HomeMy WebLinkAboutItem A: Emergency PlanEUGENE CITY COUNCIL
AGENDA ITEM SUMMARY
Work Session: Emergency Management Plan
Meeting Date: April 27, 2005 Agenda Item Number: A
Department: Human Resource and Risk Services Staff Contact: Chuck Solin
www. cl. eugene, or. us Contact Telephone Number: 682-5664
ISSUE STATEMENT
The City of Eugene recently updated its Emergency Management Plan which outlines the City Council's
role and responsibilities in the event the plan is activated. The Federal government has adopted a
National Response Plan and the National Incident Management System (NIMS) to provide a consistent
nationwide approach for Federal, State and local governments to operate in the event of an emergency.
Human Resource and Risk Services (HRRS) staff will review the Emergency Basic Plan and the NIMS
Plan with the council.
BACKGROUND
The City of Eugene has used the Incident Command System OCS) to organize and manage emergency
incidents for many years.
RELATED CITY POLICIES
This item relates to the council goal of Safe Community.
COUNCIL OPTIONS
No action required at this time; however, a resolution adopting the National Incident Management
System (NIMS) will be on the City Council's consent agenda for May 9, 2005.
CITY MANAGER'S RECOMMENDATION
The City Manager recommends adoption of the proposed resolution.
SUGGESTED MOTION
No motion is required at this time.
L:\CMO\2005 Council Agendas\M050427\S050427A. doc
ATTACHMENTS
A. City of Eugene Emergency Plan, Basic Plan
B. Resolution Adopting the National Incident Management System (NIMS) as the Standard for Incident
Management in the City of Eugene.
FOR MORE INFORMATION
Staff Contact: Chuck Solin, Emergency Manager
Telephone: 682-5664
Staff E-Mail: chuck, r. solin~ci, eugene, or. us
L:\CMO\2005 Council Agendas\M050427\S050427A. doc
ATTACHMENT A
CITY OF EUGENE
EMERGENCY MANAGEMENT PLAN
Basic Plan
March 2005
Basic Plan
TABLE OF CONTENTS
6. BASIC PLAN ........................................................................... 6-1
6.1 PURPOSE .................................................................................................................. 6-1
6.2 SITUATION AND ASSUMPTIONS ......................................................................... 6-1
6.2.1 SITUATION ........................................................................................................ 6-1
6.2.2 ASSUMPTIONS ................................................................................................... 6-2
6.3 PHASES OF EMERGENCY ..................................................................................... 6-2
6.3.1 MITIGATION ..................................................................................................... 6-2
6.3.2 PREPAREDNESS ................................................................................................. 6-3
6.3.3 RESPONSE ......................................................................................................... 6-3
6.3.4 RECOVERY ....................................................................................................... 6-3
6.4 LEVELS OF EMERGENCY .................................................................................... 6-3
6.4.1 LEVEL ONE: POTENTIAL EMERGENCY ............................................................... 6-3
6.4.1.1 Definition .......................................................................................... 6-3
6.4.1.2 Action ............................................................................................... 6-4
6.4.2 LEVEL TWO: ACTUAL LOCAL EMERGENCY ........................................................ 6-4
6.4.2.1 Definition .......................................................................................... 6-4
6.4.2.2 Action ............................................................................................... 6-4
6.4.3 LEVEL THREE: DECLARE STATE OF EMERGENCY ............................................... 6-4
6.4.3.1 Definition .......................................................................................... 6-4
6.4.3.2 Action ............................................................................................... 6-4
6.5 STEPS FOR DECLARATION OF EMERGENCY ................................................. 6-5
6.6 CONCEPT OF OPERATIONS ................................................................................. 6-7
6.7 DIRECTION AND CONTROL ................................................................................ 6-7
6.7.1 GENERAL .......................................................................................................... 6-7
6.7.2 CONTINUITY OF CITY OPERATIONS .................................................................... 6-7
6.7.2.1 Succession of Authority ..................................................................... 6-7
6.7.2.2 Preservation of Records ..................................................................... 6-8
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6.8 EMERGENCY MANAGEMENT ORGANIZATION ............................................. 6-8
6.8.1 MAYOR AND CITY COUNCIL .............................................................................. 6-8
6.8.2 EXECUTIVE GROUP ........................................................................................... 6-9
6.8.3 INCIDENT COMMAND SYSTEM (ICS) .................................................................. 6-9
6.8.4 DEPARTMENT RESPONSIBILITIES: ....................................................................... 6-9
6.8.4.1 Public Works Department ............................................................... 6-10
6.8.4.2 Fire & EMS Department ................................................................. 6-10
6.8.4.3 Police Department .......................................................................... 6-10
6.8.4.4 Incident Commander (IC) .............................................................. 6-10
6.8.4.5 Command Staff .............................................................................. 6-10
6.8.4.6 General Staff .................................................................................. 6-10
6.9 EMERGENCY OPERATIONS CENTER (EOC) .................................................. 6-10
6.9.1 POLICY ROOM AND INCIDENT COMMAND ROOM ............................................. 6-10
6.9.2 AUTHORITY FOR ACTIVATiNG ........................................................................ 6-1 1
6.9.3 EOC LOCATIONS: TWO EMERGENCY OPERATIONS CENTERS .......................... 6-12
6.9.3.1 Primary EOC .................................................................................. 6-12
6.9.3.2 Backup EOC ................................................................................... 6-12
6.9.4 EOC STAFF ................................................................................................... 6-12
6.9.5 MOBILE EOC/FIELD INCIDENT COMMAND POST ............................................. 6-12
6.9.6 JOINT INFORMATION CENTER (JIC) ................................................................ 6-12
6.9.7 PUBLIC AND MEDIA INQUIRY CENTER (PMIC) ................................................ 6-13
6.10 EMERGENCY AUTHORITY ................................................................................6-13
6.11 ORGANIZATION AND ASSIGNMENT OF FUNCTIONAL ANNEX
RESPONSIBILITIES ......................................................................................................... 6-14
6.11.1 How THE FUNCTIONAL ANNEXES WORK ....................................................... 6-14
6.12 ADMINISTRATION AND LOGISTICS ................................................................ 6-14
6.12.1 MUTUAL AID AGREEMENTS .......................................................................... 6-14
6.12.2 STATE/FEDERAL ASSISTANCE ........................................................................ 6-15
6.13 PLAN DEVELOPMENT, MAINTENANCE AND IMPLEMENTATION ........... 6-15
6.14 EMERGENCY MANAGEMENT PREPAREDNESS ........................................... 6-16
6.15 FUNCTIONAL ANNEX RESPONSIBILITIES ..................................................... 6-16
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6.15.1 ANNEX A - EMERGENCY MANAGEMENT ORGANIZATION ANNEX ................... 6-16
6.15.2 ANNEX B - CARE & MANAGEMENT OF THE DECEASED ANNEX ...................... 6-17
6.15.3 ANNEX C - COMMUNICATIONS ANNEX ......................................................... 6-17
6.15.4 ANNEX D - DAMAGE ASSESSMENT ANNEX ................................................... 6-17
6.15.5 ANNEX E - DEBRIS MANAGEMENT ANNEX ................................................... 6-18
6.15.6 ANNEX F - EMPLOYEE SERVICES ANNEX ...................................................... 6-18
6.15.7 ANNEX G - EVACUATION ANNEX ................................................................. 6-18
6.15.8 ANNEX H - FACILITIES ANNEX ..................................................................... 6-19
6.15.9 ANNEX I - FiNANCE/RISK MANAGEMENT ANNEX .......................................... 6-19
6.15.10 ANNEX J - FIRE AND RESCUE ANNEX .......................................................... 6-19
6.15.11 ANNEX K - LAW ENFORCEMENT ANNEX ..................................................... 6-20
6.15.12 ANNEX L - LEGAL ANNEX .......................................................................... 6-20
6.15.13 ANNEX M - MEDICAL CARE AND TRANSPORT ANNEX ................................. 6-21
6.15.14 ANNEX N - PUBLIC INFORMATION AND ALERT AND WARNiNG ANNEX ........ 6-21
6.15.15 ANNEX O - PUBLIC WORKS ANNEX ............................................................ 6-22
6.15.16 ANNEXP- SHELTER AND MASS CAREANNEX ............................................ 6-22
6.15.17 ANNEX Q - TERRORISM ANNEX .................................................................. 6-23
6.15.18 ANNEX R - VOLUNTEER COORDINATION ANNEX ......................................... 6-23
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CITY OF EUGENE EMERGENCY MANAGEMENT PLAN
6. BASIC PLAN
6.1 PURPOSE
This Plan sets forth the following actions to be taken by the emergency organizations designated
by the City of Eugene and cooperating private institutions to:
· Prevent or reduce disasters;
· Reduce the vulnerability of city residents to any disasters that cannot be prevented;
· Assess capabilities and establish procedures for protecting citizens from the effects of
disasters;
· Respond effectively to the actual occurrence of disasters; and
· Provide for recovery in the aftermath of any emergency involving extensive damage or
other debilitating influence on the normal pattern of life within the community.
Used as a management tool, this Plan will increase the City's ability to develop a timely and
efficient emergency program, thereby mitigating the effects of an emergency or disaster on
people and property.
The Emergency Management Plan (EMP) emphasizes the extraordinary emergency response
functions applicable to all emergencies or disasters, while recognizing the unique aspects of
specific types of hazards. In addition, the EMP outlines basic response functions commonly
applicable to all hazards in developing a systematic approach to the management of any type or
magnitude of emergency or disaster.
The guidelines and procedures included in this plan have been prepared utilizing the best
information and planning assumptions available at the time of preparation. There is no guarantee
implied by this plan. In an emergency, resources may be overwhelmed and essential services
may not be available. Deviation from these guidelines may be necessary given the facts of any
particular situation.
6.2 SITUATION AND ASSUMPTIONS I
6.2.1 Situation
The City of Eugene is exposed to various hazards, which have the potential to disrupt
the community, cause damage, and create casualties. Possible natural hazards include
drought, earthquake, fire/conflagration, flood, severe weather, and volcanic activity.
There is also the threat of technological hazards, those caused by human omission or
error, such as transportation accidents, hazardous materials incidents, or utility
failures. A civil disturbance or a terrorism incident could also occur.
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6.2.2 Assumptions
The City of Eugene will continue to be exposed to the hazards noted above as well as
others which may develop in the future.
County and city governments are primarily responsible for emergency management
actions and will commit all available resources to protect lives and minimize damage
to property.
Outside assistance will be available in most emergency situations affecting the City.
Although this Plan defines procedures for coordinating such assistance, it is essential
for the City of Eugene to be prepared to carry out disaster response and short-term
actions on an independent basis.
It is possible for a major disaster to occur at any time and at any place in the city. In
some cases, dissemination of warning and increased readiness measures may be
possible; however, many disasters and events can, and will, occur with little or no
warning.
A major disaster event will likely affect the lives of many City of Eugene and other
local response agency employees limiting or preventing them from performing
emergency response activities.
Local government officials recognize their responsibilities for the safety and well-
being of the public and will assume their respective responsibilities in the
implementation of this Emergency Management Plan.
The intent of this Plan is to reduce disaster-related losses.
6.3 PHASES OF EMERGENCY I
The Basic Plan follows an all-hazard approach and acknowledges that most responsibilities and
functions performed during an emergency are not hazard-specific; therefore, this Plan accounts
for activities before and after, as well as during, emergency operations. The phases of
emergency management are addressed below.
6.3.1 Mitigation
Mitigation activities are those which eliminate or reduce the probability of a disaster
occurring, including long-term activities that lessen the undesirable effects of
unavoidable hazards.
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6.3.2 Preparedness
Preparedness activities, programs, and systems are those that exist prior to an
emergency and are used to support and enhance response to an emergency or disaster.
Planning, training, and exercising are among the activities conducted under this phase.
6.3.3 Response
Response involves activities and programs designed to address both immediate and
short-term effects at the onset of an emergency or disaster. Response is geared
towards reducing casualties, damage, and facilitating recovery. Activities include
direction and control, warning, evacuation, rescue, and other similar operations.
6.3.4 Recovery
Recovery involves both short-term and long-term processes. Short-term operations
seek to restore vital services to the community and provide for the basic needs of the
public. Long-term recovery focuses on restoring the community to its normal, or an
improved, state of affairs. The appropriate time to institute mitigation measures,
particularly those related to a recent emergency, is during the recovery period,
including reassessing the EMP and planning process for deficiencies. Restoration to
upgrade damaged areas is appropriate if it can be shown extra repairs will mitigate or
lessen the chances of damages caused by another such similar disaster.
6.4 LEVELS OF EMERGENCY I
To ensure that the City responds appropriately, emergency status and levels are listed below
along with the action to be taken during each level. Emergency situations that are within the
normal scope and control of the responsible department are not considered here.
Any given level may be bypassed, if necessary, to allow response to proceed directly to a higher
level. As an emergency progresses to higher levels, the stated activities of previous levels will
continue to be enacted.
6.4.1 Level One: Potential Emergency
6.4.1.1 Definition
At this level, there is a strong potential that the department attempting to
control the emergency will exhaust its resources before bringing the
emergency under control.
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6.4.1.2 Action
All Executive Managers (or their designees), the Public Information Officer,
and the 911 Center are notified of a possible emergency and will alert key
personnel within their respective departments of the situation.
6.4.2 Level Two: Actual Local Emergency
6.4.2.1 Definition
The responsible department has determined that an emergency has proceeded
beyond its capability to control, given its resources. The responsible
department requires assistance from other departments to control a problem.
6.4.2.2 Action
Initial staffing for the EOC Executive Group will consist of the City Manager
(Assistant City Manager); Fire & EMS Chief; Police Chief; and the Public
Works Executive Director, and those staff listed in step 2 and step 4 of the
Central Lane call out process in the Resource Guide. Executive Managers not
immediately reporting to the EOC and the City Attorney will report to their
respective offices and follow the procedures as outlined in the Emergency
Management Plan and their respective annexes.
6.4.3 Level Three: Declare State of Emergency
6.4.3.1 Definition
The emergency is of a magnitude requiring County, State, and/or Federal
assistance. Local resources, including mutual assistance response, are
insufficient to cope with the situation, and the incident requires response from
other levels of government to protect lives and minimize property damage for a
large portion of the population.
6.4.3.2 Action
The City's Emergency Plan and EOC will be activated as outlined in the step
1-2-3-4 911 call-out procedures.
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6.5 STEPS FOR DECLARATION OF EMERGENCY
The City Manager will sign an order declaring a State of Emergency~ for the City of Eugene
when the situation progresses to a level three emergency. The City must first expend, or nearly
deplete, its own resources, including those available through mutual aid agreements, before
requesting assistance from Lane County. All requests will be made by the City Manager or by
another official duly authorized by the City Manager or the EMP. After County resources have
been expended, a declaration may be requested through the State.
Requests for State or Federal assistance, including National Guard or other military services, will
be made to the Oregon Emergency Management Agency (OEM) in Salem through the Lane
County Emergency Manager. Only the County's governing body may ask the Governor for a
declaration of emergency. Only the Governor may request a declaration of emergency from the
President of the United States.
Following a presidential declaration of emergency, Federal assistance will be made available.
1 Ordinance No. 20164, Section 2.1055, Emergency Code, The Eugene Code (1999) is contained in the Legal Annex
Section.
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Stafford
Delivers
Alerts
Requests aid from
Activates Preliminary
Damage
Assessment &
requests
Presidential
declaration
Activates
Reports May convene
to
Activates
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6.6 CONCEPT OF OPERATIONS
Local government has the primary responsibility for emergency management operations. These
operations are designed to protect lives, minimize property damage, and provide for continuation
of critical services to customers. This Plan is based upon the concept that the emergency
functions for various departments involved in emergency management will generally parallel
normal day-to-day functions. To the extent possible, the same personnel and material resources
will be employed in both cases; however, employees may be assigned to work in areas and
perform duties outside their regular job assignments. Day-to-day functions that do not contribute
directly to an emergency may be suspended for the duration of an emergency, and efforts that
would typically be required for normal daily functions will be redirected to the accomplishment
of emergency tasks by the department concerned.
If it should be determined that the normal functions of the City are not sufficient to meet the
emergency or disaster effectively, the City Manager may declare a state of emergency. The
effect of the declaration is to activate recovery and rehabilitation aspects of the Plan and
authorize the furnishing of aid and assistance.
6.7 DIRECTION AND CONTROL I
6.7.1 General
The City Manager is responsible for ensuring that coordinated and effective
emergency response systems are developed and maintained. Departments will
perform emergency activities closely related to those they perform routinely. Specific
positions and departments are responsible for fulfilling their obligations as presented
in the Basic Plan and individual annexes. The City Manager will designate an
Incident Commander, based on the type of emergency at hand. Each department will
be responsible for having its own standard operating procedures (SOPs) to be followed
during applicable response and recovery operations.
Outside assistance, whether from other political jurisdictions or from organized
volunteer groups, will be requested and used only as an adjunct to existing City
services when the situation threatens to expand beyond the City's response
capabilities.
6.7.2 Continuity of City Operations
6.7.2.1 Succession of Authority
To maintain City operations and ensure the orderly continuation of leadership
in an emergency situation, the following order of responsibility is established:
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· City Manager;
· Assistant City Manager;
· Fire & EMS Chief;
· PW Director; and
· Police Chief.
Eugene Code section 2.1035 provides that the municipal judge, city manager
and department heads designate not less than three nor more than seven
emergency interim successors and specify the order of succession. These
designations must be in writing and filed with the city recorder.
6.7.2.2 Preservation of Records
In order to provide normal government operations following a disaster, vital
records must be protected, including legal documents and personnel records.
The principal causes of damage to records are fire and water; therefore,
essential records should be protected accordingly.
6.8 EMERGENCY MANAGEMENT ORGANIZATION I
The Emergency Management Organization (EMO) consists of all levels of City government.
The Mayor, City Council, City Manager, Department Executive Managers, City Attorney, and
individual departments all have certain responsibilities in the mitigation, preparedness, response,
and recovery phases of emergency management for the City of Eugene.
The Emergency Management Plan (EMP) is based on the National Incident Management
System (NIMS) and the National Response Plan (NRP). The EMO is structured to follow the
Incident Command System (ICS). Responsibilities within the EMO structure are as follows:
6.8.1 Mayor and City Council
· Convene City Council for emergency session(s) [Mayor];
· Assist in communication and coordination efforts with elected officials of other
governmental entities [Mayor];
· Coordinate emergency public information with CMO staff and PIO;
· Be available to address the community, and act as a conduit, within their
respective wards or evacuation centers, to disseminate information during the
course of a disaster event;
· Meet, as needed, to provide policy direction and enact ordinances that reduce the
impact to citizens. Examples include flood plain ordinances, land use and
development codes, and anti-price-gouging ordinances; and
· Determine funding levels through the budget for emergency mitigation, planning,
response, and recovery activities.
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6.8.2 Executive Group
The City Manager will determine, based on the nature of an emergency, which
Executive Managers will staff the Policy Room. Department Executive Managers not
immediately reporting to the EOC will either report to their respective departments to
provide staff assistance or prepare to take a later shift as part of the Executive Group.
The City Attorney's role is to advise other members of the Executive Group regarding
legal matters and provide assistance in presenting emergency ordinances to the City
Council for adoption. Members of the Executive Group will determine which legal
measures are to be processed by the City Council. The City Manager is responsible
for declaring a state of emergency and, if necessary, requesting additional assistance
from other jurisdictions or higher levels of government. Responsibilities of the
Executive Group are as follows:
· Provide resources to ensure staff receives necessary training for managing
emergency events, including maintenance of the Emergency Plan;
· City Manager (or designee) will appoint the Incident Commander, and a second
shift Incident Commander, when it becomes apparent the event will extend into a
second shift;
· Maintain communication and support with Mayor and City Council; stay informed
of event status;
· Determine City services to be curtailed or modified during the course of an
emergency, including determining an appropriate time for services to come back
online;
· Provide policy guidance to the Incident Commander;
· Review critical press releases prior to release;
· Determine priorities for City resources;
· Recommend emergency ordinances to the Council; and
· Review ordinances for legal and liability issues [City Attorney].
6.8.3 Incident Command System OCS)
The City of Eugene has selected the Incident Command System (ICS) as the method
for managing emergency incidents. The ICS structure utilizes a standard format,
defining operational and support functions, by providing a standard description and
pre-defining duties and responsibilities for each function, and delineating lines of
authority and communication.
The City Manager is responsible for appointing the Incident Commander and will
coordinate appointment of the lC with the Executive Manager of the specific
department assigned responsibility for the disaster. The City Manager may determine
that a unified command is appropriate for responding to certain events.
6.8.4 Department responsibilities:
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6.8.4.1 Public Works Department
· Weather-related events, i.e., ice, snow, wind, flood;
· Volcanic eruption; and
· Earthquake.
6.8.4.2 Fire & EMS Department
· Conflagration;
· Hazardous materials incident; and
· Transportation/mass casualty incident.
6.8.4.3 Police Department
· Civil disturbance; and
· Terrorist attack.
6.8.4.4 Incident Commander (lC)
In charge of all operational aspects of an emergency, the IC also acts as a
liaison between the Executive Group and operational staff activities. In
addition, the IC is responsible for coordinating all efforts and determining
necessary resources for any given emergency. The IC will determine which
elements of the Incident Command System will be implemented and may
choose to delegate some duties.
6.8.4.5 Command Staff
Command staff includes the Public Information Officer; Liaison Officer; and
Safety Officer, all of whom report directly to the IC.
6.8.4.6 General Staff
General staff includes the Operations Chief, Planning Chief, Logistics Chief,
and Finance Chief, all of whom report directly to the IC.
6.9 EMERGENCY OPERATIONS CENTER (EOC) I
6.9.1 Policy Room and Incident Command Room
The EOC consists of two rooms -- a Policy Room and an Incident Command Room.
The EMe IC Response and support activities will be coordinated from the Sheldon
Emergency Operations Center (EEC), a predesignated facility. The Eec will be
activated upon notification of a possible or actual major emergency. During large-
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scale emergencies, the EOC may become the seat of government for the duration of a
crisis, Command Staff, and General Staff will report to, and remain in, the Incident
Command Room during the emergency.
The Executive Group consists of the City Manager, pre-assigned Executive Managers,
and may include the City Attorney, as well as other Executive Managers, as needed.
This group will meet in the Policy Room to determine policy issues, such as legal
measures needed, declaring a state of emergency, and requesting additional assistance.
The City Manager will appoint the IC.
The primary EOC is the Sheldon EOC, located in Fire Station 6. If this facility is not
functional when the EOC is activated, the backup EOC, Public Works Maintenance
will be used.
During emergency operations and upon activation, the EOC staff will assemble, as
outlined under the Organization and Assignment of Functional Annex
Responsibilities heading, and exercise direction and control as outlined below:
6.9.2 Authority for Activating
Authority for activating and initiating the command structure of the EOC will be one
of the following (as appropriate):
· City Manager;
· Assistant City Manager;
· Fire & EMS Chief;
· Public Works Executive Director; and
· Police Chief.
If an Executive Manager activates the EOC, he/she will attempt to notify the City
Manager
The Incident Commander will determine the level of staffing required; alert the
appropriate personnel, agencies, and organizations; and keep the City Manager
advised as to the status throughout the event;
The Incident Commander will serve as the overall EOC controller or may choose to
delegate this function;
The EOC will operate on a 24-hour basis with rotating shifts as necessary until an
emergency is over (typical rotation is on a 12 hour basis);
The Incident Commander will ensure the Lane County Emergency Manager is
immediately notified upon activation. Periodic updates will be made as the situation
requires;
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6.9.3 EOC Locations: Two Emergency Operations Centers
6.9.3.1 Primary EOC
The Sheldon EOC, located at Fire Station 6, will be the EOC for all activations
unless it sustains damage or is otherwise inaccessible.
The EOC is maintained ready for use by the Emergency Program Manager.
The EOC can be opened and prepared for immediate use by Fire & EMS Chief
Officers. An Operations and Readiness Manual, outlining activation
procedures, is available in the EOC.
6.9.3.2 Backup EOC
Public Works Maintenance Facility, located at 1820 Roosevelt Boulevard. The
Roosevelt EOC will be used if the Sheldon EOC is not functional.
The Roosevelt EOC is maintained ready for use by the Maintenance Division
Manager. This EOC can be opened and prepared for immediate use by
supervisors from the on-call list maintained in the Central Lane 9-1-1.
If neither the primary nor the backup EOC is functional, the next alternate
location is the Wastewater Treatment Plant, located at 410 River Avenue;
6.9.4 EOC Staff
Levels of staffing will be determined by the IC and the City Manager; generally, the
IC and its command staff, general staff positions, and the Executive Group will report
to the EOC;
6.9.5 Mobile EOC/Field Incident Command Post
The Field Incident Command Post is normally the point from which the actual field
direction to emergency services personnel takes place, and can be utilized in a limited
scope as an EOC in the event that all fixed EOCs are out of service. The Field
Incident Command Post can, with its communications and administrative capabilities,
be operated at a safe designated site as the EOC. It may be staffed by Police or Fire &
EMS personnel in the event of a major incident, or by representatives from various
departments.
6.9.6 Joint Information Center (JIC)
A Joint Information Center (JIC) will be established to support all EOC activations.
The JIC for both the Sheldon EOC and the Roosevelt EOC will be the CMO and City
Council Chamber, located at 777 Pearl Street. This site will open for all City of
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Eugene EOC activations, except earthquake-related emergencies. In the event of an
earthquake, the JIC will be located in training room 2 at the Eugene Fire Department
Headquarters, 2nd & Chambers. The JIC will coordinate all media and public
information requests from the EOC and Field PIOs.
6.9.7 Public and Media Inquiry Center (PMIC)
A Public and Media Inquiry Phone Center will be established to support all EOC and
JIC activations. The PMIC will be located at the Roosevelt Boulevard Public Works
facility. Public Works personnel will staff the PMIC and remain operational until
deactivated by either the EOC Incident Commander or the JIC Lead PIO. The PMIC
will be the point of contact for the media and public in the event of a major emergency
in the city. News media are not authorized to be in the EOC during an activation. The
City Manager's Office has the ability to be a back-up for Public Works operations.
The use of reports and records will vary according to the type and scope of the
emergency; however, complete and accurate records must be maintained.
Appropriate security to the EOC will be maintained to prevent entrance by persons not
connected with an emergency situation. Authorized EOC staff will be clearly
identified with a vest or other visible identification.
6.10 EMERGENCY AUTHORITY I
In accordance with ORS 401.309 Emergency Management series, as amended, the City Manager
may take extraordinary measures in the interest of effective emergency management. Procedures
associated with emergency powers are contained in the Legal Annex. These powers include but
are not limited to:
· Declaration of a local state of disaster
· Wage, price, and rent controls and other economic stabilization measures
· Curfews, blockades, and limitations on utility usage
· Rules governing ingress to and egress from the affected area
· Other security measures
All physical resources within the City of Eugene, whether publicly or privately owned, may be
utilized when deemed necessary by the City Manager. The City of Eugene assumes no financial
or civil liability for the use of such resources. Accurate records of such use will be maintained to
ensure proper reimbursement for those resources.
As provided for, in the Oregon Revised Statutes and Executive Order of the Governor, the City
Manager may exercise the same powers, on an appropriate local scale, granted to the Governor.
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6.11 ORGANIZATION AND ASSIGNMENT OF FUNCTIONAL
ANNEX RESPONSIBILITIES
The Emergency Management Plan (EMP) consists of several components--the Basic Plan,
Functional Annexes, Resource Guide, and a Departmental appendix. The Basic Plan describes
the overall general framework and operation of the Emergency Management Plan. Members of
the Executive Group will follow the Basic Plan during an emergency; their responsibilities are
outlined in this component of the plan. All other individuals assigned to a position in the
Emergency Management Organization will find a checklist of the assigned position's
responsibilities in one of the functional annexes of the plan.
6.11.1 How the Functional Annexes Work
Each annex is set up to include a list of emergency personnel positions which may be
staffed when the EOC is activated. For the purposes of this plan, a personnel position
is a title identified within a functional annex and accompanied by a checklist of
responsibilities. An ICS position has standard ICS duties, titles, and a checklist of
responsibilities.
Based on the Incident Command System (ICS), all of the activities that occur during
an emergency situation are grouped into general categories, such as evacuation and
law enforcement. In most cases, the department for which these functional activities
most resemble normal day-to-day operations will take the lead on developing, carrying
out, and updating the annex. For example, the Police Department is normally
responsible for traffic control. This responsibility will carry through as traffic control
is needed in evacuation and other circumstances. Most of the individuals who staff
that annex will probably be from that department; however, in some cases, other
departments may have an assisting role in carrying out that annex. When this
happens, those individuals from assisting departments who help to staff the positions
outlined in the annex will report to the appropriate person designated in the annex
chain of command flow chart. This person may or may not be from the department for
which the individual works under normal operating conditions.
6.12 ADMINISTRATION AND LOGISTICS I
6.12.1 Mutual Aid Agreements
Should local resources prove to be inadequate during an emergency, requests will be
made for assistance from other local jurisdictions and agencies in accordance with
existing or emergency negotiated mutual aid agreements and understandings. Such
assistance may take the form of equipment, supplies, personnel, or other available
capabilities. All agreements will be entered into by duly authorized officials and will
be formalized in writing whenever possible.
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6.12.2 State/Federal Assistance
Requests for State or Federal assistance, including National Guard or other military
services, will be made to the Oregon Emergency Management Agency (OEM) in
Salem through the Lane County Emergency Manager. Only the County may ask the
Governor for a declaration of emergency. Only the Governor may request a
declaration of emergency from the President of the United States. Following a
presidential declaration of emergency, Federal assistance will be made available.
6.13 PLAN DEVELOPMENT, MAINTENANCE AND I
IMPLEMENTATION
· The development and continued update of all functional annexes is the responsibility of
each of the lead departments identified on each annex and in the Basic Plan section of
this document. At approximately six-month intervals (April and October), the
Emergency Manager will send out an update notice. Each department/division is
responsible for reviewing its Functional Annex sections and updating with current
information upon request from the Emergency Manager. All changes must be forwarded
on hard copy-no exceptions will be made to this rule. The Emergency Manager will
make the revisions and forward copies to those individuals on the Plan distribution list.
· Each department is responsible for ensuring their respective section of the Resource
Guide is kept updated with the most current information. At six-month intervals
(approximately May and November) the Emergency Manager will send out update
notices, and hard copies of the Resource Guide will be reprinted and distributed to
authorized locations.
· An annual review and update of the Basic Plan, as well as other remaining components of
the Plan, will be the responsibility of the Emergency Manager.
· The Plan will be updated, as necessary, based upon deficiencies identified by drills and
exercises, changes in local government structure, technological changes, etc. Approved
changes will be incorporated into the Plan and forwarded to all departments and
individuals identified as having possession of a full version of the plan. Changes to the
Basic Plan will be forwarded to holders of a full plan as well as to those who hold Basic
Plans only.
· The Plan will be activated at least once a year in the form of a simulated emergency in
order to provide practical experience to those having EOC responsibilities.
· Each department will be responsible for providing the appropriate training to those
individuals who will be expected to participate in the implementation of the Plan.
· This Plan supersedes and rescinds all previous editions of the City of Eugene Emergency
Management Plan and is effective upon signing by the City Manager. If any portion of
this Plan is held invalid by judicial or administrative ruling, such ruling shall not
affect the validity of the remaining portions of this Plan.
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6.14 EMERGENCY MANAGEMENT PREPAREDNESS I
· Ensure Command staff and General staff have attended basic Incident Command System
OCS) training and annual trainings on emergency management; staff trained in ICS
should receive a 4-hour refresher course every two years;
· Ensure staff designated for ICS positions receive the Oregon Emergency Management
(OEM) course related to the positions they are designated for. The Disaster Operations
Task Team (DOTT) will conduct one tabletop exercise and one functional or full-scale
exercise annually for EMO staff. The EOC will be tested during at least one of the
annual exercises.
· The DOTT will keep the Sheldon EOC and back-up EOC, at Roosevelt, in a state of
readiness. The Sheldon EOC will be started up and tested by DOTT a minimum of six
times per year.
· Ensure the City Resource Guide is kept updated on an ongoing basis and the Basic Plan,
Functional Annexes, and other remaining components receive an annual review and are
updated as needed.
· Recommend ordinances which provide for emergency powers as well as promulgation of
the Emergency Management Plan which will supersede other ordinances and procedures
during a disaster situation.
6.15 FUNCTIONAL ANNEX RESPONSIBILITIES I
6.15.1 Annex A - Emergency Management Organization Annex
This annex outlines the EMO Annex structure and Direction and Control elements of
key personnel responding to an emergency situation when partial or full activation of
the Response portion of the Emergency Management Plan occurs. Standard Incident
Command System OCS) personnel position checklists, to be utilized by individuals
filling the positions described in the functional annexes, are found in this annex as well
as individual annex sections. The EMO function involves the use of the EOC to
facilitate policymaking, coordination, and control of operations by covering the process
of obtaining and analyzing emergency management information, which provides a
basis for decision making. Alternate EOCs, mobile EOCs, and field command posts
are also outlined.
· Identify NIMS as the management system for emergency response;
· Outline duties and responsibilities for ICS positions.
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6.15.2 Annex B - Care & Management of the Deceased Annex
This annex describes steps to be taken in the care and handling of individuals who are
deceased due to the occurrence of a disaster. Activities are outlined concerning care
and management for the deceased, including tagging of bodies, identification of
deceased individuals, execution of the evidentiary process, transportation of bodies,
notifying of next of kin, and coordination with mortuary facilities.
· Provide resource to identify, track, and preserve deceased;
· Provide for coordination of Police, Fire, EMS, and Medical Examiner in managing
care of deceased.
6.15.3 Annex C - Communications Annex
The Communications annex deals with establishing, using, maintaining, augmenting,
and providing communications support necessary for emergency response and recovery
operations.
· Establish and maintain emergency communications systems;
· Coordinate use of all public and private communication systems necessary during
emergencies;
· Coordinate and manage all emergency communications operated within the EOC
following activation;
· Provide for operational needs of Central Lane 9-1-1 Center and Lane County Fire
Defense Board EOC (Base 1).
6.15.4 Annex D - Damage Assessment Annex
The purpose of this function is to ensure that personnel and procedures are available to
provide preliminary estimates and descriptions on the extent of damage resulting from
large-scale disasters. Personnel in this annex are responsible for posting buildings that
are unsafe to occupy, condemning structures beyond repair, and evaluating street
systems, bridges, wastewater collection systems, and other infrastructure for use and
safety.
· Establish a damage assessment team from City employees with
inspection/assessment capabilities and responsibilities.
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· Develop systems for reporting and compiling information on dollar damage to tax-
supported facilities and private property.
· Assist in determining geographic extent of damaged area.
· Compile estimates of damage for requesting disaster assistance.
· Assess damage to streets, bridges, traffic control devices, wastewater treatment
system, airport facilities, and other public works infrastructure.
6.15.5 Annex E - Debris Management Annex
This annex describes procedures to be followed in the removal and recovery of debris
resulting from natural and technological disasters or other major incidents. A
coordinated effort will be necessary for the removal, collection, and disposal of debris
generated from a large event. The goal will be to use existing solid-waste best-practice
strategies and methods to reduce, reuse, recycle, recover, and landfill where feasible.
Initial debris assessment will determine if a disaster event is of significance to request
assistance from outside resources. Debris management will help establish priorities for
the allocation of resources, collaborate with damage assessment team needs, physically
remove debris, open transportation routes, and, if needed, located temporary storage
sites for the collection and recovery of debris.
· Establish and operate debris storage and disposal sites;
· Identify method for estimation of debris quantities;
· Provide for appropriate recovery and recycling efforts.
6.15.6 Annex F - Employee Services Annex
This annex covers delivery of such services as counseling under disaster conditions.
Care and counseling of City employees and their families during an emergency
situation is addressed, in addition to counseling services for the public.
· Provide counseling services for disaster victims [American Red Cross]; and
· Provide employee assistance for staff and victims.
6.15.7 Annex G - Evacuation Annex
The goal of this function is to relocate citizens to safe areas when emergencies or
threats necessitate such action. This annex establishes procedures for carrying out
complete or partial evacuation of citizens from within the jurisdiction, focusing on
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movement by defining areas likely to be evacuated, determining destinations, and
outlining an approach for controlling the flow of traffic. Procedures for return
movement are also included.
· Identify high-hazard areas and number of potential evacuees;
· Coordinate evacuation planning to include:
· Movement control;
· Health/medical requirements;
· Transportation needs;
· Emergency public information materials; and
· Shelter/reception.
6.15.8 Annex H - Facilities Annex
The Facilities function provides for flexible emergency response including the design,
repair, restoration, and operation of City facilities. During a disaster event, the
Facilities Unit may play a key role in establishing site command posts, staging areas,
and other temporary facilities. The Facilities Unit would also be in a lead role for
relocating City staff from damaged buildings to secure sites. The Facilities Unit and
Fleet Unit will coordinate operation and maintenance of all generators that may be used
in the operation of City facilities.
· Ensure buildings critical to response efforts remain operational;
· Provide post-event inspections of City-owned facilities to determine extent of
damage (ATC 20 inspections);
· Establish temporary facilities as needed.
6.15.9 Annex I - Finance/Risk Management Annex
The purpose of this annex is to ensure appropriate records, required for local
governments to obtain State and Federal government reimbursement in the event of a
disaster, are kept, including compilations of damages, injury, and allocations of public
and private resources. This annex also provides for the maintenance of financial
systems during all phases of an emergency, in addition to tracking incident costs.
· Maintain records of emergency-related expenditures for purchases and personnel.
· Evaluate effect of damage on City economic index, tax base, bond ratings,
insurance ratings, etc., for use in long-range recovery planning.
6.15.10 Annex J - Fire and Rescue Annex
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The Fire and Rescue annex is designed to provide a formal operational plan which,
when implemented, will provide the City of Eugene with a firefighting capability able
to meet the demands of a disaster situation. In addition to firefighting, responsibilities
for rescue, civil disturbances, weather emergencies, and radiological defense operations
are addressed. The checklist format is designed to serve strictly as a memory guide and
is in no way intended to require implementation of every step or to necessarily list all
the steps that may be needed to effectively stabilize the disaster.
· Fire prevention and suppression;
· Search and rescue operations;
· Inspection of damaged area for fire hazards; and
· Hazardous spills containment and clean-up.
6.15.11 Annex K - Law Enforcement Annex
Law enforcement provides resources to maintain civil order and ensure security of
citizens, property, and, when necessary, incident scenes at which there is need for
protection of evidence pending collection and corresponding investigation. This annex
covers responsibilities and procedures for maintaining security and order under crisis
conditions and eventual recovery. Procedures for augmenting forces during
emergencies are also described.
· Law enforcement;
· Traffic and crowd control;
· Isolation of damaged area(s);
· Damage reconnaissance and reporting; and
· Security at the Emergency Operations Center (EOC).
6.15.12 Annex L - Legal Annex
The purpose of the Legal annex is to provide a plan for utilizing emergency powers of
government that can be activated during disaster situations and to advise staff and
officials on specific liabilities associated with disaster response and recovery activities.
The following activities may require legal advice:
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· Implement wage, price, and rent controls;
· Establish rationing of critical resources;
· Establish curfews;
· Restrict or deny access;
· Specify routes of egress;
· Limit or restrict use of water or other utilities;
· Use any publicly or privately owned resource with or without payment to the
owner;
· Review and advise City officials on possible liabilities arising from disaster
operations, including the exercising of any or all of the above powers;
· Prepare and/or recommend local legislation needed to implement emergency
powers;
· Advise City officials and department heads on record-keeping requirements and
other documentation necessary for exercising emergency powers.
6.15.13 Annex M - Medical Care and Transport Annex
The Emergency Medical Care and Transport annex is designed to provide a formal
operational plan to organize and effectively manage the use of emergency medical
personnel, facilities, and supplies. Efficient use of medical resources will assist in
minimizing casualty and disability from injury and illness. The checklist format is
designed to serve strictly as a memory guide and is in no way intended to require
implementation of every step or to necessarily list all the steps that may be needed to
effectively provide emergency medical care and transport to the citizens of Eugene and
surrounding community in the event of a disaster.
· Coordinate planning efforts of hospital and other health facilities with City
planning requirements;
· Coordinate patient loads of health facilities during emergencies;
· Coordinate triage and first aid activities immediately after disaster strikes,
including EMS; and
· Develop emergency health and sanitation standards and procedures.
6.15.14 Annex N - Public Information and Alert and Warning Annex
The goal of this functional activity is to increase public awareness of hazards and to
provide information to the public before, during, and after emergencies. This annex
also provides for the effective collection and dissemination of information to control
rumors. This annex establishes responsibilities and procedures to:
· Conduct ongoing hazard awareness and public education programs;
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· Compile and prepare emergency information for the public before an emergency
occurs;
· Receive and disseminate warning information to the public and key City officials;
· Disseminate emergency public information as requested;
· Arrange for media representatives to receive regular briefings on the City status
during extended emergency situations; and
· Handle unscheduled inquiries from the media and public.
6.15.15 Annex O - Public Works Annex
The Public Works function provides for a flexible emergency response capability
involving engineering, construction, repair, and restoration of essential public facilities
and infrastructure. During a disaster event, the Public Works Department may provide
support for heavy rescue operations and may play a key role in establishing
multipurpose staging areas and onsite command posts. Major responsibilities of the
Public Works Department during a disaster event include operation of the major street
system; sanitary and storm sewer collection system, pump stations, pressure mains, and
Regional Wastewater Treatment Plant; traffic control systems; debris removal; contract
repair of infrastructure; parks, maintenance of fleet vehicles; operation of Central Lane
9-1-1 radio systems; Eugene Airport; and key City buildings. Public Works will use
consultants and contractors to supplement in-house resources.
· Barricading of hazardous areas and unsafe infrastructures until repairs can be made;
· Priority restoration/protection of streets and bridges, as well as waste treatment and
collection systems;
· Augmentation of sanitation services;
· Provide fuel and repair for City fleet; and
· Operate and maintain emergency generators.
6.15.16 Annex P - Shelter and Mass Care Annex
In this Annex, the City's Library, Recreation, and Cultural Services Administration is
responsible for being the intermediary between the City of Eugene and the Oregon
Pacific Chapter of the American Red Cross in the event of an emergency requiring
shelter and mass care.
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Due to the nature of their mission, the Red Cross will assume the lead in establishing
shelters and mass care needs, working with other volunteer groups, Eugene School
District 4J, and the City's Library, Recreation, and Cultural Services Department.
If transportation is required for public evacuation, the Recreation representative will
relay those requests to the Lane Transit District (LTD) and to Eugene School District
4J.
· Maintain the Community Shelter Plan;
· Supervise the Shelter Management program (stocking, marking, equipping, etc.) for
natural disaster shelters;
· Coordinate support with City and County departments, relief agencies, and
volunteer groups;
· Identify emergency feeding sites;
· Identify clothing sources for disaster victims;
· Secure emergency food source supplies;
· Coordinate operations of shelter facilities, whether operated by the City, local
volunteers, or organized disaster relief agencies; and
· Coordinate special care requirement for sheltered groups, i.e., children, the elderly,
the disabled, etc.
6.15.17 Annex Q - Terrorism Annex
The purpose of this annex is to provide a crisis and consequence management plan for
responding to and recovering from a terrorist-initiated weapon of mass destruction
(WMD) incident. This annex supplements the Emergency Management Plan already
in effect and is intended to be used in conjunction with any and all existing functional
annexes that may need to be implemented in the course of responding to or recovering
from such an incident.
· Identify, acquire, and plan usage of resources needed to prevent or resolve a
terrorist threat or act;
· Protect public health and safety;
· Restore essential government services;
· Provide emergency relief to governments, businesses, and individuals affected by
consequences of terrorist act.
6.15.18 Annex R - Volunteer Coordination Annex
The purpose of this annex is to provide framework for efficient utilization of volunteers
during a disaster event. Volunteers are a valuable resource during disaster events
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throughout the response and recovery phases, and provide a great variety of skills,
talents, and eagerness to assist in disaster situations. The volunteer function must be
organized and efficient to ensure maximum utilization of this resource.
· Provide tracking and coordination of emergent volunteer efforts;
· Recruit volunteers when specific need is identified;
· Manage emergent volunteer staging area;
· Manage sign-up and check-in process for volunteer
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ATTACHMENT B
RESOLUTION NO.
A RESOLUTION ADOPTING THE NATIONAL
INCIDENT MANAGEMENT SYSTEM (NIMS) AS
THE STANDARD FOR INCIDENT MANAGEMENT
IN THE CITY OF EUGENE.
The City Council of the City of Eugene finds that:
A. The President in Homeland Security Directive (HSPD)-5, directed the
Security of the Department of Homeland Security to develop and administer a
National Incident Management System ("NIMS") which would provide a
consistent nationwide approach for Federal, State and local governments to work
together more effectively and efficiently to prepare for, prevent, respond to, and
recover from domestic incidents, regardless of cause, size or complexity.
B. HSPD-5 requires local governments to make adoption of the NIMS a
condition for Federal preparedness assistance beginning in fiscal year 2005.
C. To facilitate the most efficient and effective incident management, it is
critical that the City of Eugene utilize standardized terminology, organizational
structures, interoperable communications, consolidated action plans, unified
command structures, uniform personnel qualification standards, uniform
standards for planning, training and exercising, comprehensive resource
management, and designated incident facilities during emergencies or disasters.
D. The Incident Command System components of NIMS are already an
integral part of the various incident management activities throughout the City of
Eugene, including the Emergency Management Plan and emergency
management training programs.
NOW, THEREFORE,
BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY OF EUGENE,
a Municipal Corporation of the State of Oregon, as follows:
Section 1. Based on the above findings, which are hereby adopted, the
City of Eugene hereby establishes the National Incident Management System
(NIMS) as the City standard for incident management.
Section 2. This resolution shall become effective immediately upon its
adoption.
The foregoing Resolution adopted the ~ day of ,2005.
City Recorder
Resolution