1. Planning how to respond when an emergency or disaster occurs
Preparedness
Planning how to respond when an emergency or disaster occurs
Preparedness involves planning how to respond when an emergency or disaster
occurs and working to marshal the resources needed to respond effectively.
Just as schools and education agencies cannot prevent natural disasters, they
may not be able to prevent a terrorist event. But, they can plan how to
respond when an emergency does take place, either in school or the community.
Federal and state education agencies urge every school to have an emergency
management plan, but do not require school plans to be integrated with
statewide planning efforts. Most preparedness efforts originating from the
education arena are targeted at, or take place at the local level. Most public
health preparedness efforts do not fully engage local education agencies and
schools.

2. What is Currently Being Done?
US Department of Education website for emergency preparedness plan
Federal funds to help school districts improve and strengthen emergency response FY $30 million
“Practical Information on Crisis Planning: a Guide for Schools and Communities” May 2003
CDC funds education and health agencies
FEMA: The Multi-Hazard Emergency Planning for Schools Independent Study Course
FEMA for Kids,
In March 2003, ED revealed a new website, plan,
to provide school leaders with more information about emergency preparedness.
In addition to the website, ED is making $38 million available in FY 2003 to
help school districts improve and strengthen emergency response and crisis
management plans. Funds can be used to train school personnel, parents and
students in crisis response; coordinate with local emergency responders
including fire and police; purchase equipment; and coordinate with groups
and organizations responsible for recovery issues, such as health and mental-
health agencies. An additional $30 million is included in the proposed FY 2004.
ED recently released Practical Information on Crisis Planning: a Guide for
Schools and Communities (May 2003). The Guide is intended to guide
schools and school districts through crisis planning. In April of 2002, ED and
the Harvard School of Public Health sponsored a teleconference, entitled
The National Clearinghouse for Educational Facilities website,
includes an extensive resource list on Disaster Preparedness for Schools.
CDC funds education and health agencies in 18 states to strengthen their
capacity to plan and implement Coordinated School Health Programs.

3. What are the Gaps? No coordination between preparedness activities
Few activities are designed to foster collaboration between education, public health, and other emergency responders at the state or local level
School plans are often treated as a separate plan rather than as part of the community plan
School plans tend not to be practiced as part of larger community preparedness exercises.
Clearly, there are many preparedness activities underway. However, there
is no coordination between these activities. Few activities, notably the
CDC and ED teleconference and the FEMA multi-hazards training course,
are designed to foster collaboration between education, public health,
and other emergency responders at the state or local level, or across levels.
Although schools are urged to plan, and the recent ED emergency planning
grants will help the process, school plans are often treated as a separate
plan rather than as part of the community plan. When collaboration with
other community agencies is discussed, it is usually with law enforcement,
fire, and homeland security, not with public health and mental health
preparedness efforts. School plans tend not to be practiced as part of
larger community preparedness exercises.

4. Oklahoma City -- Lessons Learned
Contingency planning contributes to an effective response
Lessons learned also apply to natural disasters, industrial accidents and other catastrophes
If disaster planning is part of the rhythm of a community, lives will be saved.
A clear theme is identified from this tragedy—planning.
Nothing emerges more clearly from all of the lessons learned in
Oklahoma City than the degree to which contingency planning
contributes to an effective response. From clergy to firefighters,
from the schools to the Chamber of Commerce, everyone agreed
on the need for careful planning.
Chances are that most communities will never be struck by a
devastating terrorist attack, but many of these lessons learned
also apply to natural disasters, industrial accidents and the other
catastrophes that can befall a community in the modern world. If
disaster planning is part of the rhythm of a community, lives will
be saved.

5. Planning for the Unthinkable…
Have a Plan
Test Your Plan
Share Your Plan
Repeat Exercises... and Then Do It Again
If You Can’t Afford Repeated Exercises, At Least Review Your Plans
Forge Relationships
Prepare Lists of Vendors and Service Providers
Have a Plan. Every community, every organization benefits from disaster planning.
Diligent planning saves lives.
Test Your Plan. Try your plan out before it is needed. Find the weaknesses in your
plan when lives are not at stake.
Share Your Plan
Communicate the lessons of planning and exercises to the rest of your organization.
Too often, participants in planning exercises do not share what they have learned.
Repeat Exercises... and Then Do It Again
Even organizations with low turnover may not recognize how many people come
and go in the space of a few years. Repeated exercises train new personnel and reinforce
previous training for existing personnel.
If You Can’t Afford Repeated Exercises, At Least Review Your Plans
Repeated exercises may be beyond the budget of your organization. However,
everyone can afford to take the plan off the shelf and review it a couple of times a year.
Forge Relationships as Part of the Planning Process
Relationships between organizations emerge during planning and exercises. Be sure
you maintain them between exercises.
Prepare Lists of Vendors and Service Providers. Know local resources for equipment,
materials and specialized labor that you might need in response to a terrorist disaster.

6. Communications
Communication technology—the physical ability to send and receive a message
Disasters Overwhelm Telephone Networks
Provide Alternate Communication Methods
Use the Internet
Consider Interoperability of Radio Equipment
Use Mass Media as an Alternate Means
Social communication—the content of the message
Avoid Jargon
Keep Your Workers Informed
Communicate Among Agencies
Have Up-to-date Contact Information
There are two parts to communications: Communication technology—the physical
ability to send and receive a message; and Social communication—the content of
the message.
Disasters Overwhelm Telephone Networks In Oklahoma City, physical damage
to the telephone system was minimal. Even so, the demand for service overwhelmed the
network. Work with telephone service providers to ensure emergency override capacity
for first responders. Confirm that they can provide access to temporary additional capacity.
Provide Alternate Communication Methods If standard telephone services are inoperable,
you must have an alternate method of communication. Allow for this in your plan.
Use the Internet Internet usage was not a factor during the Oklahoma City bombing, but
times have changed. When planning, remember that media around the world and about half
the homes in the United States have access to the Internet.
Consider Interoperability of Radio Equipment When Oklahoma City municipal authorities
were joined by state and county officials and later by federal and out-of-state agencies, the
incompatibility of their communications equipment led to some inefficiencies.
Use Mass Media as an Alternate Means of Communication When out-of-area ambulances
were responding to the bomb site, none of them knew which frequencies to use. Since the
ambulances’ home bases probably had televisions on, the media could have been used to
broadcast the frequency information.

7. Media Use them to inform and educate
You cannot over-plan for dealing with the Media
Plan for a credentialing system
Who says what?
Set a schedule
Use Media to your advantage
Use the Media to make public announcements
MEDIA
You work with the media to communicate with the public. Use
them to inform and educate.
In any situation with large numbers of dead or wounded, worried
friends, family members and co-workers will want information.
It is your job to keep them informed. If they do not get the
immediate information they are looking for from the media, they
will come to the scene.
6 Oklahoma City - Seven Years Later
_ You Cannot Over-plan for Dealing with the Media
Planning and exercises must take media demands for
information and access into account or they will fail during a
real disaster.
The days when the “three networks” would show up were long
gone by the time of the Oklahoma City bombing. Don’t expect
just local and national news representatives. In a major disaster,
there will be world-wide news coverage. Within 24 hours, you
will be inundated with news reporters and satellite equipment
from around the world.
Discuss your disaster response plans with local media
representatives, including television, radio, local wire service
and print.
_ Plan for a Credentialing System
Consider setting up a system for issuing one-time credentials
for journalists. Planning for this must include setting standards
for separating true journalists from those who just want a closer
look.
_ Who Says What?
Each agency should appoint a spokesperson and agencies
should jointly decide who will speak about what.
At a minimum, media relations and planning must include
designating spokespersons for all involved agencies. All of the
agencies must have agreed in advance who will speak about
photo courtesy of City of Oklahoma City
Lessons for Other Communities 7
what. Who will speak about how many people are injured: the
Red Cross? ambulance services? the hospitals? Who will speak
about the number of dead: funeral homes? medical examiners?
_ Set a Schedule
Schedule regular media briefings. Your planning sessions with
local journalists will help you determine how often and at what
time you should hold briefings.
_ Use Media to Your Advantage
If the situation demands more supplies or personnel, use the
media to put the word out. Conversely, use the media to
communicate the “stay put until called” message. Unneeded
personnel and supplies can further hinder traffic and add to the
confusion.
_ Use the Media to Make Public Announcements
As soon as there is a disaster in a community, everyone turns on
their televisions and radios. Use local media to communicate
with parents.

8. The Media will get their story…
Photos from Thurston High School, Springfield, Oregon
May 1998
Following the shooting at Thurston High School in which 2 students were
killed and 25 wounded, the media descended on the community from all over
the world. They stopped at nothing to get their photos, using telephoto lenses
and “camping” out in front of the school for days.

9. Sample School Personnel Roles
School Role
Possible Role in Terrorism Planning
School Safety Specialist and School Security Staff
Link to county emergency management agency.
School Nurse(s)
Link to local health department (LHD
Chemistry/Physics Teachers
Link to nearest HazMat Team
Student Services Personnel such as Counselors, Social Workers, Psychologists
Recognize the psychological impact of terrorism
School Safety Specialist and School Security Staff:
Link to county emergency management agency. Become familiar with Incident
Command System. Learn the location of the nearest HazMat Team.
School Nurse(s): Link to local health department (LHD). Possibly participate
in active surveillance for infectious disease (active surveillance is based on proactive
reports to LHDs about school absences due to illnesses). Schools might be
locations for mass prophylactic clinics where asymptomatic but exposed persons
could come for immunizations or antibiotic protection.
Chemistry/Physics Teachers Link to nearest HazMat Team. Could function as the “First
Responder Awareness” who can initiate an emergency response by notifying proper
authorities during a suspected or known chemical or radiological incident
Student Services Personnel such as Counselors, Social Workers
Recognize the psychological impact of terrorism even when events are not local

10. The America Prepared Campaign
Preparedness in America’s Schools: A Comprehensive Look at Terrorism Preparedness in America’s Twenty Largest School Districts

11. The America Prepared Campaign
Non-profit, non-partisan initiative
Began in 2003
Board of Directors and 14 national experts in emergency preparedness, media, marketing, government, and business
Funded by Alfred P. Sloan and John D. & Catherine T. MacArthur Foundations
The America Prepared Campaign is a non-profit, non-partisan initiative that uses the
Expertise and energy of national leaders in emergency preparedness, media, marketing,
government, and business to give citizens tools and information for preparing their
homes and families for disaster, with a focus on terrorism preparedness. The Campaign
is funded by The Alfred P. Sloan and the John D. and Catherine T. MacArthur Foundations.
Board of Directors
Steven Brill, Chairman, The America Prepared Campaign, Inc.
Floyd Abrams, Partner, Cahill Gordon & Reindel, LLP
Cynthia Brill, General Counsel, The America Prepared Campaign, Inc.
Barbara Chaffee, President, Public Intelligence
Bill Gray, President, Ogilvy & Mather New York
Maj. Gen. Bruce Lawlor, U.S. Army (Ret.), former Chief of Staff, Dept of Homeland Security
Frank Luntz, President, Luntz Research Companies
Carl Weisbrod, President, Alliance for Downtown New York, Inc.

12. The Standard
US Department of Education Practical Information on Crisis Planning: A Guide For Schools and Communities
America Prepared rated the largest 20 school districts in US in relation to their Preparedness
Planning
Drilling
Communicating
Best/Good/Needs Improvement/Failing
The standards by which they should be evaluated are clear. In May 2003, the
Department of Education released Practical Information on Crisis Planning: A Guide For
Schools and Communities.* It recommends the steps that all school districts should take to
ensure that they are prepared for natural disasters and terrorism, among other crises.
Thus, America Prepared decided to see how the largest 20 school districts across the
contiguous United States have done in responding to these clear recommendations. We
found a wide range of performance. But generally we found that these large school systems
need to do more, often much more.

13. Preparedness
Planning: comprehensive response to a terrorist attack or major natural disaster
Drills: conduct monthly drills of that plan
Communication: communicate to parents the pertinent details of the plan; parents should know procedure for reuniting with children
The Plan. Each school and district should have a comprehensive plan that outlines
how the district and school would respond to a terrorist attack or major natural
disaster. Each school should have the necessary supplies, as defined by the
Department of Homeland Security.§
Drills. Each school and district should conduct monthly drills of that plan.
Districts should monitor that these drills happen.
Communication. Each school should communicate to parents the pertinent details
Of that plan and ask for their input. Parents should also know the procedure for
reuniting with their children if they are evacuated from school.

14. The Results
“BEST” (3): has comprehensive and sensible emergency plan that deals directly with terrorist threats; has necessary supplies on hand
“GOOD” (7): has made significant progress toward the goal of preparedness while still needing some significant improvements
“NEEDS IMPROVEMENT” (7):needs serious action in one or more areas
“FAILING” (2):has performed unsatisfactorily in all three areas: planning, drilling and communication
“BEST” (3): a school district had to have a comprehensive and
sensible emergency plan that deals directly with terrorist threats, as well as have the
necessary supplies on hand to respond. It had to have a record of regular drills of that
plan and of communicating with parents effectively and regularly.
“GOOD” (7): had to have made significant progress toward
achieving the goal of preparedness while still needing some significant improvements.
For example, the district may have made sensible attempts to get information out but
may not have translated enough of its materials into other languages used by families
in the area, thereby limiting effective communication.
“NEEDS IMPROVEMENT” (7): were those found to require serious action in one or
more area of planning, drilling or communication. For instance, the district may not
have made any attempt to inform parents, or did not supply schools with necessary
emergency items, such as back-up communications devices.
“FAILING” (2): the district must have performed unsatisfactorily in all three
areas: planning, drilling and communication.
1 not categorized

15. Fairfax County, Virginia
Number of Schools: 241
Students: 166,601
the most prepared district
exhaustive emergency plan
have some of the supplies: kits with flashlights and first aid kits
Model for DOE
templates for schools
communication templates for teachers and principals
plan defines key roles
planned response actions for terrorist emergencies
continually perform drills (table-tops once a year with police; fire and tornado drills; walkthroughs of shelter-in-place and lockdowns)
information on website in seven languages -- specific information about what parents should do in an emergency
Fairfax County Public Schools, along with Montgomery County Public Schools, is
clearly the most prepared district of the 20 largest school districts in the country. It has an
exhaustive emergency plan and each school in the district has a site specific plan.
Principals in the district confirmed that they have some of the supplies recommended by the
Department of Homeland Security, including kits with flashlights and first aid kits. An
Aug poll confirmed that 75 percent of parents reported knowing that their
school had a plan. It is a featured link on the DOE emergency planning website
( plan). The Fairfax plan is easy-to-read and has sensible templates
for schools. It provides communication templates to teachers and principals and defines key
roles for emergency response personnel. It provides response actions for terrorist emergencies
such as bomb threats, chemical and biohazard emergencies, gas or odor concerns, and
hostage situations. Fairfax County continually performs drills of its emergency plan.
Principals interviewed confirmed regular fire and tornado drills. They do walkthroughs
of shelter-in-place and lockdowns with the teachers and crisis teams (depending
on school size), and they cycle through table top exercises with each of the nine school
regions bi-annually. There are information sessions with the PTA; the superintendent has a
community advisory council. Preparedness information is available in seven different
languages (Arabic, English, Farsi, Korean, Spanish, Urdu, and Vietnamese).

16. Montgomery County, Maryland
Number of Schools: 190
Number of Students: 139,203
model of preparedness
exemplary multi-hazard crisis plan
comprehensive checklist for schools
communicate details of the parent/child reunification process to parents
emergency codes used in Montgomery: Code Red, Code Blue, and Code Blue Shelter-in-Place
guidance on suspected chemical, biological, and radiological incidents
two code red and two code blue drills a year, in addition to 10 fire drills
Montgomery County Public Schools can be used as a model of preparedness for
other school districts. Montgomery has an exemplary multi-hazard crisis plan that
includes specific instructions for schools developing their emergency plan and
district-wide responses. Included in this plan is a comprehensive checklist for schools
that outlines the specific responsibilities for: on-site emergency team planning;
emergency/crisis support planning; practice drills; medical/special needs; and
Communication; a detailed set of instructions for each member of the incident command
team by position. The district requires schools to communicate details of the
parent/child reunification process to parents “near the beginning of each school year
through different methods, e.g. principal newsletters, school’s website, PTA meetings,
etc. The district’s Emergency Response Plan addresses clearly the three different
emergency codes used in Montgomery: Code Red, Code Blue, and Code Blue Shelter-in-
Place. The district also provides to each school a copy of the MCPS Emergency/Crisis
Management Response Manual that includes guidance on suspected chemical, biological,
and radiological incidents. The schools in the district drill regularly. The district requires
two code red and two code blue drills a year, in addition to 10 traditional fire drills.
Parents are notified of these drills before they occur. Materials are available in Chinese,
English, French, Korean, Spanish and Vietnamese. The district uses
to relay information to parents.

17. Chicago, Illinois Number of Schools: 613 Students: 434,419
Failing grade
25 percent of schools do not have an emergency plan of any kind
Another 50 percent of plans are inadequate
School district, Police and Fire departments do not work together in planning
No back-up communication system
Parents are poorly informed
No special supplies in the school
Drills only include fire drills
No guidance on suspected chemical, biological, and radiological incidents
The district-wide Emergency Management Plan Manual does not adequately
address terrorist threats including chemical,biological, nuclear, and radiological
incidents. 25 percent of schools still do not have an emergency plan of any kind.
And, according to Andres Durbak, director of School Safety, another 50 percent
of Chicago public school plans vary in, as he put it, “mediocrities.” Durbank
cannot name a counterpart at the Police or Fire Departments, it is a clear indication
that they do not work together on a regular basis. The public school [district] has
an emergency plan; the police department has its own plan. The district has not
provided for back-up communication. Parents are poorly informed, Betty Carlvin,
Principal, said that she did not send home information to parents, because mailing is
too expensive and “you don’t necessarily have correct addresses.” Chicago Public
Schools provides no readily available information for parents on its website on any
kind of emergency, including terrorism. Carlvin also said that she had no special
supplies in the school because they were not recommended by district officials.
Chicago public schools limit their drilling to fire. One principal said “As far as other
types of drills, we haven’t had the need.” No guidance on suspected chemical,
biological, and radiological incidents

18. Providing emergency assistance immediately following a disaster
Response
Providing emergency assistance immediately following a disaster
Schools have a key role to play in the response phase. The response phase I
involves providing emergency assistance and trying to reduce the likelihood of
further damage during and immediately following a disaster. If any type of
disaster happens in the community during a school day, schools will be
either safe havens for students or will be responsible for safely reuniting
them with their families. If an event directly impacts a school, school personnel
will be the first responders on the scene, with responsibility for safeguarding
students’ physical and mental health. However, few schools have nurses or other
health professionals on-site or available in sufficient numbers to recognize an
outbreak in progress or to handle a disaster situation without assistance from
other school staff or community responders. For example, a recent California
State PTA survey found that 25.8% of California public schools (which educate
over 6.2 million students) never have a school nurse on campus (California State
PTA, 2003). School personnel will also have concerns about the well-being of
their own children and families. During community-wide events, schools are
also often emergency assistance sites or staging areas for community response.

19. What is Currently Being Done?
CDC’s Public Health Preparedness and Response for Bioterrorism
The Metropolitan Medical Response System (MMRS)
Dept of ED program to certify teachers and other school staff in first aid.
CDC’s Public Health Preparedness and Response for Bioterrorism funding
has provided $940 million to the states to upgrade state and local public
health jurisdictions’ preparedness for and response to bioterrorism, other
outbreaks of infectious disease, and other public health threats and emergencies.
The funding addresses preparedness planning and readiness assessment,
surveillance and epidemiology capacity, laboratory capacity, communications
and information technology, health information dissemination, and education a
nd training. The Metropolitan Medical Response System (MMRS) operates at
the local level to respond to a mass casualty event. The primary focus of the MMRS
program is to develop or enhance existing emergency preparedness systems
to effectively respond to a public health crisis, until state or federal resources
are mobilized. ED, in partnership with the American Red Cross, has created a
program to certify teachers and other school staff in first aid. The first pilot
training program occurred in May 2003 in Montgomery County, Maryland. ED
will be conducting pilot training programs around the country in upcoming months
to train school staff and provide students basic first aid and emergency
preparedness information that they can take home to their families.

20. What are the Gaps?
Lack of coordination and communication between public health, education, and other first responders
State and local education agencies are not included on terrorism response planning committees
Little attention has been given to the possibility that students might need to be quarantined at school. Schools and other first responders must be able to immediately address parent concerns about their children’s health and safety.
As was clear in the Preparedness phase, lack of coordination and communication
between public health, education, and other first responders, remains a concern
in the Response phase. State and local education agencies are not included on
terrorism response planning committees mandated by various funding mechanisms.
State and local agencies are not given meaningful information on how to involve
education agencies and schools in the planning process. School personnel have
not typically been included in emergency response plans or trained in handling
medical emergencies. Neither are mental health concerns typically addressed in
the response phase.
Little attention has been given to the possibility that students might need to be
quarantined at school, which could include being separated from parents.
Communication with parents should be effective and efficient. Schools and
other first responders must be able to immediately address parent concerns
about their children’s health and safety. Students with special health care needs
need particular consideration if sheltering-in-place or quarantine becomes
necessary. Schools need an adequate supply of medications and special medical
equipment to care for these students for up to 72 hours, as well as staff who are
trained in their care.

21. Incident Command System
Assures uniformity of command structure used by various responding parties
Provides for common, easily understood language
Promotes a manageable span of command (typically no more than seven individuals reporting to one supervisor)
Coordinates use of resources
Arranges for safety of responders
Coordinates messages to the public and the media

22. September 11, 2001
“I learned an important lesson on that day…that I could only run as fast as my slowest child.”
Teacher, P.S New York City
Photos:
Pedestrians scramble for safety in front of City Hall as the first World Trade
Center tower collapses after being hit by an aircraft.
A businessman leaving the World Trade Center.

23. Uncommon Sense, Uncommon Courage
How the New York City School System, Its Teachers, Leadership, and Students Responded to the Terror of September 11
September 11 presented the greatest security challenge ever faced by
the New York City Board of Education. (BOE) The paramount object that
day was to “get our kids home safe.” This was accomplished thorough
several critical factors: organization, professional experience in the
system, flexibility of standard operating procedures, safety simulation
and practice, and personal courage.
Two issues were paramount in the response: decision making and
communication.

24. The Report Decision Making Transportation Facilities and Support
Food Services
Communication
Curriculum
Mental Health
FiscalStudent Safety
Key Findings
The immediate response and continued recovery actions taken by the New York
City Board of Education on 9/11 have been documented in this report. Primary
research came from 32 interviews conducted with decision makers and crisis
management professionals across functional areas within the Board of Education,
over a total time frame of about six months (October 2001 – March 2002).
We will just look at 2 of these areas related to the response today:
decision making and communication.

25. Timeline 8:46 am Plane hits Tower #1 WTC
9:02 Plane hits Tower #2 WTC; schools in immediate area evacuate
9:21 subways and busses are disrupted; bridges and tunnels closed
9:59 South tower #2 collapses
10:29 North tower #1 collapses; airspace shut down
9:57 pm closed schools next day
1:00 am (9/12) all students accounted for

26. The scene……
8 public schools within 1/4 mile of Ground Zero; 5 were in immediate danger
9,000 students ages ; ALL were evacuated without injury
ALL 1.1 million students in every part of the city got home safety
2,800 people died in the towers, including 343 FDNY and 60 NYPD personnel
1,493 students lost someone in their family
Many of the 9,000 witnessed the collapse of the towers
There are 8 schools within 1/4 mile of Ground Zero with 9,000 students -
grammar, middle and high school. All were evacuated without injury, and all 1.1
million students in New York City were reunited safely with family and loved
ones.
In the midst of this heroic effort, 2,800 people died, including 343 FDNY
And 60 NYPD and Port Authority personnel. 1,493 students lost someone
in their family. Many of the 9,000 witness the collapse of the towers.
At BOE Chancellor Harold Levy decided to keep school open, making the
counter intuitive decision to delay reuniting children and families --- thus creating
an orderly release and transport for the students and staff. By 1 AM September
12 all students in the school system were accounted for. Schools were closed
on Wednesday, the 12th.

27. Disaster planning was key…
Effective decision making is critical
Emergency response plans must be dynamic
The safety and well-being of responders must be a priority
Communications will be compromised
Resources will be stressed
The recovery phase usually lasts longer than once can predict
The “story” of the Board of Education and 9/11 should be read as a case study
that seeks to illustrate two important components of Disaster Planning: Response
and Recovery. However, what happened in response and recovery can be woven
back into a consideration of prevention/preparedness. What is clear from the
case study is that several aspects of disaster planning proved critical.
Effective decision making on the part of those at the site of disaster is crucial. They
should be trained for this role prior to any event; 2. Emergency response plans need
to be generic and dynamic enough to adapt to moment-to-moment requirements of
the unfolding disaster; 3. The safety and well-being of responders including those in
leadership roles must be a priority. Likewise, pay particular attention to those who are
most vulnerable including children and children with special needs. This focus has to
continue into recovery stage; 4. Communications and communication systems will
always be compromised, if not fail, as the disaster unfolds. Plans must allow for
multiple means of communication in times of incomplete information or total
communication blackout; 5. Resources will be stressed and must be assigned to
those, who need them most, first; 6. The recovery phase usually lasts longer and
requires far greater planning and far greater resources than one can predict.

28. Decision Making
Safe evacuation of all accomplished through on-the-ground decision making
Responding to the “unthinkable” requires intelligence, creativity, and courage
Fire drills were key
Follow plans
Change plans
The response to this unthinkable terror was achieved through critical use of
on-the-ground decision making, informed by intelligence, creativity, and courage.
The World Trade Center attack occurred on the fourth day of a new school year,
before principals and teachers knew the students or the parents. Principals of the schools
at Ground Zero would later stress the importance of fire drills and their role
in supporting the calm and orderly nature of the evacuation.
Principals from each of the schools around Ground Zero contacted the
superintendent’s office immediately after the first plane hit Tower #1. A preliminary
decision was that all students were to remain in the schools( structural stability and
safety). Principals allowed children to leave if their parents came to pick them up.
Evacuation of schools began when the second plane hit the Tower #2. Two schools
located just 200 yards from the WTC had identified Stuyvesant High School as their
safety location. However, they would have needed to go through the attack area to get
there, so the principal revised the plan -- all began walking south, away from the WTC.
We heard this unbelievable rumble and everyone turned in disbelief.
The building fell like a stack of cards. We walked together, told the
kids to move quickly and keep their heads down. I wasn’t scared, it
was very communal… it was difficult to walk… (Principal’s description)

29. More decisions…… How students reached safety
Fears that children were in danger, injured or dead
Terrorism promotes a particular kind of chaos
Consider geography in plans
The anecdotes concerning how students reached safety are many. Ninety-four of
these students spent the night on cots at Curtis High School in Staten Island
after taking the ferry from Manhattan. Principals and teachers flagged down a
tugboat at Battery Park that took some students to Upper Manhattan and Queens.
Officials escorted many students on ferries to Staten Island and New Jersey
One principal walked her students across the Brooklyn Bridge to safety. In addition,
community-based organizations played critical role in safe return of children.
At Ground Zero, parent concern during these hours was exacerbated by disruptions
in communication and the need to deviate from safety plans. In addition, the chaos that
was unfolding at the World Trade Center fed fears that children were in danger or worse,
injured or dead. Terrorism promotes a particular kind of chaos. Keeping track of children
at the primary school level was more effective than at the high school level. Likewise,
the actions of BOE staff illustrated the need to be adaptive in response to unfolding
events, while remaining vigilant to the highest priority of keeping children and
staff safe. School districts should seriously consider their geographical contours when
developing safety plans in an era of terrorism. The BOE personnel engaged in responding to
terrorism at the WTC were acting with incomplete information. Nonetheless, their
decisiveness was key to the well being of their students.

30. Communication Technological interruptions/failures
Keep communication flowing
Communication into the BOE
Communication from the BOE
Keeping children safe and getting them reunited with their families was the underlying message that drove all communication on 9/11.
Need to address issues of communication in two broad areas: the technological
interruptions and failures; and efforts to keep communication flowing at the operations
level between individuals, within schools and the Board, even in the absence of
working technology. The content and validity of the information impacts decision making
in any situation; in an attack, this information guides life and death decisions.
Two main considerations of communication during the crisis for the BOE:
1. what was the communication into the BOE from outside agencies and the public, and
2. what was the communication from the BOE to the public and outside agencies as
well as to its own constituency. BOE received information from TV, radio, internet.
In addition, critical information was shared by individuals physically transporting their
information – on foot – to the Central Administration of the BOE in Brooklyn.
Office of Public Affairs coordinated all official info.
BOE distributed information through its website and radio, , phones (hotline with
40 operators). All were disrupted at one time or another! 120 languages spoken. Also,
daily briefings with school Chancellor and Mayor Giuliani assured a consistent message.
Keeping children safe and getting them reunited with their
families was the underlying message that drove all communication on 9/11.

31. Communication Recommendations
Communicate safety plans with parents
Share with other emergency responders the complete safety plans
Have three redundant systems of communication
Coordinate these systems with emergency response agencies
Plan process to communicate with the media
Have single and approved source of information
Communicate safety plans, re: evacuation sites and plans for reunification, with
parents and community groups. In this way, information is available and, parent and
community groups can be of assistance with these functions.
2. Share with other emergency responders the complete safety plans and involve
them in the planning process. Include all elements including items such as any
information contained in the Tracking and Transportation System, food service, health
care, facilities, communications, evacuation, student safety and accountability.
3. Consider at least three redundant systems of communication,
incorporating both simple and sophisticated forms of technology.
Coordinate these systems with that of the emergency response agencies to assure
the ability to communicate with them.
Ensure that a process of communicating with the media in times of catastrophe
is in place well before an event.
Provide for a single and approved source of information to prevent conflicting
messages and confusion. Timely and accurate information is essential in a crisis and was
assured by Levy’s participation in Giuliani’s daily 9/11 briefings.

32. “No one is ready for something like this.” Harold O. Levy, Chancellor

33. High School of Leadership and Public Service ~Ada Dolch, Principal
A leader who saw a situation, assessed it and engaged in on-the-ground decision making
A thorough knowledge of the physical layout
Tools of communication - walkie-talkies
A well informed and talented professional staff
Well developed evacuation plan that had been practiced
A disciplined group of students who knew how to follow directives
A leader who advocated on behalf of her community
I would argue that we can be, and are, prepared for something like this.
Ada Dolch is the Principal at the High School of Leadership and Public Service at what
is now Ground Zero. She epitomized the planning, forethought and decisiveness of decision
makers on 9/11who moved quickly to get children to safety on a day of massive destruction
that by any estimation could have ended in causality. Ada Dolch’s effective leadership in
dealing with catastrophe meant a lot of things were in place by virtue of her management:
1. A leader who saw a situation, assessed it and engaged in on-the-ground
decision making for the purpose of maintaining the well being of all in her responsibility.
2. A thorough knowledge of the physical layout – including basement -- of the vertical
building that housed the school that informed the evacuation plan and implementation.
3. Tools of communication linked into police channels. The walkie-talkies also
allowed for coverage and rapid assessment of the situation throughout the entire building.
4. A well informed and talented professional staff to implement evacuation.
5. Well developed evacuation plan that had been practiced; language and codes whose
meaning is known to the professionals in the school.
6. A disciplined group of students who knew how to follow directives and directions who
supported each other in responding to the order to evacuate.
7. A leader who advocated on behalf of her community. The educational and psychological
wellbeing of students and staff as well as the renovation of the physical plant—the building.

34. Table - top Exercise Form into groups of participants.
You are the school crisis team for Anywhere Elementary School (grades K - 5; 400 students) in a district of 25,000 students. The principal has called you together as the crisis team one evening at 7:00PM. The principal tells you that one of your 3rd grade students, Emily, has been found murdered in the park one block from your school. The news will be reported on the 11:00 PM news broadcast. The family has been notified.
Who will be impacted? What emotions will you probably see?
What will you do to support the students and staff the next day?
Allow minutes for the 2 parts of this exercise, Have participants
work in groups, then share ideas with the larger group after each part.

35. Exercise, part 2
Additional news: it is now 2 weeks after the murder. No suspect has been arrested though there has been extensive media coverage.
A second elementary age student, from a different school in the area, is found murdered. There are no witnesses and no leads to the suspect. The next day a third student (from a third school) is found murdered.
At this time the superintendent receives a note that says, “Your children are not safe anywhere at anytime.”
What additional steps does your crisis team take to ensure the safety of your students?
How do these additional murders impact the students and staff at your school?

36. Recovery
Restoring people to physical and mental health; restoring vital systems
Schools are uniquely positioned to provide normalization and security to children
and should be a part of recovery efforts. The recovery phase includes engaging in
short-term efforts to restore people to physical and mental health and vital systems
to minimum operating conditions; and long-term efforts to restore entire disaster
areas to previous conditions or better. Schools should remain open whenever possible.
Keeping students engaged in their regular routine, including attending school, is a
key to maintaining their resiliency. However, school buildings may be damaged or
contaminated and in need of repair before classes can resume and services can be
offered. Alternate locations may be needed if school buildings need extensive repairs
or rebuilding. Transportation systems to and from school also may be damaged. The
mental health of students is an essential ingredient for meeting schools’ academic
mission: Students suffering from anxiety, PTSD, or grieving the loss of friends or
loved ones will have difficulty learning. Mental health services can be delivered
through schools, particularly in underserved areas, in order to efficiently reach a
large number of children. Schools provide an optimal location for discussion,
peer, and adult support.

37. What is Currently Being Done?
Project School Emergency Response to Violence (Project SERV)
Guide for Intermediate and Long-Term Mental Health Services after School-Related Violent Events
Coping with Traumatic Events, Tips for Teachers
National Child Traumatic Stress Network (NCTSN)
Trauma Information Pamphlet for Teachers
Immediately following the events of September 11th, ED made $8.9 million of
Project School Emergency Response to Violence (Project SERV) funds available
to the New York City Board of Education, and state educational agencies in New
York, New Jersey, Connecticut, Virginia, Maryland, and Washington D.C. Funds
awarded to the state educational agencies were distributed to school districts that
were impacted by September 11th. The Substance Abuse and Mental Health Administration
(SAMHSA), in collaboration with Project SERV, has developed a Guide for
Intermediate and Long-Term Mental Health Services after School-Related Violent
Events. SAMHSA also developed a guide on Coping with Traumatic Events, Tips for
Teachers which provides tools to assist teachers to develop students’ emotional and
psychological coping and resilience skills during times of crisis. SAMHSA funds the
National Child Traumatic Stress Network (NCTSN) to raise the standard of care
and improve access to services for traumatized children, their families, and communities
throughout the United States. The Trauma Psychiatry Program at UCLA, as part of
the NCTSN, has produced a Trauma Information Pamphlet for Teachers. This
pamphlet includes information on types of posttraumatic stress reactions, consequences
of these reactions for adolescents, things that make these reactions worse, and
information on how teachers can help.

38. What are the Gaps?
Only a small percentage of children in the United States receive the mental health treatment they need
Lack of information on baseline mental health of children in the absence of a terrorist event.
Anxious or ill children do not learn well
Little information is available to help school officials understand what remediation actions are needed after a terrorist event
Only a small percentage of children in the United States receive the mental health
treatment they need. For those children who do receive needed mental health
services, schools are the primary providers. However, short- and long-term mental
health services in schools or tied to schools remain scarce. In addition, there is a lack
of information on baseline mental health of children in the absence of a terrorist event.
Children who are displaced from their schools due to a terrorist event, disrupting their daily
routines for an extended period of time, are likely to be at increased risk for post-event
difficulties. In addition, anxious or ill children do not learn well, jeopardizing the
school’s academic mission. Most schools are not well-equipped to address the mental
health needs of students, and staff, after a terrorist event. Project SERV and
FEMA/SAMHSA activities should be coordinated to prevent gaps in service
provision. Schools may be inundated with outside proposals to provide services and
conduct research. Schools must review these to determine their appropriateness for the
setting and to balance the needs for supportive intervention and normalization. School
officials are responsible for ensuring the physical safety of school buildings and grounds.
Little information is available to help school officials understand what remediation
actions are needed to ensure the safety of school property after a terrorist event, especially
an event involving biological, chemical, or radiological agents. Nor is there guidance for
schools about when it is safe to reopen damaged school buildings.

39. Emotional Responses to Terror/Trauma
Fear
Loss of control
Anger
Loss of stability
Confusion
National Association of School Psychologists:
Terrorist attacks in our country and threats or realities of war are frightening
experiences for all Americans. Children may be especially fearful that threatened or
actual military action overseas will result in more personal loss and violence here at
home. For many, the guidance of caring adults will make the difference between
being overwhelmed and developing life-long emotional and psychological coping
skills. Teachers and caretakers can help restore children’s sense of security by modeling
calm and in-control behavior. Limit exposure to media.
Fear: Fear may be the predominant reaction--fear for the safety of those in the military as
well as fear for their own safety.
Loss of control :Lack of control can be overwhelming and confusing.
Anger: Anger is a common reaction.  Unfortunately, anger is often expressed at those to
whom children are closest. Children may direct anger toward classmates and neighbors
because they can’t express their anger toward terrorists.
Loss of stability :War or military deployment interrupts routines.  It is unsettling. Children
can feel insecure when their usual schedules and activities are disrupted, increasing their
level of stress and need for reassurance.
Confusion: First, children may feel confused about terrorist attacks and war, what further
dangers might arise, and when the violence will stop. Second, children may have trouble
understanding the difference between violence as entertainment and the real events taking
place on the news.

40. 9/11: A long road to recovery
Occurred during regular school hours thus causing immediate and severe psychological trauma - students and staff
1600 students and 900 staff members lost family members
Great potential for post traumatic stress disorder syndrome
The attack of 9/11 occurred during regular school hours and caused immediate
and severe psychological trauma for students and staff- particularly for those in
the immediate area of the World Trade Center. During evacuation, children and
staff saw people jumping from buildings, evaded falling debris, and witnessed
the horror of the collapsing buildings. The impact of September 11 on the students
in NYC is estimated to be very long term.
Many of the children were screaming for their parents who actually
worked in the towers. As one teacher stepped into the street, a
small child saw the burning bodies falling from the tower and cried
out, “Look, teacher, the birds are on fire!
“The magnitude of the impact on the system in human terms is the loss of family members
to (about) 1600 students and 900 staff members. Huge numbers of parents lost their jobs
as well…no one can accurately measure how long trauma will last or even when it
will first appear…post traumatic syndrome is a genuine issue and can be triggered three
or four years later with stimulators like police and fire sirens…”
~ BOE Official

41. The Partnership for the Recovery in New York City Schools
Within 24 hours, recommendations given on:
how to explain the factual details of the disaster
how to reassure children of their and their families’ safety
how to connect children’s individual grief and feelings of loss with the grief and feelings of loss of their communities
Resource guides provided to both parents and teachers on how to deal with and recognize the effects of trauma
Personal letters of condolence
The decision makers handling the response and recovery around mental health
reached out to experts, who formed The Partnership for the Recovery in New York
City Schools. The Children’s Health Alliance (CHMA), headed by Dr. Pam Cantor, is
an advisory group who contracted with the BOE to coordinate mental health services
through the Partnership for Recovery in New York City Schools.
Within a day of the disaster, the Board of Education provided its superintendents, principals,
teachers, and staff with guidance on how to address the immediate needs of students.
Specific recommendations and instructions were given on:
how to explain the factual details of the disaster to children; 2. how to reassure children
of their and their families’ safety; 3. how to connect children’s individual grief and feelings
of loss with the grief and feelings of loss of their communities. The U.S. Department of
Education and FEMA provided funds for initial needs assessments.
Resource guides were provided to both parents and teachers that referenced
literature on how to deal with and recognize the effects of trauma on children.
Feedback from teachers indicates that this information was very helpful in
enabling them to respond to the disaster effectively in their classrooms. The
Board of Education also sent out personal letters of condolence to every family in
the school system that lost an immediate family member.

42. Expanded mental health services
FEMA’s 60-day grant included: grief counseling, individual and group interventions, and the development of multi-disciplinary approaches to treatment
Direct services to children and families provided via a tier system: school-based services referred people to community-based organizations and to hospitals
Many mental health professionals offered their services pro bono
$5 million US Dept. of Ed Project SERV grant
Quality control considerations
Students from schools in the immediate WTC vicinity needed expanded mental
health services that could not be provided by existing school-based mental health
professionals. Likewise, children system-wide were experiencing trauma and loss
and increased services were required to support these students. The initial program,
funded by FEMA’s 60-day grant, included: grief counseling, individual and group
interventions, and the development of multi-disciplinary approaches to treatment
by instructional and counseling staff within schools. Direct services to children and
families were provided via a tier system: school-based services referred people to
community-based organizations and to hospitals. It is important that schools preplan for
these events by developing relationships with consultants, mental heath professionals
and organizations for referral to allow for the creation of a mental health crisis plan.
Many mental health professionals offered their services pro bono. The teacher’s unions
mostly dealt with the immediate needs of teachers and school staff. The experience of 9/11
volunteer response is twofold, many individuals will want to help, and that mechanisms
for screening them is essential. Likewise, the tools of handling in the enormous number
of calls include: phone hotlines and a very well informed group of individuals handling
those hotlines.

43. Additional mental health support
debriefing session with Board of Education personnel
mental health assessment comprised of a sample of 10,000 children
PTSD symptoms: major depression, general anxiety, agoraphobia, separation anxiety, and conduct disorder
The Board also recognized the stressors this type of disaster put on its own staff
and, therefore, brought in professionals from New York University to do a
debriefing session with Board of Education personnel. Debriefing sessions were an
opportunity for people to talk about their specific experience of 9/11, in an
effort to help them sort out their own feelings and issues surrounding the
tragedy.
A mental health assessment comprised of a sample of 10,000 children from 100 schools.
The results were not surprising. Large numbers of students exhibited symptoms
consistent with Post-Traumatic Stress Disorder -- major depression, general
anxiety, agoraphobia, separation anxiety, and conduct disorder. The assessment
not only identified areas for immediate concern, it also set the framework for
anticipating future problems, and will contribute to our knowledge base about reactions
experienced as a result of trauma.

44. Curriculum
To foster a deeper comprehension about the events of 9/11, in terms of grief and loss, and ward off violence toward those who were Muslim or appeared to be Muslim.
Goals:
help students handle the grief and anger
work with concepts of conflict resolution
to develop a context of learning around the issues
The Board of Education developed a two-phase strategy for implementation of the
curriculum dealing with the events of September 11, It focused on understanding
the event from a number of different perspectives including those of a political, social and
economic framework. An anti-bias curriculum sought to expose students to critical thinking
about what it was to remain a community wherein diversity and difference was respected.
The goal of the effort in response was to develop materials that would foster a deeper
comprehension about the events of 9/11, in terms of grief and loss, as well as to ward off
violence toward those who were Muslim or appeared to be Muslim. The second set of
materials dealt with the socio-political realities of the United States finding itself in a “war on
terrorism”. The first phase had three goals:
To give advice to teachers on how to help students handle the grief and anger, while also
presenting issues for discussion on terrorism and terrorists. An important objective, as had
been stated, was to protect against or militate against any bias-attacks or blame directed
at Arab-Americans. “Hate Hurts” curriculum of the Anti-Defamation League was used.
To suggest ways to work with concepts of conflict resolution. Faith Based Organizations
were consulted on this part of the curriculum not only to develop guidelines and content but
also to ask them to monitor any bias related events.
3. To establish a common set of definitions and language with which to develop a context of
learning around the issues. The geography of Afghanistan and Pakistan was presented.

45. NYC: Two Years Later “Keep kids safe and they will be able to learn”
~Ada Dolch, Principal
High School of Leadership and Public Service at Ground Zero
Post 9/11, questions remain about recovery in the schools as well as how the
system would be able to react to any new catastrophe. 24 months after 9/11,
this report as a testament to a community and its resiliency as found in
the story of students, teachers and staff at a High School at Ground Zero. It also,
however, offers a perspective that at least at the systems level, the lessons of
9/11 may not be fully absorbed, or even fully articulated. This perspective is at
once, both a caution and a call to action. It suggests that we do not know
enough, we have not shared our information enough, and we are not prepared
enough to counter the threats of the day. We need to alter this situation.

46. Deeper and more professional ties with emergency management officials.
We need to be better prepared… much better prepared than we are now.” ~ Gregory Thomas, Director, National Center for Disaster Preparedness
Deeper and more professional ties with emergency management officials.
The allocation of appropriate budgets to safety departments. A moratorium on budget cuts for a 2-3 year period.
The development of training materials tailored for: principals, assistant principals, teachers, staff and children.
Gregory Thomas worked as the Director of Safety for the Board of Education on
9/11. In July 2003, he transitioned to the National Center for Disaster Preparedness,
the Mailman School of Public Health, Columbia University. Thomas commends the
actions of his colleagues in New York on 9/11 but Thomas sees gaps in most school systems’
ability to respond to similar catastrophic events. For him, prevention and preparedness
(the two p’s) allow for the highest degrees of successful response and recovery
(the two r’s). As he states: “We have to go after this with an attitude that terrorism will
happen again. It is not the question of if anymore, but the question of what the next
event is going to be. By preparing for the “imaginable” we prepare for the
“unimaginable”. School systems and districts can develop these right now:
1. Deeper and more professional ties with emergency management officials.
2. The allocation of appropriate budgets to the departments within School systems
responsible for safety. This needs to include a consideration of a moratorium on budget
cuts for a 2-3 year period, so as to ensure the financial support for adequate training and
re-tooling of the professionals as well as emerging staffing needs.
3. The development of training materials tailored for groups such as: principals and assistant
principals, teachers, staff and children. The materials for children, of course, would be
age sensitive.

47. ~ Gregory Thomas, Director, National Center for Disaster Preparedness
Sharing of knowledge on a coordinated basis by those individuals directly involved in 9/11 as well as in other school based disasters, like school shootings.
The engagement of parents, and community in planning and preparedness with specific reference to their role in ensuring the safety and wellbeing of the students.
4. The capture of information and sharing of knowledge on a coordinated basis by
Those individuals directly involved in 9/11 as well as in other school based
disasters, like school shootings. Typically, information is shared within professional
groups, but not across them and not on a consistent basis.
5. The engagement of parents, community and civically based organizations in
planning and preparedness with specific reference to their role in ensuring the
safety and wellbeing of the school populations.

48. What we’ve learned…….
While we may not be able to prevent every major crisis, we can take actions to minimize the effects.
Major crises ~ natural and manmade ~ have a significant impact on schools, even when not directed at schools.
Dealing with mental health issues of students and staff is essential to the recovery process.
Every school must have a “multi-hazard” safety plan.

49. What we’ve learned…….
Schools need to foster linkages with communities: fire, police, mental health, victim services.
Practice makes perfect. Make schools a part of larger community drills.
Plan ahead. Things can be done today that will help you tomorrow.
Keeping schools safe is hard work!

50. Our Challenge
“We have to go after this with an attitude that terrorism will happen again. It is not the question of if anymore, but the question of what the next event is going to be.
By preparing for the “imaginable” we prepare for the“unimaginable”.
~ Gregory Thomas, Director, National Center for Disaster Preparedness (2004)

51. National Association of School Psychologists Terrorism Workgroup:
Cathy Kennedy Paine, Chair. Special Services Coordinator, Springfield School District, Springfield, Oregon
Craig Apperson, Program Supervisor, School Safety & Security Programs, Washington State Office of Superintendent of Public Instruction, Olympia, Washington
Jenny Wildy, School Psychology Graduate Student, Eastern Kentucky University
Ralph E. (Gene) Cash, Ph.D., Associate Professor, Nova Southeastern University, Ft. Lauderdale, Florida

52. Sources used in this presentation:
Apperson, C.D. OSPI Learning and Teaching Support.
Brill, Steven, and Phinney, Allison. (2004) Preparedness in America’s Schools: A Comprehensive Look at Terrorism Preparedness in America’s Largest School Districts. America Preparedness Campaign, Inc.
Brock, S.E., Sandoval, J., and Lewis, S. (2001) Preparing for Crises in the Schools, second edition. New York: John Wiley & Sons, Inc.
Degnan, A. N. , (2004) Uncommon Sense, Uncommon Courage: How the New York City School System, Its Teacher, Leadership, and Students Responded to the Terror of September 11. New York: Columbia University Mailman School of Public Health.
Diaz, A. (2003) National Advisory Committee on Children and Terrorism: Recommendations to the Secretary. Atlanta, Georgia: Centers for Disease Control.
Ingraham, L.M. (2003) Terrorism Supplement to the Checklist for a Safe and Secure School Environment. Indiana Department of Education.
International Meeting on Helping Schools Prepare for and respond to Terrorist Attacks. February 13-14, Washington, D.C.
Murphy, G.R., Davies, H.J., and Plotkin, M. (2004) Managing a Multijurisdictional Case: Identifying the Lessons Learned from the Sniper Investigation. Washington D.C: Police Executive Research Forum.
Practical Information of Crisis Planning: A Guide for Schools and Commuinities. (2003) U.S. Department of Education.
Schools and Terrorism. (2003) A Supplement to the National Advisory Committee on Children and Terrorism: Recommendations to the Secretary. Atlanta, Georgia: Centers for Disease Control.