The Florida Senate
BILL ANALYSIS AND FISCAL IMPACT STATEMENT
(This document is based on the provisions contained in the legislation as of the latest date listed below.)
Prepared By: The Professional Staff of the Committee on Rules
BILL: CS/CS/SB 1262
INTRODUCER: Rules Committee; Military and Veterans Affairs, Space, and Domestic Security
Committee; and Senator Collins
SUBJECT: Qualifications for County Emergency Management Directors
DATE: February 27, 2024 REVISED:
ANALYST STAFF DIRECTOR REFERENCE ACTION
1. Ingram Proctor MS Fav/CS
2. Nortelus Betta AEG Favorable
3. Ingram Twogood RC Fav/CS
Please see Section IX. for Additional Information:
COMMITTEE SUBSTITUTE - Substantial Changes
I. Summary:
CS/CS/SB 1262 creates minimum education, experience, and training standards for all county
emergency management directors (directors) which include:
 Fifty hours of training in business or public administration, business or public management,
or emergency management or preparedness or a bachelor’s degree.
 Four years of specified experience in comprehensive emergency management services with
direct supervisory responsibility for responding to at least one emergency or disaster. The bill
provides that a master’s degree in certain fields may be substituted for 2 years of the required
experience but not for the required supervisory experience, or alternatively, certain
professional accreditation may substitute for the required experience as long as the
certification remains in good standing until the experience requirements are met.
 One hundred fifty hours in comprehensive emergency management training provided through
or approved by the Federal Emergency Agency (FEMA) or its successor, including
completion of certain National Incident Management System (NIMS) courses, or equivalent
FEMA courses through the Emergency Management Institute (EMI).
The bill also requires that a director must also have a valid driver license, and if the license is not
a Florida driver license, he or she must obtain a Florida driver license within 30 days after being
appointed. Current directors will have until June 30, 2026, to meet the new criteria.
The bill takes effect July 1, 2024.
BILL: CS/CS/SB 1262 Page 2
II. Present Situation:
State Emergency Management Act
Florida is vulnerable to a wide variety of emergencies, including natural, technological, and
manufactured disasters threatening the health and safety of people, damaging and destroying
property, disrupting services, and impeding economic growth and development.1 To reduce these
vulnerabilities, promote emergency2 preparedness, response, mitigation, recovery, and
coordinate all emergency management functions of the state with the political subdivisions of the
state, other states, and the Federal Government,3 the Legislature adopted the State Emergency
Management Act (Act).4
Under the Act, emergency management5 responsibilities include:
 Reducing vulnerability of people and communities of this state to damage, injury, and loss of
life and property resulting from natural, technological, or manmade emergencies6 or hostile
military or paramilitary action.
 Preparing for prompt and efficient response and recovery to protect lives and property
affected by emergencies.
 Responding to emergencies using all systems, plans, and resources necessary to preserve
adequately the health, safety, and welfare of persons or property affected by the emergency.
 Recovery from emergencies by providing for the rapid and orderly start of restoration and
rehabilitation of persons and property affected by emergencies.
 Providing of emergency management system embodying all aspects of preemergency
preparedness and postemergency response, recovery, and mitigation.
 Assisting with the anticipation, recognition, appraisal, prevention, and mitigation of
emergencies which may be caused or aggravated by inadequate planning for, and regulation
of, public and private facilities and land use.7
Florida Division of Emergency Management
Overview
The Florida Division of Emergency Management (FDEM) is created within the Executive Office
of the Governor in accordance with s. 14.2016, F.S.,8 to implement the purposes of the Act. The
FDEM is the state’s liaison with federal agencies and other public and private agencies, and it
1
Section 252.311(1), F.S.
2
Section 252.34(4), F.S., defines emergency as any occurrence, or threat thereof, whether natural, technological, or
manmade, in war or in peace, which results or may result in substantial injury or harm to the population or substantial
damage to or loss of property.
3
Sections 252.311 and 252.32, F.S.
4
Sections 252.31-252.60, F.S. See s. 252.31, F.S.
5
Section 252.34(5), F.S., defines emergency management as preparation for, the mitigation of, the response to, and the
recovery from emergencies and disasters.
6
Section 252.34(7), F.S., defines manmade emergency as an emergency caused by an action against persons or society,
including, but not limited to, enemy attack, sabotage, terrorism, civil unrest, or other action impairing the orderly
administration of government.
7
Section 252.34(5)(a)-(f), F.S.
8
Ch. 2011-142, s. 7, Laws of Fla.
BILL: CS/CS/SB 1262 Page 3
administers programs to assist communities impacted by an emergency.9 With a mission to
coordinate, collaborate, and communicate with community stakeholders, the FDEM plans for
and responds to both natural and manmade disasters,10 including, but not limited to, floods,
hurricanes, and incidents involving hazardous materials or nuclear power.11 The duties of the
FDEM include preparing and updating the state comprehensive emergency management plan
(CEMP);12 adopting standards and requirements for county emergency plans;13 assisting political
subdivisions with preparing and maintaining their emergency management plans;14 and
reviewing the political subdivision plans, ensuring consistency with the CEMP and the adopted
standards and requirements.15 Additional duties include, coordinating federal, state, and local
emergency management actions in advance of an actual emergency to ensure availability of
adequately trained and equipped personnel before, during, and after an emergency or disaster.16
The FDEM also conducts extensive exercises to test state and county emergency capabilities and
provides emergency operations training for state and local governmental entities.17 Additionally,
after a disaster, the FDEM advises the Governor on whether to declare an emergency and seek
federal relief funds.18 The State Emergency Operations Center, maintained by the FDEM in
Tallahassee, serves as the communications and command center for reporting emergencies and
coordinating the state response activities. The State Warning Point, a state emergency
communications center operated by the FDEM and staffed around the clock, maintains statewide
communications with county emergency officials.19
FDEM Core Programs20
 Preparedness Bureau administers a statewide emergency management all-hazards
preparedness program to ensure the State Emergency Response Team21 is prepared.
o Facilitates prompt and efficient response and recovery.
o Protects lives and property impacted by disasters.
o Coordinates training courses for counties and first responders.
9
Section 14.2016(1), F.S.
10
Section 252.34(2), F.S., defines disaster as any natural, technological, or civil emergency that causes damage of sufficient
severity and magnitude to result in a declaration of a state of emergency by a county, the Governor, or the President of the
United States. The statute further delineates disasters by the severity of resulting damage as catastrophic, major, or minor.
11
Fla. Division of Emergency Management, About the Division, available at https://www.floridadisaster.org/dem/about-the-
division/ (last visited February 8, 2024).
12
See section 252.35(2)(a), F.S. The state comprehensive emergency plan must be integrated into and coordinate with federal
emergency management plans and programs.
13
Section 252.35(2)(b), F.S.
14
Section 252.35(2)(c), F.S.
15
Section 252.35(2)(d), F.S.
16
Section 252.35(2)(l), F.S.
17
Fla. Division of Emergency Management, supra note 11.
18
Pinellas Park Fire Department, Florida Division of Emergency Management, available at https://www.pinellas-
park.com/236/Florida-Division-of-Emergency-Management (last visited February 8, 2024).
19
Fla. Division of Emergency Management, supra note 11.
20
Fla. Division of Emergency Management, Presentation, Overview of FDEM, p. 2 (Nov. 14, 2023) (on file with the Senate
Committee on Military and Veterans Affairs, Space, and Domestic Security).
21
The FDEM website provides that the State Emergency Response Team is an inter-agency organization authorized by law
for the purpose of responding to, recovering from, mitigating against, and preparing for disasters, available at,
https://www.floridadisaster.org/sert/ (last visited on February 8, 2024).
BILL: CS/CS/SB 1262 Page 4
 Response Bureau coordinates state operational response activities among partner
organizations that are active during emergencies and disasters affecting the state.
o Monitors incidents that may require state response.
o Manages 24/7 State Watch Office.22
o Oversees logistics vendor management and resource deployment.
o Supports the State Emergency Response Commission through the Technological Hazards
Unit.23
 Recovery Bureau works to maximize and accelerate federal disaster assistance to eligible
public-sector partners and residents through various state and federal disaster assistance
programs and administers recovery funding, such as public assistance.
 Mitigation Bureau assists communities in reducing the impacts of certain disasters and
provides technical assistance to counties developing and implementing local mitigation
strategies.
o Administers federal mitigation grant programs, including the Hazard Mitigation Grant
Program, Pre-Disaster Mitigation Program, and Flood Mitigation Assistance Program and
the Building Resilient Infrastructure and Communities Program.
o Administers the Hurricane Loss Mitigation Program, a state-funded mitigation program.
Routinely updates the State Enhanced Hazard Mitigation Plan.24
FDEM Office of the Director
The FDEM director’s office provides management and oversight to the FDEM’s overall
functions.25 In accordance with section 14.2016(1), F.S., the FDEM director is appointed by and
serves at the pleasure of the Governor and is the head of the FDEM for all purposes.26
Within the office of the director, the media office handles internal and external affairs; the
Florida National Guard Liaison27 is the primary point of contact for inquiries and coordination
between the military and the FDEM; and regional coordinators28 live and work across the state
and are first in line to support to their respective area regions on all emergency management
matters including local plan development, preparedness, training and exercise, recovery, and
mitigation information.29
22
Section 14.2016(2), F.S., provides that the State Watch Office is established within the FDEM and is a clearinghouse of
information with a primary purpose to record, analyze, and share information with federal, state, and county entities for
appropriate response to emergencies.
23
Fla. Division of Emergency Management, About the Division, Response, Technological Hazards, available at
https://www.floridadisaster.org/dem/response/technological-hazards/ (last visited February 8, 2024).
24
Fla. Division of Emergency Management, About the Division, Mitigation, available at
https://www.floridadisaster.org/dem/mitigation/ (last visited February 8, 2024).
25
Fla. Division of Emergency Management, Office of the Director, available at
https://www.floridadisaster.org/dem/directors-office/ (last visited February 8, 2024).
26
Section 14.2016(1), F.S.
27
Fla. Division of Emergency Management, Director’s Office, Military Liaison, available at
https://www.floridadisaster.org/dem/directors-office/military-liaison/ (last visited February 8, 2024).
28
Fla. Division of Emergency Management, Director’s Office, Regional Preparedness and Response Coordinators-Regional
Emergency Management Coordination Team, available at https://www.floridadisaster.org/dem/directors-office/regions/ (last
visited February 8, 2024).
29
Fla. Division of Emergency Management, supra note 25.
BILL: CS/CS/SB 1262 Page 5
Emergency Management-Counties and Municipalities
State policy for responding to disasters is to support local emergency response efforts while also
recognizing the need for state assistance when the scope of a disaster is greater than can be met
by local resources.30 The Act provides specific authorization and emergency powers to counties,
requiring each county to establish and maintain an emergency management agency and develop
a county emergency management plan and program consistent with the CEMP and program.31
Municipalities are encouraged to create their own emergency management plans but must
coordinate with the county emergency management agency.32
County emergency management agencies must each have a director appointed by either their
respective board of county commissioners or county chief administrative officer and serving at
the pleasure of the appointing authority. The county emergency management director may be a
county constitutional officer33 or an employee of such an officer. Responsible for the
organization, administration, and operation of the county emergency management agency, the
director must coordinate the emergency activities, services, and programs of the agency
throughout the county and serve as the county liaison to FDEM and other local emergency
management entities.34
In accordance with s. 252.38(1), F.S., the only qualifications a county director must meet are the
minimum training and education standards in the job description approved by the county. Since
there are no uniform minimum requirements for directors, counties vary in the qualifications
required for the position as shown by the following table:
Minimum Required Required Licenses/
County Required Experience
Education Certifications
Valid Florida Class E
6 years in emergency planning and
Driver License; Florida
management, including 4 years of
Bachelor’s degree in Professional Manager
Broward35 high level supervisory and
required subject36 (FPEM) or Certified
administrative experience or
Emergency Manager
closely related experience
(CEM)
Graduation from 2-year
5 years professional experience in Valid driver license from
college or university emergency management, state of residence; NIMS
Escambia37 Bachelor’s degree may be emergency incident command & certifications IS700, IS800,
substituted for 2 years of control, and familiarity with IS100, IS200, ICS300, and
professional experience disaster relief ICS400
30
Section 252.311(3), F.S.
31
Section 252.38(1)(a), F.S.
32
Section 252.38(2), F.S.
33
FLA. CONS