Emergency Plans For Houses of Worship
Emergency Plans For Houses of Worship
Emergency Plans For Houses of Worship
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
Table of Contents
Introduction and Purpose ............................................................................................. 1
Planning Principles ....................................................................................................... 3
The Planning Process ................................................................................................... 4
Step 1: Form a Collaborative Planning Team.......................................................................5
Step 2: Understand the Situation............................................................................................6
Step 3: Determine Goals and Objectives ...............................................................................7
Step 4: Plan Development (Identifying Courses of Action) .................................................9
Step 5: Plan Preparation, Review, and Approval ...............................................................10
Step 6: Plan Implementation and Maintenance ..................................................................14
Plan Content ................................................................................................................ 16
Basic Plan ................................................................................................................................16
Functional Annexes ................................................................................................................20
Threat- and Hazard-Specific Annexes .................................................................................22
A Closer Look: Active Shooter Situations ................................................................ 23
Preparing for an Active Shooter Incident ...........................................................................24
Preventing an Active Shooter Incident ................................................................................25
Responding to an Active Shooter Incident ..........................................................................28
After an Active Shooter Incident ..........................................................................................31
Appendix A : References .......................................................................................... A-1
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
ii
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
A process for developing, implementing, and continually refining a house of worships EOP
with community partners
All Web sites listed in this guide were accessible as of June 6, 2013.
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
A closer look that discusses house of worship emergency planning in the event of an active
shooter situation.
This guide is designed to be scalable for use by small to large-sized houses of worship in order to
help navigate the planning process. Used in its entirety, this guide provides information on the
fundamentals of planning and their application. At a minimum, houses of worship are
encouraged to complete the planning process and develop a basic plan. This guide does not
impose any new Federal requirements. While some Federal requirements may apply to houses of
worship that receive Federal funding, they are not addressed in this document. For houses of
worship that also operate a school, please see the Guide for Developing High-quality School
Emergency Operations Plans for planning considerations specific to the school environment. 2
Emergency planning efforts work best when they are aligned with emergency planning practices
at the local, state, and national levels. Recent developments have put a new emphasis on the
process for developing EOPs. National preparedness efforts, including planning, are informed by
Presidential Policy Directive (PPD) 8, which was signed by the President in March of 2011 and
describes the Nations approach to preparedness. This Directive represents an evolution in our
collective understanding of national preparedness, based on the lessons learned from criminal
activities, hurricanes, house of worship incidents, and other experiences.
PPD-8 defines preparedness around five mission areas: Prevention, Protection, Mitigation,
Response, and Recovery.
Prevention, for the purposes of this guide, means the capabilities necessary to avoid, deter,
or stop an imminent crime or threatened or actual mass casualty incident. 3 Prevention is the
action houses of worship take to prevent a threatened or actual incident from occurring.
Protection means the capabilities to secure houses of worship against acts of terrorism and
manmade or natural disasters. Protection focuses on ongoing actions that protect people,
networks, and property from a threat or hazard.
Mitigation means the capabilities necessary to eliminate or reduce the loss of life and
property damage by lessening the impact of an incident. In this guide, mitigation also means
reducing the likelihood that threats and hazards will happen.
Response means the capabilities necessary to stabilize an incident once it has already
happened or is certain to happen in an unpreventable way; establish a safe and secure
environment; save lives and property; and facilitate the transition to recovery.
Emergency management officials and emergency responders engaging with houses of worship
are familiar with this terminology. These mission areas generally align with the three timeframes
associated with an incident: before, during, and after. The majority of Prevention, Protection, and
Mitigation activities generally occur before an incident, although these three mission areas do
2
U.S. Department of Education, et al. 2013. Guide for Developing High-quality School Emergency Operations
Plans. Washington, DC: U.S. Department of Education. http://rems.ed.gov
3
In the broader PPD-8 construct, the term prevention refers to those capabilities necessary to avoid, prevent, or
stop a threatened or actual act of terrorism. The term prevention refers to preventing imminent threats.
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
have ongoing activities that can occur throughout the incident. Response activities occur during
an incident and Recovery activities can begin during an incident and occur after an incident. To
help avoid confusion over terms and allow for ease of reference, this guide uses the terms before,
during, and after.
As houses of worship plan for and execute response and recovery activities through the EOP,
they should consider using the concepts and principles of the National Incident Management
System (NIMS). NIMS provides all those involved with a common understanding of roles and
responsibilities during response to incidents. Houses of worship may also find NIMS suitable for
managing other large-scale non-emergency events, such as fairs or festivals. One component of
NIMS is the Incident Command System (ICS), which provides a standardized approach for
incident management, regardless of cause, size, location, or complexity. By using ICS during an
incident, houses of worship will be able to work more effectively with the responders in their
community. 4
While some of the vocabulary, processes and approaches discussed in this guide may be new to
congregations, they are critical to the creation of emergency management practices and plans that
are integrated with the efforts of first responders (e.g., fire, law enforcement, emergency medical
services [EMS]) and other key stakeholders. If a house of worship has an existing plan, revising
and adapting that plan using the principles and process described in this guide will help ensure
alignment with the terminology and approaches used across the Nation, including the first
responders with whom the house of worship will need to collaborate before, during, and after an
incident.
Planning Principles
The following principles are key to developing a house of worship EOP that addresses a range of
threats and hazards.
Planning considers all threats and hazards. The planning process should take into account
a wide range of possible threats and hazards that may affect the house of worship.
Emergency operations planning considers all threats and hazards throughout the planning
process, addressing safety needs before, during, and after an incident.
Planning considers all setting and all times. It is important to remember that threats and
hazards can affect the house of worship at non-standard times (e.g., when facilities are being
used by others), as well as off-site (e.g., an activity or event sponsored somewhere other than
the grounds of the house of worship).
Planning provides for the access and functional needs of the whole house of worship
community. The whole house of worship community includes regular attendees, guests, and
staff, including those with disabilities and others with access and functional needs; those
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
from racially and ethnically diverse backgrounds; and people with limited English
proficiency.
For more information, please see Developing and Maintaining Emergency Operations Plans (Comprehensive
Preparedness Guide [CPG] 101), Version 2.0 (Federal Emergency Management Agency, 2011,
http://www.fema.gov/plan).
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
S t ep 1: F o r m a C o l l ab o r a t i v e P l an n i n g T ea m
Experience and lessons learned indicate that operational planning is best performed by a team.
Case studies reinforce this concept by pointing out that the common thread found in successful
operations is that participating organizations have understood and accepted their roles. Close
collaboration between houses of worship and community partners, including first responders,
ensures the coordination of efforts and the integration of plans. Houses of worship may consider
joining or collaborating with other nearby houses of worship to form joint emergency planning
teams. In addition, first responders and emergency managers may want to work with multiple
houses of worship to address common goals and objectives.
Identify Core Planning Team
The core planning team should include representatives from the house of worship, as well as first
responders and others who may have roles and responsibilities in house of worship emergency
management before, during, and after an incident. Many houses of worship may have first
responders or others with special emergency planning expertise in their congregation. Their
expertise will inform the development, implementation, and refinement of the house of worships
plan. Where possible, consider including diverse representation on the planning team, including
individuals with disabilities and the elderly. The planning team should be small enough to permit
close collaboration, yet large enough to be representative of the house of worship, its
congregation, and its community partners. It should also be large enough as to not place an
undue burden on any single person.
Form a Common Framework
All team members should consider taking time to learn each others vocabulary, command
structure, and culture in order to facilitate effective planning.
Define and Assign Roles and Responsibilities
Each person involved in the development and refinement of the plan should know his or her role
and responsibility in the planning process, as well as generally understand others roles so that
they know with whom to speak regarding particular issues and questions that might arise during
the planning process.
Determine a Regular Schedule of Meetings
Regularly scheduled planning meetings reinforce the ongoing planning effort. Establishing a
flexible but regular schedule of meeting times will facilitate greater collaboration, coordination,
and communication among team members and will help solidify crucial relationships.
Step 1 Outcome
After completing Step 1, the house of worship will have formed a planning team with
representation from all necessary stakeholders. The planning team will have taken initial steps to
form a common framework; define and assign roles and responsibilities in the planning process;
and set a schedule of planning meetings.
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
S t ep 2: U n d er s t an d t h e S i t u at i o n
In Step 2, the planning team identifies possible threats and hazards and assesses the risk and
vulnerabilities posed by those threats and hazards. Effective emergency planning depends on an
analysis and comparison of the threats and hazards a particular house of worship faces. This is
typically performed through a threat and hazard identification and risk assessment process that
collects information about threats and hazards and assigns values to risk for the purposes of
deciding which threats and hazards the plan should prioritize and subsequently address.
Identify Threats and Hazards
The planning team first needs to understand the threats and hazards faced by the house of
worship and the surrounding community. The planning team can draw upon a wealth of existing
information to identify the range of threats and hazards that may be faced by the house of
worship. First, the planning team members should share their own knowledge of threats and
hazards the house of worship and surrounding community has faced in the past or may face in
the future. Houses of worship should work with their local emergency management agency to
obtain a copy of the state or local risk assessment. This assessment contains information
regarding the potential threats and hazards in the community that may also affect the house of
worship.
Assess the Risk Posed by Identified Threats and Hazards
Once an initial set of threats and hazards has been identified through the process described
above, the planning team should select suitable assessment tools to evaluate the risk posed by the
identified threats and hazards. 6 Evaluating risk involves understanding the probability that the
specific threat or hazard will occur; the effects the threat or hazard will likely have, including
their severity; the time the house of worship will have to warn occupants about the threat or
hazard; and how long the threat or hazard may last.
The house of worships local emergency management agency should be able to provide
information on the threats and hazards identified for the surrounding community. This enables
the planning team to focus its assessment efforts on threats and hazards unique to the house of
worship, as well as the particular vulnerabilities of the buildings and their occupants. 7 Assessing
risk and vulnerability enables the planning team to focus its efforts on prioritized threats and
hazards.
A site assessment examines the safety, accessibility, and emergency preparedness of the house of
worships buildings and grounds. This assessment includes, but is not limited to, a review of
building access; visibility around the exterior of buildings; structural integrity of buildings;
compliance with applicable architectural standards for individuals with disabilities and others
with access and functional needs; and emergency vehicle access. The planning team may also
identify additional threats and hazards through the site assessment process.
For more information on the threat and hazard identification and risk assessment process, please see Threat and
Hazard Identification and Risk Assessment Guide (CPG 201) (U.S. Department of Homeland Security [DHS], 2012,
http://www.fema.gov/plan).
7
Vulnerabilities are characteristics that could make the house of worship more susceptible to threats and hazards.
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
After conducting threat and hazard identification, the planning team should organize the
information into a format that is useful for comparison of the risks posed by the identified threats
and hazards. This information will then be used to assess and compare the threats and hazards
and their likely consequences, commonly referred to as a risk assessment. One effective method
for organizing information is create a table with information about each possible threat and
hazard, including any new threats or hazards identified through the assessment process. The table
should include:
Follow-on effects
Probability
Magnitude
Warning
Duration
Risk Priority
Earthquake
4. Highly Likely
3. Likely
2. Possible
1. Unlikely
4. Catastrophic
3. Critical
2. Limited
1. Negligible
4. Minimal
3. 6-12 Hours
2. 12-24 Hours
1. > 24 Hours
4. 12+ Hours
3. 6-12 Hours
2. 3-6 Hours
1. < 3 Hours
High
Medium
Low
Fire
4. Highly Likely
3. Likely
2. Possible
1. Unlikely
4. Catastrophic
3. Critical
2. Limited
1. Negligible
4. Minimal
3. 6-12 Hours
2. 12-24 Hours
1. > 24 Hours
4. 12+ Hours
3. 6-12 Hours
2. 3-6 Hours
1. < 3 Hours
High
Medium
Low
Step 2 Outcome
After completing Step 2, the planning team will have a prioritized (e.g., high, medium, or low
risk) list of threats and hazards based on the results of the threat and hazard identification and
risk assessment.
S t ep 3: D et e rmi n e G o a l s an d O b j ec t i v es
In Step 3, the planning team decides which of the threats and hazards identified in Step 2 will be
addressed in the house of worships plan. The planning team may decide to address only those
threats and hazards that were classified as high risk, or they may decide to address all threats and
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
hazards classified as high risk, as well as some of the threats and hazards that were classified as
medium risk. This is a critical decision point in the planning process. It is recommended that the
planning team address more than only the high-risk threats and hazards.
Develop Goals and Objectives
Once the planning team has determined the threats and hazards that will be addressed in the plan,
it should develop goals and objectives for each threat or hazard.
Goals are broad, general statements that indicate the desired outcome in response to a threat or
hazard. Goals are what personnel and other resources are supposed to achieve. Goals also help
identify when major activities are complete and what defines a successful outcome.
The planning team should develop at least three goals for addressing each threat or hazard
(although the planning team may want to identify more). Those three goals should indicate the
desired outcome for before, during, and after the threat or hazard.
Example: Goals for a Fire Hazard
Three possible goals for a fire hazard include:
Goal #1 (Before): Prevent a fire from occurring in the house of worship.
Goal #2 (During): Protect all persons and property from injury by the fire.
Goal #3 (After): Provide necessary medical attention to those in need.
Objectives are specific, measurable actions that are necessary to achieve the goals. Often,
planners will need to identify multiple objectives in support of a single goal.
Example: Objectives for a Fire Hazard
For Goal #1 in the fire hazard example, possible objectives include:
Objective 1.1: Provide fire prevention training to all persons that use combustible
materials or equipment in or around the house of worship.
Objective 2.1: Evacuate all persons from the building and surrounding grounds
immediately.
Objective 3.1: Immediately notify 911, fire, and EMS of any fire in the house of
worship.
After the planning team has developed the objectives for each goal, it will find that certain
critical functions or activities apply to more than one threat or hazard. Examples of these
crosscutting functions include evacuation, shelter-in-place, and lockdown. After identifying these
functions, the planning team should develop three goals for each function. As with the goals
already identified for threats and hazards, the three goals should indicate the desired outcome for
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
before, during, and after the function has been executed. These commonly occurring functions
will be contained in functional annexes to the plan. 8 More details on these functions are included
in the Plan Content section of this guide, including issues to consider as goals and objectives
are developed for these functions. Once the goals for a function are identified, possible
supporting objectives are identified.
Example: Goals and Objectives for an Evacuation Function
For an evacuation function, three possible goals and associated objectives include:
Function Goal Example 1 (Before): Ensure all persons know their evacuation route.
Objective 1.1: Assess, identify, and communicate the location of assembly points to
be used during an evacuation.
Objective 2.1: All persons will evacuate the house of worship using assigned routes.
Function Goal Example 3 (After): Confirm that all persons have left the building.
Step 3 Outcome
After completing Step 3, the planning team will have at least three goals for each threat or hazard
and function, as well as objectives for each goal.
S t ep 4: P l an D e vel o p men t ( I d en t i f yi n g C o u r s es o f A ct i o n )
In Step 4, the planning team develops courses of action for accomplishing each of the objectives
identified in Step 3 (for threats, hazards, and functions). Courses of action address the
what/who/when/where/why/how for each threat or hazard and function. The planning team
should examine each course of action to determine whether it is feasible and whether the
stakeholders necessary to implement it find it acceptable. For additional considerations for
developing courses of action, please see the Plan Content section of this guide.
Courses of action include criteria for determining how and when each response will be
implemented under a variety of circumstances. Subsequently, the planning team develops
response protocols and procedures to support these efforts. Possible courses of action are
typically developed using the following steps:
Depict the scenario. Create a potential scenario based on the threats and hazards identified
earlier in the planning process. For example, an earthquake occurs during the congregations
gathering which might include childcare or school activities. The facility may also be offered
or rented for other activities, bringing many individuals to the site.
Determine the amount of time available to respond. This will vary based on the type of
threat or hazard and the particular scenario. For example, in the case of a hurricane, the house
of worship might have days or hours to respond before the storm makes landfall, while the
house of worship may have to respond in minutes to an active shooter.
The term annex is used throughout this guide to refer to functional, threat/hazard-specific, or other supplements
to the basic plan. Some plans may use the term appendix in the same fashion.
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
Identify decision points. Decision points indicate the place in time, as threats or hazards
unfold, when leaders anticipate making decisions about a course of action. Walking through
each scenario in detail will help identify the relevant decision points for each scenario, such
as whether to evacuate, shelter-in-place, or lockdown.
Develop courses of action. Planners develop courses of action to achieve their goals and
objectives by answering the following questions:
How long should the action take and how much time is actually available?
How will this action affect specific populations, such as children, the elderly, and
individuals with disabilities and others with access and functional needs?
Select courses of action. After developing courses of action, planners compare the costs and
benefits of each proposed course of action against the goals and objectives. Based on this
comparison, planners select the preferred course or courses of action to move forward in the
planning process. Plans often include multiple courses of action for a given scenario to
reflect the different ways it could unfold.
After selecting courses of action, the planning team should identify the resources necessary to
accomplish each course of action without regard to resource availability. Once the planning team
identifies all of the resource requirements, they begin matching available resources to the
requirements. This step provides planners an opportunity to identify resource gaps or shortfalls
that should be taken into account.
Step 4 Outcome
After completing Step 4, the planning team will have identified goals, objectives, and courses of
action for before, during, and after threats and hazards, as well as functions. Goals, objectives,
and courses of action for threats and hazards will be contained in the threat- and hazard-specific
annexes in the plan. Goals, objectives, and courses of action for functions will be contained in
the functional annexes of the plan.
S t ep 5: P l an P rep a r at i o n , R e vi ew , a n d Ap p ro val
In Step 5, the planning team develops a draft of the EOP using the courses of action developed in
Step 4. In addition, the team reviews the plan, obtains official approval, and shares the plan with
community partners and stakeholders.
10
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
Goal(s)
Objective(s)
Course(s) of Action (i.e., describe the courses of action developed in Step 4 in the
sequence in which they will occur)
Figure 2 outlines the different components of each of these three sections. The Plan Content
section of this guide discusses content for each of these components. The format presented in this
guide can be used for both the basic plan and annexes. Each function, threat, or hazard will have
at least three goals, with one or more objectives for each goal, and a course of action for each of
the objectives. Each annex should specify the title of the annex and list the goals, objectives, and
courses of action (in the sequence in which they would occur).
11
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
Basic Plan
Functional Annexes
1. Introductory Material
1.1. Promulgation Document/Signatures
1.2. Approval and Implementation
1.3. Record and Changes
1.4. Record of Distribution
1.5. Table of Contents
2. Purpose and Situation Overview
2.1. Purpose
2.2. Situation Overview
3. Concept of Operations
4. Organization and Assignment of
Responsibilities
5. Direction, Control, and Coordination
6. Information Collection, Analysis, and
Dissemination
7. Training and Exercises
8. Administration, Finance, and Logistics
9. Plan Development and Maintenance
10. Authorities and References
Evacuation
Lockdown
Shelter-in-Place
Recovery
Security
Severe Storm
Earthquake
Tornado
Fire
Hazardous Materials Incident
Active Shooter
Use clear and simple writing in plain language. Summarize important information with
checklists and visual aids, such as maps and flowcharts.
Use short sentences and the active voice. Qualifiers and vague wording only add to
confusion.
Use a logical, consistent structure that makes it easy for readers to understand the rationale
for the sequence of information and to find the information they need.
Provide enough detail to convey an easily understood plan that is actionable. Organize the
contents in a way that helps users quickly identify solutions and options. Plans should
provide guidance for carrying out common courses of action, through the functional- and
threat and hazard-specific annexes, but stay out of the weeds.
Develop accessible tools and documents. Use appropriate auxiliary aids and services
necessary for effective communication, such as accessible Web sites; digital text that can be
converted to audio or Braille; the use of text equivalents for images; and captioning of any
audio and audio description of any video content.
12
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
A plan is adequate if the plan identifies and addresses critical courses of action effectively;
the plan can accomplish the assigned function; and the plans assumptions are valid and
reasonable.
A plan is feasible if the house of worship can accomplish the assigned critical courses of
action by using available resources within the time contemplated by the plan.
A plan is acceptable if it meets the requirements driven by a threat or hazard, meets cost and
time limitations, and is consistent with the law.
Incorporates all courses of action to be accomplished for all selected threats and hazards
and identified functions
Provides a complete picture of what should happen, when, and at whose direction
Makes time estimates for achieving objectives, with safety remaining as the utmost
priority
The plan should comply with applicable local and state requirements, because these provide
a baseline that facilitates both planning and execution.
Additionally, when reviewing the plan, the planning team does not have to provide all of the
resources needed to execute a course of action or meet a requirement established during the
planning effort. However, the plan should explain where or how the house of worship would
obtain the resources to support those requirements.
Approve and Share the Plan
After finalizing the plan, the planning team should present the plan to the appropriate leadership
and obtain official approval of the plan. Once approval is granted, the planning team should
share the plan with local emergency management officials, community partners that have a role
in the plan, and organizations that may use the building(s). The planning team should maintain a
record of the people and organizations that receive a copy of the plan.
Step 5 Outcome
After completing Step 5, the planning team will have a final EOP for the house of worship.
13
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
S t ep 6: P l an I mp l e m en t at i o n an d M a i n t en an c e
Train Stakeholders on the Plan and Their Roles
Everyone involved in the plan needs to know their roles and responsibilities before, during, and
after an incident. Key training components include:
Hold a meeting. At least once a year, hold a meeting to educate all parties on the plan. Go
through the plan in order to familiarize these stakeholders with it.
Visit evacuation sites. Show involved parties not only where evacuation sites are located,
but also where specific areas, such as reunification areas, media areas, and triage areas will
be located.
Give stakeholders appropriate and relevant literature on the plan, policies, and
procedures. It may also be helpful to provide them with quick reference guides that remind
them of key courses of action.
Post key information throughout the building. It is important that congregants are familiar
with and have easy access to information such as evacuation routes and shelter-in-place
procedures and locations. Ensure information concerning evacuation routes and shelter-inplace procedures and locations is communicated effectively to congregants with disabilities
or others with access and functional needs.
Familiarize congregants with the plan and community partners. Bringing law
enforcement, fire, and EMS personnel and community partners that have a role in the plan, as
well as other organizations that use the building(s), into the house of worship to talk about
the plan will make congregants and others more comfortable working with these partners.
This may include community partners who are congregation members.
Train stakeholders on the skills necessary to fulfill their roles. Persons will be assigned
specific roles in the plan that will require special skills, such as first aid, how to use ICS, and
the provision of personal assistance services for children, the elderly, and individuals with
disabilities and others with access and functional needs.
Tabletop exercises are small group discussions that walk through a scenario and the courses
of action a house of worship will need to take before, during, and after an incident. This
For additional information on conducting exercises, please see the Homeland Security Exercise and Evaluation
Program Web site at http://hseep.dhs.gov.
14
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
activity helps assess the plan and resources and facilitates an understanding of emergency
management and planning concepts.
During drills, local emergency management officials, community partners, and relevant
house of worship personnel use the actual house of worship grounds and buildings to practice
responding to a scenario.
Functional exercises are similar to drills, but involve multiple partners. Participants react to
realistic simulated events (e.g., a bomb threat, or an intruder with a gun), and implement the
plan and procedures using ICS.
Full-scale exercises are the most time-consuming activity in the exercise continuum and are
multiagency, multi-jurisdiction efforts in which resources are deployed. This type of exercise
tests collaboration among the agencies and participants, public information systems,
communications systems, and equipment. An emergency operations center is established
(usually by the local emergency management agency) and ICS is activated.
Before making a decision about how many and which types of exercises to implement, a house
of worship should consider the costs and benefits. Houses of worship should also consider
having representative(s) participate in larger community exercises to ensure that their efforts are
synchronized with the whole communitys efforts.
It is up to the planning team to decide how often exercises should be conducted. While frequent
exercise is important, it is imperative that exercises are high quality. To conduct an exercise
effectively:
Exercise under different and non-ideal conditions (e.g., time of day, weather)
Debrief and develop an after-action report that evaluates results; identifies gaps or shortfalls;
and documents lessons learned
Discuss how the plan and procedures will be modified, if needed, and specify who has the
responsibility for modifying the plan.
Actual emergencies
15
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
Formal exercises
Changes in the house of worships demographics (e.g., changing language needs) or site
assessment.
The planning team should ensure that all local emergency management officials and community
partners have the most current version of the house of worships plan.
Plan Content
Step 5 of the planning process in this guide introduced a format with three sections for houses of
worship to follow in developing an EOP. This section provides greater detail about what each of
the three sections should include and provides some key considerations in developing the
content.
B a si c P l an
The basic plan provides an overview of the house of worships approach to operations before,
during, and after an incident. This section addresses the overarching activities the house of
worship undertakes regardless of the function, threat, or hazard. The content in this section
provides a solid foundation for the house of worships operations. The information in this section
should not duplicate information contained in other sections of the plan. Almost all of the
information contained in the basic plan should be able to come from the planning team. If the
planning team finds that it has to go outside the planning team for a significant amount of
information, it may be an indication that the planning team membership needs to be expanded.
Introductory Material
Introductory material can enhance accountability with local emergency management officials
and community partners and make a plan easier to use. Typical introductory material includes:
Cover Page. The cover page has the title of the plan. It should include a date and identify the
house of worship covered by the plan.
Approval and Implementation Page. The approval and implementation page introduces the
plan, outlines its applicability, and indicates that it supersedes all previous plans. It should
include a delegation of authority for specific modifications that can be made to the plan and
by whom they can be made without the signature of leadership. It should also include a date
and should be signed by the house of worships senior leadership.
16
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
Record of Changes. Each update or change to the plan should be tracked. The record of
changes, usually in table format, contains, at a minimum, a change number, the date of the
change, the name of the person who made the change, and a summary of the change.
Record of Distribution. The record of distribution, usually in table format, indicates the title
and the name of the person receiving the plan, the organization to which the recipient
belongs, the date of delivery, and the number of copies delivered. Other relevant information
could be considered. The record of distribution can be used to prove that tasked individuals
and organizations have acknowledged their receipt, review, and/or acceptance of the plan.
Table of Contents. The table of contents is a logically ordered and clearly identified layout
of the major sections and subsections of the plan that will make finding information within
the plan easier.
Purpose. The purpose sets the foundation for the rest of the plan. The basic plans purpose is
a general statement of what the plan is meant to do. The statement should be supported by a
brief synopsis of the basic plan and annexes.
Situation Overview. The situation overview explains why the plan is necessary. The
situation overview covers a general discussion of:
The threats and hazards that pose a risk to the house of worship and would result in a
need to use this plan
Concept of Operations
This section explains in broad terms the decision makers intent with regard to an operation. This
section provides an overall impression of how the house of worship will protect its occupants
and should:
Describe the process by which the house of worship coordinates with all appropriate agencies
within the jurisdiction
Describe how plans take into account the architectural, programmatic, and communication
needs of children, the elderly, and individuals with disabilities and others with access and
functional needs (including their service animals)
Identify other response/support agency plans that directly support the implementation of the
plan (e.g., city or county EOP)
Explain that the primary purpose of actions taken before an incident is to prevent, protect
from, and mitigate the impact on life or property
Explain that the primary purpose of actions taken during an incident is to respond to the
incident and minimize its impact on life or property
17
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
Explain that the primary purpose of actions taken after an incident is to recover from its
impact on life or property
Describe the roles and responsibilities of each individual/organization that apply during an
incident (response), including, but not limited to, house of worship leadership, staff, lay
leadership, congregants, and local departments and agencies (e.g., fire, law enforcement,
EMS, emergency management) 10
Describe informal and formal agreements in place for the quick activation and sharing of
resources during an incident (e.g., evacuation locations to a nearby business parking lot).
Agreements may be between the house of worship and response organizations (e.g., fire, law
enforcement, EMS), other houses of worship, organizations, and businesses.
Describe the relationship between the house of worships plan and the broader communitys
emergency management system
Describe who has control of equipment, resources, and supplies needed to support the plan.
10
Identify the type of information that will be helpful in the successful implementation of the
activities that occur before, during, and after an emergency, such as:
Before and during: weather reports, law enforcement alerts, National Oceanic and
Atmospheric Administration radio alerts, and crime reports
After: Web sites and hotlines for mental health agencies, emergency management
agencies, and relief agencies assisting in all aspects of recovery.
Provide answers to the following questions for each of the identified types of information:
If the planning team considers the information critical to the successful implementation of the plan, it may identify
roles and responsibilities of one or more individuals/organizations before and after an incident in addition to during
the incident.
18
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
What is the format for providing the information to those who will use it?
Identify administrative controls and requirements that will be used to provide resource and
expenditure accountability
Briefly describe how the house of worship will maintain accurate logs of key activities
Identify general policies for keeping financial records; tracking resource needs; tracking the
source and use of resources; acquiring ownership of resources; and compensating the owners
of private property used by the house of worship.
Describe the planning process, participants in that process, and how development and
revision of different sections of the plan (i.e., basic plan, annexes) are coordinated prior to an
incident
Assign responsibility for the overall planning and coordination to a specific position or
person
Provide for a regular cycle of training, evaluating, reviewing, and updating of the plan.
Lists of laws, statutes, ordinances, executive orders, regulations, and formal agreements
relevant to emergencies in the community
19
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
Provisions for the succession of decisionmaking authority and operational control to ensure
that critical emergency functions can be performed in the absence of the house of worships
senior leadership.
F u n ct i o n al A n n e xe s
Functional annexes focus on critical operational functions and the courses of action developed to
carry them out. This section describes functional annexes that the house of worship should
develop as part of the plan. As the planning team assesses the house of worships needs, it may
need to prepare additional or different annexes. Also included in this section are issues the
planning team should consider as it develops goals, objectives, and courses of action for these
functions. These are some of the most important issues, but this is not meant to be an exhaustive
list.
Functions may occur consecutively or concurrently, depending on the incident. While functions
build upon one another and overlap, it is not necessary to repeat a course of action in one
functional annex if it appears in a second functional annex. For example, though an evacuation
may lead to reunification, it not necessary to list a course of action for reunification within the
evacuation annex.
Evacuation Annex
This annex focuses on the courses of action that the house of worship will execute to evacuate
buildings and grounds. The planning team should consider the following when developing their
goals, objectives, and courses of action:
How to safely move persons to designated assembly areas from buildings and outside areas
How to evacuate senior citizens and individuals with disabilities (along with service animals
and assistive devices) and others with access and functional needs, including language,
transportation, and medical needs.
Lockdown Annex
This annex focuses on the courses of action the house of worship will execute to secure buildings
and grounds during incidents that pose an immediate threat of violence in or around the house of
worship. The primary objective of a lockdown is to ensure all persons are secured quickly in the
rooms away from immediate danger. The planning team should consider the following when
developing their goals, objectives, and courses of action:
How to lock all exterior doors and when it may or may not be safe to do so
How particular building characteristics (e.g., windows, doors) affect possible lockdown
courses of action
When to use the different variations of a lockdown (e.g., when outside activities are curtailed,
doors are locked, and visitors closely monitored but all other activities continue as normal).
20
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
Shelter-in-Place Annex
A shelter-in-place annex focuses on courses of action when persons are required to remain
indoors, perhaps for an extended period, because it is safer inside the building or a room than
outside. Depending on the threat or hazard, persons may be required to move to rooms that can
be sealed (such as in the event of a chemical or biological hazard) or without windows, or to a
weather shelter (such as in the event of a tornado). The planning team should consider the
following when developing their goals, objectives, and courses of action:
What supplies will be needed to seal the room and to provide for personal needs (e.g., water)
How shelter-in-place can affect individuals with disabilities and others with access and
functional needs, such as persons who require the regular administration of medication,
durable medical equipment, and personal assistant services
How to locate and move children who are not with a parent or guardian
Consider the need for and integration of safe rooms for protection against extreme wind
hazards (such as a tornado or hurricane) in order to provide immediate life-safety protection
when evacuation is not an option.
Recovery Annex
This annex describes how the house of worship will recover from an emergency. The four
fundamental kinds of recovery are services recovery; physical recovery; fiscal recovery; and
psychological and emotional recovery. The planning team should consider the following when
developing their goals, objectives, and courses of action:
Services Recovery
When and who has the authority to close and reopen the house of worship
How alternate services will be provided in the event that congregation members cannot
physically reconvene.
Physical Recovery
How assets are documented, including physically accessible facilities, in case of damage
Which personnel have expert knowledge of the assets and how and where they will
access records to verify current assets after an emergency
How the house of worship will work with utility and insurance companies before an
emergency to support a quicker recovery.
Fiscal Recovery
How will staff receive timely and factual information regarding returning to work
What sources the house of worship may access for emergency relief funding.
21
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
How members will create a calm and supportive environment for the congregation, share
basic information about the incident, provide psychological first aid (if trained), and
identify members and staff who may need immediate crisis counseling
How to address immediate-, short-, and long-term counseling needs of staff members and
families
How memorial activities will strike a balance among honoring the loss; resuming routines
and schedules; and maintaining hope for the future.
Security Annex
This annex focuses on the courses of action that the house of worship will implement on a
routine, ongoing basis to secure the house of worship from criminal threats, including efforts
done in conjunction with law enforcement.
T h r e at - an d H az a rd - S p e ci f i c An n exe s
The threat- and hazard-specific annexes describe the courses of action unique to particular
threats and hazards. Courses of action already outlined in a functional annex need not be
repeated in a threat- or hazard-specific annex. A house of worship will develop these based on
the prioritized list of threats and hazards determined during the planning process. As planning
teams develop courses of action for threats and hazards, they should consider the local, state, and
Federal regulations or mandates that often apply to specific hazard. Table 2 provides example
threats and hazards for which a house of worship may need to plan.
Table 2: Example Threats and Hazards
Threat/Hazard Type
Natural Hazards
22
Examples
Earthquakes
Tornadoes
Lightning
Severe wind
Hurricanes
Floods
Wildfires
Extreme temperatures
Landslides or mudslides
Tsunamis
Volcanic eruptions
Winter precipitation
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
Threat/Hazard Type
Technological Hazards
Examples
Dam failure
Power failure
Water failure
Arson
Active shooters
Bomb
Cyber attacks
If there is a functional annex that applies to one of the threat- or hazard-specific annexes, the
threat- or hazard-specific annex will include it by reference.
For example if a during course of action for a fire hazard involves evacuation and there is an
evacuation functional annex, the fire annex would state see evacuation annex in the fire
annexs during course of action section rather than repeat the evacuation courses of action in the
fire annex.
11
23
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
Active shooter situations are unpredictable and evolve quickly. Because of this, individuals must
be prepared to deal with an active shooter situation before law enforcement arrives on the scene.
P r ep a ri n g f o r an A c t i v e S h o o t e r I n c i d en t
Planning
As with any threat or hazard that is included in a house of worships EOP, the planning team will
establish goals, objectives, and courses of action for an active shooter annex. These plans will be
affected by the assessments conducted at the outset of the planning process and updated as
ongoing assessments occur. As courses of action are developed, the planning team should
consider a number of issues, including, but not limited to:
How to evacuate or lockdown personnel and visitors. Personnel involved in such planning
should pay attention to disability-related accessibility concerns when advising on shelter sites
and evacuation routes
How to select effective shelter-in-place locations (optimal locations have thick walls, solid
doors with locks, minimal interior windows, first aid-emergency kits, communication devices
and duress alarms)
How those present in buildings and on the ground will be notified that there is an active
shooter incident underway. This could be done using familiar terms, sounds, lights, and
electronic communications, such as text messages or emails. Include in the courses of action
how to communicate with those who have language barriers or need other accommodations,
such as visual signals to communicate with hearing-impaired individuals. Planners should
make sure this protocol is readily available and understood by those who may be responsible
for sending out or broadcasting an announcement. Rapid notification of a threat can save
lives by keeping people out of harms way.
How everyone will know when buildings and grounds are safe.
The planning team may want to include functions in the active shooter annex that are also
addressed in other functional annexes. For example, evacuation will be different during an active
shooter situation than it would be for a fire.
Additional considerations are included in the Responding to an Active Shooter Incident and
After an Active Shooter Incident sections below.
Sharing Information with First Responders
The planning process is not complete until the house of worships EOP is shared with first
responders. The planning process should include preparing and making available to first
responders an up-to-date and well-documented site assessment as well as any other information
that would assist them. These materials should include building schematics and photos of the
buildings, both inside and out, and include information about door and window locations, as well
as locks and access controls. Emergency responders should also have advance information on
where individuals with disabilities are likely to be sheltering or escaping, generally in physically
accessible locations or along accessible routes. Building strong partnerships with law
enforcement, fire, and EMS includes ensuring they also know the location of available public
24
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
address systems, two-way communications systems, security cameras, and alarm controls.
Equally important is information on access to utility controls, medical supplies, and fire
extinguishers.
Providing detailed information to first responders allows them to rapidly move through buildings
and the grounds during an emergency; to ensure areas are safe; and to tend to those in need. It is
critically important to share this information with law enforcement and other first responders
before an emergency occurs so that they have immediate access to the information. Law
enforcement agencies have secure Web sites where these items already are stored for many
schools, business, public venues, and other locations. All of these can be provided to first
responders and viewed in drills, exercises, and walkthroughs.
Technology and tools with the same information (e.g., a portable USB drive that is compatible
with computers used by first responders) should be maintained in secured locations in the
building where designated staff for the house of worship can immediately provide it to
responding officials, or where first responders can directly access it. The locations of these
materials should be known by and accessible to a number of individuals to ensure ready access in
an emergency. Every house of worship should have more than one individual charged with
meeting first responders to provide them with the site assessment, the EOP, and any other details
about facility safety or concerns. 12
Exercises
Evacuation drills for fires and protective measures for tornadoes may be part of routine activities
for a house of worship, but far fewer facilities practice for active shooter situations. To be
prepared for an active shooter incident, houses of worship should train their staff and
congregation, as appropriate, in what to expect and how to react.
Good planning includes conducting drills that involve first responders. Exercises with these
valuable partners are one of the most effective and efficient ways to ensure that everyone knows
not only their role, but also the role of others at the scene. These exercises should include walks
through buildings to allow law enforcement to provide input on shelter sites as well as
familiarize first responders with the location.
Each person carries a responsibility that is three-fold:
1. Learn the signs of a potentially volatile situation and ways to prevent an incident.
2. Learn the best steps for survival when faced with an active shooter situation.
3. Be prepared to work with law enforcement during the response.
P r ev en t i n g an A ct i v e S h o o t e r I n ci d en t
Warning Signs
No profile exists for an active shooter; however, research indicates there may be signs or
indicators. Leaders and staff in houses of worship counsel congregants on a daily basis as part of
12
25
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
their work. Law enforcement can assist in knowing the signs of a potentially volatile situation
and help houses of worship proactively seek ways to prevent an incident from escalating.
By highlighting common pre-attack behaviors displayed by past offenders, Federal researchers
have sought to enhance the detection and prevention of tragic attacks of violence, including
active shooting incidents. Several agencies within the Federal Government continue to explore
incidents of targeted violence in the effort to identify these potential warning signs. In 2002,
the Federal Bureau of Investigation (FBI) published a monograph on workplace violence,
including problematic behaviors of concern that may telegraph violent ideations and plans. 13
Specialized units in the Federal Government (such as the FBIs Behavioral Analysis Unit)
continue to support behaviorally-based operational assessments of persons of concern in a
variety of settings (e.g. schools, workplaces, houses of worship) who appear to be on a trajectory
toward a catastrophic violent act. A review of current research, threat assessment literature, and
active shooting incidents, combined with the extensive case experience of the Behavioral
Analysis Unit, suggest that there are observable pre-attack behaviors which, if recognized, could
lead to the disruption of a planned attack. 14 While checklists of various warning signs are
often of limited use in isolation, there are some behavioral indicators that should prompt further
exploration and attention from law enforcement and/or house of worship officials. These
behaviors often include:
Contextually inappropriate and recent escalation in target practice and weapons training
Many offenders experienced a significant real or perceived personal loss in the weeks and/or
months leading up to the attack, such as a death, breakup, divorce, or loss of a job
No research has been conducted on individuals solely engaged in active shooting incidents at
houses of worship; however, the behaviors listed above may be useful in identifying some of the
behaviors of individuals of potential concern. 15
13
FBI. 2002. Workplace Violence: Issues in Response. Quantico, VA: FBI. http://www.fbi.gov/statsservices/publications/workplace-violence
14
See Contemporary Threat Management: A Practical Guide for Identifying, Assessing, and Managing Individuals
of Violent Intent (Specialized Training Services, 2003); The Handbook for Campus Threat Assessment and
Management Teams (Applied Risk Management, 2008); Threat Assessment: An Approach to Prevent Targeted
Violence (U.S. Department of Justice, 1995); and Rethinking Risk Assessment: The MacArthur Study of Mental
Disorder and Violence (Oxford University Press, 2001).
15
For information on warning signs of violence at schools, see The Final Report and Findings of the Safe School
Initiative: Implications for the Prevention of School Attacks in the United States (U.S. Secret Service and U.S.
Department of Education, 2004) and Threat Assessment in Schools: A Guide to Managing Threatening Situations
and to Creating Safe School Climates (U.S. Secret Service and U.S. Department of Education, 2002). Additionally,
in 2007 the U.S. Secret Service, FBI, and U.S. Department of Education initiated an examination of attempted and
26
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
committed homicidal acts of violence on American college campuses from 1900 to 2008, Campus Attacks: Targeted
Violence Affecting Institutions of Higher Education (U.S. Secret Service, et al., 2010,
http://www2.ed.gov/admins/lead/safety/campus-attacks.pdf). A second phase of the project focuses exclusively on
grievance-based attacks that occurred from 1985 to 2010.
16
Albrecht, Steve. 2010. Threat Assessment Teams: Workplace and School Violence Prevention. FBI Law
Enforcement Bulletin (February 2010). http://www.fbi.gov/stats-services/publications/law-enforcementbulletin/february-2010/threat-assessment-teams
17
For example, please see http://leg1.state.va.us/cgi-bin/legp504.exe?000+cod+23-9.2C10. Additional information
can be found in Recommended Practices for Virginia Colleges Threat Assessments (Virginia Department of
Criminal Justice Services, 2009,
http://www.threatassessment.vt.edu/resources/tat_info/VArecommended_practices.pdf).
27
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
enforcement intervention, counseling, or other actions, will depend on the specifics of the
situation.
The TAT may wish to seek assistance from law enforcement that can help assess reported threats
or troubling behavior and tap available Federal resources (as part of the TAT process or
separately). The FBIs behavioral experts in its National Center for the Analysis of Violent
Crimes (NCAVC) at Quantico, Virginia are available on a 24 hours per day, seven days per week
basis to join in any threat assessment analysis and develop threat mitigation strategies for persons
of concern. Law enforcement working with a TAT from a house of worship should contact the
local FBI office for this behavioral analysis assistance.
Each FBI field office has a NCAVC representative available to work with the house of worship
TAT and coordinate access to the FBIs Behavioral Analysis Unit, if the congregation wishes.
They focus not on how to respond tactically to an active shooter situation, but rather on how to
prevent one. Early intervention can prevent a situation from escalating by identifying, assessing,
and managing the threat.
Houses of worship should also work with local law enforcement to gain an understanding of the
threats from outside the house of worship community that may affect the facility, so that, in
partnership, appropriate security measures can be established.
Generally, active shooter situations are not motivated by other criminal-related concerns such as
monetary gain or gang affiliation. Often, violence may be prevented by identifying, assessing,
and managing potential threats. Recognizing these pre-attack warning signs and indicators might
help disrupt a potentially tragic event.
R e sp o n d i n g t o an Ac t i ve S h o o t er I n ci d en t
The house of worships EOP should include courses of action that will describe how congregants
and staff can most effectively respond to an active shooter situation to minimize the loss of life,
and teach and train on these practices.
Law enforcement officers may not be present when a shooting begins. Providing information on
how congregants and staff can respond to the incident can help prevent and reduce the loss of
life.
No single response fits all active shooter situations; however, making sure each individual knows
his or her options for response and can react decisively will save valuable time. Depicting
scenarios and considering response options in advance will assist individuals and groups in
quickly selecting their best course of action.
Understandably, this is a sensitive topic. There is no single answer for what to do, but a survival
mindset can increase the odds of surviving. As appropriate for the house of worships
congregation, it may be valuable to schedule a time for an open conversation regarding this
topic. Though some congregants or staff may find the conversation uncomfortable, they may also
find it reassuring to know that as a whole their house of worship is thinking about how best to
deal with this situation.
During an active shooter situation, the natural human reaction, even for those who are highly
trained, is to be startled; feel fear and anxiety; and even experience initial disbelief and denial.
Noise from alarms, gunfire, explosions, and people shouting and screaming should be expected.
Training provides the means to regain composure, recall at least some of what has been learned,
28
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
and commit to action. There are three basic response options: run, hide, or fight. Individuals can
run away from the shooter; seek a secure place where they can hide and/or deny the shooter
access; or incapacitate the shooter in order to survive and protect others from harm.
As the situation develops, it is possible that congregants and staff will need to use more than one
option. During an active shooter situation, these individuals will rarely have all of the
information they need to make a fully informed decision about which option is best. While they
should follow the plan and any instructions given during an incident, they will often have to rely
on their own judgment to decide which option will best protect lives. 18
Respond Immediately
It is common for people confronted with a threat to first deny the possible danger rather than
respond. An investigation by the National Institute of Standards and Technology (2005) into the
collapse of the World Trade Center towers on September 11, 2001 found that people close to the
affected floors waited longer to start evacuating than those on unaffected floors. 19 Similarly,
during the Virginia Tech shooting, individuals on campus responded to the shooting with varying
degrees of urgency. 20 These studies support this delayed response or denial. For example, some
people report hearing firecrackers, when in fact they heard gunfire. Train congregants and staff
to skip denial and to respond immediately.
For example, train congregants to recognize the sounds of danger, act, and forcefully
communicate the danger and necessary action (e.g., Gun! Get out!). In addition, those closest
to a communications system should communicate the danger and necessary action. Repetition in
training and preparedness shortens the time it takes to orient, observe, and act. Upon recognizing
the danger, as soon as it is safe to do so staff or others should alert responders by contacting 911
with as clear and accurate information as possible.
Run
If it is safe to do so, the first course of action that should be taken is to run out of the building
and far away until in a safe location. Congregants and staff should be trained to:
Visualize possible escape routes, including physically accessible routes for individuals with
disabilities
18
As part of its preparedness mission, Ready Houston produces videos, handouts, and trainings to promote
preparedness among residents of the Houston, Texas region. These videos are not recommended for viewing by
minors. All of these items are available free-of-charge and many are available at
http://wwww.readyhoustontx.gov/videos.html.
19
Occupants of both towers delayed initiating their evacuation after WTC 1 was hit. In WTC 1, the median time to
initiate evacuation was three minutes for occupants from the ground floor to floor 76, and five minutes for occupants
near the impact region (floors 77 to 91). Averill, Jason D., et al. 2005. Federal Building and Fire Safety
Investigation of the World Trade Center Disaster: Occupant Behavior, Egress, and Emergency Communications.
Washington, DC: National Institute of Standards and Technology.
http://www.mingerfoundation.org/downloads/mobility/nist%20world%20trade%20center.pdf
20
Virginia Tech Review Panel. 2007. Mass Shootings at Virginia Tech: Report of the Review Panel. Richmond, VA:
Virginia Tech Review Panel. http://www.governor.virginia.gov/tempContent/techPanelReport-docs/FullReport.pdf
29
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
Take others with them, but do not stay behind because others will not go
Hide
If running is not a safe option, hide in as safe a place as possible. Congregants and staff should
be trained to hide in a location where the walls might be thicker and have fewer windows. In
addition:
Remain silent
If possible, use strategies to silently communicate with first responders; for example, in
rooms with exterior windows, make signs to silently signal law enforcement and emergency
responders to indicate the status of the rooms occupants
Hide along the wall closest to the exit but out of the view from the hallway (allowing for an
ambush of the shooter and for possible escape if the shooter enters the room)
Fight
If neither running nor hiding is a safe option, as a last resort, when confronted by the shooter,
adults in immediate danger should consider trying to disrupt or incapacitate the shooter by using
aggressive force and items in their environment, such as fire extinguishers or chairs. In a study of
41 active shooter events that ended before law enforcement arrived, the potential victims stopped
the attacker themselves in 16 instances. In 13 of those cases, they physically subdued the
attacker. 21
While talking to the congregation and staff about confronting a shooter may be daunting and
upsetting for some, they should know that they might be able to successfully take action to save
lives. How each individual chooses to respond if directly confronted by an active shooter is up to
him or her. Each house of worship should determine, as part of its planning process, policies on
the control and presence of weapons, as permitted by law.
21
Blair, J. Pete and M. Hunter Martaindale. 2010. United States Active Shooter Events from 2000 to 2010: Training
and Equipment Implications. San Marcos, TX: Texas State University.
http://alerrt.org/files/research/ActiveShooterEvents.pdf
30
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
A f t e r an A ct i v e S h o o t e r I n c i d en t 23
Once the scene is secured, first responders will work with house of worship staff and victims on
a variety of matters. This will include transporting the injured, interviewing witnesses, and
initiating the investigation.
The house of worships EOP should identify trained personnel who will provide assistance to
victims and their families. This should include establishing an incident response team (including
community partners) that is trained to appropriately assess and triage an active shooter situation
(as well as other emergencies), and provide emergency intervention services and victim
assistance beginning immediately after the incident and throughout the recovery efforts. This
team will integrate with local, state, and Federal resources when an emergency occurs.
Within an ongoing and/or evolving emergency, where the immediate reunification of loved ones
is not possible, providing family members with timely, accurate, and relevant information is
paramount. Having family members wait for long periods for information about their loved ones
not only adds to their stress and frustration, but can also escalate the emotions of the entire
group. When families are reunited, it is critical that there are child release processes in place
where minors might be involved (e.g., childcare, religious classes) to assure that no child is
released to an unauthorized person, even if that person well meaning.
Essential steps to help establish trust and provide family members with a sense of control can be
accomplished by:
Identifying a safe location separate from distractions and/or media and the general public, but
close enough to allow family members to feel connected in proximity to their children/loved
ones
Being prepared to speak with family members about what to expect when reunified with their
child/loved ones
22
23
Ibid.
Please see the Functional Annexes section of this guide for additional recovery annex considerations.
31
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
Ensuring effective communication with those that have language barriers or need other
accommodations, such as sign language interpreters for the hearing impaired.
When reunification is not possible because an individual is missing, injured, or killed, how and
when this information is provided to families is critical. Before an emergency, the planning team
should determine how, when, and by whom loved ones will be informed if their loved one is
missing or has been injured or killed. Law enforcement typically takes the lead on death
notifications, but all parties should understand their roles and responsibilities. This will ensure
that families and loved ones receive accurate and timely information in a compassionate way.
While law enforcement and medical examiner procedures must be followed, families should
receive accurate information as soon as possible. Having trained personnel to talk to loved ones
about death and injury on hand or immediately available can ensure the notification is provided
to family members with clarity and compassion. Counselors should be on hand to immediately
assist family members.
The house of worships EOP should include identified points of contact to work with and support
family members (e.g., Federal victim assistance personnel, counselors, police officers). These
points of contact should be connected to families as early in the process as possible, including
while an individual is still missing but before any victims have been positively identified. After
an incident, it is critical to confirm that each family is getting the support it needs, including
long-term support.
The house of worships EOP should consider printed and age-appropriate resources to help
families recognize and seek help in regard to a variety of reactions that they or their loved ones
can experience during and after an emergency. It is critical that families and loved ones are
supported as they both grieve their loss and support their surviving family members.
The house of worships EOP also should explicitly address how affected families will be
supported if they prefer not to engage with the media. This includes strategies for keeping the
media separate from families while the emergency is ongoing and support for families that may
experience unwanted media attention at their homes.
32
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
Appendix A: References
Albrecht, Steve. 2010. Threat Assessment Teams: Workplace and School Violence Prevention.
FBI Law Enforcement Bulletin (February 2010). http://www.fbi.gov/statsservices/publications/law-enforcement-bulletin/february-2010/threat-assessment-teams
Blair, J. Pete and M. Hunter Martaindale. 2010. United States Active Shooter Events from 2000
to 2010: Training and Equipment Implications. San Marcos, TX: Texas State University.
http://alerrt.org/files/research/ActiveShooterEvents.pdf
Calhoun, Frederick and Stephen Weston. 2003. Contemporary Threat Management: A Practical
Guide for Identifying, Assessing, and Managing Individuals of Violent Intent. San Diego, CA:
Specialized Training Services.
Cornell, Dewey. 2009. Recommended Practices for Virginia College Threat Assessment.
Richmond, VA: Virginia Department of Criminal Justice Services.
http://www.threatassessment.vt.edu/resources/tat_info/VArecommended_practices.pdf
Deisinger, Gene, et al. 2008. The Handbook for Campus Threat Assessment and Management
Teams. Stoneham, MA: Applied Risk Management.
Federal Bureau of Investigation (FBI). 2002. Workplace Violence: Issues in Response. Quantico,
VA: FBI. http://www.fbi.gov/stats-services/publications/workplace-violence
Federal Emergency Management Agency (FEMA). 2011. A Whole Community Approach to
Emergency Management: Principles, Themes, and Pathways for Action. Washington, DC:
FEMA. http://www.fema.gov/library/viewRecord.do?id=4941
2010. Developing and Maintaining Emergency Operations Plans (Comprehensive
Preparedness Guide [CPG] 101), Version 2.0. Washington, DC: FEMA.
http://www.fema.gov/plan
Fein, Robert, et al. 1995. Threat Assessment: An Approach to Prevent Targeted Violence.
Washington, DC: U.S. Department of Justice. http://www.secretservice.gov/ntac/ntac_threat.pdf
Monahan, John, et al. 2001. Rethinking Risk Assessment: The MacArthur Study of Mental
Disorder and Violence. New York, NY: Oxford University Press.
U.S. Department of Education, et al. 2013. Guide for Developing High-quality School
Emergency Operations Plans. Washington, DC: U.S. Department of Education.
http://rems.ed.gov
U.S. Department of Homeland Security (DHS). 2012. Threat and Hazard Identification and Risk
Assessment Guide (CPG 201). Washington, DC: DHS. http://www.fema.gov/plan
2012. Homeland Security Advisory Councils Faith-based Security and Communications
Advisory Committee Final Report. Washington, DC: DHS.
http://www.dhs.gov/xlibrary/assets/hsac/hsac-faith-based-security-and-communicationsadvisory-committee-final-report-may-2012.pdf
2011. National Preparedness Goal. Washington, DC: DHS.
http://www.fema.gov/national-preparedness-goal
A-1
Guide for Developing High-Quality Emergency Operations Plans for Houses of Worship
A-2