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    Part Two: Preparation

    Planning for worst-case scenarios.

    8.26.2024
      A black-and-white image of a school bus is in the foreground, with a father and daughter getting out of a car and walking into the school pictured in the bottom left of the image. Two yellow-and-blue circles are superimposed on the image; one is at the bottom left, highlighting the father/daughter, and one is on the top right, highlighting the sign on the bus that reads

      Executive Summary

      The preparation section of the NEA School Gun Violence Prevention and Response Guide includes guidance on planning for gun-related scenarios and practicing, evaluating, and updating gun violence-related plans. It offers information on security upgrades to prevent shooters from accessing education settings like school buildings, classrooms, and campus facilities while also ensuring conditions remain welcoming and not prisonlike. This section also examines the efficacy and potential harm of active shooter drills and policing. For broader context and related recommendations, consult the other sections of this guide: Introduction, Part One—Prevention, Part Three—Response, and Part Four—Recovery.

      Key Takeaways

      1. Preparing for incidents of gun violence requires consideration of physical security, emergency operations plans, association protocols, development of media-related and other communications strategies, and the relationships that facilitate effective work on gun violence.
      2. Relentless and frightening school gun violence and media coverage of the incidents have created an earnest desire from school communities for protection, but some solutions are antithetical to fostering welcoming and inclusive school environments.
      3. Learn which solutions are preferred to ensure safe and welcoming school communities that have positive relationships with law enforcement and school staff who are well-prepared for emergencies.

      For state affiliate leaders and staff and for local leaders, staff, and worksite leaders—like building representatives and faculty liaisons—the preparation section provides both association-focused and education- and community-related content, including advocacy opportunities and strategies. For example, an association should not be responsible for developing a school district, college, or university emergency operations plan, but association leaders, staff, and worksite leaders must know the details of those plans, where the association and its members fit in, how to improve plans, and ways to ensure appropriate association engagement when Pre-K–12 schools and institutions of higher education respond to incidents of gun violence. For state and local associations, this section also includes information on how to develop protocols and relationships to facilitate responses to gun-related incidents.

      Preparation Checklists for State and Local Affiliates

      These checklists can be downloaded and used to help guide state and local affiliates as they develop their own preparation plans.

      State Summary Action Checklist: PreparationDownload
      Local Summary Action Checklist: PreparationDownload

      Evidence-Based Security Measures

      The following evidence-supported strategies help protect the safety of students and educators in education settings.

      • Secure Entryways and Locks

        Controlling access is the most effective physical security measure to keep shooters out of buildings. Strategies for preventing unauthorized access to education settings include installing security fencing, establishing single access points, and ensuring all exit-point doors are self-closing and lock upon closing.

      • Examine School Policing

        Partnerships among law enforcement groups, security personnel, and Pre-K–12 schools and institutions of higher education can play vital roles in safety. The keys to these partnerships are training, clear roles, and accountability. If education settings do choose to have security personnel intervene in violent and dangerous situations, those personnel must be carefully selected and trained in trauma-informed practices and de-escalation techniques.

      • Rethink Active Shooter Drills

        Training for educators on how to respond to active shooter incidents is important; however, there is no compelling evidence that including students in such drills has any value in preventing shootings or protecting the school community. If a workplace insists on including students, they must adopt strategies to mitigate the harm of such drills.

      • Understand and Engage with Emergency Operations Plans (EOPs)

        Developed by Pre-K–12 schools and institutions of higher education, EOPs provide clear and uniform guidance and procedures for emergency planning and response. EOPs are important to the association because they include information on lockdown procedures, active shooter drills, and other policies of concern. In addition, implementing and practicing the processes in the EOP can save lives. Understanding the EOP process helps leaders and staff communicate with members about what the district and/or the school is doing to prepare and get a clearer sense of where their influence can make a difference and what roles the association can play. Components of an EOP include a planning team; concept of operations (an overall plan); assigned responsibilities; control and coordination efforts; training and exercises; development and maintenance; legal basis for operations; and functional annexes, including lockdowns; evacuation; accounting for all students, educators, and visitors; communications; family reunification; public, medical, and mental health; and recovery.

      Long-Term Media and Communications Strategy

      To prepare for a gun violence incident, it is crucial to develop emergency tools in advance for swift deployment. Responsible parties should be ready to issue media statements, press releases, and internal messages to members, families, and other members of the community. The association should also have contingency plans for alternate systems of communication in case of cell tower outages or power failures and for those students and families without regular access to computers.

      It is important for local and state association leaders to understand how and with whom they will interact after a gun incident. Identifying the right association leaders and the correct administration officials before an incident saves valuable time and can impact the safety of students and educators. It is also an opportunity for leaders to build relationships with relevant community organizations, including crisis response and racial and social justice organizations. There are often parent groups and other organizations concerned about gun violence that would welcome partnerships with educators.

      Preparing for Incidents of Gun Violence

      Preparing for incidents of gun violence requires consideration of physical security, emergency operations plans, association protocols, development of media-related and other communications strategies, and the relationships and partnerships that facilitate effective work on gun violence. This component of the guide’s material on preparing for incidents of gun violence addresses each of these factors. 

      Employ Evidence-Based Approaches to Physical Security

      Physical security is a critical intervention to keep guns out of education settings. Technology-based safety measures have evolved over the last decade and are increasingly common.1National Center for Education Statistics. (2021). 1999-2000, 2003-2004, 2005-2006, 2007-2008, 2009-2010, 2015-2016, 2017-2018, 2019-2020 School Survey on Crime and Safety, 2000, 2004, 2006, 2008, 2010, 2016, 2018, and 2020; and Fast Survey System, “School Safety and Discipline: 2013-2014,” FRSS 106, 2014. Retrieved from Institute of Education Sciences: https://nces.ed.gov/programs/digest/d21/tables/dt21_233.50.asp; Zhang, A., Musu-Gillette, L., & Oudekerk, B. A. (2016). Indicators of School Crime and Safety: 2015. Washington, DC: National Center for Education Statistics, U.S. Department of Education, and Bureau of Justice Statistics, Office of Justice Programs, U.S. Department of Justice. Such measures include bulletproof windows, metal detectors, artificial intelligence for weapons detection, security cameras, and facial recognition technology. Security equipment can have a negative impact on students, and the effectiveness of some of these approaches has yet to be well-researched.2Hankin, A., Hertz, M., & Simon, T. (2011). Impacts of Metal Detector Use in Schools: Insights from 15 Years of Research. Journal of School Health, 81(2), 100-106. doi:https://doi.org/10.1111/j.1746-1561.2010.00566.x; Mayer, M. J., & Leone, P. E. (1999, August). A Structural Analysis of School Violence and Disruption: Implications for Creating Safer Schools. Education and Treatment of Children, 22(3), 333-356. Retrieved from https://www.jstor.org/stable/42899578. 

      NEA recognizes that school and college facilities and grounds should reflect welcoming, inclusive, and supportive environments for all students, parents, families, and communities and opposes the “[c]onstruction of prison-like school environments that employ metal detectors, random searches, and other building and design elements that diminish a thriving and nurturing school climate.”3NEA (2022). National Education Association Policy Statements 2022-2023: Safe, Just, and Equitable Schools. Retrieved May 20, 2024, from https://www.nea.org/sites/default/files/2024-01/nea-policy-on-safe-just-and-equitable-schools-2022.pdf According to the American Psychological Association, implementing prison-like security measures in places like education settings and hospitals fosters a sense of threat, not safety. Additionally, these hardening measures, which are designed to prevent violence, often fail to address the most prevalent form of school-based violence and bullying.4Hulac, D. M., & et al. (2024). Statement by Division 16 of the American Psychological Association: Safety of Schools (SOS) Task Force. School Psychology, 39(1), 4-7. doi:https://psycnet.apa.org/doi/10.1037/spq0000605. NEA recognizes the significance of physical school facilities as a reflection of what educators want our schools to be—welcoming, inclusive, and supportive environments for our students, parents/guardians, and communities.

      For these and other reasons, NEA opposes prison-like school environments that employ metal detectors, random searches, and other building and design elements that diminish a thriving and nurturing school climate.

      Here are examples of common school security measures:

      • Entryways and Locks

        Controlling access is a highly effective physical security measure to keep shooters out of buildings. Most experts, including members of the Marjory Stoneman Douglas High School Public Safety Commission and the Sandy Hook Advisory Commission, agree that the ability to control access must be a component of every school security plan.1Marjory Stoneman Douglas High School Public Safety Commission. (2019). Initial Report Submitted to the Governor, Speaker of the House of Representatives and Senate President. Retrieved from https://www.fdle.state.fl.us/MSDHS/CommissionReport.pdf; Sandy Hook Advisory Commission. (2015). Final Report of the Sandy Hook Advisory Commission: Presented to Governor Dannel P. Malloy, State of Connecticut. Retrieved from https://portal.ct.gov/-/media/Malloy-Archive/Sandy-Hook-Advisory-Commission/SHAC_Final_Report_3-6-2015.pdf?sc_lang=en&hash=BDF55EC4ACE382E87941870AD9BF2A34. Strategies for preventing unauthorized access to school buildings and campuses include installing security fencing, establishing single access points, and ensuring that all exit-point doors are self-closing and lock upon closing. State legislatures should provide funding for these basic access control measures. Internal door locks can serve as a secondary measure, allowing educators to lock doors from inside classrooms, buildings, and facilities. This protects students and provides law enforcement groups time to address threats. During mass shooting incidents at Sandy Hook Elementary School and Marjory Stoneman Douglas High School, lack of dual-locking or inside-locking classroom doors exposed educators and students to danger.

      • Alarms/Alert Systems

        Alarm and alert systems warn students and educators when there is an active shooter on school grounds or on a college campus. Such systems must be checked and updated regularly and the alert should differ from everyday announcements. The mass school shooting at Robb Elementary School in Texas brought such issues to light: The system’s use for non-gun-violence-related announcements diluted its effectiveness, and poor internet connectivity hampered its reach.1Texas House of Representatives Investigative Committee on the Robb Elementary Shooting. (2022). A Report to the House of Representatives 88th Texas Legislature. Retrieved December 28, 2023, from https://house.texas.gov/_media/pdf/committees/reports/87interim/Robb-Elementary-Investigative-Committee-Report.pdf. 

      • Bulletproofing

        Bulletproof glass can be effective but is very costly. Strategically placed tempered glass or ballistic film, which is a thin layer of polyurethane that can be applied to existing windows, may be a more economical way to slow down an intruder. This could allow more time for educators to activate safety protocols and for response teams to arrive.13M. (2024). 3M™ Safety and Security Window Film for Schools. Retrieved January 9, 2024, from 3M: https://www.3m.com/3M/en_US/building-window-solutions-us/resources/window-film-for-schools/.

      • Metal Detectors

        NEA opposes the use of metal detectors in education settings. A research review of metal detector efficacy found mixed results, showing metal detectors could potentially reduce weapon carrying in schools (though this assessment did not specifically report on firearm carrying) but could also create a less trusting school environment. Visible security measures, such as metal detectors, also raise the possibility of ‘‘attack location drift,’’ which means motivated student shooters who are aware of metal detectors may alter their locations of attack to places like school buses, parking lots, or athletic events.1Hankin, A., Hertz, M., & Simon, T. (2011). Impacts of Metal Detector Use in Schools: Insights from 15 Years of Research. Journal of School Health, 81(2), 100-106. doi:https://doi.org/10.1111/j.1746-1561.2010.00566.x; Price, J. H., & Khubchandani, J. (2019, September). School Firearm Violence Prevention Practices and Policies: Functional or Folly? Violence and Gender, 6(3). doi:https://doi.org/10.1089/vio.2018.0044.

      • Security Cameras and Facial Recognition

        The effects of security cameras on behavior in schools have yet to be extensively studied. While some research has found that conspicuous security cameras in other types of settings may reduce unruly public behavior and increase pro-social or helping behavior,1Borum, R., & et al. (2010, January 1). What Can Be Done About School Shootings?: A Review of the Evidence. Educational Researcher, 39(1), 27-37. doi:https://doi.org/10.3102/0013189X09357620. it should be noted that perpetrators of school shootings may not care whether they are apprehended and thus may be undeterred by cameras.2The Governor’s Columbine Review Commission. (2001, May). The Report of Governor Bill Evans’ Columbine Review Commission. Retrieved 01 14, 2024, from https://cdpsdocs.state.co.us/safeschools/Resources/GovernorCommissionReportColumbine2001.pdf. A major concern about facial recognition software, in particular, is that it can be inaccurate and may disproportionately affect students of color, a problem exacerbated by the overreliance on intense surveillance measures in education settings that serve primarily students of color.3Nance, J. P. (2017). Student Surveillance, Racial Inequalities, and Implicit Racial Bias. Emory Law Journal 765. Retrieved from https://ssrn.com/abstract=2830885. Because facial recognition technology can be inaccurate, it can lead to students being punished for offenses they did not commit.4Coyle, S., & Curr III, J. (2018, June 20). New York School District Seeks Facial Recognition Cameras for Public Schools. Retrieved from ACLU.

      Examine School Policing

      School resource officers and school security personnel should be properly trained to work with mental health professionals and other educators to apply trauma-informed practices, de-escalation measures, and crisis intervention practices. They should also receive implicit bias training, with the broad goal of fostering a safe, welcoming, and inclusive school community. 

      Policing in education settings must include continual reviews of discipline practices, data collection processes, and audits and transparency of budgetary allocation for school resource officers, private security, and other law enforcement in schools. Accountability measures for school resource officers and law enforcement engaging with children and students must be in place and reinforced. 

      NEA opposes the use of law enforcement personnel or private security in the discipline process and opposes hiring private security to perform the roles of school resource officers or sworn law enforcement officers. The Association believes that arming education employees as a preventative measure against armed intruders creates an unsafe environment, placing students and school personnel at greater risk. For additional information, see “Do Not Arm Teachers or Other Educators,” in Part 1 of this guide.

      Working with Security Personnel to Create Positive School Climates

      Unarmed security personnel can play a crucial role in establishing positive school climates and effective, student-supported school policies. Security personnel trained in trauma-informed and de-escalation practices can resolve conflicts before they turn violent. These individuals often live in the same communities as students and can serve as community liaisons, role models, and mentors for students, building long-term trusting relationships with families and students.

      “School security personnel are often the first adults [that] students see when they walk into the school building. Reinforcing the significant contribution of security professionals to positive school climates and integrating them into school security planning and response is one way we can move toward stopping the trend of school gun violence in this country—and make sure we never have to open the NEA School Gun Violence Prevention and Response Guide.”1Frazier, J. (2024). President, Union County Education Association, New Jersey. (J. Solomon, Interviewer).

      Relentless and frightening school gun violence and media coverage of the incidents have created an earnest desire from school communities for protection. However, the practice of policing in schools has not been shown to reduce school shooting deaths. One study examined 179 shootings on school grounds from 1999 to 2018 and found no evidence that school resource officers in schools reduced deaths or injuries from school shooting incidents.5Livingston, M. D., & et al. (2019). A Descriptive Analysis of School and School Shooter Characteristics and the Severity of School Shootings in the United States, 1999-2018. Journal of Adolescent Health, 64, 797-799. Retrieved February 18, 2024, from https://www.jahonline.org/action/showPdf?pii=S1054-139X%2818%2930832-2. Similarly, another study found that while school resource officers reduced some forms of violence in schools, they did not prevent gun violence-related incidents and concurrently intensified suspensions, expulsions, police referrals, and arrests.6Sorensen, L. C., & et al. (2023, July 4). The thin blue line in schools: New evidence on school-based policing across the U.S. Journal of Policy Analysis and Management, 42(4), 941-970. doi:https://doi.org/10.1002/pam.22498. An analysis examining 133 school shootings from 1980 to 2019 found that having an armed officer at the school did not act as a deterrent for school shooters; instead, it suggested that an armed officer may serve as incentive, with their presence linked to increased casualties after a perpetrator’s use of assault rifles or submachine guns.7Peterson, J., & et al. (2021). Community of Intent to Do Harm Preceding Mass Public Shootings in the United States, 1966-2019. JAMA Network Open, 4(11). doi:doi:10.1001/jamanetworkopen.2021.33073.

      A national report using U.S. Department of Education data (2015–2016) found that having police in schools was associated with 3.5 times as many arrests compared to those schools without police. The report, which identified a disproportionate impact on students of color, found that funding decisions prioritized policing over student mental health in schools; it also identified more severe consequences in student criminalization and lower academic outcomes for students of color. Black students were three times more likely than White students to be arrested, and Indigenous students were twice as likely as White students to be arrested. Latino/a/x students were also more likely to be arrested than their White counterparts.8Whitaker, A., & et al. (2019, March). Cops and No Counselors: How the Lack of Mental Health Staff Is Harming Students. ACLU. Retrieved February 18, 2024, from ACLU: https://www.aclu.org/publications/cops-and-no-counselors. Research has also found that LGBTQ+ and gender-nonconforming students have a higher likelihood of being stopped by police, suspended, expelled, or arrested, and they often report feeling hostility from law enforcement groups in schools.9Lambda Legal. (2015). Homepage. Retrieved from Protected and Served?: https://www.protectedandserved.org/; Himmelstein, E. W., & Bruckner, H. (2011, January 1). Criminal Justice and School Sanctions Against Nonheterosexual Youth: A National Longitudinal Study. Pediatrics, 127(1), 49-57. doi:https://doi.org/10.1542/peds.2009-2306.

      If created thoughtfully and carefully, partnerships among law enforcement groups, security personnel, and schools can play vital roles in school safety. Providing appropriate training, establishing clear roles, and strengthening accountability practices are key to the success of these partnerships.

      In districts that choose or are required to have a security presence, the security professionals should have an exclusively protective role and be integrated within the school community, be answerable directly to school leaders, and receive training as peace officers, with an extensive focus on trauma-informed, de-escalation, and minimum-use-of-force techniques.

      Rethink Active Shooter Drills

      Plans, such as emergency operations plans (EOPs), that include active shooter drills must minimize harms from such drills. Although less than 1 percent of gun deaths per year occur on school grounds,10Everytown for Gun Safety Support Fund. (2024-b). Gunfire on School Grounds in the United States. Retrieved May 24, 2024, from Everytown for Gun Safety Support Fund: https://everytownresearch.org/maps/gunfire-on-school-grounds/. drills to prepare students and educators have become commonplace. However, there is no strong conclusive evidence affirming the value of these drills for preventing school shootings or protecting the school community when shootings do occur. There is good reason to think they are ineffective, in part, because the preparedness procedures are being shared with the very individuals most likely to perpetrate a school shooting: former and current students.

      NEA supports training for educators on how to respond to active shooter incidents; however, the Association does not recommend these drills for students. Educators should carefully consider the impacts before conducting live drills that involve students. Everytown partnered with Georgia Institute of Technology’s Social Dynamics and Wellbeing Lab to study the immediate and long-term impacts of active shooter drills on the health and well-being of students, educators, and parents. The research showed that students and educators experienced distress and, sometimes, lasting trauma as a result of active shooter drills.11ElSherief, M. S. (2021). Impacts of school shooter drills on the psychological well-being of American K-12 school communities: a social media study. Humanit Soc Sci Commun 8. Retrieved from https://doi.org/10.1057/s41599-021-00993-6. Putting a person in a scenario with the perceived threat of gun violence may activate a post-traumatic stress response, such as negative and distressing changes in thoughts, emotions, and behaviors for those who have a lived experience of gun violence. 

      If students must participate in active shooter drills, here are some helpful tips and resources to mitigate the harm that such drills can cause.

      • Before facilitating an active shooter drill:
        • Brief educators on how to identify common signs of trauma before the drill; students who have experienced previous traumas, such as domestic violence or prior exposure to gun violence, may be particularly vulnerable to intense feelings and reactions. 
        • Provide advanced notice of planned drills to parents and educators and allow parents to opt their children out of the drill; plan alternative programming to accommodate students who choose not to participate.
        • Lead an age-appropriate, trauma-informed conversation with students prior to the drill in which a school psychologist, counselor, or social worker facilitates the conversation, detailing what will happen during the drill and providing coping skills to use if they become dysregulated.

      • During an active shooter drill:
        • Avoid simulating actual violence or injuries because research shows that drills mimicking real events are especially traumatic for students, parents, and educators.1Everytown for Gun Safety Support Fund. (2024-l). Retrieved April 23, 2024, from The Impact of Active Shooter Drills in Schools: The Impact of Active Shooter Drills in Schools. 
        • Remind students and educators through an announcement at the beginning of the drill that there is not an active shooter threat; surprise drills are distressing and may desensitize students to the threat of violence, which can prompt them to under-respond in the event of an actual active shooter situation.
        • Supportively remove students who are showing symptoms of trauma during the drill and give them the opportunity to speak with on-site school mental health professionals or other trained educators to help manage traumatic memories or strong emotions. 

      • After facilitating an active shooter drill:
        • Allow all students and educators to connect with on-site school mental health professionals since it is common for students and educators to have heightened anxiety or other emotions after an active shooter drill.
        • Evaluate results, successes, and learning opportunities to track data over time and create a plan to keep students safe.

      For more information, see the National Child Traumatic Stress Network’s comprehensive guide on how to create active shooter drills.12National Child Traumatic Stress Network. (n.d.). National Child Traumatic Stress Network. Retrieved May 9, 2024, from https://www.nctsn.org/sites/default/files/resources/fact-sheet/creating_school_active_shooter_intruder_drills.pdf. The American Academy of Pediatrics also frames concerns and considerations related to such drills.13American Academy of Pediatrics. (2020, September). Participation of Children and Adolescents in Live Crisis Drills and Exercises. Pediatrics, 146(3). doi:https://doi.org/10.1542/peds.2020-015503. 

      Review and Practice Emergency Operations Plans

      Emergency operations plans (EOPs) provide clear and uniform guidance and procedures for emergency planning and response. In the 2021–2022 school year, 96 percent of public K–12 schools had an active shooter plan.14Burr, R., Kemp, J., & Wang, K. (2024). Crime, Violence, Discipline, and Safety in U.S. Public Schools: Findings from the School Survey on Crime and Safety: 2021-22. U.S. Department of Education. Washington, DC: National Center for Education Statistics. Retrieved February 19, 2024, from https://nces.ed.gov/pubs2024/2024043.pdf. Ideally, the school team developing and revising an EOP collaborates with school and community stakeholders, including association leadership and members, other unions, parents and guardians, and, when age-appropriate, students.

      A variety of models can be used to create EOPs, and state departments of education or other agencies as well as local jurisdictions are likely to have requirements and guidance of their own. The purpose of this NEA guide is not to have state or local associations create EOPs but instead to help association leaders, staff, and worksite leaders understand, assess, improve, and engage with them. It is important to help all stakeholders understand how EOPs can fit into their own planning for gun violence incidents.

      Given the variation in state and local EOP-related requirements and guidance, the NEA guide uses two models from the U.S. Department of Education: one for K–12 schools and one for institutions of higher education.15U.S. Department of Education, et al. (2013). Guide for Developing High-Quality School Emergency Operations Plans. Washington, DC. Retrieved from https://rems.ed.gov/docs/School_Guide_508C.pdf; U.S. Department of Education, et al. (2013). Guide for Developing High-Quality Emergency Operations Plans for Institutions of Higher Education. Washington, DC. Retrieved from https://rems.ed.gov/docs/IHE_Guide_508C.pdf.

      A wide range of education stakeholders—and NEA members—have crucial insights, understanding, and perspective that will enhance the planning and assessment processes and outcomes. Districts and higher education institutions should provide language guidance and resources and communication-related support to integrate member input. For example, the U.S. Department of Education notes that continuity of services in the event of an emergency implicates essential functions like business services, communications, computer and systems support, facilities maintenance, safety and security, and continuity of teaching and learning.16U.S. Department of Education, et al. (2013). Guide for Developing High-Quality School Emergency Operations Plans. Washington, DC. Retrieved from https://rems.ed.gov/docs/School_Guide_508C.pdf; U.S. Department of Education, et al. (2013). Guide for Developing High-Quality Emergency Operations Plans for Institutions of Higher Education. Washington, DC. Retrieved from https://rems.ed.gov/docs/IHE_Guide_508C.pdf. These are positions often held by NEA members, who are well-placed to draw on their daily work to identify and assess hazards and needed responses. 

      EOP language on gun violence must also explicitly address the needs of students and educators with disabilities. Sixty-seven percent of students with an Individualized Education Program (IEP) spend more than 80 percent of their time in the general education classroom.17National Center for Education Statistics. (2023). Students With Disabilities. Condition of Education. U.S. Department of Education, Institute of Education Sciences. Retrieved from https://nces.ed.gov/programs/coe/indicator/cgg. As a result, general educators must be aware of necessary IEP supports for students with disabilities in case of emergencies, including incidents of gun violence. Educators who have worked with students with disabilities can assist with understanding the breadth of necessary EOP responses, including for people with post-traumatic stress; individuals with non-apparent disabilities; students and educators with autism; and students and educators who are hearing impaired, have low vision, or have developmental or mobility disabilities or other conditions that may warrant an individualized response.

      The Importance of School Emergency Operation Plans to the Association

      Implementing and practicing the processes detailed in an EOP can save lives. These plans provide guidance on:

      • A range of possible hazards and emergencies;
      • Lockdown procedures, active shooter drills, and other policies of concern; and
      • The roles and responsibilities of school administrators during an emergency, which provides transparency and a clearer sense of how the association may fit in.

      By understanding the content and processes included in EOPs, association leaders and staff can more effectively communicate with members about what the district and/or school is doing to prepare for a gun violence incident. Leaders and staff can also rely on that understanding to develop and implement plans for engaging with administrators on EOPs, including members in EOP processes and committees, and educating members about effective responses to gun violence incidents. 

      The EOP Process

      In both K–12 and higher education contexts, the U.S. Department of Education approaches EOPs with a six-step process, recommending each step be carried out by the planning team. The department noted, “The common thread found in successful operations is that participating organizations have understood and accepted their roles.”18U.S. Department of Education, et al. (2013). Guide for Developing High-Quality School Emergency Operations Plans. Washington, DC. Retrieved from https://rems.ed.gov/docs/School_Guide_508C.pdf; U.S. Department of Education, et al. (2013). Guide for Developing High-Quality Emergency Operations Plans for Institutions of Higher Education. Washington, DC. Retrieved from https://rems.ed.gov/docs/IHE_Guide_508C.pdf.

      Figure 1. U.S. Department of Education, Office of Elementary and Secondary Education, Office of Safe and Healthy Students, Guide for Developing High-Quality School Emergency Operations Plans, Washington, DC, 2013, p. 5.

      • In reviewing the key components of EOPs, consider how the following association-related questions may apply to each component:
        • What association leadership and member expertise could be helpful on the team or committee? 
        • Who do you know on an existing team or committee who can help expand participation to include association leaders and members? 
        • What relationships and partnerships do you have that could bring community voices into the process?
        • How well do EOPs reflect the diverse and intersectional perspectives and experiences of Native people and people of color, LGBTQ+ people, and people from all economic backgrounds and abilities?
        • How might association advocacy improve these EOP components?
        • What formal role do association leaders and members play in this process?
        • What other documents, including collective bargaining agreements and school board policies, exist with content relevant to EOPs?
        • How might the association address EOP-related concerns through collective bargaining and administrative policy?
        • What existing association and labor-management committees exist that do or can take on EOP-related issues that address gun violence, including health and safety committees, violence committees, and school health committees?

      Components of an EOP

      • Planning Team

        The team should consist of representatives from across the Pre-K–12 school or higher education institution.

      • Concept of Operations

        This refers to the overall plan of how the school will protect students, faculty, and visitors in the event of a gun violence incident. Examples include who has the right to activate the plan. This section of an EOP may also address how association leaders are notified when the EOP is activated. 

      • Assignments of Responsibility

        Each plan should include an overview of broad roles and responsibilities of school administrators, association members, families and guardians, community organizations, and first responders. These responsibilities should be articulated clearly, and association leadership should ensure that members are notified and involved in defining their roles.

      • Control and Coordination Efforts

        This is the relationship between the school or district EOP and the broader community’s emergency management system, with consideration for who has control of the equipment, resources, and supplies needed to support the school. 

      • Training and Exercises

        The plan should include training objectives, frequency, and types of preparation drills related to a gun violence incident. The association should check relevant collective bargaining or policy language about when and how frequently such training and exercises will be held. 

      • Development and Maintenance

        The plan should include the process for developing and revising the plan. 

      • Legal Basis for Operations

        This refers to the legal basis for emergency operations and activities. 

      • Functional Annexes

        Functional annexes refer to several specific operational areas, including lockdowns; evacuations; shelter-in-place; accounting for all individuals; communications; family reunification; public, medical, and mental health; security; and recovery. The following components are essential to the emotional and physical well-being of members, students, and families:

        • Lockdown: This refers to securing school buildings and grounds during incidents that pose an immediate threat of gun violence to ensure that all educators, students, and visitors are secured in rooms away from immediate danger. 
        • Evacuation: This refers to vacating school buildings and grounds following an incident of gun violence. This section of the EOP should include how to evacuate people with disabilities and others with access and functional needs, such as language and medical needs. In addition, the planned location to reassemble students and educators should be addressed. In higher education institutions with multiple buildings, it is important to identify multiple areas of evacuation. 
        • Sheltering in Place: This takes place when students, employees, and visitors are required to remain indoors for an extended period due to a threat of gun violence. 
        • Accounting for All Students, Educators, and Visitors: This must take place to determine the whereabouts and well-being of students, staff, and visitors and to identify those who may be missing. This should include developing a plan to determine who is in attendance in the evacuation area and what to do when a student, educator, or visitor cannot be located.
        • Communications: This guide includes recommendations for communicating with students, educators, families, and the broader community before, during, and after a gun violence incident.
        • Family Reunification: It may be necessary for students, educators, and visitors to reconnect with families to ensure that every student is released to an authorized adult and that students in Pre-K–12 schools do not leave on their own. College-age students can be released on their own; however, emotional support for every individual who has experienced the trauma of a gun violence incident is important.
        • Public, Medical, and Mental Health: This refers to the actions taken to address emergency medical and mental health issues in coordination with appropriate emergency medical health services and other relevant groups. An example of what is included in this section of the EOP is how the school will secure enough mental health counselors to support the needs of students and educators.
        • Security and Capacity: This includes actions taken on a routine, ongoing basis to secure the school from threats originating both inside and outside the school, ensuring that the school is physically secure. 
        • Recovery: This refers to how to recover in the aftermath of a gun violence incident. The recovery section of this guide covers this topic in-depth.

      Higher Education-Specific Emergency Procedures

      In many cases, advice for higher education-related emergency response is similar to guidance for Pre-K–12 schools. However, here are key differences:

      • Evacuation: This component of EOPs should include how to safely move students, educators, and visitors from unsafe areas to designated assembly areas, such as classrooms, student housing facilities, campus grounds, dining halls, and stadiums. Evacuating individuals from higher education institutions needs special attention because of the various locations across a greater area.
      • Lockdown: Special consideration should be given to the variety of locations that could be affected at different points in the day. In higher education settings, there may be variations of a lockdown; for example, one variation may be when outside doors are locked, and visitors closely monitored, but other activities continue as normal.
      • Accounting for All Students, Educators, and Visitors: This section of the EOP includes those individuals assigned to the various assembly areas. The association should ensure that all members are notified and trained if they are assigned to a gun violence incident assembly area. In addition, methods for determining the whereabouts of students, educators, and visitors need to be addressed in this section.
      • Communications: This refers to the clear, step-by-step, written instructions for internal and external stakeholders. Special consideration should be given to ensure effective communications to the broader community, including student activities or events not sponsored by the higher education institution but occurring on campus grounds. Communications plans should include preparation for communication in the languages and formats appropriate for the student body and their families. Keep in mind that communicating with the family members of adult students is different from communicating with the families of students under the age of 18.
      • Continuity of Operations: An important component for higher education institutions to address is how to ensure students receive related services (e.g., financial aid, food, housing, etc.) in the event of a prolonged closure.
      • Public, Medical, and Mental Health: Special consideration should be given to identifying faculty who have relevant training or experience to address the needs of students and educators after a gun violence incident. The association should ensure that members are notified and trained if they have the qualifications to assist. In addition, there should be a plan for how to ensure that faculty’s mental health needs are being addressed.
      • Recovery: Determining where counseling and psychological first aid will be provided should be incorporated into the plan. In addition, thinking about how to handle commemorations, memorial activities, or permanent markers, if allowed, should be included.

      Develop Tools for Communicating Via Digital and Media Platforms

      To prepare for a gun violence incident, it is helpful to develop emergency communication tools in advance to facilitate swift deployment.

      • Actions include the following:

        • Develop and be prepared to deploy an emergency association-related homepage, connecting it to the district homepage if possible or connecting the district page to the association’s;
        • Explore with administrators the potential to establish a joint information center that includes the association;
        • Create templates for posts for X (formerly Twitter), Facebook, and other social media platforms to provide regular updates, as appropriate; 
        • Prepare press release and statement templates;
        • Maintain an email list of stakeholders, including educators, media, and elected officials;
        • Establish alternate systems of communication in case cell towers are inoperable or electricity is out and for those students and families experiencing homelessness or without regular access to computers;
        • Identify translation services, if appropriate;
        • Develop electronic message templates to provide the latest information;
        • Draft letters or emails to educators who work at the site of the incident, to those in neighboring institutions, and to parents;
        • Develop frequently asked questions and answers that can be distributed to the media and posted on the crisis website; 
        • Ensure that communications contacts in the state affiliate and local associations are up-to-date and easily identifiable; and
        • Identify state and local affiliates who can assist with communication and other resources and support.

      Build Strong Partnerships

      Addressing gun violence in education settings requires strong, meaningful relationships with partners to deepen association understanding, build relationships, strengthen the processes and policies of Pre-K–12 schools and institutions of higher education, and ensure that approaches developed to keep students, educators, and communities safe are culturally and racially appropriate.

      From state to state and within states, potential partners may vary. An important place to start is with other unions representing workers in the Pre-K–12 schools and institutions of higher education where association members work, gun violence-focused organizations, racial and social justice organizations, after-school programs, mental and physical health providers and organizations, associations representing principals or other administrators, and local colleges and universities with programs that identify or address violence in communities or, more specifically, in education settings. 

      The following list includes several national-level organizations—with links to their websites—that may have state or local counterparts. Identifying local groups working on similar topics may also serve the same purpose.

      Gun Violence Preparation Resources

      • NEA Resources
        • National Education Association: The National Education Association is the nation’s largest union, representing more than 3 million elementary and secondary teachers, higher education faculty, education support professionals, specialized instructional support personnel, school administrators, retired educators, and students preparing to become educators.
        • NEA Health and Safety Program: NEA School Health and Safety provides information and solutions related to student and educator mental health, violence prevention and response, infection control, and environmental and occupational safety and health, among other topics.  
        • NEA School Crisis Guide: Published in 2018, the crisis guide is a step-by-step outline of what to do before, during, and after any school or community crisis.
        • Responding to Gun Violence: This portion of the NEA Health and Safety Program website provides content on taking action, helping students cope, resources for school leaders, fostering mental health, and preventing hate and bias.
        • Helping Students Cope with Active Shooter Drills: NEA Today spoke to Janet Shapiro, dean of the Graduate School of Social Work and Social Research, professor of Social Work, and director of the Center for Child and Family Wellbeing at Bryn Mawr College, about the impact on students.
        • We Can Change This: Educators Take On Gun Violence: Educators across the country are working to end the era of school shootings that has defined students’ lives.

      • Everytown Resources
        • Everytown for Gun Safety: Everytown for Gun Safety is the largest gun violence prevention organization in America. The organization is a movement of more than 10 million supporters working to end gun violence.
        • Everytown for Gun Safety Support Fund: The Everytown Support Fund is the education, research, and litigation arm of Everytown for Gun Safety. Initiatives include conducting ground-breaking original research, developing evidence-based policies, communicating this knowledge to the American public, and advancing gun safety and gun violence prevention in communities and the courts.
        • The Impact of Active Shooter Drills in Schools: Everytown provides current data on active shooter drills and their impact on students in K–12 education settings. Their research also focuses on the impact of active shooter drills on physical, mental, and community health outcomes.
        • Reconsider Active Shooter Drills: Everytown argues that proactive school safety measures save lives and reduce the detriments associated with active shooter drills. They also provide data and recommendations for state legislation to provide funding and laws for schools to implement proactive safety programs.

      • Other Resources

        School Safety

        • Comprehensive School Safety Planning and Development: Safe and Sound Schools outlines a framework for comprehensive school safety planning and development, which includes input from representatives in each stakeholder group to consider all areas of safety relevant to their site and community.
        • National Center for School Safety: The National Center for School Safety is focused on improving school safety and preventing school violence. The center provides expert-led training, technical assistance, and a database of additional resources to address school safety challenges.
        • Schoolsafety.gov: This interagency website created by the Federal government provides a broad range of information, resources, and guidance to create safe and supportive learning environments for students and educators. 
        • Security Planning Workbook: Created by the Cybersecurity and Infrastructure Security Agency, this comprehensive resource assists with the development of a foundational security plan.

        Emergency Operations Plans

        • EOP Assist: EOP Assist is a software application provided by the Readiness and Emergency Management for Schools (REMS) Technical Assistance Center for K–12 schools, school districts, regional education agencies, and state agencies. It includes support for school emergency planning and management.
        • Guide for Developing High-Quality School Emergency Operations Plans: This guide—developed by the U.S. Department of Education, U.S. Department of Health and Human Services, U.S. Department of Homeland Security, U.S. Department of Justice, Federal Bureau of Investigation, and Federal Emergency Management Agency—provides schools with steps they can take to plan for potential emergencies through the creation, implementation, and maintenance of an emergency operations plan (EOP).
        • Guide for Developing High-Quality School Emergency Operations Plans for IHEs: This guide—developed by the U.S. Department of Education, U.S. Department of Health and Human Services, U.S. Department of Homeland Security, U.S. Department of Justice, Federal Bureau of Investigation, and Federal Emergency Management Agency—provides higher education institutions with steps they can take to plan for potential emergencies through the creation, implementation, and maintenance of an emergency operations plan (EOP).

        Support for People With Disabilities

        • Especially Safe: Especially Safe, a program designed by Safe and Sound Schools, helps safety planning teams address the safety and security needs of members of the school community with disabilities—including developmental disabilities, communication challenges, medical needs, mobility challenges, and more. 
        • Protecting Students with Disabilities in an Emergency: 5 Key Strategies: Published in Education Week in 2022, this article describes five recommendations for creating specific plans to protect the safety of students with disabilities in a school shooting from special educators and emergency management officials.
        • Safety Planning Guide for Individuals with Special Needs: This document, developed by the Virginia Center for School and Campus Safety and the Virginia Department of Criminal Justice Services, helps those tasked with school safety in Pre-K–12 schools and institutions of higher education to develop strategies that meet the diverse safety needs of all stakeholders within the education community. 
        • School Safety Drills and Exercises for Students with Autism Spectrum Disorder (ASD): Tips and Resources for Educators: The National Association of School Psychologists provides advocacy pointers for the safety of students with ASD, along with recommendations for preparing, supporting, and debriefing students with ASD when safety drills and exercises are used.

        Assessing Preparedness

      Navigate to Other Sections of the Guide

      Everytown Research & Policy is a program of Everytown for Gun Safety Support Fund, an independent, non-partisan organization dedicated to understanding and reducing gun violence. Everytown Research & Policy works to do so by conducting methodologically rigorous research, supporting evidence-based policies, and communicating this knowledge to the American public.

      In partnership with

      • NEA

        The National Education Association (NEA) is more than 3 million people—educators, students, activists, workers, parents, neighbors, and friends—who believe in the opportunity for all students and the power of public education to transform lives and create a more just and inclusive society. NEA has affiliate organizations in every state and more than 14,000 communities across the United States. NEA’s vision for safe, just, and equitable schools consists of thriving spaces that are safe and welcoming for all students; are discriminatory toward none; integrate the social, emotional, physical, mental, and spiritual needs of the whole student; and equitably and fully fund the community school model with wraparound services and resources. The resources in this guide can help make this vision a reality.

      The Latest

      Did you know?

      Every day, 125 people in the United States are killed with guns, twice as many are shot and wounded, and countless others are impacted by acts of gun violence.

      Everytown Research analysis of CDC, WONDER, Provisional Mortality Statistics, Multiple Cause of Death, 2019–2023; Healthcare Cost and Utilization Project nonfatal firearm injury data, 2020; and SurveyUSA, Market Research Study #26602, 2022.

      Last updated: 11.8.2024