CAN 211 Innovator Materials Combined - 2-1

Sharing 2-1-1 Resource Database
Records as a Disaster Planning and
Preparedness Strategy
October 1, 2008
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TABLE OF CONTENTS
FOREWORD..................................................................................................3
PREFACE .....................................................................................................4
The CAN/2-1-1 Resource Data Record Project................................................4
BACKGROUND ..............................................................................................5
EXECUTIVE SUMMARY ...................................................................................6
2-1-1 SELF-ASSESSMENT—A RESOURCE DATA RECORD SHARING READINESS
TOOL ..........................................................................................................7
BENEFITS TO 2-1-1 SHARING RESOURCE DATABASE RECORDS AND WHY CAN
VALUES 2-1-1 COLLABORATION ................................................................... 15
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FOREWORD
2-1-1’s from across the nation express interest in the 211/CAN Resource Data
Record Sharing Project. Cutting edge, the project uses technology to track the
coordination and streamline the complex arena of non-profit-led disaster survivor
recovery. Resource information is the critical force behind survivor recovery. The
Project’s vision is to improve disaster survivor recovery outcomes by:
1. Having the community’s top experts in resource data collection, classification,
maintenance, and evaluation—2-1-1s and other Information and Referral
agencies—be included in a community’s disaster recovery plans as a
collaborative partner
2. Supporting the unprecedented community collaboration that tackles tough
human disaster recovery challenges in an integrated process using a common
platform.
3. Using technology as never before to compile, catalogue, and share disaster
recovery resource information for speedier and more compassionate disaster
survivor recovery outcomes
4. Promoting and using AIRS accreditation Disaster Standards
5. Promoting the AIRS XSD standard for interoperability by 2-1-1s and by 2-1-1
software vendors
6. Promoting the use of 2-1-1 by FEMA VALS (Federal Emergency Management
Agency, Voluntary Agency Liaisons) to present their resource availability, rather
than creating a duplicate database.
Project partners are pleased to present this compilation of materials designed to
meet the needs of 2-1-1’s considering sharing resource data records as an
emergency planning and preparedness strategy.
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PREFACE
The CAN/2-1-1 Resource Data Record Project
Even before FEMA lauded 2-1-1’s performance during the 2004 and 2005
hurricane seasons, urging “states to establish a 2-1-1 system” to assist victims
searching for help, 2-1-1 had been cited as an essential community tool in
comprehensive disaster planning, response and recovery. Local 2-1-1s are the
repository of a community’s human services resource information and experts at
using technology to gather, maintain, and organize valuable resource data
records. Yet many 2-1-1’s are just beginning to realize the importance of
participating in their community’s disaster preparedness planning coalitions. With
2-1-1 now available to nearly 70 percent of the U.S. population, the need to fully
engage in disaster preparedness and recovery is clear.
The CAN/2-1-1 (Coordinated Assistance Network) Resource Project is a CAN
strategic initiative implemented through United Way of America, a founding
member and leadership partner in CAN. The project’s goal is to increase efforts to
coordinate resource information sharing following large-scale disasters by
preparing now—and to implement a system specifically designed to ameliorate
what is called “the second disaster,” the feelings of helplessness and anger
commonly experienced by victims attempting to wade through an unwieldy,
bureaucratic human services system.
This document is one product of the CAN/2-1-1 Resource Project. It is designed
for use by 2-1-1’s and other Information and Referral Agencies to 1) help them
get involved in community planning and preparedness coalitions if they have not
done so already; 2) tackle technology and process challenges related to sharing
resource data records for more effective disaster survivor recovery.
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BACKGROUND
It is unlikely that a single national technology platform will emerge to share client
and resource disaster data. Therefore, to build on the current system and
experience, CAN is helping to develop a “system of systems” focused on a
standards based approach to refining and deploying interoperable technology for
large-scale disaster response and recovery.
CAN is focused on finding technical solutions for how systems “talk” to one another
and advocates use of the new but promising AIRS XSD standard for
interoperability. Specifically CAN is currently focusing on:
•
An interoperable web-based system capable of importing and exporting
client and resource data, particularly from and to 2-1-1 systems, to assure
smooth flow of information and adequate assistance to disaster agencies and
clients.
•
An interoperable system to document client needs both met and remaining;
to record and track assistance; and eliminate duplicative service
•
An interoperable system to serve as a point of entry for disaster agencies
that lack a web-based system
•
Facilitating the implementation of AIRS resource data standards among
vendors and relief agencies
•
Supporting the development and implementation of a standard to streamline
and coordinate the exchange of client information.
This is one project in a series to address challenges facing the disaster sector. The
2-11/CAN Resource Data Record Project is an important step to meet the sector’s
need for speedier, more compassionate, and more efficient disaster survivor
recovery.
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EXECUTIVE SUMMARY
The document begins with a self-assessment diagnostic. The 2-1-1 Self
Assessment outlines the characteristics of 2-1-1s that are ready to share resource
database records and offers a rating-scale as means for the user to gauge the 2-11 organization’s readiness to participate in a sharing effort. The higher the score
in each section, the more likely it is that the 2-1-1 is in a strong position to
proceed with resource data record sharing.
The assessment is the basis for how the rest of the document is used. It will point
the user to specific Appendices or provide other information to enable the user to
learn about, learn more, and/or take to the implementation level, plans for sharing
resource database records. At the same time, the document’s referrals,
references, and Appendix attachments provide the user with a broad range of
disaster-related planning and preparedness theory and practice.
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2-1-1 SELF-ASSESSMENT—A RESOURCE DATA RECORD
SHARING READINESS TOOL
The CAN/2-1-1 Resource Data Record Sharing Project’s vision is to improve
disaster survivor recovery outcomes by:
1. Having the community’s top experts in resource data collection, classification,
maintenance, and evaluation—2-1-1s and other Information and Referral
agencies—be among the community’s nonprofit disaster recovery plan makers
and recovery providers
2. Taking on unprecedented community collaboration that tackles tough human
disaster recovery challenges shared among public/private/governmental
partnerships
3. Using technology as never before to find, catalogue, and share disaster
recovery resource information for speedier and more compassionate disaster
survivor recovery outcomes
4. Promoting and using AIRS Disaster Standards
5. Promoting the AIRS XSD standard for interoperability by 2-1-1s and by 2-1-1
software vendors.
6. Promoting a special partnership between 2-1-1s and FEMA VALS that urges 21-1 to be the repository for federal assistance resource information
If 2-1-1 has achieved Points 1-5 above, you are ready to share resource data
records with CAN’s national database. To begin the sharing process, please:
•
Review the next section, Benefits to 2-1-1 Sharing Resource Data Records
and Why CAN Values 2-1-1 Collaboration
•
Review the Memorandum of Understanding template between 2-1-1 and the
American Red Cross acting on behalf of CAN (MOU) located in Appendix D
•
Review Resource Data Feed Information found in Appendix C
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•
Finally, email [email protected] and request a consultation.
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2-1-1 SELF-ASSESSMENT—A RESOURCE DATA RECORD SHARING
READINESS TOOL
2-1-1s may benefit by using The Self-Assessment tool. It will help 2-1-1’s check
readiness to engage in resource data record sharing to improve the quality of
disaster survivor recovery. It will point out strengths in 2-1-1s disaster activities
and offer suggestions for further improvement. It provides ideas for further
engagement in community nonprofit disaster planning and emphasizes the
importance of AIRS Disaster Standards and AIRS XSD interoperability standard.
To begin, 2-1-1 staff should consider each section, below, and rate 2-1-1 using the
instructions provided. Ratings are largely subjective. If 2-1-1 rates itself at
a 4 or a 5 in any section, it is unlikely more work needs to be done and
the user can move on to the next section. If 2-1-1 rates itself at 3 or
below, it is recommended that 2-1-1 undertake some of the next step
suggestions provided in the respective section.
If you would like to walk through this assessment before carrying it out, or if you
would like technical assistance by phone conference to you and/or your planning
group throughout the assessment process, please contact [email protected] and a
consultation time will be arranged.
====================
BUSINESS MODEL
Context: Knowledge about 2-1-1’s business model means that staff have a basic
grasp of the organization’s lines of authority, budget, and planning and priority
setting processes. If the assessor is able to answer the questions below, basic
proficiency is demonstrated.
A. What is the business model of the 2-1-1?
•
Is the 2-1-1 government owned, autonomous, and/or does it need state
oversight approval to make decisions? How are decisions made?
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•
Is 2-1-1 a program of another agency and if so, what is the name of that
agency?
•
Does its board or executive director charge 2-1-1 with being involved in
disaster planning and preparedness?
•
How are decisions made for programmatic commitments such as an
SOU/MOU defining sharing resource data?
o What process would take place to achieve resource database record
sharing with CAN?
o What would be a typical time line to achieve this?
o Would you assess or evaluate the disaster resource sharing effort if
you carried out one? If so, what specifications would its
success/failure be matched against?
•
Is the 2-1-1 AIRS Certified?
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Does the 2-1-1 use AIRS Disaster Standards? How?
•
Does the 2-1-1 ask its software vendor to be AIRS XSD compliant or
compatible?
•
Is 2-1-1s software AIRS XSD compliant or compatible?
HOW DID WE DO?
Rate yourself. On a scale of 1-5 where 1 is the least complete and 5 is the most.
SCORE _______
NEXT STEPS. If you did not achieve a 4 or 5, what steps do you need to take to
find out the answers and learn your internal process for decision-making and bring
the idea or resource database record sharing to the table? Steps may include:
• Talk to your board, the executive director or other oversight body and clarify
how decisions are made.
• Share and “do” Appendix A--Using a 2-1-1 System to Respond to Crisis to
make your case and to help 2-1-1 begin or improve your plans.
• Review and use the next section of this document, Benefits to Sharing
Resource Database Records and Why CAN Values 2-1-1 Collaboration to
make the case.
• Visit www.AIRS.org and select: AIRS Standards, Accreditation, and/or
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Certification from the left-had column.
=================================
COMMUNITY PARTNERSHIP EXPERIENCE
Context: Interagency sharing is a high level art that takes time, skill, and
persistence. This section is designed to help the assessor think about its
experience in community partnerships and gauge proficiency.
B.
What is 2-1-1’s experience in community partnerships?
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What level of experience does 2-1-1 have as a member of other community
partnerships (e.g.: VOAD, collaborations related to the ESF functions, other
planning and preparedness groups, or response and recovery experience,
homeless, disaster planning other like HMIS)? Is the level of experience
more of a bystander/lurker, as an agency that shows up, or one that takes a
leadership role? (Assign more points the more leadership is apparent).
•
Does your 2-1-1 subscribe to UWA’s 2-1-1 List serv? Are you a lurker,
occasional responder/question poser, or frequent responder/question poser?
•
Does your 2-1-1 subscribe to UWA’s Crisis List serv? Are you a lurker,
occasional responder/question poser, or frequent responder/question poser?
•
Does your 2-1-1 subscribe to the AIRS List? Are you a lurker, occasional
responder/question poser, or frequent responder/question poser?
HOW DID WE DO?
Rate yourself. On a scale of 1-5 where 1 is the least complete and 5 is the most.
SCORE _______
NEXT STEPS. If you did not achieve a 4 or 5, what steps will you take to increase
your knowledge and experience in community partnerships? Consider the
following:
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Subscribe to the AIRSNETWORKER. This networking list discusses important
2-1-1 and I&R issues. Visit
http://health.groups.yahoo.com/group/airsnetworker
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Subscribe to United Way of America’s 2-1-1 list. Send an email to
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[email protected] with the following command in the body:
SUB 2-1-1discussion-l (that last character is a lower case L)
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Go to www.NVOAD.org. It is the Website for the National Voluntary
Organizations Active in Disaster. Browse and learn. Check out the
documents section. Download the Long-Term Recovery Manual.
•
Share and “do” Appendix A--Using a 2-1-1 System to Respond to Crisis
============================
DISASTER EXPERIENCE
Context: The purpose of this section is to determine the level of experience in
disaster, planning, response, and recovery. The more experience, the higher the
score.
C. 2-1-1 Disaster Experience
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Does the 2-1-1 have disaster planning, response and/or recovery
experience? If so, what did 2-1-1 do?
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Has your community ever been directly impacted by a disaster and if so,
what is the most recent disaster event your 2-1-1 was involved in?
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Has your community ever served as a disaster host community whereby
your community did not suffer the direct impact of a disaster but rather,
became engaged in recovery efforts because people re-located to your
community? What was the impact on 2-1-1?
•
Has your 2-1-1 been involved in multi-jurisdictional disaster recovery
whereby the impact of the disaster spanned beyond the 2-1-1 service area
or geo-political boundaries?
•
Are you now or have you ever been involved in your community’s long-term
recovery effort that involved working with your VOAD (Voluntary
Organizations Active in Disaster), Red Cross, Salvation Army or other
collaborative efforts?
•
Are you now or have you ever collaborated with case managers regarding
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how to improve service to disaster survivors?
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How disaster prone is your area? What are the disasters likely to affect you?
HOW DID WE DO?
Rate yourself. On a scale of 1-5 where 1 is the least complete and 5 is the most.
SCORE _______
NEXT STEPS. If you did not achieve a 4 or 5, what steps will you take to increase
your knowledge of disaster planning, preparedness, and recovery? Consider the
following:
•
•
•
•
•
Go to www.NVOAD.org. It is the Website for the National Voluntary
Organizations Active in Disaster. Browse and learn. Check out the
documents section. Download the Long-Term Recovery Manual.
Share and “do” Appendix A--Using a 2-1-1 System to Respond to Crisis
Use Appendix E—Coordinated Assistance Network to learn more about this
disaster planning and response partnership.
Contact your local VOAD (Voluntary Organizations Active in Disaster) and/or
state/local EMA (Emergency Management Agency).
Visit can.org
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2-1-1 TECHNOLOGY
Context: If 2-1-1 and its software vendor use or are compliant with the AIRS XSD
standard, staff time and other costs are minimal to accomplish resource data
record sharing. The purpose of this section is to raise awareness of the benefits of
adapting AIRS XSD and to underscore the importance of conveying why this is
compliance/compatibility is so important to your vendor.
D. 2-1-1 Technology
•
What is the name of 2-1-1's database/what system is used and who is the
vendor?
•
Does the database have a sharing utility? Is there a special fee to use it? Is
it in AIRS XSD format?
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•
What would the vender charge to create the feed?
•
Does the 2-1-1 use the AIRS XSD standard or one that is compatible with
the AIRS XSD?
•
Does the 2-1-1 vendor use the AIRS XSD or one that is compatible with the
AIRS XSD?
•
Does 2-1-1 contribute to state level data consolidation?
HOW DID WE DO?
Rate yourself. On a scale of 1-5 where 1 is the least complete and 5 is the most.
SCORE _______
NEXT STEPS.
If you did not receive a 4 or 5, what are your next steps to improve your
technology score?
• Use Appendix C—Resource Data Feed Information details the steps and
process for sharing resource database records into the CAN system
• Review and use the next section of this document, Benefits to Sharing
Resource Database Records and Why CAN Values 2-1-1 Collaboration.
• Talk to a 2-1-1 colleague who has shared resource data records to learn
about the experience, benefits, and lessons learned.
Congratulations!
If you have completed the Self-Assessment, please score each section and select
Next Steps to improve 2-1-1’s readiness to be involved in disaster preparedness
through resource data sharing.
If 2-1-1 has completed all Next steps and is ready to share resource data records
with CAN’s national database, please:
•
Review the next section, Benefits to 2-1-1 Sharing Resource Data Records
and Why CAN Values 2-1-1 Collaboration
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•
Review the Memorandum of Understanding template between 2-1-1 and the
American Red Cross acting on behalf of CAN (MOU) located in Appendix D
•
Review Resource Data Feed Information found in Appendix C
•
Finally, email [email protected] and request a consultation.
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BENEFITS TO 2-1-1 SHARING RESOURCE DATABASE
RECORDS AND WHY CAN VALUES 2-1-1
COLLABORATION
What is the CAN resource database?
It is a national database that allows a user to describe, manage, edit and maintain
information about local and national agencies, programs and services. This
database is critical for case managers in their effort to find services to meet their
client’s post-disaster needs. In addition, the CAN database allows agencies to
report out and track referrals given for services at other agencies, as well as
services their agency has provided. Additionally, the case manager using CAN’s
Resource Database also knows which 2-1-1/I & R the resource data records came
from because immediate credit is given upon accessing a resource data record.
Finally, CAN’s software has the ability to produce resource data record usage
reports for contributing 2-1-1’s management and other reporting needs.
How can 2-1-1s/I & Rs and CAN collaborate in order to better assist
clients?
Local 2-1-1 and Information & Referral services play an important role in
identifying and tracking the resources of a community. In routine daily activity
they often are experts on services available in a community. During the immediate
and LTR (long term recovery) phases, 2-1-1 may work closely with FEMA and
other disaster organizations that bring their resources to bear on specific efforts.
Additionally Disaster survivors have needs that 2-1-1 addresses routinely (food,
shelter, utility assistance).
In order for the CAN resource database to be as comprehensive and accurate as
possible, CAN wishes to collaborate with local 2-1-1s and I & R agencies to share
resource data records, thus helping case managers serve those affected by
disaster more effectively and efficiently. It is very helpful for case managers to be
able to search in one database versus needing to go to multiple resource
databases. Additionally by having the resource data directly in the CAN database
it will allow for an accurate representation and program count as to how many
times the data was reviewed by users and then attached to the clients record. This
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also provides opportunities for the community to track trends and needs across
the community.
Hurricane Katrina reaffirmed that human needs are best met by the combined
efforts of a number of organizations. This being true, the more information that is
available for case managers through consolidated points of entry, the better
human service providers assist those in need. This is why CAN strives to work in
partnership with local 2-1-1s/I & R’s.
With that in mind, here are other things for 2-1-1s/I & R’s to consider:
• CAN will provide technical support to ensure a successful data transfer as
long as the vendor uses the AIRS XSD as the basis for their XML.
• 2-1-1/I & R’s will receive full credit for the data they provide, as well as
valuable reports.
o Data that is fed into the system will have the source identified, thus
giving explicit credit to the 2-1-1/I & R, for every hit.
o CAN will list the 2-1-1/I & R and a link to their website at
www.can.org.
o As the resource information is used by case managers to either give
referrals or document services provided, a new set of fields will track
"hits", thus count every time a resource is given as a referral or as a
service provided to a client.
o In addition, a reporting system will be designed which details the
profiles that were used over specific periods of time (i.e. 7, 30 and 90
days). All this information will be shared with the local 2-1-1/I & R as
requested.
o In about 2 business days CAN can provide 2-1-1s/I & R information on
how many participating agencies are in the I & R service area and how
many case managers are registered with CAN in their area.
• CAN will help 2-1-1s/I & R’s keep their resource information accurate and
up-to-date by providing feedback to the 2-1-1.
o A feedback form will be incorporated, allowing 2-1-1/I & R’s to receive
notification about any information that is incorrect or out-of-date in
their community.
• The 2-1-1/I & R will receive increased exposure because collaborating with
CAN creates an opportunity for case managers and clients to be introduced
to their local 2-1-1/I & R for future needs.
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For more information on sharing your resource data with CAN, please contact
[email protected].
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APPENDICES
APPENDIX A—USING A 2-1-1 SYSTEM TO RESPOND TO CRISIS (Produced by AIRS
and United Way of America—Funded by the Lilly Endowment)
APPENDIX B—QUESTIONS TO ANSWER WHEN INFORMATION SHARING IS
REQUESTED
APPENDIX C—RESOURCE DATA FEED INFORMATION
APPENDIX D—MEMORANDUM OF UNDERSTANDING TEMPLATE
APPENDIX E—THE COORDINATED ASSISTANCE NETWORK
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APPENDIX A—USING A 2-1-1 SYSTEM TO RESPOND TO
CRISIS1 (Produced by AIRS and United Way of America—
Funded by the Lilly Endowment)
USING A 2-1-1 SYSTEM TO RESPOND TO CRISIS
This is a supplemental piece developed to augment the current Crisis Readiness
Training available through AIRS and through the United Way of America. The
process was funded through a generous grant from the United Way of America and
the Lilly Endowment.
The intended outcome of this training piece is:
1. The I&R community will have a blueprint for better defining the role that 21-1 systems can play in responding to disasters/crises.
2. The I&R community can accelerate their procurement of 2-1-1 by offering
services that augment and in some case, greatly enhance, a community’s
ability to respond to crises.
3. Local United Ways will be able to define a working relationship with the 2-11 system in their community (when they are not within the same
organization).
4. Local United Ways will seek ways to enhance the 2-1-1system through
financial and political support.
For more information on how to receive a copy of the AIRS Disaster Training
Manual or additional copies of this supplement to the manual – contact AIRS at
206/632-AIRS or write: [email protected].
The following persons and their organizations contributed to the success of this
project:
• AIRS Lori Warrens
• United Way of America Linda Paulson
• National 2-1-1 Collaborative Dan Williams
• United Way of Connecticut Mary Hogan
• United Way of Metro Atlanta Betty Hanacek
1
Produced by AIRS and United Way of America—Funded by the Lilly Endowment
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•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
Texas I&R Network Judy Windler
United Way Services – Richmond, VA Patricia Couto
Council of Community Services Pam Kestner-Chappelear & Sandra King
Northern Virginia Regional Commission Tylee Smith
The Planning Council George Harden
Family Resource & Referral Center Beth Baber
United Way of Central Virginia Joan Phelps
United Way of Thomas Jefferson Area Jon Nafiziger
FEMA Liz Gibson & Ken Skalitzky
Rappahannock United Way Melissa Papendick
United Way of National Capital Area Tamara Schomber
Virginia Department of Information Technology Pam Seay
Virginia State Corporation Commission
United Way of Culpepper Betty Roberts
Higher Resources, Inc. Carolyn Coarsey
It is our sincerest wish that this information would be utilized to improve the 2-1-1
system, information and referral services and both AIRS and United Way of
America’s ability to respond to disasters with strength and integrity.
I. Background
AIRS
Information and referral has played an active and defined role in disaster
response and recovery since the early 90’s (emphasis on planned and defined). In
1997, through a Department of Commerce federal grant, AIRS developed and
presented the National Emergency Information Network (NERIN), a disastertraining guide for Information & referral providers.
The training was based on natural roles that information and referral centers play
in a community and built upon those roles to describe those it had already played
or could potentially play during and following a disaster.
The experiences of information and referral centers acting in disasters were used
to define disaster missions and with the proliferation of 2-1-1 those roles may be
expanded.
The purpose of the training manual is to:
• Assist information and referral centers in understanding the potential use of
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the 2-1-1 system during disasters/crisis
• Expand the 2-1-1system’s normal role and offer suggestions for community
acceptance of the role during disasters
• Accelerate the implementation of 2-1-1 systems in communities through
defining a critical role in responding to disasters
• Assist information and referral centers in accessing funding from local, state
and federal organizations that fund disaster infrastructure planning
• Define relationships with United Ways, volunteer centers and donation
management groups and coordinate use of the 2-1-1 system to augment
those services following a disaster/crisis
II. Understanding Disaster Response
It is critical the partners in the 2-1-1 system understand how a local municipality,
as well as its’ state office on Emergency Management (OEM) responds to a
disaster. It will assist the information and referral center in describing how the
center can assist and/or improve the response in a community.
Do not despair if the initial contacts do not result in full understanding or
acceptance of the 2-1-1 services. Just be prepared to do the work if a disaster
occurs. Remember, that a crisis brings many opportunities. If the information the
rest will follow.
Call management is frequently mentioned as an area for improvement and/or
concern when groups are de-briefing following a disaster/crisis.
How does disaster response work? This is a quick summary. For more
information, please refer to: AIRS Disaster Manual
Response – this is the period of time immediately following a disaster. This is
generally the purview of the municipality, the police, fire and rescue organizations.
This is the period of time when lives are at greatest risk, the saving of lives and
properties are the highest priority. Generally, this is only a very limited role for a
call center. Most calls should be going to the 9-1-1. This period generally lasts up
to 72 hours. In the case of bio-terrorism or bombings, the rescue processes could
go on for a considerable period of time and the response period will overlap the
relief and recovery period.
Relief – this is the second stage of a disaster. This is when the municipalities
expect American Red Cross and The Salvation Army to step in and begin providing
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relief services, such as shelter and food. It is during this period of time the public
becomes hungry for information. The search for information can move from where
the closest shelters are located to what highways are open. It is at this stage that
local emergency management officials and American Red Cross volunteers and
staff will be conducting an assessment to determine their abilities to meet the
needs of the community. If the impact is large, there will be a request for a
federal Declaration. If a federal disaster declaration occurs, national groups will
join the community in its relief and recovery efforts. This period can generally last
up to three months.
Recovery – this is the community’s road back to normalcy. In many cases this
can take between 6 months to two years. The movement from dependency on
national and emergency resources to community-based resources occurs during
this period of time. Few, if any, national organizations remain active in the longterm recovery process.
III. Understanding the ICS Incident Command System
It is critical that information and referral centers understand the ICS. This is a
military based response system that allows for independent response and yet
creates a system for knowing who will do what, when and where. It organizes the
response and every group knows who is ultimately responsible for the outcome of
specific functions. It is designed to reduce confusion in decision- making, increase
functionality and manage situations where loss of communication may occur.
In most cases, the information and referral center should be able to describe their
functions within an ICS model. For more information on how to develop an ICS
model for disaster response, see the AIRS Disaster Training Manual.
IV. 2-1-1 System’s Roles in Disaster
1. Manage and track available resources – preparation for resource management –
see the disaster taxonomy. Whenever possible, review the categories and locate
the available resource information ahead of time. The OEM will have some of this
information. It needs to be in the database and updated annually.
2. Manage and track requests for resources – have a back-up plan for augment
the number of I&R specialist available to answer the telephones. When 2-1-1 was
used following the September 11th events the use of 2-1- 1 system was 90%
higher than use of 1-800 #s. Call volume could increase by 100%. Connecticut
2-1-1 system trained Department of Social Service workers as back-up telephone
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support. Their center had adequate telephone hardware capacity to handle the
increased volume of calls.
3. Provide comfort and assurance – people will need a place to call. I&R
Specialists need to be prepared to listen to a variety of needs, many times just the
need for people to connect with someone. The 2-1-1 system offers an easy-toremember telephone number that invites people to call.
4. Volunteer management – if your community has a volunteer center separate
from the 2-1-1, Points of Light Foundation, United Way of America and AIRS
encourages the information and referral center to draft a memorandum of
understanding that outlines how the 2-1-1 system can be used to provide call
management for volunteerism for the Volunteer Center. The incidence of
spontaneous volunteerism is enormous following a disaster. Your Volunteer
Center can be critical in being able to manage this important asset.
5. Donation management (both financial and in-kind) – Behind spontaneous
volunteerism comes spontaneous donations. If there is an organization that has
been designated in the municipal emergency management plan, have a
memorandum of understanding in place with those organizations about
appropriate donation management referrals.
United Way of America is drafting a training to outline models for financial
donation management. American Red Cross and Salvation Army will probably run
their own media donation campaigns, but a community-wide campaign for funds
may need to occur to make sure that the community has the funds necessary to
recover. The information and referral center could be the financial information
provider or it could even take telephone donations via credit card on behalf of the
entity designated in a community to manage the donations.
In-kind donation management is usually written into the OEM plan. Follow those
instructions. If it is not, the information and referral center may ultimately end up
handling those calls. Try to use the local food bank (member of Second Harvest
network) for all packaged food donations. If the community has a Gifts-In-Kind
Program member, that organization may have the capacity to manage the
spontaneous donations.
Rule of thumb: most disaster victims do not need large quantities of donated
clothing; please try to discourage these donations. American Red Cross will not
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accept used clothing or furniture, only new. The Salvation Army reserves the right
to re-sell them in their thrift stores. Consider offering these organizations access
to the 2-1-1 system to answer the phones, access their tracking systems, follow
specific protocols for screening referrals to the Volunteers Center or Gifts-In-Kind
Program. There are many ways to create a partnership with these key community
partners.
6. Information for coordination of services – the information and referral center
will know who is providing what kind of services, when and for whom. This
information becomes a critical piece to locating victims, providing comprehensive
relief and recovery services. Bring this information to all meetings, in print and
also demonstrate how it can be found on the Internet.
7. Rumor control – this may become an essential piece following a bio- terrorism
act. “Stick to the facts”, get to the bottom of questionable information, and do not
give out any unverified information.
8. Information control – see above
9. Media contact – the media will want to know who is doing what, for whom and
where. They will also want to get contact information. Provide information about
service providers, be very careful and in most cases, avoid giving out information
about victims – leave it to the direct service providers. Correct questionable
information and put the most positive spin possible on how agencies are
responding. See the AIRS Disaster Training Manual for more information on
working with the media. Do advertise the 2-1-1 number as the easy to remember
number for comprehensive information about the community’s response to the
disaster.
10. Evacuation/traffic issues – the information and referral center will get calls
about evacuation routes or highway closings. If the state has an operating 5-1-1
service or similar service, check to make sure it is working and has up-to-date
information and refer callers to them. If not, call the DOT, listen to the radio
and/or watch the television to get some of the most current information and have
a process for distributing changes to the staff.
11. Travelers’ aid – persons may become stranded in the community as a result of
the disaster. If possible, use the normal system to respond to the travelers needs.
If the organization is overwhelmed, contact non- traditional agencies and seek
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assistance on behalf of the travelers.
12. Displaced pet location – the local chapters of the SPCA and/or Humane Society
have a process for locating and boarding pets following a disaster make sure the
information and referral center has these resources in the database.
13. Information for corporations – this is an opportunity to introduce corporations
to 2-1-1 and information and referral. If the center has the capabilities, publish a
daily or weekly update on available disaster resources and volunteer/in-kind
opportunities. This is great advertising and community relations’ service that
benefits the entire community.
14. Money management resources – the disaster will take on many forms and
create a variety of financial problems for people. Take time to understand the
available federal funding streams (FEMA, disaster unemployment) and have in
place a quick training to make sure the specialists are able to screen and refer
persons appropriately.
15. Burial assistance – many communities have limited resources available for
families. If there has been a large-scale disaster resulting in a high number of
deaths, there may be a need for these types of services. Coordinating those
organizations that can assist in payment, as well as delivery of services will be a
possible role.
16. Missing persons tracking- this category is up for discussion. A large-scale
disaster, like the September 11th event, may create a need for this service. It
was determined that within the domestic defense process it was not assigned to
any specific agency or entity to perform this service. The information and referral
centers may want to explore the use of 2-1-1 for this service.
V. How to’s:
A. How to contact your local OEM and suggestions for both verbal and
written materials:
1. Start with the largest local municipality (town, city, county) and ask if they
have a specific person designated to handle emergency management. In large
communities, they may have an entire staff – in which case make an appointment
to meet with the Director. In smaller communities, it may only be one person or it
may be a portion of a person’s full-time job. If it is unclear as to who may be
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handling emergency management – ask the local fire chief.
2. Take the disaster operation manual developed for your local organization
(demonstrate knowledge).
3. Take the list of potential roles the organization can play (team player). Take an
example of a Statement of Understanding or Memorandum of Agreement to
indicate how your organization may be partnering with others.
4. Keep an open mind and ears and listen for opportunities where the community
may need an organization to fill a much-needed gap in disaster recovery.
B. How to contact your state OEM with suggestions for verbal and written
support materials
1. Every state has an Office of Emergency Management. It is sometimes a standalone organization with it’s own commissioner, it could be located under the
Department of Public Safety, or even the Department of Health. Try to make an
appointment with the highest official and get them to provide you the contacts
within their department that you should meet with. If you cannot get an
appointment, ask your local state representative or senator to assist.
2. Take the disaster operations manual developed for your local organization and
information on your organization’s ability to work within the current OEM
structure.
3. If your organization has intentions to provide gifts-in-kind tracking, volunteer
management or region/state-wide I&R, DEVELOP A MOU/SOU with the State OEM.
This may enable your organization to request payment for services if there is a
state/federally declared disaster.
4. Take copies of the SOU between AIRS & American Red Cross and let them know
AIRS has applied for membership with NVOAD.
5. Let State OEM know about your relationships with local municipalities and
VOAD.
C. How to contact FEMA and let them know about you
It is important your organization contacts the FEMA Voluntary Agency Liaison for
your region of the United States. These individuals are your contact with all other
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FEMA and disaster response organizations.
VI. NEXT STEPS
A. If you are the coordinator of the 2-1-1System
1. Become a part of the state OEM response plan. See where they lack confidence
in service delivery (donation management, spontaneous volunteer management,
call management beyond 9-1-1 calls and offer to strengthen their plan.
2. If you experience difficulty, seek a champion to assist you. If you are not a
United Way program, ask the United Way if they can assist.
3. Tell them you have been trained by a national organization that has applied for
membership with NVOAD, and has a Statement of Understanding with American
Red Cross to provide cooperative services.
4. Review the state plan – it is public information and shows them where your
organization fits in.
5. Keep your network of I&Rs (specialized) informed about your commitments for
future disaster response. They will need to be aware of situations that could
impact their service/referral levels AND they could possibly assist your
organization in call management.
B. If you are implementing the use of 2-1-1 soon
See above…act “as if”. A disaster occurring could place your state’s movement
towards a 2-1-1system on a fast track. The state OEM and local OEM’s see the
power of the 2-1-1 telephone number in call management when it is happening.
They will want to know where to refer folks for all the services they do not
provide.
C. If you are an I&R center that is a part of the 2-1-1 System, but you are not the
lead agency.
1. Look for ways your organization can augment the disaster services provide by
the 2-1-1 system.
2. Complete your disaster operations manual.
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3. Maintain relationships with the local OEM.
D. If you are an I&R center in an area that does not have a 2-1-1 yet
1. Follow the same instructions for the 2-1-1 system.
2. I&R is a critical function for any community recovering from a disaster. 2- 1-1
is only a tool for making it easy for people to know where to call.
VII. Working with your United Way
Over the past decade, the United Way of America has been encouraging their
membership to prepare for crisis. In many communities, Crisis Readiness Plans
have been developed by United Ways.
Call your local United Way and ask if your organization can be a partner in that
response. Encourage them to use the 2-1-1 system to augment their response.
VIII. Working with your local Volunteer Center
Points of Light Foundation is a NVOAD member. This essentially means they have
a clearly defined disaster recovery role. If your organization is not primarily
responsible for volunteerism in your community, look to your local Volunteer
Center.
Ascertain if they have developed a local disaster response plan. Seek ways to
partner with them. They can be a valuable partner following a disaster. In the
recent past, there have been marked increases in spontaneous volunteerism
following a disaster. The 2-1-1 system’s ability to serve that segment of the
community is critical. The service can come through a mutual agreement with the
local Volunteer Center.
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APPENDIX B—QUESTIONS TO ANSWER WHEN
INFORMATION SHARING IS REQUESTED
When 2-1-1 or other Information and Referral Agency decides to share resource
data records as a planning and preparedness strategic priority, implementing
the strategy is the next step. Contact staff at CAN, [email protected], and be
prepared to answer the following questions:
1. Organization name and program name.
2. Will the agency sign a participation agreement as well as a SOU? The PA
gives access to the tools of CAN. (client registry, calendar, forums, content
management system and resource database.
3. Will the agency enter into a Memorandum of Understanding to share data?
(See sample MOU template, Appendix D).
4. Provide the agency point of contact and the agency’s technical point of
contact (if different), and the vendor’s point of contact.
5. Describe 2-1-1 involvement in community planning and preparedness
coalitions and/or experience with past disaster recovery.
6. Discuss whether 2-1-1 currently is part of a Long-Term Recovery Committee
(LTRC) or a community VOAD?
7. Provide information about the software system used including vendor name,
whether the software has an export tool, whether there is a cost associated
with exporting, and whether the vendor uses AIRS XSD as their standard, to
export resource data, etc.
8. Discuss the field content of the intended data migration.
9. Discuss 2-1-1’s taxonomy.
10.Discuss the frequency of updating/refreshing the feed.
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11. Determine next steps.
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APPENDIX C—RESOURCE DATA FEED INFORMATION
Data Feed Information
Below is a summary of the steps/questions required to export resource data into
the CAN database.
1) Use the feed template, which is the AIRS XML/XSD standard (currently version
2.09). It is designed to be a tool for vendors to implement the AIRS XML schema
into their systems. This web site provides lots of additional information about the
whole AIRS XML development process:
http://airswiki.bowmansystems.com/airswiki/index.php/Main_Page.
2) Planning and staff resources. Your agency will need to develop and test the
feed. On average, this requires one developer about 20 hours a week for 6 weeks.
If the XSD standard is being used, the estimated time involved is considerably less
than if the XSD standard I not being used.
3) Resource Data Record Structure. The structure of incoming data must be
determined. Knowledge of your data structure will help determine where any
transformation should be done. You may have a data dictionary that will help
4) Providing the Data to CAN
• All of the data to be shared will need to be provided to CAN via AIRS XSD,
XML and in its native, or original, format (i.e. csv or tab delimited).
The reasons the information needs to be in XML format are as follows:
• XML is an industry standard data transport vehicle; its rapid and
widespread adoption among software vendors allows for interaction
with a variety of applications
• XML schema definition allows for very tight, or very loose
requirements, whatever is appropriate to the task.
• XML allows multiple data types and encodings to be transferred
properly either via pre-established specification or to be determined by
CAN and your agency.
•
As CAN approves, CAN’s technology vendor could work with a technical
contact of the agency’s data source to create an agreeable XML format
based on (1) the structure information we collected and (2) the spreadsheet
we created.
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5) Data import / feed
How data is transferred will be determined to insure security. HTTPS
(HyperText Transport Protocol with Secure Sockets Layer encryption) is the
transport medium of choice. HTTPS employs the use of SSL, providing
industry-standard secure communication, while taking advantage of the ease
of web-based transfer methods. This allows CAN to continue to reinforce
client data confidentiality and security.
6) Test data
Once the above is taken care of, a sample feed of data must be provided.
This feed should include examples of all possible scenarios in the data (i.e.
for resource data agencies with multiple services, multiple statuses, etc)
Summary of Vendor work required for each feed
1) Build import script (5-10 days)
2) Configure CAN import testing instance (2 days)
This environment would have the same configuration as the CAN site, but
would be private for testing only, so as to avoid any question of
confidentiality.
3) Testing (variable, usually 5-10 days to test and re-factor)
Transferring test data from source to our test environment
- End-to-end tests, verifying all fields are transferring properly
- Update collision tests
- Volume testing (to test acceptable burden on both sender and receiver)
4) Manual Production Import (variable)
If your agency has a large amount of data already, this set of data will be
transferred and loaded into the system manually (that is, not part of the
automated periodic feed). The amount of time required to complete this step
depends on the volume and complexity of your agency’s data.
5) Automated, Periodic Feed (usually as little as twice a year during non-disaster
periods and as much as once a day during disaster recovery periods)
If your agency will be sending data on an ongoing, periodic basis, this
automated feed must be established and tested.
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APPENDIX D—MEMORANDUM OF UNDERSTANDING
TEMPLATE
STATEMENT OF UNDERSTANDING
BETWEEN
THE AMERICAN RED CROSS, ACTING FOR
THE COORDINATED ASSISTANCE NETWORK
AND
INSERT NAME OF 2-1-1
I.
Purpose
The purpose of this Statement of Understanding (SOU) is to create a working
relationship between the American Red Cross, acting for the Coordinated
Assistance Network (CAN), and (_____Insert Name of 2-1-1_____). There will be
two parties for purposes of this SOU: the American Red Cross, acting for CAN, will
be considered one party, and (_____________insert name of 2-1-1--) will be
considered one party.
This SOU provides the broad framework for cooperation between the parties in
rendering assistance and service to persons affected by disaster, as well as other
services for which cooperation may be mutually beneficial.
II.
Concept of Operations
Each party to this SOU is separate and independent from the other party. As
such, each party retains its own identity in providing service and each is
responsible for establishing its own policies and financing its own activities.
This SOU does not create a partnership or a joint venture, and neither party has
the authority to bind the other.
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III.
The Coordinated Assistance Network (CAN)
CAN was formed to help provide the impetus for national and local organizations to
explore how they can enhance existing preparedness, response, and recovery
networks. CAN is also intended to help standardize collaboration to benefit clients
and communities affected by all hazard disasters. CAN strives to create trust,
resolve issues, and ultimately promote an enhanced system of disaster relief
among agencies while helping identify ways to improve the charitable aid process
related to disasters.
From an agency perspective, CAN provides the framework to make casework
management easier and more efficient through advanced collaboration. CAN has a
secure, web-based assistance database, resource database and knowledge-sharing
tool for persons affected by disasters. The database allows CAN Participating
Agencies (CAN Participants) to share certain confidential information on such
affected persons in order to coordinate and streamline disaster relief assistance
during and after a disaster, to avoid duplication of efforts by such organizations
and affected persons, and to enhance collaboration between such organizations to
ensure the timely, effective provision of services. For purposes of this SOU, the
American Red Cross is acting for CAN.
IV.
2-1-1 Background Information
(insert program information about the 2-1-1 here)
V.
Method of Understanding
To coordinate and use the resource records of the parties to the fullest advantage
for disaster survivor recovery, both parties have agreed to the following methods
of cooperation:
A.
(__Insert Name of 2-1-1________) agrees:
1. To provide copies of (_________insert name of 2-1-1____) regional
resource database (Database), or selected Resource Database Records
34
2.
3.
4.
5.
B.
from the database (Resource Database Records), to the CAN team on
a semi-annual or more frequent basis for use only by CAN Participants
in the provision of their disaster relief services. The ownership and
maintenance responsibilities for these Resource Database Records will
be retained by (__________Insert Name of 2-1-1___)
That the use of the name and emblem of the American Red Cross and
the Coordinated Assistance Network and CAN names, and (___Insert
Name of 2-1-1____) shall be allowed only with the prior written
consent of the American Red Cross or the CAN Steering Committee, or
2-1-1 as appropriate.
To become a CAN registered agency by visiting www.can.org and
completing the registration process.
To appoint a contact person, a 2-1-1 liaison, and technical liaison to
execute this MOU.
To advocate and encourage their software vendors to adopt the latest
AIRS XSD standard (currently Version 3.0) to enable disaster
resources data sharing.
American Red Cross, acting for CAN, agrees:
1. To work with the I&R software vendor to electronically integrate the
Resource Database Records into the CAN web-based software using
the AIRS XSD standard each time the Resource Database Records are
updated and uploaded by (__Insert Name of 2-1-1____)
2. To provide technical assistance to (__Insert Name of 2-1-1____) staff
to ensure that data transfer of the Resource Database Records to the
CAN system is working as effectively and as efficiently as possible.
3. To train its case workers and CAN Agency Participants/Caseworkers
who use the CAN system to search the Resource Database Records
effectively in a manner that will allow them to use the system
effectively to assist their disaster clients with appropriate referrals.
4. To train and require its caseworkers and CAN Agency
Participants/Caseworkers who use the CAN system to use appropriate
forms to provide updates to Database resource information, to submit
new community service information and to notify (___Insert Name of
2-1-1___) of any problems or inconsistencies that they experience
35
when using (__Insert Name of 2-1-1__) searching mechanisms or
coding of the Resource Database Records.
5. To maintain (__Insert Name of 2-1-1____) Resource Database
Records in the CAN system software for use by authorized users only
and not distribute or share this information to other parties outside the
scope of this SOU without the written consent of (__Insert Name of 21-1___). CAN Participants may not sell the Resource Database
Records nor may the Database be used for monetary gain by any of
the CAN Participants.
6. Upon registration with CAN, provide (__Insert Name of 2-1-1___) with
access to the CAN agency resource module (not to include access to
the CAN client data module) via website connection.
7. To appropriately acknowledge (__Insert Name of 2-1-1____) for their
contributions to this project as collaborating agencies and providers of
the Resource Database Records and provide a utilization report tool.
8. To promote the use of (__Insert Name of 2-1-1____) information and
referral services which are available via (__Insert 2-1-1 URL ___) and
the 2-1-1 three-digit number.
9. To communicate with Insert Name of 2-1-1 on a semi-annual basis (or
as needed) to coordinate the activities of this SOU and to provide upto-date information about other database sharing initiatives and SOUs
and agreements between CAN and other entities in the (Insert
Geographic Area covered by 2-1-1 agency__), to the extent
appropriate.
10. To appoint a technical and a 2-1-1 Agency contact person to
coordinate this SOU.
11.To remove any agency or program Resource Database Records from
their database if requested to do so by any of the 2-1-1 Website
Partners.
C.
Using the AIRS XSD is the most cost effective means to share resource
data records. However, the American Red Cross, acting for CAN, and
36
(__Insert Name of 2-1-1__) agrees to discuss expenses anticipated as a
result of using another XML standard and will make every effort to assist
in reducing costs through a separate agreement in writing by both parties
prior to incurring such expenses.
VI.
Review
Representatives of the American Red Cross, acting for CAN, and (__Insert Name of
2-1-1__) will meet as needed to evaluate progress in the implementation of this
SOU and to revise and develop new plans or goals as appropriate.
VII. PRINCIPAL CONTACTS
The principal contacts for 2-1-1 for this SOU are as follows:
Administrative
Technical
The principal contacts for CAN are as follows:
Administrative
Technical
VIII. Term
This SOU shall be effective on (_Insert Date_) and expire on (__Insert date __)
Three (3) months prior to expiration, the parties shall meet to review the progress
and success of this SOU and determine whether it should be extended for an
additional period. Any extension shall be confirmed in writing signed on behalf of
the parties.
It is understood by both parties that at any time this SOU may be terminated by
written notification from either party to the other. In the case of (Insert Name of
2-1-1__), such notification must be signed by authorized representatives of any of
its members in order to be effective. If this SOU is terminated, the Resource
Database Records provided by (__Insert Name of 2-1-1_) will be removed from
the referral portion of CAN’s software. Those Resource Database Records needed
37
to maintain the integrity of existing CAN client Resource Database Records may be
retained for archival purposes only.
The parties have confirmed their entry into this SOU by the signatures of
their duly authorized representatives below.
For the American Red Cross, acting for the Coordinated Assistance
Network:
________________________________
Name
____________________________________
Title
Date
For (__Insert Name of 2-1-1 __):
___________________________________
Name
_________________________________________
Title
Date
Contact CAN at [email protected]
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APPENDIX E—THE COORDINATED ASSISTANCE
NETWORK
The Coordinated Assistance Network (CAN)
Origins and Background
The origins of the Coordinated Assistance Network (CAN) grew out of the terrorist
attacks of September 11, 2001. The tragedy showed clearly that making clients
find their way through a web of service providers caused added confusion in an
already trying time. Several disaster clients were lost within the improvised
system; others were shuttled from appointment to appointment, having to tell
their painful story time and time again. The lessons learned in New York had a
significant impact on both national and local disaster relief agencies, leading to an
intensive search for not just a better way to deliver services to those in need, but
to also help communities improve planning for natural and man-made disasters.
Galvanized by the September 11th experience, in 2003 seven leading relief
organizations joined together to form CAN. The founding members are the Alliance
of Information and Referral Systems (AIRS), the American Red Cross, National
Voluntary Agencies Active in Disaster (National VOAD), The Salvation Army, and
United Way of America – and two New York organizations – Safe Horizon and the
9/11 United Services Group. The American Red Cross serves as the fiscal agent of
CAN.
CAN’s Charge
CAN’s mission is clear: To support disaster relief organizations to develop and
implement a sustainable system and proactive approach to integrated service
delivery and to appropriately and effectively share client and resource information
following large scale disasters.
CAN’s vision is ambitious: Disaster relief organizations support one another for the
common good through a coordinated assistance network. The network promotes
and locally adopts integrated service delivery models and a standards-based
system of client and resource information exchange to ensure clients receive the
most efficient, effective assistance following disasters.
39
Understanding there is no market share on human suffering, the founding
agencies have created a fully functional, user driven technology platform now in
place to ease the burden on relief agency works and disaster victims, alike.
Caseworkers from over 300 non-governmental agencies log onto the secure, web
based CAN database to review client and resource information and assistance
provided by other agencies. The capability enables caseworkers to provide
assistance quickly reducing paperwork so disaster victims are not burdened by
repeatedly retelling their stories.
In addition, because caseworkers can see the details of each client’s case,
including what services and resources have been provided by other agencies, they
are better able to craft a more comprehensive, holistic recovery plan for that client
or family, without unnecessarily wasting resources.
Community Based Disaster Planning
In early 2005, CAN began a pilot communities program to introduce the CAN
model of collaboration operational coast-to-coast in the U.S. The six pilot
communities are: New York City; Washington, DC, New Orleans, Oklahoma City,
San Francisco and Seattle
The pilot communities are working to develop the scope, magnitude and
complexity of plausible major natural disasters, terrorist attacks or other major
emergencies that pose the greatest risk to their communities. Working with the
CAN staff, the communities are working to identify the tasks, capabilities,
resources and service delivery modifications required for a coordinated response
and recovery to such disasters. Each community continues to show significant
interest in CAN, particularly in the use of the technology to enhance existing
systems.
In a 2006 pilot community survey completed, 93% of the participants responded
affirmatively when asked whether the activities associated with CAN helped their
community improve the capacity to respond to a disaster within the community. In
the same survey, 100% of respondents affirmed that the activities associated with
CAN helped their community improve the capacity to recover from a disaster
within the community.
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