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Public-Private Partnerships for Emergency Preparedness: Developing Partnerships

PURPOSE Discusses methodologies for developing relationships between public and private sector groups to coordinate emergency preparedness and response efforts. SUMMARY Public and private sector groups often have limited or ineffective partnerships that fail to coordinate all-hazards operations, interests, assets, and capabilities across sectors. Misperceptions and a lack of trust between the two sectors in the prevention, mitigation, planning, response, and recovery stages can prevent or inhibit the establishment of effective partnerships necessary to achieve common preparedness goals. Public and private sector groups must engage in a concerted, enduring effort to build effective partnerships with each other to coordinate emergency prevention, preparedness, mitigation, response, and recovery efforts. DESCRIPTION Both the public and private sectors have a stake in disaster prevention, mitigation, response, and recovery, but they often lack the relationships necessary to coordinate preparedness efforts. In many communities, public safety agencies and private sector entities conduct planning and preparedness operations largely independently of each other. As a result, each often fails to fully understand or appreciate the other’s role in emergency prevention, preparedness, mitigation, response, and recovery. Public safety agencies often underestimate the private sector’s interest and involvement in emergency preparedness efforts. Private sector groups can overestimate the capabilities of public sector partners, failing to recognize the need for their own contributions to an incident response. In addition, the private sector often perceives cooperation with public safety agencies as risky because of concerns about the protection of proprietary information and public disclosure regulations. A partnership in which public and private sector members divulge sensitive information, dedicate resources, and commit time and energy to achieving common preparedness goals requires relationships of mutual trust and understanding. This Best Practice identifies processes to engage public and private sector groups in dialogue to overcome these misperceptions and to develop effective partnerships to accomplish common preparedness goals. Though these processes are outlined in a clear order below, in reality, public and private sector groups often define objectives, build relationships, and secure commitment through an informal, continuous process of engagement. Partners may need to engage each other over a lengthy period of time to develop effective partnerships, as the benefits of public-private partnerships may not be immediately evident.

Third-Party Facilitation

Cross-Sector Dialogue

Emergency Management

Private Sector State and Local Executive Offices

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Define Purpose and Objectives When developing partnerships to coordinate emergency prevention, mitigation, response, and recovery efforts across the public and private sectors, the partnership’s initiator should first develop a draft purpose and objectives. For example, the mission of the Ventura County, California Private Sector Terrorism Response Group (VC PSTRG) states that “…the members of the VC PSTRG are committed to supporting the nation’s homeland security policy by identifying and prioritizing critical infrastructure and key resources in Ventura County and protecting them from terrorist attacks through strategic partnerships with national, state, and local counter-terrorism leaders.” Public and private sector groups are more likely to participate in a partnership with a clear purpose and objectives. In addition, a clearly defined purpose will enable the group initiating the formation of a partnership to identify potential partners. Though the partnership’s general purpose should be defined before approaching partners, its specific functions should be kept open to discussion among all partners in the first stages of relationship-building to keep partners engaged and build consensus. Identify Partners A public or private sector group interested in initiating a partnership should next identify which groups are appropriate and are likely to participate. A partnership’s initial members should consist of a core group of organizations necessary to achieve objectives; establishing too large a group in the first stages of a partnership may prevent effective relationships from forming. A partnership’s intended size and purpose defines initial membership, in addition to criteria like geographic location, industry or discipline type, or pre-established contacts. Public sector partners often include federal, state, and local public safety agencies, elected officials, and public utilities. Private sector members of public-private partnerships can include:

Civic organizations such as business councils;

High-risk or high-threat facilities;

Large employers;

Local businesses and manufacturers;

Local media representatives with administrative roles, such as station managers;

Nonprofit volunteer organizations such as the American Red Cross;

Organized labor;

Private owners and operators of critical infrastructure;

Professional associations such as the Building Owners and Management Association (BOMA);

Providers of response- and recovery- related services such as private security or construction firms;

Regional and local organizations such as Chambers of Commerce;

Schools and universities; and

Transportation firms and organizations. Though initial membership should be limited to a core group of potential partners, public and private sector partners can begin to identify

Changing Criteria for Membership

ChicagoFIRST initially included only Chicago-area public safety agencies as local-level strategic partners. After having achieved several of its primary objectives, the group is considering expanding to include public safety agencies in surrounding counties. These new strategic partners would help ensure the security of members’ back-up sites located outside of the city.

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other entities that should be included in the later stages of partnership building. Because the private sector is not organized along strict jurisdictional lines, public-private partnerships should initially base membership on existing networks and relationships and not exclusively by jurisdiction. Interdependencies across sectors or industries often require a more inclusive approach to public-private collaboration on preparedness issues. For example, a 2005 statewide exercise involving a simulated outbreak of plague revealed that clean water could not be produced if quarantine and isolation rules prevented the shipment of chlorine and other chemicals to the area. In cases such as this one, interdependent industries and/or groups should be involved in a partnership‘s efforts. Communities or industries with significant interdependencies may choose to build the partnership around a larger or regional geographical area. As public-private partnerships come to better understand interdependencies between industries or firms, they can begin to include new areas or members. Approach Partners The group initiating the formation of a public-private partnership can develop incentives to persuade public and private sector groups to join. An established, trusted, and well-known convening entity or authority, such as a federal regulatory agency or a large corporation, can also encourage participation. Incentives for participation can include a description of anticipated tangible results, a proposed project for collaboration such as a public- private joint training exercise, or a demonstrated need for collaboration on preparedness issues. Secure Commitment When approaching potential partners, securing the commitment of the appropriate public and private sector personnel can help establish support for the partnership within an organization and ensure its success. Developing personal relationships among individuals from public and private sector groups can result in more effective coordination. Though these personal relationships are often the most effective means of securing a group’s commitment, organizational relationships must also be maintained to ensure continued commitment as individuals retire or are promoted or replaced. Individuals directly responsible for an organization’s prevention, mitigation, response, and recovery efforts are most likely to dedicate time and resources to the partnership’s efforts and incorporate joint initiatives into the organization’s internal plans and procedures. The support of potential partners’ senior level personnel can also benefit partnerships by ensuring that the substantial time and resources required to contribute to efforts and develop relationships is authorized. In addition, the demonstrated support of senior-level personnel for a public-private partnership will communicate its importance to others, helping to secure support throughout the organization. Ongoing prevention, preparedness, response, and recovery efforts require an organizational point of contact with the relevant decision-making authority to execute rapid decisions, agreements, and assurances. Though individuals directing an organization’s mitigation, response, and recovery operations may possess considerable authority, partners

Developing Incentives A survey of ChicagoFIRST members indicates that they joined the partnership because they:

Believed in the proposed mission; Were convinced of the benefits to

business; and Were persuaded by strong early

leadership.

Public-Private Facilitation

Michigan State University’s Critical Incident Protocol: Community Facilitation Program (http://cip.msu.edu/faq.html) offers fully funded public- private partnership facilitation to communities nationwide.

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may still need to reach senior-level personnel to share critical information and coordinate the decision-making process. Securing the commitment of both senior-level personnel and individuals with mitigation, response, and recovery duties in the early stages of a partnership can help ensure the partnership’s success in developing joint plans and coordinating operations before, during, and after emergencies. Initiate Dialogue Once an organization’s support is secured, a partnership’s initiators often extend an invitation to the appropriate personnel to attend an open-house meeting or other forum for initial discussion. Initial discussion of a public-private partnership is frequently an informal dialogue in which partners discuss needs and interests, build cross-sector relationships, and help refine the partnership’s purpose. Dialogue between public and private sector groups is an opportunity for all participants to better understand shared interests in emergency preparedness, build trust and transparency, and communicate needs. Initial dialogue between partners should open with discussion of motivations to manage expectations and reduce perceptions of divergent interests. It is important to ensure that all members are equally able to influence and contribute to the partnership starting with the group’s initial meeting. Groups that are unable to influence a partnership may be less likely to commit time and resources. Partners should discuss groups’ capabilities and resources and identify opportunities for mutual assistance. Third-Party Facilitation Public and private sector partners may benefit from a trusted third-party facilitator in the first stages of dialogue and partnership building. A facilitator can bring outside expertise into the process, relieve member representatives of some responsibilities, and increase trust among participants by helping to ensure that no single member dominates the process. Facilitators should be neutral, trusted, and capable. The private sector may benefit especially from a facilitating organization exempt from Freedom of Information Act (FOIA) or state public disclosure laws. Examples of third-party facilitators include professional associations, non-profit organizations, and consultants. Build the Partnership Establish Objectives by Consensus Members should agree on a partnership’s initially defined objectives to give partners a sense of direction and purpose, helping to ensure that the partnership is maintained. Objectives that reflect the interests of all members help ensure members’ commitment. A partnership’s objectives should be realistically attainable to help secure members’ support. Objectives can be established during joint meetings or through a survey issued to a partnership’s members. Identify Leaders To achieve identified objectives, a partnership can begin discussion of a strategic plan or establish task forces around each identified objective to help ensure its realization. For example, ChicagoFIRST creates a task force led by a designated individual to accomplish each identified objective. According to the Department of the Treasury’s “Improving Business Continuity in the Financial Services Sector: A Model for Starting Regional Coalitions” (http://www.fsscc.org/reports/ChicagoFIRSTHandbook.pdf), identifying leaders can help prevent redundant efforts, ease communication among members, and provide the partnership with an individual accountable for each objective. Leaders should be supported in their efforts by their respective institutions, able to dedicate significant time and resources to the partnership, and effective at managing the interests of a group of equal

Meeting Common Objectives

In some cases, an objective is shared by several, but not all, partners. In these situations, partners with common interests may benefit from working together outside of the partnership.

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partners. A partnership’s strategic plan or task forces can establish a standard meeting schedule, outline the activities necessary to achieve objectives and partners’ responsibilities, and develop other standards for the regular activities of a partnership. Plan Regular Activities Establishing procedures for routine contact and collaboration between partners can help ensure relationships are maintained in the future. Maintaining the partnership through regular activities is especially important for regional partnerships with many members spread out over a large geographical area. Public-private partnerships often convene on a monthly or quarterly basis, though the frequency of a partnership’s meetings can vary depending upon the group’s size, purpose, or assignment of responsibilities. In addition to meeting regularly, partnerships that continuously identify new objectives help maintain the existing level of commitment and give members tangible returns on invested time and resources. Planning and conducting joint exercises is a common method of identifying new objectives and maintaining involvement in a partnership. RESOURCES References Department of the Treasury. Improving Business Continuity in the Financial Services Sector: A Model for Starting Regional Coalitions. December 2004. http://www.fsscc.org/reports/ChicagoFIRSTHandbook.pdf

Executive Session on Domestic Preparedness. “Beyond Business Continuity: The Role of the Private Sector in Preparedness Planning”. Perspectives on Preparedness. Volume No. 6, August 2002. http://bcsia.ksg.harvard.edu/BCSIA_content/documents/Beyond_Business_Continuity.pdf

Lessons Learned Information Sharing. Good Story: “Michigan State University’s Critical Incident Protocol: Community Facilitation Program”. 14 October 2004. (LLIS.gov ID# 10680)

Northeast States Emergency Consortium. How to Build a Public-Private Partnership. http://www.serve.com/NESEC/Two

School of Criminal Justice, Michigan State University. Critical Incident Protocol: A Public and Private Partnership. 2000. (LLIS.gov ID# 150)

Links Business Executives for National Security (BENS): www.bens.org

ChicagoFIRST: www.chicagofirst.org

Michigan State University’s Community Facilitation Program: http://cip.msu.edu DISCLAIMER This website and its contents are provided for informational purposes only and do not represent the official position of the US Department of Homeland Security or the National Memorial Institute for the Prevention of Terrorism (MIPT) and are provided without warranty or guarantee of any kind. The reader is directed to the following site for a full recitation of this Disclaimer: www.llis.gov.