TRANSITION OF FIRST RESPONDERS

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TRANSITION OF FIRST RESPONDERS FROM NORMAL
INCIDENT RESPONSE TO DISASTER LEVEL PATTERNS- A
GROUNDED THEORY APPROACH

• Priscilla David
• Catherine Cook-Cottone
• Raj Sharman
• H. Raghava Rao
• Shambhu Upadhaya
• University at Buffalo, SUNY

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Objectives of the Study

• To study the transition of first responders from
  normal incident response to disaster level
  patterns
• To analyze the data collected from first
  responders from the October 2006 Snow Storm in
  Buffalo to understand their transition

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Grounded Theory

• The Perspective of the First Responder
• Open Coding (naming phenomenon)
• Axial Coding (process of relating codes to each
  other)
• Selective Coding (finding core categories and
  themes)

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Questions Under Study

• During the October Storm, first response
  infrastructure shifted from normal simple
  incident response patterns to disaster level
  patterns
• (a) Describe how you knew the transition was
  needed.
• (b) Describe how the functions of your unit
  changed during and after this transition.
• Please describe the most difficult tasks during
  the transition from normal simple incident
  response patterns to disaster level patterns
  during the October Storm.

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Problems in Evolving Disaster Response Systems

• Communication systems
• Comfort et al., (2004) state that when one
  method or process fails, the normal psychology of
  man is to opt for the next method thus
  overcrowding that method which causes the failure
  of the alternative method.
• Auf der Heide (2006)
• reports that in some EMS a common radio
  frequency for communication has not been
  established.
• In the event of a disaster, communication
  problem are a huge hindrance when one emergency
  response team is trying to communicate with
  another.

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Problems in Evolving Disaster Response Systems

• Coordination systems
• Coordination by plan Definite procedure that has
  to be followed by the EMS experience success or
  additional challenge based on their activity.
• Coordination by feedback Errors and successes of
  incidents are noted lessons are learned from
  past experience

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Coordination Problems Unexpected Help

• Unexpected help Instant rescue operations are
  performed by those who are present on the scene,
  the civilians.
• Their attempts to respond to the disaster are
  often not well coordinated lead to impairment of
  the organizational efficiency during a disaster.
• Unexpected help Auf der Heide (2006) Help comes
  from unexpected sources when it may not be
  required. Having more help than for which was
  planned, leads to the additional coordination
  problem.

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Coordination systems (discussions from Comfort
et al., 2004)

• Training and education guides the responders
  during uncertainties
• Three types of responses during disaster
  recovery
• Blind response occurs when the responders do not
  have information about the time and severity of
  the specific call or need.
• Time-based response is when information is
  available to responders based on time of demand
  (first come first serve basis).
• Severity-based response occurs when information
  is provided about the time and severity of the
  incident wherein severity is the predominant
  factor (calls would be triaged)
• If resources are used to the maximum and not
  conserved at the preliminary stage, they are
  exhausted and are not able to work to the best of
  their ability at progressing stages of the
  disaster.

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Problems in Evolving Disaster Response Systems

• Flexible leadership and first responder role
  adaptation
• Waugh Streib (2006) Rigid method of
  hierarchical decision making is not effective.
• Kelly (1995) Flexibility may also play a role in
  FR efficacy. FRs often perform tasks beyond their
  roles and responsibilities.
• Waugh Streib (2006) Role adaptation and
  intensification is experienced in most disaster
  response situations

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Questions Under Study

• During the October Storm, first response
  infrastructure shifted from normal simple
  incident response patterns to disaster level
  patterns
• (a) Describe how you knew the transition was
  needed.
• (b) Describe how the functions of your unit
  changed during and after this transition.
• Please describe the most difficult tasks during
  the transition from normal simple incident
  response patterns to disaster level patterns
  during the October Storm.

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Theoretical Construct Event Indicators
Concepts Category Response
Apparent Magnitude of destruction Magnitude and Complexity of event Could visibly see the devastation
Magnitude of event Magnitude and Complexity of event The overall scale severity of damage to widespread area
Complexity of the event Magnitude and Complexity of event Complexity and extent of the event made this obvious
Theoretical Construct Impact Indicators
Concepts Category Response
Loss of Electricity Civic infrastructure effects of event Major power outage
Driving Ban Civic infrastructure effects of event This was very obvious- driving ban, no power
Disconnection of Cellular Services Civic infrastructure effects of event Cell phone services swamped
Limitations of travel for responding units Civic infrastructure effects of event We were unable to get our vehicles out of station
Need to assist public Community Impact Assist the public with utility problems and transport the sick
Impact on the public (Panic, etc) Community Impact One was able to tell there was a widespread panic
Need for more resources Resource Demands When more resources were needed and the call volume kept rising
Overwhelming Emergency calls Resource Demands The storm produced a tidal wave of calls
Inability to keep up with emergency calls Resource Demands Call volume increased. Late response increased
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Theoretical Construct Experience Indicators
Concepts Category Response
Assessment based on experience Experience as responder The disaster level was greater than we had ever experienced before
Communicated about the storm Indicators apparent in operating procedures Town-wide communications of the state of the Town
Shift in response plan Indicators apparent in operating procedures When the emergency response team was activated
Leadership Indicators apparent in operating procedures By direct orders through supervisors
Theoretical Construct Responder Role Change
Concepts Category Response
Specific change in role Role Adaptation Type of work changed We were tasked with functions not part of our normal duties
Shift from emergency care to assistance Role Adaptation Type of work changed Immediate emergency care to more of an assistance team
Shift from normal operation to public service assistance Role Adaptation Type of work changed went from primarily enforcing the law to helping people with home problems
Augmented work shifts Role Intensity At work we just extended shifts
Same Function but increase in magnitude Role Intensity The functions stayed primarily the same, the scale just became larger
Handling increased calls Role Intensity Call volume increased. Late response increased
Changes in Response Time Increased Difficulty in Role Performance Response to specific calls became more difficult because trees, snow
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Theoretical Construct Integration of Response
Concepts Category Response
Increased Coordination (among Responders, departments) Coordination, Collaboration and Emergency Operation Plan Activation Everybody worked well together
Different units came together Coordination, Collaboration and Emergency Operation Plan Activation Unit's came together in a timely manner
Responders split into teams Coordination, Collaboration and Emergency Operation Plan Activation We were split up into teams
Type of Transition in the functions of the unit Coordination, Collaboration and Emergency Operation Plan Activation Smoothly
Increased need for resources Resources and support from outside more man power
Insufficient amount of resources Resources and support from outside resources became low
Functions changed to increased information communication with public Resources and support from outside communication with residents
Functions did not change( Required outside assistance) Resources and support from outside We just integrated outside assistance were needed
Personnel relief and respite Resources and support from outside able to release a few personnel at a time
Increased Communication (among Responders, departments) Communication and coordination issues More technology in form of communications
Problems in Communication (among Responders, departments)- Negative Communication and coordination issues Transportation and communication problems
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Theoretical Construct Disaster Impact
Concepts Category Response
Work around for failed systems Failed Systems Setting up work arounds for failed systems
Most difficult period during the storm Storm Impact This was the most difficult first 8 hours of the storm
Responder mobility issues Storm Impact Getting through all of the damage was difficult
Impact of Driving Ban Storm Impact Trying to re-open our facility when there were still community driving bans
Theoretical Construct Resource Demands
Concepts Category Response
Resource Management (Managing the available) Physical Resource Needs Deployment of man power
Need for Resources Physical Resource Needs Getting man power to handle the severe volume
Unavailability of Technology- Electricity Loss Physical Resource Needs Dealing with power outage and access to pre existing programs.
Extended shifts Responder Needs I worked 27 hours in a row after coming off a 12 hour shift
Personal needs of the Responder Sleeping in the hall without family on cots for 2 days
Training Trying to prepare personnel and equipment to do a job
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Theoretical Construct Community Issues
Concepts Category Response
Protect the public and provide care/service to them Concern for safety and community prevent the public from electrocution hazards
Concern for family safety Concern for safety and community Making sure home life was ok
Delayed response times Delays Response time to storm victims was much greater
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Conclusion

• The qualitative analysis of the FR reports
  regarding the Buffalo October storm suggests that
  there are three are three major areas to consider
  when working towards understanding the nature of
  the transition to a disaster-level response
• disaster-indicators
• FRs must be good assessors of event-specific-indic
  ators
• dynamics-in-transition
• disaster-impact
• i.e., civic-infrastructure-effects,
  community-impact, and resources-demands
• use FR experience to evaluate these data.
• Also critical is the ability of FRs to negotiate
  the dynamics of the transition to a disaster.
• requires role flexibility and adaptation as FRs
  respond to increases in the intensity of their
  work as well as increases complexities of role
  performance.
• the dynamics-in-transition appear to include
  substantial coordination and communication
  demands.
• the transition to a disaster level response
  hinges on the actual disaster impact. That is,
  the impact on systems, physical resources,
  responders, and the community.