HomeMy WebLinkAboutCC Resolution 12366 (Disaster Operations)RESOLUTION 12366
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF SAN
RAFAEL APPROVING THE CITY COUNCIL GUIDE TO DISASTER
OPERATIONS.
WHEREAS, the City of San Rafael has recently adopted a revised Emergency
Operations Plan; and
WHEREAS, the new Emergency Operations Plan updated many of the City's policies and
procedures and ensured the City's compliance with State and Federal requirements; and
WHEREAS, a greater explanation and a clearer understanding of the roles and
responsibilities of the City Council during disaster operations was needed; and
WHEREAS, the draft City Council Guide to Disaster Operations summarizes the various
aspects of disaster operations and provides clarity regarding the City Council's role during
disaster response and recovery operations; and
WHEREAS, the draft Guide can be used as a reference tool for City Council members
and Standby City Council members and includes information on: Phases of Emergency
Management, Emergency Management Systems, Emergency Proclamations, Emergency
Management Organization, Resources, and Working with the Media; and
WHEREAS, on September 17, 2007 the City Council reviewed the draft City Council
Guide to Disaster Operations in a study session, provided comments, and directed staff to bring
it forward for formal approval.
NOW, THEREFORE, THE CITY COUNCIL OF THE CITY OF SAN RAFAEL DOES RESOLVE,
DETERMINE AND ORDER AS FOLLOWS:
The City Council approves the City Council Guide to Disaster Operations.
I, Jeanne M. Leoncini, Clerk of the City of San Rafael, hereby certify that the foregoing
Resolution was duly and regularly introduced and adopted at a regular meeting of the City
Council of the City of San Rafael, held on Monday, the 15th day of October, 2007, by the
following vote, to wit:
AYES:
Councilmembers:
Cohen, Heller, Miller, Phillips & Mayor Boro
NOES:
Councilmembers:
None
ABSENT:
Councilmembers:
None
ti,.
JEA N M LEONCINI, City Clerk
CITI'
OF SAN RAFAEL
CITY COUNCIL
GUIDE TO
DISASTER OPERATI
*44
L-3
City Council Guide to Disaster Operations
This page left blank
City Council Guide to Disaster Operations
This guide is designed to provide the San Rafael City Council with information relating to their roles during
disasters and to assist them in the decision-making process.
As an elected official, you have a significant role in the San Rafael emergency response organization and
your response to disasters is an important part of the continuity of government. Your actions influence
community members as well as employees and directly impact our city's ability to protect lives, property,
and the environment.
Your primary role during a disaster is one of policymaker, communicator, liaison, and oversight. You know
the needs of the community and you have already established effective channels of communication with
your constituents.
The City's Emergency Operations Plan (EOP) clearly spells out how the City and various other agencies,
individually and collectively, prepare for, respond to, and recover from disasters. This integrated emergency
management system is based on an "all -hazards approach" to dealing with incidents which allow the City to
manage disasters no matter the size or complexity.
As with all Disaster Service Workers, your ability to support emergency response efforts will depend directly
upon your preparedness at home and at work.
Please take the time to familiarize yourself with this guide.
Any questions regarding the information within this guide can be directed to:
City of San Rafael
City Manager's Office of Emergency Services
Attn: Emergency Services Manager
1039 C Street
San Rafael, CA 94901
415/ 485-3111
oesna citvofsanrafael.ora
'"�I" IIV"/ City Council Guide to Disaster Operations
RESOLUTION 42966
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF SAN
RAFAEL APPROVING THE CITY COUNCIL GUIDE TO DISASTER
OPERATIONS.
WHEREAS, the City of San Rafael has recently adupted a revised Emergency
Operations Plan: and
WHEREAS, the new Emergency Operations Plan updated many of the CitVs policies and
procedures and ensured the City's compliance with Slate and Federal requirements: and
WHEREAS, a greater explanation and a clearer understanding of the roles and
responsibilities of ilia City Council during disaster operations was needed: and
WHEREAS, the draft City Council Guide to Disaster Operations summarizes the various
aspects of disaster operations and provides clarity regarding the City Council's role during
disaster response and recovery operations; and
WHEREAS, the draft Guide can be used as a reference tool for City Council mpmbers
and Standby City Council members and includes information on, Phases of Emergency
Management Emergency Management Systems, Emergency Proclamations, Emergency
Management Organization, Resources, and Working with the Media; and
WHEREAS, on September 17, 2007 the City Council reviewed the draft City Council
Gulde to Disaster Operations in a study session, provided comments, and directed staff to bring
it forward for formal approval.
NOW, THEREFORE, THE CITY COUNCIL OF THE CITY OF SAN RAFAEL DOES RESOLVE,
DETERMINE AND ORDER AS FOLLOWS:
The City Council approves the City Council Guide to Disaster Operatlons.
E, Jeanne M. Leonclnl, Clerk of the City of San Rafael, hereby certify that the foregoing
Resolution was duly and regularly introduced and adopted at a regular meeting of the City
Caurcil of the City of San Rafael, held on Monday, the le day of October, 2007, by the
foIIoviing vote, to wit:
AYES' Councilmembers, Cohen, Heller, Miller, Phiillps & Mayor Bora
NOES: Coundimembers: None
ABSEN r: Counciimembers: None
A -ANNE M. LEONG NI, City Clerk
Resolution adopted by San Rafael City Council on October 15, 200T
City Council Guide to Disaster Operations
Table of Contents
PHASES OF EMERGENCY MANAGEMENT...................................................................................................7
Mitigation& Prevention...................................................................................................................................7
Preparedness..................................................................................................................................................7
Response......................................................................................................................................................... 8
Recovery.......................................................................................................................................................... 8
San Rafael's Major Disaster Timeline ... (An Example)................................................................................12
EMERGENCY MANAGEMENT SYSTEMS.....................................................................................................14
Standardized Emergency Management System (SEMS)...........................................................................14
National Incident Management System(NIMS)...........................................................................................16
Disaster & Civil Defense Master Mutual Aid Agreement.............................................................................16
EMERGENCYPROCLAMATIONS..................................................................................................................17
LocalEmergency...........................................................................................................................................17
State Proclamation of Emergency................................................................................................................18
PresidentialDeclarations..............................................................................................................................18
Declaration of Health Emergency.................................................................................................................19
EMERGENCY MANAGEMENT ORGANIZATION..........................................................................................20
EmergencyOperations Plan.........................................................................................................................20
EmergencyOperations Center.....................................................................................................................20
San Rafael EOC Organizational Chart.........................................................................................................22
Roleof City Staff............................................................................................................................................23
Roleof City Council.......................................................................................................................................23
Role of Standby City Council Members........................................................................................................26
Director of Emergency Services...................................................................................................................
26
SanRafael Disaster Council.........................................................................................................................27
RESOURCES....................................................................................................................................................28
Special County Resources............................................................................................................................28
WORKINGWITH THE MEDIA..........................................................................................................................30
ACRONYMS& GLOSSARY.............................................................................................................................32
City Council Guide to Disaster Operations
This page left blank
City Council Guide to Disaster Operations
PHASES OF EMERGENCY MANAGEMENT
The phases of emergency management (mitigation & prevention, preparedness, response, and recovery)
represent the various elements of a disaster. The phases are dynamic and interconnected. For example,
tasks taken to recover from a disaster may have effects on mitiqation, DreDaredness, and response to
future occurrences and recovery efforts will begin almost immediately while the initial response efforts are
still underway.
Proparodnoss Inddent
4,�N
Mitigation The Emergency Rosponso
Management
Cycle AOO/
Rocovory
MITIGATION & PREVENTION
Mitigation refers to any sustained action taken to reduce or eliminate long-term risk to life and property from
a hazard event. Mitigation, also known as prevention (when done before a disaster), encourages long-term
reduction of hazard vulnerability. The goal of mitigation is to decrease the need for response as opposed to
simply increasing the response capability. Mitigation can protect critical community facilities, reduce
exposure to liability, and minimize community disruption.
Examples of current mitigation/prevention in San Rafael are the levee system, flood control pumping
stations, the vegetation management program, land use zoning ordinances, and strict adherence to current
building codes.
PREPAREDNESS
Preparedness involves activities that are done before a disaster; such as
training, planning, community education and exercises. As a civic leader
you should encourage others to have plans and emergency supplies for
both their home and workplace. Additionally, you should be encouraging
them to get involved in their community and promote a neighborhood
approach to emergency preparedness. Additionally, you have the
opportunity to be a good example by developing a family disaster plan and
creating an emergency supplies kit for both your home and your workplace.
San Rafael's Community Preparedness Program
• Get Ready— This two-hour course is designed to help the residents of Marin County learn how to
protect themselves and their families against all types of hazards. The focus of the course is on
how to develop, practice, and maintain emergency plans that reflect what must be done before,
during, and after a disaster to protect people and their property.
Phases of Emergency Management
7
October 2007
..�O �y�-
City Council Guide to Disaster Operations
• San Rafael CERT- The Community Emergency Response Team (CERT) Program is a twenty-four
hour course which educates people about disaster preparedness for hazards that may impact their
neighborhood. This course trains them in basic disaster response skills; such as fire safety, light
search and rescue, team organization, and disaster medical operations. Using the training learned
in the classroom and during exercises, CERT members can assist others in their neighborhood or
workplace following an event when professional responders are not immediately available to help.
San Rafael offers the only CERT program within the County that adheres to the Federal standards
for CERT curriculum.
RESPONSE
Disasters and emergencies involve significant risks to life safety and welfare. Natural disasters, such as
floods, involve contaminated flood water and debris that can produce a myriad of hazards. Major fires
produce smoke, toxic gases, and the possibility of structural collapse. Hazardous materials events usually
involve toxic materials that can cause numerous types of health hazards. Terrorism threats can involve
chemical, biological, radiological, nuclear, or explosive devices. Major earthquakes can impact virtually
every aspect of our society.
San Rafael's priority for response:
1. Saving lives
2. Protecting & restoring critical facilities (systems)
3. Reducing property damage
4. Protecting the environment
Response Time - Residents may think that government is slow to respond. It typically takes the federal
government at least 72 hours to respond to a local emergency. Hurricane Katrina has demonstrated that
local, state, and federal governments can be overwhelmed and the community's expectations will not
match the government's capabilities.
Public Information - Residents may report difficulty getting critical information about the disaster from the
news media. Despite our efforts to communicate through the media by issuing regular news releases, local
media often choose to edit the information significantly, which can make it inaccurate, or not use it at all in
their reports. Our efforts to foster positive working relationships with all facets of the media include media
briefings and polling media to see how they want to receive information, so they will use the information in
their reports. These positive relationships are critical during times of disasters, as our Public Information
Staff works diligently to provide information to our residents.
RECOVERY
Recovery involves all of the cleanup and restoration activities that are necessary to be able to return the
area to normal. This involves getting all of the damage repaired, utilities restored, and the debris cleaned
up. Recovery is often the hardest phase of the disaster and may continue for an extended time. As soon as
it is safe to do so, the City of San Rafael will conduct preliminary damage assessments to determine the
level of property damage and the parts of the critical infrastructure that may be damaged.
The City of San Rafael has the primary responsibility for protecting its residents from disasters, and for
helping them to recover when disaster strikes. Government agencies at all levels are key partners is this
Phases of Emergency Management
93
October 2007
City Council Guide to Disaster Operations
process, offering resources and programs that will help the City of San Rafael, its residents, and business
owners pick up the pieces and return the community back to normal as quickly as possible.
Disaster recovery is rarely an easy process. It is financially, physically, and emotionally exhausting for
everyone involved. Confusion and misinformation about relief programs often becomes an enormous
source of frustration for the community members who are impacted, and for the local officials who are
involved in the response. The constant delivery of information to the public regarding recovery efforts will
be necessary.
Residents have their own priorities which may be different than those of the City's. Residents are often
unaware of the scope of a disaster and may have unrealistic expectations about what the City of San
Rafael can do for them as everyone works to recover.
Disaster Recovery Considerations
Debris Removal - Debris removal on private
property is typically not covered by FEMA or San
Rafael and is the property owner's responsibility. If
you have a constituent who has a significant
problem with debris removal, call the Director of
Emergency Services. Ways may be found to assist
them.
• Rebuilding - Residents may want to rebuild their
house or business in the flood plain or hazard
area. This brings up zoning and local ordinance
issues that may need to be addressed by the City
Council.
Generators and sandbags — May be available from
hardware stores, equipment supply companies,
and equipment rental businesses but may run out
during disasters. It is best for residents to have
enough basic supplies on hand so that they can be
on their own for at least 72 hours.
During the recovery phase, San Rafael may
be able to provide:
• Drinking water
• Emergency Shelter
• Emergency medical transport/treatment
• Assistance in seeking disaster assistance
But we normally do not provide:
• Batteries
• Flashlights
• Ice
• Generators
• Food (except in shelters and mass feeding
sites)
• Transportation
These items can typically be purchased or
arranged through retail establishments. If you
receive questions from your constituents about
these issues, you may want to refer them to the
phone book.
One of the most important contributions that City Council members can make is to point constituents in the
right direction for the information they need. That might be to a FEMA Teleregistration number, a local
assistance center, or there may be a need for volunteers to help with debris removal or other cleanup
activities. If you have a constituent who has a special need for items or services, contact the EOC Director
or the Director of Emergency Services.
Types of Federal Disaster Assistance
None of FEMA's programs are designed to replace individual losses 100% — only to bring living conditions
back to a "safe and habitable" condition. The majority of federal disaster assistance is conveyed in the form
of U.S. Small Business Administration (SBA) Loans, not grants. Public and private entities will complete
stacks of paperwork, undergo numerous inspections, and devote hundreds of staff -hours toward
reimbursement for disaster -related losses. Despite these complexities, federal disaster relief is all that
Phases of Emergency Management October 2007
9
City Council Guide to Disaster Operations
many individuals have to rely on to rebuild their lives. This is particularly true for those homeowners without
flood insurance — and 30% of disaster related claims occur outside federally designated floodplain areas.
Not all federal disaster relief programs are activated for every disaster. Presidential decisions about relief
programs are based on the preliminary damage assessment and any subsequent information that may be
discovered. Some disaster declarations will provide only Individual Assistance (private) or only Public
Assistance (government). Hazard mitigation opportunities are available in most situations. San Rafael's
efforts in the damage assessment process will help ensure that residents obtain as many benefits as
possible under the law.
Federal disaster assistance available under a major disaster declaration falls into three general categories:
• Individual Assistance -aid to individuals, families and business owners.
• Public Assistance - aid to public (and certain private non-profit) entities for certain emergency
services and the repair or replacement of disaster -damaged public facilities.
• Hazard Mitigation Assistance -funding for measures designed to reduce future losses to public and
private property. In the event of a major disaster declaration, all counties within the declared State
are eligible to apply for assistance under the Hazard Mitigation Grant Program.
A brief overview of each of these programs follows.
Individual Assistance
This assistance is directed towards residents, business owners, individuals, and families - In every case,
the disaster victim must register for assistance to establish eligibility. FEMA (or the providing agency) will
verify eligibility and determine a need before assistance is offered. Individual Assistance includes the
following programs.
Temporary Housing Assistance - assures that people whose homes are damaged by disaster have
a safe place to live until repairs can be completed. These programs are designed to provide funds
for expenses that are not covered by insurance. They are available only to homeowners and
renters who are legal residents of the United States and who were displaced by the disaster. Non-
legal residents may be eligible for similar types of assistance through the American Red Cross or
other non-governmental agencies.
• Home Repair Assistance -helps repair a home to a "habitable" condition. The amount of the check
is based on structural damage, as determined by a FEMA inspection.
• Rental Assistance - provides for rent until affected structure becomes habitable.
• Mortgage and Rental Assistance (MRA) - provides a check to pay the rent or mortgage to prevent
eviction or foreclosure.
• Small Business Administration Disaster Loans - The SBA can provide three types of disaster loans
to qualified homeowners and businesses: Home Disaster Loans to homeowners and renters,
Business Physical Disaster Loans to business owners to repair or replace disaster -damaged
property, and Economic Injury Disaster Loans, which provide capital to small businesses and to
small agricultural cooperatives to assist them through the disaster recovery period. For many
individuals the SBA disaster loan program is the primary form of disaster assistance.
Phases of Emergency Management
10
October 2007
City Council Guide to Disaster Operations
• Individual and Family Grants (IFG) - The IFG provides funds for the necessary expenses and
serious needs of disaster victims that cannot be met through insurance or other forms of disaster
assistance (including low interest loans from the Small Business Administration). Among the needs
that can be met through the IFG Program are housing, personal property, medical, dental, funeral,
transportation and required flood insurance premiums.
Other FEMA programs for individuals include Disaster Unemployment Assistance, Legal Services, Tax
Relief Considerations and Crisis Counseling.
Public Assistance
FEMA Public Assistance funds the repair, restoration, reconstruction, or replacement of a public facility or
portion of the infrastructure that is damaged or destroyed by a disaster. Certain private nonprofit (PNP)
organizations may also receive public assistance. Eligible PNP's include educational, utility, emergency,
medical, rehabilitation, and temporary or permanent custodial care facilities (including those for the aged
and disabled), and other PNP facilities that provide essential services of a governmental nature to the
general public.
As soon as practicable after the declaration, the State, assisted by FEMA, conducts briefings for State,
local and PNP officials to inform them of the assistance available and how to apply for it. Intent to apply for
assistance must be filed with the State within 30 days after the area is designated eligible for assistance.
Projects fall into the following categories: Debris removal, Emergency protective measures, Road systems
and bridges, Water control facilities, Public buildings and contents, Public utilities, and Parks and
Recreation. FEMA reviews and approves the project applications and obligates the Federal share of the
costs (75 percent) to the State. The State then disburses funds to local applicants. The State will cover
75% of the project costs that FEMA does not cover and may elect to cover the full share not covered by
FEMA.
For small projects, payment of the Federal share of the estimate is made upon approval of the project and
no further accounting to FEMA is required. For large projects, payment is made on the basis of actual costs
determined after the project is completed; although interim payments may be made as necessary. Once
FEMA obligates funds to the State, further management of the assistance, including disbursement to
subgrantees, is the responsibility of the California Governor's Office of Emergency Services.
Hazard Mitigation - Hazard Mitigation refers to sustained measures enacted to reduce or eliminate long-
term risk to people and property from natural hazards and their effects. In the long term, mitigation
measures reduce personal loss, save lives, and reduce the cost to the nation of responding to and
recovering from disasters. Eligible mitigation projects include acquisition or relocation of properties located
in high hazard areas; elevation of flood prone structures; seismic and wind retrofitting of existing structures;
and protecting existing structures against wildfire.
Phases of Emergency Management October 2007
11
City Council Guide to Disaster Operations
SAN RAFAEL'S MAJOR DISASTER TIMELINE ... (AN EXAMPLE)
The disaster occurs and San Rafael resources are overwhelmed.
Emergency responders are committed to numerous incidents and staff is on overtime for days or
weeks. The EOC is activated to manage and coordinate the City's response. There are severe
impacts to residents; death, injuries, and evacuations. There is major damage to homes,
infrastructure, public buildings, schools, water supply, and sanitation systems. Hospitals are
inundated with injured. There are large amounts of debris in the streets and numerous shelters are
opened.
2. The City Council proclaims a Local Emergency (or ratifies the Director of Emergency Services
Proclamation).
A Local Emergency is proclaimed by the City Council, or, when there is an immediate need, the
Director of Emergency Services. If the Director proclaims a Local Emergency, the City Council
must ratify it within seven days. We subsequently request the Governor for a State Proclamation of
Emergency and also the President for a Federal Disaster Declaration. The City Council must ratify
within seven days of initial signing.
3. County, State, and Federal resources arrive to support local response and recovery efforts.
These resources will be assigned to damaged areas based on County and Regional priorities for
allocation of resources.
4. San Rafael activates Public Information Hotline and posts current emergency information on
City's Website.
San Rafael actively works with the media and other agencies to disseminate disaster and recovery
information to community members.
5. San Rafael and Marin County officials conduct a Preliminary Damage Assessment (PDA) to
determine the disaster's impact on individuals, infrastructure and public facilities.
6. San Rafael will work with other local resources to immediately begin debris removal and
restoration of services.
7. State OES compiles PDA information from impacted communities and prepares the Governor's
request to FEMA for federal disaster assistance.
We will field questions from the media and residents about "who will pay" and how local needs will
be met. We will rely on local resources and assistance from Voluntary and Not-for-profit
Organizations to meet the immediate needs.
8. The Governor's Request for a Federal Disaster Declaration is made to the President.
We will escort state and federal legislators on tours of the impacted areas throughout the City.
They may possibly advocate on our behalf; but all requests for Federal Disaster Declarations must
be made formally, through FEMA.
Phases of Emergency Management October 2007
12
City Council Guide to Disaster Operations
9. Based on the Governor's request, the President may declare that a major disaster or emergency
exists, and activate an array of Federal programs to assist in the response and recovery effort.
Federal disaster area determinations are not automatic, and can take as long as 30 days.
However, in severe incidents (such as catastrophic events like Hurricane Katrina), they usually
much quicker. Denied requests may be appealed.
10. (If a Presidential Disaster Declaration is received), FEMA opens a Disaster Field Office (DFO).
FEMA establishes a Disaster Field Office to manage the hundreds of disaster assistance
employees assigned to the affected areas. San Rafael and/or the County will hold meetings where
FEMA and State staff can discuss the disaster relief effort with local government leaders. FEMA
and State Community Relations personnel will traverse every neighborhood to encourage residents
to teleregister.
11. San Rafael and/or the County open a Local Assistance Center.
Staffed and supported by local, state and federal agencies, non-profit, and voluntary organizations.
The LAC provides a single facility at which individuals, families and businesses can access
available disaster assistance programs.
12. San Rafael closes EOC and activates Recovery Operations Center (ROC).
The ROC will be staffed by City employees to assist with disaster recovery operations, planning,
public information and finances. The ROC will maintain a public hotline number to answer
questions regarding the disaster.
13. San Rafael establishes a Disaster Recovery Working Group
Coordinates information and technical assistance for the disaster recovery efforts. The working
group will include members from the City, County, special districts, and community groups to
support and coordinate recovery efforts.
14. San Rafael will conduct an After -Action Review
This will be a professional discussion of the event, focused on performance standards, that
enables staff to discover for themselves what happened, why it happened, and how to sustain
strengths and improve on weaknesses.
Phases of Emergency Management October 2007
13
City Council Guide to Disaster Operations
EMERGENCY MANAGEMENT SYSTEMS
STANDARDIZED EMERGENCY MANAGEMENT SYSTEM (SEMS)
The Standardized Emergency Management System (SEMS) has been adopted by the City of San Rafael
for managing the response to multi -agency and multi -jurisdiction emergencies. Local governments in
California are required to use SEMS when their emergency operations center is activated or a local
emergency is proclaimed in order to be eligible for state funding of response -related personnel costs.
Fully activated, SEMS consists of five levels: field response, local government (San Rafael), operational
Area (countywide), Region, and State. The various levels are activated starting at the Field Level and move
up as the size of an incident increases and additional resources are needed.
SEMS Levels:
• Field Response Level - The field response level is where emergency response personnel and
resources, under the command of an appropriate authority, carry out tactical decisions and
activities in direct response to an incident or threat.
• Local Government Level -Local governments include cities, towns, counties, and special districts.
Local governments manage and coordinate the overall emergency response and recovery
activities within their jurisdiction.
Operational Area Level - The operational area is defined as a county and all political subdivisions
within the county area. The County of Marin serves in the role as the Operational Area and is
responsible for:
o Coordinating information, resources and priorities among local governments within the
Operational Area;
o Coordinating information, resources and priorities between the regional and local
government levels;
o Coordinating multi -discipline, multi -agency response and recovery efforts county -wide.
• Regional level - Because of its size, the State has been divided into six mutual aid regions. The
purpose of a mutual aid region is to provide more effective application and coordination of mutual
aid and other emergency related activities. State OES has also established three Administrative
Regions (Coastal, Inland, and Southern). These Administrative Regions are the means by which
State OES maintains day-to-day contact with emergency services organizations at local, county
and private sector organizations. San Rafael is a part of the Coastal Region. The regional level is
responsible for:
o Managing and coordinating information and resources among operational areas.
o Managing and coordinating between the operational areas and the state level.
o Coordinating overall State agency support for emergency response activities within the
region.
• State Level - The state level manages state resources in response to the emergency needs of the
other levels and coordinates mutual aid among the mutual aid regions and between the regional
level and state level. The state level also serves as the coordination and communication link
between the state and the federal disaster response system including the Federal Emergency
Management Agency (FEMA) and the Department of Homeland Security (DHS).
Emergency Management Systems
14
October 2007
SEMS Functions
City Council Guide to Disaster Operations
Under SEMS, management of an incident is organized by the following five functions:
• Management- Responsible for overall emergency management policy and coordination through
the joint efforts of governmental agencies and private organizations. The EOC Director will either
activate appropriate sections or perform their functions as needed.
• Operations - Responsible for coordinating all jurisdictional operations in support of the emergency
response through implementation of the City's EOC Action Plan.
• Planning/Intelligence - Responsible for collecting, evaluating and disseminating information;
developing the City's EOC Action Plan in coordination with other sections; initiating and preparing
the City's Corrective Action / After -Action Report and maintaining documentation.
• Logistics - Responsible for coordinating and providing equipment, supplies and materials,
communications, facilities, services, and personnel.
• Finance/Administration - Responsible for all financial activities — such as personnel and equipment
cost accounting and documentation -- and other administrative aspects.
State Operations
Center
Statewide
Mutual Aid
& Support
♦
�
i
INLAND REGION
CQASTAL REGION,
19UTHERN REGION
Regional Mutual Aid
Regional Mutual Aid
Regional Mutual Aid
& Support
8 Support
& Support
1
OPERATIONAL
OPERATIONAL
OPERATIONAL
AREA
AREA
AREA
Sonoma County
Marin County
San Francisco
Mutual Ald
Mutual Aid
Mutual Aid
& Support
& Support
& Support
LOCAL
San Rafael
Response
000 —M
0 0 0
� ► `1
t
IDENT INCIDENT INCIDENT
Emergency Management Systems October 2007
15
.Yi
City Council Guide to Disaster Operations
NATIONAL INCIDENT MANAGEMENT SYSTEM (NIMS)
The National Incident Management System (NIMS) is a nationwide
V�P�1Fti
°.
standardized approach to incident management and response. Developed by
the Department of Homeland Security (DHS) and released March 2004, it
o
establishes a uniform set of processes and procedures that emergency
a��<qNU S�GJ�`
responders at all levels of government will use to conduct response operations.
Command and Management
The NIMS standard incident command structures are based on the following key organizational systems:
■ The Incident Command System (ICS)
■ Multi -Agency Coordination Systems (MACS)
■ Public Information Systems
Other key NIMS components are:
• Preparedness - Effective incident management begins with prevention and preparedness activities
conducted continually, well in advance of any potential incident. Preparedness involves an
integrated combination of planning, training, exercises, personnel qualification & certification
standards; and equipment acquisition/certification.
• Resource Management- NIMS defines standardized mechanisms and establishes requirements
for processes to describe, inventory, mobilize, dispatch, track, and recover resources over the life
cycle of an incident.
• Communications and Information Management- NIMS identifies the requirement for a
standardized framework for communications, information management (collection, analysis, and
dissemination) and information -sharing at all levels of incident management.
• Supporting Technologies - Technology systems provide supporting capabilities essential to
implementing and refining NIMS. These include voice and data communications systems,
information management systems (i.e., record keeping and resource tracking) and data display.
DISASTER & CIVIL DEFENSE MASTER MUTUAL AID AGREEMENT
The statewide mutual aid system is codified in the California Disaster and Civil Defense Master Mutual Aid
Agreement. All counties, incorporated cities, and the State of California have adopted the Agreement,
which was developed in 1950. The Master Mutual Aid Agreement creates a formal structure wherein each
local jurisdiction retains control of its own facilities, personnel, and resources, but may also receive or
render assistance to other jurisdictions within the State.
Emergency Management Systems October 2007
16
EMERGENCY PROCLAMATIONS
LOCAL EMERGENCY
Emergency proclamations are normally made when there
is an actual incident or threat of disaster or extreme peril
to the safety of persons and property caused by natural
or man-made situations. A Local Emergency is
proclaimed by the City Council, or, when there is an
immediate need, the Director of Emergency Services. If
the Director proclaims a Local Emergency, the City
Council must ratify it within seven days. The City Council
must review the need for the proclamation at least every
14 days until the Local Emergency is terminated. The
Local Emergency must be terminated by resolution as
soon as conditions warrant.
Local Emergency Defined
City Council Guide to Disaster Operations
The Declaration Process
Step 1: Conditions indicate a local disaster
is likely to occur or has already occurred.
Step 2: Local Emergency declared by the
City Council or Director of Emergency
Services.
Step 3: City or County Director of
Emergency Services requests a State and
Federal Declaration from the Governor.
Step 4: Governor requests a Presidential
Declaration.
A "local emergency" exists whenever the City or an area
therein is suffering or in imminent danger of suffering an
event that may cause injury or death to persons, or damage to or destruction of property to the extent that
extraordinary measures must be taken to protect the public health, safety, and welfare. Such an event shall
include but not be limited to the following: fire, explosion, flood, severe weather, drought, earthquake,
volcanic activity, spills or releases of oil or hazardous material, contamination, utility or transportation
emergencies, disease, blight, infestation, civil disturbance, riot, sabotage, terrorist attack and war.
Purpose of Emergency Proclamation
• Authorize the undertaking of extraordinary police powers.
• Provide limited immunity for emergency actions of public employees and governing bodies.
• Authorize the issuance of orders and regulations to protect life and property (e.g., curfews).
• Activate pre -established local emergency provisions such as special purchasing and contracting.
• Require the emergency services of a local official or employee.
• Requisition necessary personnel and materials from any local agency or department.
• VERY IMPORTANT... it is the prerequisite for requesting a Governor's Proclamation of a State of
Emergency and/or a Presidential Declaration of an Emergency or Major Disaster.
When to issue emergency proclamation
• The local proclamation is the first step toward a state and federal declaration, which would then
activate eligible state and federal disaster relief programs to provide financial relief to both local
government and the public.
• A local, state and/or federal declaration is likely to send a reassuring message to the public that
officials intend to pursue every avenue available to assist the disaster victims.
Emergency Proclamations October 2007
17
City Council Guide to Disaster Operations
• In order to acquire state and federal assistance it is not necessary for San Rafael to declare an
emergency, if the County has already done so.
• Cities/Towns within a county are bound by county rules and regulations adopted by the county
during a proclaimed local emergency when the emergency is in both the incorporated and
unincorporated territory. (Ref. 62 California Attorney General Opinions, 701, dated 1979)
STATE PROCLAMATION OF EMERGENCY
A State of Emergency may be proclaimed by the Governor when conditions of disaster or extreme peril
exist which threaten the safety of person and property within the state. The Governor may also proclaim a
state of emergency when requested to do so by local authorities or when the local authority is inadequate
to cope with the emergency.
When the Governor proclaims a State of Emergency:
• Mutual aid shall be rendered in accordance with approved emergency plans when the need arises
in any city or county for outside assistance.
• The Governor shall, to the extent he/she deems necessary, have the right to exercise all police
power vested in the state by the Constitution and the laws of the State of California within the
designated area.
• Jurisdictions may command the aid of citizens as deemed necessary to cope with an emergency.
• The Governor may suspend the provisions of orders, rules or regulation of any state agency and
any regulatory stature or stature prescribing the procedure for conducting state business.
• The Governor may commandeer or make use of any private property or personnel (other than the
media) in carrying out the responsibilities of his office.
• The Governor may promulgate issue and enforce orders and regulations deemed necessary.
• A State Proclamation activates the California Natural Disaster Assistance Act (CDAA) which
provides financial assistance for items such as repairing or replacing public property or facilities,
and local agency overtime costs and costs of supplies used in the response.
A State Proclamation is needed to request a Presidential Declaration and access to federal disaster relief
programs.
PRESIDENTIAL DECLARATIONS
The Governor of an impacted state may request a Presidential Declaration of Emergency or Disaster when
the disaster is of such severity and magnitude that effective response is beyond the ability of the state and
affected local jurisdictions.
Federal Declaration of Emergency
In some cases the President may make a Declaration of Emergency instead of a Disaster. An Emergency
Declaration unleashes the support of any or all of the 27 federal agencies. It also authorizes
reimbursement of emergency work, such as debris removal and emergency protective measures. It stops
short, however, of providing certain types of recovery assistance.
Emergency Proclamations
18
October 2007
Federal Declaration of Major Disaster
City Council Guide to Disaster Operations
A Presidential Declaration of Disaster is made when the President determines that the situation warrants
major federal disaster assistance. In addition to the assistance provided in an Emergency Declaration, a
Disaster Declaration may make a broad range of assistance available to individual victims, including:
■ Temporary housing;
■ Disaster unemployment and job placement assistance;
■ Individual and family grants;
■ Legal services to low-income victims; and,
■ Crisis counseling and referrals.
DECLARATION OF HEALTH EMERGENCY
The County Public Health Officer (PHO) may declare a local health emergency (Health and Safety Code §
101080; Government Code § 8558) whenever there is a release, spill, escape, or entry of hazardous waste
or medical waste that is determined to be an immediate threat to the public health, or an imminent and
proximate threat of the introduction of any contagious, infectious, or communicable disease, chemical
agent, noncommunicable biologic agent, toxin, or radioactive agent.
This declaration must be ratified by the County Board of Supervisors if it is to remain in effect after seven
days, and must be reviewed at least every 14 days until the emergency is terminated.
After a Health Emergency has been declared, the PHO will have supervision and control over all
environmental health and sanitation programs and personnel employed by the County. In addition, the PHO
can require any person or organization that the director or local health officer shall specify to furnish any
information known relating to the properties, reaction, and identity of the material that has escaped, been
released, or spilled.
A Public Health Emergency may also be declared if there is an outbreak of a communicable disease. The
PHO may then require isolation or quarantine of any case of contagious, infectious, or communicable
disease when this action is necessary for the protection of the public health. The PHO may also take any
measures as may be necessary to prevent the spread of the disease or occurrence.
Emergency Proclamations
19
October 2007
City Council Guide to Disaster Operations
EMERGENCY MANAGEMENT ORGANIZATION
The City of San Rafael's emergency management organization uses the Standardized Emergency
Management System (SEMS) and the National Incident Management System (NIMS). The City is part of
the Marin County Operational Area and the Coastal Region of the Governor's Office of Emergency Services
(State OES).
The City Manager serves as the Director of Emergency Services and is responsible for implementing the
City's Emergency Operations Plan through the efforts of the City's Office of Emergency Services. Within the
emergency organization, departments and agencies have specified roles and responsibilities for certain
functions.
EMERGENCY OPERATIONS PLAN
The City of San Rafael Emergency Operations Plan (EOP) addresses the planned response to
extraordinary emergency situations associated with natural disasters, technological incidents, and national
security emergencies in or affecting the San Rafael.
The EOP:
• Establishes the emergency management organization required to respond to and mitigate any
significant emergency or disaster affecting the City.
• Identifies the policies, responsibilities, and procedures required to protect:
o The health and safety of San Rafael communities.
o Public & private property.
o The environmental effects of natural and technological emergencies and disasters.
• Establishes the operational concepts and procedures associated with field response to
emergencies, the City's Emergency Operations Center (EOC) activities, and the recovery process.
The EOP establishes the framework for implementation of the California Standardized Emergency
Management System (SEMS) and the National Incident Management System (NIMS) in the City of San
Rafael. The Plan is intended to facilitate multi -agency and multi -jurisdictional coordination in emergency
operations, particularly between City of San Rafael and other local governments, including special districts,
the County of Marin, and State agencies.
The EOP is a concept of operations guide and planning reference. City departments and local agencies
that have roles and responsibilities identified in the EOP are encouraged to develop emergency operations
plans, detailed standard operating procedures (SOPs), and emergency response checklists based on the
provisions of the EOP.
EMERGENCY OPERATIONS CENTER
Day-to-day operations are conducted from departments and agencies that are dispersed throughout the
City. An Emergency Operations Center (EOC) is a location from which centralized emergency management
can be performed during a major emergency or disaster. This facilitates a coordinated response by the
Director of Emergency Services, Emergency Management Staff, and representatives from organizations
Emergency Management Organization October 2007
20
City Council Guide to Disaster Operations
that are assigned emergency management responsibilities. The level of EOC staffing will vary depending
upon the specific emergency situation.
An EOC provides a central location of authority and information, and allows for face-to-face coordination
among personnel who must make emergency decisions. The following functions are performed in the San
Rafael EOC:
• Managing and coordinating emergency operations.
• Receiving and disseminating warning information.
• Developing emergency policies, procedures, and action plans.
• Collecting intelligence from, and disseminating information to, the various EOC representatives and
the City Council, and, as appropriate, to County, city, special district, non-profit and community
based organizations, state agencies, military, and federal agencies.
• Preparing intelligence/information summaries, situation reports, operational reports, and other
reports as required.
• Maintaining general and specific maps, information display boards, and other data pertaining to
emergency operations.
• Continuing analysis and evaluation of all data pertaining to emergency operations.
• Controlling and coordinating the operational and logistical support of departmental resources
committed to the emergency.
• Maintaining contact and coordination with support department operations centers (DOC), other
non-governmental agencies and the County/Operational Area EOC.
• Providing emergency warnings, alerts, information, and instructions to the public, making official
releases to the news media and scheduling press conferences as necessary.
Management of the EOC and alternate EOC facilities is the responsibility of the City Manager's Office of
Emergency Services (OES). This responsibility includes all facility functions, support systems, and
operational readiness issues. Organization of the EOC and staff is based on the Standardized Emergency
Management System (SEMS). The City Manager, or designee, serves as the EOC Director. The EOC
Director has the primary responsibility for ensuring that the City Council is kept apprised of the situation and
will bring all major policy issues to the City Council for review and decision.
The primary EOC is located at the City Council chambers and the alternate EOC is located at the
Department of Public Works facility.
The EOC can be activated by the following staff:
• Director of Emergency Services
• Assistant Director of Emergency Services
• Fire Chief
• Police Chief
• Emergency Services Manager
Emergency Management Organization
21
October 2007
San Rafael EOC Organizational Chart
I
EOC lII(
Coordinator II
II EOC Liaison
City Council Guide to Disaster Operations
San Rafael
City Council
EOC Director - J Admin Assistant
I
Public Info l�
Officer
IILegal Officer 1
Operations
Planning
Logistics
Finance
Section Chief
Section Chief
Section Chief
Sect on Chief
Fire / EMS /
II Situation
Communications
II Timekeeping
Hazmal
�I l�
Analysis
1
�I
1
�I Law Enforcement1L
I GIS I
Facilities
Compensation & l�
Ilttrr
�I
Claims
�I
Public Works 11
�I Damage
Resources
lI
Contracts
Assessment
�I l�
Care &Sheller 11
1
Damage
I
Resource Status
Cost/Accounting
�I
Assessment I
I
�I
Jlr
Teams
Volunteer
Advanced
Transportation lI�
Resources
I Planning l
�I
f Agency Reps
Documentation &
JI Supply &
l _
I
Display
I
I Procurement
�I
Planningll
Technical II
I
Ordering/
IlRecovery
Specia!ists IIII4
11
Receiving/Dist.
I
II Demobilization �[
This organizational chart represents a full activation of the EOC. For smaller events only certain positions
within the EOC will be staffed.
Emergency Management Organization October 2007
22
City Council Guide to Disaster Operations
ROLE OF CITY STAFF
All City of San Rafael regular employees are, by law, Disaster Service Workers. The roles and
responsibilities for Disaster Service Workers are authorized by the California Emergency Services Act and
are defined in the California Labor Code.
If the City of San Rafael declares a Local Emergency during normal work hours, employees will be
expected to remain at work to respond to the emergency needs of San Rafael. If a Local Emergency is
declared outside of normal work hours, employees may be called back to work, either in San Rafael or in
their home communities.
The various San Rafael City departments have specified roles and functions to assume when a large-scale
emergency or area -wide disaster strikes. These roles are well-defined in order to maintain a steady and
secure response and recovery. It's important that these emergency functions are established so that City
staff understands what to do in the event such a situation occurs, and can in turn assure the community
that the situation is being addressed and all steps are being taken to maximize the public's safety and well-
being.
San Rafael's Emergency Operations Plan outlines the defined organizational structure and chain of
command for emergency operations procedures, and the functional responsibilities of the City's
departments during such an emergency. In one way or another, every employee of San Rafael is a
participant in the City's emergency response organization.
ROLE OF CITY COUNCIL
The City Council's actions during and following an emergency influence community members as well as
employees, and directly impact the City's ability to protect lives and property. The City Council works
closely with the Director of Emergency Services in the Management Section of the EOC in a similar
capacity as they work with the City Manager during normal operations.
A Local Emergency is proclaimed by the City Council, or, when there is an immediate need, the Director of
Emergency Services. If the Director proclaims a Local Emergency, the City Council must ratify it within
seven days. The City Council must review the need for the proclamation at least every 14 days until the
Local Emergency is terminated. The Local Emergency must be terminated by resolution as soon as
conditions warrant. This is a crucial step in receiving both regional assistance and financial support. The
Council also advises and provides general direction to the Director of Emergency Services and provides
liaison with the community and other jurisdictions.
When a disaster strikes, the City Council often will serve as a primary conduit between the government and
the public both during and after the event. It may hold public meetings to conduct the business relevant to
response and recovery from the disaster (for example, the adoption of ordinances) and to hear from and
communicate with the public. Additionally, the Council may review potential or threatened litigation and
provide general direction to the Director of Emergency Services in such matters. Specific responsibilities of
the City Council include:
• Receive regular updates and briefings from the Director of Emergency Services.
• Serve as a liaison with other City, County, State and/or Federal government representatives.
Emergency Management Organization
23
October 2007
City Council Guide to Disaster Operations
• Review and approve the Proclamation of Local Emergency.
• Conduct public meetings to determine public needs and identify current or future city actions
related to the disaster.
• Receive information and assistance from the Director of Emergency Services to assist with public
information outreach.
• Visit impacted areas, shelters, and other temporary facilities to spot problems and special issues.
• Review requirements for special legislation and development of policy.
• Consider and advise both short and long term recovery strategies.
• Serve as the liaison with public or community organizations.
• Survey problem sites in San Rafael and assist residents and the City in finding solutions to
problems resulting from the disaster.
• Participate in required training as required by State & Federal law.
Notification
In the event of a disaster, the City Council will be notified by the Director of Emergency Services or
designee.
Responding To a Disaster Area
Depending on the size and scope of the disaster, it is recommended that you do not respond to the
immediate disaster area because of safety concerns for you as well as emergency responders working at
the scene. However, if you do choose to respond to the scene, you are encouraged to respond to the
Incident Command Post and to follow these guidelines:
■ Bring at least one form of identification. Not every police officer or firefighter will know you.
■ The fire, law enforcement, or other emergency response agency may establish a "Hot Zone" into
which only persons with the proper protective clothing and training are allowed to enter due to
hazards to health and safety. Be prepared to follow their guidance and understand if you are
denied access, it is for your safety.
■ Park you car in a safe place away from the incident and in an area where your vehicle does not
obstruct the road. Blocked roads may slow emergency vehicles from reaching their destination.
■ Communicate with the Director of Emergency Services to advise him you are going to the scene.
■ Check in with the Incident Commander as soon as you arrive at the scene. This person is
responsible for directing all activities at the incident scene. The Incident Commander should be
located at the Command Post.
■ Watch for hazards and pay attention to your surroundings. Many responders are struck by cars
every year because they are operating in the roadways where drivers are easily distracted by the
disaster or incident.
■ Watch where you step. The scene may contain hazardous materials that can wind up on your
shoes, which in turn can contaminate your car, home or business. Do not walk into or touch spilled
material. Avoid inhaling fumes, smoke, and vapors. Avoid flood water; it may be contaminated.
Emergency Management Organization
24
October 2007
City Council Guide to Disaster Operations
■ Wear the protective clothing and equipment. Sturdy steel -toed boots, a hardhat, and even safety
glasses might be needed. Arriving at a disaster without the correct type of clothing can place you at
risk. If you do not have the proper equipment, inform the Incident Commander and the Safety
Officer will make the appropriate clothing available for you to wear.
Emergency Meetings of the City Council
The Brown Act (Government Code §§ 54950-54962) governs meeting access for local public bodies. The
Brown Act cannot be suspended by a local proclamation of emergency or by any other legislation.
However, the Brown Act itself does provide some flexibility with the noticing and agenda requirements in
"emergency situations".
Emergency- Defined as a work stoppage, crippling activity, or other activity that severely impairs
public health, safety, or both, as determined by a majority of the members of the legislative body.
Government Code section 54956.5(a)(1). In cases of "emergency", the local legislative body (the
City Council) may hold an emergency meeting without complying with the 24-hour notice
requirement and/or posting requirement ordinarily necessary prior to the Council holding a special
meeting. However, telephonic notification must be given to the media at least one hour before the
emergency meeting is held. Government Code section 54956.5(b)(1)
Dire Emergency - Defined as a crippling disaster, mass destruction, terrorist act, or threatened
terrorist activity that poses peril so immediate and significant that requiring a legislative body to
provide one-hour notice before holding an emergency meeting under this section may endanger
the public health, safety, or both, as determined by a majority of the members of the legislative
body. Government Code section 54956.5(a)(2). In cases of "dire emergency", the one-hour notice
of the meeting provided to the media can occur at the same time the presiding officer or designee
is notifying the members of the legislative body about the dire emergency meeting. And, in
situations where telephone services are not functioning, the notice requirements mentioned above
shall be deemed waived, and the legislative body, or designee of the legislative body, shall notify
the media of the fact of the holding of the emergency meeting, the purpose of the meeting, and any
action taken at the meeting as soon after the meeting as possible. Government Code section
54956.5(b)(2).
Post Meetinq Obli4ations: Where the Council has conducted an emergency meeting or a dire
emergency meeting pursuant to these Government Code provisions, the City must post minutes of
the meeting, a list of the persons notified or attempted to be notified prior to the meeting, the
actions taken by the Council and roll call vote. This information must be posted in a public place, as
soon after the meeting as possible and shall remain in place for ten (10) days. Government Code
section 54956.5(e)
In short, in emergency situations, the City and its officials MUST comply with the Brown Act but the Act
itself provides the flexibility with regard to noticing requirements.
Emergency Management Organization October 2007
25
.4;,_�AA
City Council Guide to Disaster Operations
ROLE OF STANDBY CITY COUNCIL MEMBERS
Standby City Council members will be used during an emergency when the City Council can not
reconstitute itself and its members are unavailable.
• While filling the post of an unavailable regular City Council member during an emergency, the
standby City Council member will take an oath of office and assume all the other duties and
responsibilities that the regular City Council member would have had, including the duty to attend
council meetings, vote on matters brought before the City Council, comply with Fair Political
Practices Act with respect to avoidance of conflicts of interest in making decisions, comply with the
Brown Act, and adhere to all other City Council requirements.
• Standby City Council members will participate in required training as required by State & Federal
law and remain familiar with San Rafael's disaster operations.
• A standby City Council member will be selected (or re -confirmed) by each Council member every
January as a part of the City Council appointments.
DIRECTOR OF EMERGENCY SERVICES
The City Manager is the Director of Emergency Services and is empowered to:
• Proclaim the existence of a local emergency if the immediate needs of the disaster require a local
emergency proclamation sooner than the next feasible City Council meeting. If the Director
proclaims a Local Emergency, the City Council must ratify it within seven days. Also, request the
Governor to proclaim a "state of emergency" when locally available resources are inadequate to
cope with the emergency;
• Immediately notify the City Council of the issuance of a proclamation of local emergency (if the
Council is not immediately available to issue the proclamation itself).
• Direct and control the effort of the emergency organization of the city;
• Direct cooperation between and coordination of services and staff of the emergency organization of
the City; and resolve questions of authority and responsibility that may arise between them;
• Make and issue rules and regulations on matters reasonably related to the protection of life and
property as affected by such emergency; provided, however, such rules and regulations must be
confirmed at the earliest practicable time by the City Council;
• Obtain vital supplies, equipment, and such other properties found lacking and needed for the
protection of life and property and to bind the City for the fair value thereof and, if required
immediately, to commandeer the same for public use;
• Require emergency services of any city officer or employee, and in the event of the proclamation of
a "state of emergency" in the city or the existence of a "state of war emergency," to command the
aid of as many citizens of this community as deemed necessary in the execution of his duties; such
persons shall be entitled to all privileges, benefits, and immunities as are provided by state law for
registered Disaster Service Workers;
• Requisition necessary personnel or material of any department or agency in this city.
Emergency Management Organization
October 2007
SAN RAFAEL DISASTER COUNCIL
City Council Guide to Disaster Operations
The City's disaster council is empowered to develop and recommend for adoption by the city council,
emergency and mutual aid plans and agreements and such ordinances, resolutions, rules, and regulations
as are necessary to implement such plans and agreements within the City. The council meets upon the call
of the chairman, or in his absence from the city or inability to call such meeting, upon the call of the vice
chairman.
Membership
• Mayor, chairman
• Director of Emergency Services, vice -chair
• Assistant Director of Emergency Services
• Fire Chief
• Police Chief
• Representatives of organizations having an official emergency responsibility, as may be appointed
by the director with the consent of the city council.
Emergency Management Organization October 2007
27
RESOURCES
City Council Guide to Disaster Operations
The City of San Rafael has the first responder resources available to respond to any major emergency or
disaster comparable to any such City of the same size. San Rafael works very closely with neighboring
agencies through automatic and mutual aid agreements to enhance our capability to respond to large
events. However, a major emergency or disaster affecting a large portion of Marin County and the Bay
Area would limit the amount of assistance coming into Marin and San Rafael. Strategies would need to be
developed quickly to identify the best methods of utilizing available resources in a manner that would
provide the most good for the most amount of people.
SPECIAL COUNTY RESOURCES
Urban Search & Rescue (USAR)
The Marin County Urban Search and Rescue (USAR) Team is a "multi -hazard"
discipline, since it may be needed for a variety of emergencies or disasters. The
team is certified as a "heavy" rescue team by the Governor's Office of Emergency ..�
Services and is made up of members from various jurisdictions. Members are W.
trained as technical specialists, capable of performing confined space rescue, water
rescue, physical search and rescue operations in collapsed structures, initial medical
stabilization of injured response personnel & trapped victims, hazardous materials
categorization, structural hazard evaluation, and stabilization of damaged structures.
USAR's Five Major Functional Elements:
• Search
• Rescue
• Technical
• Medical
• Heavy Equipment
The Marin County USAR team is designed to be totally self-sufficient for the first
48 hours of operation. Specialized equipment includes concrete and steel cutting
tools, breaking devices, portable generators, power saws, drills, air bags,
lighting, ropes and other technical rescue items. Other equipment carried by the
three designated rescue units includes medical supplies, hazardous materials
and radiation monitors, protective clothing, victim locating devices, search
cameras, water rescue boats, communication equipment, and computer
equipment.
Sheriff's Office Search & Rescue (SAR)
The Marin County Sheriffs Search and Rescue Unit was first
sponsored in 1976 by the American Red Cross. During that time
they assisted with the Orphan Airlift at Hamilton Field of
Vietnamese children and many first aid events. In 1978,
sponsorship of the team was changed to the Sheriffs Department,
and the unit began to respond to its first search and rescue
missions.
Resources October 2007
28
City Council Guide to Disaster Operations
During the early years with the Marin County Sheriffs Office, the unit responded to several large SAR
missions, including an overnight search for two missing children in the hills above Inverness and several
challenging incidents searching for the victims of the trailside killer between 1979 and 1981. The unit also
was heavily involved in disaster operations during the great flood of 1982 and lesser flooding disasters in
'83,'85 and'86. During this time, SAR also assisted in investigations for numerous evidence searches.
SAR has 70 members and is capable of carrying out a wide spectrum of missions from high altitude
rescues to searching for victims of predator abductions.
Radio Amateur Civil Emergency Services (RACES)
RACES is a volunteer organization of licensed amateur radio operators in Marin County. RACES
RACES members operate radio equipment installed in Emergency Operations Centers
and other strategic locations. RACES is organized under FEMA and operates according to
Federal Communications Commission (FCC) rules. In Marin County RACES is
administered by the Marin County Sheriffs Office of Emergency Services. RACES members may provide
communications support using amateur radio, cellular and regular phones, as available.
Goals:
• To provide emergency communications as needed and as requested in the event of a disaster.
• To maintain readiness to provide communications in the event of a failure of emergency
communications systems.
• To support emergency services in gathering information about potential hazards to life and
property.
• To support emergency services in disseminating information to the public.
• To improve skills, knowledge, and abilities of RACES members through trainings, seminars, and
information.
Marin Medical Reserve Corps (MMRC)
The mission of the Marin County Medical Reserve Corps is to develop partnerships _
within Marin County medical professionals (active and retired) that aid in the education,
training and deployment of citizen volunteers and resources in the event of a large scale,
local emergency or disaster. The vision of the Marin Medical Reserve Corps (MMRC) is
to enlist citizen volunteers to assist in the establishment of an organized pool of
resources capable of being deployed to support emergency medical operations throughout the county. The
MMRC is administered by the Marin County Department of Health & Human Services.
Marin County Hazardous Materials Response Team
The County has one Operational Area hazardous material team and two HazMat response vehicles. The
team is comprised of personnel from County and city fire departments as well as County Environmental
Health. The team is administered by the Marin County Fire Chiefs Association. It includes eleven (11)
personnel who are equipped and trained at a Technician level, which allows them to work in very close
proximity to a released material. There are also fourteen (14) personnel who are equipped and trained as
Specialists — the highest level of HazMat training.
Resources
29
October 2007
WORKING WITH THE MEDIA
City Council Guide to Disaster Operations
In the event of a significant incident, City Council members will be contacted and briefed by the Director of
Emergency Services or Public Information Officer. In addition:
• Media briefings may be scheduled for Council members to attend.
• Public Information Officers or the EOC Director will confer with Council members to brief them on
the situation and what response and recovery actions are underway.
• Council members will be provided copies of all news releases and information.
The City's Assistant to the City Manager serves as the Public Information Officer (PIO) for the City and is
supported by EOC staff during an event. The PIO is trained, skilled and experienced in dealing with the
media, and has established working relationships with all media.
Cultivating a good relationship with the media prior to a disaster may provide better support from the media
during the hectic hours of responding to an emergency. It is important to create a situation where the media
feels it has a vital role during the response efforts. The media, when supportive, can convey important
information to the public about issues such as evacuations and disaster assistance information.
While the PIO will work closely with the media, Council members will often be sought out by the news
media for comments or information specific to the disaster.
Tips for responding to questions from the Media in a Disaster
• Answer all questions directly and to the point.
■ If you don't know the answer to a question, say so. Don't risk a guess. Erroneous information can
cause the public to take incorrect actions and can damage your credibility. Ask the reporter to
leave his or her name and telephone number so that you can provide an answer.
■ Do not exaggerate the facts. Give facts as you know them and cite your own sources. In an
emergency or disaster, the information you reveal could threaten lives if it is incorrect.
■ Tell the truth and avoid using "no comment". No comment gives the impression that you have
something to hide.
■ Never give "off the record" information. It could come back to haunt you.
■ Never argue with reporters or lose your cool. Don't be rude even if the interviewer or reporter
appears to doubt your credibility.
■ If you are interrupted, wait for the interrupter to finish and then proceed with your answer. You may
wish to repeat the original question to bring the reporter back on track.
■ Challenge any efforts to put words in your mouth. If you don't you may end up appearing to agree
with something you actually disagree with.
■ Don't act evasive. Your evasiveness may be interpreted as an attempt to hide something.
■ Be alert. Avoid answering speculative "what if' questions. Be prepared to lead the interview from
problems and negatives to positive points you want to make.
Working With The Media
30
October 2007
City Council Guide to Disaster Operations
■ If you know you are going to be interviewed please contact the PIO or Director of Emergency
Services for information to work with.
Delivering your message:
■ Speak naturally and avoid using "jargon" or terminology that isn't familiar to those working outside
of emergency management.
■ Say the most important thing first and then elaborate if necessary. Avoid long, rambling responses.
Be succinct and clear in your responses.
■ Make one point at a time. Speak in simple sentences rather than compound sentences. During
times of high stress people are generally only able to remember short concise bits of information.
■ If you must read a prepared statement, review the information before going "live". Read in a
relaxed manner. Avoid stilted, halting speeches.
■ Be believable, personable and conversational. Credibility is vital to getting your message across.
Coordinating at a scene with the Incident Commander:
■ Coordinate any requests to tour the scene with the Incident Commander before making any
promises to the media.
■ Let the PIO know if you talk to the media.
Working With The Media
31
October 2007
ACRONYMS & GLOSSARY
LIST OF ACRONYMS & ABBREVIATIONS
City Council Guide to Disaster Operations
AAR
After Action Report
CDAA
California Disaster Assistance Act
CDC
Centers for Disease Control
CERT
Community Emergency Response Team
DHS
Department of Homeland Security
DOC
Department Operations Center
EDIS
Emergency Digital Information System
EMAC
Emergency Mutual Aide Compact (State)
EMMA
Emergency Managers Mutual Aid
EOC
Emergency Operations Center
EOP
Emergency Operations Plan
FEMA
Federal Emergency Management Agency
GC
Government Code
HAZMAT
Hazardous Materials
HSAS
Homeland Security Advisory Code
HSC
Health and Safety Code
IC
Incident Commander
ICP
Incident Command Post
ICS
Incident Command System
JFO
Joint Field Office
JIC
Joint Information Center
LAC
Local Assistance Center
MACS
Multi -Agency Coordination System
MARAC
Mutual Aid Regional Advisory Committee
MEANS
Marin Emergency Automated Notification System
MRC
Medical Reserve Corps
NIMS
National Incident Management System
NRP
National Response Plan
NWS
National Weather Service
OA
Operational Area
OASIS
Operational Area Satellite Information System
OES
Office of Emergency Services
PDA
Preliminary Damage Assessment
PHO
Public Health Officer
RACES
Radio Amateur Civil Emergency Services
REOC
Regional Emergency Operations Center
RIMS
Resource Information Management System
SAR
Search and Rescue
SEMS
Standardized Emergency Management System
TENS
Telephone Emergency Notification System
USAR
Urban Search and Rescue
Acronyms & Glossary
32
October 2007
GLOSSARY OF TERMS
City Council Guide to Disaster Operations
This Glossary contains definitions of terms commonly used by agencies and organizations in the
emergency management field.
A
Action Plan: "Action Plan" means the plan prepared in the EOC containing the emergency response
objectives, overall priorities, and supporting activities for a designated period. (See EOC Action Plan)
After Action Report: A report covering response actions, application of SEMS, modifications to plans and
procedures, training need, and recovery activities. After action reports are required under SEMS after any
emergency which requires a declaration of an emergency.
American Red Cross: A nationwide volunteer agency providing disaster relief to individuals and families.
Auxiliary Communications Service (ACS): A communications reserve that provides tactical, logistical
and administrative support and communications for all government communications systems.
B
Base Flood: A term used in the National Flood Insurance Program to indicate the minimum size flood to
be used by a community as a basis for its floodplain management regulations; presently required by
regulation to be that flood which has a one -percent chance of being equaled or exceeded in any given year.
Also known as a 100 -year flood.
Base Flood Elevation (BFE): The elevation for, which there is a one -percent chance in any given year
that flood levels, will equal or exceed it. It is also known as the 100 -Year Flood.
C
California Emergency Council: The official advisory body to the Governor on all matters pertaining to
statewide emergency preparedness.
Care and Shelter: A phase of operations that meets the food, clothing, and shelter needs of people on a
mass care basis.
Casualty Collection Points (CCP): See Field Treatment Sites
Catastrophic Disaster: An event or incident which produces severe and widespread damages of such a
magnitude as to result in the requirement for significant resources from outside the affected area to provide
the necessary response.
Civil Air Patrol: A civilian auxiliary of the United States Air Force which provides personnel, services, and
equipment for specified missions in support of state and local emergency operations.
Command Post: (See Incident Command Post)
Comprehensive Emergency Management (CEM): An integrated approach to the management of
emergency programs and activities for all four emergency phases (mitigation, preparedness, response, and
recovery), for all types of emergencies and disaster and for all levels of government and the private sector.
Continuity of Government: All measures that may be taken to ensure the continuity of essential functions
of governments in the event of emergency conditions, including line -of -succession for key decision makers.
Acronyms & Glossary October 2007
33
City Council Guide to Disaster Operations
D
Damage Assessment: The process utilized to determine the magnitude of damage and the unmet needs
of individuals, businesses, the public sector, and the community caused by a disaster or emergency event.
Declaration: The formal action by the President to make a State eligible for major disaster or emergency
assistance under the Robert T. Stafford Disaster Relief and Emergency Assistance Act, PL 3-288, as
amended (the Stafford Act).
Delegation of Authority: A statement provided to the Incident Commander by the Agency Executive
delegating authority and assigning responsibility. The Delegation of Authority can include objectives,
priorities, expectations, constraints and other considerations or guidelines as needed. Many agencies
require written Delegation of Authority to be given to Incident Commanders prior to their assuming
command on larger incidents.
Department Operations Center (DOC): An EOC used by a distinct discipline, such as fire, law, or public
works. Department operations centers may be used at all SEMS levels above the field response level,
depending upon the impact of the emergency.
Designated Area: Any emergency or major disaster -affected portion of a State that has been determined
eligible for Federal assistance.
Disaster: A sudden calamitous emergency event bringing great damage loss or destruction.
Disaster Field Office: A central facility established by the Federal Coordinating Office within or
immediately adjacent to disaster impacted areas to be utilized as a point of coordination and control for
state and federal governmental efforts to support disaster relief and recovery operations.
Disaster Service Worker: Includes public employees and any unregistered person impressed into service
during a State of War emergency, a State of emergency, or a Local Emergency by a person having
authority to command the aid of citizens in the execution of his duties.
E
Emergency Alert System (EAS): A system that enables the President and federal, state, and local
governments to communicate through commercial radio and television broadcast stations with the general
public in the event of a disaster.
Emergency Management Director (Director of Emergency Services): The individual within each
political subdivision that has overall responsibility for the jurisdiction's emergency management efforts. For
the City of San Rafael, this is the City Manager.
Emergency Operations: Those actions taken during the emergency period to protect life and property,
care for the people affected, and temporarily restore essential community services.
Emergency Operations Center (EOC): A location from which centralized emergency management can
be performed. EOC facilities are established by an agency or jurisdiction to coordinate the overall agency
or jurisdictional response and support to an emergency.
Emergency Operations Plan (EOP): The plan that each jurisdiction has and maintains for responding to
relevant hazards.
Emergency Period: A period which begins with the recognition of an existing, developing, or impending
situation that poses a potential threat to a community. It includes the warning (where applicable) and impact
Acronyms & Glossary October 2007
34
City Council Guide to Disaster Operations
phase and continues until immediate and ensuing effects of the disaster no longer constitute a hazard to
life or threat to property.
Emergency Plans: Those official and approved documents which describe principles, policies, concepts
of operations, methods and procedures to be applied in carrying out emergency operations or rendering
mutual aid during emergencies. These plans include such elements as continuity of government,
emergency functions of governmental agencies, mobilization and application of resources, mutual aid, and
public information.
Emergency Public Information (EPI): Information disseminated to the public by official sources during an
emergency, using broadcast and print media. EPI includes: (1) instructions on survival and health
preservation actions to take (what to do, what not to do, evacuation procedures, etc.), (2) status information
on the disaster situation (number of deaths, injuries, property damage, etc.), and (3) other useful
information (state/federal assistance available).
EOC Action Plan: The plan developed at SEMS EOC levels which contains objectives, actions to be
taken, assignments and supporting information for the next operational period. (See Action Plan)
Essential Facilities: Facilities that are essential for maintaining the health, safety, and overall well-being
of the public following a disaster (e.g., EOCs, hospitals, police and fire department buildings, utility facilities,
etc.). May also include buildings that have been designated for use as mass care facilities (e.g., schools,
churches, etc.).
Evacuee: An individual who moves or is moved from a hazard area to a less hazardous area with
anticipation of return when the hazard abates.
Exercise: Maneuver or simulated emergency condition involving planning, preparation, and execution;
carried out for the purpose of testing, evaluating, planning, developing, training, and/or demonstrating
emergency management systems and individual components and capabilities, to identify areas of strength
and weakness for improvement of an emergency operations plan (EOP).
Expedient Shelter: Any shelter constructed in an emergency or crisis period on a "crash basis" by
individuals, single families, or small groups of families.
F
Federal Coordinating Officer (FCO): The person appointed by the President to coordinate federal
assistance following an emergency or major disaster declaration.
Federal Disaster Assistance: Provides in-kind and monetary assistance to disaster victims, state, or local
government by federal agencies under the provision of the Federal Disaster Relief Act and other statutory
authorities of federal agencies.
Federal Disaster Relief Act: Public Law 93-288, as amended, that gives the President broad powers to
supplement the efforts and available resources of state and local governments in carrying out their
responsibilities to alleviate suffering and damage resulting from major (peacetime) disasters.
Federal Emergency Management Agency (FEMA): This agency was created in 1979 to provide a single
point of accountability for all Federal activities related to disaster mitigation and emergency preparedness,
response, and recovery.
Field Treatment Site (FTS): A location within a jurisdiction that is used for the assembly, triage (sorting),
medical stabilization, and subsequent evacuation of casualties. It may be used for the receipt of incoming
Acronyms & Glossary
35
October 2007
City Council Guide to Disaster Operations
medical resources (doctors, nurses, supplies, etc. Preferably the site should include or be adjacent to an
open area suitable for use as a helicopter pad.
Flood Hazard Boundary Map (FHBM): The official map of a community that shows the boundaries of the
flood plain and special flood hazard areas that have been designated. It is prepared by FEMA, using the
best flood data available at the time a community enters the emergency phase of the NFIP. It is
superseded by the FIRM after a more detailed study has been completed.
Flood Insurance: The insurance coverage provided under the National Flood Insurance Program (NFIP).
Flood Insurance Rate Map (FIRM): The official map of a community prepared by FEMA, which shows the
base flood elevation, along with the special hazard areas and the risk premium zones. The study is funded
by FEMA and is based on detailed surveys and analysis of the site-specific hydrologic characteristics.
H
Hazard: Any source of danger or element of risk to people or property.
Hazard Area: A geographically defined area in which a specific hazard presents a potential threat to life
and property.
Hazardous Material: A substance or combination of substances which, because of quantity,
concentration, physical, chemical, radiological, explosive, or infectious characteristics, poses a potential
danger to humans or the environment. Generally, such materials are classed as explosives and blasting
agents, flammable and nonflammable gases, combustible liquids, flammable liquids and solids, oxidizers,
poisons, disease -causing agents, radioactive materials, corrosive materials, and other materials including
hazardous wastes.
Hazardous Material Incident: Any uncontrolled release of material capable of posing a risk to health,
safety, and property. Areas at risk include facilities that produce, process, or store hazardous materials as
well as sites that treat, store, and dispose of hazardous material.
Hazard Mitigation: A measure that will reduce the potential for damage to a facility from a disaster event.
Hazard Mitigation Grant Program (HMGP): Authorized under Section 404 of the Stafford Act. Provided
funding for hazard mitigation projects that are cost effective and complement existing post -disaster
mitigation programs and activities for beneficial mitigation measures that are not funded through other
programs.
Hazard Mitigation Plan: The plan resulting from a systematic evaluation of the nature and extent of
vulnerability to the effects of natural hazards, including the actions needed to minimize future vulnerability
to identified hazards.
Homeland Security Advisory System: National system used to communicate the nature and the degree
of terrorist threats. Based on five possible threat levels, governments and other organizations will
implement protective measures.
I
Incident: An occurrence or event, either human -caused or by natural phenomena, that requires action by
emergency response personnel to prevent or minimize loss of life or damage to property and/or natural
resources.
Acronyms & Glossary
9.1
October 2007
City Council Guide to Disaster Operations
Incident Action Plan (IAP): The plan developed at the field response level that contains objectives
reflecting the overall incident strategy and specific tactical actions and supporting information for the next
operational period. The plan may be oral or written.
Incident Commander (IC): The individual responsible for the command of all functions at the field
response level.
Incident Command Post (ICP): The location at which the primary command functions are executed. The
ICP may be co -located with the incident base or other incident facilities.
Incident Command System (ICS): The nationally used standardized on -scene emergency management
concept specifically designed to allow its user(s) to adopt an integrated organizational structure equal to the
complexity and demands of single or multiple incidents without being hindered by jurisdictional boundaries.
ICS is the combination of facilities, equipment, personnel, procedures, and communications operating
within a common organizational structure, with responsibility for the management of resources to effectively
accomplish stated objectives pertinent to an incident.
Incident Objectives: Statements of guidance and direction necessary for the selection of appropriate
strategy(s) and the tactical direction of resources. Incident objectives are based on realistic expectations of
what can be accomplished when all allocated resources have been effectively deployed. Incident
objectives must be achievable and measurable, yet flexible enough to allow for strategic and tactical
alternatives.
Individual Assistance (IA): Supplementary Federal assistance provided under the Stafford Act to
individuals and families adversely affected by a major disaster or an emergency. Such assistance may be
provided directly by the Federal Government or through State, local governments or disaster relief
organizations.
Information Officer: Responsible for interfacing with the public and media or with other agencies requiring
information directly from the incident. This position is also referred to as Public Affairs or Public Information
Officer (PIO) in some disciplines.
-Zone. Urban Interface Zone. Wildfire hazard area where urban development immediately adjoins wild
lands.
L
Liaison Officer: Responsible for coordinating with representatives from cooperating and assisting
agencies.
Local Assistance Center (LAC): A facility established by local government within or adjacent to an
disaster impacted area to provide disaster victims a 'one-stop" service in meeting their emergency
representatives of local, state, and federal governmental agencies, private service organizations and
certain representatives of the private sector.
Local Emergency: The duly proclaimed existence of conditions of disaster or of extreme peril to the safety
of persons and property within the territorial limits of a county, city and county, or city, caused by such
conditions as air pollution, fire, flood, storm, epidemic, riot, or earthquake or other conditions, other than
conditions resulting from a labor controversy, which conditions are or are likely to be beyond the control of
the services, personnel, equipment, and facilities of that political subdivision and required the combined
forces of political subdivisions to combat.
Acronyms & Glossary October 2007
37
City Council Guide to Disaster Operations
M
Major Disaster: Any hurricane, tornado, storm, flood, high-water, wind -driven water, tidal wave, tsunami,
earthquake, volcanic eruption, landslide, mudslide, snowstorm, drought, fire, explosions, or other
catastrophe In any part of the United States which, in the determination of the President, causes damage of
sufficient severity and magnitude to warrant major disaster assistance under the Federal Disaster Relief
Act, above and beyond emergency services by the Federal Government, to supplement the efforts and
available resources of States, local governments, and disaster relief organizations in alleviating the
damage, loss, hardship, or suffering caused thereby.
Management by Objectives: In SEMS field and EOC levels, this is a top-down management activity that
involves a three-step process to achieve the desired goal. The steps are: establishing the objectives,
selection of appropriate strategy(s) to achieve the objectives; and the direction or assignments associated
with the selected strategy.
Mass Care Facility: A location where temporary services are provided to disaster victims during an
emergency which may include lodging, food, clothing, registration, welfare inquiry, first aid, and essential
social services.
Master Mutual Aid Agreement: An agreement entered into by and between the State of California, its
various departments and agencies, and the various political subdivisions, municipal corporations, and other
public agencies of the State of California to assist each other by providing resources during an emergency.
Mutual aid occurs when two or more parties agree to furnish resources and facilities and to render services
to each other to prevent and combat any type of disaster or emergency.
Mitigation: Pre -event planning and actions that aim to lessen the effects of potential disaster.
Multi -Agency Coordination: The functions and activities of representatives of involved agencies and/or
jurisdictions who make decisions regarding the prioritizing of incidents and the allocation of critical
resources.
Multi -Agency Coordination System (MACS): The combination of personnel, facilities, equipment,
procedures and communications integrated into a common system. When activated, MACS has the
responsibility for coordination of assisting agency resources and support in a multi -agency or multi -
jurisdiction environment. A MAC Group functions within the MACS. MACS organizations are used within
the California Fire Services.
Multi -Agency Incident: An incident where one or more agencies assist a jurisdictional agency or
agencies. The incident may be managed under single or unified command.
Multi -jurisdiction Incident: An incident requiring action from multiple agencies that have a statutory
responsibility for incident mitigation. In ICS these incidents will be managed under Unified Command.
Mutual Aid Agreement: Written agreement between agencies and/or jurisdictions in which they agree to
assist one another upon request, by furnishing personnel and equipment.
Mutual Aid Coordinator: An individual at local government, operational area, region or state level that is
responsible to coordinate the process of requesting, obtaining, processing and using mutual aid resources.
Mutual Aid Coordinator duties will vary depending upon the mutual aid system.
Mutual Aid Region: A subdivision of State Office of Emergency Services established to assist in the
coordination of mutual aid and other emergency operations within a geographic area of the state, consisting
of two or more county (operational) areas. Marin County is in Mutual Aid Region II
Acronyms & Glossary October 2007
38
City Council Guide to Disaster Operations
N
National Flood Insurance Program (NFIP): The Federal program, created by an act of Congress in
1968, that makes flood insurance available in communities that enact satisfactory floodplain management
regulations.
National Incident Management System (NIMS): The federal standard for incident management. Based
in ICS, provides core set of concepts, principles, and terminology.
National Response Plan (NRP): Supersedes Federal Response Plan. Provides framework for federal
agencies involved with domestic incident management. DHS manages response for "Incidents of National
Significance."
National Warning System (NWS): The federal portion of the civil defense warning system, used to
disseminate warning and other emergency information from the warning centers or regions to warning
points in each state.
0
One Hundred (100) -Year Flood: The flood elevation that has a one -percent chance of being equaled or
exceeded in any given year. It is also known as the base flood elevation.
Operational Area: An intermediate level of the state emergency organization, consisting of a county and
all political subdivisions within the county's geographic borders. An operational area is defined in law
(Section 8559, California Government Code) as an organization (not a jurisdiction) whose boundaries are
those of a county. The operational area concept is the backbone of the Standardized Emergency
Management System (SEMS).
Operational Area Coordinator: The individual within the operational area responsible for a specific
function such as law enforcement, coroner's services, or emergency medical services.
Operational Area Satellite Information System (OASIS): A statewide emergency communication
system based on the operational area concept.
Operational Period: The period of time scheduled for execution of a given set of operation actions as
specified in the Incident or EOC Action Plan. Operational Periods can be of various lengths, although
usually not over 24 hours.
P
Public Assistance (PA): Federal assistance provided under the Stafford Act to State and local
government agencies or certain private, nonprofit organizations.
Public Information Officer (PIO): The individual delegated the authority to prepare public information
releases and to interact with the media. Duties will vary depending upon the agency and SEMS level.
R
Radio Amateur Civil Emergency Services (RACES): An emergency services program designed to make
efficient use of skilled radio amateur in accordance with approved emergency communications plans.
Recovery: Activities traditionally associated with providing Federal supplemental disaster recovery
assistance under a Presidential major disaster declaration. These activities usually begin within days after
the event and continue after the response activities cease. Recovery includes individual and public
Acronyms & Glossary
Kis;
October 2007
City Council Guide to Disaster Operations
assistance programs that provide temporary housing assistance, grants and loans to eligible individuals
and government entities to recovery from the effects of a disaster.
Recovery Operations Center (ROC): A facility established by the local government within or adjacent to
an disaster impacted area to provide disaster relief agencies and organizations "one-stop" shop for the
coordination of their efforts. Representatives from local, state, and federal governmental agencies, private
service organizations and certain representatives of the private sector may be present.
Regional Emergency Operations Center (REOC): Facilities found at State OES Administrative Regions.
REOCS are used to coordinate information and resources among operational areas and between the
operational areas and the state level.
Response Information Management System (RIMS): A networked computer information system that
helps implement California's Standardized Emergency Management System (SEMS). It links the State
Regional Emergency Operations Centers (REOC), several counties and cities, several state agencies, and
the US Army Corps of Engineers carried via the internet and OASIS.
S
Shelter Manager: An individual who provides for the internal organization, administration, and operation of
a shelter facility.
Span of Control: The supervisory ratio maintained within an ICS or EOC organization. A span of control
of five -positions reporting to one supervisor is considered optimum.
Stafford Act: Robert T. Stafford disaster Relief and Emergency Assistance Act, PL 100-707, signed into
law November 23,1988; amended the Disaster Relief Act of 1974, PL 93-288.
Staging Areas: Locations at an incident where resources can be placed while awaiting a tactical
assignment.
Standard Operating Procedures (SOPs): A set of instructions having the force of a directive, covering
those features of operations that lend themselves to a definite or standardized procedure. Standard
operating procedures support an annex by indicating in detail how a particular task will be carried out.
Standardized Emergency Management System (SEMS): A system required by California Government
Code for managing response to multi -agency and multi -jurisdiction emergencies in California. SEMS
consists of five organizational levels that are activated as necessary: Field Response, Local Government,
Operation Area, Region and State.
State Coordinating Officer (SCO): The person appointed by the Governor to act for the State in
cooperation with the Federal Coordinating Officer.
State of Emergency: The duly proclaimed existence of conditions of disaster or of extreme peril to the
safety of persons and property that are likely to be beyond the control of the services, personnel,
equipment, and facilities of any single county, city and county, or city and require the combined forces of a
mutual aid region or regions to combat.
State of War Emergency: The condition which exists immediately, with or without a proclamation thereof
by the Governor, whenever the state or nation is directly attacked by an enemy of the United States, or
upon the receipt by the state of a warning from the federal government that such an enemy attack is
probable or imminent.
Acronyms & Glossary October 2007
40
City Council Guide to Disaster Operations
State Operations Center (SOC): An EOC facility operated by the Governor's Office of Emergency
Services at the state level in SEMS. Located in Sacramento.
T
Technical Specialists: Personnel with special skills that can be used anywhere within the ICS or EOC
organization.
Technological Hazard: Includes a range of hazards emanating from the manufacture, transportation, and
use of such substances as radioactive materials, chemicals, explosives, flammables, agricultural
pesticides, herbicides and disease agents; and oil spills on land, coastal waters or inland water systems.
Triage: A process of rapidly classifying patients on the basis of the urgency of treatment that is needed.
The prioritizing of medical care based on the nature and severity of illness or complaint, history, signs and
symptoms, general appearance, vital signs and a brief physical assessment.
Tsunami: A large oceanic wave generated by earthquakes, submarine volcanic eruptions, or large
submarine landslides in which sudden forces are applied to the water mass. The fastest tsunami waves can
move at speeds of hundreds of miles per hour in the open ocean. However, as the waves enter shallower
waters in coastal area, wave velocity decreases and wave height can increase to 100 feet or more on
impact at the shoreline.
U
Unified Command: In ICS, Unified Command is a unified team effort which allows all agencies with
responsibility for the incident, either geographical or functional, to manage an incident by establishing a
common set of incident objectives and strategies. This is accomplished without losing or abdicating agency
authority, responsibility or accountability.
Urban Rescue: The complex process in which trained personnel use specialized equipment to locate and
extricate victims trapped in collapsed buildings, and the mobilization and management of such personnel
and equipment.
W
Weapon of Mass Destruction: Device using chemical, biological, radiological, or nuclear materials.
Acronyms & Glossary
41
October 2007