[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,
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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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