How Many Leaders Does It Take?

Crisis situations are usually few and far between in most schools. It seems to be more important, in that case, to have a group of adults leading the school that are confident and know what to do in a crisis situation. The question remains to me to be how many adults should lead a school through a crisis? My school had a relatively small crisis yesterday, and there seemed to be too many leaders, and not enough listeners. Here is the brief situation, so you know what we're dealing with. The principal was out of the building. One assistant principal was in his office (on the same floor, but about 50 feet from the main office), the other assistant principal was in her office (up one floor from the main office). A pipe burst creating a waterfall in the main entryway, and it leaked down to the floor below. The fire alarm went off, and the nurse (whose office is next to the main entryway) announced that no one need leave the building. About 30 seconds later, she announced for an evacuation. Once outside, the crisis team was in communication with their walkie talkies. A small conference was held with four crisis team members to create a plan for dismissal (as the pipe burst only ten minutes before the end of the school day). Another teacher who overheard the conference then whistled to get all students' attentions, and made an announcement, which was not the same as the decision come to by the crisis team. All students arrived at their homes safely, and the world still turns. The question still, however, remains for me to be how do you encourage teacher leadership, while still needing teachers to follow?