COH 440 Preparedness & Disaster Management
COH 440 Preparedness & Disaster Management.
Running Head: THE CHICAGO PROJECT 1
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NU Students
The Chicago Project
National University
Professor Blaser, Catherine MPH, RN, PHN, ACRN
COH 440 Preparedness & Disaster Management
24 April 2016
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Introduction
Chicago, Illinois is one of the largest cities in the world. According to the United Census
Bureau, Chicago is the 3rd largest city in the United States with an estimated population of 2.7
million people that lives within 237 square miles (US Census, 2015). With the amount of people
living within these parameters to create a disaster management plan for every possible natural or
man-made disaster would be nearly impossible to accomplish. Federal Emergency Management
Agency (FEMA) suggests an all-hazards approach when planning and preparing for natural or
man-made disaster. All major cities across the United States including Chicago have adopted this
method when implementing disasters plans. However, each major city does its own Hazards and
Vulnerability Analysis using an assessment tool to identify the specific cities at high risk for
naturally occurring, technologic, human-related events and events involving hazardous materials.
Hazards and Vulnerability Analysis
The collaborated analysis report that we performed for Chicago using the Kaiser (HVA
template) showed that our top three natural hazards are all winter weather related; 1st Snow Fall
56%, 2nd Blizzard 52% and 3rd Ice Storms 48%. Given Chicago’s geographical location in the
northern part of the United States, which also sets on the shores of Lake Michigan and its
nickname “The Windy City”, it is easy to understand why Chicago, Illinois is subjected to harsh
winter conditions. In our analysis, we also found that Chicago’s 4th and 5th most significant
natural occurring weather events are summer related; 4th Extreme Temperatures 44% and 5th
Severe Thunderstorms 37%. As a group, we have decided to concentrate on what was our third
most significant occurring natural disaster “Ice Storms” for our public health disaster
management plan.
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What is an ice storm? An ice storm is one example of a winter storm that is generated by
freezing rain. According to The U.S. National Weather Service, an ice storm is “a storm which
results in the accumulation of at least 0.25-inch of ice on exposed surfaces”(Weather Wiz Kids,
2015). The formation of an ice storm takes place while a layer of warm air is between two areas
of cold air. “Frozen precipitation melts while falling into the warm air layer, and then proceeds to
refreeze in the cold layer above the ground. This creates freezing rain or a glaze of ice”(Weather
Wiz Kids, 2015). Ice Storms are typically heavy accumulations of ice that will create extremely
dangerous travel conditions for residents and emergency workers. Also, the ice storm can
damage trees by breaking their branches that could fall onto streets and freeways making travel
more challenging. The damaged trees and the branches have a strong possibility of falling onto
electrical lines, which then will break and likely cause extended power outages due to the
number of downed power lines and power poles. Trees and power lines that have fallen over may
block roadways and delay travel through the city.
There are many examples of recent Ice Storms in the United States. According to The
Weather Channel, one of the worst Ice Storm on record in the United States happened on the
26th to the 28th of January 2009 stretching from Arkansas and Kentucky (The Weather Channel,
2014). The massive ice layers caused extensive damage to trees, power lines, and power poles
fell on homes, cars and blocked roads. Due to the storm 1.3 million citizens were without power
throughout the multiple states. Some residents had no power for ten days. Natural disasters like
this ice storm in January 2009, teach us lessons on how to better prepare for the next ice storm so
that lives and communities can be served better during harsh times.
Goal Statement
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To provide continued service and quality of care to the citizens of Chicago during Ice
Storms by rendering; effective, timely and efficient emergency/disaster information,
preparedness, management, response, recovery, and mitigation minimizing the loss of life and
property damage.
Objectives
The first objective is to increase the public awareness of the possibility of an Ice Storm
via public service announcements that are issued by the National Weather Service. The National
Weather Service will issue a severe winter weather watch 24 to 72 hours before the predicted
weather. Within this time frame is when the risk of an ice storm event has increased between 50
to 80%. This watch is intended to provide enough lead-time so those who need to set their plans
in motion can do so. When the risk of an Ice Storm reaches greater than 80%, then a storm
warning will be announced. This warning indicates a weather event is occurring or imminent
which normally pose a threat to life or property damage.
The second objective is to establish and publish guidelines to the public for pre-storm
preparation to include education on what to do during a storm and outdoor travel in a storm
whether by foot or automobile. One of the most critical objectives of a natural or man-made
disaster is the response. First responders should only perform the immediate response to an ice
storm: Police, Fire, Emergency Services (EMS), Utility Workers and Department of Highways
Services. The aftermath of Ice storms can leave behind extremely hazardous conditions. This
immediate response coincides with the recovery phase.
The recovery phase is one of the most important objectives in the eyes of the general
public. As important as it is to the public the recovery phase is usually the most expensive aspect
and should start immediately after the storm passes. The objective of recovery is to return the
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city back to normal by restoring crucial services; gas, power, sewage and water. Additionally, it
is important to ensure that it is safe to travel through the city by clearing roads and bridges of ice,
trees and other debris that may be making travel difficult.
Ecological Strategy and Emergency Planning Model
It is important to have a detailed all-hazards plan in emergency preparedness for effective
and dependable response to any kind of emergency and disaster, whatever the cause maybe
(Nagel, 2016). In Chicago, severe winter weather such as ice storms, blizzards and snowfall are
expected every year. According to National Oceanic and Atmospheric Administration, since
1950, there are 100 severe winter storms events in the planning area. The planning areas consists
of the following: old structures with low code standards, secluded population that are at high
risk, limited backup power generation, and alternative power supply must be assessed.
Normally, the planning area has 36 inches of snow annually (Cook County, Homeland Security
& Emergency Management, 2014).
Ice storms are catastrophic to humans, plants and animal life (Zhang et al, 2016). An
emergency preparedness plan is vital to prepare each family and individual in the community,
local government, public and private sectors and first responders to severe winter weather or in
any emergency. To prepare the community, the Office of Emergency Management and
Communications (OEMC) have all the information, procedures, educational activity and
resources. The OEMC strategy is to provide preparedness training, emergency kit essentials,
business safety, home safety, and communication plan to assist the community how to be ready
for ice storm and other emergencies. It is a continuous learning process and development to
minimize problems during emergency situations (Alert Chicago, 2010).
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After formulating a disaster preparedness plan, an emergency response plan is necessary
to take actions after the emergency call for ice storms. It is the urgent reaction to an emergency;
it provides immediate assistance to warn affected areas or communities. Also, it identifies
potential emergency hazards through risk assessment (Nagel, 2016). Moreover, it determines
the type of assistance is needed in an emergency situation, before sending the first responders or
equipment (Emergency Response Plan, n. d.). All affected communities must be warned to stay
indoors to prevent further injury. Subsequently, assess all the resources available to stabilize the
incident, which includes manpower, tools and equipment, and systems. Also, have an effective
and efficient communication with all the public emergency services such as the law enforcement,
emergency medical services and fire department to have a better knowledge about their response
time to the ice storm. Make sure that all the names and contact numbers of the key personnel are
visible in the emergency response plan. The law enforcement will implement security measures.
Coordination with different agencies (government and non-government) crowd control, search
and rescue and maintain peace and order to prevent looting. Fire departments have a major role
in all disasters; aside from providing medical care, they also help in search and rescue, handle
hazardous materials, patient transport and coordinates with different agencies (government and
non-government). For emergency medical services, CPR or First aid personnel and other trained
volunteers will provide first aid treatments, search and rescue, advanced medical care and
transport victims to temporary shelters or hospital. They also work closely with the fire fighters
in treating and transporting victims. First responders will assist the victims to calm the situation,
help them with their concerns and mobilization (Galls Blog, 2011). Furthermore, an evacuation
plan is required as part of the response plan to direct the affected people in certain communities
and provide them a safer location during the emergency. To achieve a successful emergency
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response plan, training and exercises must be conducted to practice and evaluate the
effectiveness of the plan (Developing Emergency Plan, n. d.). In the evacuation plan, all key
personnel names, contact numbers and locations must be listed for faster access of resources and
quicker communication response. In addition, part of a good emergency preparedness plan is to
have a constant collaboration with media and other agencies such as National Oceanic and
Atmospheric Administration (provide scientific information to have a better understanding about
the environment), The Weather Channel (for weather alerts), FEMA (recommendations on
strategic plans), American Red Cross, Salvation Army and etc., are very helpful in fostering
more effective service to the affected communities by the ice storm or any disaster as a result of
effective communication, coordination and cooperation (Disaster Emergency Agencies, 2016).
These agencies are good sources of emergency preparedness information and awareness for any
disaster. They can recommend strategies and procedures on how to be prepared in an ice storm
or any disaster.
In the recovery phase, actions in restoration of important functions and the administration
of reconstruction (Nagel, 2016). According to Alert Chicago, it is the most difficult phase after
the disaster. It is the phase where life of the victims and infrastructures must come to its minimal
to normal function. During disaster, the state, local government and agencies have available help
for the people, but it may not be reached on time to those who are affected. There may be delays
due to road and weather conditions that is why families and communities are advised to develop
their own emergency plan before any disaster may occur. There are many areas that require
advance and thorough planning, and these areas are the following: crisis counseling,
decontamination, debris clearance, reassessment of emergency plans, disaster loans, grants,
damage assessments, reassessment of emergency plans, reconstruction, and temporary housing.
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During recovery phase, personal and community involvement is highly encouraged (2010). In
recovery phase, members of other communities outside the affected areas such as territorial
partners and tribal may be utilized to implement continuous efforts and faster response and
recovery operations (FEMA Strategic Plan, 2014). Most importantly, there should be
accountability and transparency in recovery programs that will manage government funds for the
ice storm. Comparable to Hurricane Sandy, the American Recovery and Reinvestment Act of
2009 formulated a site to display all the activities pertaining to recovery, distribution and
spending of funds (Recovery Accountability and Transparency Board, n.d.). The site also
provides information about recovery resources such as education, jobs and policy. Recovery is a
long-term and continuous process, activities and programs must be continuously re-evaluated to
improve the emergency preparedness plan and accomplish better results, to save more lives, and
protect infrastructures for any future disasters or emergencies.
Another phase of emergency management is mitigation. Mitigation specifies the
measures that can minimize the damaging effects of ice storm and other disasters. It identifies
all hazards and risk in the area. Risk analysis provides a ground for mitigation measures such
formulating building codes, construction barriers and zone requirements. It builds safe
environment by minimizing property and infrastructure damage and decreasing loss of life (The
Four Phases of Emergency Management, 2016). A basic example of a mitigation program is the
building standards accepted by 20,000 communities all over the nation. The country is saving
approximately more than 1 billion dollars annually in prevention of flood damages due to
mitigation programs (St. Louis County, 2016).
As reported by WGN 9, Chicago Weather Center, one of the worst ice storm that hit
Chicago was on January 1965. Most of the schools and businesses were closed and travel was
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the biggest problem due to icy roads. There was power outage for several days in many
communities. Numerous trees were collapsed that caused damage in the city. The whole city
was coated with ice and there were a great number of injuries related to falls. Also, various
flooded basement incidents occurred because of the power outage (2010). To prevent further
damage and prepare the city for future emergencies, through the years, emergency planning has
improved to prevent severe damage to people and property with the help of local government,
FEMA and other disaster agencies efforts. An emergency-planning model will guide the local
government to distribute manpower, services and resources to affected areas.
In the event of an ice storm, there is an emergency planning team that is responsible for
decision, direction and control of the situation. The emergency planning team should be familiar
with the area and the needs of the community. In addition, they should also have the skills to lead
and motivate the team to implement an emergency plan. The planning team must have a team
leader and supportive members. Each team member must know his or her area of responsibility
for effective distribution of labor, this will minimize confusion and promote teamwork. All
essential key personnel must report to the team leader and be aware of their different
assignments. Next is to identify the hazards, using a hazard and vulnerability analysis (HVA).
An HVA can determine the hazards and threats that will impact the community. After
identifying all the hazards and threats, the planning team will easily decide what appropriate
protective actions to implement depending on the type of emergency situation, for example, the
need for immediate evacuation, shelter, shelter in place, medical care, food, transport and etc.
The worst ice storm ever recorded in Chicago did not cause any serious damage to the city. But,
there were collapsed trees, accidental injuries due to falls, and travel problems.
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In mitigation phase in an ice storm emergency, there should actions to prepare for power
outage like an alternative source of power, emergency water and food supply, and
communication tools such as two-way radios. Also, an evacuation location must be available in
case of floods, collapsed trees affecting resident’s homes, and any hazardous chemicals present.
Part of the preparedness phase is to train staff and residents regarding their emergency
responsibilities, evacuation routes and locations of temporary shelters. Make sure that
equipment and supplies (emergency kits) are fully stocked and ready. If there’s a need for the
victims to transfer to a temporary shelter before the ice storm, victims can bring their own family
emergency kits. Prior to the ice storm, there should be a public service announcement reminding
people to be ready for the coming ice storm. In the response phase, stabilization and mobilization
is important, to prevent loss of life and property damage. Residents or community should receive
the proper medical care, transport, evacuation and etc. During ice storm, everyone should stay
inside their residence and should follow instructions from the local government and fire
departments. In case of power outage, never use candles to prevent fires.
In emergency situations, as mentioned earlier, first responders, the law enforcement and
fire fighters have different roles in responding to situations but with good communication and
coordination, it’s always possible to render service to all the victims effectively and efficiently.
In the recovery stage restoration of the city and of services is the main goal. People have
different tolerance when it comes to physical pain and experience, for some, an ice storm can be
a traumatic experience. There should be post-crisis counseling for residents and staff. There
should be an alternative housing for the victims that are still making repairs in their homes.
Resources from different disaster agencies are vital for a faster and easier recovery (Emergency
Planning Guide, n.d.), including jobs, education, insurance, funds and loans. Personal and
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community involvement is highly recommended in the recovery stage. The recovery timeline
will all depend on the severity of the ice storm damage (Winter Storm and Blizzard Plan, 2015).
Emergency Management
Emergency management is the creation of plans in preventing and reducing injuries
before and after an event. There are four phases of emergency management, preparedness,
response, recover, and mitigation. There is a protocol for procedures that planners achieve
through coordination and integration of plans across all levels of governmental and non-
governmental organizations, the private sector, and individuals and families (FEMA, 2010).
FEMA has conducted community-based planning that also involves community leaders and the
private sector in the planning process to engage a whole community by using a planning process
that represents the actual population in the community (FEMA, 2010). Being prepared for a
disaster and major incidents can identify operational assumptions of threats and hazards, get
resource demands, prioritize plans, arrange planning efforts to support a community, and most
importantly respond to the event for recovery (FEMA, 2010). Developing to integrate and
synchronize efforts across all levels of government can very well protect and prevent major
efforts.
The planning process is key in any emergency management to protect lives, property, and
the environment. The planning must be community-based in order to understand the composition
to represent the whole populations and its needs (FEMA, 2010). Knowing a community with
disabilities, access and functional needs, and for the needs of children can benefit the planning
process for an emergency.
Having an emergency management in place for Chicago’s winter weather is
critical to protect a community. According to the Illinois Emergency Management Agency, since
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1997 about 177 people have died from exposure to cold temperatures in Illinois (Illinois
Emergency, n.d.). Illinois have winter storms every year and on average, experiences five severe
winter storms each year (Illinois Emergency, n.d.). To reduce the number of causalities, Chicago
has produced an effective emergency plan to implement during an ice storm. The actions taken in
the initial minutes of an emergency are critical. Based on past ice storms that occurred within the
United States, some events were lessons learned for emergency management through history.
The extensive southern ice storm that cost about three billion dollars affected several states
leaving some residents in Mississippi without power for a month after the storm (Dolce &
Erdman, 2014). Some of the after-actions were poorly addressed and unorganized if residents
were without power for several weeks. By evaluating an incident people can learn through a
systematic analysis of what had to be fixed and addressed. Another lesson learned for emergency
management was the Arkansas and Kentucky ice storm in January 2009, that claimed twenty-
four lives in Kentucky and another eighteen in Arkansas due to a combination of traffic
accidents, hypothermia, and carbon monoxide poisoning (Dolce & Erdman, 2014). Due to this
incident, FEMA has prewritten emergency ordinances that facilitate recovery operations (FEMA,
2010). Emergency management will also be able to identify lessons and strengths to be sustained
and weaknesses that need to be corrected. This will help emergency management learn how to
prevent the recurrence of adverse events, to take action, and to better fix situations and problems
that are likely to arise.
The National Weather Service created terms that convey the weather threat to the public
(Illinois Emergency, n.d.). Some of the terms to convey the upcoming conditions vary between
watches, warning, and advisories. This may include indication of heavy snow, ice, blizzards,
chills, rain, sleet, or a combination of all. Each of the listed warning threats that the State
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announces before the storm has a detailed description of what to expect. The National Weather
Service describes an ice storm warning as, “heavy accumulations of ice will create extremely
dangerous travel conditions, damage trees and likely cause extended power outages” (Illinois
Emergency, n.d.). This description should help families better understand what to expect.
During an announcement the State of Illinois will provide county names that identify
areas at risk, and to provide health precautions to protect families during the winter months
(Illinois Emergency, n.d.). Illinois advise every home to have a disaster kit or emergency
supplies for work and home (Illinois Emergency, n.d.). To ensure the safety of a home the state
of Illinois recommends before an ice storm to winterize your home, to extend your fuel supply,
to take steps to prevent frozen water pipes, prepare for possible isolation in your home for
several days, and prepare you vehicle for the winter (Illinois Emergency, n.d.). This will protect
homes in a community to ensure their safety. After an ice storm, a community will announce
when it is safe to return to normal activities. If any damage was done during the ice storm the
community will take action in repairing, replacing, or rebuilding property. When an emergency
occurs, the first priority is the safety of the people. Having an emergency management plan is
important for any type of event, incident, and disaster it can help save hundreds of lives.
Surge
To develop a plan for a response to a significant surge event, several strategies and tools
must be provided to assist with plan development and implementation. There is a greater chance
in developing frostbite and hypothermia during extreme weather conditions. Any type of injury
is a threat, so a community must always have an array of effective prevention strategies.
Therefore, a hospitals surge plan may be incorporated into an Emergency Operations Plan
(EOP). This may include a series of policies, procedure and protocols (California Hospital,
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2013). A surge plans policies and procedures should address internal and external
communication and interaction regarding current emergency status for surge levels, regulatory
status, the type, scope and expected duration of an event, and escalation and de-escalation as new
information is received (California Hospital, 2013). The goal of a good plan is to have adequate
detailed information to allow implementation by staff that may not be familiar with the plan.
According to an article, Exploring the Concept of Surge Capacity, an online journal of issues in
nursing stated, “developing standardized terminology and establishing clear questions regarding
the concept of surge capacity are essential for effective disaster planning and preparedness”
(Adams, 2009). During an event having job action sheets, task checklists, and other tools already
prepared and developed can help provide direction at a surge event to organize and implement a
surge plan. However, it can be difficult for a healthcare organization or region to know what
needs to be done to achieve surge capacity for large-scale events or how plans will need to
change based on the type of event (Adams, 2009). Nevertheless, to ensure the best outcomes in
any disaster or incident, surge capacity must be operationalized effectively across the full
spectrum of healthcare (Adams, 2009). Incidents can be overwhelming, but by developing an
effective disaster plan within a community can minimize the casualties during a surge event.
A comprehensive surge plan is essential for reacting to a disaster event. According to the
National Association of Public Hospitals and Health Systems, “surge capacity refers to the
coordination of supplies, structure, and most importantly, staffing” (National Association, 2007).
Having an adequate number of hospital workers and volunteers affect the number of operational
beds available and, ultimately, the amount of patients that can be cared for during an emergency
(National Association, 2007). During an emergency, hospital receive more patients than they can
handle, therefore need to be prepared. During an ice storm power outages are likely to occur
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leaving communities without power for several days or weeks. Hospitals and emergency centers
need to prepare before an unexpected power outage or ice storm happens. It is important to stock
up on non-perishable foods and essentials such as flashlights, batteries, and generators to
accommodate the rise in the number of patients. In doing so, hospitals and emergency centers
will be capable of maintaining and managing the full capacity of patient surge during an
emergency.
Special Planning Considerations
In the event of an ice storm there are special planning considerations in the event that
there may be a mass casualty (five or more patients) or hazardous material incident. As
mentioned throughout the plan ice storms cause downed power lines, power poles, and trees due
to high winds. Downed power lines, poles, and trees block road ways and can leave people
stranded in their cars. Depending on how long people are stranded for, and how well they are
prepared for the ice storm will determine if a mass casualty will occur. To avoid a mass casualty
it is paramount for workers to remove anything that is paralyzing transportation systems. To
ensure the safety of the workers special planning for training for removing debris from roadways
in an ice storm should be conducted. Training should include education on the heightened risk of
the hazards associated with downed power lines and poles. Hazards such as the increase risk of
electrocution and accidental falls during the removal of debris in an ice storm. The United States
Department of Labor has OSHA (Occupational Safety& Health Administration) guidelines for
the proper protective equipment (PPE) that workers should wear in winter weather. PPE
includes: gloves, chaps, feet protection, eye protection, fall protection, hearing protection, and
head protection (OSHA, n.d.). Education on energized vs. de-energized work should also be
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conducted due to the risk of moisture reducing the isolation value of PPE (OSHA, n.d.). When
energized work has to be conducted an energized hazard analysis that includes evaluating
weather conditions and identifying how to safely complete the job should be conducted (OSHA,
n.d.). Education must also include the risk of being struck or crushed by falling tree limbs or
collapsing poles. Special planning considerations should include animal evaluation, to assess the
needs of pets and livestock in an ice storm. Also, plans for special needs populations for
comprehensive planning between public and private sectors to maintain transportation, care
supervision and communication (Capital City Development Corps, 2009).
Evaluation
It is important to evaluate our program through process, outcome, and impact
evaluations. The purpose of evaluation is to ensure that our programs objectives have been
properly implemented as intended, to track progress, and to measure our program effectiveness.
Our process evaluation will ask questions such as: Where educational training for workers been
conducted? Has the public been made aware of possible ice storms? And have they been
educated on pre-storm preparation and outdoor travel? During our outcome evaluation we will
ask questions such as: Through worker education on debris removal during ice storms where
workers more likely to wear their PPE to avoid injury? Did implementation of education on
storm preparation decrease morbidity? Lastly, during impact evaluation we will ask did The
Chicago Project improve the material and systematic readiness for the city of Chicago to provide
continued service and quality of care? Did the plan decrease morbidity and property damage?
The Chicago Project can be tested and tried in a full-scale exercise (FSE), but until the next ice
storm hits the city of Chicago a complete evaluation of our plan is inconclusive. The evaluation
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design used here is non-experimental (predictive experiment). In a Pharmacological Research
Institute study showed that 70% of Chicagoans have never experienced a disaster, impacting the
citizen’s sense of urgency to prepare for a natural disaster (Capital City Development Corps,
2009). Our second objective is to bring awareness, educate, and prepare the citizens of Chicago
for an ice storm. We predict that through education Chicagoans will increase their urgency to
prepare for ice storms.
Conclusion
Because Chicago is the third largest city in the United States, and they experience severe
weather every year to include ice storms it is important to learn from past ice storms, and to
make new plans for future ice storms in Chicago. The Chicago project intends to educate the
public to increase awareness of ice storms and the impact that they can have on their community.
The goal is to decrease injury, morbidity, and property damage. We believe that through our
emergency preparedness plan we can make an impact on communities and families living in
Chicago.
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Nursing, 14(2), 8.
Alert Chicago. (2010). Retrieved from https://www.cityofchicago.org
California Hospital Association (2013 August 19). Surge Planning Checklist. Retrieved from
http://www.calhospitalprepare.org/healthcare-surge
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COH 440 Preparedness & Disaster Management