C. On-Site Virtual Tour of Department of
Labor’s Emergency Preparedness Effective Practices
This forum provided a multi-media and tactile presentation of
significant enhancements made to the Department of Labor’s Frances Perkins
Building following the events of September 11, 2001. These enhancements to the
facilities included the addition of new equipment and tools, and recruitment of
scores of volunteers. The intent was, and continues to be, to provide effective
and responsive emergency planning and procedures in order to ensure the safety
of all building occupants.
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Zoë Fearon showcased the Department of Labor
emergency preparedness system. |
Zoë Fearon, who works as a Program Specialist in the
Department of Labor’s Office of the Assistant Secretary for Administration
and Management (OASAM), presented the agency’s plan. She underscored that
while DOL has developed an effective plan for the employees in the Frances
Perkins Building, each federal agency has its own characteristics that
influence emergency preparedness plans and procedures. Fearon reviewed key
aspects of the DOL plan and highlighted the basic principles that guide the
agency’s on-going emergency preparedness planning process.
Prior to September 11, 2001, evacuation drills occurred once a
year and were both predictable and not taken seriously. In addition, emergency
preparedness procedures mainly addressed fires. There was also a lack of
employee knowledge regarding the Frances Perkins Building Evacuation &
Emergency Response Handbook, and procedures related to evacuation, what to
do once outside, and re-entry into the building. Furthermore, people with
disabilities were often told to ‘stay put’ or were confused about
exactly where they should go.
Plan Enhancements
Fearon stressed that plan enhancements are on-going, but following
the September 11th attacks, significant enhancements were made at the
Department of Labor. These included strengthening security measures,
communication and accountability, alarm systems, and the designation of
exit/re-entry routes. Drills were and continue to be conducted on a more
regular basis. The following additional enhancements were made:
Establishment of the emergency response team (ERT). The
team was established by Secretary Chao and is chaired by the Deputy Secretary
and Assistant Secretary for Administration and Management. The main goal of the
team is “to develop and implement strategies to safeguard occupants of all
Department of Labor facilities.” The team met frequently following
September 11th and still meets on a quarterly basis. Recommendations are
implemented with input from a number of agencies within the Department to
ensure that all necessary issues are appropriately addressed.
Initially, forums were conducted to discuss emergency evacuation
strategies for people with disabilities. These forums served several functions.
First and foremost, they gave individuals from the Department’s disability
community the chance to provide valuable input/recommendations for enhancing
procedures. Such meetings also served as an opportunity to update personnel on
ERT evacuation planning for people with disabilities, respond to concerns,
conduct trainings/demonstrations, and hear rationales for recommendations.
 Assessments by the Office of the Inspector General of national and
regional facilities. This activity resulted in the conclusion that a
‘cookie cutter’ approach was not appropriate. Instead, DOL officials
determined that it would be more effective to address the specific situation
and develop procedures that considered the needs of all employees, including
people with disabilities.
Shift from a ‘security manager force’ to a
‘building occupant force.’ Previously, the focus had been on the
roles and responsibilities of security personnel in the event of an emergency,
rather than ensuring employees were aware of emergency procedures. So, greater
emphasis was placed on equipping employees with appropriate knowledge. As part
of this shift, DOL revised its evacuation handbook to include general floor
plans of the DOL facility, and an illustration of collection points for people
evacuating the building.
Formalized program for Floor Wardens and Zone Monitors.
This involved establishing a volunteer program to “recruit, train,
and equip” Floor Wardens and Zone Monitors as well as ensuring that every
floor had radios, making it easier to verify the building is clear and all who
may need assistance receive it.
Zone Monitors, in conjunction with Floor Wardens, help supervise
evacuation of personnel into hallways leading to exits. Zone Monitors wear
brightly colored baseball caps. Floor Wardens, identified by yellow hard hats
and orange vests, assist in the evacuation of building occupants from the
hallways and related areas of the building, out through the exit stairwells and
main exits.
Basic Principles
Below are some key principles DOL has kept in mind as it continues
to implement and upgrade procedures that are both effective and responsive to
the needs of all its employees at the Washington, DC headquarters:
- Be aware of everyone in the building: Be aware of
employees’ needs; however, remember to consider the needs of others in the
building. This may include children in the daycare center, cafeteria workers,
contractors, sales representatives, and personal visitors.
- Communicate, Relate, Educate: Fearon urged
participants, “Train, Train, Train! If the plan is not practiced, it
won’t work!” Refining the plan, then practicing it is essential.
- Make a commitment to awareness, improvement, and
constantly rethinking safety: Agencies must respond to emerging issues,
including new threats. Fearon acknowledged Secretary Chao’s commitment to
continuously rethinking and developing DOL’s emergency preparedness plan.
She expressed appreciation that Secretary Chao understands the plan fluxmust be
flexible and can always be improved upon, especially as workplace circumstances
or threats change.
Following each drill, OASAM distributes surveys to the employees
to gauge the effectiveness of the current plan. Based on feedback changes are
made. Agency emergency preparedness handbooks and other materials are revised
as emerging issues arise and as additional equipment (i.e., LifeSliders®,
evacuation chairs, and emergency packets) are purchased.
- Redefine ‘Disability’: Agencies should
pre-identify staff with disabilities, including those with specific needs.
Fearon suggested that perhaps agencies should reconsider their definitions of
disability, or at least the means of identifying who will need assistance
during an emergency. She offered this definition with regard to emergency
planning: “a debilitating condition that causes one not to be able to keep
up with the standard flow of traffic during an evacuation and/or those who may
impede the flow the traffic, thus causing harm to themselves or others.”
Examples include the elderly, overweight, and persons with temporary
disabilities (e.g., a broken leg, a sprained ankle) or episodic conditions
(e.g., panic attacks, asthma, seizures).
Seminar participants had a variety of questions and comments
related to the DOL plan, as well as its implementation and maintenance. The
topics addressed below summarize the discussion:
Shelter-in-Place
The designation of shelter-in-place rooms was made based on the
location and characteristics of the area. DOL officials generally selected
internal areas with no windows; on the 6th floor, though, there are some areas
that do have glass windows. This is due to the design of the building rather
than a conscious decision to have areas with windows.
DOL has implemented two separate procedures for a
shelter-in-place, depending on the nature of the emergency. Posture I Advisory
requires that employees remain at their individual workstations and wait for
further instruction. Posture II Advisory, used in situations deemed highly
critical, requires that staff move to the nearest designated shelter-in-place.
Employees are given laminated cards that provide written reminders of the
procedures and designated areas. In both cases, no one is allowed to leave or
enter the building; the doors are locked for everyone’s protection. Fearon
explained, “If DOL is in lock down, chances are your spouse’s or
children’s facilities are as well.” Additionally, staff is not free
to move about the building (e.g., go to the restroom), except under extenuating
circumstances.
Each shelter-in-place area has telephone(s), food, other emergency
supplies that are stored in secured cabinets. There is enough food and supplies
for both employees and visitors. Floor Wardens, Zone Monitors, and security
personnel have key access to these cabinets. Although agencies should prepare
for their employees and visitors, she also urged staff to store any specific
personal supplies (e.g., medications, supplies for service animals) they may
need at their desks. Fearon reminded attendees that typically the length of
time for a shelter-in-place is relatively short. “The need to
shelter-in-place [due to an airborne substance] only lasts for 4-6 hours.”
When the need for a shelter-in-place has passed, authorities explain the reason
for it.
Working with Local Entities
Fearon said communication and coordination are keys to working
with local emergency personnel and nearby agencies. DOL has its own command
center, but is also connected to the police department. The agency has worked
closely with authorities to establish protocols regarding who will respond in
specific situations. Sometimes the trained DOL staff (e.g., security personnel)
handles issues, while at other times local entities are called in. The
Department has also worked with nearby employers and first responders to
designate assembly areas following an evacuation. Information, resources, and
other assistance are provided to regional and field offices. “We
dialogue,” said Fearon.
Medical staff from the Department’s Health Unit also serve as
first responders in certain situations. Even though their radios are
single-channel frequency, they work closely with local emergency response
personnel in the event of an emergency.
Department of Labor Egress
The Department has an ‘everyone out’ policy, and does
not utilize ‘areas of refuge.’ There are five entrances and twelve
stairways for use during an evacuation. Text messaging conveys information to
employees who are deaf or hard of hearing, either via pagers or via desktop
computer. Currently, the message is sent out manually, but the Department is
working on linking the system directly to the alarm system. Braille signage is
in place for those who are blind. Extra wheelchairs are kept in the stairwells
and in the main lobby for use if necessary. Specific accommodations are also
made on the basis of need. “It helps to have a ‘buddy system’
[or other type of support system] in place.”
The use of elevators depends on the nature of the emergency. Due
to the steel and stone makeup of the elevators, there is a low incidence of
burning. In the event of an emergency, some elevators return to the first
floor. Others are manually operated by Emergency Elevator Operators (EEOs) and
serve as a means of assisting persons with disabilities out of the building. If
all the elevators were deemed unsafe, Fearon said, “We would use our last
line of defense [the stairwell and a LifeSlider®] to evacuate people with
disabilities from the building." There were questions regarding the
effectiveness and usability of the LifeSlider®. Fearon stressed that the
device was chosen because it met “the global needs” of the
Department. She said each agency must make a determination what works best
given its unique characteristics. Training and practice are also critical to
ensure the equipment is properly used.
Once everyone is out of the building, an accountability tree is
used to make sure all are safe. Staff determine who is at the assembly area,
off site, or out sick. Once the ‘all clear’ is given by security
guards and/or emergency response personnel to the security guards or Floor
Wardens in each of the designated assembly areas via radio, employees are
allowed to re-enter the building, but must display their identification cards
upon doing so. |
