Emergency Event and Contingency Planning

EXAMPLE: London Mass Evacuation Framework (UK)

nst — Wed, 18 Jan 2017 09:26:41 +0000

EXAMPLE: London Mass Evacuation Framework (UK) nst Wed, 01/18/2017 - 10:26

In 2014, the London Resilience Partnership developed the second Mass Evacuation Framework for the city of London. The purpose of this Framework is to offer guidance to responders managing a mass evacuation of displaced persons and, where appropriate, other living creatures.

The Framework has been developed by the Multi-Agency London Resilience Partnership Mass Evacuation Group. This group consists for example of the City of London Police, London Fire Brigade Emergency Planning, Environment Agency, Ministry of Defence (London), or Network Rail.

Based on: London Resilience Partnership (2014): Mass Evacuation Framework.

In the city a range of risks could result in a scenario requiring mass evacuation. The current reasonable worst case planning assumption for London is based on a major fluvial flooding incident.

In addition to providing guidance, the framework is intended to support decision-making and expectation management across all multi-agency partners and stakeholders. The content facilitates a flexible, scalable and coordinated approach to managing an evacuation.

The framework is not intended to be prescriptive, as every incident is different; rather, its aim is to capture the core principles for the management of a mass evacuation enabling key organisations to respond consistently and with a clear understanding of their roles and responsibilities.

In more detail, the objectives of this Framework are:

Support the Strategic Coordinating Group to respond effectively to an event that requires the evacuation of part of London;
Provide responding organisations with the necessary strategy to allow them to effectively implement their roles and responsibilities in support of an evacuation; and
Provide the process by which appropriate information is supplied to all responding agencies, the public and businesses, at the start of and throughout the evacuation process.

An incident which causes a mass evacuation may be a ‘sudden impact’ or a ‘rising tide’ type of incident. A ‘sudden impact’ incident will require immediate evacuation of a population to protect life, which may have to be initiated before the full command and control structure is in place. In a ‘rising tide’ incident, agencies will have some warning of a potential incident, enabling command and control structures to be put in place to coordinate the response to the incident and any associated evacuation. Flooding events typically fall under the latter of this incidents.

Evacuation process

The evacuation process is broken down into five principal phases as follows:

Initiate Evacuation

Responding Agencies initiate operating procedures
Transport availability identified
Evacuation assembly point identified
Recovery Cell setup
Alert neighbouring areas

Alert Population

Initiate Warning and Informing methods

Move Population

- Affected Local Authorities (LA) move evacuees requiring help to evacuation assembly point (with assistance from Police)
- LAs to liaise with transport operators and move evacuees to locations where shelter can be provided

Shelter / Assistance

LAs receive evacuees and provide 48hr shelter where needed.

Return / Recovery.

- Handover to Recovery Group
- Inform Population/ Residents
- Assess Situation - Reoccupation (if possible)
- LAs consider longer term shelter options

Training and Exercising

Each organisation is responsible for ensuring that its staff are fully trained in its own emergency response procedures, and in its particular role in support of the operation of the London Mass Evacuation Framework and associated plans and protocols. A standardised approach to training and exercising is described in the framework. It is also stated that agencies have to maintain records of their training programmes as evidence.

Key lessons learnt

Once an evacuation plan has been set, it must be made available to the people who might need to use so they can be trained and the effectiveness of the plan validated. This is usually through an exercise which alows responders to simulate an emergency and their response.

Also a regularly review and update of the plan has to be undertaken. These updates should take into account learnings from exercises, incidents and changes in policy. It has to be ensured that the latest best practise is incorporated.

Relevant case studies and examples

Evacuation planning

EXAMPLE: Risk Communication in Kiel (Ger)

nst — Wed, 07 Dec 2016 11:04:38 +0000

EXAMPLE: Risk Communication in Kiel (Ger) nst Wed, 12/07/2016 - 12:04

Urban floods

Emergency Event and Contingency Planning

Public Awareness and Preparedness

Non-structural measure

An informative brochure can help raise awareness for coastal residents to inform about climate related risks and offer behavioural recommendation. For the city of Kiel such comprehensive guideline was developed.

The Bay of Kiel Climate Alliance published in 2015 a guideline for private risk prevention (KBKB 2015). The authors quote a survey saying in 2013 about 90% of the German population thought that there is a low risk to be personally affected by storm floods, storm surges or other natural disasters. But with climate change an increase of extreme weather events is expected for the Bay of Kiel region. Since thus could affect people and households in this region, the alliance published a guideline to offer information about extreme events and orientation how to prevent possible damages and problems. The brochure was written in cooperation with the City of Kiel, the Ministry of the Interior of the federal state Schleswig-Holstein, and the insurance agency ‘Provinzial Nord Brandkasse’.

This guide addresses 5 different threats: storms, heavy rainfall, thunderstorm, heat wave, and cold wave. All the different threats are describes in the regional context and also a guide of what to do on a personal basis. For example for storms, the authors recommend:

Before the storm:

Use windproof roofing and let it be checked by experts on a regular basis.
light objects such as garden furniture, garbage and water barrels
shutters and blinds
Don’t park under trees
Check if your insurance covers damages from storms

During or after the storm:

Only step outside if necessary and pay attention to falling objects, such as bricks or branches
Report and document damages
In case of damages report immediately your insurance agency.

Also the four other themes are described in general with concluding behavioral recommendation. The brochure closes with useful links where to find further information.

The guide makes use of understandable language, additional photographs and in some cases with (regional) maps. This is to ensure, that residents will read the brochure. Local references, like excerpts from newspaper on heavy rains or storms help to anchor the rather abstract climate threats into a local context.

5000 copies were published and handed out at thematic relevant events (public fairs, etc.), it is also available online.

Relevant case studies and examples

Risk awareness campaigns

KBKB (Klimabündnis Kieler Bucht) (2015): Schietwetter - na und? Extremwetterereignisse und wie Sie sich schützen können. Ein Leitfaden zur privaten Risikovorsorge. 24 p. (http://www.klimabuendnis-kieler-bucht.de/wp-content/uploads/2015/11/Schietwetter_web.pdf)

Measure category

Preparedness

Spatial Planning and Integrated Coastal Zone Management (ICZM)

nst — Thu, 10 Nov 2016 12:42:35 +0000

Spatial Planning and Integrated Coastal Zone Management (ICZM) nst Thu, 11/10/2016 - 13:42

Riverine or slow rise floods

Flash floods

Estuarine floods

Coastal floods or storm surges

Urban floods

Erosion

Emergency Event and Contingency Planning

Public Awareness and Preparedness

Non-structural measure

Coastal and marine environments are usually characterized by beautiful landscapes and rich ecosystems of great importance, offering elements such as rich biodiversity. They also attract human activities such as tourism and industrial uses. However, the co-existence of human activities and natural resources often creates conflicts of use in the coastal zone.

Management policies are an important means of implementing planning in order to minimise, prevent or resolve use conflicts. The development of a coastal and marine spatial planning system presents an opportunity for the implementation of an overall strategy of conservation, sustainability and management to maximise future economic profit.

Based on "Papatheochari, Dora (2008): Spatial Planning and Integrated Coastal Zone Management. Available from http://www.coastalwiki.org/wiki/Spatial_Planning_and_Integrated_Coastal_Zone_Management [accessed on 10-11-2016]"

Spatial Planning

Previously, the role of spatial planning focussed intensively on economic and social development. Gradually, environmental dimensions were taken into account, especially through the appearance of sustainable development in environmentally important areas. Spatial planning in Europe promotes environmental sustainability, examining the concept of development which meets environmental, social and economic needs of present and future generations as well as policy and planning instruments to promote such development. It also encourages spatial integration of development perspectives demonstrating how social cohesion, regional innovation and sustainable development can interplay in real planning situations, using policies and planning tools, such as Environmental Impact Assessment and European Spatial Development Perspective.

Through the use of Geographical Information Systems (GIS), spatial planning has been used to define and map coastal and marine areas. It is essential to examine not only environmental impacts of individual activities but to research cumulative effects of multiple activities occurring in an area. Mapping coastal and marine areas in detail allows the opportunity to identify those areas at particular risk from possible pollution or excessive disturbance and to examine in detail how many activities are occurring.

Integrated Coastal Zone Management

Integrated Coastal Zone Management (ICZM) is a dynamic, continuous and iterative process designed to promote sustainable management of coastal zones. ICZM projects cover various geographical areas, from local regions to spatially extensive coastal areas. The “Integrated” in ICZM refers both to the integration of objectives and to the integration of the multiple instruments needed to meet these objectives. ICZM includes the integration of all relevant policy areas, sectors, and levels of administration as well as the terrestrial and marine components of the geographical area under consideration. The word 'Integrated' also refers to four types of integration: spatial, temporal, vertical and horizontal.

Comparing Spatial Planning and Integrated Coastal Zone Management

A common goal of spatial planning and ICZM is to define, develop and protect coastal zones; ICZM is most common at the local scale while spatial planning is often applied at larger scales. Both share policies with the same goal, the resolution of land use conflicts for the development and conservation of coastal and marine environment. Spatial planning at the national level is essential in order to examine the impact of human activities in urban and regional coastal zones. Coastal Zone Management is becoming increasingly necessar because of the increasing importance of coastal and marine exploitation/development and protection.

An enabling environment at the European level could provide the framework in which countries can develop more appropriate integrated coastal zone management policies, including investment strategies, integrated development plans (spatial and functional) and resource management strategies.

The most important issue for both spatial planning and ICZM are the effective and successful implementation of planning systems and policies as well as a better understanding and definition of coastal and marine areas. A common perspective of European coasts must be adopted in order to improve management and planning of activities in coastal and marine areas.

Relevant case studies and examples

EXAMPLE: A participatory adaptation planning approach, Cascais (PT)

EXAMPLE: Developing an Attica Wetland Action Plan (GR)

Measure category

Prevention

Evacuation planning

giacomo.cazzola — Thu, 15 Sep 2016 11:39:02 +0000

Evacuation planning giacomo.cazzola Thu, 09/15/2016 - 13:39

Riverine or slow rise floods

Flash floods

Estuarine floods

Coastal floods or storm surges

Urban floods

Emergency Event and Contingency Planning

Non-structural measure

To minimize the loss of lives and reduce other flood impacts, an area should be evacuated when the depth of standing water due to flooding is already or is expected to become high. Such floods are defined as those which are expected to cause buildings, including residential houses, to be washed away or seriously damaged by the flooding.

Based on: Jha, Abhas K., Robin Bloch, and Jessica Lamond. Cities and Flooding: A Guide to Integrated Urban Flood Risk Management for the 21st Century. World Bank Publications, 2012.

Organizational aspects of evacuation planning

An interdisciplinary planning organization must be set up covering the key institutions that have remits relating to disaster and specifically flood management. This organization can be a Community Flood Management Committee (CFMC). In addition to the CFMC, evacuation centers should also be established in appropriate settlements.

The members of the CFMC should have knowledge of evacuation and rescue operation and emergency, including medical care (if this is not the case, then basic training should be provided to them). Evacuation plans should be prepared after discussion with the community. Participatory planning will increase people’s awareness and ability to cope and manage flood risk. The evacuation plan should be available to all members of the community, including the most vulnerable.

Dissemination of information on flood risk and flood preparedness requires the organization of regular community meetings. Such meetings can take place before the onset of the rainy season, or monsoon. It is vital that evacuation drills will be held regularly to test the effectiveness of the evacuation plans.

The evacuation plan should delineate an escape route and also identify small- scale works that may be needed to make the route safer. Such works can be executed in cooperation with the community as well as with external support. The evacuation plan should also determine modes of transport and access routes for evacuation and rescue operations and relief projects. In addition, the evacuation plan should identify open spaces and buildings to be used as evacuation centers. These can function as described by Arnold, Chen, Deichmann et al. (2006: 149).

Temporary shelters and refuges
Hospitals, possibly in existing buildings with stored supplies and basic medical equipment
Information centers, with uninterrupted linkages to the central communications system
Supply distribution points for basic survival supplies, such as water, food, and blankets
Sanitary facilities, including toilets, showers, and waste disposal units.

To develop evacuation plans and carry out the tasks outlined above, maps showing the most exposed areas to flood risk should be available. EWS should also be in place to give advance notice of an impending flood allowing evacuation plans to be put into action. Even when a flood is not as severe as predicted, these preparations help test evacuation plans and inform the communities as to the nature of flood risk.

Provision of flood shelters and refuges

As stated in UNDP (2009:36): “Shelter is likely to be one of the most important determinants of general living conditions and is often one of the largest items of non-recurring expenditure.”

Shelters and refuges must, as a minimum:

Provide protection from the climate conditions
Provide space to live and store personal belongings
Ensure dignity, privacy, safety and emotional security.

In most emergencies there is a common basic need for shelters or refuges. However, issues such as the type and the design of the shelter, the required materials, by whom it is constructed, and the duration it is expected to last, will vary significantly according to the situation. Vulnerability analysis can identify the basic needs and priorities of the affected population in relation to shelters. Safe areas for flood shelters or refuges may include:

Schools
Religious meeting places (such as temples, churches, mosques)
Community centers
Higher ground (such as roofs, upper floors, embankments)
Military installations
Barracks.

Location and size of shelters and refuges

The need for the location and size of shelters and refuges needs to be decided in consultation with the communities. Transportation between the shelters and social and work locations for the displaced population should be considered. Existing social practices, and the provision and maintenance of shared resources (such as water, sanitation facilities and cooking) should be taken into consideration in the design of shelters and also in the allocation of space within shelters and plots. The plot layout in the evacuation centers must preserve the privacy and dignity of individual households.

The use of materials and the type of shelter that are most commonly used among refugees or the local population is to be preferred for the construction of shelters. The design of the shelter must follow the simplest principles and structures. The provision of a solid and robust roof is the main requirement, and even when a complete shelter cannot be provided, adequate roofing should always be the priority.

Plastic tarpaulins can be easily found in most cases. Tents are not always the best type of shelter because it is not easy to live in them and also they cannot provide adequate protection against extreme climate conditions. Nevertheless, in certain cases, tents may be used as storage facilities, or to set up hospitals, schools and other facilities. The success of the evacuation centers highly depends on these facilities.

Communications between shelters and refuges

The success of an evacuation plan is highly dependent on the efficacy of the communication systems. Established communication systems must ensure that the relevant authorities are promptly informed, for example by radio or telephone. The sharing of information is essential to achieve a better understanding of the problems. Coordination among all those involved in an evacuation operation is necessary to assure that the evacuation plan is being implemented successfully.

Key lessons learnt

Evacuation plans minimize the risks and impacts of flooding for the population of cities and towns.

Relevant case studies and examples

EXAMPLE: London Mass Evacuation Framework (UK)

Literature sources

Arnold, M., Chen, R.S., Deichmann, U., Dilley, M., Lerner-Lam, A.L., Pullen, R.E. and Trohanis, Z. ed. 2006. Natural Disaster Hotspot Case Studies. Washington, DC: World Bank Hazard Management Unit.

UNDP (United Nations Development Program). 2009. Emergency Relief Items, Compendium of Generic Specifi cations. Geneva: UNDP.

Measure category

Preparedness

Emergency planning

giacomo.cazzola — Thu, 15 Sep 2016 10:47:05 +0000

Emergency planning giacomo.cazzola Thu, 09/15/2016 - 12:47

Riverine or slow rise floods

Flash floods

Estuarine floods

Coastal floods or storm surges

Urban floods

Emergency Event and Contingency Planning

Non-structural measure

It is vital to recognize that even after the implementation of non-structural flood mitigation measures residual flood risk will remain. It is of paramount importance to make plans to deal with flood events and their aftermath. This involves multiple activities which can be included as part of a flood emergency plan. In this section there is an overview of the elements central to emergency planning.

Based on: Jha, Abhas K., Robin Bloch, and Jessica Lamond. Cities and Flooding: A Guide to Integrated Urban Flood Risk Management for the 21st Century. World Bank Publications, 2012.

Identifying existing internal organizations

All countries possess existing institutions and organizations that, if coordinated, may be mobilized to meet individual emergencies. The purpose of the emergency plan is to identify these institutions prior to the emergency in order to:

Identify roles and responsibilities.
Identify command structures.
Facilitate inter-agency cooperation.

The preparation of the emergency plan will help to identify barriers to cooperation, including authority structure and finance, which need to be resolved before flooding occurs.

Identifying appropriate external agencies

Some flooding events may be addressed using existing national resources but many countries do not have sufficient physical and human resources to address regional and national emergencies. It would then be appropriate to invite the assistance of external agencies.

The presence of international agencies may, however, overwhelm the host government with the risk that the latter may lose control of the relief effort. This, in turn, can result in the deskilling of local people who may feel it necessary to defer to the external agencies. It should also be recognized that the objectives of external agencies may conflict with those of internal agencies: for example, to ‘showcase’ their charity in high profile emergencies. Managing these agencies is both difficult and time consuming and may require considerable diplomacy.

The emergency plan should therefore contain detailed policies, identifying the roles and responsibilities and restrictions on invited agencies.

Damage Avoidance

Actions taken before a flood arrives can significantly reduce the loss of life and the amount of damage suffered. Pre-warning and evacuation planning should therefore be part of an emergency plan. It follows that an early warning system (see Section 4.9) is a central requirement for damage avoidance. Local flood emergency planning could involve, for example, the installation of temporary flood barriers, or the removal of zoo animals (as in the Cologne case study elsewhere in this volume). Deployment of some building design features, as described in Chapter 3, may also be dependent on warnings being issued.

It is necessary to mobilize personnel and machinery, where available, to protect infrastructure (such as dikes, levees and retention basins); to remove individuals from facilities at risk (such as hospitals, schools, industrial sites, bridges, or individual houses); and to prevent landslides and riverbank erosion. Strengthening and rehabilitation of existing structures and flood-proofing measures can also protect critical infrastructure. Such measures may include sandbagging or establishing temporary earth, wooden or other flood barriers, including mobile flood barriers (WMO 2011).

Flood emergency preparedness activities

To coordinate emergency procedures, a flood management unit (FMU) needs to be set up. Representatives from the local community should be included as members. The FMU will be responsible for developing a business and government continuity plan (BGCP) and for coordinating emergency procedures in a secure flood free location, as identified in the evacuation plan. The FMU can also be organized to serve as the local representative, focal point or community partner for wider river-basin level planning. Government continuity planning requires the community to effectively participate throughout the planning process. Participatory planning for emergency situations can help build trust and confidence among stakeholders, enhance cooperation, facilitate information sharing and encourage regular communication (WMO 2011).

At a household level a number of strategies can be adopted which will reduce damage as a result of flooding. Including the following:

The identification of household escape routes
Installation of temporary flood proofing
The identification of elevated buildings (or even mature trees) that can be used as safe havens
The moving of property to higher levels
The storing of emergency provisions
The use of non-flood impacted communications such as radios, mobile phones or even prearranged signals in order to share information
The removal of vehicles from the area: their use in the post-flood situation is invaluable.

Emergency water supplies and sanitation

The flooding will have destroyed existing water supplies and sanitation infrastructure, where applicable; any overflow of sewage will also have polluted water supplies. The emergency plan should therefore identify alternative water supplies, preferably gravity-fed to avoid the need for pumping. The tankering of water is a very short-term solution which uses vehicles and fuel which could be more beneficially employed elsewhere.

Similarly, sanitation should be provided close to the displaced population, away from the source of water supply and on unsaturated permeable strata to allow sufficient drainage. These factors should be taken into account when locating refuges and other areas of residence.

Access

Flooding may affect both roads leading to the flooded area as well as those within it. This can include blockages of debris and silt, as well as flooding or washing away.

The emergency plan should therefore identify the following:

Access roads to and within the flood zone, avoiding low bridges over rivers, low- lying areas, roads susceptible to land slippage (in cases of flooding caused by heavy precipitation) and highlighting those not susceptible to crime and insecurity.
The design and location of permanent signage on principal road routes.

The use of symbols avoids the difficulties of literacy and language.

Suitability of road, railways and airfields, where available, for longer distance transport of supplies.
Suitability of ports near main shipping lanes, with sufficient depth and with suitable loading and unloading facilities for international vessels.

Clearance

Floods deposit large volumes of debris and mud, the clearance of which is essential for the relief effort. The emergency plan should identify how the debris and mud is to be cleared, by whom and where is to be deposited.

Emergency health facilities

Flooding may generate a range of injuries. The emergency plan should identify:

The suitability of public buildings to act as preliminary treatment centers (such as schools, government offices or similar).
Existing hospital facilities, away from the likely flood area, that may be developed with specialist services and equipment.
The method of evacuation for those with more serious injuries.
A system of vaccination.
The suitability of public areas (such as parks and schools), for the siting of mobile clinics units, temporary camps and distribution centers.
The provision of power, as electricity supplies (where these exist) are likely to have been severed.

Energy

It is likely that the floods will destroy access to energy resources, be they electricity or, in less developed areas, other forms of fuel including wood and animal dung. The emergency plan should identify:

The local fuel resources and their continued accessibility during and after a flood.
Alternative sources of energy (for example, generators) and the fuel to run them.
Key institutions such as hospitals which should be supplied with these alternative sources and the methodology for ensuring their continued availability between floods.

Security

Emergency situations, and the breakdown of the normal standards of society and their enforcement, often create opportunities for theft and corruption.

The emergency plan should therefore include:

The securing of the facilities identified in the emergency plan, between and during flood events.
The visible deployment of reliable security forces immediately post flood to deter looting.
External auditing of government functions for efficiency and probity.

Key lessons learnt

An appropriate and implementable emergency plan can:

Facilitate emergency response.
Minimize the impacts of flooding.
Allocate resources efficiently.
Reduce confusion.
Facilitate recovery.

Literature sources

WMO. 2011. Flood Emergency Planning: A tool for Integrated Flood Management. Associated Program on Flood Management.

Measure category

Preparedness