13-Resolution revising the City of Paris Emergency Management PlanCITY COUNCIL AGENDA ITEM BRIEFING SHEET
Submittal Date:
Originating Department:
Presented By:
Agenda Item No.:
O1/19/10
Council Date:
Police
Asst. Chief Randy Tuttle
13.
O1/2$/10
RECOMMENDED MOTION:
Move to approve a resolution revising the City of Paris Emergency Management Plan.
POLICY ISSUE(S):
Emergency management
BACKGROUND:
The Texas Department of Emergency Management requires cities to review and revise their local
Emergency Management Plan every five years. The City of Paris Emergency Management Plan is
scheduled for revision in 2010. The Basic Plan must be approved by City Council and requires the
signature of mayor and city manager. The proposed revisions to the Plan reflect changes required by the
State. Following Council approval, the Plan will be submitted to the Texas Department of Emergency
Management for their approval.
BOARD/COMMISSION RECOMMENDATION:
EXHIBITS:
Resolution with Emergency Management Plan
ACTION:
BUDGET INFO:
❑ Financial Report ❑ Minute Order
Expense
$
❑ Department Report ~ Resolution
Budgeted Amt.
$
E Presentation ❑ Ordinance
y'I'D Actual
$
❑ Public Hearing ❑ Other
Acct. Name
Acct. Number
FiscAL NoTES:
REVIEWED AND APPROVED BY:
Z Administtation E City Clerk ❑ Community Development ❑ EMS/IT ❑ Finance ❑ Fire
❑ Municipal Court Z Legal ❑ Library Z Police ❑ Eng./Public Works ❑ Uriliries
City of Paris Revised 2/04/08
DRAFT
attorney\reswork\current\Emergency management Plan Revision Res 2010
RESOLUTION 1V0.
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF PARIS, TEXAS,
APPROVING AND AUTHORIZING THE IMPLEMENTATION OF A CITY OF
PARIS EMERGEIVCY MANAGEMENT PLAN; MAKING OTHER FINDINGS
AND PROVISIONS RELATED TO THE SUBJECT; AND DECLARING AN
EFFECTIVE DATE.
WHEREAS, various departments and staff inembers of the City of Paris have
prepared an Emergency Management Plan for the City of Paris; and,
WHEREAS, the Ciry Council desires to approve the aforesaid Emergency
Management Plan and authorize the City Manager to fully implement same.
NOW, THEREFORE, BE IT RESOLVED BY THE CITY COUIVCIL OF THE CITY OF
PARIS, TEXAS:
Section 1. That the findings set out in the preamble to this resolution are hereby
in all things approved.
Section 2. That the Ciry Council does hereby approve an Emergency Management
Plan for the City of Paris, as the same is attached hereto and for all purposes incorporated
herein, and the City Manager shall be and is hereby authorized to in all things fully
implement said Emergency Management Plan.
Section 3. That this resolution shall be effective from and after its date of passage.
PASSED AND APPROVED this 25th day of January, 2010.
Jesse James Freelen, Mayor
ATTEST:
Janice Ellis, City Clerk
APPROVED AS TO FORM:
Kent McIlyar, City Attorney
70 l`L) Li 0 80"
EMERGENCY
MANAGEMENT
PLAN
FOR
(Jurisdiction)
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APPROVAL & IMPLEMENTATION
The [City of / County]
Emergency Management Plan
This emergency management plan is hereby approved. This plan is effective immediately and
supercedes all previous editions.
County Judge
Mayor
Mayor
Date
Date
Date
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O
RECORD OF CHANGES
Basic Plan
Date
Change # of Change Change Entered By Date Entered
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~
TABLE OF CONTENTS
BASIC PLAN
1. AUTHORITY ........................................................................................................................1
A. Federal 1
B. State 1
C. Local 1
II. PURPOSE ...........................................................................................................................1
III. EXPLANATION OF TERMS ................................................................................................2
A. Acronyms
2
B. Definitions
2
IV. SITUATION AND ASSUMPTIONS
...5
A. Situation
5
B. Assumptions
6
V. CONCEPT OF OPERATIONS
...6
A. Objectives
6
B. General
6
C. Operational Guidance
8
D. Incident Command System (ICS)
9
E. ICS - EOC Interface
9
F. State, Federal & Other Assistance
10
G. Emergency Authorities
11
H. Actions by Phases of Emergency Management
12
VI. ORGANIZATION AND ASSIGNMENT OF RESPONSIBILITIES
.13
A. Organization
13
B. Assignment of Responsibilities
14
VII. DIRECTION AND CONTROL
.24
A. General
24
B. Emergency Facilities
25
C. Line of Succession
26
VIII. READINESS LEVELS
.26
IX. ADMINISTRATION AND SUPPORT .................................................................................29
A. Agreements and Contracts 29
B. Reports 29
2. Preservation of Records 30
D. Training 31
E. Consumer Protection 31
F. Post-Incident and Exercise Review 31
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X. PLAN DEVELOPMENT AND MAINTENANCE .................................................................31
A. Plan Development 31
B. Distribution of Planning Documents 31
C. Review 32
D. Update 32
ATTACHMENTS
ATTACHMENT 1: Distrubution List 1-1
ATTACHMENT 2: References 2-1
ATTACHMENT 3: Organization for Emergency Management 3-1
ATTACHMENT 4: Emergency Management Functional Responsibilities 4-1
ATTACHMENT 5: Annex Assignments 5-1
ATTACHMENT 6: Summary of Agreements & Contracts 6-1
ATTACHMENT 7: National Incident Management System Summary 7-1
ANNEXES (distributed under separate cover)
Annex A - Warning
A-1
Annex B - Communications
B-1
Annex C- Shelter & Mass Care
C-1
Annex D- Radiological Protection
D-1
Annex E - Evacuation
E-1
Annex F - Firefighting
F-1
Annex G- Law Enforcement
G-1
Annex H- Health & Medical Services
H-1
Annex I- Public Information
I-1
Annex J - Recovery
J-1
Annex K- Public Works & Engineering
K-1
Annex L- Energy & Utilities
L-1
Annex M- Resource Management
M-1
Annex N- Direction & Control
N-1
Annex O- Human Services
0-1
Annex P- Hazard Mitigation
P-1
Annex Q- Hazardous Materials & Oil Spill Response
Q-1
Annex R- Search & Rescue
R-1
Annex S - Transportation
S-1
Annex T- Donations Management
T-1
Annex U - Legal
U-1
Annex V- Terrorist Incident Response
V-1
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BASIC PLAN
1. AUTHORITY
A. Federal
1. Robert T. Stafford Disaster Relief & Emergency Assistance Act, (as amended), 42
U.S.C.5121
2. Emergency Planning and Community Right-to-Know Act, 42 USC Chapter 116
3. Emergency Management and Assistance, 44 CFR
4. Hazardous Waste Operations & Emergency Response, 29 CFR 1910.120
5. Homeland Security Act of 2002
6. Homeland Security Presidential Directive. HSPD-5, Management of Domestic Incidents
7. Homeland Security Presidential Directive, HSPD-3, Homeland Security Advisory System
8. National Incident Management System
9. National Response Plan
10. National Strategy for Homeland Security, July 2002
11. Nuclear/Radiological Incident Annex of the National Response Plan
B. State
1. Government Code, Chapter 418 (Emergency Management)
2. Government Code, Chapter 421 (Homeland Security)
3. Government Code, Chapter 433 (State of Emergency)
4. Government Code, Chapter 791 (Inter-local Cooperation Contracts)
5. Health & Safety Code, Chapter 778 (Emergency Management Assistance Compact)
6. Executive Order of the Governor Relating to Emergency Management
7. Executive Order of the Governor Relating to the National Incident Management System
8. Administrative Code, Title 37, Part 1, Chapter 7(Division of Emergency Management)
9. The Texas Homeland Security Strategic Plan, Parts I and II, December 15, 2003
10. The Texas Homeland Security Strategic Plan, Part III, February 2004
C. Local
1. City Ordinance # , dated
2. Commissioner's Court Order # , dated
3. Joint Resolution between the County of and the [City/Cities] of
dated
4. Inter-local Agreements & Contracts. See the summary in Attachment 6.
I1. PURPOSE
This Basic Plan outlines our approach to emergency operations, and is applicable to
[County/City(ies)]. It provides general guidance for emergency management activities and an
overview of our methods of mitigation, preparedness, response, and recovery. The plan
describes our emergency response organization and assigns responsibilities for various
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emergency tasks. This plan is intended to provide a framework for more specific functional
annexes that describe in more detail who does what, when, and how. This plan applies to all
local officials, departments, and agencies. The primary audience for the document includes our
chief elected official and other elected officials, the emergency management staff, department
and agency heads and their senior staff members, leaders of local volunteer organizations that
support emergency operations, and others who may participate in our mitigation, preparedness,
response, and recovery efforts.
111. EXPLANATION OF TERMS
A. Acronyms
AAR
After Action Report
ARC
American Red Cross
CFR
Code of Federal Regulations
DDC
Disaster District Committee
DHS
Department of Homeland Security
EOC
Emergency Operations or Operating Center
FBI
Federal Bureau of Investigation
FEMA
Federal Emergency Management Agency,
Department of Homeland Security
Hazmat
Hazardous Material
HSPD-5
Homeland Security Presidential Directive 5
ICP
Incident Command Post
ICS
Incident Command System
IP
Improvement Plan
JFO
Joint Field Office
JIC
Joint Information Center
NIMS
National Incident Management System
NRP
National Response Plan
OSHA
Occupational Safety & Health Administration
PIO
Public Information Officer
SOPs
Standard Operating Procedures
SOC
State Operations Center
TRRN
Texas Regional Response Network
TSA
The Salvation Army
B. Definitions
an element of the U.S.
Area Command (Unified Area Command). An organization established (1) to oversee
the management of multiple incidents that are each being managed by an ICS
organization or (2) to oversee the management of large or multiple incidents to which
several Incident Management Teams have been assigned. Sets overall strategy and
priorities, allocates critical resources according to priorities, ensures that incidents are
properly managed, and ensures that objectives are met and strategies followed. Area
Command becomes Unified Area Command when incidents are multijurisdictional.
2. Disaster District. Disaster Districts are regional state emergency management
organizations mandated by the Executive Order of the Governor relating to Emergency
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.
Management whose boundaries parallel those of Highway Patrol Districts and Sub-
Districts of the Texas Department of Public Safety.
3. Disaster District Committee. The DDC consists of a Chairperson (the local Highway
Patrol captain or command lieutenant), and agency representatives that mirror the
membership of the State Emergency Management Council. The DDC Chairperson,
supported by committee members, is responsible for identifying, coordinating the use of,
committing, and directing state resources within the district to respond to emergencies.
4. Emerqencv Operations Center. Specially equipped facilities from which government
officials exercise direction and control and coordinate necessary resources in an
emergency situation.
5. Public Information. Information that is disseminated to the public via the news media
before, during, and/or after an emergency or disaster.
6. Emergency Situations. As used in this plan, this term is intended to describe a range of
occurrences, from a minor incident to a catastrophic disaster. It includes the following:
a. Incident. An incident is a situation that is limited in scope and potential effects.
Characteristics of an incident include:
1) Involves a limited area and/or limited population.
2) Evacuation or in-place sheltering is typically limited to the immediate area of the
incident.
3) Warning and public instructions are provided in the immediate area, not
community-wide.
4) One or two local response agencies or departments acting under an incident
commander normally handle incidents. Requests for resource support are
normally handled through agency and/or departmental channels.
5) May require limited external assistance from other local response agencies or
contractors.
6) For the purposes of the NRP, incidents include the full range of occurrences that
require an emergency response to protect life or property.
b. Emerqencv. An emergency is a situation that is larger in scope and more severe in
terms of actual or potential effects than an incident. Characteristics include:
1) Involves a large area, significant population, or important facilities.
2) May require implementation of large-scale evacuation or in-place sheltering and
implementation of temporary shelter and mass care operations.
3) May require community-wide warning and public instructions.
4) Requires a sizable multi-agency response operating under an incident
commander.
5) May require some external assistance from other local response agencies,
contractors, and limited assistance from state or federal agencies.
6) The EOC will be activated to provide general guidance and direction, coordinate
external support, and provide resource support for the incident.
7) For the purposes of the NRP, an emergency (as defined by the Stafford Act) is
"any occasion or instance for which, in the determination of the President,
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Federai assistance is needed to supplement State and locai efforts and
capabilities to save lives and to protect property and public health and safety, or
to lessen or avert the threat of catastrophe in any part of the United States."
c. Disaster. A disaster involves the occurrence or threat of significant casualties and/or
widespread property damage that is beyond the capability of the local government to
handle with its organic resources. Characteristics include:
1) Involves a large area, a sizable population, and/or important facilities.
2) May require implementation of large-scale evacuation or in-place sheltering and
implementation of temporary shelter and mass care operations.
3) Requires community-wide warning and public instructions.
4) Requires a response by all local response agencies operating under one or more
incident commanders.
5) Requires significant external assistance from other local response agencies,
contractors, and extensive state or federal assistance.
6) The EOC will be activated to provide general guidance and direction, provide
emergency information to the public, coordinate state and federal support, and
coordinate resource support for emergency operations.
7) For the purposes of the NRP, a major disaster (as defined by the Stafford Act) is
any catastrophe, regardless of the cause, which in the determination of the
President causes damage of sufficient severity and magnitude to warrant major
disaster federal assistance.
d. Catastrophic Incident. For the purposes of the NRP, this term is used to describe
any natural or manmade occurrence that results in extraordinary levels of mass
casualties, property damage, or disruptions that severely affect the population,
infrastructure, environment, economy, natianal morale, and/or government functions.
An occurrence of this magnitude would result in sustained national impacts over
prolonged periods of time, and would immediately overwhelm local and state
capabilities. All catastrophic incidents are Incidents of National Significance.
7. Hazard Analysis. A document, published separately from this plan, that identifies the
local hazards that have caused or possess the potential to adversely affect public
health and safety, public or private property, or the environment.
8. Hazardous Material (Hazmat). A substance in a quantity or form posing an
unreasonable risk to health, safety, and/or property when manufactured, stored, or
transported. The substance, by its nature, containment, and reactivity, has the
capability for inflicting harm during an accidental occurrence. Is toxic, corrosive,
flammable, reactive, an irritant, or a strong sensitizer, and poses a threat to health and
the environment when improperly managed. Includes toxic substances, certain
infectious agents, radiological materials, and other related materials such as oil, used
oil, petroleum products, and industrial solid waste substances.
9. tncident of National Significance. An actual or potential high-impact event that requires
a coordinated and effective response by and appropriate combination of fiederal, state,
local, tribal, nongovernmental, and/or private sector entities in order to save lives and
minimize damage, and provide the basis for long-term communication recovery and
mitigation activities.
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C,
10. Inter-local aqreements. Arrangements between governments or organizations, either
public or private, for reciprocal aid and assistance during emergency situations where
the resources of a single jurisdiction or organization are insufficient or inappropriate for
the tasks that must be performed to control the situation. Commonly referred to as
mutual aid agreements.
11. Stafford Act. The Robert T. Stafford Disaster Relief and Emergency Assistance Act
authorizes federal agencies to undertake special measures designed to assist the
efforts of states in expediting the rendering of aid, assistance, emergency services, and
reconstruction and rehabilitation of areas devastated by disaster.
12. Standard Operating Procedures. Approved methods for accomplishing a task or set of
tasks. SOPs are typically prepared at the department or agency level. May also be
referred to as Standard Operating Guidelines (SOGs).
IV. SITUATION AND ASSUMPTIONS
A. Situation
Our [county/city] is exposed to many hazards, all of which have the potential for disrupting
the community, causing casualties, and damaging or destroying public or private property.
A summary of our major hazards is provided in Figure 1. More detailed information is
provided in our Hazard Analysis, published separately.
Figure 1
HAZARD SUMMARY
Likelihood of
Occurrence*
Estimated Impact on
Public Health & Safet
Estimated Impact
on Pro ert
Hazard T e:
See below
Limited Moderate Ma'or
Limited Moderate Ma'or
Natural
Drou ht
Earth uake
Flash Floodin
Floodin river or tidal
Hurricane
Subsidence
Tomado
Wildfire
Winter Storm
Technolo ical
Dam Failure
Ener /Fuel Shorta e
Hazmat/Oil S ill fixed site
HazmaUOil Spill (transport)
Major Structural Fire
Nuclear Facility Incident
Water S stem Failure
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~~~vl,90
Securit
Civil Disorder
Enem Milita Attack
Terrorism
" Likelihood of Occurrence: Unlikely, Occasional, Likely, or Highly Likely
B. Assumptions
Our [county/city] will continue to be exposed to and subject to the impact of those
hazards described above and as well as lesser hazards and others that may develop in
the future.
2. It is possible for a major disaster to occur at any time and at any place. In many cases,
dissemination of warning to the public and implementation of increased readiness
measures may be possible. However, some emergency situations occur with little or no
warning.
3. Outside assistance will be available in most emergency situations, affecting our
[county/city]. Since it takes time to summon external assistance, it is essential for us to
be prepared to carry out the initial emergency response on an independent basis.
4. Proper mitigation actions, such as floodplain management, and fire inspections, can
prevent or reduce disaster-related losses. Detailed emergency planning, training of
emergency responders and other personnel, and conducting periodic emergency drills
and exercises can improve our readiness to deal with emergency situations.
V. CONCEPT OF OPERATIONS
A. Objectives
The objectives of our emergency management program are to protect public health and
safety and preserve public and private property.
B. General
It is our responsibility to protect public health and safety and preserve property from the
effects of hazardous events. We have the primary role in identifying and mitigating
hazards, preparing for and responding to, and managing the recovery from emergency
situations that affect our community.
2. It is impossible for government to do everything that is required to protect the lives and
property of our population. Our citizens have the responsibility to prepare themselves
and their families to cope with emergency situations and manage their affairs and
property in ways that will aid the government in managing emergencies. We will assist
our citizens in carrying out these responsibilities by providing public information and
instructions prior to and during emergency situations.
3. Local government is responsible for organizing, training, and equipping local emergency
responders and emergency management personnel, providing appropriate emergency
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facilities, providing suitable warning and communications systems, and for contracting
for emergency services. The state and federal governments offer programs that provide
some assistance with portions of these responsibilities.
4. To achieve our objectives, we have organized an emergency management program that
is both integrated (employs the resources of government, organized volunteer groups,
and businesses) and comprehensive (addresses mitigation, preparedness, response,
and recovery). This plan is one element of our preparedness activities.
5. This plan is based on an all-hazard approach to emergency planning. It addresses
general functions that may need to be performed during anv emergency situation and is
not a collection of plans for specific types of incidents. For example, the warning annex
addresses techniques that can be used to warn the public during any emergency
situation, whatever the cause.
6. Departments and agencies tasked in this plan are expected to develop and keep current
standard operating procedures that describe how emergency tasks will be performed.
Departments and agencies are charged with ensuring the training and equipment
necessary for an appropriate response are in place.
7. This plan is based upon the concept that the emergency functions that must be
performed by many departments or agencies generally parallel some of their normal
day-to-day functions. To the extent possible, the same personnel and material
resources used for day-to-day activities will be employed during emergency situations.
Because personnel and equipment resources are limited, some routine functions that do
not contribute directly to the emergency may be suspended for the duration of an
emergency. The personnel, equipment, and supplies that would normally be required for
those functions will be redirected to accomplish emergency tasks.
8. We have adopted the National Incident Management System (NIMS) in accordance with
the President's Homeland Security Directive (HSPD)-5. Our adoption of NIMS will
provide a consistent approach to the effective management of situations involving
natural or man-made disasters, or terrorism. NIMS allows us to integrate our response
activities using a set of standardized organizational structures designed to improve
interoperability between all levels of government, private sector, and nongovernmental
organizations.
9. This plan, in accordance with the National Response Plan (NRP), is an integral part of
the national effort to prevent, and reduce America's vulnerability to terrorism, major
disasters, and other emergencies, minimize the damage and recover from attacks, major
disasters, and other emergencies that occur. In the event of an Incident of National
Significance, as defined in HSPD-5, we will integrate all operations with all levels of
government, private sector, and nongovernmental organizations through the use of NRP
coordinating structures, processes, and protocols.
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C. Operational Guidance
We will employ the six components of the NIMS in all operations, which will provide a
standardized framework that facilitates our operations in all phases of emergency
management. Attachment 7 provides further details on the NIMS.
1. Initial Response. Our emergency responders are likely to be the first on the scene of an
emergency situation. They will normally take charge and remain in charge of the
incident until it is resolved or others who have legal authority to do so assume
responsibility. They will seek guidance and direction from our local officials and seek
technical assistance from state and federal agencies and industry where appropriate.
2. Implementation of ICS
a. The first local emergency responder to arrive at the scene of an emergency situation
will implement the incident command system and serve as the incident commander
until relieved by a more senior or more qualified individual. The incident commander
will establish an incident command post (ICP) and provide an assessment of the
situation to local officials, identify response resources required, and direct the on-
scene response from the ICP.
b. For some types of emergency situations, a specific incident scene may not exist in
the initial response phase and the EOC may accomplish initial response actions,
such as mobilizing personnel and equipment and issuing precautionary warning to
the public. As the potential threat becomes clearer and a specific impact site or sites
identified, an incident command post may be established, and direction and control
of the response transitioned to the Incident Commander.
3. Source and Use of Resources.
a. We will use our own resources, all of which meet the requirements for resource
management in accordance with the NIMS, to respond to emergency situations,
purchasing supplies and equipment if necessary, and request assistance if our
resources are insufficient or inappropriate. §418.102 of the Government Code
provides that the county should be the first channel through which a municipality
requests assistance when its resources are exceeded. If additional resources are
required, we will:
1) Summon those resources available to us pursuant to inter-local agreements.
See Attachment 6 to this plan, which summarizes the inter-local agreements and
identifies the officials authorized to request those resources.
2) Summon emergency service resources that we have contracted for. See
Attachment 6.
3) Request assistance from volunteer groups active in disasters.
4) Request assistance from industry or individuals who have resources needed to
deal with the emergency situation.
b. When external agencies respond to an emergency situation within our jurisdiction,
we expect them to conform to the guidance and direction provided by our incident
commander, which will be in accordance with the NIMS.
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D. Incident Command System (ICS)
We intend to employ ICS, an integral part of the NIMS, in managing emergencies. ICS
is both a strategy and a set of organizational arrangements for directing and controlling
field operations. It is designed to effectively integrate resources from different agencies
into a temporary emergency organization at an incident site that can expand and
contract with the magnitude of the incident and resources on hand. A summary of ICS
is provided in Attachment 7.
2. The incident commander is responsible for carrying out the ICS function of command
managing the incident. The four other major management activities that form the basis
of ICS are operations, planning, logistics, and finance/administration. For small-scale
incidents, the incident commander and one or two individuals may perform all of these
functions. For larger incidents, a number of individuals from different departments or
agencies may be assigned to separate staff sections charged with those functions.
3. An incident commander using response resources from one or two departments or
agencies can handle the majority of emergency situations. Departments or agencies
participating in this type of incident response will normally obtain support through their
own department or agency.
4. In emergency situations where other jurisdictions or the state or federal government are
providing significant response resources or technical assistance, it is generally desirable
to transition from the normal ICS structure to a Unified or Area Command structure. This
arrangement helps to ensure that all participating agencies are involved in developing
objectives and strategies to deal with the emergency. Attachment 7 provides additional
information on Unified and Area Commands.
E. ICS - EOC Interface
1. For major emergencies and disasters, the Emergency Operations Center (EOC) will be
activated. When the EOC is activated, it is essential to establish a division of
responsibilities between the incident command post and the EOC. A general division of
responsibilities is outlined below. It is essential that a precise division of responsibilities
be determined for specific emergency operations.
2. The incident commander is generally responsible for field operations, including:
a. Isolating the scene.
b. Directing and controlling the on-scene response to the emergency situation and
managing the emergency resources committed there.
c. Warning the population in the area of the incident and providing emergency
instructions to them.
d. Determining and implementing protective measures (evacuation or in-place
sheltering) for the population in the immediate area of the incident and for
emergency responders at the scene.
e. Implementing traffic control arrangements in and around the incident scene.
f. Requesting additional resources from the EOC.
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3. The EOC is generally responsible for:
a. Providing resource support for the incident command operations.
b. Issuing community-wide warning.
c. Issuing instructions and providing information to the general public.
d. Organizing and implementing large-scale evacuation.
e. Organizing and implementing shelter and mass arrangements for evacuees.
f. Coordinating traffic control for large-scale evacuations.
g. Requesting assistance from the State and other external sources.
4. In some large-scale emergencies or disasters, emergency operations with different
objectives may be conducted at geographically separated scenes. In such situations,
more than one incident command operation may be established. If this situation occurs,
a transition to an Area Command or a Unified Area Command is desirable, and the
allocation of resources to specific field operations will be coordinated through the EOC.
F. State, Federal $ Other Assistance
1. State & Federal Assistance
a. If local resources are inadequate to deal with an emergency situation, we will request
assistance from the State. State assistance furnished to local governments is
intended to supplement local resources and not substitute for such resources,
including mutual aid resources, equipment purchases or leases, or resources
covered by emergency service contracts. As noted previously, cities must request
assistance from their county before requesting state assistance.
b. Requests for state assistance should be made to the Disaster District Committee
(DDC) Chairperson, who is located at the Department of Public Safety District Office
in . See Appendix 3 to Annex M, Resource Management, for a form
that can be used to request state assistance. In essence, state emergency
assistance to local governments begins at the DDC level and the key person to
validate a request for, obtain, and provide that state assistance and support is the
DDC Chairperson. A request for state assistance must be made by the chief
elected official (the [County Judge/Mayor]) and may be made by telephone, fax, or
teletype. The DDC Chairperson has the authority to utilize all state resources within
the district to respond to a request for assistance, with the exception of the National
Guard. Use of National Guard resources requires approval of the Governor.
c. The Disaster District staff will forward requests for assistance that cannot be satisfied
by state resources within the District to the State Operations Center (SOC) in Austin
for action.
2. Other Assistance
a. If resources required to control an emergency situation are not available within the
State, the Governor may request assistance from other states pursuant to a number
of interstate compacts or from the federal government through the Federal
Emergency Management Agency (FEMA).
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1Qi
b. For major emergencies and disasters for which a Presidential declaration has been
issued, federal agencies may be mobilized to provide assistance to states and local
governments. The National Response Plan (NRP) describes the policies, planning
assumptions, concept of operations, and responsibilities of designated federal
agencies for various response and recovery functions. The Nuclear/Radiologica!
lncident Annex of the NRP addresses the federal response to major incidents
involving radioactive materials.
c. FEMA has the primary responsibility for coordinating federal disaster assistance. No
direct federal disaster assistance is authorized prior to a Presidential emergency or
disaster declaration, but FEMA has limited authority to stage initial response
resources near the disaster site and activate command and control structures prior to
a declaration and the Department of Defense has the authority to commit its
resources to save lives prior to an emergency or disaster declaration. See Annex J,
Recovery, for additional information on the assistance that may be available during
disaster recovery.
d. The NRP applies to Stafford and non-Stafford Act incidents and is designed to
accommodate not only actual incidents, but also the threat of incidents. Therefore,
NRP implementation is possible under a greater range of incidents.
G. Emergency Authorities
1. Key federal, state, and local legal authorities pertaining to emergency management are
listed in Section I of this plan.
2. Texas statutes and the Executive Order of the Governor Relating to Emergency
Management provide local government, principally the chief elected official, with a
number of powers to control emergency situations. If necessary, we shall use these
powers during emergency situations. These powers include:
a. Emergency Declaration. In the event of riot or civil disorder, the [County
Judge/Mayor] may request the Governor to issue an emergency declaration for this
jurisdiction and take action to control the situation. Use of the emergency declaration
is explained in Annex U, Legal.
b. Disaster Declaration. When an emergency situation has caused severe damage,
injury, or loss of life or it appears likely to do so, the [County Judge/Mayor] may by
executive order or proclamation declare a local state of disaster. The [County
Judge/Mayor] may subsequently issue orders or proclamations referencing that
declaration to invoke certain emergency powers granted the Governor in the Texas
Disaster Act on an appropriate local sca/e in order to cope with the disaster. These
powers include:
1) Suspending procedural laws and rules to facilitate a timely response.
2) Using all available resources of government and commandeering private
property, subject to compensation, to cope with the disaster.
3) Restricting the movement of people and occupancy of premises.
4) Prohibiting the sale or transportation of certain substances.
5) Implementing price controls.
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A local disaster declaration activates the recovery and rehabilitation aspects of this
plan. A local disaster declaration is required to obtain state and federal disaster
recovery assistance. See Annex U, Legal, for further information on disaster
declarations and procedures for invoking emergency powers.
Authoritv for Evacuations. State law provides a county judge or mayor with the
authority to order the evacuation of all or part of the population from a stricken or
threatened area within their respective jurisdictions.
H. Actions by Phases of Emergency Management
This plan addresses emergency actions that are conducted during all four phases of
emergency management.
a. Mitigation
We will conduct mitigation activities as an integral part of our emergency
management program. Mitigation is intended to eliminate hazards, reduce the
probability of hazards causing an emergency situation, or lessen the consequences
of unavoidable hazards. Mitigation should be a pre-disaster activity, although
mitigation may also occur in the aftermath of an emergency situation with the intent
of avoiding repetition of the situation. Our mitigation program is outlined in Annex P,
Mitigation.
b. Preparedness
We will conduct preparedness activities to develop the response capabilities needed
in the event an emergency. Among the preparedness activities included in our
emergency management program are:
1) Providing emergency equipment and facilities.
2) Emergency planning, including maintaining this plan, its annexes, and
appropriate SOPs.
3) Conducting or arranging appropriate training for emergency responders,
emergency management personnel, other local officials, and volunteer groups
who assist us during emergencies.
4) Conducting periodic drills and exercises to test our plans and training.
c. Response
We will respond to emergency situations effectively and efficiently. The focus of
most of this plan and its annexes is on planning for the response to emergencies.
Response operations are intended to resolve an emergency situation while
minimizing casualties and property damage. Response activities include warning,
emergency medical services, firefighting, law enforcement operations, evacuation,
shelter and mass care, emergency public information, search and rescue, as well as
other associated functions.
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d. Recovery
If a disaster occurs, we will carry out a recovery program that involves both short-
term and long-term efforts. 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 state. The federal government,
pursuant to the Stafford Act, provides the vast majority of disaster recovery
assistance. The recovery process includes assistance to individuals, businesses,
and to government and other public institutions. Examples of recovery programs
include temporary housing, restoration of government services, debris removal,
restoration of utilities, disaster mental health services, and reconstruction of
damaged roads and bridges. Our recovery program is outlined in Annex J,
Recovery.
VI. ORGANIZATIC?N AND ASSIGNMENT OF RESPONSIBILITIES
A. Organization
1. General
Most departments and agencies of local government have emergency functions in
addition to their normal day-to-day duties. During emergency situations, our normal
organizational arrangements are modified to facilitate emergency operations. Our
governmental organization for emergencies includes an executive group, emergency
services, and support services. Attachment 3 depicts our emergency organization.
2. Executive Group
The Executive Group provides guidance
programs and for emergency response and
includes the County Judge, Mayor(s), City
Coordinator(s).
3. Emergency Services
and direction for emergency management
recovery operations. The Executive Group
Manager(s), and Emergency Management
Emergency Services include the Incident Commander and those departments, agencies,
and groups with primary emergency response actions. The incident commander is the
person in charge at an incident site.
4. Emergency Support Services
This group includes departments and agencies that support and sustain emergency
responders and also coordinate emergency assistance provided by organized volunteer
organizations, business and industry, and other sources.
5. Volunteer and Other Services
This group includes organized volunteer groups and businesses that have agreed to
provide certain support for emergency operations.
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B. Assignment of Responsibilities
1. General
For most emergency functions, successful operations require a coordinated effort from a
number of departments, agencies, and groups. To facilitate a coordinated effort, elected
and appointed officials, departments and agency heads, and other personnel are
assigned primary responsibility for planning and coordinating specific emergency
functions. Generally, primary responsibility for an emergency function will be assigned
to an individual from the department or agency that has legal responsibility for that
function or possesses the most appropriate knowledge and skills. Other officials,
departments, and agencies may be assigned support responsibilities for specific
emergency functions. Attachment 4 summarizes the general emergency responsibilities
of local officials, department and agency heads, and other personnel.
2. The individual having primary responsibility for an emergency function is normally
responsible for coordinating preparation of and maintaining that portion of the
emergency plan that addresses that function. Plan and annex assignments are outlined
in Attachment 5. Listed below are general responsibilities assigned to the Executive
Group, Emergency Services, Support Services, and other Support Agencies. Additional
specific responsibilities can be found the functional annexes to this Basic Plan.
3. Executive Group Responsibilities
a. The [County Judge/Mayor] will:
1) Establish objectives and priorities for the emergency management program and
provide general policy guidance on the conduct of that program.
2) Monitor the emergency response during disaster situations and provides
direction where appropriate.
3) With the assistance of the Public Information Officer, keep the public informed
during emergency situations.
4) With the assistance of the legal staff, declare a local state of disaster, request the
Governor declare a state of emergency, or invoke the emergency powers of
government when necessary.
5) Request assistance from other local governments or the State when necessary
6) Direct activation of the EOC.
b. The [Executive Assistant to the Judge/City Manager] will:
1) Implement the policies and decisions of the governing body relating to
emergency management.
2) Organize the emergency management program and identifies personnel,
equipment, and facility needs.
3) Assign emergency management program tasks to departments and agencies.
4) Ensure that departments and agencies participate in emergency planning,
training, and exercise activities.
5) Coordinate the operational response of local emergency services.
6) Coordinate activation of the EOC and supervise its operation.
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d~~~; J
c. The Emergency Management Coordinator will:
1) Serve as the staff advisor to our [County Judge, Mayor, and City Manager] on
emergency management matters.
2) Keep the [County Judge, Mayor, and City Manager] governing body apprised of
our preparedness status and emergency management needs.
3) Coardinate local planning and preparedness activities and the maintenance of
this plan.
4) Prepare and maintain a resource inventory.
5) Arrange appropriate training for local emergency management personnel and
emergency responders.
6) Coordinate periodic emergency exercises to test our plan and training.
7) Manage the EOC, develop procedures for its operation, and conduct training for
those who staff it.
8) Activate the EOC when required.
9) Perform day-to-day liaison with the state emergency management staff and other
local emergency management personnel.
10) Coardinate with organized volunteer groups and businesses regarding
emergency operations.
4. Common Responsibilities
All emergency services and support services will:
a. Provide personnel, equipment, and supplies to support emergency operations upon
request.
b. Develop and maintain SOPs for emergency tasks.
c. Provide trained personnel to staff the incident command post and EOC and conduct
emergency operations.
d. Provide current information on emergency resources for inclusion in the Resource
List in Appendix 1 to Annex M, Resource Management.
e. Report information regarding emergency situations and damage to facilities and
equipment to the Incident Commander or the EOC.
5. Emergency Services Responsibilities
a. The Incident Commander will:
1) Manage emergency response resources and operations at the incident site
command post to resolve the emergency situation.
2) Determine and implement required protective actions for respanse personnel and
the public at an incident site.
b. Warning.
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1) Primary responsibility for this function is assigned to the [Police Chief / County
Sheriff / Communications Supervisor/ other], who will prepare and maintain
Annex A(Warning) to this plan and supporting SOPs.
2) Emergency tasks to be performed include:
a) Receive information on emergency situations.
b) Alert key local officials of emergency situations.
c) Disseminate warning information and instructions to the public through
available warning systems.
d) Disseminate warning and instructions to special facilities such as schools and
hospitals.
c. Communications.
1) Primary responsibility far this function is assigned to the [Communications
Supervisor / Police Chief / County Sheriff/other], who will prepare and maintain
Annex B(Communications) to this plan and supporting SOPs.
2) Emergency tasks to be performed include:
a) Identify the communications systems available with the local area and
determine the connectivity of those systems, and ensure their interoperability.
b) Develop plans and procedures for coordinated use of the various
communications systems available in this jurisdiction during emergencies.
c) Determine and implement means of augmenting communications during
emergencies, including support by volunteer organizations.
d. Radiological Protection.
1) Primary responsibility for this function is assigned to the [Fire Chief/Fire
Marshal/other], who will prepare and maintain Annex D(Radiological Protection)
to this plan and supporting SOPs.
2) Emergency tasks to be performed include:
a) Maintain inventory of radiological equipment.
b) Ensure response forces include personnel with current training in radiological
monitoring and decontamination.
c) Respond to radiological incidents and terrorist incidents involving radiological
materials.
d) Make notification concerning radiological incidents to state and federal
authorities.
e. Evacuation.
1) Primary responsibility for this function is assigned to the [Police
Chief/Sheriff/other], who will prepare and maintain Annex E(Evacuation) to this
plan and supporting SOPs.
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2) Emergency tasks to be performed include:
a) Identify areas where evacuation has been or may in the future and determine
of population at risk.
b) Perform evacuation planning for known risk areas to include route selection
and determination of traffic control requirements.
c) Develop simplified planning procedures for ad hoc evacuations.
d) Determine emergency public information requirements.
e) Perform evacuation planning for special needs facilities (schools, hospitals,
nursing homes, and other institutions.
f. Firefighting.
1) Primary responsibility for this function is assigned to the [Fire Chief/Fire
Marshal/other], who will prepare and maintain Annex F(Firefighting) to this plan
and supporting SOPs.
2) Emergency tasks to be performed include:
a) Fire prevention activities.
b) Fire detection and control.
c) Hazardous material and oil spill response.
d) Terrorist incident response.
e) Evacuation support.
f) Post-incident reconnaissance and damage assessment.
g) Fire safety inspection of temporary shelters.
h) Prepare and maintain fire resource inventory.
g. Law Enforcement.
1) Primary responsibility for this function is assigned to the [Police Chief/Sheriff's
Office], who will prepare and maintain Annex G(Law Enforcement) to this plan
and supporting SOPs.
2) Emergency tasks to be performed include:
a) Maintenance of law and order.
b) Traffic control.
c) Terrorist incident response.
d) Provision of security for vital facilities, evacuated areas, and shelters.
e) Access control for damaged or contaminated areas.
f) Warning support.
g) Post-incident reconnaissance and damage assessment.
h) Prepare and maintain law enforcement resource inventory.
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h. Health and Medical Services.
1) Primary responsibility for this function is assigned to the [Medical Officer, Public
Health Office/other], who will prepare and maintain Annex H(Health & Medical
Services) to this plan and supporting SOPs.
2) Emergency tasks to be pertormed include:
a) Coordinate health and medical care and EMS support during emergency
situations.
b) Public health information and education.
c) Inspection of food and water supplies.
d) Develop emergency public health regulations and orders.
e) Coordinate collection, identification, and interment of deceased victims.
Direction and Control.
1) Primary responsibility for this function is assigned to the [City
Manager/EMC/other], who will prepare and maintain Annex N(Direction &
Control) to this plan and supporting SOPs.
2) Emergency tasks to be performed include:
a) Direct and control our local operating forces.
b) Maintain coordination with neighboring jurisdictions and the Disaster District
in
c) Maintain the EOC in an operating mode or be able to convert the designated
facility space into an operable EOC rapidly.
d) Assigns representatives, by title, to report to the EOC and develops
procedures for crisis training.
e) Develops and identifies the duties of the staff, use of displays and message
forms, and procedures for EOC activation.
f) Coordinates the evacuation of areas at risk.
Hazardous Materials & Oil Spill.
1) The primary responsibility for this function is assigned to the [Fire Chief/Fire
Marshal/other], who will prepare and maintain Annex Q(Hazardous Material &
Oil Spill Response) to this plan and supporting SOPs.
2) Emergency tasks to be performed include:
a) In accordance with OSHA regulations, establish ICS to manage the response
to hazardous materials incidents.
b) Establish the hazmat incident functional areas (e.g., Hot Zone, cool zone,
Cold Zone, etc.)
c) Determine and implement requirements for personal protective equipment for
emergency responders.
d) Initiate appropriate actions to control and eliminate the hazard in accordance
with established hazmat response guidance and SOPs.
Ver 2.0 BP-18
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e) Determine areas at risk and which public protective actions, if any, should be
implemented.
f) Apply appropriate firefighting techniques if the incident has, or may, result in
a fire.
g) Determines when affected areas may be safely reentered.
k. Search & Rescue.
1) The primary responsibility for this function is assigned to the [Fire Chief/Fire
Marshal/Rescue Officer/other], who will prepare and maintain Annex R(Search
and Rescue) to this plan and supporting SOPs.
2) Emergency tasks to be performed include:
a) Coardinate and conduct search and rescue activities.
b) Identify requirements for specialized resources to support rescue operations.
c) Coordinate external technical assistance and equipment support for search
and rescue operations.
Terrorist Incident Response.
1) Primary responsibility for this function is assigned to the [Police Chief/Sheriff's
Office]> who will prepare and maintain Annex V(Terrorist Incident Response) to
this plan and supporting SOPs.
2) Emergency tasks to be performed include:
a) Coordinate and carry out defensive anti-terrorist activities, including criminal
intelligence, investigation, protection of facilities, and public awareness
activities.
b) Coordinate and carry out offensive counter-terrorist operations to neutralize
terrorist activities.
c) Carry out terrorism consequence operations conducted in the aftermath of a
terrorist incident to save lives and protect public and private property.
d) Ensure required notification of terrorist incidents is made to state and federal
authorities.
6. Support Services Responsibilities
a. Shelter and Mass Care.
1) Primary responsibility for this function is assigned to [Community Services
Director/other], who will prepare and maintain Annex C(Shelter and Mass Care)
to this plan and supporting SOPs
2) Emergency tasks to be performed include:
a) Perform emergency shelter and mass care planning.
b) Coordinate and conduct shelter and mass care operations with our other
departments, relief agencies, and volunteer groups.
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b. Public Information.
1) Primary responsibility for this function is assigned to the [City/County Public
Affairs Officer/other], who will prepare and maintain Annex I(Public Information)
to this plan and supporting SOPs.
2) Emergency tasks to be performed include:
a) Establish a Joint Information Center (JIC)
b) Conduct on-going hazard awareness and public education programs.
c) Pursuant to the Joint Information System (JIS), compile and release
information and instructions for the public during emergency situations and
respond to questions relating to emergency operations.
d) Provide information to the media and the public during emergency situations.
e) Arrange for media briefings.
f) Compiles print and photo documentation of emergency situations.
c. Recovery.
1) Primary responsibility for this function is assigned to the [Finance Director/Tax
Assessor/other], who will prepare and maintain Annex J(Recovery) to this plan
and supporting SOPs.
2) Emergency tasks to be performed include:
a) Establish and train a damage assessment team using local personnel.
Coordinate the efforts of that team with state and federal damage
assessment personnel who may be dispatched to assist us.
b) Assess and compile information on damage to public and private property
and needs of disaster victims and formulate and carry out programs to fill
those needs.
c) If damages are beyond our capability to deal with, compile information for
use by our elected officials in requesting state or federal disaster assistance.
d) If we are determined to be eligible for state or federal disaster assistance,
coordinate with state and federal agencies to carry out authorized recovery
programs.
d. Public Works & Engineering.
1) Primary responsibility for this function is assigned to the [County Engineer/City
Public Works Director/other], who will prepare and maintain Annex K(Public
Works & Engineering) to this plan and supporting SOPs.
2) Emergency tasks to be performed include:
a) Protect government facilities and vital equipment where possible.
b) Assess damage to streets, bridges, traffic control devices, and other public
facilities.
c) Direct temporary repair of vital facilities.
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d) Restore damaged roads and bridges.
e) Restore waste treatment and disposal systems.
f) Arrange for debris removal.
g) General damage assessment support.
h) Building inspection support.
i) Provide specialized equipment to support emergency operations.
j) Support traffic control and search and rescue operations.
e. Utilities.
1) Primary responsibility for this function is assigned to the [Public Utilities
director/other], who will prepare and maintain Annex L(Energy and Utilities) to
this plan and supporting SOPs.
2) Emergency tasks to be performed include:
a) Prioritize restoration of utility service to vital facilities and other facilities.
b) Arrange for the provision of emergency power sources where required.
c) Identify requirements for emergency drinking water and portable toilets to the
department or agency responsible for mass care.
d) Assess damage to, repair, and restore public utilities.
e) Monitor recovery activities of privately owned utilities.
f. Resource Management.
1) Primary responsibility for this function is assigned to the [Human Resources
Director/Finance/other], who will prepare and maintain Annex M(Resource
Management) to this plan and supporting SOPs.
2) Emergency tasks to be performed include:
a) Maintain an inventory of emergency resources.
b) During emergency operations, locates supplies, equipment, and personnel to
meet specific needs.
c) Maintain a list of suppliers for supplies and equipment needed immediately
in the aftermath of an emergency.
d) Establish emergency purchasing procedures and coordinate emergency
procurements.
e) Establish and maintain a manpower reserve and coordinate assignment of
reserve personnel to departments and agencies that require augmentation.
f) Coordinate transportation, sorting, temporary storage, and distribution of
resources during emergency situations.
g) Establish staging areas for resources, if required.
h) During emergency operations, identify to the Donations Management
Coordinator those goods, services, and personnel that are needed.
i) Maintain records of emergency-related expenditures for purchases and
personnel.
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g. Human Services.
1) Primary responsibility for this function is assigned to the [Human Services
Director/other]. Prepare and maintain Annex O(Human Services) to this plan and
supporting SOPs
2) Emergency tasks to be performed include:
a) Identify emergency feeding sites.
b) Identify sources of clothing for disaster victims.
c) Secure emergency food supplies.
d) Coordinate the operation of shelter facilities, whether operated by local
government, local volunteer groups, or organized disaster relief agencies
such as the American Red Cross.
e) Coordinate special care requirements for disaster victims such as the aged,
special needs individuals, and others.
f) Coordinate the provision of disaster mental health services to disaster
victims, emergency workers, and/or others sufFering trauma due to the
emergency incidenUdisaster.
h. Hazard Mitigation.
1) The primary responsibility for this function is assigned to the [Hazard Mitigation
Coordinator/other], who will prepare and maintain Annex P(Hazard Mitigation) to
this plan and supporting SOPs.
2) Emergency tasks to be performed include:
a) Maintain the local Hazard Analysis.
b) Identify beneficial pre-disaster hazard mitigation projects and seek approval
from local officials to implement such projects.
c) In the aftermath of an emergency, determine appropriate actions to mitigate
the situation and coordinate implementation of those actions.
d) Coordinate and carry out post-disaster hazard mitigation program.
i. Transportation.
1) The primary responsibility for this function is assigned to the [Transportation
Director/School SuperintendenURural Transportation Service Supervisor/other],
who will prepare and maintain Annex S(Transportation) to this plan and
supporting SOPs.
2) Emergency tasks to be performed include:
a) Identifies local public and private transportation resources and coordinates
their use in emergencies.
b) Coordinates deployment of transportation equipment to support emergency
operations.
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c) Establishes and maintains a reserve pool of drivers, maintenance personnel,
parts, and tools.
d) Maintains records on use of transportation equipment and personnel for
purpose of possible reimbursement.
Donations Management.
1) The primary responsibility for this function is assigned to the [Community
Services Officer/Assistant EMC/other], who will prepare and maintain Annex T
(Donations Management) to this plan and supporting SOPs.
2) Emergency tasks to be performed include:
a) Compile resource requirements identified by the Resource Management staff.
b) Solicit donations to meet known needs.
c) Establish and implement procedures to receive, accept or turn down offers of
donated goods and services, and provide instructions to donors of needed
goods or services.
d) In coordination with the Resource Management staff, establish a facility to
receive, sort, and distribute donated goods.
k. Legal.
1) The primary responsibility for this function is assigned to the [City
Attorney/County Attorney], who will prepare and maintain Annex U(Legal) to this
plan and supporting SOPs.
2) Emergency tasks to be performed include:
a) Advise local officials on emergency powers of local government and
procedures for invoking those measures.
b) Review and advise our officials on possible legal issues arising from disaster
operations.
c) Prepare and/or recommend legislation to implement the emergency powers
that may be required during and emergency.
d) Advise local officials and department heads on record-keeping requirements
and other documentation necessary for the exercising of emergency powers.
1. Department and agency heads not assigned a specific function in this plan will be
prepared to make their resources available for emergency duty at the direction of our
chief elected official.
7. Volunteer & Other Services
a. Volunteer Groups. The following are local valunteer agencies that can provide
disaster relief services and traditionally have coordinated their efforts with our local
government:
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1) Chapter, American Red Cross.
Provides shelter management, feeding at fixed facilities and through mobile units,
first aid, replacement of eyeglasses and medications, provision of basic clothing,
and limited financial assistance to those affected by emergency situations. The
Red Cross also provides feeding for emergency workers.
2) The Salvation Army.
Provides emergency assistance to include mass and mobile feeding, temporary
shelter, counseling, missing person services, medical assistance, and the
warehousing and distribution of donated good including food clothing, and
household items. It also provides referrals to government and private agencies
for special services.
3) Southern Baptist Convention Disaster Relief.
Provides mobile feeding units staffed by volunteers. Active in providing disaster
childcare, the agency has several mobile childcare units. Can also assist with
clean-up activities, temporary repairs, reconstruction, counseling, and bilingual
services.
4) RACES.
The Radio Amateur Civil Emergency Service provides amateur radio support for
emergency operations, including communications support in the EOC.
b. Business Support.
The following businesses have agreed to provide support for emergency operations
as indicated:
1)
2)
VI1. DIRECTION AND CONTROL
A. General
The [County Judge/Mayor] is responsible for establishing objectives and policies for
emergency management and providing general guidance for disaster response and
recovery operations, all in compliance with the NIMS. During disasters, [he/she] may
carry out those responsibilities from the EOC.
2. The [Executive Assistant to the Judge/City Manager/EMC] will provide overall direction
of the response activities of all our departments. During major emergencies and
disaster, he/she will normally carry out those responsibilities from the EOC.
3. will manage the EOC.
Ver 2.0 BP-24
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4. The Incident Commander, assisted by a staff sufficient for the tasks to be performed, will
manage the emergency response at an incident site.
5. During emergency operations, department heads retain administrative and policy control
over their employees and equipment. However, personnel and equipment will carry out
mission assignments directed by the incident commander. Each department and
agency is responsible for having its own operating procedures to be followed during
response operations, but interagency procedures, such a common communications
protocol, may be adopted to facilitate coordinated effort.
6. If our own resources are insufficient or inappropriate to deal with an emergency
situation, we may request assistance from other jurisdictions, organized volunteer
groups, or the State. The process for requesting State or federal assistance is covered
in section V.F of this plan; see also the Request for Assistance form in Annex M,
Appendix 3. External agencies are expected to conform to the general guidance and
directed provided by our senior decision-makers.
B. Emergency Facilities
Incident Command Post. Except when an emergency situation threatens, but has not
yet occurred, and those situations for which there is no specific hazard impact site (such
as a severe winter storm or area-wide utility outage), an incident command post or
command posts will be established in the vicinity of the incident site(s). As noted
previously, the incident commander will be responsible for directing the emergency
response and managing the resources at the incident scene.
2. Emergency Operating Center. When major emergencies and disasters have occurred or
appear imminent, we will activate our EOC, which is located at .
3. The following individuals are authorized to activate the EOC:
a.
b.
c.
4. The general responsibilities of the EOC are to:
a. Assemble accurate information on the emergency situation and current resource
data to allow local officials to make informed decisions on courses of action.
b. Working with representatives of emergency services, determine and prioritize
required response actions and coordinate their implementation.
c. Provide resource support for emergency operations.
d. Suspend or curtail government services, recommend the closure of schools and
businesses, and cancellation of public events.
e. Organize and activate large-scale evacuation and mass care operations.
Ver 2.0 BP-25
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~~~E!1.~~
f. Provide emergency information to the public.
5. Representatives of those departments and agencies assigned emergency functions in
this plan will staff the EOC. EOC operations are addressed in Annex N(Direction and
Control). The interface between the EOC and the incident command post is described in
paragraph V.E above.
6. Our Alternate EOC is located at
will be used if our primary EOC becomes unusable.
7
We have a mobile command and control vehicle, operated by
, which may be used as an incident command post.
C. Line of Succession
1. The line of succession for the [County Judge/Mayor] is:
a.
b.
c.
2. The line of succession for the [Executive Assistant to the Judge/City Manager] is:
a.
b.
c.
3. The line of succession for the Emergency Management Coordinator is:
a.
b.
c.
4. The lines of succession for each of our department and agency heads shall be in
accordance with the SOPs established by those departments and agencies.
VI11. READINESS LEVELS
A. Many emergencies follow some recognizable build-up period during which actions can be
taken to achieve a gradually increasing state of readiness. We use a four-tier system.
Readiness Levels will be determined by the [Mayor/County Judge/City Manager] or, for
certain circumstances, the Emergency Management Coordinator. General actions to be
taken at each readiness level are outlined in the annexes to this plan; more specific actions
will be detailed in departmental or agency SOPs.
B. The following Readiness Levels will be used as a means of increasing our alert posture.
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1. Level 4: Normal Conditions
a. Emergency incidents occur and local officials are notified. One or more departments
or agencies respond to handle the incident; an incident command post may be
established. Limited assistance may be requested from other jurisdictions pursuant
to established inter-local agreements.
b. The normal operations of government are not affected.
2. Level 3: Increased Readiness
a. Increased Readiness refers to a situation that presents a greater potential threat than
"Level 4", but poses no immediate threat to life and/or property. Increased readiness
actions may be appropriate when the situations similar to the following occur:
1) Tropical Weather Threat. A tropical weather system has developed that has the
potential to impact the local area. Readiness actions may include regular
situation monitoring, a review of plans and resource status, determining staff
availability and placing personnel on-call.
2) Tornado Watch indicates possibility of tornado development. Readiness actions
may include increased situation monitoring and placing selected staff on alert.
3) Flash Flood Watch indicates flash flooding is possible due to heavy rains
occurring or expected to occur. Readiness actions may include increased
situation-monitoring, reconnaissance of known trouble spots, deploying warning
signs.
4) Wildfire Threat. During periods of extreme wildfire threat, readiness actions may
include deploying additional resources to areas most at risk, arranging for
standby commercial water tanker support, conducting daily aerial
reconnaissance, or initiating burn bans.
5) Mass Gatherina. For mass gatherings with previous history of problems,
readiness actions may include reviewing security, traffic control, fire pratection,
and first aid planning with organizers and determining additional requirements.
b. Declaration of "Level 3" will generally require the initiation of the "Increased
Readiness" activities identified in each annex to this plan.
3. Level 2: High Readiness
a. High Readiness refers to a situation with a significant potential and probability of
causing loss of life and/or property. This condition will normally require some degree
of warning to the public. Actions could be triggered by severe weather warning
information issued by the National Weather Service such as:
1) Tropical Weather Threat. A tropical weather system may impact the local area
within 72 hours. Readiness actions may include continuous storm monitoring,
identifying worst-case decision points, increasing preparedness of personnel and
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05l05
6,.- .
equipment, updating evacuation checklists, verifying evacuation route status, and
providing the public information for techniques to protect homes and businesses
on the evacuation routes.
2) Tornado Warninq. Issued when a tornado has actually been sighted in the vicinity
or indicted by radio, and may strike in the local area. Readiness actions may
include activating the EOC, continuous situation monitoring, and notifying the
public about the warning.
3) Flash Flood Warning. Issued to alert persons that flash flooding is imminent or
occurring on certain steams or designated areas, and immediate action should
be taken. Readiness actions may include notifying the public about the warning,
evacuating low-lying areas, open shelters to house evacuees, and continuous
situation monitoring.
4) Winter Storm Warning. Issued when heavy snow, sleet, or freezing rain are
forecast to occur separately or in a combination. Readiness actions may include
preparing for possible power outages, putting road crews on stand-by to clear
and/or sand the roads, and continuous situation monitoring.
5) Mass Gatherinq. Civil disorder with relatively large-scale localized violence is
imminent. Readiness actions may include increased law enforcement presence,
putting hospitals and fire departments on alert, and continuous situation
monitoring.
b. Declaration of a"Level 2" will generally require the initiation of the "High Readiness"
activities identified in each annex to this plan.
4. Level 1: Maximum Readiness
a. Maximum Readiness refers to situation that hazardous conditions are imminent.
This condition denotes a greater sense of danger and urgency than associated with
a"Level 2" event. Actions could also be generated by severe weather warning
information issued by the National Weather Service combined with factors making
the event more imminent.
1) Tropical Weather Threat. The evacuation decision period is nearing for an
approaching tropical weather system that may impact the local area. Readiness
actions may include continuous situation monitoring, cull activation of the EOC,
recommending precautionary actions for special facilities, placing emergency
personnel and equipment into position for emergency operations, and preparing
public transportation resources for evacuation support.
2) Tornado Warning. Tornado has been sited especially close to a populated area
or moving towards a populated area. Readiness actions may include taking
immediate shelter and put damage assessment teams on stand-by.
3) Flash Flood Warning. Flooding is imminent or occurring at specific locations.
Readiness actions may include evacuations, rescue teams on alert, sheltering
Ver 2.0 BP-28
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evacuees and/or others displaced by the flooding, and continuous monitoring of
the situation.
4) Mass Gatherinq. Civil disorder is about to erupt into large-scale and widespread
violence. Readiness actions may include having all EMS units on stand-by, all
law enforcement present for duty, notify the DDC that assistance may be needed
and keep them apprised of the situation, and continuous situation monitoring is
required.
b. Declaration of "Level 1" will generally require the initiation of the "Maximum
Readiness" activities identified in each annex to this plan.
IX. ADMINISTRATION AND SUPPORT
A. Agreements and Contracts
Should our local resources prove to be inadequate during an emergency, requests will
be made for assistance from other local jurisdictions, other agencies, and industry in
accordance with existing mutual-aid agreements and contracts and those agreements
and contracts concluded during the emergency. Such assistance may include
equipment, supplies, or personnel. All agreements will be entered into by authorized
officials and should be in writing whenever possible. Agreements and contracts should
identify the local officials authorized to request assistance pursuant to those documents.
2. In an effort to facilitate assistance pursuant to mutual aid agreements, our available
resources are identified and are a part of the Texas Regional Response Network
(TRRN).
3. The agreements and contracts pertinent to emergency management that we are a party
to are summarized in Attachment 6.
B. Reports
Hazardous Materials Spill Reporting. If we are responsible for a release of hazardous
materials of a type or quantity that must be reported to state and federal agencies, the
department or agency responsible for the spill shall make the required report. See
Annex Q, Hazardous Materials and Oil Spill Response, for more information. If the party
responsible for a reportable spill cannot be located, the Incident Commander shall
ensure that the required report(s) are made.
2. Initial Emergency Report. This short report should be prepared and transmitted by the
EOC when an on-going emergency incident appears likely to worsen and we may need
assistance from other local governments or the State. See Annex N, Direction and
Control for the format and instructions for this report.
3. Situation Report. A daily situation report should be prepared and distributed by the
EOC during major emergencies or disasters. See Annex N, Direction and Control, for
the format of and instructions for this report.
Ver 2.0 BP-29
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4. Other Reports. Several other reports covering specific functions are described in the
annexes to this plan.
C. Records
1. Record Keeping for Emergency Operations
Our [county/city] is respansible for establishing the administrative controls necessary to
manage the expenditure of funds and to provide reasonable accountability and
justification for expenditures made to support emergency operations. This shall be done
in accordance with the established local fiscal policies and standard cost accounting
procedures.
a. Activity Logs. The Incident Command Post and the EOC shall maintain accurate
logs recording key response activities, including:
1) Activation or deactivation of emergency facilities.
2) Emergency notifications to other local governments and to state and federal
agencies.
3) Significant changes in the emergency situation.
4) Major commitments of resources or requests for additional resources from
external sources.
5) Issuance of protective action recommendations to the public.
6) Evacuations.
7) Casualties.
8) Containment or termination of the incident.
b. Incident Costs. All department and agencies shall maintain records summarizing the
use of personnel, equipment, and supplies during the response to day-to-day
incidents to obtain a estimate of annual emergency response costs that can be used
as in preparing future department or agency budgets.
c. Emergency or Disaster Costs. For major emergencies or disasters, all departments
and agencies participating in the emergency response shall maintain detailed of
costs for emergency operations to include:
1) Personnel costs, especially overtime costs
2) Equipment operations costs
3) Costs for leased or rented equipment
4) Costs for contract services to support emergency operations
5) Costs of specialized supplies expended for emergency operations
These records may be used to recover costs from the responsible party or insurers
or as a basis for requesting financial assistance for certain allowable response and
recovery costs from the state and/or federal government.
2. Preservation of Records
a. In order to continue normal government operations following an emergency situation
disaster, vital records must be protected. These include legal documents as well as
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property and tax records. The principal causes of damage to records are fire and
water; therefore, essential records should be protected accordingly. Each agency
responsible for preparation of annexes to this plan will include protection of vital
records in its SOPs.
b. If records are damaged during an emergency situation, we will seek professional
assistance to preserve and restore them.
D. Training
It will be the responsibility of each agency director to ensure that agency personnel, in
accordance with the NIMS, possess the level of training, experience, credentialing,
currency, physical and medical fitness, or capability for any positions they are tasked to fill.
E. Consumer Protection
Consumer complaints regarding alleged unfair or illegal business practices often occur in
the aftermath of a disaster. Such complaints will be referred to the [County/City} Attorney,
who will pass such complaints to the Consumer Protection Division of the Office of the
Attorney General.
F. Post-Incident and Exercise Review
The [County Judge/Mayor/City Manager/EMC] is responsible for organizing and conducting
a critique following the conclusion of a significant emergency event/incident or exercise.
The After Action Report (AAR) will entail both written and verbal input from all appropriate
participants. An Improvement Plan will be developed based on the deficiencies identified,
and an individual, department, or agency will be assigned responsibility for correcting the
deficiency and a due date shall be established for that action.
X. PLAN DEVELOPMENT AND MAINTENANCE
A. Plan Development
The [County Judge/Mayor] is responsible for approving and promulgating this plan.
6. Distribution of Planning Documents
1. The [County Judge/Mayor] shall determine the distribution of this plan and its annexes.
In general, copies of plans and annexes should be distributed to those individuals,
departments, agencies, and organizations tasked in this document. Copies should also
be set-aside for the EOC and other emergency facilities.
2. The Basic Plan should include a distribution list (See Attachment 1 to this plan) that
indicates who receives copies of the basic plan and the various annexes to it. In
general, individuals who receive annexes to the basic plan should also receive a copy of
this plan, because the Basic Plan describes our emergency management organization
and basic operational concepts.
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C. Review
The Basic Plan and its annexes shall be reviewed annually by local officials. The [County
Judge/Mayor/EMC] will establish a schedule for annual review of planning documents by
those tasked in them.
D. Update
This plan will be updated based upon deficiencies identified during actual emergency
situations and exercises and when changes in threat hazards, resources and
capabilities, or government structure occur.
2. The Basic Plan and its annexes must be revised or updated by a formal change at least
every five years. Responsibility for revising or updating the Basic Plan is assigned to L
1. Responsibility for revising or updating the annexes to this
plan is outlined in Section VI.B, Assignment of Responsibilities, as well as in each
annex. For details on the methods of updating planning documents as well as more
information on when changes should be made, refer to Chapter 3 of the Division of
Emergency Management (DEM) Loca/ Emergency Management Planning Guide (DEM-
10).
3. Revised or updated planning documents will be provided to all departments, agencies,
and individuals tasked in those documents.
4. §418.043(4) of the Government Code provides that DEM shall review local emergency
management plans. The process for submitting new or updated planning documents to
DEM is described in Chapter 6 of the DEM-10. The [County Judge/Mayor/EMC] is
responsible for submitting copies of planning documents to our DEM Regional Liaison
Officer for review.
ATTACHMENTS:
1. Distribution List
2. References
3. Organization for Emergencies
4. Functional Responsibility Matrix
5. Annex Assignments
6. Summary of Agreements & Contracts
7. National Incident Management System
Ver 2.0 BP-32
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0nE~E~~C,J
ATTACHMENT 1
DISTRIBUTION LIST
Jurisdiction/Aqencv Plan
Basic Plan
Annexes
EOC Reference Library
2
All
County Judge/Mayor
1
All
City Manager
1
All
Each County Commissioner
1
All
EMC
1
qll
City Secretary/Asst. to the Judge
1
All
County Sheriff
2
qll
Police Chief
1
All
Each Constable
1
All
Fire Chief/Fire Marshal
2
qll
Community Services Director
1
C, E, O
County/City Health Officer
1
C, D, H, O, Q
Finance Director/Tax Assessor
1
J, M
City Public Works Director/County Engineer
1
E, G, J, K, L
Public Utilities Director
1
J, K, L
Human Resources Director
1
C, M, O, T
County/City Attorney
1
All
Justices of the Peace
1
G, H, N
Medical Examiner
1
G, H, N
RACES Officer
1
All
Radiological Officer
1
D, E, Q
Hospital
1
C, E, S
County/City Animal Control
1
E, H
ISD Transportation Director
1
C, E, H, O
CountylCity Independent School District
1
C, E, O, S
County Local Emergency Planning Committee
1
All
American Red Cross
1
C, E,J, O, T
The Salvation Army
1
C, E,J, O, T
Southern Baptist Convention Disaster Relief
1
C, E, J, O, T
Hazard County Rural Transportation Service
1
S
GDEM Regional Liaison Officer
1
All
R.J. Smith Refuse Company
1
J, M, T
ABC Disposal & Demolition
1
J, M, T
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ATTACHMENT 2
REFERENCES
1. Texas Department of Public Safety, Governor's Division of Emergency Management, Local
Emergency Management Planning Guide, DEM-10
2. Texas Department of Public Safety, Governor's Division of Emergency Management,
Disaster Recovery Manual
3. Texas Department of Public Safety, Governor's Division of Emergency Management,
Mitigation Handbook
4. FEMA, Independent Study Course, IS-288: The Role of Voluntary Organizations in
Emergency Management
5. FEMA, State and Local Guide (SLG) 101: Guide for All-Hazard Emergency Operations
Planning
6. U. S. Department of Homeland Security, National Response Plan
7. 791n Texas Legislature, House Bill 3111
Ver 2.0 BP-2-1
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ATTACHMENT 3
ORGANIZATION FOR EMERGENCY MANAGEMENT
See the sample organization charts
in the Pianning Notes for
the Basic Plan
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ATTACHMENT 4
EMERGENCY MANAGEMENT FUNCTIONAL RESPONSIBILITIES
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ATTACHMENT 5
ANNEX ASSIGNMENTS
ANNEX
ASSIGNED TO:
Annex A:
Warnin
Police Chief/Count Sheriff
Annex B:
Communications
Police Chief/Count Sheriff
Annex C:
Shelter & Mass Care
Communit Services Director
Annex D:
Radiolo ical Protection
Fire Chief/Fire Marshal
Annex E:
Evacuation
Police Chief/Count Sheriff
Annex F:
Firefi htin
Fire Chief/Fire Marshal
Annex G:
Law Enforcement
Police Chief/Count Sheriff
Annex H:
Health and Medical Services
Cit /Count Health Officer
Annex I:
Public Information
Cit Secreta /Asst. to the Jud e
Annex J:
Recove
Finance Director/Tax Assessor
Annex K:
Public Works & En ineerin
Public Works Director
Annex L:
Utilities
Public Utilities Director
Annex M:
Resource Mana ement
Human Resources Director
Annex N:
Direction & Control
Cit Mana er/Asst. to the Jud e
Annex O:
Human Services
Human Services Director
Annex P:
Hazard Miti ation
Public Works Director
Annex Q:
Hazardous Materials & Oil Spill
Res onse
Fire Chief/Fire Marshal
Annex R:
Search & Rescue
Fire Chief/Fire Marshal/Rescue Officer
Annex S:
Trans ortation
Cit /Count or ISD Trans ortation Director
Annex T:
Donations Mana ement
Communit Services Director
Annex U:
Le al
Cit /Count Attorne
Annex V:
Terrorist Incident Res onse
Police Chief/Count Sheriff
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ATTACHMENT 6
SUMMARY OF AGREEMENTS & CONTRACTS
Aqreements
Description:
Summary of Provisions:
Officials Authorized to Implement:
Costs:
Copies Held By:
Description:
Summary af Provisions:
Officials Authorized to Implement:
Costs:
Copies Held By:
Description:
Summary of Provisions:
Officials Authorized to Implement:
Costs:
Copies Held By:
Contracts
Description:
Summary of Provisions:
Officials Authorized to lmplement:
Costs:
Copies Held By:
Description:
Summary of Provisions:
Officials Authorized to Implement:
Costs:
Copies Held By:
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ATTACHMENT 7
NATIONAL INCIDENT MANAGEMENT SYSTEM (NIMS) SUMMARY
A. BACKGROUND
NIMS is a comprehensive, national approach to incident management that is applicable
to all jurisdictional levels and across functional disciplines. This system is suitable
across a wide range of incidents and hazard scenarios, regardless of size or complexity.
It provides a flexible framework for all phases of incident management, as well as
requirements for processes, procedures, and systems designed to improve
interoperability.
2. NIMS is a multifaceted system that provides a national framework for preparing for,
preventing, responding to, and recovering from domestic incidents.
B. COMPONENTS
Command and Manaqement. The incident management structures employed by NIMS
can be used to manage emergency incidents or non-emergency events such as
celebrations. The system works equally well for small incidents and large-scale
emergency situations. The system has built-in flexibility to grow or shrink depending on
current needs. It is a standardized system, so personnel from a variety of agencies and
geographic locations can be rapidly incorporated into a common management structure.
a. Incident Management System. A system that can be used to manage emergency
incidents or non-emergency events such as celebrations.
1) FEATURES OF ICS
ICS has a number of features that work together to make it a real management
system. Among the primary attributes of ICS are:
a) Common Terminology. ICS requires the use of common terminology, such as
the use of standard titles for facilities and positions within an organization, to
ensure efficient and clear communications.
b) Organizational Resources. All resources including personnel, facilities, major
equipment, and supply items used to support incident management activities
must be "typed" with respect to capability. This typing will minimize confusion
and enhance interoperability.
c) Manageable Span of Control. Span of control should ideally vary from three
to seven. Anything less or more requires expansion or consolidation of the
organization.
d) Organizational Facilities. Common terminology is used to define incident
facilities, the activities conducted at these facilities, and the organizational
positions that can be found working there.
Ver 2.0 BP-7-1
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e) Use of Position Titles. All ICS positions have distinct titles.
f) Reliance on an Incident Action Plan. The incident action plan, which may be
verbal or written, is intended to provide supervisory personnel a common
understanding of the situation and direction for future action. The plan
includes a statement of objectives, organizational description, assignments,
and support material such as maps. Written plans are desirable when iwo or
more jurisdictions are involved, when state and/or federal agencies are
assisting local response personnel, or there has been significant turnover in
the incident staff.
g) Integrated Communications. Integrated communications includes interfacing
disparate communications as effectively as possible, planning for the use of
all available systems and frequencies, and requiring the use of clear text in
communications.
h) Accountability. ICS is based on an orderly chain of command, check-in for all
responders, and only one supervisor for each responder.
2) UNIFtED COMMAND
a) Unified Command is a variant of ICS used when there is more than one
agency or jurisdiction with responsibility for the incident or when personnel
and equipment from a number of different agencies or jurisdictions are
responding to it. This might occur when the incident site crosses
jurisdictional boundaries or when an emergency situation involves matters for
which state and/or federal agencies have regulatory responsibility or legal
requirements.
b) ICS Unified Command is intended to integrate the efforts of multiple agencies
and jurisdictions. The major change from a normal ICS structure is at the top.
In a Unified command, senior representatives of each agency or jurisdiction
responding to the incident collectively agree on objectives, priorities, and an
overall strategy or strategies to accomplish objectives; approve a coordinated
Incident Action Plan; and designate an Operations Section Chief. The
Operations Section Chief is responsible for managing available resources to
achieve objectives. Agency and jurisdictional resources remain under the
administrative control of their agencies or jurisdictions, but respond to mission
assignments and direction provided by the Operations Section Chief based
on the requirements of the Incident Action Plan.
3) AREA COMMAND
a) An Area Command is intended for situations where there are multiple
incidents that are each being managed by an ICS organization or to oversee
the management of large or multiple incidents to which several Incident
Management Teams have been assigned. Area Command becomes Unified
Area Command when incidents are multijurisdictional.
Ver 2.0 BP-7-2
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~nn131
b) The organization of an Area Command is different from a Unified Command
in that there is no operations section, since all operations are conducted on-
scene, at the separate ICPs.
b. Multiagency Coordination Systems. Multiagency coordination systems may be
required for incidents that require higher level resource management or information
management. The components of multiagency coordination systems include
facilities, equipment, EOCs, specific multiagency coordination entities, personnel,
procedures, and communications; all of which are integrated into a common
framework for coordinating and supporting incident management.
Public Information. The NIMS system fully integrates the ICS Joint Information
System (JIS) and the Joint Information Center (JIC). The JIC is a physical location
where public information staff involved in incident management activities can
collocate to perform critical emergency information, crisis communications, and
public affairs functions. More information on JICs can be obtained in the DHS
National lncident Management System Plan, dated March 2004.
2, Preqaredness. Preparedness activities include planning, training, and exercises as well
as certification of response personnel, and equipment acquisition and certification.
Activities would also include the creation of mutual aid agreements and Emergency
Management Assistance Compacts. Any public information activities such as
publication management would also be preparedness activities.
3. Resource Management. All resources, such as equipment and personnel, must be
identified and typed. Systems for describing, inventorying, requesting, and tracking
resources must also be established.
4. Communications and Information Mana eq ment. Adherence to NIMS specified standards
by all agencies ensures interoperability and compatibility in communications and
information management.
5. Supportina Technoloqies. This would include any technologies that enhance the
capabilities essential to implementing the NIMS. For instance, voice and data
communication systems, resource tracking systems, or data display systems.
6. Onqoing Management and Maintenance. The NIMS Integration Center provides
strategic direction and oversight in support of routine review and continual refinement of
both the system and its components over the long term.
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