[Congressional Record Volume 161, Number 179 (Thursday, December 10, 2015)]
[House]
[Pages H9257-H9262]
From the Congressional Record Online through the Government Publishing Office [www.gpo.gov]




     FIRST RESPONDER IDENTIFICATION OF EMERGENCY NEEDS IN DISASTER 
                               SITUATIONS

  Mr. HURD of Texas. Mr. Speaker, I move to suspend the rules and pass 
the bill (H.R. 2795) to require the Secretary of Homeland Security to 
submit a study on the circumstances which may impact the effectiveness 
and availability of first responders before, during, or after a 
terrorist threat or event, as amended.
  The Clerk read the title of the bill.
  The text of the bill is as follows:

                               H.R. 2795

       Be it enacted by the Senate and House of Representatives of 
     the United States of America in Congress assembled,

[[Page H9258]]

  


     SECTION 1. SHORT TITLE.

       This Act may be cited as the ``First Responder 
     Identification of Emergency Needs in Disaster Situations'' or 
     the ``FRIENDS Act''.

     SEC. 2. CIRCUMSTANCES WHICH MAY IMPACT FIRST RESPONDERS 
                   DURING A TERRORIST EVENT.

       (a) In General.--Not later than one year after the date of 
     the enactment of this Act, the Comptroller General of the 
     United States shall submit to the Committee on Homeland 
     Security of the House of Representatives and the Committee on 
     Homeland Security and Governmental Affairs of the Senate a 
     report that describes select State and local programs and 
     policies, as appropriate, related to the preparedness and 
     protection of first responders. The report may include 
     information on--
       (1) the degree to which such programs and policies include 
     consideration of the presence of a first responder's family 
     in an area impacted by a terrorist attack;
       (2) the availability of personal protective equipment for 
     first responders;
       (3) the availability of home Medkits for first responders 
     and their families for biological incident response; and
       (4) other related factors.
       (b) Context.--In preparing the report required under 
     subsection (a), the Comptroller General of the United States 
     may, as appropriate, provide information--
       (1) in a format that delineates high risk urban areas from 
     rural communities; and
       (2) on the degree to which the selected State and local 
     programs and policies included in the report were developed 
     or are being executed with funding from the Department of 
     Homeland Security, including grant funding from the State 
     Homeland Security Grant Program or the Urban Area Security 
     Initiative under sections 2002 and 2003, respectively, of the 
     Homeland Security Act of 2002 (6 U.S.C. 603 and 604).
       (c) Homeland Security Consideration.--After issuance of the 
     report required under subsection (a), the Secretary of 
     Homeland Security shall consider the report's findings and 
     assess its applicability for Federal first responders.

  The SPEAKER pro tempore. Pursuant to the rule, the gentleman from 
Texas (Mr. Hurd) and the gentlewoman from Texas (Ms. Jackson Lee) each 
will control 20 minutes.
  The Chair recognizes the gentleman from Texas.


                             General Leave

  Mr. HURD of Texas. Mr. Speaker, I ask unanimous consent that all 
Members have 5 legislative days within which to revise and extend their 
remarks and to include any extraneous material on the bill under 
consideration.
  The SPEAKER pro tempore. Is there objection to the request of the 
gentleman from Texas?
  There was no objection.
  Mr. HURD of Texas. Mr. Speaker, I yield myself such time as I may 
consume.
  I rise today to support H.R. 2795, the First Responder Identification 
of Emergency Needs in Disaster Situations.
  Our country continues to be resilient because of the men and women 
who keep us safe every day by putting their lives on the line. We can 
thank them by ensuring they have sufficient resources to do their jobs.
  H.R. 2795 will take a national snapshot of the current policies and 
programs that support first responders and their families in the event 
of a terrorist attack.
  By requiring the Government Accountability Office to report this 
national snapshot to Congress and to the Department of Homeland 
Security, we will have a better understanding of the support 
surrounding our first responders and their families.
  Both the National Association of State Emergency Medical Services 
Officials and the International Association of Fire Chiefs are 
endorsing this legislation because it promotes the critical work our 
first responders are always prepared to do despite the challenges they 
face. Events like the Ebola scare that hit the U.S. in 2014 alerted us 
to the impact these events have not only had on our first responders, 
but also on their families.
  I thank Ms. Jackson Lee for introducing this legislation and for 
working with the Committee on Homeland Security to promote this 
important issue.
  I urge all Members to join me in supporting this bill.
  Mr. Speaker, I reserve the balance of my time.
  Ms. JACKSON LEE. Mr. Speaker, I yield myself such time as I may 
consume.
  I rise in support of H.R. 2795, the First Responder Identification of 
Emergency Needs in Disaster Situations, or the FRIENDS Act, as we have 
been very happy to call it as we have crafted it.
  First responders are our Nation's heroes. We know that we are 
gathering together in these final weeks to make sure that we pass the 
9/11 health bill that provided for those who stood in the face of 
danger during the tragedy of 9/11.
  We know that first responders run into burning buildings, that they 
rescue people trapped by dangerous floods, that they put themselves in 
harm's way to protect others, and that, as we well know in these times, 
they deal with terrorism.
  Just last week, in San Bernardino, we saw brave first responders 
heroically pursue two individuals who were fleeing from the scene of a 
deadly attack at an office holiday party.
  We also know that, at the site of that incident, we saw a massive 
number of first responders who were going toward the building. Not 
knowing the threat or whether or not the individuals who had created 
this massacre were still there or how many there were, they ran toward 
the building.
  To do their jobs, first responders must leave their homes and 
families while the rest of us cling to ours. Whether it was to deal 
with the aftermath of a terrorist attack, like the attacks of September 
11, or to give support during a catastrophic disaster, like Hurricane 
Katrina, first responders bravely leave home to save others.
  I had firsthand experiences of both of those incidences, one, a 
natural disaster and, one, a terrorist act.
  I watched as firefighters stayed day after day after day and would 
not remove themselves because they were engaged in recovering their 
colleagues--their brothers and sisters--and those others who had 
perished. They stayed day after day.
  That was a great hardship on those families. We know the stories. We 
know that some of them were dealing with situations in which they may 
have been the only parent or the only guardian.
  In the situation of Katrina, I saw the Coast Guard stay in the area 
time after time and the National Guard and other first responders come 
from all over the country and from even all over the world to be able 
to help those who were in need, and they stayed a very long time.
  Unfortunately, today first responders are asked to answer the call to 
action without knowing whether their families will be safe as they work 
to rescue others. Our first responders deserve better.

                              {time}  1615

  The FRIENDS Act directs the Government Accountability Office to 
conduct a comprehensive review of policies and programs designed to 
ensure that first responders are able to do their job safely and 
effectively by assessing, among other things, measures to ensure first 
responder families are safe and the availability of personal protective 
equipment is there.
  During committee consideration of the FRIENDS Act, my friend from New 
York (Mr. Higgins) offered an amendment to authorize GAO to evaluate 
the availability of home med kits for first responders and their 
families in assessing the preparedness of first responders, maybe even 
being able to take care of their neighborhood or their family or 
themselves in the course of these disasters. I am pleased to support 
the Higgins amendment, and I believe it adds to the bill.
  H.R. 2759 also directs GAO to distinguish policies available in high-
risk urban areas, which may be better resourced, and rural areas where 
efforts to ensure preparedness for first responders and their families 
may require creative leveraging of resources. Many of those areas have 
volunteer fire departments and volunteers who need the assistance from 
this act. This provision will ensure that the information included in 
the report will be applicable and adaptable by various communities 
across the country as they work to better protect their protectors and 
to give them the support system that they need.
  Additionally, the FRIENDS Act directs the Secretary of Homeland 
Security to review GAO's findings and assess whether policies 
identified could be applicable to Federal first responders. The FRIENDS 
Act has been endorsed by the International Association of Fire Chiefs, 
as well as the National Association of State EMS Officials, and the 
International Emergency

[[Page H9259]]

Management Society, along with others.
  Before I conclude, I would like to thank Ranking Member Thompson and 
Chairman McCaul for their help in bringing this important legislation 
to the floor. Let me also thank the ranking member and chairman of the 
emergency preparedness committee and all of jurisdictional committees 
that helped contribute to this. Let me also acknowledge the staffs on 
both sides of the aisle who were enormously effective in helping to 
bring about this bill.
  I want to thank Mr. Hoyer, who for many, many years was a co-chair of 
the Congressional Fire Service Caucus on which I participated with him 
over those years, for his stated support of this legislation.
  Mr. Speaker, as a senior member of the Homeland Security, and the 
author and sponsor, I am proud to rise in strong support of H.R. 2795, 
the ``First Responder Identification of Emergency Needs in Disaster 
Situations of 2015,'' or the ``FRIENDS Act.''
  I thank Chairman McCaul and Ranking Member Thompson for their 
cooperation, assistance, and support in shepherding this important 
legislation to the floor.
  I appreciate Congressman Payne, the Ranking Member of the Homeland 
Security Subcommittee on Emergency Preparedness, Response, and 
Communications, for his original co-sponsorship and strong support of 
the FRIENDS Act.
  The FRIENDS Act embodies the important and fundamental idea that we 
have an obligation to ensure that the first responders who protect our 
loved ones in emergencies have the peace of mind that comes from 
knowing that their loved ones are safe while they do their duty.
  The FRIENDS Act, which reflects stakeholder input and bipartisan 
collaboration with the Majority, is an example of what can be achieved 
for the American people when Members of Congress put the public 
interest ahead of partisan interests.
  I thank the International Association of Fire Chiefs, the National 
Association of State EMS Officials, and the International Emergency 
Management Society for their valuable assistance and input regarding 
the FRIENDS Act.
  I thank Kay Goss; the President of the International Emergency 
Management Society, who provided technical assistance during the bill's 
drafting process on the work of first responders to prepare for 
catastrophic events.
  Kay Goss was Associate FEMA Director in charge of National 
Preparedness, Training, and Exercises during the Clinton 
Administration, the first woman confirmed by the Senate to serve in 
that position.
  I am passionate about the work of those who dedicate themselves to 
public service.
  I hold in high regard the service of firefighters, law enforcement 
officers, emergency response technicians, nurses, emergency room 
doctors, and the dozens of other professionals who are the ultimate 
public servants.
  Few persons outside their ranks truly understand why and how first 
responders are able to do what they do every day--voluntarily and 
cheerfully risk placing their lives in harm's way to save a stranger.
  First responders, whether as law enforcement officers, fire fighters, 
search and rescue workers, or emergency medical technicians make our 
lives safer, often at considerable risk to their personal safety.
  H.R. 2795 provides Congress an opportunity to let our first 
responders know that we do recognize and understand that they have 
families and loved ones who they must leave behind when they are called 
to duty.
  The GAO study that will be provided as a result of this bill will 
shed light on what is being done by local and state governments to 
address the needs of first responder families when threats like 
Hurricanes Sandy, Hugo, and Katrina hit communities, or when a 
terrorist attack like the ones seen in New York and Boston occur.
  The report called for by the FRIENDS Act will also provide 
information on the availability of personal protective equipment for 
first responders.
  The issue of personal protective equipment was an acute problem for 
front line first responders during last year's Ebola crisis.
  First responders including EMTs, emergency room doctors and nurses, 
as well as law enforcement and fire department professionals who 
responded to emergencies were in need of guidance on how to effectively 
treat a person with Ebola without becoming infected.
  I joined members of the House Committee on Homeland Security in a 
Full Committee field hearing last year in Dallas, Texas, shortly after 
the first case of Ebola was diagnosed in the United States.
  That patient, Eric Duncan, lived in the Dallas area and was treated 
at a local hospital, but died of the illness.
  As a result of coming in contact with Mr. Duncan two nurses at the 
hospital where he was treated became ill with the disease.
  During the Dallas field hearing, I brought to the attention of the 
House Homeland Security Committee a letter from National Nurses United 
transmitting the results of a survey of nurses, which found that:
  1. Nearly 80 percent of respondents agreed that their hospital had 
not communicated to them any policy regarding potential admission of 
patients infected by Ebola;
  2. 85 percent of respondents agreed that their hospital had not 
provided education on Ebola to enable nurses to interact with patients 
safely;
  3. One-third of respondents reported that their hospital had 
insufficient supplies of eye protection (face shields or side shields 
with goggles) and fluid resistant/impermeable gowns; and
  4. Nearly 40 percent of respondents agreed that their hospital did 
not have plans to equip isolation rooms with plastic covered mattresses 
and pillows and to discard all linens after use; fewer than 1 in 10 
respondents reported that they were aware their hospital had such a 
plan in place.
  The Centers for Disease Control and a few hospitals around the 
country with infectious disease units knew the right protocols and had 
the right protective gear to be used when treating an Ebola patient.
  Ebola in the United States was a frightening thought for many, but I 
think we saw the best of what first responders do each day--our doctors 
and nurses went to work and treated the sick and did what they always 
do--take care of those in need.
  In unanimously reported the FRIENDS Act favorably to the House, the 
Homeland Security Committee voted to support first responders and the 
people who love them and need them most, their families.
  The FRIENDS Act will help ensure that our healthcare workers, EMTs, 
firefighters, law enforcement, and other local, state, and federal 
first responders can answer the call of duty secure in the knowledge 
that they will have what they need in the way of health kits or an 
emergency response plan to enable them to perform their duty and return 
home safely to their families and loved ones.
  The GAO's comprehensive review of the range of policies and programs 
in place at the State level to address the preparedness and protection 
of first responders will also delineate high risk urban areas from 
rural communities; and the degree to which selected state policies were 
developed or executed with funding from the DHS Grant Programs or Urban 
Area Security Initiative authorized by the Homeland Security Act.
  The GAO Report's focus on the presence of the family of first 
responders in an area affected by a terrorist attack and the 
availability of personal protective equipment is essential.
  This will be the first report that focuses on the family as a 
critical factor that should be considered in the work of first 
responders during times of crisis such as a terrorist attack or public 
emergency.
  The issue of families in areas that may be impacted by terrorist 
attack or other crisis was highlighted by the Ebola crisis in Dallas, 
Texas last year.
  According to Dallas County Judge Clay Jenkins, who managed the 
crisis, one of the chief concerns of first responders was keeping their 
families safe.
  Judge Jenkins recounted that discrimination against first responders 
and their families was a real concern because it was known that EMTs 
and the firefighters accompanying them responded to the home of the 
first known Ebola victim in the United States, Eric Duncan.
  People were so fearful for themselves and their children's health 
regarding possible means of contracting Ebola they did not want their 
children attending a school with the child of first responders who 
might come into contact with Ebola victims.
  For this reason, Judge Jenkins requested the Commissioner of Public 
Health, the top Ebola expert in the United States, and the Dallas 
County Medical Society explain to the public that there was a zero 
percent chance of transmission of Ebola in that scenario.
  In Dallas County and around the nation first responders expressed 
concerns regarding their lack of knowledge about the disease, as well 
as not having the right type of protective equipment to ensure their 
safety in managing the care of possible Ebola victims.
  These are certainly factors that one would expect to weigh on a first 
responder called to respond to a terrorist attack or unprecedented 
emergency.
  The bravery or dedication of first responders is not in question--
they are the people who run into burning buildings to save people whom 
they may never have met.
  The FRIENDS Act is a small token of the nation's gratitude and 
appreciation for all first responders do keep us safe.
  Finally, Mr. Speaker, I wish to acknowledge and thank Natalie Matson 
and her colleagues on the Homeland Security Committee's majority staff, 
Moira Bergin and her colleagues with

[[Page H9260]]

the Minority staff, and Lillie Coney of my personal staff for their 
technical expertise and great work on H.R. 2795.
  I urge all Members to support the nation's first responders and vote 
to pass H.R. 2795, the FRIENDS Act.
  I reserve the balance of my time.
  Mr. HURD of Texas. Mr. Speaker, I have no further speakers, so I 
reserve the balance of my time.
  Ms. JACKSON LEE. Mr. Speaker, I am prepared to close since I have no 
further speakers, and I yield myself the remaining time.
  One of the things that we wanted to do in the course of this 
legislation is to make sure that the stakeholders were fully informed 
and thought this would be a constructive addition to their ability to 
serve the public and to be on call and to be away for long periods of 
time from their families, which they have been called to do.
  As I begin to reflect, I reflected on the wildfires in the West, the 
enormous flooding that we have had, and certainly we cannot forget the 
issues dealing with terrorism. The terrorism investigations, as 
individuals who are victims are buried in California, the first 
responders, law enforcement, and others are still on the job 
investigating what is occurring.
  So, Mr. Speaker, I include a series of letters into the Record from 
the National Organization of Black Law Enforcement Executives, who are 
indicating the importance of this legislation; a letter from the Office 
of the Mayor of the City of Houston, Mayor Annise Parker, who indicates 
that as first responders risk their lives in responding to terrorist 
attacks and other emergencies, they and their families are at increased 
risk; from the Houston Professional Fire Fighters, Association Local 
341, who have written on behalf of the 3,800 men and women of the 
Houston Fire Department, indicating the need for this legislation to 
protect their families; from the National Association of State EMS 
Officials, the International Association of Fire Chiefs on behalf of 
nearly 11,000 fire service leaders for introducing this legislation 
that would provide adequate preparedness for their families; and an 
article which is entitled ``Family Versus Duty: Personal and Family 
Preparedness Law Enforcement Organizational Resilience.''

                                          National Organization of


                             Black Law Enforcement Executives,

                                 Alexandria, VA, December 9, 2015.
     Hon. Sheila Jackson Lee,
     Rayburn House Office Building,
     Washington, DC.
       Dear Congresswoman Jackson Lee: On behalf of the National 
     Organization of Black Law Enforcement Executives (NOBLE), our 
     Executive Board, local chapters, and members, I am writing to 
     express support for H.R. 2795, the First Responder 
     Identification of Emergency Needs in Disaster Situations 
     (FRIENDS) Act. Our nation's first responders risk their lives 
     in responding to terrorist attacks, natural disasters, and 
     other emergencies. Consequently, they and their families may 
     be at increased risk due to exposures they face in responding 
     to disasters. Directing the Government Accountability Office 
     to prepare a report that examines the preparedness and 
     protection of first responders and their families, including 
     an assessment of the grant funding available, will serve an 
     important function by evaluating existing resources to 
     protect first responders and their families and the need for 
     additional resources.
       NOBLE feels that it is important that we equip our first 
     responders to protect our communities while also ensuring 
     that their families are safe.
           Sincerely,

                                           Dwayne A. Crawford,

                                               Executive Director,
     NOBLE.
                                  ____

                                              Office of the Mayor,


                                              City of Houston,

                                    Houston, TX, December 7. 2015.
     Hon. Sheila Jackson Lee,
     Rayburn House Office Building,
     Washington, DC.
       Dear Congresswoman Jackson Lee: I am writing to express my 
     support for H.R. 2795, the First Responder Identification of 
     Emergency Needs in Disaster Situations (FRIENDS) Act. Our 
     nation's first responders risk their lives in responding to 
     terrorist attacks and other emergencies, and they and their 
     families may be at increased risk because of exposure they 
     face in responding to disasters. Directing the Government 
     Accountability Office to prepare a report that examines the 
     preparedness and protection of first responders and their 
     families, including an assessment of the grant funding 
     available, will serve an important function by evaluating 
     existing resources to protect first responders and their 
     families and the need for additional resource.
       We live in challenging times with the threat of terrorist 
     attacks, and it is critical that we are prepared and that we 
     best equip our first responders to protect our cities while 
     at the same time ensuring that their families are safe.
       Thank you for advancing this important legislation.
           Sincerely,
                                                 Annise D. Parker,
     Mayor.
                                  ____

                                         Houston Professional Fire


                               Fighters Association Local 341,

                                    Houston, TX, December 7, 2015.
     Hon. Sheila Jackson Lee,
     House of Representatives, Rayburn House Office Building, 
         Washington, DC.
       Dear Representative Jackson Lee, On behalf of the 3,800 men 
     and women of the Houston Professional Fire Fighters 
     Association, IAFF Local 341, I thank you for your leadership 
     on H.R. 2795, the First Responder Identification of Emergency 
     Needs in Disaster Situations (FRIENDS) Act.
       HPFFA members and our families appreciate your commitment 
     to helping ensure that first responders' families will be 
     prepared in the event of large-scale natural disasters, 
     health crises, or terrorist attacks.
       Thank you for introducing the FRIENDS Act.
       Please let us know if you need anything else.
           Sincerely,
                                              Alvin W. White, Jr.,
     President.
                                  ____

                                           National Association of


                                          State EMS Officials,

                             Falls Church, VA, September 28, 2015.
     Re: Expressing Support for the Jackson Lee Amendment in the 
         Nature of a Substitute to H.R. 2795.

     Hon. Michael T. McCaul,
     Chairman, House Committee on Homeland Security, House of 
         Representatives, Washington, DC.
     Hon. Martha McSally,
     Chairman, Subcommittee on Emergency Preparedness, Response, 
         and Communications, House of Representatives, Washington, 
         DC.
     Hon. Bennie G. Thompson,
     Ranking Member, House Committee on Homeland Security, House 
         of Representatives, Washington, DC.
     Hon. Donald M. Payne,
     Ranking Member, Subcommittee on Emergency Preparedness, 
         Response, and Communications, House of Representatives, 
         Washington, DC.
       We are writing to express our support for the Jackson Lee 
     Amendment in the Nature of a Substitute titled, the 
     ``Families of Responders Identification of Emergency Needs in 
     Designated Situations'' or the ``FRIENDS Act.'' This bill 
     would provide an important report on the state of family 
     support planning for the families of first responders.
       We believe that Federal family support planning is 
     important to homeland security because this area of 
     continuity of operations planning addresses the health and 
     safety needs of first responder families during terrorist 
     attacks or incidents as well as other emergencies. The 
     FRIENDS Act will be an important first step in engaging the 
     first responder community on the role of family in 
     preparedness and continuity of operations.
       The FRIENDS Act would also engage first responder 
     organizations to get their perspectives on best practices in 
     family support planning programs on the local and state 
     levels.
       For these reasons, we support the FRIENDS Act of 2015.
           Sincerely,
                                                  Paul R. Patrick,
     President.
                                  ____

                                      International Association of


                                                  Fire Chiefs,

                                    Fairfax, VA, November 3, 2015.
     Hon. Sheila Jackson Lee,
     House of Representatives,
     Washington, DC.
       Dear Representative Jackson Lee: On behalf of the nearly 
     11,000 fire service leaders of the International Association 
     of Fire Chiefs (IAFC), I would like thank you for introducing 
     your substitute amendment to H.R. 2795, the First Responder 
     Identification of Emergency Needs in Disaster Situations 
     (FRIENDS) Act. The IAFC supports this legislation, because it 
     will examine an important issue facing the nation's first 
     responders during a major terrorist attack: adequate 
     preparedness for the first responders' families.
       During a major terrorist attack, fire, law enforcement and 
     EMS officials will be called upon to take heroic actions to 
     protect the public and provide fire and emergency medical 
     response. In the case of a large-scale incident or biological 
     attack, the families of these first responders also will be 
     at risk. Based on the experience of IAFC members during the 
     response to Hurricanes Katrina and Rita and last year's 
     response to potential Ebola incidents in the United States, I 
     know that the welfare of the first responders' families 
     weighs heavily on them as they serve the public. It is 
     important that federal, state, and local officials make plans 
     to provide for the safety of first responders' families in 
     order to ensure strong morale among

[[Page H9261]]

     local fire, law enforcement, and EMS officials during a major 
     terrorist attack.
       The IAFC thanks the House Homeland Security Committee for 
     considering this substitute amendment to H.R. 2795. It would 
     direct the Government Accountability Office (GAO) to examine 
     planning for first responders' families during terrorist 
     attacks. We urge the GAO to highlight effective plans, so 
     that other jurisdictions can learn from them. We also support 
     Representative Higgins' amendment to make minor changes to 
     the bill, including examining the use of med-kits for first 
     responders' families.
       Thank you for introducing this important legislation. The 
     IAFC urges the House Homeland Security Committee to pass both 
     this substitute amendment and the Higgins amendment. We look 
     forward to working with you to pass this legislation in the 
     House of Representatives.
           Sincerely,

                                    Fire Chief Rhoda Mae Kerr,

                                                    EFO, CFO, MPA,
     President and Chair of the Board.
                                  ____


 Family vs. Duty: Personal and Family Preparedness for Law Enforcement 
                       Organizational Resilience

       It has been more than four years since Hurricane Katrina 
     opened our eyes to the personal struggles faced by law 
     enforcement officers in the wake of disaster. The law 
     enforcement response to Hurricane Katrina brought to the 
     forefront the challenges that ensue when the intended 
     responders become victims. Many law Enforcement Officers had 
     to make the choice between their responsibility to their 
     families and their duties as police officers. As law 
     enforcement officers, how do we balance the needs and safety 
     of our families with our duty to respond in a crisis? As 
     employers and managers of law enforcement officers what are 
     our responsibilities to our employees and their families in 
     developing and maintaining personal and family preparedness? 
     What steps can be taken by organizations to increase employee 
     and family preparedness of law enforcement personnel?
       This article provides an overview of personal and family 
     preparedness of police officers and its relationship to law 
     enforcement organizational readiness. The role of the law 
     enforcement agency in developing and supporting personal and 
     family preparedness will also be reviewed. The overall goal 
     of this article is to develop the general elements of an 
     effective program for law enforcement agencies that advances 
     the personal and family preparedness of law enforcement 
     officers to increase the likelihood that officers will report 
     in emergency situations.


    hurricane katrina: preparedness and organizational effectiveness

       The New Orleans Police Department (NOPD) faced a multitude 
     of challenges in efforts to respond to the impact of 
     Hurricane Katrina that resulted in an ``almost total loss of 
     police capabilities in New Orleans.'' The official reports 
     crafted in the wake of the disaster identify several issues 
     that led to the ``collapse of law enforcement.'' These 
     identified problems included ``missing police officers led to 
     a law enforcement manpower shortage.'' While there were some 
     officers who were derelict in their duties in failing to 
     report, the vast majority had become victims themselves, or 
     dealt with family crises related to the disaster, making it 
     difficult or impossible to report for duty. There are 
     estimates that as much as 5 percent of the NOPD force were 
     stranded at home. Other elements, including the technological 
     failures of electric power grids, communications systems, 
     etc., can be overcome through effective continuity planning. 
     The loss of significant numbers of personnel through their 
     failure to report is completely debilitating for the law 
     enforcement function. Regardless of the technological 
     enhancements, policing is accomplished by people, without 
     them there is no maintenance of civil order.


          previous research: ability and willingness to report

       Although the conditions faced by NOPD in its efforts to 
     respond to Hurricane Katrina were of a scale not seen in our 
     modern history, ensuring that personnel are willing and able 
     to report for assignment is critical. This is an easier task 
     when notice of the potential crisis, such as an approaching 
     Hurricane, is known for several days in advance. Developing 
     the organizational agility for officers to report in sudden 
     unexpected conditions is more challenging.
       There has been little research conducted directly on the 
     ability and willingness of police officers to report in 
     crisis situations. There have been several studies conducted 
     in the public health and healthcare community, and limited 
     studies among firefighters and emergency medical 
     technicians. While there are many parallels that can be 
     drawn across first response organizations, each has unique 
     challenges in different emergency situations that may 
     impact the willingness of responders to report.
       There are two studies that have been conducted on the 
     ability and willingness of law enforcement officers to report 
     in disaster. A 2007 study of police officers in the 
     Washington, DC area by Demme revealed that family 
     preparedness and safety were the determinant factors in the 
     ability and willingness of law enforcement officers to report 
     for duty in the event of a biological incident. In an 
     unpublished study, Nestal (2005) examined the ability and 
     willingness of police officers in Philadelphia to respond 
     using the National Planning Scenarios outlined in Department 
     of Homeland Security preparedness guidance. The planning 
     scenarios presented fifteen disaster situations that range 
     from natural disasters to terrorist attacks. The study 
     revealed that based on the given scenario, 55-66 percent of 
     police officers reported they would refuse to adhere to an 
     emergency recall or would consider abandoning their position 
     based upon concerns for the safety of their family.
       These studies illustrate the importance of family 
     preparedness to the resilience of law enforcement agencies in 
     disaster. Although further research is needed, these studies 
     make employee and family preparedness impossible to ignore in 
     overall agency preparedness efforts.


      the role of the employer in employee and family preparedness

       A recent study by Landahl & Cox (2009) examined the actions 
     being taken by first response organizations related to 
     employee and family preparedness and the attitudes and 
     opinions of senior leaders on the role of the employer in the 
     development of employee and family preparedness. The study 
     showed that 97 percent of homeland security leaders 
     identified that employee and family preparedness is an 
     essential element to organizational resilience during large-
     scale emergencies. In addition, the results showed that a 
     majority (52.9 percent) reported that organizations should be 
     prepared to assume some responsibility for the care of 
     essential employees and their families. The study concluded 
     that ``there is a fundamental disconnect between problem 
     recognition by homeland security leaders and organizational 
     activities; only 29 percent of participants reported their 
     organizations had conducted training in or had written plans 
     to support employees and families during disaster.''
       Essentially, the problem has been recognized, but little 
     has been accomplished towards a solution. Although the issue 
     of employee and family preparedness was exposed during the 
     response to Hurricane Katrina and recognized through 
     research, the issue remains absent from Department of 
     Homeland Security planning and preparedness guidance.


    implementing policy to increase personal and family preparedness

       Law enforcement agencies train officers for confrontations, 
     teach them how to investigate crimes and help them 
     develop skills to earn promotions. However, as leaders we 
     fail to teach our officers how to prepare their families 
     and themselves if they are called to duty during a crisis. 
     To improve the chances that law enforcement officers will 
     be in a position to make the decision to report in a 
     crisis situation, leaders should develop clear 
     expectations through policy and planning; including a 
     Mission Statement and Strategic Plan. According to 
     Whisenand, the agencies that have gone through difficult 
     times, managerially, have had three things in common. Each 
     of these agencies exhibited signs of a lack of leadership, 
     an absence of a shared vision and their strategic plans 
     were either poorly developed or had not been established. 
     Therefore, administrators should create a clear policy for 
     their officers so expectations are established before 
     disaster strikes.
       Such a policy should include the following:


                      emergency recall guidelines

       Clear emergency recall guidelines allow officers to 
     understand the methods and expectations following the 
     notification of off-duty personnel to return to work. The 
     policy should establish how the decision will be made, how 
     officers will be contacted, reporting locations, and expected 
     time from notification to reporting. Notifications may be 
     accomplished through radio communication, telephone contact, 
     pagers, or media utilizing the Emergency Alert System. These 
     guidelines also establish who is exempt from returning. This 
     may include officers who are on vacation, sick leave, or 
     military duty.


                          hold-over guidelines

       These guidelines establish the process for extending the 
     tour of on-duty personnel. This should include the decision 
     process, which personnel may be affected.


                          schedule assignments

       While maintaining the flexibility to respond to a variety 
     of incidents, expected emergency pre-planned shift 
     assignments should be communicated to personnel. For example, 
     agencies may choose to implement 12-hour A/B platoon shifts. 
     The expectation should be communicated to personnel in order 
     to facilitate personal and family preparedness planning.


                         levels of mobilization

       Levels of mobilization should be established to set 
     parameters for how many personnel will report for duty. Will 
     the entire department report or will it be selected 
     divisions, or specialized units that will be mobilized.


                         civilian support staff

       Communicating policies and roles for support staff is 
     critical to emergency operations. They must be included in 
     policies and personal and family preparedness process.


                           logistical support

       Roles and responsibilities for logistical support of law 
     enforcement operations in disasters need to be clearly 
     defined. The Senate Hurricane Katrina report indicated that 
     there were deficiencies in that there ``did not appear to be 
     any pre-planning for food,

[[Page H9262]]

     water, weapons, and medical care.'' Officer's need to know 
     how they will be supported during disaster operations, will 
     they have off-shift food and lodging available? Concerns 
     about on-duty and off-duty support may impact officers' 
     willingness to report for assignment. The clear 
     articulation and communication of support that officers 
     can expect will allow for personal and family planning, 
     strong support efforts may increase response rates.


                             family support

       Agencies must determine their level of commitment to 
     support officer families and communicate the expected 
     relationship between the organization and families to 
     officers. There is a range of support that agencies can 
     provide to families ranging from basic home logistical 
     support to providing a shelter to locate officers' families 
     during a disaster or an emergency situation. If agencies do 
     not plan to provide support to families, they must 
     communicate this expectation and prepare officers and 
     families to be self-sufficient. The decision to provide no 
     support to families may impact recall and dereliction of duty 
     rates.


                        anticipated emergencies

       Following their experience in Hurricane Katrina, the NOPD 
     took a different approach in preparing officers to report for 
     duty prior to Hurricane Gustav in 2008. NOPD provided 
     employees paid time off to prepare and evacuate their 
     families if necessary before reporting for duty. The 
     effectiveness of the strategy on response rates could not be 
     measured as Hurricane Gustav largely missed New Orleans. Pre-
     incident policies such as time off to prepare should be 
     considered and communicated to personnel.


                policy enforcement/discipline guidelines

       Policy should clearly articulate the consequences when 
     officers elect not to report for duty. Leaders must deal 
     decisively with the issue. The failure of the chief executive 
     to address such cases could erode confidence in their ability 
     to maintain discipline within the department. Failure to 
     enforce can also call into question the importance of such a 
     policy.


                         training and exercise

       Training in emergency policies should occur at least on an 
     annual basis and be reinforced regularly by supervisory 
     personnel. Training should include instruction in the 
     development of personal and family preparedness plans and 
     emergency kits. Emergency exercises should include the 
     extension to families, in order for officers to engage their 
     families in the potential impact of agency emergency 
     operations on the home.


                               conclusion

       The general public and agency leadership have the 
     expectation that law enforcement officers report for duty 
     when significant events or crises occurs. An established 
     policy that includes protocols, training, clear 
     organizational mission, and communication of the expected 
     relationship between agencies and families of officers can 
     help officers prepare and facilitate the decision to report 
     for duty. Agency executives must place high organizational 
     value on personal and family preparedness and reinforce it 
     through training, exercise, and the supervision process. 
     Provisions for the safety of officers' families should be a 
     key component of a plan. Planning and policy development can 
     steer the organizational culture to a culture of preparedness 
     that include the families of our most critical asset; our 
     people.

  Ms. JACKSON LEE. Mr. Speaker, as I began, let me thank the first 
responders of this Nation and thank their families for the sacrifice 
that they make. Our first responders rush into dangerous conditions to 
protect us. They deserve to have the peace of mind that their families 
are safe as they courageously help others and other families during 
disaster and crisis. Now, their plate is enhanced. It is fuller dealing 
with not only these disasters, but the potential of a terrorist act.
  So I want to extend my gratitude to all of those who have offered 
their support, again, in particular, the International Association of 
Fire Chiefs for their support in working with us.
  I urge my colleagues to support H.R. 2795.
  I yield back the balance of my time.
  Mr. HURD of Texas. Mr. Speaker, I yield myself the remaining time.
  I, once again, urge my colleagues to support H.R. 2795.
  I yield back the balance of my time.
  The SPEAKER pro tempore. The question is on the motion offered by the 
gentleman from Texas (H.R. 2795) that the House suspend the rules and 
pass the bill, H.R. 2795, as amended.
  The question was taken.
  The SPEAKER pro tempore. In the opinion of the Chair, two-thirds 
being in the affirmative, the ayes have it.
  Mr. HURD of Texas. Mr. Speaker, on that I demand the yeas and nays.
  The yeas and nays were ordered.
  The SPEAKER pro tempore. Pursuant to clause 8 of rule XX, further 
proceedings on this motion will be postponed.

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