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Emergency Response Management in Today´S Complex Society

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Emergency Response Management in Today´S Complex Society Emergency Response Management in Today’s Complex Society Complex in Today’s Management Response Emergency Type of emergency Edited by Lars Fredholm Questions about how the command of emergency response operations and Anna-Lena Göransson and emergency response management can be improved are discussed Extent of affect: energetically; and the demands on those who prepare or manage the Countries various forms of emergency response work are growing. Country With this book the Swedish Civil Contingencies Agency wants to Region Lars Fredholm works as an emergency resear- Town stimulate reflection and dialogue on emergency response manage- cher at the Swedish Civil Contingencies Agency Town district / street Emergency Individual/ group of people ment and on the organised coordination of different types of and an adjunct professor at the Faculty of Engineering, Lund University, Department of Fire emergency. The book is intended for those who work with the Safety Engineering. He is presented in detail on management of problems related to command work in critical situa- page 6. Needs domains Measures domains Response tions, for example, decision makers in qualified management roles, • Life saving • Emergencies as system developers who work with designing management functions Anna-Lena Göransson is a Doctor of Philo- • Protection of property physical events sophy in the theory and practice of teaching • Protection of the • Mankind and its and other preparations, and instructors who design and execute environment social context Management in and learning Swedish, and her research • Support for life • Threatened or affected courses on emergency management and command. interests centre on langugage use and the and necessities societal functions All of the chapters are based on theoretical knowledge from several question of how to use language as a tool that • Recovery can unite theory and practice in various forms research areas and on practical experience from municipal fire Today’s Complex of vocational training. brigades. Emergency management and command issues are analysed and discussed from various perspectives, based on the fundamental Need for Operational assistance response value that the assistance needs of those in distress should be the Society starting point for demands on emergency management and the design of miscellaneous command functions. Competence of Emergency Legal conditions those involved Response Preparations Management Resources Swedish Civil Contingencies Agency (MSB) SE-651 81 Karlstad, Sweden Phone +46 (0)771-240 240 www.msb.se Order number: MSB210 - December 2010 ISBN 978-91-7383-104-8 MSB Unusual events are normal. It is improbable, however, that an unusual event will occur at any given point in time, such as tomorrow. Allan Gut, professor in mathematical statistics, Uppsala University Edited by Lars Fredholm and Anna-Lena Göransson Emergency Response Management in Today’s Complex Society Swedish Civil Contingencies Agency Reproduction of the contents of this book, in whole or in part, without the express written permission of the Swedish Civil Contingencies Agency (MSB) is prohibited by the Swedish Act on Copyrights in Literary and Artistic Works (1960:792). The prohibition applies to all reproduction by printing, copying, recording, etc. Emergency Response Management in Today’s Complex Society Original Swedish title: Ledning av räddningsinsatser i det komplexa samhället Editors: Lars Fredholm and Anna-Lena Göransson Translation editor: James Butler Graphic designer: Advant Produktionsbyrå Illustrator: Per Hardestam (except for pages 127, 131); other images sources, see page 316. Project manager: Jan Ahlberg and Samuel Koelega Printed by: DanagårdLiTHO Year of publication: 2010 Order number: MSB210 - December 2010 ISBN: 978-91-7383-104-8 © The authors and the MSB Contents Lars Fredholm and Anna-Lena Göransson Introduction 7 Notes from the translation editor 12 Lars Fredholm 1. Dealing with all types of emergency from everyday accidents up to disasters 13 Ann Enander 2. Human needs and behaviour in the event of emergencies and social crises 31 Staffan Harbom 3. Management of various types of emergency 73 Lars Fredholm and Mattias Åström 4. Incident command and decision making 109 Gerry Larsson 5. Theoretical reflections on leadership 123 Per Johansson 6. Legal grounds for emergency response operations 151 Stefan Svensson 7. The theory of fundamental tactics 185 Erik Cedergårdh and Thomas Winnberg 8. Structuring a command organisation 197 Samuel Koelega 9. Command support 249 Per-Anders Berthlin 10. International emergency response operations 269 Lars Fredholm 11. Preparing for the future 305 List of Illustrations 316 Lars Fredholm works as an emergency services researcher at the Swedish Civil Contingencies Agency and has been an adjunct professor at the Faculty of Engineering, Lund University, Department of Fire Safety Engineering. He is a fire protection engineer and doctor of pedagogy and previously served as a fire officer in the Swedish fire service. He has also worked as a researcher at the Swedish Defence Research Agency and the Swedish National Defence College. Anna-Lena Göransson, is a Doctor of Philosophy in the theory and practice of teaching and learning Swedish. Her research interests centre on language use and the question of how to use language as a tool that can unite theory and practice in various forms of vocational training. Lars Fredholm and Anna-Lena Göransson Introduction In the future, greater demands will be placed on the management of emergency response than has previously been the case. One contributing factor is that society as a socio-technical system has become more complex and diverse, with various activities that interact with one another and that are dependent on one another. A second contributing factor is the perception of societal safety issues, which have changed radically since the end of the Cold War. A third is the necessity for various authorities and organisations to cooperate more during emergency response than has previously been the case. A fourth is an increase in activity on an international level and cooperation within the European Union. With this book, we would like to stimulate dialogue on the work of emergency response management and organisational coordination during various emergen- cies. Dealing with all types of emergency from small everyday accidents up to disas- ters is key, and something that demands openness and responsiveness to society, and the ability to cooperate with other bodies. The analyses and discussions are based on the problem of exercising command at emergency response operations (fire brigade), and expanding upon this the exercise of emergency response manage- ment during emergencies other than those encountered only by municipal fire bri- gades. The book is intended to inspire reflection so as to enable the reader to develop new ideas and solutions. It consists of a number of chapters containing discussions and analyses of selected areas that are important when it comes to exercising emer- gency response management over emergency response operations. The entire array of problems that management processes involve can naturally not be covered, and this book should not be seen as a definitive answer to how various management problems should be resolved. Several common basic values characterise the view of emergency response mana- gement that is presented in this book. What is most important is that the need for assistance should be the basis for setting the requirements for emergency response management and how management processes should be designed. Another value is that an emergency entails a crisis for systems that are affected by the emergency. Viewing society as a socio-technical system means focusing on relationships bet- ween people; and between people and technical/physical environments. The evolu- tion of society has meant that the extent of such relationships has increased, with regards to the breadth and the volume of the interacting relationships. The increased breadth of relationships entails, for example, that people in one region are depend- ent on systems in other regions and even in other countries. International compa- nies, banking, the insurance business and food supply are all examples of such sys- 7 tems. The increased volume of relationships means that people in the various regions are now included in several of these systems. The evolution of society has also led to physical/technical environments having significantly more sources of risk than before. Technical development has introduced sources of risk with consi- derable potential for causing damage that can spread via the interdependent rela- tionships that have developed between the various systems, both locally and inter- nationally. Examples of such risk sources are nuclear power, hazardous industries, oil tankers, etc. The increasing extent and volume of relationships between people and groups of people also introduce sources of risk that can cause substantial nega- tive effects, e.g., ethnic conflicts, political extremism, suspicion about authorities, social isolation, etc. Terrorism is a current manifestation of such conditions. Since the end of the Cold War, attitudes towards societal safety issues have radically changed. Types of threat other than military attacks have gained a pro- minent role in safety management. A spectrum of conceivable peacetime emer- gencies has been a significant cause for changed attitudes during recent years. The Act on Extraordinary
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