary in light of the local situation (including any adaptations required by a joint-action approach):

a. Meeting of Executives - The chief executive and his department heads should be brought together to be oriented on the civil preparedness program and to be made aware of their emergency responsibilities. Representatives of the State civil preparedness agency will frequently be available to assist in the conduct of this meeting.

b. Ordinance - Unless provided for by State statute, local legislation must be enacted to provide legal authorization and support for the local civil preparedness program and activities, both in normal times and during emergency periods. It should include an appropriate Statement of Purpose, and should be in conformance with State legislation. If there is a model ordinance for use in localities within the State, this should be used as a point of departure, with local legal counsel adding any special provisions needed locally. The civil preparedness ordinance or other appropriate ordinance should extend the authority of local government to non-government personnel who may support regular government forces during an emergency (e.g., auxiliary policemen, or shelter managers).

c. Local Civil Preparedness Director/Coordinator - The local chief executive or other appointing authority must select an individual with the education, experience, initiative, and imagination needed to coordinate and carry forward, on behalf of the chief executive, a civil preparedness program for the protection of the population and of public and private property. If the jurisdiction is participating in a joint-action arrangement with other jurisdictions, the Director/Coordinator must be acceptable to each participant. (See Standard Two.)

d. Training of local Director/Coordinator - The Director/Coordinator must take training available from or through the State civil preparedness agency, to begin developing the professional expertise he (or she) requires. (See Standard Two.)

e. Hazard Analysis - The local Director/Coordinator assisted if necessary by State or Regional personnel, should prepare a "hazard analysis" for the jurisdiction. Potential hazards from nuclear attack are identified in Publication TR-82, "High Risk Areas", and State and Federal personnel can assist local jurisdictions in identifying peacetime hazards to which they may be exposed.

f Initial Assessment of Local Emergency Readiness - The local Director/Coordinator assesses the jurisdiction's existing level of emergency readiness using these Standards. This assessment may be made by the Director/Coordinator himself, or it may be conducted with advice and assistance from State or Regional personnel. The assessment covers both tangible and intangible elements of readiness, as outlined in Standards Three through Six. It should be prepared in close conjunction with local operating department heads and the chief executive. This assessment should take into consideration those risk factors which may influence particular Standards.

g. Development of Action Plan to Increase Readiness - Based on this initial assessment, the local Director/Coordinator develops an "action plan" covering specific steps to increase local readiness, including both short and long-term actions. State and Regional assistance may be available in the development of the local action plan, and the action plan may specify State or Regional assistance to be provided to the locality. Actions may include procuring equipment or facilities needed for emergency operations, training, emergency planning, and exercising the local emergency organization and plan.

h. Development of a Local Program Paper - After assessing the current status of local preparedness, the local Director/Coordinator may wish to use the local Civil Preparedness Annual Program Paper to set forth an orderly plan for the improvement of those preparedness items below minimum Standards. Although the programming portion of the form is required for local participation in Federal assistance programs, localities should avail themselves of this management aid even if no assistance is being requested.

4. Administration of Local Preparedness Program

a. Federal and State Assistance - The local Director/Coordinator must see that the jurisdiction participates to the maximum in Federal and State assistance available for the civil preparedness program- This includes matching funds for personnel and administrative expenses, matching funds for supplies and equipment, loans of excess Federal property, grants of radiological monitoring equipment, and other assistance. Through fully funded contracts, the Federal government provides other forms of support particularly for training and planning designed to improve local readiness.

Details are available from the State civil preparedness agency. The local Director/Coordinator should also become familiar with assistance available under other Federal programs which can strengthen local emergency capabilities, such as grants or assistance in such areas as law enforcement, highway safety ambulance procurement, and emergency medical services.

b. Budget - Experience shows that an adequate level of funding is essential to the development of effective local emergency readiness. Funding must include local appropriations, but total funding can be increased up to double the local investment by obtaining Federal matching funds for eligible expenses.

The level of funding required for developing local emergency readiness varies somewhat from one part of the country to another, and may vary even for two similar localities within a single State, depending on the tasks assigned to the local civil preparedness agency.

State civil preparedness agencies can advise on funding levels required for a given local jurisdiction, taking into account special local circumstances or assignments.

The fact that smaller jurisdictions require higher per capita funding to provide even minimum-austere preparedness is a strong argument for the joint-action approach discussed above. By pooling funds, smaller jurisdictions can often get improved emergency readiness at lower per capita cost.