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HomeMy WebLinkAboutEmerg Ops Plan Intro DocIntroduction This Emergency Operations Plan (EOP) establishes guidance for Deschutes County's (County) actions during response to, and short-term recovery from, major emergencies or disasters. It promulgates a framework within which the County will bring a combination of technical capabilities and resources, plus the sense, judgment, and expertise of its emergency response personnel, department directors, and other decision makers. Specifically, this EOP describes the roles and responsibilities of Deschutes County departments and personnel when an incident occurs, and it establishes a strategy and operating guidelines that support implementation of the National Incident Management System (NIMS), including adherence to the concepts and principles of the Incident Command System (ICS). The County views emergency management planning as a continuous process that is linked closely with training and exercises to establish a comprehensive preparedness agenda and culture. The Emergency Manager will maintain the EOP through a program of continuous improvement, including ongoing involvement of County departments and of agencies and individuals with responsibilities and interests in these plans. 1.1 Purpose and Scope 1.1.1 Purpose The Deschutes County Emergency Operations Plan (EOP) provides a framework for coordinated response and recovery activities during any type or size of emergency. This plan is primarily applicable to extraordinary situations; it is not intended for use in response to typical, day-to-day, emergency situations. The plan also provides specific information on direction and control, with guidance for all first responders and governmental agencies on emergency tasks supporting all phases of an emergency. This EOP compliments the State Emergency Operations Plan and the National Response Framework (NRF). It also identifies all Emergency Support Functions (ESF) and critical tasks needed to support a wide range of response activities. The objectives of this plan are to: • Provide overarching operational structure to support the primary responsibilities of Deschutes County response agencies (the County) during all phases of an emergency; 1-1 Deschutes County EOP Basic Plan 1. Introduction • Integrate multi -agency, regional, and, if applicable, tribal coordination into emergency operations through implementation of the Incident Command System (ICS)/National Incident Management System (NIMS); • Establish clear lines of authority and succession during any type of emergency; • Define roles and responsibilities spanning various departments, agencies, divisions, and management levels in support of critical functions; • Outline clear guidelines and procedures for ensuring consistent and timely release of emergency public information; • Provide procedures and criteria for requesting and allocating essential resources to support overall emergency operations; and • Provide a base for emergency operations plans developed by each incorporated municipality within Deschutes County. The Basic Plan is supplemented by Emergency Support Function (ESF) Annexes and Incident Annexes (IA)s: • ESF Annexes focus on critical operational functions and is the positions responsible for carrying them out. These annexes clearly describe the policies, processes, roles, and responsibilities that agencies and departments carry out before, during, and after any emergency. • IAs focus on the special planning needs generated by the a particular hazard and contain unique and regulatory response details that apply to a single hazard. Basic Plan Department Standard Operating Procedures 1-2 Deschutes County EOP Basic Plan 1. Introduction (so 1.1.2 Scope This plan incorporates procedures supporting all facilities, operations, and personnel to be relied on during any type of emergency. The Deschutes County EOP supports a program for emergency management consistent with and supplemental to the State of Oregon Emergency Management Plan (EMP). In addition, it functions as a bridge between local, State, and Federal emergency management systems. Organized as a Basic Plan, the County EOP describes roles, responsibilities, and concepts of operations, command, and control, while clearly defining escalation pathways and legal authorities involved with critical decision making and resource allocation by local and county governments. Fifteen ESF Annexes supplement the information in the Base Plan and are consistent with support functions identified in State and Federal plans. Each ESF serves as an operational -level mechanism for identifying primary and support entities to maintain capabilities for providing resources and services most likely needed throughout all phases of an emergency. If capabilities or resources prove limited or unavailable to the County during an emergency or disaster, escalation pathways and resource request procedures are clearly defined in each ESF for seeking additional resources through State or Federal agencies. Additionally, Incident Annexes (IA) are included with the Basic Plan to provide tactical information and critical tasks unique to specific natural and man- made/technological hazards that could pose a threat to Deschutes County. Incident types are based on the hazards identified in the most recent Hazard Identification and Vulnerability Assessment conducted for the County. Incident - specific annexes in support of the Deschutes County EOP include the following. Deschutes Count Incident Annexes !As Annex Number Hazard IA 1 Severe Weather IA 2 Flood (including dam failure) IA 3 Wildfire IA 4 Hazardous Materials (accidental release) IA 5 Terrorism (including WMD and CBRNE incidents) IA 6 Earthquake/Seismic Activity IA 7 Volcanic Activity Note: Resource shortages and civil disobedience are considered secondary risks during any emergency situation. The intent of the Deschutes County EOP is to provide guidance and procedural information necessary to respond to any type of incident impacting a significant 1-3 Deschutes County EOP Basic Plan 1. Introduction portion of the County. Individual communities and incorporated cities may maintain similar plans or procedures for implementation in response to localized incidents or initial activities prior to escalation to the County. If the County EOP is activated during an incident or countywide emergency declaration, cities and communities will adopt command and control structure and procedures representative of county response operations. Procedures supporting NIMS implementation and training for the County have been developed and formalized by Deschutes County Emergency Services. When combined with the EOP, ESFs, and IAs, can be collectively referred to as a Comprehensive Emergency Management Plan for the County. Thus, each document lends a unique set of procedures and guidelines for supporting emergency preparedness, response, and recovery. 1.1.3 Mission Deschutes County's mission in a disaster is to protect and maintain safety and to ensure the implementation of the following response actions: • Determine and implement search and rescue, evacuation, and protective actions. • Support disaster medical operations, including casualty management. • Support requests for response resources. • Coordinate terrorism response with local, State, and Federal agencies. • Strive to maintain the availability of critical services in the absence of normal infrastructure. 1.2 Relationship to Other Plans Homeland Security Presidential Directive -5 directed the Secretary of Homeland Security to develop, submit for review by the Homeland Security Council, and administer NIMS and NRF. NIMS, including ICS, enhances the management of emergency incidents by establishing a single comprehensive system and coordinated command structure to help facilitate a more efficient response among departments and agencies at all levels of government and, if necessary, spanning across jurisdictions. The National Response Framework organizes the types of Federal response assistance a state is most likely to need into 15 ESFs. Each ESF has a primary agency assigned for maintaining and coordinating response activities. Oregon's EMP, Volume II, follows the ESF format in designating similar State Support Functions (SSFs). 1-4 Deschutes County EOP Basic Plan 1. Introduction 1.2.1 State of Oregon Emergency Management Plan The Oregon EMP is developed, revised, and published by the Director of Oregon Emergency Management (OEM) under the provisions of Oregon Revised Statutes (ORS) 401.270, which are designed to coordinate the activities of all public and private organizations that provide emergency services within this state and to provide for and staff a State Emergency Coordination Center to aid the Governor of Oregon (Governor). ORS 401.035 makes the Governor responsible for the emergency services system within the State of Oregon. The Director of OEM advises the Governor and coordinates the State's response to an emergency or disaster. The Oregon EMP includes three volumes: • Volume I: Preparedness and Mitigation includes plans and guidance necessary for State preparation to resist a disaster's effects. Sections include: disaster hazard assessment, the Emergency Management Training and Exercise Program, and plans to mitigate (or lessen) a disaster's physical effects on citizens, the environment, and property. • Volume II: Emergency Operations Plan, referred to as the Basic Plan, broadly describes how the State uses organization to respond to emergencies and disasters. It delineates the emergency management organization and includes a Hazard Specific Plans and Procedures appendix. Volume II describes management functional areas common to most major emergencies or disasters, such as communications, public information, and others. • Volume III: Relief and Recovery provides State guidance, processes, and rules for assisting Oregonians with recovery from a disaster's effects. It includes procedures for use by government, business, and citizens. Activation and implementation of the Oregon EMP (or specific elements of the plan) may occur under various situations. The following criteria would result in activation of the EMP, including the EOP: • The Oregon Emergency Response System (OERS) receives an alert from an official warning point or agency, indicating an impending or probable incident or emergency. • The Governor issues a "State of Emergency." • A statewide disaster is imminent or occurring. • Terrorist activities or Weapons of Mass Destruction (WMD) incidents are occurring or imminent. 1-5 Deschutes County EOP Basic Plan 1. Introduction • An alert, site emergency, or general emergency is declared at the Washington Hanford Nuclear Reservation in Washington State or at the research reactors at Oregon State University and/or Reed College. • A community emergency (or other appropriate Chemical Stockpile Emergency Preparedness Program Emergency Classification Level) involving the Umatilla Chemical Depot occurs. • A localized emergency escalates, adversely affecting a larger area or jurisdiction and exceeding local response capabilities. • A geographically -limited disaster requires closely coordinated response by more than one state agency. • An affected city or county fails to act. 1.2.2 Continuity of Operations Plans Deschutes County has not developed Continuity of Operations (COOP) to date. However, once they have been developed and implemented for the County, these plans may be used in conjunction with the EOP during various emergency situations. COOP plans detail the processes for accomplishing administrative and operational functions during emergencies that may disrupt normal business activities. Part of these plans identifies essential functions of county and local government, private sector businesses, and community services and delineates procedures developed to support their continuation. COOP elements may include but are not limited to: • Ensuring the County's continuous functions and operations during an emergency; • Maintaining clear lines of authority and, when necessary, implementing the approved line of succession and proper delegation of authority; • Protecting critical facilities, equipment, vital records, and other assets; • Reducing or mitigating disruptions to operations and essential community services; • Reducing loss of life, minimizing property damage, and protecting the local economy from significant impacts; and • Achieving a timely and orderly recovery from emergencies and resumption of full services to the public. 1.2.3 City Emergency Operations Plans The Deschutes County EOP provides a basis of information for emergency operations plans developed by each incorporated municipality within Deschutes 1-6 Deschutes County EOP Basic Plan 1. Introduction County. The following incorporated municipalities are located in Deschutes County: • City of Bend • City of LaPine • City of Redmond • City of Sisters Deschutes County also includes special districts such as the community of Sunriver and Black Butte Ranch. All city and special district EOPs are to be consistent with the County EOP and each should compliment the other resulting in streamlined emergency planning and response efforts within the County. 1.2.4 Agency and Organization -Specific Plans A number of agency -specific plans and organizational procedures are available to support the County EOP and individual ESF. These plans and procedures are interrelated and have a direct influence on the County's preparation prior to a major emergency or disaster, its activities in response to such an emergency or disaster, and its ability to successfully recover from such incidents or events. These plans also provide local, county, regional, and state agencies and entities with a consolidated framework for coordinating activities and resources, thus promoting efficient use of resources during all phases of emergency management. 1.3 Authorities The following section highlights significant county and state regulations and plans governing activities for responding to major emergencies and disasters. Under the provisions of Homeland Security Presidential Directive -5, the Secretary of Homeland Security is the principal Federal official for domestic incident management. 1.3.1 Legal Authorities This plan is issued in accordance with and under the provisions of ORS Chapter 401, and establishes the procedures outlined in Deschutes County Ordinance and adopted by the Deschutes County Board of Commissioners (BOC). It is compatible with the Deschutes County authorizing policy which established a County Emergency Management program, under the direction of the Emergency Services Program Manager and adopted the County's Emergency Operations Plan, as authorized in ORS 401.305. Table 1-1 sets forth the Federal, state, and local legal authorities upon which the organizational and operational concepts of this EOP are based. 1-7 Deschutes County EOP Basic Plan 1. Introduction Table 1-1 Le • aI Authorities Federal — Federal Civil Defense Act of 1950, PL 81-950 as amended — The Disaster Relief Act of 1974, PL 93-288 as amended — Robert T. Stafford Disaster Relief and Emergency Assistance Act, PL 100-707 — Title I11, of the Superfund Amendments and Reauthorization Act of 1986, PL 99- 499 as amended — Code of Federal Regulations (CFR), Title 44. Emergency Management Assistance — EO 12656, Assignment of Emergency Preparedness Responsibilities, of November 18, 1988 - EO 12472, Assignment of National Security and Emergency Preparedness Telecommunications Functions, of April 3, 1984 State of Oregon — ORS Chapter 401 — Emergency Management and Services. — ORS Chapter 402 — Emergency Mutual Assistance Agreements — ORS Chapter 403 — Emergency Communications — ORS Chapter 404 — Search and Rescue — Executive Order of the Governor Deschutes County — Deschutes County Ordinance 1.3.2 Mutual Aid and Intergovernmental Agreements State law (ORS Chapter 402) authorizes local governments to enter into Cooperative Assistance Agreements with public and private agencies in accordance with their needs (e.g., the Omnibus Mutual Aid Agreement). Personnel, supplies, and services may be used by a requesting agency if the granting agency cooperates and extends such services. However, without a mutual aid pact, both parties must be aware that state statutes do not provide umbrella protection except in the case of fire suppression pursuant to ORS 476 (the Oregon State Emergency Conflagration Act). Existing Mutual Aid Agreements are identified in Appendix E of this plan. Copies of these documents can be accessed through the Emergency Services Division. During an emergency situation, a local declaration may be necessary to activate these agreements and allocate appropriate resources. 1.4 Emergency Powers 1.4.1 Declaration of Emergency The Board of County Commissioners is responsible for declaring a state of emergency for Deschutes County. Based on local codes and state statutes, a local declaration can allow Deschutes County flexibility in managing resources under emergency conditions such as: 1-8 Deschutes County EOP Basic Plan ■ ■ ■ 1. Introduction Diverting funds and resources appropriated for other purposes in order to meet immediate needs. Authorizing activation of local emergency operations plans and implementation of extraordinary protective measures. Initiating mutual aid and cooperative assistance agreements, and receiving resources from other organizations or individuals, including additional funding. • Providing specific legal protection for actions initiated under emergency conditions. • Setting the stage for requesting state and/or federal assistance to augment local resources and capabilities. 1.4.1.1 Initial Damage Assessment (IDA) In order to receive assistance from the State, the County must prepare an Initial Damage Assessment. A sample IDA is included as an appendix to this Plan. The IDA and Declaration of a Local State of Emergency are attached to the County Request for State Assistance letter and form sent to the Governor to declare a State Emergency. This provides the basis of a Federal Disaster Declaration and Federal disaster funding. 1.4.1.2 Joint Preliminary Damage Assessment (PDA) OEM Criteria for Declaring a Local Emergency: • Describe the circumstances impacting an identified area; • Identify the problems for which assistance is needed; and • Clearly state what has been done locally to respond to the impact and needs. Requests for State/Federal assistance need to include: • Language stating that local and county, mutual aid resources are depleted or nearly so. • Specific assistance requirements to be requested (e.g., type and quantity of equipment needed, purpose for which it is needed, and location of the area in need. Multiple requests on the same declaration may be necessary. Be as detailed as possible, and explain the requested mission, not "who" could provide the requested resources. • Time element: expected duration of event or expected time required to gain control If Deschutes County has conducted an IDA and a request for federal assistance is anticipated, the Director of Oregon Emergency Management may request the FEMA regional office to conduct a joint Preliminary Damage Assessment. This involves a team of local, state, and federal personnel jointly reviewing the local IDA to verify and expand upon findings to further justify a request for federal assistance. Such an assessment will assist the Governor in determining whether federal assistance is necessary, and it will serve to support a request for a Presidential emergency or major disaster declaration. 1-9 Deschutes County EOP Basic Plan 1. Introduction The request and supporting information from local officials must be submitted to the Governor through the Director of Oregon Emergency Management as prescribed under ORS 401. If it is determined that local and state resources are insufficient to meet the needs of the area impacted, the Governor may submit a request to the President through the FEMA Regional Director. Stafford Act disaster assistance generally follows a cost share of 75% federal and 25% non- federal. 1.4.2 Continuity of Government The Chair of the Board of County Commissioners is the chief executive local authority for the unincorporated area of the county and is principally responsible for assuming centralized control over all county departments, divisions, and offices once the Board declares a state of emergency. If circumstances prohibit the timely action of the Board of County Commissioners, the Chair of the Board of County Commissioners may declare such a state of emergency, provided the Chair seeks and obtains approval from a majority of the e board at the first available opportunity. A state of emergency exists whenever the unincorporated area of the county or any part thereof is suffering or is in imminent danger of suffering an event that may cause injury or death to persons, or damage to or destruction of property to the extent that extraordinary measures must be taken to protect the public health, safety, and welfare. Such an event shall include, but not be limited to the following: • A civil disturbance or riot; • A disaster such as flood, windstorm, snow or ice storm, earthquake, volcanic eruption or related activity, fire, explosion or epidemic; • The declaration of a war -caused national emergency; • Any major disruption of community services such as transportation, power supply, water supply, sanitation or communications; and/or • A health hazard, whether natural or manmade. The Chair of the Board of County Commissioners is also responsible for performing the Board of County Commission's duties to declare a state of emergency, designate emergency area(s), and/or impose regulations when the Board of County Commissioners is unable or unavailable to perform such duties. Table 1-2 shows the lines of succession for Deschutes County's Emergency Management Organization: 1-10 c, Deschutes County EOP Basic Plan Table 1-2 1. Introduction Deschutes County Emergency Lines of Succession Emergency Policy and Governance Emergency Operations Emergency Manager Board Chair Vice Chair 3rd Member of the Board Deschutes County Sheriff County Administrator Each County department is responsible for pre -identifying staff patterns showing a line of succession in management's absence. All employees must be trained on the protocols and contingency plans required to maintain leadership within the department. The EMBD or designee identified above will provide guidance and direction to department heads to maintain continuity of government and operations during an emergency. Individual department heads within Deschutes County are responsible for developing and implementing COOP/COG Plans to ensure continued delivery of vital services during an emergency. 1.4.3 Request, Allocation, and Distribution of Resources Resource typing is a method for standardizing nomenclature used when requesting equipment and managing resources during an incident; NIMS approves this method for ordering supplies and providing mutual aid to partners during an emergency. Within many of the resource types are divisions for size, power, or quantity. These are commonly listed as Type I, Type II, Type III, and so on. If interpreted properly, a resource typing list can increase the usefulness of the tools requested in an emergency and may reduce costs by eliminating orders for equipment inaccurate or inappropriate for the situation. Response personnel and support staff should practice using resource typing lists and become familiar with the standard terminology for commonly requested resources. Table 1-3 NIMS Resource T • in • Classifications NIMS Classification Definition Options Category Function that the resource supports. • Transportation • Communications • Public Works and Engineering • Firefighting • Information and Planning • Law Enforcement and Security • Mass Care • Resource Management • Health and Medical • Search and Rescue Deschutes County EOP Basic Plan 1. Introduction Table 1-3 NIMS Resource T NIMS Classification Definition Options • Hazardous Materials Response • Food and Water • Energy • Public Information • Animals and Agricultural Issues • Volunteers and Donations Kind Refers to broad classes that characterize similar resources ■ Teams ■ Personnel ■ Equipment • Supplies ■ Vehicles • Aircraft Components Identifies separate capabilities or components contained within a single resource For example, a search and rescue team may have the following components: two -person search teams, four search canines, and an equipment cache. Metrics Measurements that identify capability or capacity Examples are gallons per hour, seats per bus, number of meals, etc. Type Refers to the level of resource capability • Type I (greatest capability) • Type II • Type III • Type IV (least/smallest capability) Refer to ESF 7 for more detailed information on available resources and coordination procedures established for the County. 1.4.4 Financial Management Refer to ESFs 5 and 14 for additional information regarding financial management procedures to be used throughout the duration of an emergency or disaster. 1.5 Liability Issues The Oregon Revised Statutes (401.515) provides that "during the existence of an emergency, the state and any local government, while complying with 401.015 to 401.105, 401.260 to 401.325 and 401.355 to 401.580 or any rule promulgated under those sections, shall not, except in cases of willful misconduct, gross negligence or bad faith, be liable for the death or injury of any person, or damage or loss of property, as a result of this activity - 1 -12 Deschutes County EOP Basic Plan 1. Introduction It is impossible to anticipate all varying factors, which may occur in an emergency situation. This EOP and its annexes is a guide to approaching emergency situations. No provision in the EOP and its supporting chapters is intended to be mandatory. This plan may be carried out in a flexible manner. This plan should not be interpreted as a guarantee that any specific task will be done in a specific order or that any specific task will be done at all. The EOP represents, what appears to be, at the time of its adoption, an optimal approach to an emergency situation. It does not create a right to rely on the County, its employees, officers, or agents to carry out the plan in any particular manner or at all. Property owners, citizens, and visitors should not rely on this plan to assure the operation or availability of any public service. Individual property owners should develop an emergency plan to prevent property damage or loss of life. Property owners should not rely on this plan to protect their property from damage or destruction. Property owners should develop their own plan for dealing with emergency situations. Any emergency situation will most likely involve other units of City, County, State, or Federal government. Other units of government should not rely on this plan to be implemented. Liability of Response Partners Liability issues and potential concerns among government agencies, private entities, other response partners, and across jurisdictions are addressed in existing mutual aid agreements and other formal memoranda established for Deschutes and its surrounding areas. Existing mutual aid agreements are identified in Appendix E of this plan. Copies of these documents can be accessed through the County Emergency Services Program. During an emergency situation, a local declaration may be necessary to activate these agreements and allocate appropriate resources. Under Oregon law, all local jurisdictions are members of a statutorily created mutual assistance compact (ORS 402). This compact, meant to streamline the mutual aid process, allows local jurisdictions to request assistance from another local government to prevent, mitigate, respond to, or recover from an event that overwhelms the requesting jurisdictions available resources. Assistance may also be requested for training, drills, or exercises. Requests may be either written or oral, although if a request for assistance is made orally the responding government must document its response within 30 days of the request. Under these provisions, employees from another jurisdiction providing assistance to Deschutes County are agents of the County. The County must defend, save harmless, and indemnify these employees as it would its own employees. Should an employee of a responding government sustain injury in the course of providing requested assistance, the person is entitled to all applicable benefits, including workers' compensation, normally available to the employee while performing 1-13 Deschutes County EOP Basic Plan 1. Introduction regular duties for the responding local government. Deschutes County is not obligated to provide resources to the requesting jurisdiction. This language supplements other state law authorizing local governments to enter into cooperative assistance agreements with public or private entities for reciprocal emergency aid and resources. The Chair of the Deschutes County Board of Commissioners or the full Board may request and utilize the services, equipment, supplies, and facilities of departments, offices, and agencies of the State and local governments. Except in cases of willful misconduct, gross negligence, or bad faith, emergency service workers acting under these provisions will not be held liable for the death or injury of any person, or damage or loss of property, as a result of that activity. Note that under the Emergency Conflagration Act (ORS 476.510-610), the Governor (or other authorized state officer), through the State Fire Marshal's Office, may make available for use and duty in any county, city or district, any part of the local fire -fighting forces and equipment in response to fire, a heightened danger of fire, or a significant reduction in available fire -fighting resources. Response personnel acting under these provisions will be considered agents of the State and will not be held liable for any injury to person or property resulting from the performance of their duties. 1.6 Preservation of Vital Records Each department in the County will identify, maintain, and protect its vital records. Vital records and documents which require safeguarding fall into three general categories: • Records that protect the rights and interests of individuals; vital statistics, land and property records, financial and tax records, election records, license registers, articles of incorporation, etc.; • Records required for effective emergency operations; plans, procedures, resource inventories, lists of succession, maps, memorandums of understanding, agreements, and lists of regular and auxiliary personnel; • Records required to re-establish normal governmental functions and protect the rights and interests of government; federal and state laws, rules and regulations, official proceedings, financial and court records. Sungard, Inc. maintains financial electronic data files off site at secure locations. 1.7 Safety of Employees and Family All Deschutes County department heads or designees are responsible for the safety of employees. Employees should attempt to make contact with their supervisors and managers within the first 24 hours following an incident. Emergency 9-1-1 should not be utilized as a common communication mechanism 1-14 Deschutes County EOP Basic Plan 1. Introduction unless it is reflective of a need for emergency assistance or resources. Agencies and bureaus with developed COOPs will establish alternate facilities and staff locations, as applicable. Notification procedures for employee duty assignments will follow required procedures established by each agency and department. During biological incidents or public health emergencies such as influenza pandemics, maintaining a resilient workforce is essential to maintaining overall response activities required to protect the community and overall county from significant impacts to human lives and the economy. Thus, personnel should be provided with tools to protect themselves and their families while also providing health and medical services during a pandemic or other type of public health emergency. Safety precautions and personal protective equipment decisions will be specific to the type of incident occurring and will require just -in -time training among the first responder community and other support staff to implement appropriate procedures. If necessary, the Oregon Occupational Safety and Health Administration (OSHA) may provide assistance and guidance on worker safety and health issues. Information on emergency procedures and critical tasks involved in a biological emergency incident or disease outbreak is presented in ESF 8 and in this EOPs Incident Annexes. 1-15