Emergency and Disaster Planning and Management in the UK - Case Study Example

Emergency and Disaster Planning and management in the UK Name: Tutor: Course: Date: Table of Contents Emergency and Disaster Planning and management in the UK 1 Name: 1 Table of Contents 2 List of Figures 3 3 1.0 Introduction 4 1.1 Role of UK central government in disaster and emergency management 4 Figure 1: Central government involvement in disaster management 5 1.2 Key Organizations in Disaster Management and their roles 5 1.2.1 Category 1 responders 5 Figure 2: Category 1 organizations 6 1.2.1.1 Emergency services 6 1.2.1.2 Local Authorities 8 1.2.1.3 National Hospital Services and other agencies 8 1.2.2 Category 2 responders 9 Figure 3: Category 2 organizations 9 1.2.3 Voluntary Sector 10 1.3 Deficiencies or Potential conflict to disaster resolution 11 1.4 Recommendations 13 1.5 Conclusion 14 Reference list 15 List of Figures Emergency and Disaster Planning and management in the UK 1 Name: 1 Table of Contents 2 List of Figures 3 4 1.0 Introduction 5 1.1 Role of UK central government in disaster and emergency management 5 Figure 1: Central government involvement in disaster management 6 1.2 Key Organizations in Disaster Management and their roles 6 1.2.1 Category 1 responders 6 Figure 2: Category 1 organizations 7 1.2.1.1 Emergency services 7 1.2.1.2 Local Authorities 9 1.2.1.3 National Hospital Services and other agencies 9 1.2.2 Category 2 responders 10 Figure 3: Category 2 organizations 10 1.2.3 Voluntary Sector 11 1.3 Deficiencies or Potential conflict to disaster resolution 12 1.4 Recommendations 14 1.5 Conclusion 15 Reference list 16 1.0 Introduction The aim of this report is to explore the effectiveness of the emergency planning arrangements in the United Kingdom (UK) in the context of current threats. It also identifies any deficiencies and recommends necessary improvements. According to Civil Contingencies Act 2004, emergency is a series of events or situation that causes serious damage or threatens the environment, human welfare and security of the UK1. Some of the major disasters in the UK include disruption of critical infrastructure and essential services, terrorist incidences, animal diseases, severe flooding and adverse weather. 1.1 Role of UK central government in disaster and emergency management The UK government provides the capabilities framework where the government seeks resilience in the entire country. The government coordinates cross-government exercise program on domestic disruptive challenges including acts of terrorism, natural disasters and accidents2. To be effective, the program tests operations from a centralized point to involve devolved administrations, local responders and sub-national tier to ensure full integration emergency planning at all levels. The central government engagement model is as shown in the figure below. Figure 1: Central government involvement in disaster management3 From figure 1 above, the central government handles disasters at different scales such as national, regional or single scene. Depending on the division of disasters at different levels, it is possible to see the functions and roles of primary government agencies as well as their facilitation4. 1.2 Key Organizations in Disaster Management and their roles 1.2.1 Category 1 responders Organizations involved in UK disaster and emergency management comprise category I, category 2 groups and voluntary groups. Category 1 constitutes emergency services, local authorities, National Hospital Service (NHS) and other agencies. Figure 2: Category 1 organizations From figure 1 above, category 1 organizations comprise emergency services, local authorities, NHS and other agencies. 1.2.1.1 Emergency services Major emergency services in the UK handling disasters and emergencies are the police, fire and rescue, ambulance, maritime and coastguard agencies and British police transport. Police: Emergency services routinely handle major incidences or emergencies such as industrial accidents, localized flooding and road crashes. If there is a threat to public safety or crime, then police will take lead in coordinating the local response. A Police Gold Commander is charged with the role of coordinating and implementing safety procedures5. In Somerset village of Moorland, floods submerged more than 11,000 hectares and 200 homes in early 20146. Volunteer police cadets were heavily involved in providing residents with supplies, extension operations to restore life and general assistance to residents. The entire police forces were praised for supporting policing teams, and portraying maturity, and enthusiasm and tenacity. Fire and Rescue team: Regarding fire and rescue, Civil Contingencies Act 2004 provides for establishment of fire and rescue authority. In London, London Fire and Emergency Planning Authority (LFEPA) is tasked with handling serious emergency and establishing a common control centre. It also exercises, maintains and develops emergency plans for staff training and category 1 responders. For example, during the Gloucestershire floods of 2007, hovercraft were delivered to the site even before the cabinet office responded by notifying the Fire and Rescue service in Gloucestershire7. However, language barrier was a major challenge when Civil Protection Agency from Rome was asked to support the fire and rescue team. In addition, the Hertfordshire Fire and rescue service could not extinguish the fire in Buncefield oil storage depot as foam suppliers had ran out of powder8. Technicalities also arose when the port’s authority refused to allow entry of powder extinguishers as they were not packaged to the UK standards. Ambulance: Ambulance is one of the blue light services and building blocks in UK emergency response. Ambulance is usually the first to arrive at the scene even on no-notice. The service provides strategic control, tactical, and operational local response and will coordinate NHS responses in the scene of incident and provision of casualty assessment. They also transport casualties’ en-route to hospitals. In July 7th 2005, more than 250 London Ambulance service staff with the support of the Red Cross and St. John ambulance treated 400 patients and respondent to life threatening calls only9. The staff were overwhelmed while offering welfare and counseling support. In response to this challenge, the ambulance service is developing airwave digital radio system including underground coverage. Incident training of staff and introduction of new medical equipment is also being fitted into the ambulances to treat seriously injured patients. Maritime and coast guard agency: The unit provides rescue service and 24-hour maritime search around the UK coast. It also offers guidance and legislations on maritime matters alongside certification to seafarers. They provide safety and security during major sea and water disasters. It is a national agency that is delivering local services for emergencies in the UK. It operational response also includes maritime marine response. Some of the deployable maritime resources include London Coastguard and Teddington lifeboat in tidal waters. In January 20th 2015, an Irish fishing vessel was in distress in the area of Butt of Lewis10. Coastguard rescue helicopter could not pump water off the ingress but managed to airlift two crew to a nearby sister vessel and three others to Western Isles hospital11. This was a great achievement in the history of maritime and coastguard agency. British Transport police: Undertakes civil protection duties. The unit has two control rooms with own control systems and command but have limited CCTV capacity in force control rooms. The police unit has duty officer with details of callout procedures and deploying capabilities. For example, in London, there are two command vehicles with additional control and command capacities outside London. 1.2.1.2 Local Authorities Local authorities comprise county councils, district or borough councils, and unitary authorities like Blackburn and Blackpool. Local authorities are supported by fire and rescue authority. For example, London local authorities are supported by London fire and emergency planning authority. They work closely and operate in a consistent way by pooling decision-making authority and tasking a single chief executive to speak on behalf of all the local authorities. They help manage pan-London response in supporting local authority ‘Gold’, control centre, and training support and exercising of pan-London arrangements12. Local authorities also develop business continuity plans, contingency plans, and emergency plans to ease, control and reduce the effects of an emergency. In Worcestershire 2007, severe flooding prompted local authorities to address flood risk on ordinary water courses. 1.2.1.3 National Hospital Services and other agencies These services include primary care and hospital trusts. These trusts are charged with developing Major Incident Plans, and coordinating with resilient partners in restoring the environment and caring for community involved13. NHS was involved in treating more than 400 patients in the 2005 London railway bombing14. Other agencies include the environment agency and health protection agency. These agencies are involved in information sharing, cooperation and working with voluntary sector. They also engage in emergency planning and immediate response to major emergencies. 1.2.2 Category 2 responders These include utility companies, transport companies and other agencies as shown in figure 2 below. They are involved in incidents affecting their sector and less likely to be at the heart of planning work15. They cooperate and share relevant information with other responders in category 2 and 1. Utility companies comprise water, gas, electricity and telecommunications. These are vital utilities for category 1 responders such as hospitals, ambulances, fire and rescue and helicopters. Figure 3: Category 2 organizations In the UK floods of 2008, many agencies in category 2 were unaware of protocols and procedures applied by Gold command and found difficulty in contributing. Confusion in dealing with floods as who was the lead agency was the problem. Mobile infrastructure is not covered in many category 2 responders and requires facilitation of mobile technologies to communication during contingencies16. Transport companies include railways, airports, highway agencies and ports and harbors. These groups provide means of evacuating victims to hospitals, and greater cooperation and consistency at local level. In horizon-scanning, category 2 responders support category 1 responders by revising risk assessments, and being aware of new threats and hazards17. Other agencies include health and safety executive (HSE) and strategic health authority. These agencies provide regulations and rules regarding elimination of disasters in construction work and production activities that may involve threats and hazards to workers and employees. 1.2.3 Voluntary Sector Voluntary teams may be involved in rescue, search or humanitarian support but on agreement with statutory services18. Common and known voluntary sector organizations are Salvation Army, St. John ambulance, British Red Cross, WRVS, and individual volunteers. Others contribute specialist skills such as group of doctors, search and rescue organizations like International Rescue Corps (IRC) and British Cave Rescue Council (RCRC), London Air Ambulance, volunteer radio operators, Cruse Bereavement Care and other non-governmental organizations (NGOs)19. Ambulances used in a scene of emergency usually have trust of St. John ambulance in carrying out routine patient collection. In the 2014 UK floods, about 3,000 commercial properties and 7,800 homes were flooded20. Although fire and rescue were lead responders, the voluntary sector from St. John ambulance and British Red Cross were highly visible. They were involved in the provision of first aid, counseling and transportation of affected persons to hospitals. However, in a sustained response, this sector may require more support especially in cases of responding to swine flu. Voluntary sector include charities and other voluntary organizations and has capabilities of assisting in responding to an emergency. They also provide services and a range of skills such as practical support, information services, and psycho-social support21. Practical support involves provision of responders, transportation or first aid. Psycho-social support involves help lines and counseling while equipment includes medical equipment and radios. Information services provided by the voluntary sector include communications and training. Volunteer sector enhances welfare by staffing rest centers, feeding, resettlement of evacuees or victims and providing clothing and other items. In the London bombing of July 2005, the voluntary sector supported local authority social services and National Health Services (NHS) by providing befriending, long-term support and listening skills. In medical care, they support NHS in welfare, emergency feeding, first aid, auxiliary roles in hospitals and support to ambulance services22. In search and rescue, they support emergency services in providing loan of equipment, and supervision of other searchers. 1.3 Deficiencies or Potential conflict to disaster resolution Data protection laws are likely to overwhelm silver and gold command units owing to inconsistencies, contradiction and confusion. Similarly category 1 responders may have limited time to use facilities provided in mobile systems. For example, in 2007 UK floods, organizational issues complicated the response since during contingency planning a number of issues were not anticipated23. Proponents of mobile systems overlooked the aspect of civil liberties. Fire and rescue were involved in assisting the elderly and other vulnerable people in the rising waters. They were forced to consult self-help groups and local healthcare organizations to find addresses of people in need of help. These agencies felt that they were not obliged to share their clients’ data as stipulated by UK Data Protection Act and European Human Rights legislation24. The Cabinet Office provides that during civil contingencies, public safety overrides data protection issues. Organizational barriers and non-technical problems complicate operation and deployment of mobile computer systems. Attention in the floods of 2007 and 2008 focused on protocols where members of Fire and Rescue were asking for additional resources for Remote Control Center (RCC) which was miles away from the area of disaster. In some cases, the central government receives confusing pictures from local agencies owing to poor mapping of vulnerabilities, loss consequences, dependencies on critical infrastructure and understanding of location of critical sites. Fire and rescue services often find difficulty in interpreting warnings and risk assessments from other agencies making it difficult for general public to understand. For example, the Worcestershire floods of 2014 used geographical terms such as confluence and tributaries instead of car park or road A and B that laymen understand25. Lack of information systems affects the general public, and category 1 and 2 responders as witnessed in the 2007 floods26. Websites were overloaded as people jammed to search for information regarding location of safe drinking water, insurance claims, risk of further flooding and restoration or connection of electricity. The UK government had focused on relatively small impact disasters but currently the perceived threats of terrorism are real. After the devastating incidents as 9/11 terrorist27 and London Bombings of 2005, the UK is more vulnerable to the possibility of adverse events than before. In recognizing and accepting the probability of potential future risk, people tend to be reluctant of natural disasters that adversely affect their property and lives. Emergency planning in the UK based on evidence shows fragmentation and robust inconsistencies28. In the country, evidence-base is patchy while decision making tend to mirror on individuals and organizational culture of agencies involved. This aspect fails to consider behavioral or socio-political aspects and learning from past disasters29. It implies that lack of documentation on previous inquiries may lead to mistakes being repeated and lessons not learnt. NHS is also getting overwhelmed with soaring numbers of patients in Accident and emergency (A&E). NHS England statistics shows that about 90,000 patients in A&E are waiting between 4 to 5 hours in trolleys30. These indicate increasing pressure on hospitals to handle urgent cases from disasters and emergencies with some urging patients not on urgent surgery and outpatients appointments to be removed from A&E. 1.4 Recommendations 1. A technology project should be developed for one local Remote Control Centre (RCC) to automatically detect another so as to mobilize resources. Gold command centers should also be positioned closer to the local mobilizing centers. 2. Mobile infrastructure should accommodate both category 1 and category 2 responders with adequate training on how to effectively communicate using the gadgets 3. The message on disaster and rescue should be critical than technology. People should still use public address announcements, loudhailers, sirens, and door-to-door calls to vulnerable people. 4. Highly trained medical staff should be motivated and hospitals should be expanded. This should also include sustainable and safe staffing of emergency departments, better integration of services, good governance of health service and better working environment 5. All the relevant departments should be guided by Civil Contingencies Act 2004 and coordination departments especially CCS to guide harmonious interventions31 6. Plans for mitigating, controlling and reducing the effects of an emergency should be maintained. Environmental agency should take the task of conducting coastal erosion and flood risk management and communicate frequently to the general public. 7. Respective departments should have regard to risk assessment, arrangements to advise, inform and warn the public 8. There is need for joint functions discharge and collaborative networking with voluntary organizations, category 1 and 2 responders. 9. Training and exercises are important with respect to various plans and regulations as well as exercising documentation 10. It is important to identify lessons and learn from post exercise reports. These include maintenance procedures and revision of plans. 11. Government should enhance and support multi-Local Resilience Forums cooperation and collaboration in Wales, Scotland, England and Northern Ireland 12. Involve and coordinate well with other sectors in emergency planning such as Food Standards Agency, armed forces, security firms, insurance companies, airlines, retail companies, general practitioners and internal drainage boards. 1.5 Conclusion Emergency and disaster planning in the UK involves response from category 1 and 2 responders as well as volunteers. The Civil Contingencies Act 2004 gives more responsibilities and roles to the category 1 responders such as police, ambulance and fire and rescue with the support of category 2 responders such as utility and transport companies. They coordinate and communicate in handling disasters such as floods and terrorist actions by saving lives and providing counseling services to victims and their families. Communication challenges, information systems and organizational issues are deficiencies faced by category 1 and 2 responders as well as voluntary sector in coordinating and communicating to members of the general public. A number of recommendations indicate a desire to harmonize units and create a common command to communication in addition to developing one Remote Control Centre (RCC). The report concludes that emergencies and disasters in the UK are under close observation to provide more suitable solutions. Reference list 1. Civil Contingencies Act 2004, http://www.legislation.gov.uk/ukpga/2004/36/pdfs/ukpga_20040036_en.pdf 2. Kapucu, N 2014, Emergency and Crisis Management in the United Kingdom: Disasters Experienced, Lessons Learned, and Recommendations for the Future. Department of Public Administration, University of Central Florida. https://www.google.com/search?q=Emergency+and+Crisis+Management+in+the+United+Kingdom%3A+Disasters+Experienced%2C+Lessons+Learned%2C+and+Recommendations+for+the+Future+Naim+Kapucu%2C+Ph.D.&oq=Emergency+and+Crisis+Management+in+the+United+Kingdom%3A+Disasters+Experienced%2C+Lessons+Learned%2C+and+Recommendations+for+the+Future+Naim+Kapucu%2C+Ph.D.&aqs=chrome..69i57.1482j0j7&sourceid=chrome&es_sm=93&ie=UTF-8 3. Cabinet Office, 2013, Emergency Response and Recovery: Non statutory guidance accompanying the Civil Contingencies Act 2004. Civil Contingencies Secretariat, London. https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/253488/Emergency_Response_and_Recovery_5th_edition_October_2013.pdf 4. Cabinet Office, 2013, Preparation and planning for emergencies: responsibilities of responder agencies and others. UK government. https://www.gov.uk/preparation-and-planning-for-emergencies-responsibilities-of-responder-agencies-and-others 5. Department of Health, 2009, NHS Emergency Planning Guidance, Emergency Preparedness Division. http://www.coe.int/t/dg4/majorhazards/ressources/virtuallibrary/materials/uk/dh_103563.pdf 6. National Audit Office, 2003, Facing the challenge: NHS Emergency Planning in England. Health and Social Care. http://www.nao.org.uk/report/facing-the-challenge-nhs-emergency-planning-in-england/ 7. Lee, ACK, Phillips, W Challen, K & Goodacre, S 2012, Emergency management in health: key issues and challenges in the UK. BMC Public Health. Vol. 12, pp. 884-892. http://www.ncbi.nlm.nih.gov/pmc/articles/PMC3575315/ 8. Cabinet Office, 2005, Civil Contingencies Act 2004: A short guide (revised). Civil Contingencies Secretariat. http://www.essex.gov.uk/Your-Council/Local-Government-Essex/Documents/15mayshortguide.pdf 9. Cabinet Office, 2013, Responding to emergencies: The UK central government response-Concept of Operations. Chapter 6: Arrangements in England. https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/192425/CONOPs_incl_revised_chapter_24_Apr-13.pdf 10. Cabinet Office, 2011, Role of Voluntary Sector, Chapter 14, Revision to emergency preparedness. Civil Contingencies Act Enhancement Programme, https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/61037/Chapter-14-role-of-voluntary-sector-amends-10112011.pdf 11. Maritime and coastguard agency, 2015, Five airlifted from sea, January 20th 2015, Press office. http://hmcoastguard.blogspot.com/2015/01/five-airlifted-from-sea.html 12. HM Government 2014, UK floods 2014: Government response and recovery, February 14th 2014. https://www.gov.uk/government/news/uk-floods-2014-government-response 13. Western Morning news, 2014, Police urge residents in Somerset village of Moorland to evacuate after water level rises by one metre. February 7th 2014. http://www.westernmorningnews.co.uk/Police-urge-residents-Somerset-evacuate-water/story-20579878-detail/story.html 14. London Ambulance Services, 2015, London bombings in 2005, NHS Trusts. http://www.londonambulance.nhs.uk/about_us/what_we_do/dealing_with_major_incidents/london_bombings_in_2005.aspx 15. Home Office Communications Directorate, 2004, Guidance on dealing with dealing with fatalities in emergencies. Joint publication. https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/61191/fatalities.pdf 16. London Emergency Services Liaison Panel, 2012, Major incident Procedure manual. Eighth Edition. http://www.leslp.gov.uk/docs/major_incident_procedure_manual_8th_ed.pdf 17. Loffler, J & Klann, M 2009, Mobile Response: Humanitarian information management and systems, Springer-Verlag. P. 12-21. https://books.google.co.ke/books?id=zlnWcVztTwQC&pg=PA7&lpg=PA7&dq=category+2+responders+in+UK+floods&source=bl&ots=cFsvHwDZDX&sig=GCVzDaY7BAYxci85keYI6KHsSXo&hl=en&sa=X&ei=h26fVeSVIcmPyASsw4GoDQ&redir_esc=y#v=onepage&q=category%202%20responders%20in%20UK%20floods&f=false 18. Donelly, L & Malnick, E 2015, A&E crisis: soaring numbers of hospitals declare incidents. 6th January 2015. http://www.telegraph.co.uk/news/politics/11327733/AandE-crisis-seven-hospitals-declare-major-incidents.html http://media.aws.stwater.co.uk/upload/pdf/The_Final_Gloucester_2007_Report.pdf Read More