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The Two-Hat Syndrome”: Determining Response Capabilities and Mutual Aid Limitations Belfer Center for Science and International Affairs Rebecca F

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The Two-Hat Syndrome”: Determining Response Capabilities and Mutual Aid Limitations Belfer Center for Science and International Affairs Rebecca F Perspectives on Preparedness August 2002 No.11 “THE TWO-HAT SYNDROME”: DETERMINING RESPONSE CAPABILITIES AND MUTUAL AID LIMITATIONS BELFER CENTER FOR SCIENCE AND INTERNATIONAL AFFAIRS REBECCA F. D ENLINGER WITH KRISTIN GONZENBACH TAUBMAN CENTER FOR STATE AND LOCAL GOVERNMENT Imagine that the National Weather However, an unanticipated problem Service has reported a severe surfaces. Many emergency workers, thunderstorm advisory with tornado particularly fire and rescue employees, watches covering the entire metropolitan work at more than one public safety area. As the torrential rains begin in agency. When contacted, many of the county after county, reports of downed off-duty employees are at work on their U.S. DEPARTMENT OF JUSTICE trees and power lines, trapped people, second jobs at these other agencies. OFFICE OF JUSTICE PROGRAMS OFFICE FOR DOMESTIC PREPAREDNESS and damage to buildings start to pour into Calling them in means they will have to 911 centers. A tornado the size of a city abandon assigned duties at private block has touched down in four metro ambulance services, local hospitals, and counties, and is still moving. Emergency neighboring fire departments. Calling in Executive Session on managers are sending fire apparatus, these employees narrows the pool of Domestic Preparedness ambulances, and police in every direction personnel for nearby volunteer fire to assist trapped and injured people, but departments. The Executive Session on Domestic Pre- paredness (ESDP) is a standing task many responders cannot reach incident force of leading practitioners and aca- scenes because trees and debris have “Public safety agency” is an umbrella blocked roads. Counties invoke mutual phrase for a vast group that includes demic specialists concerned with terror- ism and emergency management. Spon- aid from neighboring municipalities and police, fire, emergency medical services sored by the John F. Kennedy School of open emergency operation centers (EMS), 911 communications, public (EOCs). The state activates its EOC and health, emergency management, and Government, Harvard University, and the U.S. Department of Justice, the ESDP begins to receive calls for assistance. sheriff’s agencies. Public safety brings together experts with operational employers are likely to have developed The storm passes. Citizens continue to call-up plans designed to increase the experience in diverse professional fields that are essential to domestic prepared- call for help. Responders are still having number of personnel available to perform ness -- emergency management, law en- trouble traversing blocked roadways, and the agency’s mission in time of disaster. off-duty personnel cannot reach staging Call-up plans assume that off-duty forcement, fire protection, public health, emergency medicine, national security areas. By the time the storm ends, personnel will report to work when and defense, and elected office. devastation extends across 12 counties. contacted to expand the agency’s All these counties call up off-duty capability. The Perspectives on Preparedness series personnel for emergency shifts and aims to provide useful information to the cancel all scheduled days off. concerned professional communities about how the nation can enhance its abil- ity to respond to the threat of terrorism with weapons of mass destruction. The ESDP Rebecca F. Denlinger is Chief of the Cobb County, Georgia Fire Department also produces discussion papers and and is a member of the Executive Session on Domestic Preparedness (ESDP). case studies. Visit the ESDP website at: Kristin Gonzenbach is a Managing Partner at Callahan Management Strategies, LLC. WWW.ESDP.ORG “THE TWO-HAT SYNDROME”: DETERMINING RESPONSE CAPABILITIES AND MUTUAL AID LIMITATIONS An informal survey of public safety workers The two-hat syndrome prompts a series of initial found that many have some type of secondary questions: Where does an individual’s primary employment, often at another public safety duty lie when personnel call-ups occur? What agency. This dependence on one another may planning do agencies need to do to overcome critically affect public safety agencies in time their reliance on the same individuals? How of disaster. Of particular concern is that does the two-hat syndrome affect a extended breaks between long shifts allow community’s actual response capability? firefighters and EMS personnel to make commitments to more than one agency. The These questions lead to others, equally “secondary” employer is likely to depend upon compelling and problematic: the employee as much as the “primary” employer. The survey, conducted in the Atlanta • How many of an agency’s employees metropolitan area, found that among 16 fire are military reservists and how would departments, an average of 22.2 percent of their activation affect staffing? employees hold two or more public safety positions. Moreover, a significant percentage • Can communities rely on public safety of the public safety workforce has agencies to increase their capability commitments to the military reserve or National to remain effective in a disaster? Guard. If those agencies activate these employees, other agencies could lose up to • If an employee works for two agencies, 13 percent of their workforce.1 who decides where the employee will report if called up by both agencies? Many firefighters have either emergency medical technician (EMT) or paramedic All these questions must be asked and certification and often use those certifications answered to formulate a successful personnel to work for other public safety agencies, call-up strategy. Furthermore, until public hospitals, or private ambulance companies. safety officials share the information they learn This raises questions about how many EMS when asking these questions, no agency can workers are actually available in a given area be certain it has a reliable call-up plan in place. should these employers need to expand In Cobb County, Georgia, the fire department service. Are two agencies counting on the has renewed the process of planning for major same person to be available when planning for incidents. Among the questions that have a disaster? Does a geographic area actually arisen are: “How many firefighters are available have the number of emergency medical within the jurisdiction at any given time?” and responders necessary to handle a crisis? more importantly, “As Cobb County plans to Every jurisdiction must develop a strategic include mutual aid support, is it taking the two- disaster plan that includes the spectrum of hat syndrome into account?” service providers, or it may be left underserved in a disaster. The Two-Hat Project Survey The Two-Hat Syndrome The Two-Hat Project survey, conducted in over 14 metropolitan Atlanta counties, showed that The two-hat syndrome is the dynamic in which communities might not have a firm grasp of public safety workers hold at least two public what personnel will be available in a disaster. safety positions. In an emergency, these None of the agencies was able to readily workers might be called upon to perform both identify the number of employees who wear jobs, or to wear both hats. Because each two or more hats, where these people worked, employee would be able to fill only one position, or how this might affect disaster response public safety agencies should identify which plans. When asked about the likelihood that employees wear more than one hat, and this syndrome would have an impact in his discuss how critical each of those hats is to agency, one respondent stated, “It is not an each employer. issue for us, because our agency is their primary employment.”2 2 PERSPECTIVES ON PREPAREDNESS / NO. 11 / AUGUST 2002 “THE TWO-HAT SYNDROME”: DETERMINING RESPONSE CAPABILITIES AND MUTUAL AID LIMITATIONS Other conflicts often arise when career fire and (EMA), police chief of a small city within the rescue personnel compose a considerable county, and head of security for the local portion of volunteer agencies in other hospital. Plans must be in place to determine jurisdictions. If these personnel respond to their who will fill these roles should it be necessary primary employers, fewer will be available to to staff more than one during a crisis. serve volunteer fire departments. Counties and Interviews with chief officials of public safety municipalities also often hire private ambulance agencies revealed that these officials often fit contractors to transport patients in their the two-hat profile, though they had not communities. The Two-Hat Project survey considered the problem or their own limitations found that many of these private ambulance when planning for disaster. Top public safety companies employ significant numbers of off- managers who are also assigned critical roles duty firefighters and EMS workers. In one case in their community EMAs often seemed to fit in Cobb County, 33 percent of an ambulance this description. company’s workforce was off-duty firefighters. Events such as the terrorist attacks at the Owing to a nationwide shortage of health care World Trade Center and the Pentagon, workers, a growing number of EMT’s and Hurricane Andrew’s landfall near Miami in 1992, paramedics are also being recruited for part- and the floodwaters of 1994 in southwest and full-time employment in local hospitals. Georgia required lengthy emergency and This adds to the quandary of whether enough cleanup operations and unusually high EMTs and paramedics are available to respond availability of essential personnel. Any call-
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