Earthquake Infrastructure and Facility Windshield Rapid ...

Brea Fire Rapid Assessment 1

RUNNING HEAD: EARTHQUAKE WINDSHIELD RAPID ASSESSMENT

Earthquake Infrastructure and Facility Windshield Rapid Assessment

For the

Brea Fire Department

Steve Wood

Brea, California Fire Department

August 12, 2010


CERTIFICATION STATEMENT

I hereby certify this paper constitutes my own product, that where the language of other is set forth, quotation marks so indicate and that appropriate credit is given where I have used the language, ideas, expressions, or writings of another.

Signed:


Abstract

The problem is that the Brea, California Fire Department does not currently have plan for

a rapid damage windshield assessment following devastating emergencies such as an earthquake.

The purpose of this paper was to evaluate and prepare the Brea Fire Department with a plan that

will provide essential immediate information that will ensure proper resources are requested and

deployed within the City of Brea.

The purpose of this research, utilizing action research methodology, was to develop a

standardized rapid damage assessment procedure for the Brea Fire Department to be utilized

immediately following an earthquake.

Four basic questions defined the parameters of this research: What data does the

Operational Area (Orange County Emergency Management Bureau) require in regards to

immediate damage assessment? What data does the California Emergency Management Agency

(Cal EMA) require in regards to timely damage assessment? What windshield survey

requirements and best practices are utilized by other fire departments within California? What

windshield survey requirements and best practices should the Brea Fire Department incorporate

into a damage assessment standard operating guideline?

Research was conducted utilizing literature review and a questionnaire (Appendix B) sent

to twenty selected California fire departments with extensive experience in earthquake rapid

damage assessment. The results and recommendations are the Brea Fire Department must

develop a windshield rapid assessment plan so important information such as geographical

boundaries, approximate number of casualties, special resource needs, target hazards with


significant damage, major thoroughfare blockages, utility outages, fires, hazardous material

releases and structural collapses will be relayed to the dispatch center or field commander.


Table of Contents

Abstract .................................................................................................................................. 3

Table of Contents ................................................................................................................... 5

Introduction ............................................................................................................................ 6

Background and Significance ................................................................................................ 8

Literature Review................................................................................................................... 11

Procedures .............................................................................................................................. 18

Results .................................................................................................................................... 21

Discussion .............................................................................................................................. 27

Recommendations .................................................................................................................. 29

References .............................................................................................................................. 31

Appendices

Appendix A: Letter to selected fire departments .................................................................. 35

Appendix B: Questionnaire ................................................................................................... 36

Appendix C: Questionnaire results ....................................................................................... 38

Appendix D: Draft policy ..................................................................................................... 42


Introduction

Natural and man-made disasters are an increasing threat in today's society. With the

development of new technologies, the manufacturing and transportation of dangerous chemicals,

increased earthquake activity, the threat of terrorism and changing weather patterns, virtually

ever jurisdiction in the United States is vulnerable to some sort of large scale emergency

(Strickland, 1998). When large scale disasters occur, it is the fire department that usually

answers the initial calls for help.

To successfully manage a disaster of large scale proportion it is essential that the fire

department be prepared to rapidly collect and report pertinent information regarding the scope of

such an incident. Without this information, the fire department would not be able to estimate the

size, scope and resource needs of such an incident. It is therefore essential for local government

officials, responsible for organizing post disaster relief operations, ensure information be

accurate and delivered in a timely fashion, what needs to be done and what resources are

available (Cal EMA, 1999).

One such tool for rapidly gathering information following a widespread emergency such

as an earthquake is a "windshield survey" or "drive-by" evaluation conducted by the fire

department throughout a geographical area to quickly provide an overview or "snapshot" of what

has occurred. They survey provides the initial extent and boundaries of the damaged area, and

helps determine the scope of response and where the most critical needs are. This survey is a

basic tool emergency responders can utilize to prioritize immediate needs to help local

government perform accurate facility and infrastructure safety assessments as quickly as

possible.


The problem is that the Brea, California Fire Department does not currently have

procedures for a standardized rapid damage assessment windshield survey to assess key

infrastructure and facilities following devastating emergencies such as an earthquake. The fire

department lacking this fundamental damage assessment tool coupled with limited staffing and

equipment, needs to be more thorough so vital pieces of information are not lacking from a rapid

assessment survey. This inefficiency could cause an increased strain on Brea's emergency

response management to insure proper resources are requested and deployed.

The purpose of this, a research, utilizing action research methodology is to develop a

standardized rapid damage assessment procedure for the Brea Fire Department to be utilized

immediately following an earthquake. There are four basic questions that will define the

parameters of this research: (a) What data does the Operational Area (Orange County Emergency

Management Bureau) require in regards to immediate damage assessment? (b) What data does

the California Emergency Management Agency (Cal EMA) require in regards to timely damage

assessment? (c) What windshield survey requirements and best practices are utilized by other fire

departments within California? (d) What windshield survey requirements and best practices

should the Brea Fire Department incorporate into a damage assessment standard operating

guideline?

Additionally this project pertains to the United States Fire Administration's operational

objectives of improving local planning and preparedness along with improving fire and

emergency services' capability for response to and recovery from all hazards (DHS, 2008).


Background and Significance

Two more earthquakes rattled the City of Brea Thursday night April 23, 2010 (Brennan,

2010). At least three quakes of magnitude 3.0 occurred Thursday in that Orange

County community. A 4.0 shaker hit at 8:27 p.m. Thursday, three miles east northeast of Brea.

Another quake strikes one minute later, and it measures 3.0. It was located two miles east

northeast of Brea. Brea Police officers and firefighters report there are no reports of damage or

injuries from any of the evening quakes. Earlier Thursday, an earthquake hit at 4:56 p.m. in Brea

(Brennan, 2010). That one measured 3.8. There were no reported injuries or damage in that

temblor. After the afternoon's first earthquake, Brea Police Lt. Gregg Hayden, said he had

received no calls about damage. "I didn't even feel it," he said (Brennan, 2010). Officers and

firefighters on duty when quakes hit "do windshield surveys" as they drive around and "they

haven't found anything yet," he said early Thursday night (Brennan, 2010). The shaker set off

numerous car and burglar alarms, Hayden said. "We're still fielding alarm calls," the lieutenant

said about a half-hour after the temblor (Brennan, 2010).

Southern California is traversed by a network of earthquake faults. Major seismological

activity within this network of faults could cause devastation many times more severe, and

involve a greater area than any earthquake previously recorded (Cal EMA, 2009). Southern

California has been subject over the years to frequent and sometimes extremely destructive

earthquakes. Forecasts of future earthquakes have helped prepare California for these inevitable

events. But scientists cannot yet make precise predictions of their date, time, and place, so

earthquake forecasts are in the form of probabilities that quakes of certain sizes will occur over

longer periods of time (Cal EMA, 2009).


The most comprehensive statewide analysis of earthquake probabilities determined that

the chance of having one or more magnitude 6.7 or larger earthquakes in California over the next

30 years is 99.7% (Cal EMA, 2009). The fault with the highest probability of such earthquakes

is the southern San Andreas – 59% in the next 30 years (Cal EMA, 2009). For powerful quakes

of magnitude 7.5 or greater, there is a 37% chance that one or more will occur in the next 30

years in southern California (Cal EMA, 2009). Nowhere is the danger of impending catastrophe

more probable than in Southern California, where the southernmost segment of the San Andreas

Fault has gone more than 300 years without breaking (Cal EMA, 1999). This segment ruptures

every 150 years on average, so it's long overdue for a very large quake. According California

seismologist, the San Andreas Fault "is 18 months pregnant" (Cal EMA 1999).

The complex topography and geology of the Puente and Chino Hills create wonderful

visual features that form a strong backdrop to the City of Brea located in North Orange County

California. These features are evidence of conditions that pose potential constraints to

development. Brea lies within one of the most potentially seismically active areas of Southern

California, adjacent to the Whittier fault and atop the Elysian Park thrust fault which is a type of

fault, or break in the Earth's crust across which there has been relative movement (Brea, 2003).

Both of these fault zones have potential to generate moderate to large earthquakes that could

cause substantial property damage and extensive loss of life (Brea, 2003). Most properties are

located within the "sphere of influence" are with Carbon Canyon characterized by steep rugged

hillside terrain subject to landslides and soil erosion. Areas adjacent to stream beds and drainage

channels tend to exhibit soil liquefaction conditions which means the soil will suddenly

transition from a solid state to a liquefied state along with ground instability (Brea, 2003).


Preparing for earthquakes requires preparing for the worst-case scenario. Engineers

construct dams and bridges to withstand the maximum credible earthquake (MCE) to prevent

structure failure. The MCE is defined as the largest possible earthquake that could reasonably

occur along the recognized faults or within a particular seismic source, and by definition has a

very low probability of occurrence (Brea, 2003). Table 1 shows how city officials can prepare

against the worst case scenario earthquake by understanding the potential effects of a MCE

(Brea, 2003).

Table 1

Magnitude and Intensity of Maximum Credible Earthquake (MCE)

for Faults Potentially Impacting Brea

Fault Name Distance to Brea

(miles)

Elysian Park Thrust

Magnitude of MCE

0 6.7

Whittier

Less than 1 mile 7.3

San Andreas

33 7.8

The Brea, California Fire Department provides fire and emergency medical service to a

population that ranges from 48,000 to 100,000 each day (Brea, 2003). The department's

service area includes single family residential structures, multi-family residential structures,


commercial and light manufacturing occupancies. Brea has a major interstate freeway traversing

down the center of the city along with various other significant highways and major streets that

provide significant secondary traffic alternatives. The area has various major crude oil pipelines

running throughout the city along with crude oil storage tanks which if damaged could create

extensive environmental or life safety problems.

The Brea Fire Department's highest priority is to ensure a safe community for residents

and visitors through delivery of fire and life safety services. The fire department's $10 million

dollar budget ensures fundamental emergency medical, fire suppression, fire prevention, and

emergency management services are provided.

With four fire stations and sixteen on duty personnel, the department must provide

accurate and timely damage windshield assessments after an earthquake in order to maximize its

available resources to coordinate the mobilization of outside help. The Brea Fire Department has

not routinely practiced windshield survey reporting and their current impromptu processes are

not uniform between stations and shifts.

Literature Review

There is no place on earth that has been spared the effects of a disaster. Whether it is due

to natural or man-made causes, the effects are devastating to the affected population. The

National Fire Protection Association (NFPA) document entitled NFPA 1600-Standard on

Disaster/Emergency Management and Business Continuity Programs (2007 edition) defines

damage assessment as "an appraisal or determination of the effects of the disaster on human,

physical, economic, and natural resources" (NFPA, 2007).

The objective of the literature review will be to state the purpose for rapid damage

assessments, identify the steps of the rapid assessment process, and identify factors that influence


the collection of information utilized by the commanders and the Emergency Operations Center

(EOC). Attempting to formulate a damage assessment plan or procedure during a disaster

incident can only cause confusion and add delays in the process to retrieve important, possibly

life saving information from the incident area to emergency response officials that can distribute

resources (DHS, 2005).

Literature review revealed that there are numerous benefits to conducting a rapid damage

assessment during large scale man-made and natural disasters. One of the most important

benefits is that emergency responders accurately gauge the size, scope, and magnitude of an

incident to ensure that sufficient resources are directed to appropriate areas of the city. Federal

Emergency Management Agency (FEMA) reported that rapid damage assessment is critical to

ensure that local governments allocate resources, prioritize response activities and request mutual

aid assistance (FEMA, 1995). The rapid damage assessment process helps first responders and

emergency managers identify equipment and personnel requirements needed to gain control and

mitigate an incident (McEntire, 2002).

The importance of information gathered utilizing a rapid assessment process was

recognized by the Department of Homeland Security's (DHS) National Response Framework

where it noted "information must be gathered accurately at the scene and effectively

communicated to those that need it" (FEMA, 1996). The rapid damage assessment process

should address a number of needs and concerns in order to be effective, such as the need for

potential emergency actions dealing with life risks, actual and anticipated hazards to first

responders and the public, existing and potential property damage, the condition of critical

infrastructures, access and egress problems, availability of transportation routes, damage to

services and utilities and any other unsafe conditions (DHS, 2009).


According to (Morentz, et al, 1982), the components of an effective damage assessment

plan are supported by incorporating planning activities which anticipate future resource

requirements to address expected hazards and human vulnerabilities. A Guide to Successful

Damage and Needs Assessment states "The clear and concise assessment of damage loses and

injuries in the aftermath of a disaster are a prerequisite for the effective planning and

implementation of relief and recovery" (Planitz, 1999). Immediate damage assessment must be

clear and concise since it will occur soon after an event, which is the most chaotic and

demanding time period in a disaster situation. Initial damage assessment:

…identifies the magnitude of a disaster, the impact of a disaster on society, people's

capacity to cope, the most urgent relief needs and potential methods for delivery,

priorities for action, the utilization of resources for immediate response, the need

for detailed assessment of a specific geographical areas, the level of continuing or

emerging threats and the needs for international assistance (Planitz, 1999).

Initial and detailed assessments identify what has happened and what needs to be done.

A situation assessment depicts a picture of the situation by describing the magnitude of the

disaster and the impact on population and infrastructure. A needs assessment defines the level

and type assistance required for the affected population (Planitz, 1999).

The California Emergency Management Agency (Cal EMA) is the delegated authority by

the Governor to implement California's Emergency Service Act and perform executive functions

assigned by the Governor to support and enhance all phases of emergency management (Cal

EMA, 2009).


The State of California Emergency Plan, referred to as the State Emergency Plan (SEP),

addresses the state's response to extraordinary emergency situations associated with natural

disasters or human-caused emergencies (Cal EMA, 2009). In accordance with the California

Emergency Services Act (ESA), this plan describes the methods for carrying out emergency

operations, the process for rendering mutual aid, the emergency services of governmental

agencies, how resources are mobilized, how the public will be informed and the process to

ensure continuity of government during an emergency or disaster (Cal EMA, 2009). Data

gathered and disseminated to Cal EMA is to be used as a tool to assist the State of California to

quickly develop a strategy to mobilize appropriate resources from surrounding areas and the

State.

The State of California maintains and operates the State Operations Center (SOC) and

three Regional Emergency Operations Centers (REOCS). The SOC is responsible for

coordinating resource requests and resolving priority issues that might arise at the region level,

between the three Cal EMA Administration Regions (Cal EMA, 1999). The State Operations

Center is also responsible for coordinating with FEMA and other federal agencies involved in the

implementation of the National Response Framework in California (Cal EMA, 1999). This

information is also essential to determine if a local disaster should be declared, which will set the

stage for state and federal disaster declarations should there be a need (Keys, IAEM, 2002).

One of the most unique methods for rapid damage assessment was from Boca Raton Fire

Rescue Services in Boca Raton Florida which utilizes a damage assessment procedure

emphasizing assessment information consistency utilizing pictures depicting four different levels

of structural damage (Scott, 2006). The snapshot survey form used as part of Boca Raton Fire


Rescue Services' rapid assessment procedure is a short form that depicts the level of damage to a

fire station and its immediate surrounding area.

Rapid assessment provided by first responders should focus on the humanitarian and

emergency needs and activities such as life safety issue which involve injuries, fatalities, mass

care, search and rescue operations and hazardous materials. Life lines such as water, electric,

gas, and treatment facilities as well as transportation corridors, in addition to critical facilities

such as public buildings such as fire and police stations, jails, courthouses, hospitals, long term

care facilities and communication buildings (FEMA, 1995).

A windshield survey will be the initial response taken by local emergency responders and

will be the first damage assessment done in the event of a major disaster. It may occur as an

event is still in progress, as with a flood, or immediately afterwards, as with the above example

of an earthquake disaster. A windshield survey is basically a drive-by throughout the city, and

provides a quick overview of what is or has occurred. It provides the initial extent and

boundaries of the damaged area, and helps determine the scope of response, i.e. where the most

critical needs are (FEMA, 2004). This survey is a tool emergency responders can use to

prioritize the immediate needs of the City.

Each geographic are within a city should have a prepared list of critical infrastructure

locations. Immediately following an earthquake, personnel from within these areas should be

responsible for conducting a windshield survey/damage assessment of these locations, provide

command and the Emergency Operations Center with the damage assessment of critical

infrastructure and key Resources (FEMA, 1995), as well as a general damage assessment of the

area within a timely manner. Initial damage assessment is crucial following a disaster in order to

determine the scope and problems, injuries, life safety issues, damage to infrastructure and


transportation routes. A study of the Paso Robles earthquake in San Simeon, California found

that damage assessment played a key role during the initial minutes and hours of the disaster

response operations (McEntire, Cope, 2004). Assessing the impact of the disaster to request

appropriate resources and determining specific priorities were instrumental in summoning

appropriate additional personnel from surrounding jurisdictions (McEntire, Cope, 2004). This

study showed the importance of early recognition of immediate needs and priorities, enabled first

responders to get the needed resources quicker and allowed commanders to establish a set of

strategic priorities in order to mitigate the immediate hazards.

The windshield survey is the most useful strategy for conducting immediate damage

assessment in areas where damage is widespread (Strickland, 1998). This review verified that

there are many fire departments who currently conduct rapid damage assessments in response to

natural and manmade disasters. The fire service responds to a wide array of emergencies that

have nothing to do with fire, and that a fire department's involvement in such incidents is a

natural fit due to strategic locations, rapid response and training levels (Strickland, 1998).

Utilizing the fire department to conduct rapid damage assessment is the most logical and

effective way to perform this immediate essential function (Strickland, 1998). The Los Angeles

City Fire Department Earthquake Emergency Operational Plan contains provisions for

performing damage assessments (LAFD, 1998). A damage assessment route is established for

each individual response company. The company's route begins by establishing safe zone and

evaluating the fire station the company is housed in (LAFD, 1998). The company then performs

community wide assessment and evaluates various key occupancies within its assigned district.

Rapid screening inspection forms are completed when damage is encountered. The damage

inspection forms are forwarded to the city's Emergency Operations Center (LAFD, 1998).


The Asian Disaster Preparedness Center in its document entitled Post Disaster Damage

Assessment and Needs Analysis suggests that immediate damage assessment should include two

different reports, "Flash and Initial" (Asian Disaster Preparedness Center, 2000). A flash report

is submitted quickly; it confirms a disaster has occurred, what response steps are being taken,

and what external relief or additional resources might be needed. The initial report taken a few

hours later, should briefly summarize the severity of the disaster, actions being taken, local

response capabilities, the immediate priorities for external resources, where resources are

needed, what type are needed and in what quantity, possibly suggesting the best way to deliver

the resources, and forecasted future needs (Asian Disaster Preparedness Center, 2000).

In an earthquake disaster, particularly one caused by an even of magnitude 6 or larger,

there will likely be many causalities and many people will be temporarily be left homeless

(FEMA, 1996). The services provided by the police and fire departments in addition to various

disaster relief organizations will be needed. For maximum effectiveness, these emergency

service organizations must operate from safe facilities and consequently these facilities need to

be inspected after an event (ATC, 1989). Essential facilities most needed by a community must

be inspected following a disaster (Ganz, 1998). These facilities typically include hospitals,

health care facilities, police and fire stations, jails and prisons, communications centers, and

schools. A common rapid damage assessment form, when trained on and used properly, make a

difference providing timely, meaningful and useful information (Ganz, 1998).

In addition to considering target hazards with large population of infirm people,

emergency response agencies should also consider infrastructure needs such as electrical and gas

distribution facilities, water and sewer distribution systems, and roads and bridges (Choudhury

and Jones, 1995).


A rapid assessment plan or windshield survey should be predetermined, efficient, and a

thorough method assessing damage. The survey plan should clearly indentify responsibilities

and duties for each individual company along with providing a road map for crews to follow.

Exact routes that vehicles take should be listed in the plan. The route should be logical, safe, and

follow a sequential pattern. Once the various risks and hazards are identified, they can be placed

on a map to ensure that crews evaluate all areas of their district. Special attention should be

given to high risk occupancies such as schools, nursing homes or facilities that contain hazardous

materials (Schweier, et al, 2004). Responders must keep on task and complete the assessment of

their assigned response area. They cannot help people along the way regardless of what is found

early in the assessment. Command and EOC staff rely on accurate information that is made

available as fast as possible in order to increase the survival probability of persons trapped. If

responders stop along the way, or do not know where they are or where they have been, can

ensure accurate information will not be obtained (Schweier, et al, 2004).

One of the most critical aspects of determining the effectiveness of good damage

assessments is through the continuous testing and revisions of existing plans, which should

include a revision for updating of personnel assignments, roles, and responsibilities for all

personnel performing their functions (DHS, 2009). The process of reviewing and updating

training procedures for damage assessments should be an annual requirement (Herman, 1982).

Procedures

The research procedures used within this applied research paper (ARP) consisted of

action research methodology. The desired outcome of this research was to develop a rapid

damage assessment, windshield survey plan that would be appropriate for the capabilities of the


Brea Fire Department. The topic was chosen after learning the importance of rapid damage

assessment plans as presented in the National Fire Academy's Executive Analysis of Fire Service

Operations in Emergency Management (EAFSOEM) course and then relating these plans to the

various problems experienced by the Brea Fire Department in earthquake situations.

The first step was to verify there is a lack of procedures for a rapid damage windshield

assessment and therefore establish a need for this project. Answering the first research question

established the importance of a rapid damage assessment accomplished this purpose. The second

research question identified information needed to be reported in disaster damage assessment.

The third question helped define the basic responsibilities of fire departments currently

conducting rapid damage assessment. The fourth question defined the best possible content for a

rapid windshield damage assessment plan for the Brea Fire Department. Collecting information

from a review of literature, surveying various California fire departments, evaluating samples of

rapid damage assessment forms to be utilized to develop a rapid damage windshield assessment

plan for the Brea Fire Department became the focus.

The literature review examined both fire service specific information as well as other

information relating to rapid damage assessment. Utilizing such resources as the National Fire

Academy's Executive Fire Officer Course entitled, Executive Analysis of Fire Service

Operations in Emergency Management (DHS, 2009), to a web search of the National Fire

Academy's Learning Resource Center (LRC), to a web search on the Google website. Keyword

searches included: rapid damage assessment, windshield survey, disaster assessment, and

damage assessment. The LRC also sent several articles from various fire service publications

on topics listed above that were also included in this research project.


One of the research questions sought to determine what damage assessment procedures

were currently being utilized by selected fire departments within California? In order to answer

this research question, a ten question survey was developed and distributed to twenty fire

departments within California who have extensive experience dealing with earthquakes in order

to gather information on any rapid damage assessment process being used by their fire

department. A cover letter was written by the researcher attached to the survey and sent

electronically, with explanations when necessary as requested by respondents. Included in the

cover letter was the researcher's willingness to share the results of the information obtained if the

respondents requested it. A sample of the cover letter and survey questionnaire can be found in

Appendix A and B. The survey document was sent to twenty represented fire departments

throughout California with significant earthquake threats. Although other natural and man-made

disasters can produce a need for an immediate damage assessment plan, in California,

earthquakes possess the most significant threat that can produce widespread damage and a high

level of casualties (Cal EMA, 2007). The primary objective of this survey was to determine if

other selected fire agencies, prone to seismic events, have windshield rapid damage assessment

polices. The answers to the survey were used a guide in the design and development of a rapid

damage-windshield assessment plan for the Brea Fire Department.

Once the surveys were returned to the author, the results were analyzed to assess

responses to the ten questions. Taking each returned survey the most common answer per

question was manually tallied. Although this was an inexpensive process, the process required

information to be manually tabulated from the questions into a tally sheet. The author entered

each response on to a tally sheet once all data was compiled. The resulting tally sheet is included

in Appendix C.


Procedures utilized within this paper were based on several assumptions and limitations.

The term "rapid damage assessment" was assumed to be in "theory" similar to a "windshield

survey" by the researcher when compiling information from literature review and surveys. First,

it was assumed all literature reviewed was accurate and the authors presented impartial and

unbiased research. Secondly, the fire departments that completed the survey understood every

question and answered all questions without any partiality or bias. Use of survey questionnaire

typically yields low return rates. The survey was limited to only twenty selected fire

departments by the researcher to those having previous pertinent working experiences rather than

sending to every fire department within California or across the United States. The findings

were not based on scientific sampling, but generic data associated with rapid damage windshield

assessment programs utilized in the fire service.

Results

Based on extensive literature review and data collected from a questionnaire this

researcher was able to make conclusive findings answering the four research questions related to

rapid damage assessment. Copies of the questionnaire, a list of fire departments contracted,

results from the questionnaire, a draft damage assessment policy and form can be found in the

Appendix.

In order to understand the importance of the first research question pertaining to what

data does the Operational Area (Orange County, Emergency Management Bureau) require in

regard to immediate damage assessment, is to understand who and what the Emergency

Management Bureau is.


The mission of the Orange County, Emergency Management Bureau is to promote,

facilitate and support the County of Orange and the Operational Area (OA) efforts to prepare for,

respond to and recover from disasters (OCEMB, 2010). The Emergency Management Bureau

provides emergency management and preparedness services to the unincorporated areas of

Orange County and supports the efforts of the Orange County Operational Area. There are

currently 115 jurisdictions in the Operational Area (OA) encompassing all County departments

and agencies, public and private organizations and the general population within the boundaries

of Orange County (OCEMB, 2010). The Operational Area Executive Board is responsible for

the development, establishment and implementation of the policies of the Operational Area

(OCEMB, 20010).

Emergency Management Bureau's Emergency Operations Center (EOC) is the central

command and control facility within the County of Orange responsible for carrying out the

principles of emergency preparedness and emergency management, or disaster management

functions at a strategic level in an emergency situation, and ensuring the continuity of operation,

political subdivision or other organization (OCEMB, 2010). The EOC is responsible for the

strategic overview of the disaster, and does not directly control field assets, instead making

operational decisions and leaving tactical decisions to lower commands. The common functions

of all EOC's is to collect, gather and analyze data; make decisions that protect life and property,

maintain continuity of the organization, within the scope of applicable laws; and disseminate

those decisions to all concerned agencies and individuals (OCEMB, 2010).

When a large scale event has occurred, it is important that the response be coordinated.

This generally means activating the EOC to assure central coordination, and support to activities


such as; public official alerting, care and shelter, evacuation, search and rescue, resource

mobilization and recovery operate effectively (OCEMB, 2010).

"The immediate concern for police and fire agencies should be to do the most good for

the most people in the shortest possible time. This can be accomplished by evaluating the

community's essential services, infrastructure and transportation needs" (Choudhury and Jones,

1995). Fire companies conducting rapid damage assessment should provide accurate and timely

damage assessment information to the City of Brea's Emergency Operations Center who in turn

will relay essential information on the Orange County Emergency Management Bureau's EOC.

Rapid damage assessment must include a snapshot of life safety situations and considerations as

well as the various community lifelines such as water, electricity, gas, sewer and transportation

routes. Information from other areas of Orange County into the EOC will provide a "picture" of

what has occurred, where the greatest impact was to develop a strategy as to what resources are

needed to mitigate reported problems. Answering the second research question as to what data

does the California Emergency Management Agency (Cal EMA) require in regards to timely

damage assessment is understanding why essential and accurate information passed along is

critical. The California Emergency Management Agency (Cal EMA) is delegated authority by

the Governor to implement California's Emergency Service Act and perform executive functions

assigned by the Governor to support and enhance all phases of emergency management (Cal

EMA, 2009).

The State of California Emergency Plan referred to as the State Emergency Plan (SEP),

addresses the state's response to extraordinary emergency situations associated with natural

disasters or human-caused emergencies (Cal EMA, 1999). In accordance with the California

Emergencies Services Act (ESA), this plan describes the methods for carrying out emergency


operations, the process for rendering mutual aid, the emergency services of governmental

agencies, how resources are mobilized, how the public will be informed and the process to

ensure continuity of government during an emergency or disaster (Cal EMA, 2009).

Data gathered and disseminated by the Orange County EOC to Cal EMA is to be used as

a tool to assist the State to quickly develop a strategy to mobilize appropriate resources from

surrounding areas within California. Rapid damage assessment gathered regarding the city

would include the approximate number of deaths, injuries and trapped persons, an estimate of

property damage, any hazardous conditions, condition of access routes throughout the city and a

determination if further significant damage might occur.

The State of California maintains and operates the State Operations Center (SOC) and

three Regional Emergency Operations Centers (REOCS). The SOC is responsible for

coordinating resource requests and resolving priority issues that might arise at the region level,

between the three CalEMA Administration Regions (CalEMA, 1999). The State Operations

Center is also responsible for coordinating with Federal Emergency Management Agency

(FEMA) and other federal agencies involved in the implementation of the National Response

Framework in California (Cal EMA, 1999).

Once information is received by the Orange County Operational Area into the State EOC,

tasks are prioritized and state resources are coordinated to respond to requests from the

operational areas by coordination of mutual aid among the mutual aid regions and the State

(Cal EMA, 1999). The state level also serves as the coordination and communication link

between the state and the federal emergency response system. The state level requests assistance

from other state governments through the Emergency Management Assistance Compact


(EMAC) and similar interstate compacts/agreements and coordinates with the FEMA when

federal assistance is requested (Cal EMA, 1999).

In order to answer the third research question related to what windshield survey

requirements and best practices are utilized by other fire departments within California, a ten

question questionnaire was developed. The questionnaire was developed to gather information

regarding how twenty identified California fire departments that have extensive experience

dealing with earthquakes, conduct rapid damage assessments following an earthquake. The

objective of immediate damage assessment is to achieve an understanding of the scope of the

devastation by way of a rapid survey and evaluation of the community, so adequate resources

can then be delivered so as to control the emergent situations in a systematic and prioritized

manner (McEntire, 2002). The results of the questionnaire, found in Appendix C, was

accumulated and analyzed with the following findings by the researcher. All surveyed fire

departments in the first question answered that they did conduct a windshield rapid damage

assessment following an earthquake. All surveyed fire departments that did conduct the

windshield surveys in the second question answered negatively which means this responsibility

remained with the fire department. Question three asked if they used a form to conduct rapid

damage assessment, and thirteen out of twenty answered yes. The fourth question asked more

specific questions from initial assessments of fire personnel, apparatus and stations to driving

pre-designated assessment routes. Interestingly, seven out of the twenty fire departments have a

building rating system to identify safe or unsafe conditions. Nine of the twenty fire departments

also stated that they have coordination with police and public works as part of their rapid damage

assessment program. Sixteen out of twenty fire departments have identified their community

target hazards. Questions pertaining to fire departments having a written plan and having


designated areas of responsibility for rapid damage assessment all answered yes. Fire

departments all stated that they did not have the actual resource staffing availability to conduct

the necessary damage assessments. The last question pertaining to annual practicing of rapid

damage assessment stood out to me with seven out of twenty fire departments stating they do so.

Reviewing the Los Angeles City Fire Department (1992) Earthquake Emergency

Operational Plan, the researcher noted that it contains provisions for performing a rapid damage

assessment utilizing an established route that each individual response company is assigned.

Damage assessment must first begin by evaluating the condition of the response company's

personnel, facilities and apparatus and establishing an initial safe zone which was common with

written documents passed along from surveyed fire departments.

Reviewing the last research question related to what windshield survey requirements and

best practices should the Brea Fire Department incorporate into a standard operating guideline

with input from the questionnaire the following areas stood out. Rapid damage assessment can

be separated into two phases. The first phase of damage assessment should be focused on

conducting a primary survey of fire department personnel, facilities, apparatus and equipment

supported by all fire departments in the questionnaire indicating they do. The second phase of

rapid damage assessment should be conducting a situational report through the rapid assessment

windshield inspection of target hazards, major response routes and housing developments within

the fire company's response area. These areas were supported by the majority of fire

departments in the questionnaire, indicating they are currently doing so with their rapid damage

assessment plans.


The development of the draft Operational Policy and Procedures for the Brea Fire

Department contained in the Appendix, was developed by consolidating the information

contained within this research paper.

Discussion

The purpose of this research project was to develop a windshield rapid damage

assessment program for the Brea Fire Department. After reviewing the EAFSOEM course

materials which included class lectures, table top exercises and large scale simulations, it was

obvious to the researcher the importance of rapid damage assessment. Utilizing action research

methodology, which included literature review along with a questionnaire to selected California

fire departments evaluating their rapid damage assessment planning, prove the need for such a

plan for the Brea Fire Department.

The study found that rapid assessment is one of the most important functions in order to

understand the severity of damage, determine priorities caused by any disaster and assess

immediate needs (McEntire, 2002). The research showed that the Department of Homeland

Security considers damage assessment a critical component in determining the impact an

incident will have on the community and government services (DHS, 2005). Information

received from an assessment is crucial to determine the magnitude of the event on the area, to

prioritize the mitigation plan and to allocate the needed resources to handle the event. The

research indicated that these rapid damage assessment plans have been given several different

names, snapshot surveys, windshield surveys, initial damage surveys or rapid damage

assessments; however the goal and key elements of the plans are the same.


The State of California has also provided a framework on how to handle damage

assessment for local jurisdictions. This framework provides a consistent and comprehensive way

for local governments to provide vital information to the State concerning the extent of damages

should a disaster declaration be needed. Due to guidelines established through Cal EMA,

California fire departments do have a plan in place for damage assessment following an

earthquake.

The researcher agrees with the literature reviewed that rapid damage assessment is an

essential first step in determining how big the disaster area is and what resources it will require

to mitigate the situation and return the community back to normal (Cal EMA/1999). Attempting

to create a rapid damage assessment plan during a disaster will cause delays and confusion to the

emergency response to process important possibly lifesaving, information from the disaster are

to incident command officials that can distribute resources (DHS, 2005). This is why the Brea

Fire Department must be proactive by initiating a rapid damage assessment plan that focuses on

life safety and incident stabilization (FEMA, 2006).

A windshield rapid damage assessment procedure is a tool that can assist the fire

department in being better prepared for a disaster by, clarifying damage assessment, utilizing

predetermined routes and having a communication plan to get vital information to incident

commanders (DHS, 2005). In addition this tool can be utilized for initial assessment following

manmade or natural disasters in an all hazards response by the fire department.


Recommendations

This study confirmed the need for first responders to conduct rapid windshield damage

assessments following an earthquake. It is recommended that procedures outlining these

activities be incorporated into the emergency preparedness planning process for the Brea Fire

Department.

Brea Fire Department first responders should provide damage assessment through a rapid

assessment windshield survey. Rapid assessment information should be relayed to the dispatch

center or field commander with the following information such as geographical boundaries,

approximate number of casualties, special resource needs, target hazards with significant

damage, major thoroughfare blockages, utility outages, fires, hazardous material releases and

structural collapses.

A windshield rapid damage assessment form will be created to serve as a starting point

that will be a streamlined and systematic tool to be utilized in order to expedite the process so

information gathered is as accurate as possible. Working committees should be established to

identify target hazards, essential facilities and key infrastructure. The same committees should

be tasked with establishing an assessment route that will incorporate all the target hazards,

essential facilities, and infrastructure within the Brea Fire Department's fire management zones

or response districts.

Standardized windshield rapid damage assessment forms that can be utilized by Brea Fire

companies during a damage assessment will be created. The primary purposes of the document

is to minimize writing time, include essential details about the designated travel routes, and

ultimately be useful to the on-duty Battalion Chief (City Command) and the EOC. The Brea Fire


Department's windshield rapid damage assessment forms should be kept in all apparatus so that

personnel unfamiliar with the station area can follow the established procedures and perform the

survey, providing the necessary information to the incident commander.

The Brea Fire Department should adopt a rapid windshield damage assessment operating

procedure into their operational policies and procedures. Once the operational policy has been

adopted, training should be provided to ensure personnel understand the plan for rapid damage

assessment. To be effective the plan must be evaluated for effectiveness, adapted to strengthen

weaknesses identified, and updated as conditions in the response area change. Fire Department

personnel should participate in regularly scheduled disaster response training which includes

familiarization with these procedures as well as the proper use of any associated forms. Practical

exercises ranging from table top exercised to simulated drills utilizing adopted forms in

accordance with the plan should also be included with ongoing training.

The immediate windshield rapid damage assessment policy for the Brea Fire Department

should assist during events when resources could likely be overwhelmed, and when it is essential

to understand the scope and magnitude of the event and assign emergency resources based on

need and priority. The windshield rapid damage assessment policy will further reduce the

likelihood of fire companies stopping at the first problem upon leaving the fire station, thus not

obtaining a clear picture of the entire situation in their respective fire management zones or

response districts. Fire companies will be able to gather critical information for incident

commanders for the deployment of emergency resources and to the EOC staff for record keeping

and requests for local, Orange County Operational Area, State or Federal assistance.


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Appendix A

Dear, I am a Battalion Chief with the Brea Fire Department and currently in my third year of the United States Fire Administration's National Fire Academy Executive Fire Officer Program and I am looking for your assistance with information for my applied research project paper. I am soliciting your assistance and appreciate your help obtaining data that will be used in my project I am gathering basic information regarding rapid damage – windshield assessment conducted by your fire department following an earthquake. The data collected by this survey will be compared with similar questionnaires sent to other fire departments within California to validate current research into this topic. If possible could you please send me a copy of your rapid damage-windshield assessment procedures. I appreciate your assistance with this project. Please indicate on the questionnaire if you would like to receive a copy of the results from this applied research project. Sincerely, Steve Wood Battalion Chief Brea Fire Department 1 Civic Center Circle


Appendix B

Rapid Assessment – Windshield Earthquake Survey Questionnaire

1. Does your fire department perform rapid damage assessments in the manner of driving or

windshield surveys after an earthquake? Yes/No

2. If the fire department does not perform rapid damage assessments in your city, which agency

does? Police Public Works

Other

3. Does your fire department utilize a form to be utilized by personnel performing rapid damage

assessment following an earthquake? Yes/No

4. Please identify if the following are parts of your rapid damage assessment planning?

a. Status of personnel, apparatus and stations. Yes/No

b. Pre-identified target hazards. Yes/No

c. Tactical radio frequency. Yes/No

d. Coordination with police and public works departments. Yes/No

e. Building ratings to identify safe or unsafe conditions. Yes/No

f. Predetermined driving damage survey routes. Yes/No

5. Has your department identified target hazards within your community? Yes/No

6. Does your department have a written plan / procedure regarding the use of rapid damage

assessment following an earthquake? Yes/No

7. Does your department's area of responsibility divided in designated areas for the purpose of

damage assessment? Yes/No

8. Do you have pre-designated routes for units assigned to each area to carry out damage

assessment? Yes/No


9. Does your actual resource staffing availability allow you to conduct city damage

assessments if necessary? Yes/No

10. Does your department practice rapid damage assessments on an annual basis? Yes/No

I would like to receive a copy of the results from this applied research project. Yes/No

Send to:


Appendix C

1 2 3 4 5 6 7 8 9 10

1 Yes N/A Yes a b c

f

Yes Yes Yes No No No

2 Yes N/A Yes a b c

d e f

Yes Yes Yes Yes No No

3 Yes N/A Yes a b c

e f


4 Yes N/A Yes a b c

d f

No Yes Yes Yes No Yes

5 Yes N/A Yes a b c

d f

No Yes Yes Yes No Yes

6 Yes N/A NO a b c

d f

No Yes Yes No No Yes

7 Yes N/A NO a b c

e f


8 Yes N/A Yes a b c

d f

No Yes Yes Yes No No

9 Yes N/A Yes a b c

e f

Yes Yes Yes Yes No Yes

10 Yes N/A NO a b c

f


11 Yes N/A NO a b c

f



12 Yes N/A Yes a b c

e f



d e f



f



d e f


16 Yes N/A NO a b c

f


17 Yes N/A NO a b c

d f


18 Yes N/A NO a b c

d f



f



f


Totals 20/20 20/20 13/20

16/20 20/20 20/20 13/20 0/20 7/20


Key for California Fire Agencies Returning Surveys

1. Cal / Fire Riverside County

2. San Diego City Fire Department

3. City of Fresno Fire Department

4. Los Angeles City Fire Department

5. Los Angeles County Fire

Department

6. Orange County Fire Authority

7. Redwood City Fire Department

8. San Francisco Fire Department

9. Glendale Fire Department

10. San Gabriel Fire Department

11. La Verne Fire Department

12. San Marino Fire Department

13. Burbank Fire Department

14. Pasadena Fire Department


15. Foster City Fire Department

16. Murrieta Fire Department

17. Escondido Fire Department

18. Long Beach Fire Department

19. Hermosa Beach Fire Department

20. Fullerton Fire Department


Appendix D

EARTHQUAKE – RAPID ASSESSMENT DRAFT INITIAL ACTIONS

• Assess Crew for Injuries

• Move ALL Apparatus to Front of Station

• Move Essential Supplies to Safe & Secure Location

• Assess Station Damage

• Shut Off Utilities if Necessary

• Station On Normal Power or Generator

• Check Phone Service

• Monitor Radio For Battalion Roll Call

ROLL CALL

• Battalion 1 Conducts Roll Call (Radio 2-B)

• Be BRIEF. Negative Reporting Only. If all is OK, Report Personnel, Facilities and

Equipment are Normal. Report Apparatus Status (Available & Staffed)

• Battalion Chief Will Determine Action Mode

⇒ Full Action Mode

⇒ No Action Mode


WINDSHIELD SURVEY

• Follow Predetermined Route

• Check Essential Buildings & Structures. Complete Damage Assessment Form

• In Full Action Mode Units May Mitigate Emergencies

• In No Action Mode Units are to Bypass Emergencies and Assess Area Only

• Minimize Radio & MDC Traffic

• Maintain Unit Log (ICS 214)

INCIDENT PRIORITIES

• Immediate Attention: High Life or High Economic / Infrastructure Threat/Conflagration

Threat

• Secondary Attention: Moderate Life or Conflagration Threat

• When Available: Minor Injuries, Low Potential Fire

• Action By Others: Situations Handled By Civilians


Company Shift Date Time of

Assessment

Internal Assessment / Fire Station

Personnel Apparatus / Equipment Facilities

No Injuries: In-Service: Minor Damage:

Minor Injuries: In Service (Needs Repair): Major Damage:

Major Injuries: Out of Service (Why?) Uninhabitable:

External Assessment / Fire Management Zone

Access Routes Life Safety Structures in Neighborhood

Clear: Trapped: % Destroyed 50%

Min Blockage: Injured: None: 75%

Major Blockage: Dead: 25% 100%


Additional Information

Geographical Boundary Damage:

Imminent Hazards:

Description of Major Problems:

Needed Resources:


BREA FIRE DEPARTMENT

OPERATIONS MANUAL

BOOK 1

ORGANIZATIO

Revision Date:

Reviewed By:

Chapter: V Personnel Policies and

Procedures

Subject: 10 Windshield Rapid Damage

Assessment

Approve Pg. 46 of Code:

PURPOSE: Provide direction for on duty personnel in conducting windshield rapid dam

assessment surveys.

RESPONSIBILITY: It is the responsibility of the on duty Battalion Chief to begin the process

of conducting windshield rapid damage assessments. Windshield rapid damage assessment will

then be conducted by individual companies as directed in the procedure section.

PROCEDURE: Each staffed fire company within the Brea Fire Department will be provided

with a rapid damage assessment packet. The packet will include forms to be utilized for

conducting a windshield rapid damage assessment.

Upon direction of the on duty Battalion Chief, or in his absence any chief officer, the windshield

rapid damage assessment program will begin.

The first step in the process will be to conduct and evaluate the company's fire station.

This evaluation should be done immediately following the direction to begin the damage


assessment procedure. The on duty company personnel will report the condition of

personnel, apparatus, equipment and facility.

Rapid damage assessment forms should be utilized to record initial information pertaining

to the company's Fire Management Zone (FMZ) that will be relayed to the on duty

Battalion Chief (City Command).

SPECIAL NOTE: During the windshield rapid damage assessment survey, the department's

normal operations will cease. On duty companies are not to respond to calls for emergency

service unless specifically directed to do so by a chief officer. When conducting the damage

survey, only those emergencies that present immediate threat to life will be cause for delaying the

damage assessment route. Companies delaying the survey due to this occurrence must notify the

on duty Battalion Chief (City Command).

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