EDMG503Wk7

Emergency Operations Centers: The

Ultimate Command Posts

As emergency response agencies realize the efficiencies of the Incident Management System

(IMS), more emphasis is being placed on the tools required to effectively manage. Emergency

operations centers (EOCs) are nothing new; in fact, they date back to the days of the Cold War

and Civil Defense. And while earlier versions were fairly sparse and called into play for natural

disasters or threat of war, today's generation of facilities is as diverse as the variety of

emergencies faced by the fire service.

September 16, 2009

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As emergency response agencies realize the efficiencies of the Incident Management System

(IMS), more emphasis is being placed on the tools required to effectively manage. Emergency

operations centers (EOCs) are nothing new; in fact, they date back to the days of the Cold War

and Civil Defense. And while earlier versions were fairly sparse and called into play for natural

disasters or threat of war, today's generation of facilities is as diverse as the variety of

emergencies faced by the fire service. Just as command posts can range from a hastily

requisitioned storefront to a 40-foot air-conditioned specialized vehicle, EOCs run the gamut

from a convertible class or conference room to an entire stand-alone structure specially designed

to offset local hazards.

The size and composition of most EOCs is dictated by both the local emergency management

structure and local conditions. Communities in hurricane-prone regions often have large facilities

designed to weather the storms. Those in areas hosting nuclear power plants may subscribe to a

completely different set of guidelines, while smaller rural communities will likely have facilities

more reflective of their challenges. Regardless of their size, there are universal concerns that

must be addressed when establishing and planning an emergency operations center.

Perhaps the most basic questions are "Why do we need one?" and "When will it be activated?"

The short answer to the first query is that every community, regardless of size, location and

makeup can face an incident that requires a significant amount of off-site coordination. Here, a

much broader assessment of local needs will be done that includes all predictable generic events,

the potential extent of these events and the identification of the resources that will be mobilized

to manage them. In this context, the term "resources" includes personnel as well as fixed or

mobile assets that must be on site to assist with this management. The hazards and potential

scenarios identified during this process provide the answers to the second half of the question.

Intelligence gathering and sharing is the prime function of any emergency operations center. Any

design must provide all required agencies with a place at the table and a mechanism for

information management. Obviously, public safety radios are a prime means of both receiving

and disseminating information. Where the EOC is co-located with the 911 public safety

answering point (PSAP), this may involve nothing more than the addition of a few consoles or

control sets to the existing electronics. For stand-alone facilities, a more robust approach will be

required. The nature of emergency management also dictates that communications involve more

than just fire, police and emergency medical services, but local government and, in some cases,

private industry as well. This is especially true where utilities are not managed by the

municipality.

Mutual aid channels that provide contact with neighboring communities can supplant local

frequencies and space for amateur radio operators are common additions. Depending on regional

hazards, special hotlines or ring-down circuits can also be installed to provide direct connection

to critical facilities. Access to data is essential, and this can take many forms. Material Data

Safety Sheets (MSDS) and Title Three records may be stored in hard copy or obtained online,

and there is a wide variety of software that can assist in plotting plume releases, and even sharing

information within the EOC. Cable TV monitors are also a prime source of up-to-the-minute

reporting and represent a portion of an exploding video trend.

According to Jeffrey Winbourne of the Washington, DC-based consulting firm Winbourne &

Costas Inc., "The use of video is growing and the number of cameras available to feed the EOC

is increasing. This leads to several considerations related to video, which we didn't have just a

few years ago. To take advantage of the growth in video usage, three operational components are

to be considered: camera field deployment that provides the ability to get video where you need

it — either from a mobile unit or fixed cameras; an analytical capability to determine what video

to display to the decision makers in the EOC; and the EOC displays themselves."

Another factor not considered until recently is the potential for virtualization. With the advent of

VoIP (voice over Internet provider) and RoIP (radio over Internet provider), significant

connectivity and capability can be offered to individuals offsite. While this may reduce space

requirements, there is still some concern regarding security if the public World Wide Web is

used as a carrier and there is no replacement for the synergy gained from everyone being located

in the same room.

Security is obviously an important factor, and this involves several aspects. The building must be

protected from unauthorized entry as well as from a predictable level of attack. A comprehensive

system that includes setbacks, fencing, cameras and access control is required. Construction

materials also play a part here, with reinforced concrete and ballistic glass helping to provide

higher levels of safety. This safety deals not only with manmade threats, but with the weather, as

well. Regardless of their location, facilities should be designed to meet or exceed the highest

historical wind speed. Space must also be allocated for security personnel on site, as credential

screening will normally be required during an activation.

But space for security is but one small portion of the entire floor plan. Sufficient room is needed

for all operational personnel and support systems. Every agency expected to be represented in

the EOC requires, at the minimum, tables and chairs as well as access to critical information and

command and control systems. Additionally, conference rooms — both large and small — allow

for sidebar meetings to occur away from the main operational floor. Restrooms, kitchens and

break rooms must be sized to support a full-scale mobilization, and thought should be given to

dormitory rooms if staff is to be sequestered for an appreciable amount of time. Dependent on

these scenarios, specialty rooms can be dedicated, or can be used for different functions during

non-emergencies.

Regardless of the layout, it is clear that sufficient space is required, not only for today's needs;

but for the needs of tomorrow as well. In researching this article, the author spoke to several

emergency management personnel who — although they occupied relatively new facilities —

were already feeling the squeeze. The lack of storage and insufficient expansion offices were

common complaints. Experience too points to the need for sufficient room to work. A report

released by the Federal Emergency Management Agency (FEMA) in the wake of the I-35 bridge

collapse in Minneapolis had high praise for local officials, but bore critical statements

concerning the emergency operations center. Some participants felt that it was too small to

accommodate the responding public and public safety officials.

Heating, ventilation and air conditioning (HVAC) is another important consideration. Systems

must be sized to properly handle the load of maximum occupancy and take into account

specialized equipment needs as well as the heat generated by the equipment itself. Besides the

obvious creature comforts, there is a need for redundancy, or at least some form of backup in

critical areas. Occasionally, this can be accomplished by zoning and providing secondary units

for every other zone that has interconnecting ductwork. Tying in the HVAC to the fire-alarm

system is another requirement, especially in areas using inert gas extinguishing agents. Failure to

provide such a shutoff will dissipate the agent before it reaches an effective concentration.

The method of air handling also has a measurable impact on the survivability of the facility or,

more correctly, the occupants. At the least, air intakes should be located away from public view

and access to prevent tampering. The ability to exclude outside air is another desirable feature.

High-efficiency particulate air (HEPA) filters remove the majority of particulates from the

atmosphere, and positive-pressure systems that operate in the same fashion as breathing

apparatus cause air to flow from inside the facility out. This is particularly useful during a

chemical, biological, radiological or nuclear (CBRN) event.

While the need for emergency power goes without saying, an analysis of the local power grid is

also in order. Is the proposed site provided with reliable electrical service? Does an alternate

route from another substation exist or can one be provided? Are fiber or high-capacity telephone

circuits in place? If they are not, what is the cost to do so?

Locating away from hazards is desirable, but there are also drawbacks associated with more

remote locations. The greater the distance to the primary telephone company central office, the

greater the exposure to accidental (or intentional) cable damage, especially if the service is above

ground. A bunker in the wilderness may provide the ultimate in protection, but it may add time

to the activation schedule due to travel distances. Inclement weather can also create accessibility

issues for both staff and needed deliveries. If the fuel truck cannot get there during the storm, the

diesel generator may run dry during an extended operation.

There are numerous considerations that will have an impact on facility design. The first series of

responses will help determine the location of the EOC. Using the previous examples, flood-prone

communities are ill advised to build within the flood plain itself, and those protecting nuclear

plants do so best outside the 10-mile emergency planning zone (EPZ). More common

considerations are the avoidance of fixed and mobile hazardous materials, suggesting

construction somewhere other than an industrial area or close to an interstate highway or railroad

freight line.

Of course, in addition to the ideal conditions, reality must also be factored in. Relationships with

existing operations such as the dispatch center need to be considered, as does the current

ownership of a site that may be less than perfect. A large building with room for a tower,

roadway setbacks and sufficient surface parking is going to require a commensurately sized lot

— a fact that may severely limit the choices.

Finally, concern must be shown for environmental issues. Not only should the building be energy

efficient, but efforts should be made to reduce its impact through means such as the utilization of

local materials and the introduction of recycled goods. The National Green Building Council has

developed a rating system for buildings that exhibit Leadership in Energy Efficient Design

(LEED) as a way to gauge the effectiveness of conservation measures incorporated into the

construction.

Like any fire service tool, an emergency operations center must be regularly exercised in order to

build proficiency in its use. However, like any tool, it must be properly designed to perform the

function desired. With careful attention to detail, and the integration of modern construction

practices and technology, EOCs can become valuable assets for successfully managing a wide

range of events.

BARRY FUREY, a Firehouse® contributing editor, is director of the Raleigh-Wake Emergency

Communications Center in North Carolina. During his 35-year public safety career, he has

managed 911 centers and served as a volunteer fire officer in three other states. In 2002, Furey

chaired the Association of Public-safety Communications Officials (APCO) International

conference in Nashville, TN, and in 2005 he received an APCO life membership for his

continued work in emergency communications.