HomeMy WebLinkAbout2018-26-Amending and Updating the Ashland Emergency Management Plan
RESOLUTION NO. 2018-26
A RESOLUTION AMENDING AND UPDATING THE CITY OF ASHLAND EMERGENCY
MANAGEMENT PLAN
A. Government at all levels has the responsibility to plan for and respond to emergencies resulting
from hazards which are known to threaten that government's jurisdiction.
B. The City of Ashland (City) has adopted an emergency management plan to provide for the
overall planning and coordination of resources when an emergency exists within the City.
C. The City of Ashland Emergency Management Plan (Plan) provides specific guidelines for
City departments to follow during emergencies while complying with the requirements of the
National Incident Management System as established by the Federal Emergency
Management Authority (FEMA).
D. The City's Plan was originally adopted on November 6, 2012.
E. Pursuant to FEMA guidelines, emergency operations plans should be reviewed regularly and
should be formally updated every five (5) years.
F. Pursuant to Ashland Municipal Code Chapter 2.62, Emergency Powers, formal updates to the
Plan shall be adopted by resolution of the Council.
NOW, THEREFORE, THE CITY COUNCIL OF THE CITY OF ASHLAND, OREGON,
RESOLVES AS FOLLOWS:
SECTION 1. Pursuant to Ashland Municipal Code Chapter 2.62, Emergency Powers, the
amended and updated City of Ashland Emergency Management Plan attached hereto as "Exhibit
A" and incorporated herein by this reference is hereby adopted. The Plan shall be kept on file in
the City Recorder's office.
SECTION 2. This resolution is effective upon the date of approval and signature by the Mayor.
ADOPTED by the City Council this S~ day of 2018.
ATTEST:
Melissa Huhtala, City Recorder
Page 1 of 2: Resolution No. 2018-26
day
APPROVED and SIGNED this of Uo-~ 2018.
o n Strom6erg, Mayor
Approved as to form:
Ka rina L. Brown, Assistant City Attorney
Page 2 of 2: Resolution No. 2018-26
02:009836.0001.:01
City of Ashland
Emergency Management Plan
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455 Siskiyou Boulevard
Ashland, Oregon 97520
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ecology and environment, inc.
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City of Ashland
Jackson County, Oregon
EMERGENCY MANAGEMENT PLAN
W
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July 2018
Prepared for:
City of Ashland
455 Siskiyou Boulevard
Ashland, Oregon 97520
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Global Specialists in the Environment
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This document was prepared under a grant from the Office of
~o Grants and Training, United States Department of Homeland
Security. Points of view or opinions expressed in this document
are those of the authors and do not necessarily represent the
official position or policies of the Office of Grants and Training or
l4.vu stir the United States Department of Homeland Security.
Preface
This Emergency Management Plan is an all-hazards plan that describes how the
City of Ashland will organize and respond to emergencies and disasters in the
community. It is based on, and is compatible with, Federal, State of Oregon,
and other applicable laws, regulations, plans, and policies, including the
National Response Framework, State of Oregon Emergency Management Plan,
and Jackson County Emergency Operations Plan.
Response to emergency or disaster conditions in order to maximize the safety of
the public and to minimize property damage is a primary responsibility of
government. It is the goal of the City of Ashland that responses to such
conditions are conducted in the most organized, efficient, and effective manner
possible. To aid in accomplishing this goal, the City of Ashland has formally
adopted the principles of the National Incident Management System, including
the Incident Command System, and the National Response Framework.
Consisting of a Basic Plan and annexes, this Emergency Management Plan is
aligned with Federal, State, and County plans and provides a framework for
coordinated response and recovery activities during a large-scale emergency.
The plan describes how various agencies and organizations in the City of
Ashland will coordinate resources and activities with other Federal, State, local,
community- and faith-based organizations, tribal, and private-sector partners.
iii
City of Ashland Emergency Management Plan Basic Plan
Preface
THIS PAGE LEFT BLANK INTENTIONALLY
iv
Letter of Promulgation
To all Recipients:
Government at all levels has the responsibility to plan for and respond to
emergencies resulting from hazards that are known to threaten the jurisdiction. In
view of this fact, the City of Ashland (City) has established an Emergency
Management Program to provide overall planning and coordination for
emergencies. Emergencies may require the City government to operate in a
manner different from normal, day-to-day routines, and may seriously
over-extend City resources. This Emergency Management Plan provides specific
guidance to City departments during emergencies. The plan will also serve as an
indicator of City capability; if the City is unable to provide adequate coverage for
a particular resource or potential hazard, alternate sources or contingency plans
shall be developed within political and budgetary constraints.
The accomplishment of Emergency Management goals and objectives depends on
the development and maintenance of competent program staff, adequate funding,
and on familiarization of other City personnel with their emergency
responsibilities and this plan. It is hereby directed that review of this plan and
overall emergency responsibilities by all City Department Heads be accomplished
bi-annually, or as indicated through plan activation or exercise. Thorough
familiarity with this plan will result in the efficient and effective execution of
emergency responsibilities and in better service to the citizens of Ashland.
Government entities complying with this plan shall not be liable for injury, death
or loss of property except in cases of willful misconduct or gross negligence.
This plan has been approved by the City Council. It will be revised and updated
as required. All recipients are requested to advise the Fire Chief, serving as the
City's Emergency Manager, of any changes that might result in its improvement
or increase its usefulness. Plan changes will be transmitted to all addressees on
the distribution list.
John Stromberg Kelly Madding
Mayor City Administrator
DATE
v
City of Ashland Emergency Management Plan Basic Plan
Letter of Promulgation
THIS PAGE LEFT BLANK INTENTIONALLY
vi
Plan Administration
The Fire Chief, as Emergency Manager, will coordinate review, revision, and re-
promulgation of this plan bi-annually or whenever changes occur, such as lessons-
learned from exercises or actual events. Changes to the annexes and appendices,
and non-substantive changes to the Basic Plan may be made without formal City
Council approval.
Record of Plan Changes
All updates and revisions to the plan will be tracked and recorded in the following
table. This process will ensure that the most recent version of the plan is
disseminated and implemented by emergency response personnel.
C~hangii-,~
Update
2011 000 Original Release
2018 2018-001 Update and bring overall information and formatting in
line with County and State recommendations.
I
vii
City of Ashland Emergency Management Plan Basic Plan
Plan Administration
Plan Distribution List
Copies of this plan will be provided to the following jurisdictions, agencies, and
persons electronically, unless otherwise indicated. Updates will be provided
electronically, when available. Recipients will be responsible for updating their
respective Emergency Management Plans when changes are received. The Fire
Chief, acting as Emergency Manager, is ultimately responsible for dissemination
of all plan updates.
. .
D. Copies Mayor
City Administrator
Assistant City Administrator
Fire Chief
Police Chief
Public Works Director
Chief Finance Officer
Information Technology Manager
Community Development Director
Human Resources Manager
City Recorder
Parks Director
City Attorney
Assistant City Attorney
Communications Manager
Jackson County Emergency Management
Oregon Emergency Management
* Indicates that the jurisdiction, agency, or person should receive a hard copy as well as
an electronic copy.
viii
City of Ashland Emergency Management Plan Basic Plan
Plan Administration
Emergency Management Plan Review Assignments
Unless otherwise stated, the following table identifies agencies responsible for
reviewing specific plan sections and annexes. Changes will be forwarded to the
Fire Chief, acting as Emergency Manager, for revision and dissemination of the
plan. This does not preclude other departments and agencies with a vital interest
in the annex from providing input to the document; such input is, in fact,
encouraged.
Section/
Basic Plan I ii'c « R,:scue - Emergency Manager
Annexes
Functional Annex I Fire & Rescue
Emergency Services Police Department
Functional Annex 2 Fire & Rescue - Emergency Manager
Human Services Parks and Recreation Department
Functional Annex 3 Public Works Department
Infrastructure Services
Functional Annex 4 Fire & Rescue - Emergency Manager
Recovery Strategy
Incident Annex Fire & Rescue - Emergency Manager
ix
City of Ashland Emergency Management Plan Basic Plan
Plan Administration
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Table of Contents
Preface in
Letter of Promulgation ...........................................................v
Plan Administration ..............................................................vii
Table of Contents ..................................................................xi
1 Introduction ................................................................1-1
1.1 General ....................................................................................1-1
1.1.1 Whole Community Planning .....................................................1-1
1.2 Purpose and Scope .................................................................1-2
1.2.1 Purpose ...................................................................................1-2
1.2.2 Scope .......................................................................................1-2
1.3 Plan Implementation ................................................................1-2
1.4 Plan Organization ....................................................................1-3
1.5 Relationship to Other Plans .....................................................1-4
1.5.1 Federal Plans ...........................................................................1-4
1.5.2 State Plans ..................1-4
1.5.3 County Plans 1-6
1.5.4 City of Ashland Plans 1-7
1.6 Authorities 1-7
1.6.1 Legal Authorities 1-7
1.6.2 Mutual Aid and Intergovernmental Agreements 1-9
1.7 Emergency Powers 1-9
1.7.1 General 1-9
1.7.2 City Disaster Declaration Process 1-10
1.7.3 Jackson County Declaration Process 1-11
1.7.4 State Assistance 1-12
1.7.5 Federal Assistance 1-13
1.8 Continuity of Government ......................................................1-13
14841 Lines of Succession 1-13
1.8.2 Preservation of Vital Records 1-13
1.9 Administration and Logistics ....1-14
1.9.1 Request, Allocation, and Distribution of Resources... 1-14
1.9.1.1 Emergency Conflagration Act 1-14
1.9.2 Financial Management 1-15
1.9.3 Legal Support and Liability Issues 1-16
1.9.4 Reporting and Documentation 1-17
1.10 Safety of Employees and Family 1-17
xi
City of Ashland Emergency Management Plan Basic Plan
Table of Contents
2 Situation and Planning Assumptions .......................2-1
2.1 Situation ...................................................................................2-1
2.1.1 Community Profile ...................................................................2-2
2.1.2 Hazards and Threats ...............................................................2-3
2.1.2.1 Severe Weather .......................................................................2-3
2.1.2.2 Hazardous Materials Incident ..................................................2-3
2.1.2.3 Utility Failure ............................................................................2-3
2.1.2.4 Fire ...........................................................................................2-3
2.1.2.5 Flood 2-4
2.1.2.6 Transportation Accident ...........................................................2-4
2.1.2.7 Earthquake ..............................................................................2-4
2.1.2.8 Drought ....................................................................................2-4
2.1.2.9 Volcano ....................................................................................2-5
2.1.2.10 Civil Disturbance/Terrorism ......................................................2-5
2.1.2.11 Public Health Incident ..............................................................2-5
2.1.3 Capability Assessment .............................................................2-5
2.1.4 Hazard Analysis .......................................................................2-6
2.1.5 Protection of Critical Infrastructure and Key Resources ..........2-7
2.2 Assumptions and Limitations ...................................................2-8
3 Roles and Responsibilities ........................................3-1
3.1 General ....................................................................................3-1
3.2 Emergency Management Organization ....................................3-1
3.2.1 Executive Group ......................................................................3-2
3.2.1.1 Mayor and City Council ............................................................3-3
3.2.1.2 City Administrator ....................................................................3-3
3.2.1.3 Fire and Police Chiefs ..............................................................3-4
3.2.1.4 Emergency Manager (Fire Chief) .............................................3-4
3.2.1.5 Joint Staff Group ......................................................................3-5
3.2.1.6 City Department Heads ............................................................3-5
3.2.2 Responsibilities by Department ...............................................3-5
3.2.2.1 All Departments .......................................................................3-5
3.2.2.2 Fire & Rescue 3-6
3.2.2.3 Police Department 3-7
3.2.2.4 Community Development .........................................................3-7
3.2.2.5 Public Works Department ........................................................3-8
3.2.2.6 Municipal Electric Utility ...........................................................3-8
3.2.2.7 Legal Department 3-8
3.2.2.8 Parks and Recreation ..............................................................3-9
3.2.3 Responsibilities by Function ....................................................3-9
3.2.3.1 Transportation ..........................................................................3-9
3.2.3.2 Communications ....................................................................3-10
3.2.3.3 Public Works ..........................................................................3-11
3.2.3.4 Firefighting 3-11
3.2.3.5 Information and Planning .......................................................3-12
3.2.3.6 Mass Care .............................................................................3-12
xii
City of Ashland Emergency Management Plan Basic Plan
Table of Contents
3.2.3.7 Resource Support ..................................................................3-13
3.2.3.8 Health and Medical ................................................................3-14
3.2.3.9 Search and Rescue ...............................................................3-15
3.2.3.10 Hazardous Materials ..............................................................3-15
3.2.3.11 Food and Water .....................................................................3-16
3.2.3.12 Energy ...................................................................................3-17
3.2.3.13 Military Support ......................................................................3-17
3.2.3.14 Public Information ..................................................................3-18
3.2.3.15 Volunteer and Donations Management ..................................3-18
3.2.3.16 Law Enforcement Services 3-19
3.2.3.17 Agriculture and Animal Protection ..........................................3-19
3.2.3.18 Business and Industry ............................................................3-20
3.2.3.19 Recovery ................................................................................3-20
3.2.3.20 Evacuation and Population Protection 3-21
3.2.3.21 Damage Assessment .............................................................3-21
3.2.2.22 Coordination with Special Facilities .......................................3-22
3.2.3.23 Other Agency Responsibilities 3-22
3.3 Local and Regional Response Partners .................................3-22
3.3.1 Private Sector 3-22
3.3.2 Nongovernmental and Faith-Based Organizations ................3-23
3.3.3 Individuals and Households ...................................................3-23
3.4 County Response Partners ....................................................3-23
3.5 State Response Partners .......................................................3-24
3.6 Federal Response Partners 3-24
4 Concept of Operations ...............................................4-1
4.1 General ....................................................................................4-1
4.2 Emergency Management Mission Areas .................................4-1
4.3 Emergency Priorities ................................................................4-2
4.3.1 Response .................................................................................4-2
4.3.2 Recovery ..................................................................................4-2
4.4 Incident Levels .........................................................................4-3
4.4.1 Level1 .....................................................................................4-3
4.4.2 Leve12 .....................................................................................4-3
4.4.3 Leve13 .....................................................................................4-4
4.4.4 National Incident Management System Incident Levels 4-4
4.5 Incident Management ..............................................................4-6
4.5.1 Activation and Notification ........................................................4-6
4.5.2 Initial Actions ............................................................................4-8
4.5.3 Communications and Warning .................................................4-8
4.5.4 Alert and Warning ....................................................................4-8
4.5.5 Communications ......................................................................4-9
4.5.5.1 Interoperability .........................................................................4-9
4.5.6 Direction and Control 4-9
4.5.7 Situational Awareness and Intelligence Gathering .................4-10
4.5.7.1 Coordination with State Fusion Center ..................................4-10
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City of Ashland Emergency Management Plan Basic Plan
Table of Contents
4.5.8 Resource Management ..........................................................4-11
4.5.8.1 Resource Typing ....................................................................4-12
4.5.8.2 Credentialing of Personnel .....................................................4-12
4.5.9 Emergency Public Information ...............................................4-12
4.6.9.1 Methods of Public Information Dissemination ........................4-13
4.5.10 Access and Functional Needs Populations ............................4-14
4.5.11 Animals in Disaster ................................................................4-14
4.5.12 Demobilization .......................................................................4-14
4.5.13 Transition to Recovery ...........................................................4-15
5 Command and Control ...............................................5-1
5.1 General ....................................................................................5-1
5.2 On-Scene Incident Management 5-1
5.3 Emergency Operations Center Support to On-Scene
Operations 5-2
5.4 Emergency Operations Center ................................................5-2
5.4.1 Emergency Operations Center Activation ................................5-2
5.4.2 Emergency Operations Center Location ..................................5-3
5.4.3 Emergency Operations Center Staffing ...................................5-6
5.4.4 Access and Security ................................................................5-7
5.4.5 Deactivation 5-7
5.5 Incident Command System ......................................................5-7
5.5.1 Emergency Operations Center Incident Commander ..............5-8
5.5.2 Emergency Operations Center Command Staff .......................5-9
5.5.2.1 Safety Officer 5-9
5.5.2.2 Public Information Officer .........................................................5-9
5.5.2.3 Liaison Officer ........................................................................5-10
5.5.3 Emergency Operations Center General Staff 5-10
5.5.3.1 Operations Section Chief .......................................................5-10
5.5.3.2 Planning Section Chief ...........................................................5-11
5.5.3.3 Logistics Section Chief ...........................................................5-11
5.5.3.4 Finance/Administration ..........................................................5-12
5.5.4 Unified Command ..................................................................5-12
5.5.5 Area Command ......................................................................5-12
5.5.6 Joint Information ....................................................................5-13
5.5.7 Multi-Agency Coordination .....................................................5-14
5.5.8 Quick Reference Emergency Organization Matrix .................5-14
6 Plan Development, Maintenance, and
Implementation ...........................................................6-1
6.1 Plan Review and Maintenance ................................................6-1
6.2 Training Program .....................................................................6-1
6.3 Exercise Program ....................................................................6-2
6.4 Event Critique and After Action Reporting 6-3
6.5 Community Outreach and Preparedness Education ................6-3
6.6 Funding and Sustainment ........................................................6-3
xiv
City of Ashland Emergency Management Plan Basic Plan
Table of Contents
A City Authorities ..........................................................A-1
B Sample Disaster Declaration Forms B-1
C References .................................................................C-1
D Acronyms and Glossary D-1
Annexes
Functional Annex 1 - Emergency Services
Functional Annex 2 - Human Services
Functional Annex 3 - Infrastructure Services
Functional Annex 4 - Recovery Strategy
Incident Annex
XV
City of Ashland Emergency Management Plan Basic Plan
Table of Contents
List of Tables and Figures
Figures
Figure 2-1 Map of the City of Ashland ................................................2-1
Figure 2-2 Map of Jackson County .....................................................2-2
Figure 2-3 Core Capabilities List ........................................................2-6
Figure 4-1 Emergency Management Mission Areas ...........................4-2
Figure 4-2 Disaster Recovery Continuum .........................................4-15
Figure 5-1 Primary Emergency Operations Center .............................5-4
Figure 5-2 Alternate Emergency Operations Center ...........................5-5
Figure 5-3 County Emergency Operations Center ..............................5-6
Figure 5-4 Example of a Scalable Command Structure for the City ...5-8
Tables
Table 1-1 Legal Authorities ................................................................1-8
Table 1-2 City Lines of Succession .................................................1-13
Table 2-1 City of Ashland Hazard Analysis Matrix .............................2-7
Table 4-1 National Incident Management System Incident Levels ....4-5
Table 4-2 Required Notifications by Incident Level ...........................4-7
Table 5-1 Comparison of Single Incident Commander and Unified
Commander 5-12
Table 6-1 Minimum Training Requirements .......................................6-2
Xvl
Introduction
This Chapter establishes the framework within which this Emergency
Management Plan exists and how it fits into existing plans. Additionally, the
section outlines Federal, State of Oregon (State), Jackson County (County), and
City of Ashland (City) emergency management authorities pertaining to the
community's roles and responsibilities.
1.1 General
This Emergency Management Plan establishes guidance for the City's actions
during response to, and short-term recovery from, major emergencies or disasters.
It promulgates a framework within which the City will combine technical
capabilities and resources, plus the sense, judgment, and expertise of its
emergency response personnel, department directors, and other decision makers.
Specifically, this Emergency Management Plan describes the roles and
responsibilities of the City departments and personnel when an incident occurs,
and it establishes a strategy and operating guidelines that support implementation
of the National Incident Management System (NIMS), including adherence to the
concepts and principles of the Incident Command System (ICS).
The City views emergency management planning as a continuous process that is
linked closely with training and exercises to establish a comprehensive
preparedness agenda and culture. This Emergency Management Plan will be
maintained through a program of continuous improvement, including ongoing
involvement of City departments and of agencies and individuals with
responsibilities and interests in these plans.
1.1.1 Whole Community Planning
Every person who lives or works in the City (including populations with access
and functional needs) shares responsibility for minimizing the impact of disasters
on the community. This includes all emergency management partners, both
traditional and nontraditional, such as volunteer-, faith-, and community-based
organizations; the private sector; and the public, including survivors of an
incident. These individual responsibilities include hazard awareness, knowledge
of appropriate protective actions, taking proactive steps to mitigate the impact of
anticipated hazards, and preparations for personal and family safety, as well as the
self-sufficiency of neighborhoods. To the greatest extent possible, the City will
assist its residents in carrying out this responsibility by providing preparedness
information, as well as emergency public information and critical public services
1-1
City of Ashland Emergency Management Plan Basic Plan
1. Introduction
during a disaster. However, a major emergency is likely to damage the City's
critical infrastructure and reduce the workforce available to continue essential
government services. Knowledgeable residents, who are prepared to take care of
themselves and their families, and to assist neighbors in the early phases of an
emergency, can make a significant contribution to survival and community
resiliency.
1.2 Purpose and Scope
1.2.1 Purpose
The primary purpose of the Emergency Management Plan is to outline the City's
all-hazards approach to emergency operations to protect the safety, health, and
welfare of its residents and visitors throughout all emergency management
mission areas. Through this Emergency Management Plan the City designates
NIMS and the ICS as the frameworks within which all emergency management
activities will be conducted.
1.2.2 Scope
The City Emergency Management Plan is intended to be invoked whenever the
City must respond to an unforeseen incident or planned event, the size or
complexity of which is beyond that normally handled by routine operations. Such
occurrences may include natural or human-caused disasters and may impact the
City itself, neighboring cities, unincorporated areas of the County, or a
combination thereof. Notwithstanding its reach, this plan is intended to guide
only the City's emergency operations, complementing and supporting
implementation of the emergency response plans of the various local
governments, special districts, and other public- and private-sector entities within
and around the city but not supplanting or taking precedence over them.
The primary users of this plan are elected officials, department heads and their
senior staff members, emergency management staff, leaders of local volunteer
organizations that support emergency operations and others who may participate
in emergency response efforts. The general public is also welcome to review non-
sensitive parts of this plan to better understand the processes by which the City
manages the wide range of risks to which it is subject.
1.3 Plan Implementation
Once promulgated by the City Council, this Emergency Management Plan is in
effect and may be implemented in whole or in part to respond to:
■ Incidents in or affecting the City.
■ Health emergencies in or affecting the City.
■ Life-safety issues in or affecting the City.
An emergency declaration is not required in order to implement the Emergency
Management Plan or activate the Emergency Operations Center (EOC). The
1-2
City of Ashland Emergency Management Plan Basic Plan
1. Introduction
Emergency Manager may implement the Emergency Management Plan as
deemed appropriate for the situation or at the request of an Incident Commander.
1.4 Plan Organization
The purpose of the Basic Plan is to provide a framework for emergency
operations and information regarding the City's emergency management
structure. It serves as the primary document outlining roles and responsibilities
of CU departments and partners during an incident.
The FAs.focus on critical tasks, While this Emergency Management
capabilities, and resources provided Plan has been developed as an all-
by emergency response agencies for hazards planning document, some
the City throughout all phases of an hazards may require unique
emergency. In the event of an considerations. To that end, the IA
incident for which the City's supplements the Basic Plan to identify
capabilities and/or resources are critical tasks particular to specific
limited or exhausted, each annex natural, technological, and human-
clearly defines escalation pathways caused hazards identified in the most
and resource request procedures for current Hazard Identification and
seeking additional support from Vulnerability Assessment.
County agencies.
Hazards covered in the IA include:
For the purposes of this Emergency . Major Fire
Management Plan, information • Earthquake
regarding common management Severe Weather
functions performed by the City and . Public Health
supporting agencies and
organizations are streamlined into • Volcano
four FAs. The FAs, which Hazardous Materials
supplement the information in the • Transportation Accidents
Basic Plan are: (including Air, Rail, and
Road)
FA 1 - Emergency Services • Utility Failure
• FA 2 - Human Services • Terrorism
• FA 3 - Infrastructure Services
FA 4-'Recovery Strategy
During a major emergency or disaster affecting the County or a portion thereof,
City departments and special districts may be asked to support the larger
response. Requests for such assistance would come from County Emergency
Management.
If the County Emergency Operations Plan (EOP) is implemented during an
incident or County-wide emergency declaration, the City will adopt command and
control structures and procedures representative of the County's response
operations in accordance with the requirements of NIMS and ICS, as necessary.
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City of Ashland Emergency Management Plan Basic Plan
1. Introduction
1.5 Relationship to Other Plans
1.5.1 Federal Plans
The following Federal plans guide emergency preparedness, response, and
recovery at the Federal level, and provide support and guidance for state and local
operations:
■ Presidential Policy Directive 8. Describes the Nation's approach to
preparing for the threats and hazards that pose the greatest risk to the
security of the United States.
■ National Preparedness Goal. Describes the Nation's security and
resilience posture through identifying key mission areas and core
capabilities that are necessary to deal with great risks, using an integrated,
layered, and all-of-Nation approach as its foundation.
■ National Preparedness System. Provides guidance, programs, processes,
and systems that support each component of the National Preparedness
System to enable a collaborative, whole community approach to national
preparedness that engages individuals, families, communities, private and
nonprofit sectors, faith-based organizations, and all levels of government.
■ National Incident Management System. Provides a consistent
nationwide framework and comprehensive approach to enable government
at all levels, the private sector, and nongovernmental organizations
(NGOs) to work together to prepare for, prevent, respond to, recover from,
and mitigate the effects of incidents regardless of their cause, size,
location, or complexity.
■ National Frameworks. The following National Planning Frameworks,
one for each preparedness mission area, describe how the whole
community works together to achieve the National Preparedness Goal:
• Prevention
• Protection
• Mitigation
• Response
• Disaster Recovery
1.5.2 State Plans
The following State plans guide emergency preparedness, response, and recovery
at the State level, and provide support and guidance for local operations:
■ Cascadia Subduction Zone Catastrophic Operations Plan. Describes
the roles and responsibilities of State agencies in addressing emergency
response and recovery missions in a coordinated manner with local, tribal,
and Federal agencies after a catastrophic earthquake and tsunami.
• Cascadia Playbook. A crosscutting emergency management
tool for the State that supports various existing plans and
efforts for the first 14 days of a catastrophic incident.
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City of Ashland Emergency Management Plan Basic Plan
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■ Debris Management Plan. Provides a framework for State agencies and
municipalities to facilitate and coordinate the evaluation, removal,
collection, and disposal of debris following a disaster.
■ Emergency Alert System (EAS) Plan. This plan, mandated by the
Federal Communications Commission, outlines the organization and
implementation of the State EAS. It is the guideline for State broadcasters
and cable television operators, and State and local entities authorized to
use the EAS, to determine the distribution of the President's message,
mandated and optional monitoring assignments, and participation by the
National Weather Service and local and State emergency agencies.
■ Emergency Management Plan. The State Emergency Management Plan
consists of four volumes:
• Volume I: Oregon Natural Hazards Mitigation Plan.
Identifies and prioritizes potential actions throughout Oregon
that would reduce the State's vulnerability to natural hazards.
In addition, the plan satisfies the requirements of the Federal
Emergency Management Agency (FEMA) to ensure that
Oregon is eligible to receive hazard mitigation and disaster
assistance funds from the Federal government.
• Volume H. State of Oregon Preparedness Plan (in
development). Includes the plans and guidance necessary for
the State to prepare for the effects of a disaster, including
guidance and requirements for the State's training and exercise
program.
• Volume III: State of Oregon Emergency Operations Plan.
Establishes the procedures by which the State coordinates
response to an emergency, including processes for resource
requests from local and tribal partners, established roles and
responsibilities for State agencies, and procedures for
activation and operation of the State Emergency Coordination
Center (ECC). The plan identifies 18 ESF annexes, which
serve as the mechanism for response support to local and tribal
partners.
• Volume IV: State of Oregon Recovery Plan. Establishes a
State Recovery Organization and describes how the State will
coordinate short, intermediate, and long-term recovery
activities. The plan identifies seven State Recovery Functions
that serve as the delivery mechanism for recovery support to
local and tribal partners.
■ Fuel Action Plan. Outlines emergency response procedures for
petroleum issues affecting the state. The plan includes action steps the
Oregon Department of Energy will take in the event of a small or large-
scale fuel shortage or disruption.
■ Oregon Resilience Plan. Summarizes the science of Cascadia subduction
zone earthquakes and estimates their impacts; also provides detailed
analysis of the current vulnerability of Oregon's buildings and business
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City of Ashland Emergency Management Plan Basic Plan
1. Introduction
community, and its transportation, energy, communication, and
water/wastewater systems.
For more information, visit https.•//www.oregon. gov/oem/emresources/Plans_
Assessments/Pa eefault.as~.
1.5.3 County Plans
The City relies on the County for many critical services during an emergency, so
it is vital for the City to be familiar with the County's plans and how they link
with City emergency plans.
m Natural Hazards Mitigation Plan. The Natural Hazards Mitigation Plan
was developed in an effort to reduce future loss of life and damage to
property resulting from natural hazards. It is impossible to predict exactly
when natural hazard events will occur, or the extent to which they will
affect community assets. However, with careful planning and
collaboration among public agencies, private sector organizations, and
citizens within the community, it is possible to minimize the losses that
can result from natural hazards.
■ Integrated Fire Plan. The Integrated Fire Plan seeks to reduce the risk of
wildfire to life, property, and natural resources in the County by
coordinating public agencies, community organizations, private
landowners, and the public to increase their awareness of and
responsibility for fire issues. The Jackson County Integrated Fire Plan is
the wildfire chapter of the County's Natural Hazards Mitigation Plan;
however, it also meets the national definition of a Community Wildfire
Protection Plan.
■ Emergency Operations Plan. The County EOP details the who, when,
and how local, State, and Federal agencies and partners will work
together. The plan also contains annexes for each hazard likely to impact
- the County (identified in the Hazard Vulnerability Assessment), which
contain more specific information about planned management activities,
as well as more specific agency roles and responsibilities.
■ Departmental Plans. County departments (such as Roads, the Airport,
Health and Human Services, and many others) maintain and practice their
own departmental plans to be sure that they are ready to respond to
disasters.
■ Continuity of Operations Plan. Continuity of Operations (COOP)
planning helps ensure that County government can continue to deliver
services to our citizens during disasters, or anytime that our normal way of
doing business is disrupted. County Emergency Management coordinates
continuity planning for the county, and works with individual departments
to develop and maintain their plans.
For more information, visit http://jacksoncountyor.orglemergencylCounty-
Plans/Overview.
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City of Ashland Emergency Management Plan Basic Plan
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1.5.4 City of Ashland Plans
Similar to the County's plan, the City Emergency Management Plan is part of a
suite of plans that address various elements of the City's emergency management
program. While the Emergency Management Plan is focused on short-term
recovery, other plans address the City's approach to mitigation, continuity, and
other aspects of emergency management. These plans, listed below, work in
concert with the City Emergency Management Plan:
■ Continuity of Operations Plan. The City is currently developing a
COOP plan. Once this plan has been developed and implemented, it may
be used in conjunction with the Emergency Management Plan during
various emergency situations. COOP plans detail the processes for
accomplishing administrative and operational functions during
emergencies that may disrupt normal business activities. Parts of these
plans identify essential functions of local government, private sector
businesses, and community services, and delineate procedures to support
their continuation.
■ Natural Hazard Mitigation Plan. Mitigation Plans form the foundation
for a community's long-term strategy to reduce disaster losses and break
the cycle of disaster damage, reconstruction, and repeated damage. The
planning process is as important as the plan itself. It creates a framework
for risk-based decision making to reduce damages to lives, property, and
the economy from future disasters. Hazard mitigation is sustained action
taken to reduce or eliminate long-term risk to people and their property
from hazards. The City of Ashland participated in the development of a
Hazard Mitigation Plan, which has been submitted to FEMA for approval.
See Chapter 2 for a more detailed hazard analysis.
1.6 Authorities
1.6.1 Legal Authorities
In the context of this Emergency Management Plan, a disaster or major
emergency is characterized as an incident requiring the coordinated response of
all government levels to save the lives and protect the property of a large portion
of the population. This plan is issued in accordance with, and under the
provisions of, Oregon Revised Statutes (ORS) Chapter 401, which establishes the
authority for the highest elected official of the City Council to declare a state of
emergency.
The City conducts all emergency management functions in a manner consistent
with NIMS. Procedures supporting NIMS implementation and training for the
City will be developed and formalized by the City.
As approved by the City Council, the City Administrator has been identified as
being responsible for implementation of the City's emergency management
program. The Fire Chief, given the collateral title of Emergency Manager, has
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City of Ashland Emergency Management Plan Basic Plan
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been delegated this authority and has the responsibility for the organization,
administration, and operations of the Emergency Management Organization
(EMO). The Emergency Manager may delegate any of these activities to
designees as appropriate.
Table 1-1 sets forth the Federal, State, and local legal authorities upon which the
organizational and operational concepts of this Emergency Management Plan are
based.
Table 1-1 Legal Authorities
ff 7_11==
- Federal Emergency Management Agency (FEMA) Policy
o Crisis Response and Disaster Resilience 2030 (January 2012)
o FDOC 104-008-1: A Whole Community Approach to Emergency
Management (December 2011)
o FEMA Administrator's Intent (2015-2019)
o FEMA Incident Management and Support Keystone (January 2011)
o FEMA Publication: 1 The Federal Emergency Management Agency
(November 2010)
o FEMA Strategic Plan 201 1-2014
o National Disaster Housing Strategy (January 2009)
o National Disaster Recovery Framework (September 2011)
o National Incident Management System (December 2008)
o National Preparedness Goal (September 2011)
o National Response Framework (January 2008)
- Executive Order 13347, July 2004, Individuals with Disabilities in Emergency
Preparedness
- Homeland Security Presidential Directive 5: Management of Domestic Incidents
(2003)
- Pet Evacuation and Transportation Standards Act of 2006, Public Law 109-308,
2006
- Presidential Policy Directive 8: National Preparedness (2008)
- Public Law 107-296 The Homeland Security Act of 2002
- Public Law 109-295 The Post-Katrina Emergency Management Reform Act
(2007)
- Public Law 93-288 Robert T. Stafford Disaster Relief and Emergency Assistance
Act, as amended (last amended April 2013)
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City of Ashland Emergency Management Plan Basic Plan
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Table 1-1 Legal Authorities
State . Oregon
- Oregon Administrative Rules Chapter 104 Oregon Military Department, Office of
Emergency Management
- Oregon Revised Statutes (ORS) 27913.080 Emergency Procurements
- ORS 294.481 Authorization to Receive Grants or Borrow or Expend Moneys to
Respond to Public Emergency
- ORS 401 Emergency Management and Services
- ORS 402 Emergency Mutual Assistance Agreements
- ORS 403 Public Safety Communications System
- ORS 404 Search and Rescue
- ORS 431 State and Local Administration and Enforcement of Health Laws
- ORS 433 Disease and Condition Control; Mass Gatherings; Indoor Air
- ORS 476 State Fire Marshal; Protection From Fire Generally
- ORS 477 Fire Protection of Forests and Vegetation
- State of Oregon Emergency Operations Plan
Jackson County
= -Jackson County Code, Chapter 244, Organization for Emergency Management
City of Ashland
- City of Ashland Municipal Code, Chapter 2.62, Emergency Powers
1.6.2 Mutual Aid and Intergovernmental Agreements
State law (ORS 402.010 and 402.015) authorizes local governments to enter into
Cooperative Assistance Agreements with public and private agencies in
accordance with their needs (e.g., the Omnibus Mutual Aid Agreement).
Personnel, supplies, and services may be used by a requesting agency if the
granting agency cooperates and extends such services. However, without a
mutual aid pact, both parties must be aware that State statutes do not provide
umbrella protection except in the case of fire suppression pursuant to ORS 476
(the Oregon State Emergency Conflagration Act).
See individual FAs for existing Mutual Aid Agreements.
Copies of these documents can be accessed through the Emergency Manager.
During an emergency situation, a local declaration may be necessary to activate
these agreements and allocate appropriate resources.
1.7 Emergency Powers
1.7.1 General
Authority to implement emergency powers is provided for in Chapter 2.62 of the
City of Ashland Municipal Code. This document is provided in Appendix A.
Based on local ordinances and State statutes, a local declaration by the City
Council allows for flexibility in managing resources under emergency conditions.
such as:
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City of Ashland Emergency Management Plan Basic Plan
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■ Diverting funds and resources to emergency operations in order to meet
immediate needs.
■ Authorizing implementation of local emergency plans and implementing
extraordinary protective measures.
■ Receiving resources from organizations and individuals initiated through
mutual aid and cooperative assistance agreement channels.
■ Providing specific legal protection for actions initiated under emergency
conditions.
■ Setting the stage for requesting State and/or Federal assistance to augment
local resources and capabilities.
■ Raising public awareness and encouraging the community to become
involved in protecting their resources.
The City Attorney should review and advise City officials on possible liabilities
arising from disaster operations, including the exercising of any or all of the
above powers.
1.7.2 City Disaster Declaration Process
A declaration of emergency by the City of Ashland is the first step in accessing
State and Federal disaster assistance. When an emergency or disaster arises, and it
is determined that conditions have progressed or will progress beyond the work
force, equipment, or other resource capacities of the City, a declaration of
emergency should be considered.
■ The Ashland City Council has the legal authority under Ashland
Municipal Code 2.62.010 - 2.62.050, to declare that a Local Emergency
exists.
■ If a quorum of Councilors cannot be assembled, the City Administrator is
delegated this authority.
■ If the City Administrator is unable to act due to absence or incapacity, the
Acting City Administrator, or the Incident Commander may exercise local
Declaration authority.
A declaration shall:
■ Describe the nature of the emergency.
■ Designate the geographic boundaries of the area where the emergency
exists, as well as the portion of the affected area lying within City
boundaries.
■ Estimate the number of individuals at risk, injured, or killed.
■ Describe the actual or likely damage caused by the emergency.
■ State the type of assistance or resources required to respond to the
emergency.
■ Estimate the length of time during which the designated area will remain
in an emergency status.
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City of Ashland Emergency Management Plan Basic Plan
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■ State the specific regulations or emergency measures imposed because of
the declaration of emergency.
The declaration of emergency will be written based on the best information
available at the time. It may be amended, based on additional information or
changes in the situation. The City Attorney may be consulted to review the
declaration for legality or sufficiency of emergency measures and emergency
powers invoked within the document. If County, State, or Federal assistance is
needed, the declaration must also state that all appropriate and available local
resources have been expended, are nearing depletion, or are projected to be
inadequate, and that mutual aid agreements have been initiated, as well as contain
a specific request for the type(s) of assistance required.
Should the EOC be activated at the time of the declaration, EOC Command and
General Staff may have the following responsibilities in the declaration process:
■ EOC Incident Commander or Emergency Manager: Present the
package to the City Council.
■ Operations. Identify necessary resources and outline special powers
needed to respond to the emergency. Assist in initial damage assessment.
■ Planning. Provide situation and resource summaries and initial and
preliminary damage assessments.
■ Logistics. Compile resource requests
■ Finance. Assist in preliminary damage assessment and coordinate damage
survey activities.
See Appendix B .for sample Declaration of Emergency, forms.
1.7.3 Jackson County Declaration Process
Under ORS 401.309, a local state of emergency may be declared by the officials
listed in the County Emergency Management Ordinance. The effect of the
declaration is to activate the recovery and rehabilitation aspects of the plan and to
authorize the furnishing of aid and assistance. When the emergency exceeds local
government capability to respond, assistance will be requested from neighboring
jurisdictions in accordance with existing Mutual Aid Agreements and then
through the State.
If the emergency area is within a city. the Chief Executive(s) of that city must
process requests for assistance through the County Emergency Management
Office. Requests for a State Declaration shall be made by the Executive
Officer(s) of the county in which the emergency event is occurring. State
assistance will be provided only after a "good faith" effort has been made, local
resources are exhausted or nearing depletion, and Mutual Aid Agreements have
been initiated. Local resources include those available under mutual aid or
through the county.
The following documents may need to be forwarded to the EOC for action:
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■ A draft order declaring an emergency, including a description of the
disaster event, impacted area(s), loss of life and injuries, damages to
property, special powers enacted, and local resources applied to the
disaster;
■ Supporting documentation or findings as determined necessary by the
Board of Commissioners; and
■ A draft letter to the Governor advising of the County's declaration and the
request for a State declaration as appropriate, as well as any requests for
assistance.
Requests for State assistance should be forwarded to Oregon Emergency
Management (OEM) as soon as practical. These requests may be sent via FAX as
the most expedient (if operable and available) method accessible. The OEM FAX
number is (503) 373-7833, and the Oregon Emergency Response System fax is
503-588-1378. The original, signed copy will be either mailed or hand delivered,
whichever is most secure and appropriate in a given situation.
Requests for State/Federal assistance need to include:
■ Language stating that local and County mutual aid resources are depleted
or nearly so.
■ Specific assistance requirements to be requested (e.g., type and quantity of
equipment needed, purpose for which it is needed, and location of the area
in need). Multiple requests on the same declaration may be necessary. Be
as detailed as possible, and explain the requested mission, not "who"
could provide the requested resources.
■ Time element: expected duration of event or expected time required to
gain control.
1.7.4 State Assistance
The OEM Operations Officer coordinates with the agencies represented in the
State ECC to determine the best way to support local government requests. ORS
401.165(6) provides that the County will transmit declaration requests submitted
by a City to OEM.
The Operations Officer evaluates resource requests based on the goals and
priorities established by the Director. Agency representatives keep the Operations
Officer informed of resources assigned, resources available for commitment, and
the status of assigned missions.
State resources are provided to the local emergency management organization or
to the local Incident Commander as agreed by the entities concerned. The OEM
Director makes final decisions in cases of conflicting interest, such as competing
resource requests or priority questions.
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City of Ashland Emergency Management Plan Basic Plan
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1.7.5 Federal Assistance
FEMA provides resources, coordination, planning, training, and funding to
support State and local jurisdictions when requested by the Governor.
In the event that the capabilities of the State are not sufficient to meet the
requirements as determined by the Governor, Federal assistance may be
requested. OEM coordinates all requests for Federal assistance through the State
ECC. FEMA coordinates the Governor's Presidential request for assistance in
accordance with the National Response Framework (NRF).
1.8 Continuity of Government
1.8.1 Lines of Succession
Table 1-2 provides the policy and operational lines of succession during an
emergency for the City.
Table 1-2 City Lines of Succession
.
Emergency Manager (Fire Chief) Mayor and City Council
Police Chief City Administrator
Incident Commander Emergency Manager (Fire Chief)
Each City department is responsible for pre-identifying staff patterns showing a
line of succession in management's absence. Lines of succession for each
department can be found in the City Administrator's Office. All employees shall
be trained on the protocols and contingency plans required to maintain leadership
within their departments. The City Administrator will provide guidance and
direction to department heads to maintain continuity of government and
operations during an emergency. Individual department heads within the City are
responsible for developing and implementing COOP plans to ensure continued
delivery of vital services during an emergency.
1.8.2 Preservation of Vital Records
Each City department must provide for the protection, accessibility, and recovery
of the agency's vital records, systems, and equipment. These are records,
systems, and equipment that, if irretrievable, lost, or damaged, will materially
impair the agency's ability to conduct business or carry out essential
functions. Each agency should have a maintenance program for the preservation
and quality assurance of data and systems. The program should take into account
the cost of protecting or reconstructing records weighed against the necessity of
the information to achieving the agency mission.
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City of Ashland Emergency Management Plan Basic Plan
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1.9 Administration and Logistics
1.9.1 Request, Allocation, and Distribution of Resources
Resource requests and emergency/disaster declarations must be submitted by the
City Emergency Manager to Jackson County Emergency Management (through
the Emergency Management Program Coordinator) according to provisions
outlined under ORS Chapter 401.
The Emergency Manager is responsible for the direction and control of the City's
resources during an emergency and for requesting any additional resources
required for emergency operations. All assistance requests are to be made
through County Emergency Management via the County EOC. County
Emergency Management processes subsequent assistance requests to the State.
1.9.1.1 Emergency Conflagration Act
In the case of emergencies involving fires threatening life and structures, the
Emergency Conflagration Act (ORS 476.510) can be invoked by the Governor
through the Office of State Fire Marshal. This act allows the Oregon State Fire
Marshal (OSFM) to mobilize and fund fire resources throughout the State during
emergencies.
When, in the judgment of the City Fire Chief or County Fire Defense Board
Chief, an emergency is beyond the control of local fire suppression resources,
including primary mutual aid, the Fire Defense Board Chief shall report the
conditions of the emergency to the Office of State Fire Marshal and/or request
mobilization of support for the department/district. After verifying the need for
mobilized support, the OSFM shall, if appropriate, request authorization from the
Governor to invoke the Emergency Conflagration Act.
The City Fire Chief is responsible for:
■ Contacting the Fire Defense Board Chief to request that the Emergency
Conflagration Act be invoked.
■ Participating in incident conference call.
■ Providing local geographical information system capabilities or maps.
■ Working with the Incident Management Team to locate a base camp.
■ Maintaining communications with the Incident Management Team
throughout the deployment to assist with emergency management and
other local issues.
The Fire Defense Board Chief is responsible for:
■ Notifying the OSFM via the Oregon Emergency Response System.
■ Providing the following information to the OSFM Duty Officer or Chief
Deputy:
• Incident name
• Contact information
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City of Ashland Emergency Management Plan Basic Plan
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• Type and location of incident
• Situation description
• Confirmation that local and mutual aid resources are depleted
• Incident Commander information
• Weather information
• Resources requested
■ Participating in incident conference call.
Requests for invoking the Emergency Conflagration Act should be made when a
significant threat exists, e.g.:
■ Life-threatening situations (firefighter or public safety)
• Evacuations currently taking place
• Advisory evacuations
• Evacuation plans in place
• Road, highway, or freeway closure
■ Real property threatened
• Number of structures, commercial, and/or residents
• Number of subdivisions
• Population affected
• Historically significant cultural resources
• Natural resources, such as crops, grazing, timber, or watersheds
• Critical infrastructure, such as major power lines
■ High damage potential
• Long-term or short-term damage potential
• Plausible impacts on community
• Fuel type, indicating fire size and growth potential
• Political situations
• Severity, extreme behavior, and fuel conditions
Source: 2013 Fire Service Mobilization Plan
1.9.2 Financial Management
During an emergency, the City is likely to find it necessary to redirect City funds
to effectively respond to the incident. The authority to adjust department budgets
and funding priorities rests with the City Council. If an incident in the City
requires major redirection of City fiscal resources, the City Council will meet in
an emergency session to decide how to respond to the emergency funding needs.
declare a State of Emergency and request assistance through the County as
necessary. The following general procedures will be carried out:
■ The City Council will meet in an emergency session to decide how to
respond to the emergency funding needs.
■ The City Council will declare a State of Emergency and request assistance
through the County.
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■ If a quorum of councilors cannot be reached, and if a prompt decision will
protect lives, City resources and facilities, or private property, the City
Administrator (or designee) may act on emergency funding requests. The
Mayor and City Council will be advised of such actions as soon as
practical.
■ To facilitate tracking of financial resources committed to the incident, and
to provide the necessary documentation, a discrete charge code for all
incident-related personnel time, losses, and purchases will be established
by the Finance Section.
Expenditure reports should be submitted to the Administrative Services
Department and managed through the Chief Financial Officer to identify
budgetary shortfalls. The Administrative Services Department will support
procurement issues related to personnel, both volunteer and paid. In addition,
copies of expense records and all supporting documentation should be submitted
and will be used for filing FEMA Public Assistance reimbursement requests.
1.9.3 Legal Support and Liability Issues
Liability issues and potential concerns among government agencies, private
entities, and other response partners and across jurisdictions are addressed in
existing mutual aid agreements and other formal memoranda established for the
City and its surrounding areas.
The City Attorney's Office will address legal services, including:-
■ Advising City officials regarding the emergency powers of local
government and necessary procedures for invocation of measures to:
• Implement wage, price, and rent controls
• Establish rationing of critical resources
• Establish curfews
• Restrict or deny access
• Specify routes of egress
• Limit or restrict use of water or other utilities
• Remove debris from publicly or privately owned property
■ Reviewing and advising City officials in determining how the City can
pursue critical objectives while minimizing potential exposure.
■ Preparing and recommending local legislation to implement emergency
powers when required.
■ Advising City officials and department heads regarding record-keeping
requirements and other-documentation necessary for exercising emergency
powers.
■ Thoroughly reviewing and maintaining familiarity with current ORS 401
provisions as they apply to County or City government in disaster events.
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City of Ashland Emergency Management Plan Basic Plan
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1.9.4 Reporting and Documentation
Proper documentation and reporting during an emergency is critical for the City to
receive proper reimbursement for emergency expenditures and to maintain a
historical record of the incident. City staff will maintain thorough and accurate
documentation throughout the course of an incident or event. Incident
documentation should include, but is not limited to:
■ Incident and damage assessment reports
■ Incident command logs
■ Cost recovery forms
■ Incident critiques and AARs
All documentation related to the City's emergency management program will be
maintained in accordance with Oregon's public records and meetings law (ORS
192), subject to applicable exemptions such as for "Public Safety Plans," as
appropriate.
1.10 Safety of Employees and Family
All department heads (or designees) are responsible for the safety of employees.
Employees should attempt to make contact with their supervisors and managers
within the first 24 hours following an incident. Emergency 9-1-1 should only be
utilized if emergency assistance is needed. Agencies and departments with
developed COOP plans will establish alternate facilities and staff locations, as
applicable. Notification procedures for employee duty assignments will follow
required procedures established by each agency and department.
During biological incidents or public health emergencies, such as influenza
pandemics, maintaining a resilient workforce is essential to maintaining overall
response activities required to protect the County and surrounding community
from significant impacts to human lives and the economy. Thus, personnel
should be provided with tools to protect themselves and their families while also
providing health and medical services during a pandemic or other type of public
health emergency. Safety precautions and Personal Protective Equipment
decisions will be specific to the type of incident occurring and will require just-in-
time training among the first responder community and other support staff to
implement appropriate procedures.
If necessary, the Oregon Occupational Safety and Health Administration may
provide assistance and guidance on worker safety and health issues. Information
about emergency procedures and critical tasks involved in a biological emergency
incident or disease outbreak is presented in ESF 8 of the County EOP.
While all City agencies and employees are expected to contribute to the
emergency response and recovery efforts of the community, employees' first
responsibility is to their own and their families' safety. Each employee is
expected to develop family emergency plans to facilitate family safety and self-
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City of Ashland Emergency Management Plan Basic Plan
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sufficiency, which in turn will enable employees to assume their responsibilities
to the County and its citizens as rapidly as possible.
Processes that support employees and their families during emergency situations
or disasters will be further developed through ongoing COOP planning.
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I
Situation and Planning
Assumptions
This Chapter of the Emergency Management Plan builds on the scope of
discussion in Chapter I by profr-ling the City's risk environment, identifying
specific planning considerations, and describing the predicate assumptions
underlying this plan. This Chapter ensures that, while taking an all-hazards
approach to emergency management, the plan is tailored to the unique risks faced
by the City.
2.1 Situation
The City is exposed to many hazards, all of which have the potential to disrupt the
community, causing damage, and creating casualties. Possible natural hazards
include droughts, floods, wildfires, and winter storms. The threat of a war-related
incident, such as a nuclear, biochemical, or conventional attack, is present as well.
Other disaster situations could develop from hazardous material accidents, health-
related incidents, conflagrations, major transportation accidents, or acts of
terrorism.
Figure 2-1 Map of the City of Ashland
I
'r
i
2-1
City of Ashland Emergency Management Plan Basic Plan
2. Situation and Assumptions
2.1.1 Community Profile
The City of Ashland, located 15 miles north of the California border, currently
has a population of approximately 20,700, and a total land area of 5.948 square
miles (3,806.72 acres). Highways 99 and 66, and Interstate 5, run through the
City, as do major cargo and commuter rail lines. Attendant with these routes is the
risk of transportation accidents and transportation-related hazardous materials
releases. The City of Ashland has a municipal airport, and is in the flight path for
a number of commercial and private flights between Portland and San Francisco
International Airports that base into Medford Airport. The City receives its water
from the 277 million cubic foot reservoir behind Hosier Dam in the Ashland
Watershed. Hosler Dam impounds Ashland Creek, which runs at 20 cubic feet per
second (cfs) normally in the winter and as low as 5 cfs in the summer months.
Ashland also has several small streams in its immediate vicinity, which are
subject to slow-rise flooding. Ground saturation associated with heavy rain may
cause landslides in steeper areas of the City, and throughout the Ashland Creek
Canyon area.
Major growth of tourism-related business in the area has occurred in the past, and
is anticipated to continue in the future. With this growth comes the seasonal
increase in the local population of approximately 3,500 to 5,000 on a daily basis.
The siting of homes within the wildfire hazard zone, and the historical practice of
suppressing natural fire, has dramatically increased the wildfire-fuel load and
propensity for catastrophic wildfire impacting residential neighborhoods.
Figure 2-2 Map of Jackson County
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2-2
City of Ashland Emergency Management Plan Basic Plan
2. Situation and Assumptions
i
2.1.2 Hazards and Threats
The city is exposed to a wide range of natural and human-caused hazards and
threats, all of which have the potential to disrupt the community, cause casualties,
and/or damage property and the environment. These hazards and threats are
discussed in the following sections.
See the Natural Hazard Mitigation Plan for more information regarding natural
hazards for the area.
2.1.2.1 Severe Weather
Most common from October through April, snowstorms and windstorms can
disrupt the City's utilities, telecommunications, and roadway systems. Damage
from windstorms is typically related to the toppling of trees and limbs, and
consequent downing of utility infrastructure. Significant storms have sustained
winds of 40 miles per hour (mph) with gusts of 55 mph for more than two hours.
Particularly threatening are wintertime winds from the Cascades that funnel
through the Rogue Valley at 50 mph. The region's outstanding historic
windstorm, the 1962 "Columbus Day" storm, had winds gusting to 104 mph and
was described by meteorologists as a cyclone.
Weather extremes with a history of occurrence in Ashland include windstorms,
snow and ice storms, and periods of extreme heat and cold.
2.1.2.2 Hazardous Materials Incident
This hazard involves the release or spillage of hazardous chemicals or chemical
wastes that pose a serious threat to life, property, and/or the environment. The
release or spillage may also generate long-term contamination or toxicity
problems. A hazardous materials incident is most commonly associated with a
transportation accident (highway, rail, waterway, or pipeline), but may also arise
from accidents at fixed facilities.
Hazardous materials are transported through the county in freight trucks using the
Interstate 5 corridor, state highways, rail lines, and county roadways.
2.1.2.3 Utility Failure
Power failure is most often caused by severe weather that downs trees or their
limbs onto power lines and poles. Traffic accidents involving utility poles are
another common cause. In the past few years, wildland fires have threatened
transmission lines.
This hazard includes the shortage or loss of power for periods in excess of 24
hours, and shortages of fuels, such as oil, gasoline, and diesel.
2.1.2.4 Fire
Level 2 urban fire occurrences are infrequent within the City of Ashland. Most are
handled easily through automatic aid without activation of this plan. In addition,
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City of Ashland Emergency Management Plan Basic Plan
2. Situation and Assumptions
the City faces the threat of wildland/urban interface fires from large areas of
undeveloped property within and adjacent to the City limits.
2.1.2.5 Flood
The hazard generally evolves from a short duration, heavy rain event that may be
compounded by heavily saturated or frozen soils and rapid melting of snow and/or
ice. Flood impacts are generally concentrated along streams but may also be
scattered in low-lying areas of the city. A flood event typically causes property
damage and significant transportation and economic disruptions. It may also
require short-term shelter and care support for citizens displaced from their
homes.
Ashland has several small streams which are subject to slow-rise flooding. These
include Ashland Creek, Bear Creek, and Neil Creek. In addition, the City has a
large reservoir above the city in the Ashland watershed. Although this area is
levied, it may be exposed to dam failure and flooding.
2.1.2.6 Transportation Accident
Transportation accidents may include major automobile or airplane crashes, or
train derailments.
2.1.2.7 Earthquake
The Earth's crust is broken into massive pieces called tectonic plates that ride on
semi-fluid rock below. Powerful forces generated within the Earth drive these
plates. When these plates collide with, slip along, or plunge underneath each
other, they produce earthquakes. Most earthquakes are minor in scale and many
are too small to even feel. However, a number of quakes ranging in scale from
moderate to great occur annually throughout the world and take a heavy toll on
lives and property. The Pacific Northwest lies along what is known as the Ring of
Fire-an area that experiences frequent earthquake and volcanic activity.
Although Oregon's recorded history is relatively free of large magnitude
earthquakes, its geologic history shows ample evidence of past periodic, large
scale events.
This hazard includes earthquakes themselves, as well as associated hazards, such
as landslides, building collapses, and rockfalls. Although Ashland has a history of
small earthquakes, actual damage and response has been slight. Recent evaluation
of the earthquake potential in the Rogue Valley indicates that earthquake potential
has been underestimated, and that the area may experience a "great" earthquake
(in excess of 9 on the Richter scale).
I
2.1.2.8 Drought
A water shortage may arise from a number of causes, but it would most likely
derive from drought or a significant diversion/interruption of water supplies
supporting Shady Cove. Drought involves a period of prolonged dryness resulting
from a lack of precipitation. A severe drought could require that strict
conservation measures (more than odd/even watering restrictions) be
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City of Ashland Emergency Management Plan Basic Plan
2. Situation and Assumptions
implemented to assure an adequate supply of potable water for citizens. Long-
term drought conditions typically have devastating consequences for agricultural
and other businesses dependent on a good supply of water, and place large areas
surrounding the City at higher risk for devastating wildland/urban interface fires.
The city has extended hot and dry weather conditions during the summer and
early fall months. Sequential years of below normal rainfall result in severe
drought conditions.
Extreme and prolonged drought may threaten drinking water and fire suppression
supplies, as well as water-dependent agriculture and industry.
2.1.2.9 Volcano
Cascadia Subduction Zone movement, the movement of continental plates against
each other, generates volcanic activity in the Pacific Northwest. The northern
reaches of the Cascade Range have been much more active than those in southern
Oregon. Mount McLaughlin is considered dormant and may never have erupted.
This hazard includes the ash fall that might result from an eruption of Mt. Shasta.
2.1.2.10 Civil Disturbance/Terrorism
This hazard includes riots, protest, strikes, school or workplace violence,
demonstrations, and acts of terrorism that can result in the taking of hostage,
injuries, and/or deaths, damage to property, sabotage, and extortion. In the case of
terrorist incidents, the use of chemical, biological, or nuclear weapons as well as
conventional explosives is possible.
2.1.2.11 Public Health Incident
A public health incident could include influenza, Avian flu, or a pandemic of any
kind, as well as biological agent release (as an act of terrorism). The effects of a
major outbreak outside the City or region could have a serious impact on the
community. Ashland depends on daily commerce from outside the region and
could be adversely affected without that connection.
2.1.3 Capability Assessment
The availability of the City's physical and staff resources may limit the City's
capability to conduct short- and long-term response actions on an independent
basis. City response capabilities are also limited even more so during periods
when essential staff is on leave, or unavailable for other reasons.
The City has not defined its core capabilities in accordance with the National
Preparedness Goal or undertaken a formal capabilities assessment to date. Should
an assessment be conducted in the future, it will help emergency responders
evaluate, coordinate, and enhance the cohesiveness of their emergency response
plans. A community capability assessment is a low-impact, systematic approach
to evaluate the City's emergency plan and capability to respond to hazards.
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City of Ashland Emergency Management Plan Basic Plan
2. Situation and Assumptions
Figure 2-3 Core Capabilities List
momcmoN M17 RESPONSE Planning
Public Information and Warning
Operational Coordination
Intelligence and Information Sharing Community Infrastructure Systems
Resilience
Long-Term Critical Economic
Interdiction and Disruption Vulnerability Transportation Recovery
Reduction
Risk and Disaster Environmental Health and Social
Screening, Search and Detection Resilience Response/Health Services
Assessment and Safety
Forensics and Access Control and Threats and Fatality
Attribution Identity Verification Hazard Management Housing
Identification Services
Cybersecurity Fire Management Infrastructure
and Suppression Systems
Physical Protective Mass Care Natural and
Measures Services Cultural Resources
Risk Management Mass Search and
for Protection Rescue Operations
Programs and
Activities On-Scene Security
Supply Chain and Protection
Integrity and
Security Operational
Communications
Public Health,
Healthcare, and
Emergency
Medical Services
Situational
Assessment
2.1.4 Hazard Analysis
In the Hazard Analysis, each of the hazards and threats described above is scored
using a formula that incorporates four independently weighted rating criteria
(history, vulnerability, maximum threat, and probability) and three levels of
severity (low, moderate, and high). For each hazard, the score for a given rating
criterion is determined by multiplying the criterion's severity rating by its weight
factor. The four rating criteria scores for the hazard are then summed to provide a
total risk score for that hazard. Note that while many hazards may occur together
or as a consequence of others (e.g., dam failures cause flooding, and earthquakes
may cause landslides), this analysis considers each hazard as a singular event.
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City of Ashland Emergency Management Plan Basic Plan
2. Situation and Assumptions
Table 2-1 City of Ashland Hazard Analysis Matrix
G I'1
ulnerabillity
KiMUM
(W r
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Score for each rating criteria
Rating Factor (High - 10 points; Moderate = 5 points; Low _ 1 point) _a" O'eight Factor (WF)
Wildfire 20 50 100 70 240
Earthquake 2 50 100 70 222
(Cascadia)
Landslide 10 50 100 56 216
Emerging Infectious 12 50 100 49 211
Disease
Drought 20 50 60 63 193
Windstorm 20 30 70 70 190
Flood - Riverine 20 30 60 70 180
Winter Storm 20 30 60 70 180
Earthquake (Crustal) 2 25 70 21 118
Volcano 2 5 50 7 64
Notes:
1. History addresses the record of previous major emergencies or disasters. Weight Factor is 2. Rating factors: high =
4 or more events in last 100 years; moderate = 3 events in last 100 years; low = I or 0 events in last 100 years.
2. Vulnerability addresses the percentage of population or property likely to be affected by a major emergency or
disaster. Weight Factor is 5. Rating factors: high = more than 10% affected; moderate = I %-10% affected; low =
less than I% affected.
3. Maximum Threat addresses the percentage of population or property that could be affected in a worst-case incident.
Weight Factor is 10. Rating factors: high = more than 25% could be affected, moderate = 5%-25% could be
affected; low = less than 5% could be affected.
4. Probability addresses the likelihood of a future major emergency or disaster within a specified period of time.
Weight Factor is 7. Rating factors: high = one incident within a 10-year period, moderate = one incident within a
50-year period, low = one incident within a 100-year period.
2.1.5 Protection of Critical Infrastructure and Key
Resources
Critical Infrastructure and Key Resources support the delivery of critical and
essential services that help ensure the security, health, and economic vitality of
the City. Critical Infrastructure and Key Resources include the assets, systems,
networks, and functions that provide vital services to cities, states, regions, and,
sometimes, the Nation, disruption to which could significantly impact vital
services, produce cascading effects, and result in large-scale human suffering,
property destruction, economic loss, and damage to public confidence and morale.
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City of Ashland Emergency Management Plan Basic Plan
2. Situation and Assumptions
Key facilities that should be considered in infrastructure protection planning
include:
■ Structures or facilities that produce, use, or store highly volatile,
flammable, explosive, toxic, and/or water-reactive materials.
■ Government facilities, such as departments, agencies, and administrative
offices.
■ Hospitals, nursing homes, and housing likely to contain occupants who
may not be sufficiently mobile to avoid death or injury during a hazard
event.
■ Police stations, fire stations, vehicle and equipment storage facilities,
and EOCs that are needed for disaster response before, during, and after
hazard events.
■ Public and private utilities and infrastructure that are vital to maintaining
or restoring normal services to areas damaged by hazard events
■ Communications and cyber systems, assets, and networks, such as
secure City servers and fiber optic communications lines.
2.2 Assumptions and Limitations
The Emergency Management Plan is based on the following assumptions and
limitations:
■ The City will continue to be exposed to the hazards noted above, as well
as others, that may develop in the future.
■ Outside assistance will be available in most emergency situations affecting
the City. Although this plan defines procedures for coordinating such
assistance, it is essential for the City to be prepared to carry out disaster
response and short-term actions on an independent basis.
■ The availability of the City's physical and staff resources may limit the
City's capability to conduct short- and long-term response actions on an
independent basis. City response capabilities are also limited during
periods when essential staff is on vacation, sick, or under furlough due to
budgetary constraints.
■ It is possible for a major disaster to occur at any time and at any place in
the County. In some cases, dissemination of warning and increased
readiness measures may be possible. However, many disasters and events
can occur with little or no warning.
■ Local government officials recognize their responsibilities for the safety
and well-being of the public and will assume their responsibilities in the
implementation of this emergency plan.
■ Proper implementation of this plan will reduce or prevent disaster-related
losses.
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Roles and Responsibilities
d-
- - - - - - - -v- -ay- -opera -_tio-ns -an-- will
Agencies within thecommunity have varying day-to-d
continue to do so during emergency operations. This Chapter assigns i
responsibilities specific to a disaster or emergency situation to specific i
departments and agencies.-
3.1 General
Local and County agencies and response partners may have various roles and
responsibilities throughout an emergency's duration. Therefore, it is particularly
important that the local command structure be established to support response and
recovery efforts and maintain a significant amount of flexibility to expand and
contract as the situation changes. Typical duties and roles may also vary
depending on the incident's size and severity of impacts, as well as the
availability of local resources. Thus, it is imperative to develop and maintain
depth of qualified staff within the command structure and response community.
The Jackson County Emergency Management Program Coordinator is responsible
for emergency management planning and operations for the area of the county
lying outside the corporate limits of the incorporated municipalities of the County.
The Mayor or other designated official (pursuant to city charter or ordinance) of
each incorporated municipality is responsible for emergency management
planning and operations for that jurisdiction. (These responsibilities may be
shared with County Emergency Management under agreement.)
Most City departments have emergency functions in addition to their normal
duties. Each department is responsible for developing and maintaining its own
emergency management procedures. Specific responsibilities are outlined below,
as well as in individual annexes.
3.2 Emergency Management Organization
The City of Ashland has established an EMO consistent with its authority under
ORS 401.305 to 401.335 and Ashland Municipal Code, 2.62.010-2.62.050.
Organized under the auspices of the City Council, and under the supervision of
the City Administrator, the Emergency Management Staff includes the following
personnel:
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City of Ashland Emergency Management Plan Basic Plan
3. Roles and Responsibilities
■ Mayor ■ City Councilors
■ City Administrator ■ Human Resources Director
■ City Attorney ■ City Recorder
■ Fire Chief ■ Director of Community
■ Police Chief Development
■ Public Works Director ■ Director of Municipal
■ Finance Director Electric Utility
■ Director of Parks and ■ IT Director
Recreation
During an emergency, the members of the EMO will assume positions within the
framework of the ICS Command and General Staff, and perform the assigned
duties outlined in the Emergency Operations Guide.
The EMO for the City is divided into two general groups-the Executive Group
and Emergency Response Agencies-and organized by function.
3.2.1 Executive Group
The Executive Group is referred to in this plan as a single body, but it may
include representation from each City department during an event. The Executive
Group is responsible for the activities conducted within its jurisdiction. The
members of the group include both elected and appointed executives with certain
legal responsibilities. Key general responsibilities for local elected and appointed
officials include:
■ Establishing strong working relationships with local jurisdictional leaders
and core private-sector organizations, voluntary agencies, and community
partners.
■ Leading and encouraging local leaders to focus on preparedness by
participating in planning, training, and exercises.
■ Supporting staff participation in local mitigation efforts within the
jurisdiction and, as appropriate, including the private sector.
■ Understanding and implementing laws and regulations that support
emergency management and response.
■ Ensuring that local emergency plans take into account the needs of:
• The jurisdiction, including persons, property, and structures,
• Vulnerable populations including unaccompanied children and
those with service animals, and
• Individuals with household pets.
■ Encouraging residents to be prepared and participate in volunteer
organizations and training courses.
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City of Ashland Emergency Management Plan Basic Plan
3. Roles and Responsibilities
3.2.1.1 Mayor and City Council
The role of the Mayor and City Council in emergencies is primarily that of liaison
with the public and with the elected officials of other affected or assisting
jurisdictions.
General responsibilities of the Mayor and City Council include:
■ Establishing emergency management authority by city ordinance.
■ Adopting an Emergency Management Plan and other emergency
management related resolutions.
■ Declaring a State of Emergency and providing support to the Incident
Commander in requesting assistance through the County.
■ Acting as liaison to the community during activation of the EOC.
■ Acting on emergency funding needs.
■ Attending Public Information Officer (PIO) briefings.
■ Ensuring adequate program staffing and funding.
■ Participating in review of this Emergency Management Plan.
3.2.1.2 City Administrator
The City Administrator, or designee, has the ultimate authority and responsibility
for the direction and control of City resources during an emergency. On a day-to-
day basis, this authority is delegated to the City Department heads, who have the
power to establish control of an emergency incident through ICS. The City
Administrator, or designee, may reassume the duties of overall Incident
Command, if in his or her judgment emergency response will be enhanced by this
action. Operational control and incident tactics shall remain with the lead agency.
The City Administrator is responsible for:
■ Providing policy level emergency management.
■ Ensuring adequate program staffing and funding.
■ Maintaining departmental notification/call rosters.
■ Establishing internal lines of succession.
■ Functioning as a member of the emergency management staff.
■ Ensuring staff is trained to assume emergency responsibilities.
■ Providing overall incident management and incident strategy during
activation (assumption of command is at the discretion of the City
Administrator).
■ Providing public information.
■ Declaring local state of emergency and request Governor's declarations of
emergency and disaster through Jackson County as necessary.
■ Safeguarding essential records.
■ Establishing and maintaining liaison with Mayor and Council.
■ Overseeing emergency response and ICS as outlined in this Emergency
Management Plan.
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City of Ashland Emergency Management Plan Basic Plan
3. Roles and Responsibilities
3.2.1.3 Fire and Police Chiefs
■ Oversee and provide direction to Emergency Management Program.
■ Ensure compliance with State and Federal regulations.
■ Review the Emergency Management Plan according to established review
schedule.
■ Ensure necessary revisions of the Emergency Management Plan.
■ Coordinate City Emergency Management activities.
■ Review and revise Emergency Management Plan according to established
review schedule. Develop new annexes as necessary.
■ Conduct exercises to test plan and response capability.
■ Solicit and incorporate Department input into the planning process and the
Emergency Management Plan through the emergency management staff.
■ Facilitate training in emergency management for City staff.
■ Represent the City in all emergency management activities.
■ Provide liaison with other Emergency Management Offices, and with
volunteer organizations tasked with emergency responsibilities.
3.2.1.4 Emergency Manager (Fire Chief)
The Fire Chief serves as the Emergency Manager for the City of Ashland. The
Emergency Manager has been delegated day-to-day authority and responsibility
for overseeing emergency management programs and activities. The Emergency
Manager works with the Executive Group to ensure that there are unified
objectives with regard to the City's emergency plans and activities, including
coordinating all aspects of the City's capabilities. The Emergency Manager
coordinates all components of the local emergency management program,
including assessing the availability and readiness of local resources most likely
required during an incident and identifying and correcting any shortfalls. In
particular, the Emergency Manager is responsible for:
■ Serving as staff advisor to the City Council and City Administrator for
emergency matters.
■ Coordinating the planning and general preparedness activities of the
government and maintenance of this plan.
■ Analyzing the emergency skills required and arranging the training
necessary to provide those skills.
■ Preparing and maintaining a resource inventory.
■ Ensuring the operational capability of the City EOC.
■ Activating the City EOC.
■ Keeping the governing body apprised of the City's preparedness status and
anticipated needs.
■ Serving as day-to-day liaison between the City and County Emergency
Management.
■ Maintaining liaison with organized emergency volunteer groups and
private agencies.
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City of Ashland Emergency Management Plan Basic Plan
3. Roles and Responsibilities
3.2.1.5 Joint Staff Group
Assesses the incident and provides assistance to the EOC Director in the
development of an appropriate emergency response strategy.
Assigned City Officials:
■ Primary Responsibility - Fire Chief
■ Police Chief
■ Public Works Director
Responsibility:
■ Supplies procedural guidance and advice to the Director throughout the
event.
■ Manages personnel within the Emergency Organization who work for
their respective departments.
■ Analyzes issues and processes
3.2.1.6 City Department Heads
Department and agency heads collaborate with the Executive Group during
development of local emergency plans and provide key response resources. City
department and agency heads and their staffs develop, plan, and train to learn
internal policies and procedures for meeting response and recovery needs safely.
They also make staff available to participate in interagency training and exercise
to develop and maintain the necessary capabilities as well as clearly reinforce
preparedness expectations. Department and agency heads not assigned a specific
function in this plan will be prepared to make their resources available for
emergency duty at the direction of the Mayor or City Administrator.
3.2.2 Responsibilities by Department
3.2.2.1 All Departments
Individual departments are an integral part of the emergency organization. While
some departments' staff are first responders, the majority focuses on supporting
these first responders and/or on the continuity of services they provide to the
public. Organizationally, they are a component that provides support and
communication for responders.
City Departments shall retain their identity and autonomy during a declared state
of emergency. Each hazard identified within this plan has one or more Depart-
ments identified as "lead agencies" tasked with planning for that hazard in all
phases and all activity levels. This does not preclude the use of a Unified
Command approach to incident management, or the assumption of command by
the City Administrator, if such actions are apropos.
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City of Ashland Emergency Management Plan Basic Plan
3. Roles and Responsibilities
All City departments are responsible for:
■ Supporting EOC operations to ensure that the City is providing for the
safety and protection of the citizens it serves.
■ Establishing, in writing, an ongoing line of succession of authority for
each department; this document must be made known to department
employees, and a copy should be filed with the City Administrator and
Emergency Manager.
■ Developing alert and notification procedures for department personnel.
■ Developing operating guidelines to implement assigned duties specified
by this plan.
■ Tracking incident-related costs incurred by the department.
■ Establishing internal lines of succession of authority.
■ Ensuring that vehicles and other equipment are equipped and ready, in
accordance with Standard Operating Procedures (SOPS).
■ Identifying critical functions and develop procedures for maintaining
and/or reestablishing services provided to the public and other City
departments.
■ Assigning personnel to the EOC, as charged by this plan.
■ Developing and implement procedures for protecting vital records,
materials, and facilities.
■ Promoting family preparedness among employees.
■ Ensuring that staff complete any NIMS-required training.
■ Ensuring that department plans and SOPS incorporate NIMS components,
principles, and policies.
■ Dedicating staff time for preparedness training and participation in
exercises.
■ Preparing and maintaining supporting SOPS and annexes.
3.2.2.2 Fire & Rescue
■ Serve as lead agency for structural and wildland fire, explosion, transpor-
tation accidents, pre-hospital medical care, hazardous materials, earth-
quake, and weather-related emergencies.
■ Develop guidelines and procedures for responding to emergencies.
■ Train personnel in the safe and effective accomplishment of emergency
duties.
■ Provide emergency response and incident management according to
departmental guidelines and the provisions of this plan.
■ Establish and enforce fire prevention codes.
■ Assist Police and Public Works emergency responses as requested, and
within capability.
■ Safeguard essential records.
■ Maintain internal notification/call rosters.
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City of Ashland Emergency Management Plan Basic Plan
3. Roles and Responsibilities
■ Establish internal lines of succession.
■ Develop and maintain mutual aid agreements necessary to Department
response.
■ Provide fire protection to vital City facilities, shelters, etc.
3.2.2.3 Police Department
■ Serve as lead agency for civil disturbances, terrorism, and drug labs.
■ Serve as City alert and warning, and activation point.
■ Develop operating guidelines and procedures for responding to emergen-
cies.
■ Train personnel to safely and effectively carry out emergency responsibili-
ties.
■ Provide emergency response and incident management according to
Department operating guidelines and the provisions of this plan.
■ Provide security for vital facilities, including the EOC, shelters, etc.
■ Direct incident/site security.
■ Provide support to Fire and Public Works emergency operations as
requested and within capability.
■ Safeguard essential records.
■ Maintain internal notification/call rosters.
■ Establish internal lines of succession.
■ Develop and maintain mutual aid agreements necessary for Department
response.
3.2.2.4 Community Development
■ Assist lead agency for earthquake-related emergencies.
■ Develop operating guidelines and procedures for responding to emergen-
cies.
■ Train personnel to safely and effectively fulfill emergency duties.
■ Provide emergency response and incident management according to
Department guidelines and the provisions of this plan.
■ Provide support to Police and Fire emergency operations as requested, and
within capability.
■ Direct repair of critical City facilities.
■ Assist in damage assessment.
■ Maintain internal notification/call rosters.
■ Establish internal lines of succession.
■ Safeguard essential records.
■ Develop and maintain mutual aid agreements necessary for Department
response.
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City of Ashland Emergency Management Plan Basic Plan
3. Roles and Responsibilities
3.2.2.5 Public Works Department
■ Assist lead agency for flood, drought, volcano, and weather-related
emergencies.
■ Train personnel in the safe and effective fulfillment of emergency duties.
■ Develop operating guidelines and procedures for responding to emergen-
cies.
■ Provide emergency response and incident management according to
Department guidelines and the provisions of this plan.
■ Provide support to Police and Fire emergency operations as requested, and
within capability.
■ Assist in damage assessment.
■ Maintain internal notification/call rosters.
■ Establish internal lines of succession.
■ Develop and maintain mutual aid agreements necessary to department
response.
3.2.2.6 Municipal Electric Utility
■ Assist lead agency during emergencies.
■ Train personnel in the safe and effective fulfillment of emergency duties.
■ Develop operating guidelines and procedures for responding to emergen-
cies.
■ Provide emergency response and incident management according to
Department guidelines and the provisions of this plan.
■ Provide support to Police and Fire emergency operations as requested, and
within capability.
■ Assist in damage assessment.
■ Maintain internal notification/call rosters.
■ Establish internal lines of succession.
■ Develop and maintain mutual aid agreements necessary to department
response. Currently agreements are in place with American Public Power
Association and Northwest Public Power Association (Veracity)
3.2.2.7 Legal Department
■ Provide legal counsel to EMO.
■ Assist in the development of emergency policy, guidelines, and proce-
dures.
■ Train personnel in the safe and effective fulfillment of emergency
responsibilities.
■ Maintain internal notification and call rosters.
■ Establish internal lines of succession.
■ Safeguard essential records.
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City of Ashland Emergency Management Plan Basic Plan
3. Roles and Responsibilities
3.2.2.8 Parks and Recreation
■ Assist lead agency for community-wide emergencies.
■ Train personnel in the safe effective performance of emergency manage-
ment duties.
■ Develop operating guidelines and procedures for responding to
emergencies.
■ Provide support for Fire, Police, and Public Works emergency operations.
■ Assume responsibility for emergency activities within city parks system.
■ Safeguard essential records.
■ Establish internal lines of succession.
3.2.3 Responsibilities by Function
This group includes services required for an effective emergency management
program, of which response is a key element. These agencies include fire
departments/districts, law enforcement, emergency medical services (EMS)
providers, and the public health, environmental health, and public works
departments. This section is organized by function, with the primary
responsibility assigned to the appropriate City or County agency.
As of this plan update, the State of Oregon has migrated to an 18 ESF structure
for its FOP; however, Jackson County's plan still maintains 15 ESFs. For more
information about the State's 18 ESFs, visit: https:llwww.oregon.gov/OEM/
Documents/Oregon ESF Descriptions One Page Job Aid.pdf.
3.2.3.1 Transportation
Primary City Agency: Public Works Department
County Agency: Roads & Parks Department, Rogue Valley Transportation
District
Community Partners: Mutual aid partners
Primary State Agency: Oregon Department of Transportation
Primary Federal Agency: United States Department of Transportation
Transportation responsibilities include:
■ In coordination with the Police department, planning for and identifying
high-hazard areas and numbers of potential evacuees, including the
number of people requiring transportation to reception areas (including
populations with access and functional needs).
■ Coordinating transportation needs for vulnerable populations.
■ Identifying emergency traffic routes.
■ Determining optimal traffic flow and movement priority from residences
to highways.
■ Confirming and managing locations of staging areas and pick-up points
for evacuees requiring public transportation.
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■ Coordinating transportation services, equipment, and personnel using
emergency routes.
■ Providing guidance on commuting arrangements for essential workers
during the evacuation period.
■ Proposing locations of roadblocks and patrols for evacuation movement.
■ Providing patrols and safety measures in the evacuated area and
reassigning personnel during the evacuation period.
See FA 3 - Infrastructure Services and the County EOP, ESF I - Transportation
for more details.
3.2.3.2 Communications
Primary City Agency: Fire & Rescue; Police Department
County Agency: Sheriff's Office, Emergency Management
Community Partners: Emergency Communications of Southern Oregon
Primary State Agency: Oregon Department of Administrative Services
Primary Federal Agency, United States Department of Homeland Security_ _
Alert and Warning
Alert and warning responsibilities include:
■ Disseminating emergency public information, as requested.
■ Receiving and disseminating warning information to the public and key
County and City officials.
Communication Systems
Communication responsibilities include:
■ Establishing and maintaining emergency communications systems.
■ Coordinating use of all public and private communication systems
necessary during emergencies.
■ Managing and coordinating all emergency communication within the
EOC, once activated.
See FA I - Emergency Services and the County EOP, ESF 2 - Communications
for more detail.
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City of Ashland Emergency Management Plan Basic Plan
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3.2.3.3 Public Works
Primary City Agency: Public Works Department, Community Development
Department
County Agency: Roads & Parks Department, Emergency Management
Community Partners: Mutual aid partners, local contractors (e.g., tree removal)
Primary State Agency: Oregon Department of Transportation
Primary Federal Agency: United States Department of Defense/United States
Army Corps of Engineers, United States Department of Homeland
Security
Public works and engineering responsibilities include:
■ Barricading hazardous areas.
■ Performing priority restoration of streets and bridges.
■ Protecting and restoring waste treatment and disposal systems.
■ Augmenting sanitation services.
■ Assessing of damage to streets, bridges, traffic control devices, the waste-
water treatment system, and other public works facilities.
■ Removing debris.
■ Assessment of damage to City-owned facilities.
■ Condemning unsafe structures.
■ Directing temporary repair of essential facilities.
See FA 3 - Infrastructure Services and the County EOP, ESF 3 - Public Works
and Engineering for more detail.
3.2.3.4 Firefighting
Primary City Agency: Fire & Rescue
County Agency: Fire Defense Board
Community Partners: Mutual aid partners
Primary State Agency: Oregon Department of Forestry, OSFM
Primary Federal Agency: United States Department of Agriculture/Fire Service
Fire service responsibilities include:
■ Providing fire prevention before, suppression during and emergency
medical aid in order to prevent loss of life, loss of property, and damage to
the environment.
■ Inspecting damaged areas for fire hazards.
■ Providing hazardous materials spills containment, planning, and
coordination.
■ Inspecting shelters for fire hazards.
■ Manage the City's 1700 AM emergency radio.
■ Manage the City's Smoke and Wildfire Hotline.
■ Manage the City's Citizen Alert System.
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City of Ashland Emergency Management Plan Basic Plan
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See FA I Emergency Services and the County EOP, ESF 4 - Firefighting for
more detail.
3.2.3.5 Information and Planning
Primary City Agency: Fire & Rescue (Emergency Management)
County Agency: Emergency Management, Emergency Management Advisory
Committee
Community Partners: None at this time
Primary State Agency: OEM
Primary Federal Agency: United States Department of Homeland
Security/FEMA
The following activities are necessary for the City to compile, analyze, and
coordinate overall information planning activities during a disaster:
■ Providing a centralized location for the receipt and dissemination of
incident information.
■ Coordinating with City departments, community partners, and County
agencies.
■ Collecting, processing, analyzing, and disseminating information to guide
response and recovery activities.
■ Collecting and aggregate damage assessment data.
■ Coordinating incident planning in the EOC, including development of
information products.
See Chapter S - Command and Control, FA 1 Emergency Services, and the
County EOP Basic Plan and ESF S - Emergency Management for more detail.
3.2.3.6 Mass Care
Primary City Agency: Ashland Parks and Recreation
County Agency: Health and Human Services
Community Partners: American Red Cross
Primary State Agency: Oregon Department of Human Services
Primary Federal Agency: United States Department of Health and Human
Services
The City relies on the support of the County to provide Shelter and Mass Care
Services and has adopted the procedures outlined in the County EOP. Jackson
County Emergency Management Office, with support from the Southern Oregon
Chapter of the American Red Cross, is responsible for ensuring that the mass care
needs of the affected population are met, including sheltering, feeding, providing
first aid, and reuniting families. Relevant operations are detailed in the County
EOP, ESF 6, Housing and Human Services and ESF 11, Agriculture and Natural
Resources. Mass care, emergency assistance, and housing and human services
responsibilities include:
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City of Ashland Emergency Management Plan Basic Plan
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■ Maintaining the Community Shelter Plan and Animal Disaster Response
Plan.
■ Supervising the Shelter Management program (stocking, marking and
equipping, etc.) for natural disasters.
■ Coordinating support with other City and County departments, relief
agencies, and volunteer groups.
■ Designating a coordinator/liaison to participate in all phases of the County
emergency management program, when necessary or as requested.
■ Providing emergency counseling for disaster victims and emergency
response personnel suffering from behavioral and emotional disturbances.
■ Coordinating with faith-based organizations and other volunteer agencies.
■ Identifying emergency feeding sites (coordinating with the American Red
Cross and Salvation Army).
■ Identifying sources of clothing for disaster victims (may coordinate with
the Salvation Army or other disaster relief organization).
■ Securing sources of emergency food supplies (with the American Red
Cross and Salvation Army).
■ Coordinating operation of shelter facilities operated by the City or County,
local volunteers, or organized disaster relief agencies such as the
American Red Cross.
■ Coordinating special care requirements for sheltered groups, such as
unaccompanied children and the elderly.
See FA 2 - Human Services and the County EOP, ESF 6 - Mass Care,
Emergency Assistance, Housing and Human Services and ESF 11-Agriculture
and Natural Resources for more detail.
3.2.3.7 Resource Support
Primary City Agency: Fire & Rescue (Emergency Management), Finance
Department
County Agency: County Administration, Roads & Parks, Emergency
Management
Community Partners: Local religious organizations and volunteer organizations
Primary State Agency: Oregon Department of Administrative Services
Primary Federal Agency: United States Department of Homeland
Security/FEMA
Logistics management and resource support responsibilities include:
■ Establishing procedures for employing temporary personnel for disaster
operations.
■ In cooperation with law enforcement, establishing and maintaining a
staffing reserve.
■ Coordinating deployment of reserve personnel to City departments
requiring augmentation.
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■ Establishing emergency purchasing procedures and/or a disaster
contingency fund.
■ Maintaining records of emergency-related expenditures for purchases and
personnel.
See FA I - Emergency Services and the County EOP, ESF 7 - Logistics
Management and Resource Support for more detail.
3.2.3.8 Health and Medical
Public Health Services
Primary City Agency: Fire & Rescue (Emergency Management)
,County Agency: Health and Human Services
'Community Partners: Local hospitals and clinics, mutual aid partners
Primary State Agency: Oregon Health Authority (OHA)
Primary Federal Agency: United States Department of Health and Human
Services
The City relies on the County to provide public health and human services. The
County Health Department Director is responsible for coordinating public health
and welfare services required to cope with the control of communicable and non-
communicable diseases associated with major emergencies, disasters, and/or
widespread outbreaks caused by bioterrorism, epidemic or pandemic diseases,
novel and highly fatal infectious agents or biological or chemical toxin incidents
in urban or rural areas in the county. The Health Department Director also serves
as the Health Department representative for the County EMO. Relevant
operations are detailed in the County EOP, ESF 6 - Housing and Human Services
and ESF 8 - Public Health and Medical Services of the County EOP. Public
health responsibilities include:
■ Coordinating with hospitals, clinics, nursing homes/care centers, and
behavioral health organizations, including making provisions for the
vulnerable populations.
■ Coordinating with the Medical Examiner and Funeral Directors to provide
identification and disposition of the dead.
■ Coordinating mass vaccination chemoprophylaxis.
■ Coordinating isolation and/or quarantine of infected persons.
■ Coordinating delivery and distribution set-up of the Strategic National
Stockpile, if needed.
■ Designating a coordinator/liaison to participate in all phases of the County
emergency management program, when necessary or as requested.
See FA 2 - Human Services and the County EOP, ESF 8 - Public Health and
Medical Services for more detail.
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City of Ashland Emergency Management Plan Basic Plan
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Medical Services
Primary City Agency: Fire & Rescue
County Agency: Health and Human Services
Community Partners: Local ambulance service agencies, hospitals and clinics,
mutual aid partners
Primary State Agency: OHA
Primary Federal Agency: United States Department of Health and Human
Services
Emergency medical service responsibilities include:
■ Coordinating provision of EMS.
■ Requesting additional EMS assets as necessary.
See FA 1 Emergency Services and the County EOP, ESF 8 Public Health and
Medical Services for more detail.
3.2.3.9 Search and Rescue
Primary City Agency: Fire & Rescue
County Agency: Sheriff's Office
Community Partners: Mutual aid partners
Primary State Agency: OEM, OSFM
Primary Federal Agency: United States Department of Defense, United States
Department of Homeland Security/FEMA, and United States Coast Guard
Search and rescue responsibilities include:
■ Coordinating available resources to search for and rescue persons lost
outdoors.
■ Cooperating with and extending assistance to surrounding jurisdictions, on
request and as resources allow.
■ Establishing and monitoring training standards for certification of search
and rescue personnel.
See FA I - Emergency Services and the County EOP, ESF 9 -Search and Rescue
for more detail.
3.2.3.10 Hazardous Materials
Hazardous Materials Response
Primary City Agency: Fire & Rescue
County Agency: Fire Defense Board
Community Partners: Mutual aid partners
Primary State Agency: OEM, OSFM Regional Hazardous Materials Team
(Region 8)
Primary Federal Agency: United States Department of Defense, United States
Department of Homeland Security/FEMA, and United States Coast Guard
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City of Ashland Emergency Management Plan Basic Plan
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Oil and hazardous materials responsibilities include:
■ Conducting oil and hazardous materials (chemical, biological, etc.)
response.
■ Assessing the health effects of a hazardous materials release.
■ Identifying the needs for hazardous materials incident support from
regional and State agencies.
■ Providing protective actions.
■ Conducting environmental short- and long-term cleanup.
Radiological Protection
Primary City Agency: Fire & Rescue
County Agency: Emergency Management
Community Partners: None at this time.
Primary State Agency: OHA, Radiation Protection Services, OSFM Regional
Hazardous Materials Team No. 3
Primary Federal Agency: United States Environmental Protection Agency
Radiological protection responsibilities include:
■ Providing localized radiological monitoring and reporting network, when
necessary.
■ Securing initial and refresher training for instructors and monitors.
■ Providing input to the statewide monitoring and reporting system from
incident scenes, as necessary.
■ Under fallout conditions, providing City and County officials and
department heads with information regarding fallout rates, fallout
projections, and allowable doses provided by the State Radiation
Protection Services or Federal government.
■ Providing monitoring services and advice at the scene of accidents
involving radioactive materials.
See FA 1 - Emergency Services and the County EOP, ESF 10 Oil and
Hazardous Materials for more detail.
3.2.3.11 Food and Water
Primary City Agency: Ashland Parks and Recreation
County Agency: Emergency Management
Community Partners: American Red Cross, Salvation Army
Primary State Agency: Oregon Department of Human Services
Primary Federal Agency: United States Department of Homeland
Security/FEMA
Responsibilities related to food and water include:
■ Assessing the community's food and water needs.
■ Identifying food and water resources.
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City of Ashland Emergency Management Plan Basic Plan
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■ Storing food and water resources.
■ Monitoring the collection and sorting of all food and water supplies and
establishing procedures to ensure that they are safe for consumption.
■ Coordinating transportation of food and water resources to the community.
See FA 2 - Human Services for more detail.
3.2.3.12 Energy
Primary City Agency: Public Works Department, Municipal Electric Utility
County Agency: Roads & Parks
Community Partners: Private Utilities, Mutual aid partners
Primary State Agency: Oregon Public Utility Commission
Primary Federal Agency: United States Department of Energy
Energy and utilities related responsibilities include:
■ Working with local energy facilities to restore damaged energy utility
infrastructure and accompanying systems.
■ Coordinating temporary emergency power generation capabilities to
support critical facilities until permanent restoration is accomplished.
Critical facilities may include primary and alternate EOCs,
hospitals/critical care facilities, designated shelters, government
offices/facilities, water/sewage systems, and other essential community
services.
See FA 3 - Infrastructure Services and the County EOP, ESF 12 Energy for
more detail.
3.2.3.13 Military Support
Primary City Agency: City Police Department
County Agency: Sheriff's Office
Community Partners: None at this time.
Primary State Agency: Oregon Military Department
Primary Federal Agency: United States Department of Defense
Responsibilities related to military support include:
■ Working with the Oregon Military Department when it is necessary for
them to:
• Coordinate, employ, and control Oregon National Guard forces
and military resources in order to assist civil authorities with the
protection of life and property and to maintain peace, order, and
public safety.
• Mobilize and stage personnel and equipment to restore/preserve
law and order and provide support to other ESFs as directed by the
State ECC and within Oregon National Guard capabilities.
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■ Coordinate with the active Federal military to ensure mutual support
during Federal disaster relief operations.
3.2.3.14 Public Information
Primary City Agency: Administrative Services Department
County Agency: County PIO
Community Partners: Local media (print, television, and electronic)
Primary State Agency: OEM
Primary Federal Agency: United States Department of Homeland
Security/FEMA
Responsibilities related to public information include:
■ Conducting ongoing hazard awareness and public education programs.
■ Compiling and preparing emergency information for the public in case of
emergency.
■ Arranging for media representatives to receive regular briefings on the
City's status during extended emergency situations.
■ Securing printed and photographic documentation of the disaster situation.
■ Handling unscheduled inquiries from the media and the public.
■ Being aware of Spanish-only-speaking and/or bilingual population centers
within the City and County and preparing training and news releases
accordingly.
See FA I Emergency Services and the County EOP, ESF 15 External Affairs
for more details.
3.2.3.15 Volunteer and Donations Management
Primary City Agency: Fire & Rescue (Emergency Management)
County Agency: Rogue Valley Community Organizations Active in Disaster,
Emergency Management
Community Partners: Community Emergency Response Teams (CERTs), Red
Cross, community- and faith-based organizations
Primary State Agency: OEM
Primary Federal Agency: FEMA
Responsibilities related to volunteer and donations management include:
■ Coordinating the identification and vetting of volunteer resources.
■ Matching volunteer resources and donations with the unmet needs of the
community.
■ Maintaining a donations management system to ensure effective
utilization of donated cash, goods, and services.
■ Providing guidance to personnel coordinating the management of
undesignated cash donations, unsolicited goods, and emergent volunteers.
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City of Ashland Emergency Management Plan Basic Plan
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■ Directing unaffiliated volunteers to and coordinating with government-
sponsored/organized volunteer organizations, such as CERTs, Red Cross,
Fire Corps, and/or Medical Reserve Corps, Volunteers in Police Services,
and volunteers associated with the faith-based community in completing
their assigned tasks.
See FA 2 Human Services and the County EOP, ESF 10 - Oil and Hazardous
Materials for more detail.
3.2.3.16 Law Enforcement Services
Primary City Agency: Police Department
County Agency: Sheriff's Office
Community Partners: Local law enforcement agencies
Primary State Agency: Oregon State Police
Primary Federal Agency: United States Department of Justice
Law enforcement responsibilities include:
■ Protecting life and property and preserving order.
■ Providing law enforcement and criminal investigation.
■ Providing traffic, crowd control, and site security.
■ Isolation of damaged area.
■ Providing damage reconnaissance and reporting.
■ Evacuating disaster areas.
See FA 1 Emergency Services and the County EOP, ESF 13 - Public Safety and
Security for more information.
3.2.3.17 Agriculture and Animal Protection
Primary City Agency: Fire & Rescue (Emergency Management)
County Agency: Health and Human Services Department
Community Partners: Fairgrounds
Primary State Agency: Oregon Department of Agriculture
Primary Federal Agency: United States Department of Agriculture
Agriculture and natural resources-related responsibilities include:
■ Provision of nutrition assistance.
■ Conducting animal and plant disease and pest response.
■ Monitoring food safety and security.
■ Providing natural and cultural resources and historic properties protection
and restoration.
■ Protecting the safety and well-being of household pets.
See FA 2 - Human Services and the County EOP, ESF I I Agriculture and
Natural Resources for more detail.
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City of Ashland Emergency Management Plan Basic Plan
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3.2.3.18 Business and Industry
Primary City Agency: Administrative Services
County Agency: Emergency Management
Community Partners: Area business and industry
Primary State Agency: Oregon Business Development Department
Primary Federal Agency: Small Business Administration
Responsibilities related to business and industry include:
■ Coordinating with business and industry partners to facilitate private-
sector support to response and recovery operations.
■ Identifying short-term recovery assistance to business and industry
partners.
■ Facilitating communication between business and industry partners and
the local, tribal, and state emergency management organizations.
■ Providing economic damage assessments for impacted areas.
3.2.3.19 Recovery
Primary City Agency: Fire & Rescue (Emergency Management), City Council
Supporting City Agencies: All other departments
County Agency: Emergency Management, County Administrator, Board of
Commissioners
Community Partners: Mutual aid partners
Primary State Agency: OEM
Primary Federal Agency: United States Department of Homeland Security
Recovery-related responsibilities include:
■ Directing emergency recovery in times of disaster by providing leadership
in coordinating private and governmental sector emergency recovery
efforts.
■ Participating with County and State partners to conduct damage
assessments; identifying and facilitating availability and use of recovery
funding.
■ Accessing recovery and mitigation grant and insurance programs;
providing outreach, public education, and community involvement in
recovery planning.
■ Coordinating logistics management and resource support providing
assistance as needed.
■ Locating, purchasing and coordinating delivery of resources necessary
during or after an incident in the City.
See FA 4 - Recovery Strategy and the County EOP, ESF 14 - Long-Term
Community Recovery for more detail.
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City of Ashland Emergency Management Plan Basic Plan
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3.2.3.20 Evacuation and Population Protection
Primary City Agency: Police Department
County Agency: Sheriff's Office
Community Partners: Mutual aid partners
Primary State Agency: Oregon State Police
Primary Federal Agency: United States Department of Homeland Security
Evacuation and population protection responsibilities include:
■ Defining responsibilities of City departments and private sector groups.
■ Identifying high hazard areas and corresponding number of potential
evacuees.
■ Coordinating evacuation planning, including:
• Movement control,
• Health and medical requirements,
• Transportation needs,
• Emergency Public Information materials, and
• Shelter and reception location.
■ Developing procedures for sheltering-in-place.
See FA I - Emergency Services for more details.
i
3.2.3.21 Damage Assessment
Primary City Agency: Community Development Department
County Agency: County Auditor, Finance Director
Community Partners: None at this time
Primary State Agency: OEM
Primary Federal Agency: United States Department of Homeland
Security/FEMA
Damage assessment responsibilities include:
■ Establishing a damage assessment team from among City departments
with assessment capabilities and responsibilities.
■ Training and providing damage plotting team members to EOC.
■ Assisting in reporting and compiling information regarding deaths,
injuries, and dollar damage to tax-supported facilities and to private
property.
■ Assisting in determining the geographic extent of the damaged area.
■ Compiling estimates of damage for use by City officials in requesting
disaster assistance.
■ Evaluating the effect of damage on the City's economic index, tax base,
bond ratings, insurance ratings, etc. for use in long-range recovery
planning.
See FA 4 - Recovery strategy for more details.
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City of Ashland Emergency Management Plan Basic Plan
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3.2.2.22 Coordination with Special Facilities
Primary City Agency: Fire & Rescue (Emergency Management)
County Agency: Emergency Management
Community Partners: None at this time
Primary State Agency: OEM
!Primary Federal Agency:-,None at this time
Coordination with special facilities (e.g., schools, care facilities, correctional
institutions) responsibilities includes:
■ Establishing strong working relationships with local jurisdictional leaders
and core private-sector organizations, voluntary agencies, and community
partners.
■ Encouraging staff preparedness by participating in planning, training, and
exercises.
■ Educating staff, students, clients, etc. on facility emergency plans and
procedures and the need for individual and/or family emergency planning.
■ Preparing and maintaining emergency plans and SOPS.
3.2.3.23 Other Agency Responsibilities
Other City department and agency heads not assigned a specific function in this
plan will be prepared to make their resources (including personnel) available for
emergency duty at the direction of the City Administrator.
3.3 Local and Regional Response Partners
The City's emergency organization is supported by a number of outside
organizations, including the County, service organizations, and the private sector.
3,3.1 Private Sector
Private-sector organizations play a key role before, during, and after an incident.
First, they must provide for the welfare and protection of their employees in the
workplace. In addition, the City and County must work seamlessly with
businesses that provide water, power, communication networks, transportation,
medical care, security, and numerous other services upon which both response
and recovery are particularly dependent. Essential private sector responsibilities
include:
■ Planning for the protection of employees, infrastructure, and facilities.
■ Planning for the protection of information and the continuity of business
operations.
■ Planning for, responding to, and recovering from incidents that impact
private sector infrastructure and facilities.
■ Collaborating with emergency management personnel before an incident
occurs to ascertain what assistance may be necessary and how private
sector organizations can help.
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City of Ashland Emergency Management Plan Basic Plan
3. Roles and Responsibilities
■ Developing and exercising emergency plans before an incident occurs.
■ Where appropriate, establishing mutual aid and assistance agreements to
provide specific response capabilities.
■ Providing assistance (including volunteers) to support local emergency
management, and public awareness during response and throughout the
recovery process.
3.3.2 Nongovernmental and Faith-Based Organizations
NGOs and faith-based organizations play enormously important roles before,
during, and after an incident. In the City, NGOs such as the American Red Cross
provide sheltering, emergency food supplies, counseling services, and other vital
support services to support response and promote the recovery of disaster victims.
NGOs and faith-based organizations also collaborate with responders,
governments at all levels, and other agencies and organizations.
The roles of NGOs and faith-based organizations in an emergency may include:
■ Training and managing volunteer resources.
■ Identifying shelter locations and needed supplies.
■ Providing critical emergency services to those in need, such as cleaning
supplies, clothing, food and shelter, and assistance with post-emergency
cleanup.
■ Identifying those whose needs have not been met and helping to
coordinate assistance.
3.3.3 Individuals and Households
Although not formally a part of the City's emergency operations, individuals and
households play an important role in the overall emergency management strategy.
Community members can contribute by:
■ Reducing hazards in their homes.
■ Utilizing the Opt-In feature of the Citizen Alert System.
■ Preparing emergency supply kits and household emergency plans which
consider all members of the household, including children and pets.
■ Monitoring emergency communications carefully.
■ Volunteering with established organizations.
■ Enrolling in emergency response training courses.
■ Encouraging children to participate in preparedness activities.
3.4 County Response Partners
County departments and agencies are assigned emergency response tasks based
on their statutory responsibilities and functional expertise.
See the County EOP for details on the County's EMO and detailed roles and
responsibilities for County departments.
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City of Ashland Emergency Management Plan Basic Plan
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3.5 State Response Partners
Under the provisions of ORS 401.055 through 401.155, the Governor has broad
responsibilities for the direction and control of all emergency activities in a State-
Declared Emergency. The administrator of OEM is delegated authority by ORS
401.260 to 401.280 to coordinate all activities and organizations for emergency
management within the State and to coordinate in emergency matters with other
states and the Federal government.
Under the direction and control of department heads, agencies of State
government represent the State emergency operations organization.
Responsibility for conducting emergency support functions is assigned by the
Governor to the department best suited to carry out each function applicable to the
emergency situation. Some State agencies may call upon their Federal
counterparts to provide additional support and resources following established
procedures and policies for each agency.
See the State of Oregon EOP for the State's emergency management organization
and detailed roles and responsibilities for State departments.
3.6 Federal Response Partners
Federal response partners are typically requested by OEM in the event that State
resources become limited or specialized services are needed. In most instances,
Federal resources become available following a formal declaration of emergency
by the Governor. Thus, procedures and policies for allocating and coordinating
resources at the Federal level follow the Oregon Emergency Management Plan
and, if necessary, the NRF.
See the NRFfor the Federal government's emergency management organization
and detailed roles and responsibilities for Federal departments.
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Concept of Operations
This Chapter of the Emergency Management Plan states the community's
response and recovery priorities, provides concepts to guide the community
through the phases of emergency operations, and provides a guide for multi-
jurisdictional coordination and incident command.
4.1 General
Primary roles involved during the initial emergency response will focus on first
responders, such as fire districts/departments, police departments and public
works departments, sometimes also involving hospitals, local health departments,
and regional fire and hazardous material teams. In all emergency situations and
circumstances, saving and protecting human lives receive priority.
The City is responsible for emergency management and protecting life and
property from the effects of emergency and disaster events within this
jurisdiction. This Emergency Management Plan will be used when the City or
local emergency response agencies are reaching or have exceeded their abilities to
respond to an emergency. It may also be used during non-routine incidents or
pre-planned events where City resources are limited and/or have been expended.
4.2 Emergency Management Mission Areas
This plan adheres to the emergency management principle of all-hazards
planning, which is based on the fact that most responsibilities and functions
performed during an emergency are not hazard-specific. The focus of this
Emergency Management Plan is response and short-term recovery actions.
Nevertheless, this plan both impacts and is informed by activities conducted
before and after any emergency operations take place and is designed to assist the
City in the following five mission areas.
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City of Ashland Emergency Management Plan Basic Plan
4. Concept of Operations
Figure 4-1 Emergency Management Mission Areas
Prevention
To avoid, intervene, or stop an
incident from occurring in order
to protect lives and property.
Recovery Protection
To restore vital services; To reduce the vulnerability of
Critical Infrastructure and Key
personal, social, and economic Resources by deterring,
well-being of individuals; and mitigating, or neutralizing
communities to pre-event or terrorist attacks, major
updated conditions. disasters, and other
.00 emergencies. 110
Response Mitigation
To address the short-term and To comprehensively reduce
direct effects of an incident, hazard-related losses with the
including immediate actions to goal of ensuring the safety and
save lives, protect property, and security of individuals,
meet basic human needs. infrastructure protection, and
economic stability.
4.3 Emergency Priorities
4.3.1 Response
Response activities are taken immediately after an incident and a transition into
recovery activities will take place as soon as conditions permit. Both response
and recovery activities can take place concurrently until the life safety and
protective actions are completed.
1. Lifesaving: Efforts to save lives and implement operations to minimize
risks to public health and safety.
2. Property: Actions to reduce impacts to public infrastructure and
minimize property damage.
3. Environment: Activities to mitigate long-term impacts to the
environment.
4.3.2 Recovery
It is the responsibility of government to assist the public and private sector with
recovery from disaster. A widespread disaster will likely impact the ability of
businesses to function, disrupt employment, and interrupt government services
and impact tax revenues. Recovery is one of the four phases of emergency
management. This Emergency Management Plan is not a recovery plan; that
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City of Ashland Emergency Management Plan Basic Plan
4. Concept of Operations
document is a separate endeavor. However, both response and recovery activities
often take place concurrently until life safety and protective actions are
completed. Recovery operations are the actions taken to protect lives and
property while helping impacted areas of the City meet basic needs and resume
self-sufficiency, returning to a "new normal" for the community.
1. Damage Assessment: Determine structure impacts to the City
2. Debris Removal: Coordination of debris collection and removal
3. Infrastructure Restoration: Facilitate restoration of CIKR
Short-term recovery involves the restoration of critical services such as
communications, water supply, sewage service, emergency medical capabilities
and power, as well as garbage and debris removal. These functions must recover
early in the incident to support life. health and safety of the population, and to
support response missions.
4.4 Incident Levels
Incident levels assist response agencies in recognizing the degree of intensity and
potential impact of a particular situation. Emergency situations will not always fit
neatly into these levels, and any incident has the potential to intensify and expand.
Special circumstances or external pressures may warrant outside assistance for
relatively minor incidents.
4.4.1 Level 1
Level 1 situations are often referred to as "routine" crisis management or
emergency situations that can be handled using resources available at the incident
location. For these situations, it may not be necessary to implement an
emergency plan. Outside assistance is usually not required.
Examples of Level I incidents include small chemical spill, small fire, limited
duration power failure, and normal, fire and police response requests.
4.4.2 Level 2
Level 2 situations are characterized by a need for response assistance from outside
agencies (specialized equipment or personnel, insufficient or inadequate on-site
resources, etc.). Requests for assistance related to Level 2 situations often take
the form of a 911 call for police, fire, or medical assistance. Examples include
hazardous materials spills and traffic incidents with multiple injuries. The
Incident Commander may implement selected portions of the City Emergency
Management Plan.
Examples of Level 2 incidents include large or multiple structure fires, structural
collapse, significant hazardous materials release, extended power or utility
outage, severe flooding multi fatality incident, or an external emergency that
may affect City response agencies or operations.
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The following incidents require an automatic Level 2 activation:
■ Disruption of service and traffic flows on major transportation routes for
more than four hours.
■ Mass casualty incidents.
■ Wildland fire.
■ Structural fires fourth alarm or greater.
■ Moderate to major hazardous materials incidents.
■ Any major evacuation expected to last more than four hours.
■ Flood or other severe weather warnings issued by Medford Office of the
National Weather Service.
■ Flosler Dam failure/or imminent threat.
4.4.3 Level 3
Level 3 situations are major incidents that require application of a broad range of
community resources to save lives and protect property. Examples of such
situations include an airliner crash in populated area, a major earthquake, etc.
Emergency plans should be implemented, and the EOC will be activated to
coordinate response and recovery activities.
Examples of Level 3 incidents include major explosion, major hazardous
materials release, major earthquake, or a terrorism incident.
4.4.4 National Incident Management System Incident
Levels
While the City uses incident levels that are consistent with the County and State
EOPs, incident types at the Federal level are based on the following five levels of
complexity that ascend from relatively minor incidents (Type 5, e.g., vehicle fire)
to a major disaster (Type 1) resulting in high impact on the City and requiring
national response resources (source: United States Fire Administration).
Incident levels identified in this Emergency Management Plan will transition to
the NIMS incident levels in the following circumstances:
■ Federal agencies are involved in response and recovery operations (Type
3), or
■ National resources are impacted (such as waters of the United States),
requiring response from Federal agencies.
Refer to Table 4-1 for further information on NIMS incident levels.
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Table 4-1 National Incident Management System Incident
Levels
■ The incident can be handled with one or two single resources
with up to six personnel.
■ Command and General Staff positions (other than the Incident
Commander) are not activated.
■ No written Incident Action Plan (IAP) is required.
■ The incident is contained within the first operational period and
often within an hour to a few hours after resources arrive on
scene.
■ Examples include a vehicle fire, an injured person, or a police
traffic stop.
■ Command staff and general staff functions are activated only if
needed.
■ Several resources are required to mitigate the incident.
■ The incident is usually limited to one operational period in the
control phase.
■ The agency administrator may have briefings, and ensure the
complexity analysis and delegation of authority is updated.
■ No written IAP is required but a documented operational
briefing will be completed for all incoming resources.
■ The role of the agency administrator includes operational plans
including objectives and priorities.
■ When capabilities exceed initial attack, the appropriate ICS
positions should be added to match the complexity of the
incident.
■ Some or all of the Command and General Staff positions may be
activated, as well as Division/Group Supervisor and/or Unit
Leader level positions.
■ A Type 3 Incident Management Team or incident command
organization manages initial action incidents with a significant
number of resources, an extended attack incident until
containment/control is achieved, or an expanding incident until
transition to a Type 1 or 2 team.
■ The incident may extend into multiple operational periods.
■ A written IAP may be required for each operational period.
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Table 4-1 National Incident Management System Incident
Levels
■ This type of incident extends beyond the capabilities for local
control and is expected to go into multiple operational periods. A
Type 2 incident may require the response of Resources out of
area, including regional and/or national resources, to effectively
manage the operations, command, and general staffing.
■ Most or all of the Command and General Staff positions are
filled.
■ A written IAP is required for each operational period.
■ Many of the functional units are needed and staffed.
■ Operations personnel normally do not exceed 200 per
operational period and total incident personnel do not exceed
500 (guidelines only).
■ The agency administrator is responsible for the incident
complexity analysis, agency administrator briefings, and the
written delegation of authority.
■ This type of incident is the most complex, requiring national
resources to safely and effectively manage and operate.
■ All Command and General Staff positions are activated.
■ Operations personnel often exceed 500 per operational period
and total personnel will usually exceed 1,000.
■ Branches need to be established.
■ The agency administrator will have briefings, and ensure that the
complexity analysis and delegation of authority are updated.
■ Use of resource advisors at the incident base is recommended.
■ There is a high impact on the local jurisdiction, requiring
additional staff for office administrative and support functions.
4.5 Incident Management
4.5.1 Activation and Notification
The emergency system is activated anytime a police, fire, or public works
employee responds to a request for emergency assistance. The responder becomes
the Incident Commander, and is in charge of the incident until it is has been
resolved, or until relieved by a ranking officer from his/her own agency, or by an
officer from the lead agency. Ultimate command authority lies with the City
Administrator.
When an emergency situation arises and it is determined that the normal
organization and functions of City government are insufficient to effectively meet
response requirements, the Emergency Manager will implement all or part of this
Emergency Management Plan. In addition, the Emergency Manager may
partially or fully activate and staff the City EOC based on an emergency's type,
size, severity, and anticipated duration. An Emergency Declaration is not
required to implement the Emergency Management Plan or activate the EOC.
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The Emergency Manager may implement the Emergency Management Plan as
deemed appropriate for the situation or at the request of an Incident Commander.
Concurrently, all involved City emergency services will implement their
respective plans, procedures, and processes and will provide the Emergency
Manager with the following information:
■ Operational status.
■ Readiness and availability of essential resources.
■ Changing conditions and status of resources (personnel, equipment,
facilities, supplies, etc.).
Significant concerns and issues dealing with potential or actual loss of life or
property.
Emergency Communications of Southern Oregon in Medford serves as the 24-
hour notification point for the City of Ashland, and is responsible for notifying
and activating additional levels of assistance as directed by the Incident
Commander or as indicated in this plan. In the event that emergency traffic within
the 9-1-1 center makes it difficult for dispatch personnel to complete EOC staff
notifications in a timely manner, a "telephone tree" will be utilized by dispatch to
contact EOC staff. The notifying party should ensure that messages are conveyed
effectively so that emergency management staff available for duty assignments
are aware of the EOC activation.
Notification of impending emergencies may also be received via the Law
Enforcement Data System, from police or fire dispatch agencies, or from the
general public.
Table 4-2 Required Notifications by Incident Level
1FPd Notifications
Level 1 ;'Lr~;~>nf~~f identified by the activating official.
Mayor
City Administrator, or designee
Assistant City Administrator
Level All Department Heads or designees
Cooperating Agencies
CERT
City Administrator, or designee
Assistant City Administrator
Level 3 All Department Heads, or designees
City Council and Mayor notification
Cooperating Agencies
CERT
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Warnings, emergency information and notifications, or disaster reports received
by City personnel will be relayed to the Emergency Manager, Fire Chief, Police
Chief, and/or ECSO. City response personnel will communicate and receive
notifications using traditional communications technology, such as landline and
cellular telephones, internet/email, and radio throughout the duration of response
activities as long as these resources are available. Emergency notification
procedures are established among the response community, and call-down lists
are updated and maintained by each department. External partners will be notified
and coordinated through the EOC as appropriate.
4.5.2 Initial Actions
Upon implementation of all or part of this Emergency Management Plan, the
Incident Commander (or designee) will immediately take the following actions:
■ Alert threatened populations and initiate evacuation as necessary.
See FA 1 - Emergency Services Annex, for more detail.
■ Initiate emergency sheltering procedures with the American Red Cross
and other community partners if evacuation procedures are activated.
See FA 2 - Human Services Annex for more detail.
■ Instruct appropriate City emergency service providers to activate
necessary resources.
■ Assign radio frequencies and communications equipment, implement a
communications plan, and confirm interoperability among EOC staff and
response agencies.
■ Request the City Council to prepare and submit a formal Declaration of
Emergency through County Emergency Management when it is
determined that local resources will not meet the needs of local emergency
operations.
■ Prepare to staff the City EOC as appropriate for the incident with
maximum 12-hour shifts.
■ City personnel and support staff will be deployed to restore normal
activity and provide essential community services as soon as possible
following the emergency. See FA 4 - Recovery Strategy Annex for
additional information regarding community recovery procedures.
4.5.3 Communications and Warning
Traditional communication lines, such as landline telephones, cellular phones,
faxes, pagers, intemet/e-mail, and radio, will be used by City response personnel
throughout the duration of response activities. See FA I Emergency Services for
more detail.
4.5.4 Alert and Warning
A public warning and broadcast system is established for the City to provide
emergency information and instructions during a pending or actual emergency
incident or disaster. The Fire Department also operates an emergency information
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radio on 1700 AM, as well as a Smoke and Wildfire Hotline at 541-552-2490.
The Emergency Manager shall provide the public with educational/instructional
materials and presentations on subjects regarding safety practices and survival
tactics for the first 72 hours of a disaster. FA 1 - Emergency Services provides
detailed information regarding how these systems are accessed, managed, and
operated throughout an emergency's duration.
City response personnel will communicate and receive notifications using
traditional communications technology, such as landline and cellular telephones,
internet/email, and radio throughout the duration of response activities as long as
these resources are available.
Emergency notification procedures are established among the response
community, and call-down lists are updated and maintained by each individual
agency. External partners can be activated and coordinated through the City
EOC.
4.5.5 Communications
The ability of responders from different jurisdictions and different disciplines to
work together depends greatly on their ability to communicate with each other.
Plain language is essential to first responder and public safety, and will be used by
all City personnel during emergencies. The use of common terminology enables
emergency responders, EOC personnel, and City staff, as well as personnel from
neighboring jurisdictions, the County, or State to communicate clearly with each
other and effectively coordinate response activities. regardless of an incident's
size, scope, or complexity.
4.5.5.1 Interoperability
Interoperability is the ability of public and private agencies, departments, and
other organizations to operate and communicate effectively together through the
use of systems, personnel, and equipment. In recognition that successful
emergency management and incident response operations require the continuous
flow of critical information among jurisdictions, disciplines, organizations, and
agencies, interoperability plans or procedures should be developed that include
training and exercises, SOPS, new technology, and considerations of individual
agency governance, as well as consideration of use within a stressful and often
chaotic context of a major response. Interoperable voice, data, or video-on-
demand communications systems allow emergency management/response
personnel to communicate within and across agencies and jurisdictions in real
time, when needed, and when authorized.
4.5.6 Direction and Control
Direction and control of City emergency operations will be conducted via ICS and
the Multi-Agency Coordination System, as described in Chapter 5, Command and
Control.
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The City EMO is responsible for maintaining the readiness of the EOC and
identifying and training support staff. City departments will be requested to
designate personnel who can be made available to be trained by City Emergency
Management and to work in the EOC during a major disaster. Other departments
may be requested to provide assistance in a major emergency.
4.5.7 Situational Awareness and Intelligence Gathering
Situational awareness and intelligence gathering are necessary to maintain a
common operating picture among response agencies and provide the basis for
emergency alert and warning (when an incident alert is not received by an outside
agency). Situational awareness is the ongoing process of collecting, analyzing,
and sharing information across agencies, intergovernmental levels, and the private
sector. Intelligence gathering is the collecting of security and operational
information, such as collection of severe weather forecasts from the National
Weather Service. Intelligence gathering may also be used to detect, prevent,
apprehend, and prosecute criminals planning terrorist incidents.
On a day-to-day basis, and during Level 1 and 2 incidents when the EOC is not
fully activated, the City, primary agencies, and supporting response agencies will:
■ Be aware of their surroundings and identify and report potential threats
and dangerous situations.
■ Share and evaluate information from multiple sources.
■ Integrate communications and reporting activities among responding
agencies.
■ Monitor threats and hazards.
■ Share forecasting of incident severity and needs.
If activated, the EOC Planning Section Chief will lead situational awareness and
intelligence gathering activities and functions, unless otherwise designated.
4.5.7.1 Coordination with State Fusion Center
If a criminal or terrorist incident is suspected, the City Police Department will
notify the Oregon Terrorism Information Threat Assessment Network (TITAN)
Fusion Center (OTFC) through the County Sheriff's Office. During a terrorist
incident, the OTFC will support situational awareness and intelligence gathering
functions.
The State of Oregon maintains the Fusion Center to provide intelligence support
as it relates to terrorism and terrorist activity. The OTFC and Portland Urban
Area TITAN Fusion Center's mission is to protect the citizens of Oregon from
terrorism and terrorist activity by providing an "all crimes, all threat, and all
hazard" information clearinghouse for Federal, State, local, and tribal law
enforcement agencies. The center's goals are to identify, prevent, detect, disrupt,
and assist in investigating terrorism-related crimes by providing an efficient,
timely, and secure mechanism to exchange critical information among law
enforcement agencies at all levels, State executive leadership, government
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agencies, and the City's public and private-sector partners. The OTFC supports
these goals by:
■ Providing pre- and post-terrorism event investigatory support, with
analysis and dissemination of the conclusions.
■ Maintaining the State of Oregon Terrorism Suspicious Activity Report
intake log.
■ Providing real-time intelligence/information support, previously
coordinated, to OEM and other appropriate emergency management
agencies during an emergency event or operation.
■ Provide updated intelligence related to all crimes or terrorism-related
activities to local, State, and Federal law enforcement agencies as
requested or required.
■ Provide liaison support and information sharing in support of emergency
operations by disseminating emergency information through the TITAN.
■ Provide an OTFC staff member to be collocated within the State ECC in
the event of an emergency.
■ Provide terrorism-related alerts, bulletins, and assessments to public and
private-sector companies and organizations as requested or required.
4.5.8 Resource Management
When the EOC is activated, the Logistics and Planning Sections have primary
responsibility for coordinating the resource management effort and have authority
under emergency conditions to establish priorities for the assignment and use of
all City resources. In a situation where resource allocations are in dispute, the City
Administrator has the final allocation authority. City resources will be allocated
according to the following guidelines:
■ Deploy resources according to the following priorities:
1. Protection of life.
2. Protection of responding resources.
3. Protection of public facilities.
4. Protection of private property.
■ Distribute resources so that the most benefit is provided for the amount of
resources expended.
■ Coordinate citizen appeals for assistance through the PIO at the EOC. Use
local media to provide citizens with information about where to make
these requests.
■ Activate mutual aid agreements as necessary to supplement local
resources.
■ When all local resources are committed or expended, issue a request to the
County for County, State, and Federal resources through an emergency
declaration.
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4.5.8.1 Resource Typing
Resource typing is a method for standardizing equipment requests and managing
resources during an incident in accordance with NIMS. A resource typed list can
increase the usefulness of the tools requested during an emergency, and may
reduce costs by eliminating orders for equipment that are inaccurate or
inappropriate for the situation.
4.5.8.2 Credentialing of Personnel
At this time, the City has not implemented a formalized credentialing program.
Should one by implemented, it will be developed with technical assistance from
OEM and will provide for documenting personnel and authenticating and
verifying their qualifications.
The City's credentialing program may include the following elements:
■ Conduct identity enrollment of personnel in accordance with approved
standards.
■ Identify type and quality personnel in accordance with published NIMS
job titles. For those not covered by NIMS, develop typing for positions
based on essential functions of a position, levels of training, experience
levels, required licensure and certifications, and physical and medical
fitness required for the position.
■ Certify personnel based on completion of identity vetting and meeting
qualifications for position to be filled.
■ Card personnel after completing certification of identity, qualifications,
and typing.
■ Provide authorization for deployment of credentialed personnel through
order numbers, travel authorizations, etc.
■ Ensure that personnel are credentialed only while they maintain
employment and qualifications.
4.5.9 Emergency Public Information
Emergency public information involves developing, coordinating, and
disseminating information to the public, coordinating officials, and incident
management and responders under all hazard conditions. To ensure that
appropriate information is distributed to all populations within the community, the
EMO will seek to develop public and private partnerships with fixed and mobile
service providers, local officials, and State agencies, representatives from access
and functional needs populations such as non-English-speakers and the disabled
community, staff from nonprofit emergency support organizations,
representatives from fixed facilities, third-party emergency alert and telephone
notification vendors, and broadcasters. These partnerships help inform overall
guidance of emergency public information message development, standards of
practice, and evaluation tools, and help refine public information plans and
procedures.
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The PIO is a member of the Command Staff responsible for interfacing with the
public, media, and other agencies during all emergency mission phases. During an
emergency, the PIO gathers, verifies, coordinates, and disseminates accurate,
accessible, and timely information and is an important link between the EMO and
the community. The information the PIO provides to a community can call people
to action, educate and inform, change behavior and attitudes, create a positive
impression of the City's emergency management organization, and prepare the
community for an emergency.
4.6.9.1 Methods of Public Information Dissemination
Clear, accurate, and consistent information must be disseminated to the public
during an emergency for the public to take appropriate protective actions. The
information must be distributed in a variety of methods to ensure accessibility and
comprehensive penetration of the message. Methods of public information
dissemination include the following:
■ Press releases - A press release is a prepared written news release that
uses current data and information.
■ Media briefing or conference - A briefing is an exchange of information
on a single topic and typically includes a question-and-answer period,
whereas a conference is a gathering of media where reporters expect to be
able to ask questions on a variety of topics.
■ Print Media - Print media, including newspapers and magazines, allow
PIOs to disseminate public information, such as detailed information.
background, and input from subject matter experts.
■ Radio - In addition to warnings issued by the EAS, radio allows PIOs to
release audio clips and sound bites to the public.
■ Television - PIOs may utilize television to disseminate visuals, sound
bites, and graphics to the public.
■ Internet - The internet is a dynamic communication conduit that includes
webpages, RSS feeds, and email and can be used as a strategic path for
sharing information during an emergency.
■ Newsletters/Mailers - Information sent directly to the public can provide
details on events and activities as well as background information on the
City's emergency management programs.
■ Social Media - Web-based platforms may be used for alerting the public
in the sudden onset of and rapidly developing disasters, direct
communication with large groups of constituents, building situational
awareness, fostering transparency and accountability, obtaining feedback,
and responding quickly to rumors and misinformation. Common types of
social media are:
• Blogs
• Social networking (e.g., Facebook, Twitter, Nextdoor)
• Media sharing (e.g., YouTube, Flickr, Pinterest, Instagram)
• Wiki
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■ Call Center - May be used as a way to divert unnecessary calls away
from the 9-1-1 system, gather information to increase situational
awareness of the incident, and disseminate emergency public information.
Each distribution method has strengths and weaknesses. The PIO must determine
the best methods of media distribution to reach all populations within the City and
must ensure that the weakness of each system is covered by the strength of
another. Additionally, the PIO must ensure that all communications are accurate,
consistent, and coordinated to avoid public confusion. Pre-planning, message
maps, easily adapted messages to be recorded, and the creation of partnerships
can help the PIO determine what message formats and dissemination methods
will be the most accessible to the population of the City.
4.5.10 Access and Functional Needs Populations
Access to emergency services shall not be denied on the grounds of color,
national origin, sex, age, sexual orientation, or functional needs. Also referred to
as Vulnerable Populations and Special Needs Populations, Access and Functional
Needs Populations describes members of the community who experience
physical, mental or medical care needs who may require assistance before, during
and after an emergency incident after exhausting their usual resources and support
network.
See FA 2 - Human Services for additional information on Access and Functional
Needs Populations.
4.5.11 Animals in Disaster
While the protection of human life is paramount, the need to care for domestic
livestock and/or companion animals plays into decisions made by the affected
population. The County will coordinate with local animal owners, veterinarians,
and animal advocacy groups to address animal related issues that arise during an
emergency.
4.5.12 Demobilization
As the emergency situation progresses and the immediate response subsides, a
transition period will occur during which emergency responders will hand
responsibility for active coordination of the response to agencies or organizations
involved with short- and long-term recovery operations.
The following issues will be considered when demobilizing:
■ Identification of surplus resources and probable resource release times.
■ Demobilization priorities as established by the on-scene Incident
Commander and/or EOC Incident Commander.
■ Released or demobilized response resources as approved by the on-scene
Incident Commander and/or EOC Incident Commander.
■ Repair and maintenance of equipment, if necessary.
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4.5.13 Transition to Recovery
Once immediate response activities have been completed, the City will turn
towards recovery to restore government function and community services. Certain
recovery activities may begin prior to the completion of all response activities.
For example, restoration of lifeline utilities may commence while emergency
sheltering is still ongoing.
It is the responsibility of all levels of government to assist the public and private
sectors with recovery from disaster. A widespread disaster may disrupt
employment, interrupt government services, impact the ability of businesses to
function, and impact tax revenues within the City. This Emergency Management
Plan is not a recovery plan; however, the City recognizes that response and
recovery activities often take place concurrently until life safety and emergency
protective actions are completed.
Figure 4-2 Disaster Recovery Continuum
nLTtOnL4 DIALATlR R(f.OYlRY
(RLMlVlORK (MGRfy ORi
>a D
!1 =
O
~n
ea
mT
y0
NN
PREPAREDNESS Sri JPT-iLRht
U tGUtV~ Ga::i +CC O MS-: E,:NS
.Source: National Disaster Recovery Framework
Short-term recovery operations take place in the days to weeks following an
incident and focus on stabilizing activities. This phase of recovery involves
restoring vital services to the community and provide for the basic needs of the
public, such as bringing necessary lifeline systems (e.g., power, communication,
water and sewage, disposal of solid and hazardous wastes, or removal of debris)
to an acceptable standard while providing for basic human needs (e.g., food,
clothing, and shelter). Once stability is achieved, the City can concentrate on
intermediate and long-term recovery efforts, which focus on restoring the
community to a "new normal" or improved state.
Intermediate recovery operations take place in the weeks to months following
an incident and focus on rebuilding activities. This phase of recovery involves
repairing damaged infrastructure and buildings, providing financial, social, and
psychological support to community members, and mitigating future risks.
Long-term recovery operations take place in the months to years following an
incident and focus on revitalizing activities. This phase of recovery addresses
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City of Ashland Emergency Management Plan Basic Plan
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complete redevelopment and revitalization of the impacted area, continued
rebuilding activities, and a focus of building self-sufficiency, sustainability, and
resilience.
During the recovery period, the City will review and implement mitigation
measures, collect lessons-learned and share them within the emergency response
community, and reassess this Emergency Management Plan, including annexes, to
identify deficiencies and take corrective actions. Resources to restore or upgrade
damaged areas may be available if the City demonstrates that extra repairs will
mitigate or lessen the chances of, or damages caused by, another similar disaster
in the future.
See FA 4 - Recovery Strategy, for more details.
4-16
Command and Control
This Chapter of the Emergency Management Plan highlights the setting in which
the EOC exists. It details the location, capabilities, and policies of the EOC.
Additionally, it outlines a process for establishing operations within the EOC,
including activation, EOC procedures, and deactivation.
5.1 General
The ultimate responsibility for command and control of City departments and
resources lies with the City Administrator. The Assistant City Administrator,
acting as Emergency Manager, will maintain direction and control of the City
EMO unless this task is otherwise delegated. City emergency operations, both on-
scene and in the EOC, will be conducted in a manner consistent with NIMS,
including use of ICS.
During a City-declared disaster, control is not relinquished to County or State
authority but remains at the local level for the duration of the event.
5.2 On-Scene Incident Management
The initial City response structure consists of the Incident Commander and single-
resource agencies (i.e., Public Works Department, Police Department, and the
Fire Department). Depending on the incident, the Public Works Director, Police
Chief or the Fire Chief may act as both the Incident Commander as well as chief
of their respective resource agencies. During the initial response an Incident
Commander from the appropriate agency will be located at the on-scene incident
command post and will assume the responsibilities of the public information
officer, liaison officer, and safety officer command staff responsibilities until
these responsibilities are delegated.
The local emergency lead department responding shall:
■ Assume incident command upon arriving on scene.
■ Establish liaison for cooperating resources.
■ Establish an appropriate Command Post, mark it, and advise responders to
its location.
■ Fill subordinate positions and assign resources as necessary according to
standard operating procedures.
■ Surrender overall incident command to ranking officers or to the City
Administrator as deemed appropriate.
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■ The Incident Commander will set up a Unified Command structure if
more than one jurisdiction has legal responsibility for responding to the
emergency.
■ Assisting jurisdictions or agencies not included in the Unified Command
will provide liaison to the Command organization as requested.
As the incident progresses, and to maintain an adequate span of control, the initial
response structure will expand into an ICS structure, supported by full command
and general staff positions.
5.3 Emergency Operations Center Support to On-
Scene Operations
Depending on the type and size of incident, the City may activate the State ECC
and assign an Incident Commander. The City will require and request additional
personnel to support this expanded structure. Depending on the incident type, the
Public Works Department, Police Department, and Fire Department will support
the Operations Section Chief. Other City departments (e.g., Administrative
Services) may support the expanded command or general staff roles as applicable.
Following a declaration of emergency, the City may receive assistance from the
County and may utilize and support the County ICS structure. At any time, if the
incident expands or contracts, changes in jurisdiction or discipline, or becomes
more or less complex, the Incident Commander may change to meet the needs of
the incident.
Outside assistance, whether from other political jurisdictions or from organized
volunteer groups, will be requested and used only as an adjunct to existing City
services, and then only when the situation threatens to expand beyond the City's
response capabilities.
5.4 Emergency Operations Center
Incident response activities will be supported from the EOC and will be activated
upon notification of a possible or actual emergency. The EOC will track, manage,
and allocate appropriate resources and personnel. During large-scale
emergencies, the EOC will, in fact, become the seat of government for the
duration of the crisis. The EOC will serve as a multi-agency coordination center,
if needed.
5.4.1 Emergency Operations Center Activation
During emergency operations and upon activation, the EOC staff will assemble
and exercise Direction and Control, as outlined below.
■ The EOC will be activated by the Emergency Manager who then will
assume or designate the role of Incident Commander. The Incident
Commander will assume responsibility for all operations and direction and
control of response functions.
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■ The Incident Commander will determine the level of staffing required and
will alert the appropriate personnel, agencies, and organizations.
■ Emergency operations will be conducted by City departments, augmented
as required by trained reserves, volunteer groups, and forces supplied
through mutual aid agreements. County, State, and Federal support will
be requested if the situation dictates.
■ Communications equipment in the EOC will be used to receive
information, disseminate instructions, and coordinate emergency
operations.
■ The Incident Commander may establish an on-scene command post at the
scene to maintain close contact and coordination with the EOC.
■ Department heads and organization leaders are responsible for emergency
functions assigned to their activities, as outlined in their respective
annexes.
■ The EOC will normally operate on a 24-hour basis, rotating on 12-hour
shifts, or as needed.
■ The Emergency Manager will immediately notify the County Emergency
Management office upon activation. Periodic updates will be issued as the
situation requires.
See Appendix C - Incident Action Planning Cycle for more information on the
activities that occur during an operational period and the development of an
Incident Action Plan (IAP).
5.4.2 Emergency Operations Center Location
The primary location for the City EOC is:
Ashland Fire Station #1
455 Siskiyou Boulevard
Ashland, Oregon 97520
If necessary, the alternate location for the City EOC is:
Ashland Fire Station #2
1860 Ashland St.
Ashland, OR 97520
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City of Ashland Emergency Management Plan Basic Plan
5. Command and Control
Figure 5-1 Primary Emergency Operations Center
I
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E MAIN ST
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06
Ashland Fire & Rescue - Station 1 CITY OF
0 125 25 50 75 100 -ASHLAND
1 inch = 50 feet Feet
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City of Ashland Emergency Management Plan Basic Plan
5. Command and Control
Figure 5-2 Alternate Emergency Operations Center
ASHLAND ST
Q
O
O
W
SHERWOOD
PARK
ti l
Ashland Fire & Rescue - Station 2 N C I T Y OF
1 inch = 50 feet 0 12.5 25 50 75 100- ASHLAND
Feet
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City of Ashland Emergency Management Plan Basic Plan
5. Command and Control
The County EOC is located at:
Emergency Communications of Southern Oregon
400 Pech Road
Medford, OR 97502
Figure 5-3 County Emergency Operations Center
0~ Rd:
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The location of the EOC can change, as required by the needs of the incident.
Coordination and control of City emergency resources will take place from the
EOC as long as environmental and incident conditions allow. However, if
conditions require relocation of the EOC, then the EOC Incident Commander will
designate an alternate facility. The EOC Incident Commander may request the use
of the County EOC or County facilities from County Emergency Management.
5.4.3 Emergency Operations Center Staffing
City departments involved in emergency response, and the emergency manage-
ment organization are required to respond to the EOC, and will assume positions
according to the organization outlined in the Emergency Operations Guide.
Personnel assigned to the EOC have the authority to make the decisions
associated with their Command or General Staff position, and to commit their
department or organization's resources in support of the incident. The Incident
Commander has the responsibility for ensuring that the appropriate Command and
General Staff positions are filled. Sub-unit positions, and positions within the
Operations Section, will be filled by additional City personnel and representatives
of assisting jurisdictions/agencies, or volunteer organizations as required by the
needs of the emergency.
Due to limited personnel and resources available in the City, it is imperative that
all primary and alternate EOC staff be trained on ICS functions outside their areas
of expertise. Regularly exercising ICS, including sub-functions and liaison roles,
with volunteers and other support staff will improve overall EOC operation
efficiency and add depth to existing City emergency management and response
organizations.
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City of Ashland Emergency Management Plan Basic Plan
5. Command and Control
5.4.4 Access and Security
During an emergency, access to the EOC will be limited to designated emergency
operations personnel due to the large volume of incoming and outgoing sensitive
information. The EOC Incident Commander may allow access on an individual,
case-by-case basis. Appropriate security measures will be in place to identify
personnel who are authorized to be present.
5.4.5 Deactivation
Each incident will be evaluated to determine the need for continued operation of
the EOC after the emergency response phase of the incident has been completed.
This decision is made by the on-scene Incident Commander, EOC Incident
Commander, and Emergency Manager (or designee), if different from the EOC
Incident Commander.
During the initial phase of the recovery period for a major disaster, it may be
desirable to continue to operate the EOC during the day with limited staffing to
facilitate dissemination of public and local government disaster relief information.
This alternative should be weighed against the option of immediately requiring
staff to manage recovery operations as part of their daily responsibilities.
Once the decision has been made to limit hours/staff or close the EOC,
notification must be disseminated to the same agencies that were notified it was
activated. If necessary, the EOC may also be re-opened and emergency operations
re-initiated at any time.
5.5 Incident Command System
ICS is a standardized, flexible, and scalable, all-hazards incident management
system designed to be utilized from the time an incident occurs until the need for
management and operations no longer exists. The system consists of practices for
managing resources and activities during an emergency response and allows
agencies to communicate using common terminology and operating procedures.
It also allows for effective coordination and allocation of resources throughout an
incident's duration.
The ICS structure can be expanded or contracted, depending on the incident's
changing conditions. It can be staffed and operated by qualified personnel from
any emergency service agency and may involve personnel from a variety of
disciplines. As such, the system can be utilized for any type or size of emergency,
ranging from a minor incident involving a single unit to a major emergency
involving several agencies and spanning numerous jurisdictions. The City has
established an EMO, supporting EOC activation and operational procedures, and
position checklists compliant with NIMS/ICS. This information is contained
within this Emergency Management Plan; however, this document is not an EOC
manual. A transitional ICS organizational chart for the City is presented in Figure
5-4.
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City of Ashland Emergency Management Plan Basic Plan
5. Command and Control
Figure 5-4 Example of a Scalable Command Structure for the City
Initial
Executive Group Response
- Mayor/City Council Incident Structure
- City Administrator Commander
- Emergency Manager
F
City Police City Public Works City Fire
Department Department Department
May
Expand to
Executive Group
- Mayor/City Council Incident
- City Administrator Commander
- Emergency Manager
- -
Public
Information
Officer
Liaison Officer
Safety Officer
-
Operations Planning Logistics Financial/Admin
Section Chief Section Chief Section Chief Section Chief
4 City Police
Department
City Public Works
Department
City Fire
Department
5.5.1 Emergency Operations Center Incident Commander
The EOC Incident Commander is responsible for operation of the EOC when it is
activated and has overall responsibility for coordinating resources in support of
emergency operations. In general, the EOC Incident Commander is responsible
for:
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City of Ashland Emergency Management Plan Basic Plan
5. Command and Control
■ Maintaining EOC operations in accordance with the principles of ICS and
NIMS.
■ Approving and supporting implementation of an IAP.
■ Coordinating activities supporting emergency operations.
■ Approving release of information through the PIO.
■ Performing the duties of the following Command Staff if no one is
assigned to the position:
• Safety Officer
• PIO
• Liaison Officer
■ At any time, if the incident expands or contracts, changes in jurisdiction or
discipline, or becomes more or less complex, the EOC Incident
Commander may change to meet the needs of the incident.
5.5.2 Emergency Operations Center Command Staff
5.5.2.1 Safety Officer
The Safety Officer position generally applies to incident scenes and is responsible
for:
■ Identifying initial hazards, determining personal protective equipment
requirements, and defining decontamination areas.
■ Implementing site control measures.
■ Monitoring and assessing the health and safety of response personnel and
support staff (may be necessary for EOC as well).
■ Preparing and implementing a site Health and Safety Plan and updating
the Incident Commander regarding safety issues or concerns, as necessary
(may be necessary for EOC as well).
■ Exercising emergency authority to prevent or stop unsafe acts (may be
necessary for EOC as well).
5.5.2.2 Public Information Officer
A lead PIO will most likely coordinate and manage a larger public information
network representing local, County, regional, and State agencies; tribal entities;
political officials; and other emergency management stakeholders. The PIO's
duties include:
■ Developing and coordinating release of information to incident personnel,
media, and the general public.
■ Coordinating information sharing among the public information network
and may utilize a Joint Information System (JIS) and, if applicable,
participating in a Joint Information Center (JIC).
■ Implementing information clearance processes with the Incident
Commander.
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5. Command and Control
■ Conducting and/or managing media briefings and implementing media-
monitoring activities.
5.5.2.3 Liaison Officer
Specific liaison roles may be incorporated into the command structure established
at the City and/or County EOC, depending on the type of emergency incident that
has occurred. Liaisons represent entities and organizations, such as hospitals,
school districts, tribes, public works/utility companies, and volunteer services
such as the American Red Cross. Responsibilities typically associated with a
liaison role include:
■ Serving as the contact point for local government officials, agency or
tribal representatives, and stakeholders.
■ Coordinating information and incident updates among interagency
contacts, including the public information network.
■ Providing resource status updates and limitations among personnel,
capabilities, equipment, and facilities to the Incident Commander,
government officials, and stakeholders.
The annexes attached to this plan contain general guidelines for the City
governmental entities, organizations, and County officials and departments to
carry out responsibilities assigned at the City EOC or other designated facility
where response efforts will be coordinated.
5.5.3 Emergency Operations Center General Staff
5.5.3.1 Operations Section Chief
The Operations Section Chief position is typically filled by the lead agency
managing response activities for a specific type of incident. The Operations
Section is organized into functional units representing agencies involved in
tactical operations.
The Operations Chief is responsible for:
■ Developing and coordinating tactical operations to carry out the UP
including:
• Managing field response activities
• Directing implementation of unit operational plans
• Requesting resources as needed
■ Managing and incorporating community partners and stakeholders (private
entities, companies, and NGOs) into response operations.
The following agencies and organizations are typically included in the Operations
Section:
■ Fire Services - emergencies dealing with fire, earthquake with rescue, or
hazardous materials.
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City of Ashland Emergency Management Plan Basic Plan
5. Command and Control
■ Law Enforcement - incident(s) involving civil disorder/disturbance,
significant security/public safety concerns, transportation-related
accidents, and/or criminal investigations.
■ Public Health Officials - contamination issues, disease outbreaks, and/or
emergency incidents posing threats to human, animal, and environmental
health.
■ Public Works - incidents resulting in major utility disruptions, damage to
critical infrastructure, and building collapse.
■ Private entities, companies, and NGOs may also support the Operations
Section. Examples of support these organizations may provide include:
• Grass roots social media support for situational awareness, as
well as identifying and connecting resources to residents in
need
• Non-hazardous debris clearance collection and disposal
5.5.3.2 Planning Section Chief
The Planning Section is responsible for forecasting future needs and events of the
response effort while ensuring implementation of appropriate procedures and
processes. This section is typically supported by four primary units: Resources,
Situation, Documentation. and Demobilization. The Planning Chief is responsible
for:
■ Collecting, evaluating, and distributing information regarding the incident
and providing a status summary.
• For terrorist incidents, liaise with the OTFC.
■ Preparing and disseminating the IAP including developing alternatives for
tactical operations.
■ Conducting planning meetings.
■ Maintaining resource status.
5.5.3.3 Logistics Section Chief
The Logistics Section is typically supported by the units responsible for Supply,
Food, Communications, Medical, Facilities, and Ground Support. Depending on
the incident's type and size, these units can be divided into two branches: Service
and Support. The Logistics Chief is responsible for:
■ Providing and managing resources to meet the needs of incident
personnel.
■ Managing various coordinators of particular resources, such as
transportation-related equipment, EOC staff support services. supplies,
facilities, and personnel.
■ Estimating future support and resource requirements.
■ Assisting with development and preparation of the IAP.
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5. Command and Control
5.5.3.4 Finance/Administration
The Finance/Administration Section is specific to the incident type and severity of
resulting impacts. In some instances, agencies may not require assistance, or only
a specific function of the section may be needed that can be staffed by a technical
specialist in the Planning Section. Potential units assigned to this section include:
Compensation/Claims, Procurement, Cost, and Time. The Finance and
Administration Chief is responsible for:
■ Monitoring costs related to the incident.
■ Maintaining accounting, procurement, and personnel time records.
■ Conducting cost analyses.
5.5.4 Unified Command
Unified Command allows all agencies with jurisdictional authority or functional
responsibility for the incident to jointly provide management direction to an
incident through a common set of incident objectives and strategies and a single
IAP. Each participating agency maintains its individual authority, responsibility,
and accountability.
Table 5-1 presents a comparison of a single Incident Commander and Unified
Command.
Table 5-1 Comparison of Single Incident Commander and
Unified Commander
Single Incident Commander Unified Command
The Incident Commander is solely The individuals designated by their
responsible (within the confines of his jurisdictional and organizational
or her authority) for establishing authorities (or by departments within
incident objectives and strategies. a single jurisdiction) must jointly
The Incident Commander is directly determine objectives, strategies,
responsible for ensuring that all plans, resource allocations, and
priorities and work together to
functional areas activities are directed execute integrated incident operations
toward accomplishment of the and maximize the use of assigned
strategy.
resources.
Source: ICS-300: Intermediate ICS for Expanding Incident Student Manual.
5.5.5 Area Command
An Area Command is a management structure established to oversee the
organization of multiple incidents handled by separate ICS organizations, or very
large incidents that involves multiple ICS organizations. Area Command is
activated only if necessary, depending on the complexity of the incident and span-
of-control, and does not have operational responsibilities. If activated, the Area
Command:
■ Sets overall incident-related priorities:
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City of Ashland Emergency Management Plan Basic Plan
5. Command and Control
• De-conflicts incident management objectives with other ICS
organizations and established policies.
• Allocates critical resources according to incident-related
priorities.
• Identifies critical resource needs and reports them to the EOCs.
■ Conducts oversight:
• Ensures proper management and effective communications and
provides for personnel accountability and a safe operating
environment.
• Ensures that short-term emergency recovery is coordinated to
assist in the transition to full recovery operations.
5.5.6 Joint Information
Joint Information Center
The JIC is a central location to facilitate consistent and coordinated public
information during operations, established by the Incident Command. This JIC is
established when the singular PIO is overtaxed by their responsibilities, or
multiple agencies become involved in the incident. The JIC serves to ensure that
the City and supporting agencies are providing the public with coordinated
interagency messaging. The JIC helps to ensure that rumors and inaccurate
information are minimized to maintain public confidence in the incident
operations. The JIC location should be identified as soon as multi-agency
coordination begins, and the location should be supplied with necessary
equipment and resources.
Operations within the JIC are scalable. The JIC may exist as a meeting place for
the City PIOs to coordinate messaging, or may exist as a location for multiple
agencies to develop complex information campaigns. JICs may be established at
the State and Federal level as well, to ensure consistency of messaging at those
levels. Incident Command may elect to establish a number of types of JICs,
including:
■ Incident JIC: Physical location integrated with the Incident Commander
and easy for media to access.
■ Virtual JIC: Established when a physical location is impractical;
incorporates the use of technology and communication devices.
■ Satellite JIC: A small-scale, off-site location from Incident Command or
the EOC. Generally established to support a more robust JIC.
Joint Information System
A JIS is a structure that integrates incident information and public affairs into a
cohesive organization designed to provide consistent, coordinated, accurate,
accessible, timely, and complete information during crisis or incident operations.
The mission of the JIS is to provide a structure and system for developing and
delivering coordinated interagency messages; developing, recommending, and
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5. Command and Control
executing public information plans and strategies on behalf of the Incident
Commander; advising the Incident Commander concerning public affairs issues
that could affect a response effort; and controlling rumors and inaccurate
information that could undermine public confidence in the emergency response
effort.
5.5.7 Multi-Agency Coordination
In the event that the City is coordinating a response with other jurisdictions or
agencies with authority over the incident, it may choose to implement a Multi-
Agency Coordination Group (MAC Group). Typically, administrators/executives,
or their appointed representatives, who are authorized to commit agency resources
and funds are brought together to form MAC Groups. Other names for MAC
Groups include "multiagency committees" and "emergency management
committees." A MAC Group can provide coordinated decision making and
resource allocation among cooperating agencies and may establish the priorities
among incidents, harmonize agency policies, and provide strategic guidance and
direction to support incident management activities.
5.5.8 Quick Reference Emergency Organization Matrix
Position Primary • Official 2
POLICY GROUP Mayor and City Council
Command Staff Director City Administrator Assistant to the City
Administrator
JOINT STAFF Fire Chief, Police Chief, and Public Works
Director
Public Information City P10 Division Fire Chief
Officer
Legal Officer City Attorney Assistant City Attorney
Safety Officer Police Lieutenant Police Sergeant
Liaison Officer Fire & Life Safety As Assigned
Division Chief
OPERATIONS SECTION Deputy Fire Chief Deputy Police Chief
CHIEF (Operations)
Fire & Rescue Unit/EMS Battalion Chief Battalion Chief
Law Enforcement Unit Police Sergeant Police Sergeant
Public Works Unit Deputy Public Works Public Works
Director Superintendent
Utilities Unit Director of Electric Assistant General
Utilities Manager Admin-AMP
Care and Shelter Parks and Recreation As Assigned
Director
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City of Ashland Emergency Management Plan Basic Plan
5. Command and Control
Position Primary • Official 2
PLANNING SECTION Community Planning Manager
CHIEF Development Director
Damage Assessment Building Official Building Inspector
Documentation Unit City Clerk As Assigned
Demobilization Unit TBD TBD
Recovery Unit TBD TBD
Resource Status Unit Planning Manager TBD
Situation Status Unit Senior Planner TBD
Facilities Public Works Facilities Public Works Project
(Wes) Manager (Kaylea)
LOGISTICS SECTION Public Works Deputy Finance
CHIEF Superintendent Director
Supply Unit Deputy Finance Purchasing Agency
Director
Support/Personnel Unit HR Director HR Analyst
Transportation Unit Maintenance Safety TBD
Supervisor
Information Systems / Computer Services AFN Manager
Communications Unit Manager
FINANCE SECTION Administrative Administrative
CHIEF Service Director Services Manager
Cost Unit Accounting Analyst Customer Service
Supervisor
Time Unit Admin Service Manager Payroll Analyst
Claims Unit Risk Management Finance Administrative
Specialist Assistant
Procurement Unit Purchasing Agent Finance Clerk
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City of Ashland Emergency Management Plan Basic Plan
5. Command and Control
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5-16
6 Plan Development, Maintenance,
and Implementation
6.1 Plan Review and Maintenance
At a minimum, this Emergency Management Plan will be formally reviewed and
re-promulgated every five years to comply with State requirements. This review
will be coordinated by the City of Ashland Emergency Manager and will include
participation by members from each of the departments assigned as lead agencies
in this Emergency Management Plan and its supporting annexes. This review
will:
■ Verify contact information.
■ Review the status of resources noted in the plan.
■ Evaluate the procedures outlined in this plan to ensure their continued
viability.
In addition, lead agencies will review the annexes and appendices assigned to
their respective departments. A more frequent schedule for plan review and
revision may be necessary.
Recommended changes should be forwarded to:
City of Ashland Emergency Manager
Ashland Fire Station #I
455 Siskiyou Boulevard
Ashland, OR 97520
6.2 Training Program
To assist with training and preparing essential response staff and supporting
personnel to incorporate ICS/NIMS concepts in all facets of an emergency, each
department is responsible for ensuring that critical staff are identified and trained
at a level that enables effective execution of existing response plans, procedures,
and policies.
The City Emergency Manager specifically coordinates training for City personnel
and encourages them to participate in trainings hosted by other jurisdictions
throughout the region.
Current training and operational requirements set forth under NIMS have been
adopted and implemented by the City. The Emergency Manager maintains
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City of Ashland Emergency Management Plan Basic Plan
6. Plan Development, Maintenance, and Implementation
records and lists of training received by City personnel. Training requirements
apply to all first responders and disaster workers, including first-line supervisors,
middle management, and command and general staff. NIMS identifies these
positions as follows:
■ EMS personnel.
■ Firefighters.
■ Law enforcement personnel.
■ Public works/utility personnel.
■ Skilled support personnel.
■ Other emergency management response personnel.
■ Support/volunteer personnel at all levels.
Table 6-1 provides the minimum training requirements for the City's emergency
personnel.
Table 6-1 Minimum Training Requirements
.!Tr~ining Required
Emergency Personnel
All personnel with a direct role in emergency IS-100, IS-700
management or emergency response
First-line supervisors, mid-level management, and IS-100,-200,-700
Command and General Staff
Supervisory role in expanding incidents or a IS-100,-200,-700
management role in an Emergency Operations Center ICS-300
Management capacity in an Area Command situation or IS-100, -200, -300,-700,-701
Emergency Operations Center ICS-300, -400
Public Information Officers IS-702
Resource management IS-703
Development of mutual aid agreements and/or mutual IS-706
aid operational plans
Planning IS-800
Additional information about training requirements can be found on the Oregon
Emergency Management website at
htW:Ilwww.oregon.gov/OEMIDocuments/nims who takes what.p Independent study
courses can be found at hgq://training fema.goKAS/crslist.asp.
6.3 Exercise Program
The City will conduct exercises throughout the year to test and evaluate this
Emergency Management Plan. Whenever feasible, the City will coordinate with
neighboring jurisdictions and State and Federal government to participate in joint
exercises. These exercises will consist of a variety of tabletop exercises, drills,
functional exercises, and full-scale exercises.
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City of Ashland Emergency Management Plan Basic Plan
6. Plan Development, Maintenance, and Implementation
As appropriate, the City will use Homeland Security Exercise and Evaluation
Program procedures and tools to develop, conduct, and evaluate these exercises.
Information about this program can be found at http://hseep.dhs.gov.
The Emergency Manager will work with other City/County departments and
agencies to identify and implement corrective actions and mitigation measures,
based on exercises conducted through Emergency Management.
6.4 Event Critique and After Action Reporting
In order to document and track lessons-learned from exercises, the Emergency
Manager will conduct a review, or "hot wash," with exercise participants after
each exercise. The Emergency Manager will also coordinate an After Action
Report (AAR), which will describe the objectives of the exercise and document
the results of the evaluation.
Similarly, reviews and AARs will be facilitated after an actual disaster that will
document activities of the incident to improve the City's readiness.
6.5 Community Outreach and Preparedness
Education
Educational tools are used to teach the public about threats, disasters, and what to
do when an emergency occurs. The City maintains an active community
preparedness program and recognizes that citizen preparedness and education are
vital components of the City's overall readiness.
Information about the City's public education programs, hazard and mitigation
information, and other emergency management and emergency services can be
found on the City's website.
6.6 Funding and Sustainment
It is a priority of the City to fund and maintain an EMO that ensures the City's
ability to respond to and recover from disasters. The Emergency Manager will
work with City Council and community stakeholders to:
■ Identify funding sources for emergency management programs, personnel,
and equipment.
■ Ensure Council is informed of progress toward building emergency
response and recovery capabilities and is aware of gaps to be addressed.
■ Leverage partnerships with local, regional, and State partners to maximize
use of scarce resources.
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6-4
City Authorities
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City of Ashland Emergency Management Plan Basic Plan
A. City Authorities
Chapter 2.62
EMERGENCY POWERS
Sections:
2.62.010 Definitions
2.62.020 City Administrator Responsibility
2.62.030 Declaration and Ratification of Emergency
2.62.040 Authority of City Administrator
2.62.050 Regulations of Persons and Property
2.62.060 Additional Powers During Emergency
2.62.070 Termination of State of Emergency
2.62.010 Definitions
The following words and phrases whenever used in this chapter shall be construed
as defined in this section unless from the context a different meaning is intended.
A. "Emergency" includes any human caused or natural event or circumstances
causing or threatening loss of life, injury to person or property, human suffering
or financial loss, and includes, but is not limited to, fire, explosion, flood, severe
weather, drought, earthquake, spills-or releases of oil or hazardous material,
contamination, disease, blight, infestation, civil disturbance or riot.
B. "Emergency Management Plan" means that plan entitled "City of Ashland
Emergency Management Plan" adopted by resolution of the council or as may be
amended from time to time in subsequent resolutions.
2.62.020 City Administrator Responsibility
The City administrator is responsible for implementation of the Emergency
Management Plan. When the administrator determines that a state of emergency
exists, the administrator shall make a declaration to that effect and request the
mayor to call a special meeting of the council in order to ratify the declaration of
emergency. The special meeting of the council shall occur as soon as possible
after the declaration of emergency. Notwithstanding section 2.04.110, notice of
the special meeting need not be written and need not be delivered at least 36 hours
in advance.
2.62.030 Declaration and Ratification of Emergency
A. The declaration by the City administrator of a state of emergency shall:
1. State the nature of the emergency.
2. Designate the geographical boundaries of the area subject to the
emergency controls.
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City of Ashland Emergency Management Plan Basic Plan
A. City Authorities
3. State the duration of time during which the area so designated shall
remain an emergency area.
4. State any special regulations imposed as a result of the state of
emergency.
B. The ratification by the council may also authorize additional specific
emergency powers for the duration of the emergency period set forth in the
declaration.
2.62.040 Authority of City Administrator
During a declared emergency, the City administrator shall have authority to:
A. Exercise, within the area designated in the proclamation, all police powers
vested in the City by the Oregon Constitution, city charter and city ordinances in
order to reduce the vulnerability of the City to loss of life, injury to persons or
property and human suffering and financial loss resulting from emergencies, and
to provide for recovery and relief assistance for the victims of emergencies.
B. Direct any department of the City to utilize and employ city personnel,
equipment and facilities for the performance of any activities designed to prevent
or alleviate actual or threatened damage due to the emergency, and may direct the
departments to provide supplemental services and equipment to federal, state or
local agencies to restore any services in order to provide for the health and safety
of the citizens of the City.
C. Designate persons to coordinate the work of public and private relief agencies
operating in such area and exclude from such area any person or agency refusing
to cooperate with and work under such coordinator or to cooperate with other
agencies engaged in emergency work.
D. Require the aid and assistance of any state or other public or quasi-public
agencies in the performance of duties and work attendant upon the emergency
conditions in such area.
E. Clear or remove from publicly or privately owned land or water, debris and
wreckage which may threaten public health or safety, or public or private
property.
1. In exercising this authority the City administrator may:
a. Accept funds from the federal government or the State of
Oregon for the purpose of removing debris or wreckage from
publicly or privately owned land or water.
b. Present to the State of Oregon unconditional authorization for
removal of such debris or wreckage from public and private
property and, in the case of removal of debris or wreckage
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City of Ashland Emergency Management Plan Basic Plan
A. City Authorities
from private property, agree to indemnify the state government
against any claim arising from such removal.
2. Whenever the City administrator provides for clearance of debris or
wreckage pursuant to this section, employees of the City or individuals
appointed by the City administrator are authorized to enter upon
private lands or waters and perform any tasks necessary to the removal
or clearance operation.
3. Except in cases of willful misconduct, gross negligence or bad faith,
any employee or individual appointed by the City administrator
authorized to perform duties necessary to the removal of debris or
wreckage shall not be liable for death of or injury to persons or
damage to property.
2.62.050 Regulations of Persons and Property
When a state of emergency is declared to exist and has been ratified, the City
administrator:
A. May order the following measures in the interest of the public health, safety,
or welfare, in the area designated as an emergency area:
1. Redirect city funds for emergency use and suspend standard city
procurement procedures.
2. Establish a curfew that fixes the hours during which all other than
officially authorized personnel may be upon the public streets or other
public places.
3. Prohibit or limit the number of persons who may gather or congregate
upon any public street, public place, or any outdoor place.
4. Barricade streets and prohibit vehicular or pedestrian traffic, or
regulate the traffic on any public street leading to the emergency area
for such distance as necessary under the circumstances.
5. Evacuate persons.
6. Prohibit the sale of alcoholic beverages.
7. Prohibit or restrict the sale of gasoline, or other flammable liquids.
8. Prohibit the sale, carrying, or possession of any weapons or explosives
of any kind on public streets, public places, or any outdoor place.
9. Curtail or suspend commercial activity.
10. Turn off water, gas, or electricity.
11. Control, restrict and regulate by rationing, freezing, use of quotas,
prohibitions on shipments, price fixing, allocation or other means, the
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A. City Authorities
use, sale or distribution of food, fuel, clothing and other commodities,
materials, goods and services.
12. Close all roads and highways in such area to traffic or limit the travel
on such roads to such extent as the City administrator deems necessary
and expedient.
13. Order such other measures necessary for the protection of life or
property, or for the recovery from the emergency.
B. All orders issued under authority conferred by this section shall have the full
force and effect of law during the declaration of a state of emergency. All existing
laws, ordinances, rules and orders inconsistent with this chapter shall be
inoperative during this period of time and to the extent such inconsistencies exist.
2.62.060 Additional Powers During Emergency
During the existence of an emergency, the City administrator may:
A. Enter into purchase, lease or other arrangements with any agency of the
United States or the State of Oregon for temporary housing units to be occupied
by disaster victims.
B. Accept or borrow funds from or passed through by the State of Oregon for
temporary housing for disaster victims.
C. Upon determination that the City will suffer a substantial loss of tax and other
revenues from a major disaster and that there is a demonstrated need for financial
assistance to perform its governmental functions, apply to the federal and state
government, or request the state to apply on the City's behalf, for grants and loans
and to receive, on behalf of the City, such grants and loans.
D. Determine the amount needed to restore or resume the City's governmental
functions, and to certify the same to the State of Oregon or the federal
government.
2.62.070 Termination of State of Emergency
The City administrator shall terminate the state of emergency by proclamation
when the emergency no longer exists, or when the threat of an emergency has
passed. The state of emergency proclaimed by the City administrator may be
terminated at any time by the council.
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A. City Authorities
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A-6
B Sample Disaster Declaration
Forms
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City of Ashland Emergency Management Plan Basic Plan
Appendix B. Declaration of State of Emergency
DECLARATION OF STATE OF EMERGENCY
To: ,
Jackson County Office of Emergency Management
From:
City of Ashland, Oregon
At (time) on (date),
a/an (description
of emergency incident or event type) occurred in the City of Ashland threatening
life and property.
The current situation and conditions are:
The geographic boundaries of the emergency are:
WE DO HEREBY DECLARE THAT A STATE OF EMERGENCY NOW
EXISTS IN THE CITY OF ASHLAND AND THAT THE CITY HAS
EXPENDED OR WILL SHORTLY EXPEND ITS NECESSARY AND
AVAILABLE RESOURCES. WE RESPECTFULLY REQUEST THAT THE
COUNTY PROVIDE ASSISTANCE, CONSIDER THE CITY AN
"EMERGENCY AREA" AS PROVIDED FOR IN ORS 401, AND, AS
APPROPRIATE, REQUEST SUPPORT FROM STATE AGENCIES AND/OR
THE FEDERAL GOVERNMENT.
Signed:
Title: Date & Time:
This request may be passed to the County via radio, telephone, or fax. The
original signed document must be sent to the County Emergency Management
Office, with a copy placed in the final incident package.
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References
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City of Ashland Emergency Management Plan Basic Plan
Appendix C. References
Federal
■ Robert T. Stafford Disaster Relief and Emergency Assistance Act (Public
Law 93-288) as amended, April 2013. Accessed on 30 July 2018 at:
http://www.fema. gov/robert-t-stafford-disaster-relief-and-emergency-
assistance-act-public-law-93-288-amended
■ Homeland Security Act of 2002 (Public Law 107-296). Accessed on 30
July 2018 at: http://www.dhs. og v/key-dhs-laws ,
■ Post-Katrina Emergency Management Reform Act of 2006 (Public Law
109-295). Accessed on 30 July 2018 at: http://www.dhs.gov/key-dhs-laws
■ Homeland Security Policy Directive/HSPD-5: Management of Domestic
Incidents. Accessed on 30 July 2018 at:
http://www.fas.ore/irp/offdocs/nspd/bspd-5.html
■ Presidential Policy Directive/PPD-8: National Preparedness. Accessed on
30 July 2018 at: http://www.dhs.goy/presidential-policy-directive-8-
national-preparedness
FEMA Policy
■ The FEMA Publication 1: The Federal Emergency Management Agency,
November 2010. Accessed on 30 July 2018 at:
http://www.fema.gov/media-library/assets/documents/25272
■ A Whole Community Approach to Emergency Management: Principles,
Themes, and Pathways for Action, FDOC 104-008-1, December 2011.
Accessed on 30 July 2018 at: https://www.fema.gov/media-library-
data/20130726-1813-25045-0649/whole_community_dec2011_2_.pdf
■ FEMA Incident Management and Support Keystone, January 2011.
Accessed on 30 July 2018 at: http://www.fema.gov/media-
library/assets/documents/26688
■ National Incident Management System, December 2008. Accessed on 30
July 2018 at: http://www.fema.gov/national-incident-management-system
■ National Preparedness Goal, First Edition, September 2011. Accessed on
30 July 2018 at: http://www.fema.gov/national-preparedness-goal
■ FEMA Administrator's Intent (FY 2015-2019). Pub. April 2013. Accessed
on 30 July 2018 at: https://www.hsdl.org/?abstract&did=734577
■ FEMA Strategic Plan, FY 2014-2018. Accessed on 30 July 2018 at:
https://www.fema.gov/de/media-library/assets/documents/96981'
Crisis Response and Disaster Resilience 2030: Forging Strategic Action in
an Age of Uncertainty, January 2012. Accessed on 30 July 2018 at:
https://www.fema.gov/media-library/assets/documents/24174
■ National Response Framework, Third Edition, June 2016. Accessed on 30
July 2018 at: https://www.fema.gov/media-
library/assets/documents/117791
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Appendix C. References
■ National Disaster Recovery Framework, Strengthening Disaster Recovery
for the Nation, September 2011. Accessed on 30 July 2018 at:
http://www.fema.gov/media-
I i brary/assets/doc uments/24647?from S earch=from search& id=5 124
■ National Disaster Housing Strategy, January 2009. Accessed on 30 July
2018 at: http://www.fema.gov/media-library/assets/documents/24600
■ Developing and Maintaining Emergency Operations Plans,
Comprehensive Preparedness Guide (CPG) 101, Version 2.0, November
2010. Accessed on 30 July 2018 at: http://www.fema.gov/media-
library/assets/documents/25975
■ Incident Action Planning Guide, January 2012. Accessed on 31 March
2014 at http://www.fema.gov/media-library-data/20130726-1822-25045-
1815/incident action planning guide 1 26 2012.pdf
State
■ State of Oregon Emergency Operations Plan, as revised November 2013.
Accessed on 30 July 2018 at:
https•//www.oregon.gov/oem/emresources/Plans Assessments/Pa esg_/CE
MP.aspx
■ Oregon State Fire Marshal (OSFM), Fire Service Mobilization Plan. 2017.
Accessed on 30 July 2018 at:
https://www.oregon. o~p/SFM/docs/2017 MobPlanFinal.pdf
■ Emergency Declaration Guidelines for Local Elected and Appointed
Officials. September 2011. Accessed on 30 July 2018 at:
https://www.oregon.gov/oem/Documents/decl uide.pdf
■ Oregon Revised Statutes 2017 Edition. Chapters 401 through 404.
Accessed on 30 July 2018 at:
https://www.oregonlegislature.gov/bills laws/Pages/ORS.aspx
■ Oregon Administrative Rules - Chapter 104: Oregon Military Department.
Accessed on 30 July 2018 at:
http•//arcweb sos state.or.us/pages/rules/oars 100/oar 104/104 tofc.html
County
■ Jackson County Code, Chapter 244, Organization for Emergency
Management
■ Jackson County Emergency Operations Plan
Other
■ City of Ashland Municipal Code, Chapter 2.62, Emergency Powers
■ All other Public Laws or Executive Orders enacted or to be enacted which
pertain to emergencies/disasters.
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Appendix C. References
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I
Acronyms and Glossary
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Appendix D. Acronyms and Glossary
Acronyms
AAR After Action Report
ADA Americans with Disabilities Act
CBRNE Chemical, Biological, Radiological, Nuclear, Explosive
CERT Community Emergency Response Team
cfs Cubic Feet Per Second
City City of Ashland (governing body)
COOP Continuity of Operations
County Jackson County (governing body)
DSHS Department of Social and Health Services
DRC Disaster Recovery Center
EAS Emergency Alert System
ECC Emergency Coordination Center
EMO Emergency Management Organization
EMS Emergency Medical Services
EOC Emergency Operations Center
EOP Emergency Operations Plan
ESF Emergency Support Function
FBI Federal Bureau of Investigation
FEMA Federal Emergency Management Agency
FSA Farm Service Agency
HazMat Hazardous Materials
IA Incident Annex
LAY Incident Action Plan
ICS Incident Command System
IDA Initial Damage Assessment
JIC Joint Information Center
JIS Joint Information System
MAC Group Multi-Agency Coordination Group
MOU Memorandum of Understanding
mph Miles per Hour
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Appendix D. Acronyms and Glossary
NGO Nongovernmental Organization
NIMS National Incident Management System
NRF National Response Framework
NRC National Response Center
NTSB National Transportation Safety Board
ODA Oregon Department of Agriculture
OEM Oregon Emergency Management
OHA Oregon Health Authority
ORS Oregon Revised Statutes
ORWARN Oregon Water/Wastewater Agency Response Network
OSFM Oregon State Fire Marshal
OSHA Occupational Safety and Health Administration
OTFC Oregon Terrorism Fusion Center
PDA Preliminary Damage Assessment
PIO Public Information Officer
SAR Search and Rescue
SBA Small Business Administration
SOP Standard Operating Procedure
State State of Oregon (governing body)
TITAN Oregon Terrorism Information Threat Assessment Network
USDA United States Department of Agriculture
VA Veterans Administration
Glossary of Key Terms
Actual Event: A disaster (natural or man-made) that has warranted action to
protect life, property, environment, public health or safety. Natural disasters
include earthquakes, hurricanes, tornadoes, floods, etc.; man-made (either
intentional or accidental) incidents can include chemical spills, terrorist attacks,
explosives, biological attacks, etc.
After Action Report (AAR): The AAR documents the performance of exercise-
related tasks and makes recommendations for improvements. The Improvement
Plan outlines the actions that the exercising jurisdiction(s) plans to take to address
recommendations contained in the AAR.
I
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Appendix D. Acronyms and Glossary
Agency Representative: A person assigned by a primary, assisting, or
cooperating State, local, or tribal government agency or private entity that has
been delegated authority to make decisions affecting that agency's or
organization's participation in incident management activities following
appropriate consultation with the leadership of that agency.
Agency: A division of government with a specific function offering a particular
kind of assistance. In Incident Command System (ICS), agencies are defined
either as jurisdictional (having statutory responsibility for incident management)
or as assisting or cooperating (providing resources or other assistance).
All Hazards: Any incident caused by terrorism, natural disasters, or any CBRNE
accident. Such incidents require a multi jurisdictional and multi-functional
response and recovery effort.
Area Command (Unified Area Command): An organization established (1) to
oversee the management of multiple incidents that are each being handled by an
ICS organization or (2) to oversee the management of large or multiple incidents
to which several Incident Management Teams have been assigned. Area
Command has the responsibility to set overall strategy and priorities, allocate
critical resources according to priorities, ensure that incidents are properly
managed, and ensure that objectives are met and strategies followed. Area
Command becomes Unified Area Command when incidents are multi-
jurisdictional. Area Command may be established at an EOC facility or at some
location other than an incident command post.
Assessment: The evaluation and interpretation of measurements and other
information to provide a basis for decision making.
Assignments: Tasks given to resources to perform within a given operational
period that are based on operational objectives defined in the IAP.
Assistant: Title for subordinates of principal Command Staff positions. The title
indicates a level of technical capability, qualifications, and responsibility
subordinate to the primary positions. Assistants may also be assigned to unit
leaders.
Assisting Agency: An agency or organization providing personnel, services, or
other resources to the agency with direct responsibility for incident management.
See also Supporting Agency.
Audit: formal examination of an organization's or individual's accounts; a
methodical examination and review.
Available Resources: Resources assigned to an incident, checked in, and
available for a mission assignment, normally located in a Staging Area.
Available Training Facilities: Available facilities refer to locations that are
readily and immediately available to be utilized for NIMS training.
Branch: The organizational level having functional or geographical
responsibility for major aspects of incident operations. A branch is
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Appendix D. Acronyms and Glossary
organizationally situated between the section and the division or group in the
Operations Section, and between the section and units in the Logistics Section.
Branches are identified by the use of Roman numerals or by functional area.
Chain-of-Command: A series of command, control, executive, or management
positions in hierarchical order of authority.
Check-In: The process through which resources first report to an incident.
Check-in locations include the incident command post, Resources Unit, incident
base, camps, staging areas, or directly on the site.
Chief: The ICS title for individuals responsible for managing the following
functional sections: Operations, Planning, Logistics, Finance/Administration, and
Intelligence (if established as a separate section).
Command Staff. In an incident management organization, the Command Staff
consists of the Incident Commander; the special staff positions of Public
Information Officer, Safety Officer, Liaison Officer; and other positions as
required, who report directly to the Incident Commander. They may have an
assistant or assistants, as needed.
Command: The act of directing, ordering, or controlling by virtue of explicit
statutory, regulatory, or delegated authority.
Committed Activities: Actions that an individual or an agency/department have
agreed to see through until completion.
Common Communications Plan: An interoperable communications plan
designed to be utilized for multi-agency and multi jurisdictional incident
management operations. All entities involved in managing the incident will utilize
common terminology, prescribed by the NIMS, for communications.
Common Operating Picture: A broad view of the overall situation as reflected
by situation reports, aerial photography, and other information or intelligence.
Communications Unit: An organizational unit in the Logistics Section
responsible for providing communication services at an incident or an EOC. A
Communications Unit may also be a facility (e.g., a trailer or mobile van) used to
support an Incident Communications Center.
Constraints/Impediments Limitations or restrictions in conducting NIMS
activities. The following list defines the constraints/impediments:
Education: The knowledge or skill obtained or developed by a learning
process.
Equipment: Instrumentality needed for an undertaking or to perform a
service including its associated supplies. Equipment can range from small
personal items such as search and rescue gear (flashlights, dusk masks,
etc.) to large-scale multi jurisdictional systems (radio repeater systems,
computer networks, etc.).
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Appendix D. Acronyms and Glossary
Exercise: Opportunity provided to demonstrate, evaluate, and improve the
combined capability and interoperability of elements to perform assigned
missions and tasks to standards necessary to achieve successful outcomes.
(http://www.mwcog.org/uploads/committee-
documents/tVtYV 1k2005103 l l74251.doc)
Federal Standards: Common rules, conditions, guidelines or
characteristics, established by the Federal Government.
Funding: Sources of revenue that are allocated or can be allocated (pre-
designated emergency funds) to support preparedness initiatives.
Organization: Individual teams, an overall organizational structure, and
leadership at each level in the structure that comply with relevant laws,
regulations, and guidance necessary to perform assigned missions and
tasks. (http://www.mwcog.org/uploads/committee-
documents/tVtYV lk2005l O3 l l74251.doc)
Personnel: Paid and volunteer staff who meet required qualification and
certification standards necessary to perform assigned missions and tasks.
(http://www.mwcog.org/uploads/committee-
documents/tVtYV lk2005l O3l l74251.doc)
Plans: Documents such as procedures, mutual aid agreements, strategies,
and other publications that may describe some of the following:
governance, management, standard operating procedures, technology, and
activities in support of defined missions and tasks.
(http://www.mwcog.org/uploads/committee-
documents/tVtYV Ik2005 1 03 1 1 7425 1.doc)
Policy: A course of action, guidance, or principle intended to influence
and guide decisions, actions, and other matters.
Training: Specialized instruction and practice to improve performance
and lead to task proficiency.
Cooperating Agency: An agency supplying assistance other than direct
operational or support functions or resources to the incident management effort.
Coordinate: To advance systematically an analysis and exchange of information
among principals who have or may have a need to know certain information to
carry out specific incident management responsibilities.
Corrective Action Plan: A process implemented after incidents or exercises to
assess, investigate, and identify and implement appropriate solutions to prevent
repeating problems encountered.
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Appendix D. Acronyms and Glossary
Corrective Action: Improved procedures that are based on lessons-learned from
actual incidents or from training and exercises.
Critical Infrastructure: Systems and assets, whether physical or virtual, so vital
to the United States that the incapacity or destruction of such systems and assets
would have a debilitating impact on security, national economic security, national
public health or safety, or any combination of those matters.
Deputy: A fully qualified individual who, in the absence of a superior, can be
delegated the authority to manage a functional operation or perform a specific
task. In some cases, a deputy can act as relief for a superior and, therefore, must
be fully qualified in the position. Deputies can be assigned to the Incident
Commander, General Staff, and Branch Directors.
Director: Title assigned to someone leading a Branch in ICS.
Disciplines: A group of personnel with similar job roles and responsibilities. (e.g.
law enforcement, firefighting, HazMat, EMS).
Dispatch: The ordered movement of a resource or resources to an assigned
operational mission or an administrative move from one location to another.
Division: The partition of an incident into geographical areas of operation.
Divisions are established when the number of resources exceeds the manageable
span of control of the Operations Chief. A division is located within the ICS
organization between the branch and resources in the Operations Section.
Emergency Incident: An urgent need for assistance or relief as a result of an
action that will likely lead to grave consequences.
Emergency Management Assistance Compact: The Emergency Management
Assistance Compact is an interstate mutual aid agreement that allows states to
assist one another in responding to all kinds of natural and man-made disasters. It
is administered by the National Emergency Management Association.
Emergency Operations Centers (EOC): The physical location at which the
coordination of information and resources to support domestic incident
management activities normally takes place. An EOC may be a temporary
facility or may be located in a more central or permanently established facility,
perhaps at a higher level of organization within a jurisdiction. EOCs may be
organized by major functional disciplines (e.g., fire, law enforcement, and
medical services), by jurisdiction (e.g., Federal, State, regional, County, City,
tribal), or some combination thereof.
Emergency Operations Plan: The "steady-state" plan maintained by various
jurisdictional levels for responding to a wide variety of potential hazards.
Emergency Public Information: Information that is disseminated primarily in
anticipation of an emergency or during an emergency. In addition to providing
situational information to the public, it also frequently provides directive actions
required to be taken by the general public.
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Appendix D. Acronyms and Glossary
Emergency Response Provider: Includes state, local, and tribal emergency
public safety, law enforcement, emergency response, emergency medical
(including hospital emergency facilities), and related personnel, agencies, and
authorities. See Section 2 (6), Homeland Security Act of 2002, Pub. L. 107-296,
116 Stat. 2135 (2002). Also known as Emergency Responder.
Emergency: Absent a Presidential declared emergency, any incident(s), human-
caused or natural, that requires responsive action to protect life or property.
Under the Robert T. Stafford Disaster Relief and Emergency Assistance Act, an
emergency is any occasion or instance for which, in the determination of the
President, Federal assistance is needed to supplement State and local efforts and
capabilities to save lives and to protect property and public health and safety, or to
lessen or avert the threat of a catastrophe in any part of the United States.
Entry-level First Responder: Entry-level first responders are defined as any
responders who are not a supervisor or manager.
Equipment Acquisition: The process of obtaining resources to support
operational needs.
Equipment: The set of articles or physical resources necessary to perform or
complete a task.
Evacuation: Organized, phased, and supervised withdrawal, dispersal, or
removal of civilians from dangerous or potentially dangerous areas, and their
reception and care in safe areas.
Evaluation: The process of observing and recording exercise activities,
comparing the performance of the participants against the objectives, and
identifying strengths and weaknesses.
Event: A planned, non-emergency activity. ICS can be used as the management
system for a wide range of events, e.g., parades, concerts, or sporting events.
Exercise: Exercises are a planned and coordinated activity allowing homeland
security and emergency management personnel (from first responders to senior
officials) to demonstrate training, exercise plans, and practice prevention,
protection, response, and recovery capabilities in a realistic but risk-free
environment. Exercises are a valuable tool for assessing and improving
performance, while demonstrating community resolve to prepare for major
incidents.
Federal Preparedness Funding: Funding designated for developing and/or
enhancing State, Territorial, local, and tribal preparedness capabilities. This
includes all funding streams that directly or indirectly support Homeland Security
initiatives, e.g. Center for Disease Control and Health Resources and Services
Administration preparedness funds.
Federal: Of or pertaining to the Federal Government of the United States of
America.
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Appendix D. Acronyms and Glossary
Flexibility: A principle of the NIMS that provides a consistent, flexible, and
adjustable national framework within which government and private entities at all
levels can work together to manage domestic incidents, regardless of their cause,
size, location, or complexity. This flexibility applies across all phases of incident
management: prevention, preparedness, response, recovery, and mitigation.
(Department of Homeland Security, National Incident Management System
(March 2004), 2.)
Framework: A conceptual structure that supports or contains set of systems
and/or practices.
Function: Function refers to the five major activities in ICS: Command,
Operations, Planning, Logistics, and Finance/Administration. The term
"function" is also used when describing the activity involved, e.g., the planning
function. A sixth function, Intelligence, may be established, if required, to meet
incident management needs.
Funding: Financial resources available to assist in achievement of tasks
associated with NIMS implementation.
General Staff: A group of incident management personnel organized according
to function and reporting to the Incident Commander. The General Staff normally
consists of the Operations Section Chief, Planning Section Chief, Logistics
Section Chief, and Finance/Administration Section Chief.
Grantee: A person/group that has had monies formally bestowed or transferred.
Group: Established to divide the incident management structure into functional
areas of operation. Groups are composed of resources assembled to perform a
special function not necessarily within a single geographic division. Groups,
when activated, are located between branches and resources in the Operations
Section (See Division).
Hazard: Something that is potentially dangerous or harmful, often the root cause
of an unwanted outcome.
Homeland Security Exercise and Evaluation Program: A capabilities- and
performance-based exercise program that provides a standardized policy,
methodology, and language for designing, developing, conducting, and evaluating
all exercises. Homeland Security Exercise and Evaluation Program also
facilitates the creation of self-sustaining, capabilities-based exercise programs by
providing tools and resources such as guidance, training, technology, and direct
support. For additional information please visit the Homeland Security Exercise
and Evaluation Program toolkit at http://www.hseep.dhs.gov.
Improvement Plan: The AAR documents the performance of exercise-related
tasks and makes recommendations for improvements. The Improvement Plan
outlines the actions that the exercising jurisdiction(s) plans to take to address
recommendations contained in the AAR.
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Appendix D. Acronyms and Glossary
Incident Action Plan: An oral or written plan containing general objectives
reflecting the overall strategy for managing an incident. For additional
information, please see the NIMS document, page 96.
Incident Command Post: The field location at which the primary tactical-level,
on-scene incident command functions are performed. The ICP may be collocated
with the incident base or other incident facilities and is normally identified by a
green rotating or flashing light.
Incident Command System (ICS): A standardized on-scene emergency
management system which provides for the adoption of an integrated
organizational structure. ICS is the combination of facilities, equipment,
personnel, procedures, and communications operating within a common
organizational structure, designed to aid in the management of resources during
incidents. It is used for all kinds of emergencies and is applicable to both small
and large, complex incidents. For additional information please refer to the NIMS
document, page 14 at
http://www.fema.gov/pdf/emergency/nims/nims_doc_full.pdf .
Incident Commander: The individual responsible for all incident activities,
including the development of strategies and tactics and the ordering and the
release of resources. The Incident Commander has overall authority and
responsibility for conducting incident operations and is responsible for the
management of all incident operations at the incident site.
Incident Management Team: The Incident Commander and appropriate
Command and General Staff personnel assigned to an incident.
Incident Objectives: Statements of guidance and direction necessary for
selecting 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 strategic and tactical
alternatives.
Incident: An occurrence or event, naturally or human-caused, that requires an
emergency response to protect life or property. Incidents can, for example,
include major disasters, emergencies, terrorist attacks, terrorist threats, wildland
and urban fires, floods, hazardous materials spills, nuclear accidents, aircraft
accidents, earthquakes, hurricanes, tornadoes, tropical storms, war-related
disasters, public health and medical emergencies, and other occurrences requiring
an emergency response.
Incident-Specific Hazards: Anticipated events that may or may not occur that
require coordinated response to protect life or property, e.g., pandemic flu,
earthquake, flood.
Initial Action: The actions taken by those responders first to arrive at an incident
site.
Initial Response: Resources initially committed to an incident.
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Appendix D. Acronyms and Glossary
Institutionalize ICS: Government officials, incident managers and emergency
response organizations at all jurisdictional levels adopt the ICS and launch
activities [in FY 2005] that will result in the use of the ICS for all incident
response operations. Actions to institutionalize the use of ICS take place at two
levels - policy and organizational/operational.
Intelligence Officer: The intelligence officer is responsible for managing
internal information, intelligence, and operational security requirements
supporting incident management activities. These may include information
security and operational security activities, as well as the complex task of
ensuring that sensitive information of all types (e.g., classified information, law
enforcement sensitive information, proprietary information, or export-controlled
information) is handled in a way that not only safeguards the information but also
ensures that it reaches those who need it to perform their missions effectively and
safely.
Interagency: An organization or committee comprised of multiple agencies.
Interoperability & Compatibility: A principle of NIMS that holds that systems
must be able to work together and should not interfere with one another if the
multiple jurisdictions, organizations, and functions that come together under
NIMS are to be effective in domestic incident management. Interoperability and
compatibility are achieved through the use of such tools as common
communications and data standards, digital data formats, equipment standards,
and design standards. (Department of Homeland Security, National Incident
Management System (March 2004), 55.)
Interstate: A region comprised of multiple states.
Intrastate: A region within a single state.
Inventory: An itemized list of current assets such as a catalog of the property or
estate, or a list of goods on hand.
Joint Information Center: A facility established to coordinate all incident-
related public information activities. It is the central point of contact for all news
media at the scene of the incident. Public information officials from all
participating agencies should collocate at the Joint Information Center.
Joint Information System: Integrates incident information and public affairs
into a cohesive organization designed to provide consistent, coordinated, timely
information during crisis or incident operations. The mission of the JIS is to
provide a structure and system for developing and delivering coordinated
interagency messages; developing, recommending, and executing public
information plans and strategies on behalf of the Incident Commander; advising
the Incident Commander concerning public affairs issues that could affect a
response effort; and controlling rumors and inaccurate information that could
undermine public confidence in the emergency response effort.
Jurisdiction: A range or sphere of authority. Public agencies have jurisdiction at
an incident related to their legal responsibilities and authority. Jurisdictional
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Appendix D. Acronyms and Glossary
authority at an incident can be political or geographical (e.g., City, County, tribal,
State, or Federal boundary lines) or functional (e.g., law enforcement, public
health).
Lessons Learned: Knowledge gained through operational experience (actual
events or exercises) that improve performance of others in the same discipline.
For additional information please visit https://www.Ilis.dhs.gov/
Leverage: Investing with borrowed money as a way to amplify potential gains.
Liaison Officer: A member of the Command Staff responsible for coordinating
with representatives from cooperating and assisting agencies.
Liaison: A form of communication for establishing and maintaining mutual
understanding and cooperation.
Local Government: A County, municipality, City, town, township, local public
authority, school district, special district, intrastate district, council of
governments (regardless of whether the council of governments is incorporated as
a nonprofit corporation under State law), regional or interstate government entity,
or agency or instrumentality of a local government; an Indian tribe or authorized
tribal organization, or in Alaska a Native village or Alaska Regional Native
Corporation; a rural community, unincorporated town or village, or other public
entity. See Section 2 (10), Homeland Security Act of 2002, Pub. L. 107-296, 116
Stat. 2135 (2002).
Logistics Section: The section responsible for providing facilities, services, and
material support for the incident.
Logistics: Providing resources and other services to support incident
management.
Major Disaster: As defined under the Robert T. Stafford Disaster Relief and
Emergency Assistance Act (42 United States Code 5122), a major disaster is any
natural catastrophe (including any hurricane, tomado, storm, high water, wind-
driven water, tidal wave, tsunami, earthquake, volcanic eruption, landslide,
mudslide, snowstorm, or drought), or, regardless of cause, any fire, flood, or
explosion, 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 this Act to supplement the efforts and available
resources of States, tribes, local governments, and disaster relief organizations in
alleviating the damage, loss, hardship, or suffering caused thereby.
Management by Objective: A management approach that involves a four-step
process for achieving the incident goal. The Management by Objectives approach
includes: establishing overarching objectives; developing and issuing
assignments, plans, procedures, and protocols; establishing specific, measurable
objectives for various incident management functional activities and directing
efforts to fulfill them, in support of defined strategic objectives; and documenting
results to measure performance and facilitate corrective action.
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Appendix D. Acronyms and Glossary
Measure: A determination of a jurisdiction's specific level of NIMS compliance,
evaluated according to that jurisdiction's responses to the NIMS metrics that have
been established by the NIMS Integration Center (NIC).
Metric: Metrics are measurements in the form of questions that were derived
from NIMS implementations activities. These metrics were separated into two
categories; tier 1 and tier 2.
Mitigation: The activities designed to reduce or eliminate risks to persons or
property or to lessen the actual or potential effects or consequences of an incident.
Mitigation measures may be implemented prior to, during, or after an incident.
Mitigation measures are often informed by lessons-learned from prior incidents.
Mitigation involves ongoing actions to reduce exposure to, probability of, or
potential loss from hazards. Measures may include zoning and building codes,
floodplain buyouts, and analysis of hazard-related data to determine where it is
safe to build or locate temporary facilities. Mitigation can include efforts to
educate governments, businesses, and the public on measures they can take to
reduce loss and injury.
Mobilization: The process and procedures used by all organizations-state,
local, and tribal-for activating, assembling, and transporting all resources that
have been requested to respond to or support an incident.
Multiagency Coordination Entity: A multiagency coordination entity functions
within a broader multiagency coordination system. It may establish the priorities
among incidents and associated resource allocations, de-conflict agency policies,
and provide strategic guidance and direction to support incident management
activities.
Multiagency Coordination Systems: A Multi-Agency Coordination System is a
combination of facilities, equipment, personnel, procedures, and communications
integrated into a common system with responsibility for coordinating and
supporting domestic incident management activities (NIMS, 33).
Multi-jurisdictional Incident: An incident requiring action from multiple
agencies that each have jurisdiction to manage certain aspects of an incident. In
ICS, these incidents will be managed under Unified Command.
Mutual-Aid Agreement: Written agreement between agencies, organizations,
and/or jurisdictions that they will assist one another on request, by furnishing
personnel, equipment, and/or expertise in a specified manner. For additional
information on mutual aid, please visit
http://www.fema.gov/emergency/nims/rm/ma.shtm.
National Disaster Medical System: A cooperative, asset-sharing partnership
between the Department of Health and Human Services, the Department of
Veterans Affairs, the Department of Homeland Security, and the Department of
Defense. National Disaster Medical System provides resources for meeting the
continuity of care and behavioral health services requirements of the ESF 8 in the
National Response Framework.
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Appendix D. Acronyms and Glossary
National Incident Management System (NIMS): A system mandated by
HSPD-5 that provides a consistent nationwide approach for state, local, and tribal
governments; the private-sector, and NGOs to work effectively and efficiently
together to prepare for, respond to, and recover from domestic incidents,
regardless of cause, size, or complexity. To provide for interoperability and
compatibility among State, local, and tribal capabilities, the NIMS includes a core
set of concepts, principles, and terminology. HSPD-5 identifies these as the ICS;
multiagency coordination systems; training; identification and management of
resources (including systems for classifying types of resources); qualification and
certification; and the collection, tracking, and reporting of incident information
and incident resources.
National Integration Center: Provides strategic direction for and oversight of
the National Incident Management System. Supports routine maintenance and the
continuous refinement of the system and its components over the long term.
National Response Framework: A guide to how the United States conducts all-
hazards incident management. It is built upon flexible, scalable, and adaptable
coordinating structures to align key roles and responsibilities across the nation. It
is intended to capture specific authorities and best practices for managing
incidents that range from the serious but purely local, to large-scale terrorist
attacks or catastrophic natural disasters. The National Response Framework
replaces the former National Response Plan.
National: Of a nationwide character, including the State, local, and tribal aspects
of governance and policy.
NIMS Adoption: The establishment of a legal authority (e.g. executive order,
proclamation, resolution, legislation, or other legal mandate) that requires all
departments and agencies operating within the jurisdiction to use NIMS principles
and methodologies in their all-hazards incident management system.
NIMS Baseline: An initial assessment of NIMS compliance conducted in 2005
and/or 2006 by participating jurisdictions at State, Territorial, local, and tribal
levels.
NIMS Compliance Assistance Tool: The NIMS Compliance Assistance Tool
will be a self-assessment instrument for State, territorial, tribal, local, private
sector, and non-governmental organizations to evaluate and report their
jurisdiction's achievement of all NIMS implementation activities.
NIMS Promotion and Encouragement: Activities such as meetings (e.g.,
conferences, working groups, etc.), mailings (e.g., newsletters, letters, etc.), email,
or other established methods (e.g., broadcast media).
NIMS Standard Curriculum: A curriculum designed to provide training on the
NIMS. This curriculum will be built around available federal training
opportunities and course offerings that support NIMS implementation. The
curriculum also will serve to clarify training that is necessary for NIMS-
compliance and streamline the training approval process for courses recognized
by the curriculum. Initially, the curriculum will be made up of NIMS awareness
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Appendix D. Acronyms and Glossary
training and training to support the Incident Command System (ICS). Eventually
it will expand to include all NIMS training requirements including training
established to meet national credentialing standards.
(http://www.fema.gov/pdf/emergency/nims/nsctd.pdo
Non-Governmental Organization: An entity with an association that is based
on interests of its members, individuals, or institutions and that is not created by a
government, but may work cooperatively with government. Such organizations
serve a public purpose, not a private benefit. Examples of Non-Governmental
Organizations include faith-based charity organizations and the American Red
Cross.
No-Notice Events: An occurrence or event, natural or human-caused, that
requires an emergency response to protect life or property (i.e. terrorist attacks
and threats, wildland and urban fires, floods, hazardous materials spills, nuclear
accident, aircraft accident, earthquakes, hurricanes, tornadoes, public health and
medical emergencies etc.)
Operational Period: The time scheduled for executing a given set of operation
actions, as specified in the Incident Action Plan. Operational periods can be of
various lengths, although usually not over 24 hours.
Operations Section: The section responsible for all tactical incident operations.
In ICS, it normally includes subordinate branches, divisions, and/or groups.
Personnel Accountability: The ability to account for the location and welfare of
incident personnel. It is accomplished when supervisors ensure that ICS
principles and processes are functional and that personnel are working within
established incident management guidelines.
Plain Language: Common terms and definitions that can be understood by
individuals from all responder disciplines. The intent of plain language is to
ensure the clear and accurate communication of information during an incident.
For additional information, refer to
htti)://www.fema.gov/pdf/emergency/nims/plain lane.pdf.
Planning Meeting: A meeting held as needed prior to and throughout the
duration of an incident to select specific strategies and tactics for incident control
operations and for service and support planning. For larger incidents, the
planning meeting is a major element in the development of the IAP.
Planning Section: Responsible for the collection, evaluation, and dissemination
of operational information related to the incident, and for the preparation and
documentation of the IAP. This section also maintains information on the current
and forecasted situation and on the status of resources assigned to the incident.
Planning: A method to developing objectives to be accomplished and
incorporated into an EOP.
Preparedness Assistance Funding Streams: Funds made available by Federal
Departments and agencies to support State, local, and tribal entities to prepare for,
respond to, and manage the consequences of an all-hazards incident. Allocation of
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Appendix D. Acronyms and Glossary
preparedness funding is stipulated in a grant or guidelines of a particular program.
Monies can be used toward equipment acquisition, planning, operations, training,
management and administration, exercises, and mitigation against all hazards.
Preparedness Organizations: The groups that provide interagency coordination
for domestic incident management activities in a non-emergency context.
Preparedness organizations can include all agencies with a role in incident
management, for prevention, preparedness, response, or recovery activities. They
represent a wide variety of committees, planning groups, and other organizations
that meet and coordinate to ensure the proper level of planning, training,
equipping, and other preparedness requirements within a jurisdiction or area.
Preparedness: The range of deliberate, critical tasks and activities necessary to
build, sustain, and improve the operational capability to prevent, protect against,
respond to, and recover from domestic incidents. Preparedness is a continuous
process. Preparedness involves efforts at all levels of government and between
government and private-sector and NGOs to identify threats, determine
vulnerabilities, and identify required resources. Within-the NIMS, preparedness
is operationally focused on establishing guidelines, protocols, and standards for
planning, training and exercises, personnel qualification and certification,
equipment certification, and publication management.
Preplanned Event: A preplanned event is a non-emergency activity. ICS can be
used as the management system for events such as parades, concerts, or sporting
events, etc.
Prevention: Actions to avoid an incident or to intervene to stop an incident from
occurring. Prevention involves actions to protect lives and property. It involves
applying intelligence and other information to a range of activities that may
include such countermeasures as deterrence operations; heightened inspections;
improved surveillance and security operations; investigations to determine the full
nature and source of the threat; public health and agricultural surveillance and
testing processes; immunizations, isolation, or quarantine; and, as appropriate,
specific law enforcement operations aimed at deterring, preempting, interdicting,
or disrupting illegal activity and apprehending potential perpetrators and bringing
them to justice.
Principle Coordinator: The position designated by the State Administrative
Agency (SAA) primarily responsible for coordination of all NIMS-related
directives. This includes dissemination and collection of information and
monitoring and reporting on compliance activities.
Private Sector: Organizations and entities that are not part of any governmental
structure. It includes for-profit and not-for-profit organizations, formal and
informal structures, commerce and industry, and private voluntary organizations.
Processes: Systems of operations that incorporate standardized procedures,
methodologies, and functions necessary to provide resources effectively and
efficiently. These include resource typing, resource ordering and tracking, and
coordination.
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Appendix D. Acronyms and Glossary
Public Information Officer (PIO): A member of the Command Staff
responsible for interfacing with the public and media or with other agencies with
incident-related information requirements.
Public Information Systems: The processes, procedures, and systems for
communicating timely and accurate information to the public during crisis or
emergency situations.
Publications Management: The publications management subsystem includes
materials development, publication control, publication supply, and distribution.
The development and distribution of NIMS materials is managed through this
subsystem. Consistent documentation is critical to success because it ensures that
all responders are familiar with the documentation used in a particular incident
regardless of the location or the responding agencies involved.
Qualification and Certification: This subsystem provides recommended
qualification and certification standards for emergency responder and incident
management personnel. It also allows the development of minimum standards for
resources expected to have an interstate application. Standards typically include
training, currency, experience, and physical and medical fitness.
Reception Area: This refers to a location separate from staging areas, where
resources report in for processing and out-processing. Reception Areas provide
accountability, security, situational awareness briefings, safety awareness,
distribution of IAPs, supplies and equipment, feeding, and bed down.
Recovery Plan: A plan developed by a state, local, or tribal jurisdiction with
assistance from responding Federal agencies to restore the affected area.
Recovery: The development, coordination, and execution of service- and site-
restoration plans; the reconstitution of government operations and services;
individual, private-sector, nongovernmental, and public-assistance programs to
provide housing and to promote restoration; long-term care and treatment of
affected persons; additional measures for social, political, environmental, and
economic restoration; evaluation of the incident to identify lessons-learned; post-
incident reporting; and development of initiatives to mitigate the effects of future
incidents.
Resource Management: Efficient incident management requires a system for
identifying available resources at all jurisdictional levels to enable timely and
unimpeded access to resources needed to prepare for, respond to, or recover from
an incident. Resource management under NIMS includes mutual aid agreements;
the use of special state, local, and tribal teams; and resource mobilization
protocols.
Resource Typing Standard: Categorization and description of response
resources that are commonly exchanged in disasters through mutual aid
agreements. The FEMA/NIMS Integration Center Resource typing definitions
provide emergency responders with the information and terminology they need to
request and receive the appropriate resources during an emergency or disaster.
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Appendix D. Acronyms and Glossary
Resource Typing: Resource typing is the categorization of resources that are
commonly exchanged through mutual aid during disasters. Resource typing
definitions help define resource capabilities for ease of ordering and mobilization
during a disaster. For additional information, please visit
htta://www.fema.gov/emergency/nims/rm/rt.shtm .
Resources Unit: Functional unit within the Planning Section responsible for
recording the status of resources committed to the incident. This unit also
evaluates resources currently committed to the incident, the effects additional
responding resources will have on the incident, and anticipated resource needs.
Resources: Personnel and major items of equipment, supplies, and facilities
available or potentially available for assignment to incident operations and for
which status is maintained. Resources are described by kind and type and may be
used in operational support or supervisory capacities at an incident or at an EOC.
Response Asset Inventory: An inventory of the jurisdiction's resources that have
been identified and typed according to NIMS Resource Typing Standards.
Development of a Response Asset Inventory requires resource typing of
equipment, personnel, and supplies identified in the inventories of State resources.
Response Assets: Resources that include equipment, personnel and supplies that
are used in activities that address the effect of an incident.
Response: Activities that address the short-term, direct effects of an incident.
Response includes immediate actions to save lives, protect property, and meet
basic human needs. Response also includes the execution of emergency
operations plans and of mitigation activities designed to limit the loss of life,
personal injury, property damage, and other unfavorable outcomes. As indicated
by the situation, response activities include applying intelligence and other
information to lessen the effects or consequences of an incident; increased
security operations; continuing investigations into nature and source of the threat;
ongoing public health and agricultural surveillance and testing processes;
immunizations, isolation, or quarantine; and specific law enforcement operations
aimed at preempting, interdicting, or disrupting illegal activity, and apprehending
actual perpetrators and bringing them to justice.
Safety Officer: A member of the Command Staff responsible for monitoring and
assessing safety hazards or unsafe situations and for developing measures for
ensuring personnel safety.
Scalability: The ability of incident managers to adapt to incidents by either
expanding or reducing the resources necessary to adequately manage the incident,
including the ability to incorporate multiple jurisdictions and multiple responder
disciplines.
Section: The organizational level having responsibility for a major functional
area of incident management, e.g., Operations, Planning, Logistics,
Finance/Administration, and Intelligence (if established). The section is
organizationally situated between the branch and the Incident Command.
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City of Ashland Emergency Management Plan Basic Plan
Appendix D. Acronyms and Glossary
Self-certification: Attest as being true or as meeting a standard based on an
agency's or department's own evaluation of itself.
Span of Control: The number of individuals a supervisor is responsible for,
usually expressed as the ratio of supervisors to individuals. (Under NIMS, an
appropriate span of control is between 1:3 and 1:7.)
Staging Area: Location established where resources can be placed while
awaiting a tactical assignment. The Operations Section manages Staging Areas.
Standard Equipment List: A list issued annually to promote interoperability and
standardization across the response community at the local, state, and federal
levels by offering a standard reference and a common set of terminology. It is
provided to the responder community by the Interagency Board for Equipment
Standardization and Interoperability (IAB). The SEL contains a list of generic
equipment recommended by the IAB to organizations in preparing for and
responding to all-hazards.
Standard Operating Procedures (SOPs): A complete reference document that
details the procedures for performing a single function or a number of
independent functions.
Standardization: A principle of NIMS that provides a set of standardized
organizational structures (such as the ICS, multi-agency coordination systems,
and public information systems) as well as requirements for processes,
procedures, and systems designed to improve interoperability among jurisdictions
and disciplines in various area, including: training; resource management;
personnel qualification and certification; equipment certification; communications
and information management; technology support; and continuous system
improvement. (Department of Homeland Security, National Incident
Management System (March 2004), 2.)
Standardized Terminology: Commonly accepted language that is consistent
with policies, plans, or procedures in the NIMS and NRF to facilitate multi-
agency, multi-disciplinary or multi jurisdictional communications during an
incident.
State: When capitalized, refers to the governing body of Oregon.
Strategic: Strategic elements of incident management are characterized by
continuous long-term, high-level planning by organizations headed by elected or
other senior officials. These elements involve the adoption of long-range goals
and objectives, the setting of priorities; the establishment of budgets and other
fiscal decisions, policy development, and the application of measures of
performance or effectiveness.
Strategy: Plans, policies and procedures for how the jurisdiction will achieve
NIMS Implementation or the general direction selected to accomplish incident
objectives set by the Incident Commander.
Strike Team: A set number of resources of the same kind and type that have an
established minimum number of personnel.
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City of Ashland Emergency Management Plan Basic Plan
Appendix D. Acronyms and Glossary
Supporting Technologies: Any technology that may be used to support the
NIMS is included in this subsystem. These technologies include orthophoto
mapping, remote automatic weather stations, infrared technology, and
communications, among various others.
Task Force: Any combination of resources assembled to support a specific
mission or operational need. All resource elements within a Task Force must
have common communications and a designated leader.
Technical Assistance: Support provided to state, local, and tribal jurisdictions
when they have the resources but lack the complete knowledge and skills needed
to perform a required activity (such as mobile home park design and hazardous
material assessments).
Territory: A geographical area belonging to or under the jurisdiction of a
governmental authority; a part of the United States not included within any State
but organized with a separate legislature.
Terrorism: Under the Homeland Security Act of 2002, terrorism is defined as
activity that involves an act dangerous to human life or potentially destructive of
critical infrastructure or key resources and is a violation of the criminal laws of
the United States or of any State or other subdivision of the United States in
which it occurs and is intended to intimidate or coerce the civilian population or
influence a government or affect the conduct of a government by mass
destruction, assassination, or kidnapping. See Section 2 (15), Homeland Security
Act of 2002, Pub. L. 107-296, 116 Stat. 2135 (2002).
Threat: An indication of possible violence, harm, or danger.
Tools: Those instruments and capabilities that allow for the professional
performance of tasks, such as information systems, agreements, doctrine,
capabilities, and legislative authorities.
Training Curriculum: A course or set of courses designed to teach personnel
specific processes, concepts, or task-oriented skills.
Training: Specialized instruction and practice'to improve performance and lead
to enhanced emergency management capabilities.
Tribal: Any Indian tribe, band, nation, or other organized group or community,
including any Alaskan Native Village as defined in or established pursuant to the
Alaskan Native Claims Settlement Act (85 star. 688) [43 U.S.C.A. and 1601 et
seq.], that is recognized as eligible for the special programs and services provided
by the United States to Indians because of their status as Indians.
Type: A classification of resources in the ICS that refers to capability. Type 1 is
generally considered to be more capable than Types 2, 3, or 4, respectively,
because of size; power; capacity; or, in the case of incident management teams,
experience and qualifications.
Unified Area Command: A Unified Area Command is established when
incidents under an Area Command are multi jurisdictional (see Area Command).
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City of Ashland Emergency Management Plan Basic Plan
Appendix D. Acronyms and Glossary
Unified Command: An application of ICS used when there is more than one
agency with incident jurisdiction or when incidents cross political jurisdictions.
Agencies work together through the designated members of the UC, often the
senior person from agencies and/or disciplines participating in the UC, to
establish a common set of objectives and strategies and a single IAP.
Unit: The organizational element having functional responsibility for a specific
incident planning, logistics, or finance/administration activity.
Unity of Command: The concept by which each person within an organization
reports to one and only one designated person. The purpose of unity of command
is to ensure unity of effort under one responsible commander for every objective.
Volunteer: For purposes of NIMS, a volunteer is any individual accepted to
perform services by the lead agency, which has authority to accept volunteer
services, when the individual performs services without promise, expectation, or
receipt of compensation for services performed. See, e.g., 16 United States Code
74211(c) and 29 Code of Federal Regulations 553.101.
Source: https:Hnimeast.fema.gov/nimscast/index.isp
i
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City of Ashland Emergency Management Plan Basic Plan
Appendix D. Acronyms and Glossary
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FA 1 - Emergency Services
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
THIS PAGE LEFT BLANK INTENTIONALLY
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
Table of Contents
1 Purpose and Scope .................................................FA 1-1
2 Policies and Agreements ........................................FA 1-1
3 Situation and Assumptions FA 1-2
3.1 Situation FA 1-2
3.2 Assumptions FA 1-2
4 Roles and Responsibilities .....................................FA 1-3
4.1 Emergency Manager (Fire Chief) FA 1-3
4.2 Emergency Communications of Southern Oregon FA 1-4
4.3 Ashland Fire & Rescue FA 1-4
4.4 Police Department FA 1-4
4.5 Public Works Department FA 1-4
4.6 Other City Departments FA 1-5
4.7 Other Organizations FA 1-5
5 Concept of Operations ............................................FA 1-5
5.1 General FA 1-5
5.2 Emergency Communications FA 1-6
5.2.1 Alert and Warning FA 1-6
5.2.2 Emergency Communications Systems FA 1-8
5.3 Fire Services FA 1-9
5.4 Emergency Medical Services FA 1-9
5.5 Search and Rescue FA 1-10
5.6 Hazardous Materials Response FA 1-10
5.6.1 Information Sources FA 1-10
5.6.2 Training Levels FA 1-12
5.7 Law Enforcement Services FA 1-12
5.8 Emergency Public Information FA 1-14
5.8.1 Information Flow FA 1-14
5.8.2 Joint Information System FA 1-14
5.8.3 Media Briefing Facilities FA 1-15
5.8.4 Media Access to the Scene FA 1-15
5.8.5 Dissemination of Ongoing Emergency Public
Information FA 1-15
5.8.6 Training Recommendations for Public Information
Officers FA 1-16
FA 1-iii
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
5.9 Evacuation and Population Protection FA 1-16
5.9.1 Identification of Need FA 1-16
5.9.2 Determination of Time Needed for Evacuation FA 1-17
5.9.3 Evacuation of Access and Functional Needs
Populations FA 1-17
5.9.4 Sheltering in Place FA 1-18
5.10 Developing Incident and Planning Objectives FA 1-19
5.11 Geographic Information System Mapping and Data
Management FA 1-19
6 Annex Development and Maintenance FA 1-19
7 Supporting Plans and Procedures .......................FA 1-19
8 Appendices FA 1-20
Appendix A Emergency Public Information Materials FA 1-21
Appendix A-1 Emergency Alert System Templates FA 1-23
Appendix A-2 Guidelines for Release of Information to the
Media FA 1-25
Appendix A-3 Sample Media Statement Format FA 1-27
Appendix B Evacuation FA 1-29
Appendix B-1 Sample Evacuation Order FA 1-31
Appendix B-2 Evacuation Checklist FA 1-33
Appendix B-3 Evacuation Traffic Policy FA 1-38
Appendix B-4 Evacuation Guidelines FA 1-40
Appendix B-5 Ashland Street Network with Bridges and
Culverts FA 1-46
Appendix B-6 Wildfire Evacuation Route FA 1-48
FA 1-iv
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
Primary Agencies Emergency Manager (Fire Chief)
Police Department
Fire & Rescue
Supporting Public Works Department
Agencies Jackson County Emergency Management
Jackson County Sheriff's Office
Jackson County Health and Human Services
Emergency Communications of Southern Oregon
1 Purpose and Scope
This annex outlines the basic City of Ashland (City) emergency services
necessary to respond to a disaster. It outlines the main roles and responsibilities
for primary agencies, provides a concept of operations to assist the City in
coordinating emergency services, and references related authorities, agreements,
and supporting plans. The City Emergency Management Organization, as
outlined in the Basic Plan of this Emergency Management Plan, is designed to
provide support to'local emergency services agencies through assistance in
accessing needed resources and coordination in more complex incidents and
events. Nothing in this annex is meant to replace or supersede the standard
operating procedures of local response agencies.
This annex covers the following functions:
■ Emergency Communications
■ Firefighting
■ Search and Rescue (SAR)
■ Hazardous Materials Response
■ Public Safety and Security (Law Enforcement)
■ Emergency Public Information
■ Evacuation and Population Protection
Emergency services information that is specific to a unique hazard (e.g.,
hazardous materials releases, terrorism, flood response, etc.) can be found in the
appropriate Incident Annex.
2 Policies and Agreements
The following policies and agreements are currently in place to support
emergency services for the City:
■ Law Enforcement: The Jackson County (County) Cooperative Policing
Plan and the Mutual Aid Agreement are formal agreements among local
law enforcement agencies to provide back-up law enforcement calls for
services, both emergency and non-emergency.
FA 1-1
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
■ Fire Services: There are mutual aid agreements among local fire services
and the State of Oregon (State), fire departments belonging to the Rogue
Valley Fire Chief s Association, as well as a mutual aid agreement
regarding ambulance services.
■ Energy: Ashland Municipal Electric Utility has mutual aid agreements
with Northwest Public Power Association, American Public Power
Association, and Bonneville Power Administration.
■ Public Works: The Public Works Department has mutual aid agreements
with Jackson County and Oregon Department of Transportation.
■ Search and Rescue: Provisions in Oregon State law for SAR can be
found in Oregon Revised Statutes (ORS) 404 and include the following
key items:
• ORS 404.110. Delegation of SAR authority to the JCSO.
• ORS 404.115. Restriction of access to the SAR area.
• ORS 404.120. Requirement to adopt an SAR Plan for the County.
• ORS 404.125. Provisions for critique of an SAR incident.
• ORS 404.130. Assignment of an SAR incident number.
• ORS 404.300-404.325. Provisions. regarding equipment and
signaling devices.
• ORS 404.350. Rescue of companion animals.
3 Situation and Assumptions
3.1 Situation
The City may encounter situations in which many, or all, of its emergency
response agencies need to be activated. The primary emergency service agencies
are the City's Public Safety Answering Point, Emergency Communications of
Southern Oregon, the City Police Department, and Ashland Fire & Rescue. If
additional response resources are needed, mutual aid is available from
neighboring local governments and the County.
3.2 Assumptions
■ City emergency services agencies are able to handle routine and small-
scale emergencies within their existing capabilities and response plans and
procedures.
■ A natural or human-caused emergency or disaster may occur at any time
requiring response capabilities beyond those normally available to the
City.
■ Emergency personnel are trained in the Incident Command System
(ICS)/National Incident Management System (NIMS).
■ Utilization of the City Emergency Management Plan does not require
activation of the Emergency Operations Center (EOC). The need to
activate the EOC will be determined at the time by the City Emergency
Manager or Incident Commander.
FA 1-2
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
■ In an emergency, the City may assume a Unified Command approach.
■ Due to limited City resources, and depending on the extent of an
emergency, the City may not be able to meet the requests for emergency
response/recovery assistance from other units of local government in the
County during a major emergency.
■ Both the media and the public will expect and demand that information
regarding an emergency be provided in a timely manner.
■ The local media, particularly radio and television, can perform an essential
role in providing emergency instructions and status information to the
public. Jackson County Emergency Management can activate the
National Emergency Alert System (EAS) broadcasts. Webpages, and
social media sites may also be useful in providing this information. The
City operates a 1700 AM radio station, as well as a notification program
called Nixle, to provide emergency information to the public.
■ Most of the public will receive and understand official information related
to evacuation.
■ Most of the public will act in its own interest and evacuate dangerous
areas when advised to do so by local government authorities. However,
some individuals may refuse to evacuate. It is also assumed that most
evacuees will use private transportation means; however, transportation
may have to be provided for some.
■ City staff/emergency responders will work to address the concerns of
access and functional needs populations who may have trouble
understanding or accessing official emergency information.
■ Time constraints, route limitations, and hosting facilities' capacities to
accommodate evacuees could significantly stress and deplete local
resources.
4 Roles and Responsibilities
The roles and responsibilities for each department in support of emergency
services will vary depending on the type of resource, the length of the warning
period, and the duration of the incident.
4.1 Emergency Manager (Fire Chief)
■ Activate the EOC, if necessary.
■ Report to the EOC to assume overall responsibility for City government
activities.
■ Regularly brief the City Council on developments in the situation.
■ Designate an alternative EOC location, if necessary.
■ Assign a representative of the City to the County EOC, if applicable.
■ Coordinate the flow of public information to ensure consistency and
appropriateness.
FA 1-3
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
4.2 Emergency Communications of Southern Oregon
■ Maintain emergency contact lists for agencies and communities served.
■ Maintain primary and backup equipment.
■ Notify Emergency Management and other appropriate agencies of
situations affecting the City.
4.3 Ashland Fire & Rescue
■ Participate in the Joint Staff (Fire Chief)
■ Provide a qualified representative to the EOC to fill role of Fire Branch
Director in the Operations Section.
■ If necessary, provide for the safety of personnel and their families before
they report to their duty stations. Any firefighters who are unable to get to
their home departments should report to the closest fire station and offer to
be part of the staffing pool.
■ Relocate equipment as necessary.
■ Assist law enforcement in traffic/crowd control as necessary.
■ Coordinate activities through the City EOC.
■ Specific departmental duties and responsibilities are contained in the Fire
& Rescue emergency response plans and procedures.
4.4 Police Department
■ Participate in the Joint Staff (Police Chief)
■ Provide a qualified representative to the EOC to fill role of Law
Enforcement Branch Director in the Operations Section.
■ Provide for the safety of personnel and their families before they report to
their duty stations. Any police department employees who are unable to
get to their home departments should report to the closest police
department and offer to be part of the staffing pool.
■ Relocate equipment as necessary.
■ Assist in traffic/crowd control as necessary.
■ Assume primary responsibility for closing and/or rerouting traffic on city
streets to assist movement of people, keep people out of danger, and/or
keep them from impeding emergency response activities.
■ Coordinate and assist the Public Works Department and other public
works agencies in closing roads and/or rerouting traffic through the City,
if applicable.
■ Specific departmental duties and responsibilities are contained in the
Police Department emergency response plans and procedures.
4.5 Public Works Department
■ Participate in the Joint Staff (Public Works Director)
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City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
■ Provide a qualified representative to report to the EOC to assume overall
responsibility for Public Works activities under the direction of the
Operations Chief.
■ Provide for the safety of personnel and their families prior to reporting to
their duty stations. Any public works employees who are unable to get to
their home departments should report to the closest public works
department and offer to be part of the staffing pool.
■ Relocate equipment as necessary.
■ Assist the Police Department in closing streets and/or rerouting traffic, as
applicable.
■ Provide damage assessment information to the City EOC, as applicable.
■ Follow the specific departmental duties and responsibilities contained in
the Public Works Department emergency response plans and procedures.
4.6 Other City Departments
■ Provide support activities as outlined in the City Emergency Management
Plan.
4.7 Other Organizations
■ Organizations such as Oregon Department of Transportation (ODOT),
Oregon State Police, local ambulance service, and local hospitals may
assign liaisons as points of contact within the City EOC for coordination
and communication.
5 Concept of Operations
5.1 General
The City has established this Emergency Management Plan in accordance with
NIMS and designated the Fire Chief as the Emergency Management
Organization's Emergency Manager. The Emergency Manager is responsible for
developing and training an Emergency Management Organization capable of
managing the response and recovery of a major emergency in accordance with the
provisions of this plan.
Oregon Revised Statutes 401.305 and 401.335 give the City responsibility and
authority to direct activities that will allow the City to mitigate, prepare for,
respond to, and recover from emergencies or major disasters. The Emergency
Management Plan may be implemented at the discretion of the Emergency
Manager or Incident Commander.
Day-to-day supervision of the Emergency Management Plan is the responsibility
of the Emergency Manager. If the EOC is activated, the Incident Commander (or
designee) is responsible for organizing, supervising, and operating the EOC.
FA 1-5
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
Some emergencies may require a self-triggered response. In the event of an
emergency in which telephone service is interrupted, members of the Operations
and General Staff should ensure the safety of their families and then report to the
EOC.
The City Administrator has the authority to involve any or all City personnel in
the response to a disaster or other emergency incident. The declaration of an
emergency nullifies leaves and vacations as deemed necessary by the Mayor or
City Council.
Emergency contact information for the EOC staff is housed in the City
Administrator's Office.
5.2 Emergency Communications
Emergency Communications of Southern Oregon serves as the formal alert and
warning and emergency message distribution point for the City. Emergency
messages may be received via radio, telephone, or the Law Enforcement Data
System and will be distributed according to departmental procedures. Messages
that affect the overall emergency preparedness of the City, such as information
about the movement of hazardous materials or weather alerts, will be distributed
to the appropriate response agencies and the Emergency Manager. It is the
responsibility of the Emergency Manager or Incident Commander to determine
what further notifications should be made and actions taken in response to the
message.
When communication-related activities are staffed in the EOC, the
communication representative will be responsible for the following:
■ Serve as a liaison with supporting agencies and community partners.
■ Provide a primary entry point for situational information related to
communication.
■ Share situation status updates related to communication to inform
development of Situation Reports.
■ Participate in, and provide communication-specific reports for, EOC
briefings.
■ Assist in development and communication of communication-related
actions to tasked agencies.
■ Monitor ongoing communication-related actions.
■ Share communication-related information with the Public Information
Officer (PIO) to ensure consistent public messaging.
■ Coordinate communication-related staffing to ensure that the function can
be staffed across operational periods.
5.2.1 Alert and Warning
The effectiveness of an alert and warning system depends largely upon the
specificity and clarity of instructions and upon whether the public perceives the
FA 1-6
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
warning entity as credible at the time the warning is issued. In addition, messages
must be geographically precise, repeated more than once, and broadcast in more
than one medium.
The City operates a mass notification system known as Nixle; an AM Radio
Station 1700; and The Smoke and Wildfire Hotline. There is a Hosler Dam siren
notification system that operates in the floodplain area of Ashland Creek.
Additionally, mobile police and fire vehicle public address systems, and door-to-
door contacts may be used. Police and fire vehicle public address systems and
door-to-door contacts are either last-resort or used for highly localized hazards.
Other local media (TV, radio, newspaper, etc.) may be utilized as appropriate.
These methods may be used separately or in combination to alert and warn the
public of an emergency. In addition, special facilities such as schools, hospitals,
utilities, and industrial facilities may need notification.
5.2.1.1 General Guidelines
■ Upon detection of an emergency condition arising within the City, the
Incident Commander will decide whether there is a need for immediate
alert, attempt to notify the Emergency Manager, and direct its
implementation.
■ The City may also receive warning information from the County by
telephone, the Oregon State Police, Fire Net, and Oregon Emergency
Management through the Law Enforcement Data System. When warning
information is received by telephone, the information should be confirmed
by a return telephone call.
■ When warning information is received via telephone, the Command staff
of the department shall determine the need for further alert and warning,
devise the message and means of delivery, and direct its implementation.
■ If the emergency is localized, City emergency response personnel will
alert residents in the area by the Nixle system, telephone, mobile public
address systems and/or door to door contact. Evacuation planning should
take into account the fact that certain industrial facilities may need time to
shut down vital operations before they can evacuate.
■ When appropriate, Emergency Alert System authorized personnel shall
provide preliminary (best available) public protection information to local
radio stations for immediate broadcast.
■ Updated information will be given to the public through the methods
outlined above.
■ A log of all warnings issued during the incident, shall be maintained by
the Information Officer or the Emergency Management official issuing the
warning.
■ Rumor control may become essential to the public information effort. The
phone banks assigned to the EOC may establish a "message center"
function, under the direction of the Logistics Section Chief and PIO to
respond to inquiries from the public.
FA 1-7
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
5.2.1.2 Emergency Alert System
The EAS consists of broadcast stations linked together and to government offices
to provide emergency alert and warning to the public. The system may also be
used to call back off duty personnel in the event of phone system failure.
All messages shall be approved by the Incident Commander, and then will be
coordinated with the Information Officer to ensure that conflicting information is
not issued.
5.2.1.3 Cable Television Alert
The Cable Alert System provides immediate interruption of cable television
programming for emergency messages.
All messages shall be approved by the Incident Commander, then will be
coordinated with the Information Officer to ensure that conflicting information is
not issued.
5.2.1.4 Mobile Public Address Systems
Ashland Police and Fire District vehicles are equipped with mobile public address
systems that may be used for alert and warning.
Direction of these alert systems shall be the responsibility of the Incident
Commander through the Operations Section.
All messages shall be approved by the Incident Commander, and coordinated with
the Information Officer to ensure that conflicting information is not issued.
If applicable, prior to dissemination, Emergency Management Staff will be
advised.
5.2.1.5 Door-to-Door Alert
Door-to-door alert may be necessary in the event of a rapidly emerging incident,
which poses a clear threat to public safety. Residents will be directed to temporary
shelter depending upon the weather, and the expected duration of the emergency.
Direction of this activity shall be the responsibility of the Incident Commander
through the Operations Section Chief. Ashland's Community Emergency
Response Team (CERT) may be used to assist with this process.
All messages shall be approved by the Incident commander and coordinated with
Information Officer to ensure conflicting information is not issued.
See the Jackson County EOP, ESF 2 - Communications for more details.
5.2.2 Emergency Communications Systems
Adequate communications are vital for effective and efficient warning, response,
and recovery operations. Current communications may be degraded by a
particular hazard occurrence. The City has access to the Government Emergency
Telecommunications Service https://www.dhs.gov/government-emergency-
FA 1-8
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
telecommunications-service-gets and Wireless Priority Service at
https://www.dhs.gov/wireless-priority-service-wps through the Office of
Homeland Security.
Equipment is available to provide communications necessary for emergency
operations. To the greatest extent possible, landline and cellular telephones,
pagers, and e-mail will be the primary system for notification of key officials and
critical workers.
Additional communications equipment required for emergency operations will be
made available from amateur radio operators, citizens, businesses, and/or other
governmental agencies.
5.3 Fire Services
The primary Fire Services agency for the City of Ashland is Ashland Fire &
Rescue. Disaster operations for fire services will be an extension of normal
agency and facility duties. Responsibilities include fire control, hazardous
material and oil/fuel spill response, and radiological protection operations.
During emergency situations, fire service teams may also be assigned to perform
additional emergency tasks, including providing fire protection for temporary
shelters, assisting law enforcement personnel in route alerting, or going door to
door to warn citizens who cannot be reached by primary warning systems.
A designated representative shall serve as the EOC Fire Branch Director,
coordinating the flow of fire and rescue information and processing requests for
additional fire and rescue resources, granting them as appropriate.
Fire service personnel are responsible for assessing threat hazards posed by fire,
radiological materials, and other hazardous materials. They also recommend to
the Incident Commander appropriate protective actions for emergency responders,
including requirements for personal protective equipment. In addition, fire
service personnel are responsible for recommending appropriate protective
actions to ensure public safety in the immediate vicinity of a threat.
Fire & Rescue is responsible for the timely issuance of fire warnings and
information to the public and for notifying appropriate City management. In the
event of an evacuation, warning may be delegated to the Police Department as
part of the evacuation process. In the event of a natural or technological disaster
that could increase the chances of fire, or during periods of extremely hot, dry,
and windy weather, additional public information briefings may be conducted.
See the Jackson County EOP, ESF 4 - Firefighting for more details.
5.4 Emergency Medical Services
Emergency Medical Services (EMS) in the City are provided by Fire & Rescue.
EMS is a type of emergency service dedicated to providing out-of-hospital acute
medical care and/or transport to definitive care, to patients with illnesses and
injuries that the patient or the medical practitioner, believes constitutes a medical
FA 1-9
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
emergency. Disaster operations for EMS will be an extension of normal agency
and facility duties. Coordination between EMS, search and rescue, and fire
service providers is necessary to ensure emergency operational readiness. EMS
will provide field medical care as needed during emergency situations and
coordinate necessary medical transportation.
See the Jackson CountyAmbulance Service Area Plan and the Jackson County
EOP, ESF 8 - Public Health and Medical Services for more details.
5.5 Search and Rescue
SAR for the City will be conducted by the Jackson County Sheriff s Office. SAR
operations can involve several different scenarios, including:
■ Rescuing survivors or recovering bodies from debris following a disaster
such as a severe weather event or earthquake.
■ Rescuing survivors or recovering the bodies of lost hunters or hikers in
remote portions of the area.
■ Rescuing survivors or recovering bodies of plane crashes.
■ Rescuing survivors or recovering bodies involved in accidents on
waterways.
Regardless of the situation, search and rescue operations will likely be a multi-
agency event involving responders from a number of local emergency response
agencies, local volunteer organizations, and possibly State agencies.
See the Jackson County Search and Rescue Plan and the Jackson County EOP,
ESF 9 -Search and Rescue for more details.
5.6 Hazardous Materials Response
Hazardous materials response includes ensuring actions are taken to mitigate,
clean up, and dispose of hazardous materials and minimize the impacts of
incidents. Fire & Rescue has a limited capacity to address hazardous materials
incidents. Additional resources need to be requested through the State Regional
Hazardous Materials Teams located in Medford (Region 8).
See the County Hazardous Materials Response Plan and the Jackson County
EOP, ESF 10 - Oil and Hazardous Materials for more details.
5.6.1 Information Sources
5.6.1.1 Chemical Transportation Emergency Center
CHEMTREC (800-424-9300) provides 24- hour immediate advice by telephone
with data on 350,000 chemicals. CHEMTREC will:
■ Contact the shipper and manufacturer of the hazardous materials to advise
them of the spill.
■ Notify the National Response Center (NRC) IF REQUESTED
FA 1-10
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
■ Can provide a phone-link between the Hazardous Materials (HazMat)
Teams and several different chemical experts and send hard copy via
computer or fax.
■ Serve as the National Poison Antidote Center. By contacting
CHEMTREC, a conference call can be established with toxicologists from
several poison control centers.
5.6.1.2 National Response Center
The NRC (800-424-8802), which is operated by the United States Coast Guard,
receives reports from spillers and acts as the notification, communications,
technical assistance, and coordination center for the National Response Team.
The NRC is a single access point for accessing all federal agencies involved with
hazardous materials. Being operated by the United States Coast Guard, it is the
contact point for accessing the Pacific Strike Team, a specially trained and
equipped hazardous materials team with expertise in handling water related spills.
5.6.1.3 Oregon State Fire Marshal's Hazardous Substance Employer
Survey
The Oregon State Fire Marshall (OSFM) can be reached through Oregon
Emergency Response System. The OSFM maintains information from the State's
Hazardous Substance Employer Survey, which annually inventories all businesses
in the State for chemicals that are being manufactured, stored, and used at their
locations. While this is good information, not all businesses have complied with
regulations that require data to be sent to the State. Oregon Regional Response
Teams will have this information available on their on-board computers.
The OSFM provides an updated list of companies that have reported Extremely
Hazardous Substances in the Ashland Fire Department's area of coverage on an
annual basis, which is available through the Fire Department.
5.6.1.4 Oregon Poison Control Center
The Oregon Poison Control Center (503-494-8968 or 800-452-7165) provides the
following services:
■ 24-hour service with expertise on hazardous materials exposure.
■ Has a toxicologist available for consultation on chemical related health
issues.
■ Has familiarity with Regional HazMat Teams and their level of training.
■ Has excellent follow-up capability for patient treatment and care.
■ Has the ability to get information on trade secrets in a timely manner
■ Provides recommendations on decontamination procedures.
5.6.1.5 Safety Data Sheets
Safety Data Sheets are required by the Occupational Safety and Health
Administration (OSHA) as the primary communications link between chemical
FA 1-11
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
manufacturers and users. They provide brief information about the hazards that
may be anticipated in an emergency situation involving a particular substance.
Safety Data Sheets provide a good source of information, but definitive answers
on toxicity and treatment for exposed victims should be sought from the Poison
Control Center.
5.6.1.6 Printed Resources
■ There are many different guidebooks to cross reference, starting with the
Department of Transportation's Emergency Response Guidebook.
Responders should use multiple sources as quickly as they can.
■ The Department of Transportation's Guidebook is only useful for the first
few minutes of an incident until more detailed information can be obtained
from technical resources.
5.6.2 Training Levels
■ Per OSHA 29 Code of Federal Regulations 1910.120, City employees
shall not work outside their scope of training, knowledge, and skill level.
■ Individuals who are likely to witness or discover a hazardous substance
release will be trained to the First Responder Awareness level. This group
should include police officers and Public Works field personnel.
■ Individuals that respond to releases will be trained to the First Responder
Operations level. This would include Fire Department personnel.
■ The Fire Department will have personnel trained to the On-Scene Incident
Commander level. Personnel trained to this level will respond and take
command of a hazardous materials incident as soon as possible. Note: the
first arriving unit will take command until personnel trained to the On-
Scene Incident Commander level arrive.
5.7 Law Enforcement Services
The City's primary law enforcement agency is the Police Department. Disaster
operations for law enforcement will be an extension of normal agency and facility
duties. Responsibilities include maintenance of law and order, traffic control, and
crowd control.
The City Police Chief is responsible for directing the City's law enforcement
response to a major emergency and coordinating response activities with the
EOC. The Chief, or a designated representative, shall serve as the EOC Law
Enforcement Branch Chief, coordinating the flow of law enforcement
information, processing requests for additional law enforcement resources, and
allocating them, as appropriate.
Law enforcement emergency operations will be an extension of the normal
responsibilities of the Police Department. All responding law enforcement
agencies have the responsibility to ensure operational capabilities. The Police
FA 1-12
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
Department is responsible for coordinating law enforcement services, including
the following tasks:
■ Assess the situation, determine its impact on law enforcement operations,
and identify additional resource needs.
■ Secure the area to prevent additional injury or damage.
■ Law enforcement agencies will establish inner and outer perimeters to
secure a disaster scene. A strict policy of limited access to the disaster
area will be rigidly enforced to ensure the safety and well-being of the
community. All movement into and out of the area will be requested
through the established command post.
■ Provide traffic and crowd control.
■ Evaluate the credibility of intelligence information.
■ Investigate crime scenes.
■ Coordinate warning and evacuation/shelter-in-place operations.
■ Provide security for evacuated areas, critical facilities, and resources.
■ Provide situation reports to the EOC.
■ Enforce mandatory health measures.
■ Report road damage or blockage to EOC Damage Assessment Unit.
■ Establish traffic control points to divert traffic from damaged or
overloaded roads.
■ Deny entry to evacuated or dangerous areas by unauthorized persons.
■ Provide additional security, if necessary, for:
• Transportation and sheltering of prisoners from the jail and youth
from Juvenile Department programs.
• Public shelters or other mass care facilities.
• Critical facilities such as field medical operations, health and
medical providers, point-of-dispensing operations (including
escorting Strategic National Stockpile supplies), chain-of-custody
environmental samples, utility installations, food distribution
centers, storage locations, distribution sites, and government
offices.
■ Coordinate with the District Attorney and presiding judge(s) when
incidents impact the arrest, prosecution, incarceration, or release of
prisoners, or delay due process.
When the need for multiple agency response becomes apparent or several
jurisdictions become involved, Incident Command may transition from field
operations to the EOC. If appropriate, a Unified Command will be established.
EOC activities will be determined by the Incident Commander and may include:
1) identifying incident objectives and priorities; 2) assigning, monitoring, and
coordinating incident resources; and 3) determining the need for additional
resources.
FA 1-13
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
See the Jackson County EOP, ESF 13 - Public Safety and Securityfor more
details.
5.8 Emergency Public Information
The City PIO is located in the City Administrator's Office. Until the EOC is
opened, the PIO on scene provides information to the media, with the approval of
the Incident Commander. Once the EOC is activated, PIO functions are directed
from the EOC, with news releases approved by the Emergency Manager and/or
Incident Commander. In addition to formal news releases from the EOC PIC, the
on-scene PIO can continue to provide information regarding response activities.
5.8.1 Information Flow
Incident information flow shall be routed as follows.
Information from
On Scene Soiirces -y,4` -
a
OnScene PIO
a
ex x~ P .
a
F Incident Commander and/or
Emergency Manager
Mayor an'd,Scene Sources-
a
F Media and Public
Appendix A-2 of this annex contains guidelines for the release of information to
the media.
5.8.2 Joint Information System
Providing timely and accurate public information during an emergency of any
nature is critical to the overall response efforts. A Joint Information System may
be established in conjunction with the ICS and a local and/or regional Joint
Information Center (JIC) will be established under Unified Command. During a
regional or statewide event, the City will ensure that procedures are coordinated
with those implemented by State and regional PIOs.
Depending on the size and nature of an incident, the JIC may be co-located with
an existing EOC/command post or could be designated as an independent facility.
A lead PIO, representing the lead agency for the response, will be assigned to the
incident and will maintain the following responsibilities:
FA 1-14
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
■ Coordinate information-sharing among the larger PIO network.
■ Develop and distribute materials to the general public and media partners.
■ Implement information clearance processes set by the Incident
Commander.
■ Schedule media briefings in a designated location away from the EOC and
other emergency operations.
5.8.3 Media Briefing Facilities
During a major emergency or disaster, media briefing areas may be established in
a facility that is capable of handling the media briefings. The media briefing area
should always be coordinated with the EOC Incident Command and placed some
distance away from the incident location and separated from the EOC to keep
critical activities free from media interference.
5.8.4 Media Access to the Scene
■ In cooperation with the EOC and the Safety Officer, the Incident
Commander may allow media representatives restricted access to the
scene, accompanied by a member of the Public Information staff. This
should be done with consideration of the safety of media personnel, the
impact on response, and the wishes and concerns of the victims.
■ If it is not safe or practical to admit all media representatives to the scene,
a media "pool" may be created, in which media representatives select one
camera crew to take video footage for all. If even such controlled access
is impractical, a "staged" photo opportunity to tape response vehicles or
support activities may satisfy the media's need for video footage.
■ Response personnel must be protected from unwanted media intrusion.
Off-shift personnel should be provided uninterrupted rest. It may be
necessary to provide security to facilities where response personnel are
housed and disconnect the telephones to ensure privacy.
■ Victims and families should be provided access to public officials without
having to face media, as appropriate.
■ The media may be allowed access to response personnel, at the discretion
of the Incident Commander, only if such an interview does not interfere
with the response effort.
■ Response personnel will not comment on the incident without the consent
of the Incident Commander. Inquiries should be directed to the designated
PIO, with approval of the Incident Commander and the department of
jurisdiction.
5.8.5 Dissemination of Ongoing Emergency Public Information
■ The PIO is responsible for:
■ Collecting, coordinating, and disseminating emergency information.
■ Advising on-scene and EOC Command on information and media issues.
■ Advising City officials.
FA 1-15
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
■ Responding to media and public inquiries.
■ Using an established Joint Information System (JIS) structure and
procedures to coordinate incident information.
■ Staffing the JIC based on incident-specific needs.
A single telephone number for the public to call for emergency information may
be activated to assist in preventing or correcting public misinformation about an
incident. This line is staffed by call-takers trained to handle public calls and
knowledgeable about current incident status. Information will be released as
directed by the Incident Commander.
5.8.6 Training Recommendations for Public Information Officers
During an emergency or disaster, PIOs must be able to assemble information
quickly, organize it, and use it to develop effective messages for release to the
public. They must understand the ICS and how they work together to coordinate
information for the public through a JIS and JIC. To ensure that PIOs possess the
needed skills and background to perform these critical duties, the City
recommends that all PIOs complete the following training in order to qualify for
JIC duty:
■ FEMA Introduction to Incident Command System training IS-100
■ FEMA NIMS and Introduction training IS-700
■ FEMA NIMS Public Information Systems training IS-702
5.9 Evacuation and Population Protection
Emergencies or disasters may require the evacuation of people from hazard areas
to areas of lower risk. During emergencies such as floods, earthquakes, hazardous
materials spills/releases, accidents or threats involving radiological materials,
major fires, and others, Ashland emergency responders or EOC personnel may
determine that the evacuation of all or part of the community is prudent to
minimize loss of life.
An evacuation is the removal of persons from the path of a threat prior to impact,
and is the responsibility of the Police Department. Removal of victims from an
area impacted by a hazard is considered a rescue, and will be conducted according
to this plan.
In Oregon, the responsibility for ordering an evacuation rests with local
government or the governor. In Ashland, formal authority to order an evacuation
lies with the City Administrator/designee. Under emergency conditions, this
authority is delegated to the Incident Commander.
5.9.1 Identification of Need
Not all emergencies requiring protective action on the part of the public
necessitate evacuation. The Emergency Manager and Incident Commander must
weigh the risks of leaving the population unprotected against the risks of
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City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
sheltering in place or evacuating. Before an evacuation can be implemented, the
following activities must be performed:
■ Identify high-hazard areas, including those that may be impacted if the
incident escalates or conditions change.
■ Identify potential evacuation routes, their capacities, and their
vulnerability to the hazard (see Appendix B-3 of this annex for the City's
evacuation traffic policy).
■ Alert and warn the public at risk. Include specific information about the
risk, the protective actions that need to be taken, and the possible risks of
non-compliance.
5.9.2 Determination of Time Needed for Evacuation
To determine evacuation time requirements, the following factors should be
considered:
■ Time from response to decision to evacuate.
■ Time needed to alert and instruct the public, depending upon the time of
day and other factors.
■ Time needed to mobilize the population, once warned;
■ Time required to evacuate the hazard area.
5.9.3 Evacuation of Access and Functional Needs Populations
Populations with access and functional needs within the City of Ashland that may
need special assistance during evacuations include children attending private,
public and pre- schools, residents of assisted living facilities, nursing homes, and
residents of apartment complexes for the elderly.
The Logistics Section may assist in procurement of specialized transportation
resources such as ambulances, vehicles for transporting the handicapped, and
buses.
5.9.4 Implementation Guidelines
The Incident Commander, regardless of agency or whether on-scene or in the
EOC, shall:
■ Determine the need to evacuate an area.
■ Determine the extent of the area to be evacuated.
■ Develop an evacuation plan.
Activate the alert and warning system, and
■ Direct the implementation of the evacuation plan.
In the event of a major evacuation in response to an incident under the overall
Command of a non-law enforcement agency:
FA 1-17
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
■ The Incident Commander should designate a Unified Command between
that agency and the Police Department to facilitate coordination of
evacuation operations.
The Emergency Management Staff will utilize the alert and warning guidelines to
warn the public of the emergency condition, and provide the public with
evacuation and shelter information.
The Incident Commander will ensure that secure perimeters are established, if
needed, and provide criteria for access to them.
The Incident Commander will identify appropriate reception areas for evacuees,
and shall assign personnel to provide liaison to those persons in the reception
area, and security to the reception area.
The Ashland Parks and Recreation Department should be requested to begin
arranging shelter.
As the emergency response progresses and more information becomes available,
the PIO will utilize the procedures described in this plan to provide the media and
the public with information on:
■ Modes of transportation for evacuees unable to provide their own.
■ The reason for the evacuation.
■ The location of reception or shelters.
■ Possible results of failure to evacuate.
Notify the Oregon Emergency Management and Jackson County Emergency
Management of the evacuation.
After the emergency event has ended:
■ Emergency Management Staff will allow the early return of persons
needed to staff essential services and to open vital businesses as soon as
this can be done safely.
■ Emergency Management Staff will direct a general return to the incident
area as soon as possible.
■ The PIO will advise the public and the media of the termination of the
evacuation order and the lifting of the security perimeter.
5.9.4 Sheltering in Place
If sufficient time is not available to evacuate and/or the nature of the incident
makes evacuation unsafe, Incident Command may choose to direct those in the
affected area to shelter in place. Sheltering in place restricts affected people to
their current locations. Other restrictions may also be necessary (see Appendix
A-1 of this annex for EAS message format).
See the Jackson County EOP, Support Annex C - Evacuation for more details.
FA 1-18
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
5.10 Developing Incident and Planning Objectives
Objectives are the backbone for conducting all planning, response, and recovery
activities. The first step in developing good objectives for an incident response is
to understand the priorities, as follows:
■ Priorities define overarching requirements-what to accomplish in order
of importance.
■ Objectives must be based on incident priorities.
■ Priorities guide the precedence by which objectives are addressed.
■ Initial priorities may be driven in part by the delegation of authority.
■ Every plan, incident, response, and recovery situation always has its
priorities. Priorities should be built based on the whole community core
capabilities.
■ The next step in developing good objectives involves the following steps:
■ Frame the problem-what are the essential elements of the issue to be
addressed?
■ Use the objective to describe what is to be accomplished-and where, if
possible-but not how or by whom.
■ Provide enough detail to make the objective meaningful.
■ Allow the necessary flexibility-ensure that the objective and its results
can be used as a metric.
■ Ask, "is the objective attainable?" Determine whether the objective can be
met with available resources.
■ Ask, finally, "what is the objective's priority when compared to other
identified issues?" Order the objectives based on the order of priority or
urgency.
Adapted from FE-4's Incident Action Planning Guide.
5.11 Geographic Information System Mapping and Data
Management
Mapping capabilities and equipment may be provided through the Public Works
Department and other partners.
6 Annex Development and Maintenance
The Emergency Manager is responsible for regular review and maintenance of
this annex. To ensure that City staff are familiar with their roles in providing
emergency services, the City will incorporate elements of emergency services into
its training and exercise program.
7 Supporting Plans and Procedures
The following documents support emergency services for the City:
■ Jackson County Emergency Operations Plan, 2010.
FA 1-19
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
• ESF 2 - Communications
• ESF 4 - Firefighting
• ESF 9 - Search and Rescue
• ESF 10 -Oil and Hazardous Materials
• ESF 13 -Public Safety and Security
• ESF 15 - External Affairs
■ Jackson County Search and Rescue Plan
■ Jackson County Ambulance Service Area Plan
■ Jackson County Hazardous Materials Response Plan
■ State of Oregon Fire Services Mobilization Plan.
■ Northwest Area Contingency Plan, 2010.
8 Appendices
■ Appendix A - Emergency Public Information Materials
• A-1 -Emergency Alert System Templates
• A-2 - Guidelines for Release of Information to the Media
• A-3 - Sample Media Statement Format
■ Appendix B - Evacuation
• B-1 -Evacuation Order
• B-2 - Evacuation Checklist
• B-3 - Evacuation Traffic Policy
• B-4 - Evacuation Guidelines
• B-5 - Ashland Street Network with Bridges and Culverts
• B-6 - Wildfire Evacuation Route
FA 1-20
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
Appendix A Emergency Public Information Materials
A-1 Emergency Alert System Templates
A-2 Guidelines for Release of Information to the Media
A-3 Sample Media Statement Format
FA 1-21
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City of Ashland Emergency Management Plan Functional Annexes
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III
I
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FA 1-22
City of Ashland Emergency Management Plan Functional Annexes
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Appendix A-1 Emergency Alert System Templates
EVACUATION:
The City of Ashland is managing a(n) emergency. A State of Emergency
has been declared. The Incident Command and Ashland City Council are
requesting the immediate evacuation of the area between on the east, on the
west, on the north and on the south due to Please take
medications, and personal hygiene supplies with you and evacuate to (a point)
by traveling . Failure to evacuate may result in life endangerment.
The American Red Cross is opening shelters for those affected by the evacuation
at . If you need help evacuating your home, please signal emergency
workers by placing a white cloth on your front door or calling the City at
SHELTER IN PLACE:
The Incident Command and Ashland City Council are urging citizens for the area
between on the east, on the west, on the north and on
the south south to take the following protective actions due to . Stay
indoors with all windows closed. If you must go outdoors for any reason,
Failure to follow these instructions may result in damage to . Please stay
tuned to this station for further details.
FA 1-23
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
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FA 1-24
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
Appendix A-2 Guidelines for Release of Information to the Media
The following guidelines shall be used in evaluating and releasing information
concerning the incident:
1. Accurate information will be provided to the media. Facts that can be
confirmed should be released as soon as possible. If little information is
available, the following statement should be issued:
"We are aware that an (incident/accident) involving (type of incident)
occurred at approximately (time), in the vicinity of (general location).
Emergency crews are responding, and we will have additional
information available as we are able to confirm it. We will hold a
briefing at (location), and will alert the media at least 112 hour prior to
the briefing. At this time, the briefing is the only place where officials
authorized to speak about the incident and confirmed information will be
available. Thank you for your assistance."
2. Emergency information dissemination should be restricted to approved,
specific, and verified information concerning the incident and should
include:
a. Nature and extent of emergency occurrence.
b. Impacted or potentially affected areas of the City.
c. Advice on emergency safety procedures, if any.
d. Activities being conducted by the City to combat the hazardous
conditions or mitigate the effects.
e. Procedures for reporting emergency conditions to the EOC.
3. Information concerning the incident should be consistent for all members
of the media.
4. Information should be presented in an objective manner.
5. Rumor control is vital during emergency operations. Sensitive or critical
information must be authorized and verified before release. Unconfirmed
rumors or information from unauthorized sources may be responded to in
the following manner:
"We will not confirm until we have been able to check out the
information through authorized sources. Once we have confirmed
information, we will release it to all members of the press at the same
time. "
6. Information that media representatives often request includes:
a. Emergency: What is it?
b. Location: Where is it?
FA 1-25
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
c. What caused it?
d. Time: When did it occur? How long will it last?
e. Fatalities: Are there any? How many?
f. Injuries: Are there any? How Many? What is the nature of the
injuries?
g. Injured: Where are they being treated? Where can family members
call to get information?
h. Involved agencies: What agencies responded? How many? What
level of involvement do they have?
7. Do not release information that might hinder emergency response,
prejudice the outcome of an investigation, or pose a further threat to
public safety. Examples include:
a. Personal conjecture about the course of the emergency or the
conduct of response.
b. Opinions about evidence, or a suspect or defendant's character,
guilt, or innocence.
c. Contents of statements used in alibis, admissions, or confessions.
d. References to the results of various tests and examinations.
r
e. Statements that might jeopardize the testimony of witnesses.
f. Demeaning inform ation/statements.
g. Information that might compromise the effectiveness of response
and recovery.
8. In an incident involving fatalities, the names of the victims or the cause of
death shall not be released without authorization from the District
Attorney's and Medical Examiner's office.
9. Confidential information is not to be released. This includes home phone
numbers of City personnel, volunteer emergency workers, and any
unpublished fire stations and City telephone numbers.
10. Public information briefings, releases, interviews, and warnings shall be
logged and tape-recorded. Copies shall become, part of the final incident
package.
11. Do not commit to firm briefing times unless it is certain these times can
be kept.
FA 1-26
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
Appendix A-3 Sample Media Statement Format
MEDIA RELEASE
Date:
Time:
Press Release
TYPE OF INCIDENT:
Location:
Date: Time:
Narrative details about incident:
For further information, please contact
at
FA 1-27
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FA 1. Emergency Services
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FA 1-28
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
Appendix B Evacuation
B-1 Evacuation Order
B-2 Evacuation Checklist
B-3 Evacuation Traffic Policy
B-4 Evacuation Guidelines'
B-5 Ashland Street Network with Bridges and Culverts
B-6 Wildfire Evacuation Route
FA 1-29
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FA 1. Emergency Services
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FA 1-30
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
Appendix B-1 Sample Evacuation Order
1. An emergency condition, as a result of exists in
the City of Ashland, and the City has declared a State of Emergency.
2. The City has determined that there is a need to evacuate portions of the City.
3. Such evacuation is needed to ensure the safety of the public. Therefore:
4. The City of Ashland is requesting the immediate evacuation of:
5. The City of Ashland requests that those needing special assistance call
or place a white flag, (towel,
rag, paper, etc.) on the front door knob or in the front window. The above
number has been established to respond to evacuation assistance requests.
6. The City of Ashland is restricting all entry into the hazard area. No one will
be allowed to re-enter the area after am/pm.
7. Information and instructions from the City of Ashland will be transmitted by
broadcast radio. Public information will also be available from American Red
Cross representatives at shelters now being opened to the public for
emergency housing.
8. As resources allow, a reception area or American Red Cross shelter is located
at:
9. The City of Ashland will advise the public of the lifting of this order when
public safety is assured.
Date Signed
Mayor
Date Signed
Incident Commander
FA 1-31
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FA 1-32
City of Ashland Emergency Management Plan Functional Annexes
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Appendix B-2 Evacuation Checklist
V Action Item Assigned
PLANNING:
1. Determine area(s) at risk:
• Determine
population of risk
area(s)
• Identify any special
facilities and
functional needs
populations in risk
area(s)
utes for risk area(s) and
r3Dete7ni etermine evacuation
eck the status of these
utes.
ne traffic contro l quements for
evacuation routes.
4. Estimate public
transportation
requirements and
determine pickup points.
5. Determine temporary
shelter requirements and
select preferred shelter
locations.
ADVANCE WANING:
6. Provide advance warning
to special facilities and
advise them to activate
evacuation,
transportation, and
reception arrangements.
Determine if
requirements exist for
additional support from
local government.
7. Provide advance warning
of possible need for
evacuation to the public,
clearly identifying areas
at risk. Consider using
Ashland's Community
Emergency Response
Team and/or Nixle
system.
FA 1-33
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
Ac'tion Item 11 Assigned
8. Develop traffic control
plans and stage traffic
control devices at
required locations
9. Coordinate with special
facilities regarding
precautionary
evacuation. Identify and
alert functional needs
populations.
10. Ready temporary shelters '
selected for use.
11. Coordinate with
transportation providers
to ensure that vehicles
and drivers will be
• available when and
where needed.
12. Coordinate with school
districts regarding
closure of schools.
13. Advise neighboring
jurisdictions that may be
affected of evacuation
plans.
EVACUATION:
14. Advise neighboring
jurisdictions that an
evacuation
recommendation or order
will be issued.
15. Disseminate the
evacuation
recommendation or order
to special facilities and
functional needs
populations. Provide
assistance in evacuating,
if needed.
16. Disseminate evacuation
recommendation or order
to the public through
available warning
systems, clearly
identifying areas to be
evacuated.
FA 1-34
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
Action Item Assigned
17. Provide amplifying
information to the public
through the media.
Emergency public
information should
address:
• What should be done -
to secure buildings
being evacuated
• What evacuees
should take-with
them
• Where evacuees
should go and how
_ they should get there
• Provisions for
functional needs
population and those
without
transportation
18. Staff and open temporary
shelters
19. Provide traffic control
along evacuation routes
and establish procedures
for dealing with vehicle
breakdowns on such
routes.
20. Provide transportation
assistance to those who
require it.
21. Provide security in or
control access to
evacuated areas.
22. Provide situation reports
on evacuation to the
County.
RETURN 9F~EVACUEES
23. If evacuated areas have ,
been damaged, reopen
roads, eliminate
significant health and
safety hazards, and
conduct damage
assessments.
24. Determine requirements
for traffic control for
return of evacuees.
FA 1-35
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
Action item
25. Determine requirements
for and coordinate
provision of
transportation for return
of evacuees.
26. Advise neighboring
jurisdictions that return
of evacuees will begin.
27. Advise evacuees through
the media that they can
return to their homes and
businesses; indicate
preferred travel routes.
28. Provide traffic control for
return of evacuees.
29. Coordinate temporary
housing for evacuees
who are unable to return
to their residences.
30. Coordinate with special
facilities regarding return
of evacuees to those
facilities.
31. If evacuated areas have
sustained damage,
provide the public
information that
addresses:
• Documenting
damage and
making
expedient
repairs
• Caution in
reactivating
utilities and
damaged
appliances
• Cleanup and
removal/disposa
I of debris
• Recovery
programs
32. Terminate temporary
shelter and mass care
operations.
FA 1-36
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
Action Item Assigned
33. Maintain access controls
for areas that cannot be
safely reoccupied.
i
FA 1-37
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
Appendix B-3 Evacuation Traffic Policy
In the event of an evacuation in the City:
1. All City employees not directly involved in the incident shall be available for
traffic control and direction.
2. The City has the authority to close local roads and to restrict access to and
from all areas of the City.
3. Roads under the jurisdiction of the Oregon Department of Transportation
(ODOT) would be authorized for closure by the ODOT District Manager; in
the case of a crime or fire, the authority includes the Oregon State Police.
4. The Ashland Police Department has the authority to remove stalled and
parked vehicles that impede the flow of traffic.
5. Traffic flow direction may be altered, reversed, etc. at the direction of the
Incident Commander when the situation warrants.
6. Changes in traffic flow will be coordinated with the County Sheriff, Oregon
State Police, ODOT, and City of Ashland Public Works.
FA 1-38
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FA 1. Emergency Services
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FA 1-39
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
Appendix B-4 Evacuation Guidelines
Document: Evacuation Guidelines
Section & Model Operational Guidelines
Adoption Date / Update: June 16, 2015 / April 2018
Developed/Updated By: Chief Karns / BC Lawless
Review Date: June 2019
Purpose
The purpose of this policy is to develop guidelines to assist personnel in
management of incidents involving evacuations.
Scope
Any incident involving the evacuation of residents from a hazard area requires a
close coordination with multiple agencies. A Unified Command will be
established between the various jurisdictions having authority and PIOs will be
fully utilized to facilitate public and other notifications. Authority to order
evacuation comes from ORS 162.255.
General provisions
■ The Incident Commander has the authority to order an evacuation.
■ Incident Commanders should utilize the Evacuation Checklist for
developing incident mitigation.
■ A Unified Command shall be located and established when events are
multi-jurisdictional
■ The Incident Commander shall identify the current situation, prioritize
problems, and order resources in a timely manner to facilitate orderly
evacuations.
■ Command Staff considerations shall be evaluated upon arrival.
■ A PIO shall be requested and an Evacuation Group shall be formed if
evacuations are currently underway, or are imminent. Evacuation
information must be disseminated to first responders, residents,
businesses, media, dispatch centers, and other stakeholders.
■ Establish a command structure that meets the current needs, can be
expanded to incorporate the future needs of the incident, and is designed
to effectively manage evacuations.
Pre-Incident Considerations
■ All agencies are encouraged to conduct preplanning for identified target
hazard evacuation risks inclusive of potential event types (i.e. large
gathering evacuation for a special event or a known potential for a
localized flood event etc.). Educating residents on Ready/Set/Go is highly
encouraged.
FA 1-40
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
■ Preplanning should include but not be limited to: identified local
evacuation/sheltering locations; local protocols for requesting immediate
evacuation support resources; developing necessary agreements and
MOU's for resource access and use; evacuation travel routes and traffic
control plans; and contact list of critical partners, planning and operational
templates to be used during the event.
■ Conduct localized exercises and train in-house responders in evacuation
processes and incident management.
■ Develop local response protocol for formation of Evacuation Group for
IA/emerging incident evacuation processes that can lay a successful
foundation for an expanding incident.
■ All preplanning should be done in accordance with Rogue Valley Fire
Chief s Association and OSFM recommended best practices.
Evacuation Group Considerations
■ IA or Emerging Event: The IC or Unified Command will most likely be
faced with limited resources for executing mitigation efforts and
evacuations. Early critical decision making will be required to address the
highest incident priority and initial response resources may be required to
engage in early evacuation processes rather than mitigation efforts. Every
effort should be made to ensure clear communications of the priority, the
need to shift in effort, and maintaining effective incident management.
■ Early incident organization is key and Task Force/Strike Team or
Divisional/Group resources may be called upon to quickly transition as the
incident dictates from mitigation to evacuation. This may continue to
occur until such time as relief resources arrive or the incident threat is
mitigated.
■ For wildland fire incidents involving evacuations, the most likely
management plan will involve wildland resources focusing on
mitigation/control efforts and structural resources focusing on structure
protection and evacuation efforts. The formation of an Evacuation Group
with appropriate levels of overhead and coordination will be key to
incidents with rapid incident growth potential.
■ Be prepared to manage:
• Re-entry of residents
• Refusal to evacuate
• Road closures / Road Blocks
• Additional assistance can be obtained through local SAR or
Trained CERTs where available.
■ Utilize the Ready/Set/Go (Level 1, 2, 3) program for tiered evacuations:
• Ready - Level 1
• Be ready for the potential to evacuate
■ Have a "go kit" ready
• Have an evacuation plan for your family and pets
FA 1-41
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
• Be fire wise and create a defensible space
• Set - Level 2
• This level indicates significant danger, if you decide to
stay, be ready to evacuate at a moment's notice
• This may be the only notice your receive if conditions
worsen
• Supply your "go kit" with all the essentials to last 2
weeks
• Stay connected with emergency information and
evacuation routes
• Go - Level 3
• If you chose not to evacuate, emergency services may
not be able to assist you
• Grab your "go kit" and leave immediately
• Follow your evacuation plan and stay informed
FA 1-42
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
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FA 1-43
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
Rogue Valley Fire Chief's Association Evacuation
Checklist
Considerations for a small localized event that affects less than 10 structures
and can be handled with minimal resources:
_ Incident Command located and established
Identify current situation/problems/potential
Prioritize problems /order resources
Notify Emergency Management
Command Staff Page Requested
Yes
No
_ Request PIO (Consider 2 for larger incidents - 1 w/ IC and 1 w/ Evacuation
Group/Branch)
Establish Evacuation Group with PIO and Law assigned
Establish Divisions/Groups as necessary (Escalating incidents)
Establish Structural Branch if Unified Command (Larger incidents 10 or
more homes)
Incident Commander or Branch Director to determine (Based on size of
incident)
-Number of structures threatened
Determine level of evacuation (one, two, or three)
Identify area to evacuate
Street name
Address block
Mile marker
Other
Method of notifying residents
I/A resources _ Law
Nixle in Jo/Jac County _ Other
-Keep PIO and Evacuation Group/Branch informed!
Shelter location/s for people and animals
Evacuation Routes/Roadblocks/Security
Special considerations
*Elderly *Handicapped *Animals
*Care facility *Other
Plans for return of residents (utilize PIO/Emergency Management/Law)
FA 1-44
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
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FA 1-45
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
Appendix B-5 Ashland Street Network with Bridges and Culverts
Ashland Street Network
with Bridges and Culverts
_ ` i. 4I ~.-1 NE • ST EhiECAl1 --.I. t'! 5 6'-~, Legend
s r i 5 t ~
,/t s Bridges and Culverts
~ k • 0 Bridge
til VTM.E VI NF~9Y rl L--. 1'2'i ~
Culvert
!f A. i h EX 51 i f, • Trestle
Essential Routes'
r r~'f a ryj. e"'w."' ' II,-,- '•g y~ . City Limit ro
\ \ S%!~ 55 4 NlR EY _ ~ J f1~~~1. I
f t i -~'_c J
%
EXII
i
74 4 55
7 1 J iiY l ~ •AS "'ND
w' li ' • y}'
CITY OF
ASHLAND
i V 1 i (r7 i
0 025 OS tNl ~ +
FA 1-46
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
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FA 1-47
i
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
Appendix B-6 Wildfire Evacuation Route
CITY OF
ASHLAND
Wildfire Evacuation Routes
~i JA
W,
E
7-:j 1
f
All
WIIdOre Evacuation Routes
C.O.P. -Ra6l ad \ S j Y t
6tneb `u•„ \ f
Wabe Pealum Pmu.y ~4 •1" - i `yO_gO. fl\. .
O clryum,U6eunea, mil' \
r men ey6616 eoa mot
FA 1-48
City of Ashland Emergency Management Plan Functional Annexes
FA 1. Emergency Services
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FA 1-49
FA 2 - Human Services
City of Ashland Emergency Management Plan Functional Annexes
FA 2. Human Services
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City of Ashland Emergency Management Plan Functional Annexes
FA 2. Human Services
Table of Contents
1 Purpose and Scope FA 2-1
2 Policies and Agreements ........................................FA 2-2
3 Situation and Assumptions FA 2-2
3.1 Situation FA 2-2
3.2 Assumptions FA 2-2
4 Roles and Responsibilities FA 2-3
4.1 Emergency Manager (Fire Chief) FA 2-3
4.2 American Red Cross FA 2-4
4.3 Fire & Rescue FA 2-5
5 Concept of Operations FA 2-5
5.1 General FA 2-5
5.2 Mass Care FA 2-6
5.2.1 Shelter FA 2-6
5.2.2 Sheltering Service and Companion Animals FA 2-7
5.3 Food and Water FA 2-7
5.4 Emergency Assistance FA 2-8
5.4.1 Disaster Welfare Information FA 2-8
5.4.2 Disaster Resource Center(s) FA 2-8
5.5 Long-Term Housing FA 2-9
5.6 Human Services FA 2-10
5.6.1 Behavioral Health FA 2-10
5.6.2' Access and Functional Needs Populations FA 2-10
5.7 Public Health Services FA 2-12
5.8 Volunteer and Donations Management FA 2-13
5.9 Agriculture and Animal Protection FA 2-13
5.9.1 General FA 2-13
5.9.2 Agricultural Food Supply FA 2-14
5.9.3 Animal and Plant Diseases and Health FA 2-14
5.9.4 Care and Assistance for Animals FA 2-14
5.9.5 Natural and Cultural Resources and Historic Properties FA 2-15
5.9.6 Policies and Authorities FA 2-15
5.10 Care of Response Personnel and EOC Staff FA 2-16
6 Annex Development and Maintenance FA 2-16
FA 2-iii
City of Ashland Emergency Management Plan Functional Annexes
FA 2. Human Services
7 Supporting Plans and Procedures FA 2-17
8 Appendices FA 2-17
Appendix A Shelter Materials FA 2-19
Appendix A-1 Shelter Survey Form FA 2-21
Appendix A-2 Sample Shelter Agreement FA 2-31
FA 2-iv
City of Ashland Emergency Management Plan Functional Annexes
FA 2. Human Services
FA 2 Tasked Agencies
Ashland Emergency Manager
Primary Agencies Jackson County Health and Human.Services
American Red Cross
Fire & Rescue
Community Emergency Response Team
Ashland Parks & Recreation
Supporting
Agenc Jackson County Emergency Management
i es
Jackson County Sheriffs Office
Ashland School District
Local Volunteer and Faith-Based Organizations
1 Purpose and Scope
This annex provides information regarding the City of Ashland's (City's)
response to the needs for mass care/sheltering, human services, and public health
support for victims of natural and technological emergencies and disasters. It
outlines basic roles and responsibilities for primary agencies, provides a concept
of operations to assist the City in coordinating emergency services, and references
related authorities, agreements, and supporting plans. The City Emergency
Management Organization, as outlined in the Basic Plan of this Emergency
Management Plan, is designed to provide support to local human services
agencies through assistance in accessing needed resources and coordination in
more complex incidents and events. Nothing in this annex is meant to replace or
supersede the standard operating procedures of local response agehcies.
This annex covers the following functions:
■ Mass Care _
■ Emergency Assistance
■ Housing
■ Human Services
■ Public Health Services
■ Care of Emergency Response Personnel and Emergency Operations
Center (EOC) Staff
■ Agriculture and Animal Protect
■ Volunteer and Donations Management
For larger events that may require short- or long-term housing for disaster
victims, Jackson County (County) Emergency Management coordinates this need
with the City Emergency Manager. Emergency shelter includes the use of pre-
identified shelter sites in existing structures, creation of temporary facilities or
shelters, and use of other facilities outside the incident area, should evacuation be
necessary.
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Food is provided to victims through a combination of fixed sites, mobile feeding
units, and bulk distribution. Emergency first aid, consisting of basic first aid and
referral to appropriate medical personnel and facilities, is provided at mass
care/sheltering facilities. Bulk distribution of emergency relief items, such as
food, water, and ice is managed and coordinated via established sites within the
City. Some situations may require coordination and management of volunteer
services and donated goods to maximize benefits without hindering response
activities.
Emergency response agencies for the City will also identify and coordinate
assistance for Access and Functional Needs Populations (also called Special
Needs and Vulnerable Populations) within the impacted area. Access and
Functional Needs Populations describes members of the community who
experience physical, mental, or medical care needs who may require assistance
before, during, and after an emergency incident after exhausting their usual
resources and support network.
2 Policies and Agreements
The following policies and agreements are currently in place to support
emergency services for the City:
■ Sheltering and feeding citizens during a disaster is the task of the
American Red Cross and Ashland Parks and Recreation.
■ The Red Cross has agreements with approximately 30 businesses and
schools in Ashland. Ashland incident management staff may request
that a shelter be opened by calling the Southwest Oregon Chapter of
The American Red Cross at 541-779-3773 or 1-800-433-9285.
3 Situation and Assumptions
3.1 Situation
Emergencies or disasters can necessitate evacuation of people from residences
that are temporarily uninhabitable, damaged, or destroyed. Providing for these
victims will consist of making facilities and services available and coordinating
activities with government agencies and volunteer disaster assistance
organizations. Emergency shelter or housing needs may be short or long term.
When such needs arise, it is the responsibility of the City to work with the various
human service agencies to meet them.
3.2 Assumptions
■ Although City government has primary responsibility for
implementing and coordinating the resources and services included in
this annex, the Red Cross will manage and coordinate sheltering and
mass care operations to the extent of its capability. The Salvation
Army will support these operations, and other professional and/or
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volunteer organizations (e.g., faith-based organizations) that normally
respond to emergency/disaster situations will continue to do so.
■ The Red Cross will have agreements in place for use of specific
shelters that could be activated by calling the local Red Cross
representative. These shelters may be used for specific events
associated with the City and County, as well as housing evacuees from
neighboring counties if the need arises.
■ Permission to use Red Cross-approved facilities for disaster operations
and sheltering will be obtained and agreed upon in writing. Pre-
identified facilities intended for shelter and mass care will be available
and operational at the time of need.
■ City government and other available response agencies will manage
and coordinate all shelter and mass care activities until the Red Cross
has arrived on scene, assessed the situation, and activated procedures
for preparing and operating shelters.
■ Assistance will be available through mutual aid agreements with the
County, other counties, other regions, and State of Oregon (State) and
Federal emergency agencies and organizations.
■ Unique demands will be placed on the delivery of human services,
including crisis counseling, emergency assistance, and the care of
access and functional needs groups. As a consequence, the clientele
groups of both local and State human service organizations will
increase.
■ Under localized emergency conditions, a high percentage of evacuees
will seek lodging with friends or relatives rather than go to established
facilities.
■ If the threat of an evacuation is due to a visible hazard or has been
discussed in the media, some spontaneous evacuation will occur prior
to an implementing order. Therefore, mass care operations may have
to commence early in any disaster period.
4 Roles and Responsibilities
The roles and responsibilities for each department in support of emergency
services will vary depending on the type of resource, the length of the warning
period, and the duration of the incident.
4.1 Emergency Manager (Fire Chief)
■ Coordinate emergency preparedness planning and exercise activities
with the Red Cross.
■ Identify local government's authority, responsibility, and role in
providing long-term temporary emergency housing for disaster
victims.
■ Assess the situation and issue appropriate notifications to activate and
staff the EOC, including notification of the Red Cross, if it is
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determined that a representative is needed to coordinate emergency
food and shelter.
■ Establish a communications link with affected jurisdictions, volunteer
agencies, and the public and ensure that they are kept informed of
available shelters.
■ Assist in coordinating logistics to support operations and ensure that
the provisions of any memorandum of understanding (MOU) are
implemented, as necessary.
■ Coordinate with local, State, and Federal agencies in damage
assessment and cost recovery activities, as well as identify long-term
temporary emergency housing options.
■ Ensure that necessary communication activities are conducted to
inform the public of disaster recovery activities, including information
regarding long-term temporary emergency housing assistance.
■ Continue to assist in restoration of normal services and operations, as
appropriate.
■ Conduct an After Action Report regarding the overall effectiveness of
the City's efforts in providing emergency food and shelter.
4.2 American Red Cross
It is not the intent of the City to supplant the Red Cross as the primary provider
and coordinator of emergency housing, sheltering, and feeding services; however,
the City is not relieved of its obligation for the welfare of its citizens in times of
emergencies, as outlined in Chapter 401 of the Oregon Revised Statutes.
■ Develop and maintain plans, procedures, and policies for establishing,
managing, and operating a feeding and sheltering system to meet the
needs created by a major disaster.
■ Develop and maintain MOUs with local governments to define and
clarify roles and responsibilities in preparing for and responding to
disasters.
■ Participate in the annual training exercises conducted by the City
Emergency Management Organization to test the Emergency
Management Plan.
■ Implement the response actions outlined in the MOU with the City, as
necessary.
■ Evaluate the direct or indirect effects of the hazard on available shelter
resources.
■ Provide specific resource requirements, including feeding support,
clothing and bedding supplies, emergency registration of people, and
trained shelter management volunteers. Community Emergency
Response Team may be utilized and requested through Ashland Fire &
Rescue.
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■ Coordinate activities with voluntary organizations active in disaster;
faith-based organizations; other social service agencies; and local,
State, and Federal government to provide emergency food and shelter.
■ Assist the City in determining post-emergency needs for long-term
emergency temporary housing, as requested.
■ Prepare a report on the condition of shelter facilities and make
arrangements for returning them to normal use.
■ Compile a record of emergency expenditures.
■ Critique the provision of shelters for people displaced from their
residences and institute reforms, as required.
4.3 Fire & Rescue
■ Provide personnel, supplies, materials, and facilities as available in
support of this function.
■ Establish a shelter Emergency Medical Services response plan.
■ Provide fire and line safety inspections, as appropriate.
5 Concept of Operations
5.1 General
The City Council has overall responsibility for ensuring the welfare of citizens
and visitors within the City during an emergency or disaster. In cooperation with
available volunteer disaster assistance organizations, the City Emergency
Manager will ensure the provision of basic human services. Disaster victims will
be encouraged to obtain housing with family or friends or in commercial
facilities. To the greatest extent possible, the City will assist and coordinate the
post-disaster housing needs of the homeless. While coordinated City/Red Cross
decision-making is desirable, the Red Cross may independently initiate
operations. The Salvation Army and other charitable groups (e.g., faith-based
organizations) will provide additional support for disaster victims.
In the case of unmet needs, the Emergency Manager will make requests for
County assistance via the EOC to County Emergency Management. Some
emergencies will not entail mass care assistance but will still require a limited
amount of emergency food and clothing.
Initial preparedness efforts will begin with identification of population groups
requiring special assistance during an emergency (e.g., senior citizens and the
handicapped). Needs should be matched to capabilities and resources, and any
gaps should be addressed through planning, training, and exercises. When an
incident occurs and evacuation is required, preparations will begin for receiving
evacuees at selected facilities. Essential personnel, including volunteers, will be
alerted; pre-positioned material resources (cots, blankets, food, etc.) will be made
ready; and medical facilities will be alerted to the possibility of receiving evacuee
patients. Participating agencies will provide food and clothing as needed, assist
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with registration of evacuees/victims, and provide information to assist victims
needing additional services. Once the incident transitions to the recovery phase,
the human needs of victims should be continually assessed and met as necessary
via one or more Disaster Recovery Center.
5.2 Mass Care
Mass care includes the registration of evacuees, the opening and management of
temporary lodging facilities, and the feeding of evacuees and workers through
both mobile and fixed feeding sites. The Red Cross will assist in registering
evacuees and, as applicable, will coordinate information with appropriate
government agencies regarding evacuees housed in Red Cross shelters.
5.2.1 Shelter
Protective shelters are life-preserving; they are designed to afford protection from
the direct effects of hazard events and may or may not include the life-supporting
features associated with mass care facilities. In contrast, mass care facilities are
life-supporting; they provide protection from the elements and basic life-
sustaining services when hazard events result in evacuations.
The American Red Cross will provide shelter staff, logistical support, and
communications with the assistance of Ashland's Parks and Recreation. In
addition, the Red Cross will manage evacuee registration and provide basic
medical services to shelter residents. The Red Cross can provide quarantine for
carriers of infectious diseases, but cannot provide decontamination for hazardous
materials or radiological emergencies. This duty remains with the Incident
Management staff (Hazardous Materials).
The designation of specific lodging and feeding facilities will depend on the
actual situation and the location of the hazard area. Public school facilities will
receive prime consideration for use as emergency mass care facilities; such use
will be coordinated with school officials. Selected facilities will be located far
enough from the hazard area to preclude the possibility of the threat extending to
the mass care facility. Agreements for use of some facilities have been obtained
by the Red Cross. The City Administrator will obtain permission from owners to
use other facilities as required. When Red Cross facilities are opened, the Red
Cross will be responsible for maintaining all functions and staffing according to
Red Cross policy. The Red Cross will maintain listings of qualified and trained
shelter and lodging facility managers.
Options for temporary shelter available to the City during the first 72 hours of an
incident include:
■ Predetermined sheltering sites and supplies available through the Red
Cross.
■ General purpose tents available through the Oregon National Guard
and requested by the County EOC to Oregon Emergency Management.
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■ If a Presidential Declaration has been made, temporary buildings or
offices requested through the Federal Coordinating Officer.
A designated member of the City EOC staff may serve as the City Shelter
Coordinator. Services will be provided through the coordinated efforts of staff
members, the Red Cross, the Salvation Army, other State-supported agencies,
volunteer agencies, and mutual-aid agreements with various support groups. Law
enforcement agencies will provide security at shelter facilities, where possible,
and will also support back-up communications, if needed.
Food will be provided to victims through a combination of fixed sites, mobile
feeding units, and bulk distribution. Feeding operations are based on nutritional
standards and, if possible, should include meeting dietary requirements of victims
with special dietary needs. The Red Cross will be responsible for meal planning,
coordination of mobile feeding, and identifying feeding sites and resources for the
procurement of food and related supplies. The American Red Cross will
coordinate all mass feeding and other services needed at open shelters within the
City's jurisdiction with City Emergency Management via the City EOC.
Shelter/lodging facility managers will be responsible for the operation of their
individual facilities. The primary communications link between shelter facilities
and the EOC will be landline and cellular phones. If telephones cannot be used or
are overloaded, law enforcement personnel may provide radio assistance. Shelter
facility managers should arrange for persons in their facilities to monitor
prescribed communication sources for guidance and announcements.
5.2.2 Sheltering Service and Companion Animals
The City, the Red Cross, and other organizations or groups providing sheltering
and mass care will comply with Americans with Disabilities Act (ADA)
requirements for service animals, with the facility owners' limitations, and with
County and State of Oregon Health Code requirements.
Pets are not allowed in Red Cross shelters due to Health Department regulations.
However, the American Red Cross will help coordinate with Jackson County and
the American Humane Association to arrange for food and sheltering of animals
during disasters. Evacuees should provide food and water for pets prior to leaving
their homes. Jackson County Animal Control may be able to provide limited
shelter for threatened small animals. Depending on the emergency, evacuees may
be requested to provide food and water for pets prior to leaving their homes, or
they may take small animals to a pet care facility at their own direction and
expense.
5.3 Food and Water
Emergency relief items to meet urgent needs are distributed via established sites
within the affected area. Distribution of food, water, and ice through Federal,
State, and local governmental entities and non-governmental organizations is
coordinated at these sites. The Red Cross will coordinate all bulk distribution
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activities needed within the City's jurisdiction with the City Emergency Manager
via the City EOC. Activities to consider when planning for providing food and
water after a disaster includes:
■ Assessing the food and water needs for areas impacted by the disaster.
■ Identifying food and water resources.
■ Storing food and water resources.
■ Collecting and sorting of food and water supplies.
■ Transporting food and water resources to impacted areas.
■ Assuring the safety of the food and water.
5.4 Emergency Assistance
5.4.1 Disaster Welfare Information
Disaster Welfare Information collects and provides information regarding
individuals residing within the affected area to immediate family members outside
the affected area. The system also aids in reunifying family members within the
affected area. The Red Cross will establish a Disaster Welfare Inquiry Operation
to answer requests from relatives and friends concerning the safety and welfare of
evacuees or those in disaster areas. Welfare inquiry listings, along with
registration listings, will be coordinated with the EOC and law enforcement
agencies for comparison with missing person's lists. County Amateur Radio
Emergency Services provides support to the Red Cross and City Emergency
Management in gathering, disseminating, and managing disaster welfare
information.
5.4.2 Disaster Resource Center(s)
Upon a Presidential disaster declaration, a Disaster Resource Center may be
established. In addition to numerous grant and assistance programs available
through the Disaster Resource Center, the Individual and Family Grant Program
provides grants to meet disaster-related necessary expenses or serious needs for
which assistance by other means is either unavailable or inadequate.
Logistics Section personnel may be called upon to arrange a large facility (often a
school, church, or community center) to serve as a Disaster Recovery Center. The
Federal Emergency Management Agency is responsible for operating Disaster
Recovery Centers, which are often located in facilities such as schools, churches,
and community centers. A Disaster Recovery Center provides a location where
citizens can meet with local, State, Federal, and volunteer agency representatives
to apply for disaster assistance. Advertising of these facilities will be coordinated
by the Public Information Officer through the Joint Information Center, located in
the Federal/State disaster field office. Federal, State, local and volunteer agencies
may provide or accept applications for the following services through the Disaster
Recovery Center:
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■ Temporary housing for disaster victims whose homes are
uninhabitable as a result of a disaster.
■ Essential repairs to owner-occupied residences in lieu of temporary
housing so that families can return to their damaged homes.
■ Disaster unemployment and job placement assistance for those
unemployed as a result of a major disaster.
■ Disaster loans to individuals, businesses, and farmers for refinancing,
repair, rehabilitation, or replacement of damaged real and personal
property not fully covered by insurance.
■ Agricultural assistance payments, technical assistance, and Federal
grants for the purchase or transportation of livestock.
■ Information regarding the availability of and eligibility requirements
for food stamps.
■ Individual and family grants to meet disaster-related expenses and
other needs of those adversely affected by major disasters when they
are unable to meet such needs through other means.
■ Legal counseling to low-income families and individuals.
■ Tax counseling concerning various disaster-related benefits.
■ Consumer counseling and assistance in obtaining insurance benefits.
■ Crisis counseling and referrals to mental health agencies to relieve
disaster-caused mental health problems.
■ Social Security assistance for those who are eligible, such as death or
disability benefits or monthly payments.
■ Veterans' assistance such as death benefits, pensions, insurance
settlements, and adjustments to home mortgages held by the Veterans
Administration (VA) if a VA-insured home has been damaged.
■ Other specific programs and services appropriate to the disaster.
Logistics may also arrange office space, document reproduction services, etc. for
State and Federal damage assessment teams.
If Federal mobile homes are to be supplied for use as emergency shelters, the
Logistics Section may assist in site choice and preparation consistent with the
City's local comprehensive land use plan.
5.5 Long-Term Housing
All housing needs identified during and following emergency incidents or
disasters impacting the City will be coordinated through County Emergency
Management via the County EOC. In some disaster situations, the Federal
government may be requested to provide emergency housing. Disaster victims
will be encouraged to obtain housing with family or friends, or in commercial
facilities. To the greatest extent possible, local and County government will
coordinate post-disaster housing needs for the homeless population.
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5.6 Human Services
5.6.1 Behavioral Health
The City relies on Jackson County Health and Human Services for behavioral
health services during a disaster. Details regarding the provision of these services
in provided in the County EOP.
Additional agencies and organizations involved with providing crisis counseling
and mental health support to victims and families, the first responder community,
and Access and Functional Needs Populations include:
■ Area hospitals.
■ County and regional volunteer organizations.
■ Local nursing homes and care facilities.
See the Jackson County EOP, Emergency Support Function (ESF) 6 - Mass Care,
Emergency Assistance, Housing, and Human Services for more details.
5.6.2 Access and Functional Needs Populations
The needs of children and adults who experience disabilities and others who
experience access and functional needs shall be identified and planned for as
directed by policy makers and according to State and Federal regulations and
guidance. The City will seek the assistance of Jackson County Health and Human
Services and other human service agencies or organizations to assist in
coordinating the emergency housing, sheltering, and feeding of Access and
Functional Needs Populations. The following is a detailed description of the
types of support individuals within each functional need category may require:
■ Maintaining Independence. Individuals requiring support to be
independent in daily activities may lose this support during an
emergency or a disaster. Such support may include consumable
medical supplies (diapers, formula, bandages, ostomy supplies, etc.);
durable medical equipment (wheelchairs, walkers, scooters, etc.);
service animals; and/or attendants or caregivers. Supplying needed
support to these individuals will enable them to maintain their pre-
disaster level of independence.
■ Communication. Individuals who have limitations that interfere with
the receipt of and response to information will need that information
provided in methods they can understand and use. They may not be
able to hear verbal announcements, see directional signs, or understand
how to get assistance due to hearing, vision, speech, cognitive, or
intellectual limitations, and/or limited English proficiency.
■ Transportation. Individuals who cannot drive or who do not have
vehicles may require transportation support for successful evacuation.
This support may include accessible vehicles (e.g., lift-equipped
vehicles or vehicles suitable for transporting individuals who use
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oxygen) or information about how and where to access mass
transportation during an evacuation. -
■ Supervision. Before, during, and after an emergency, individuals may
lose the support of caregivers, family, or friends or may be unable to
cope in a new environment (particularly if they have dementia,
Alzheimer's disease, or psychiatric conditions such as schizophrenia
or intense anxiety). If separated from their caregivers, young children
may be unable to identify themselves, and when in danger, they may
lack the cognitive ability to assess the situation and react
appropriately.
■ Medical Care. Individuals who are not self-sufficient or who do not
have adequate support from caregivers, family, or friends may need
assistance with managing unstable, terminal, or contagious conditions
that require observation and ongoing treatment; managing intravenous
therapy, tube feeding, and vital signs; receiving dialysis, oxygen, and
suction administration; managing wounds; and operating power-
dependent equipment to sustain life. These individuals require the
support of trained medical professionals.
5.6.2.1 Children and Disasters
Planning and preparing for the unique needs of children is of utmost concern to
the City and, whenever possible, the City will consider preparedness, evacuation,
and shelter operations, and public outreach and education activities that identify
those issues particular to children. In particular, these issues may include:
■ Preparedness. Preparedness activities that relate to the needs of
children. This includes involving members of the community familiar
with children's issues.
■ Evacuation. Identifying where children are located (schools, daycare
centers) and how they will be evacuated.
■ Shelter. Identifying resources for diapers, formula, and food
appropriate for all ages; portable cribs and playpens; and staffing
resources needed to supervise unaccompanied children.
■ Public Outreach and Education. Promoting personal preparedness
among families with children as well as at local schools and daycare
centers.
5.6.2.2 Household Pets and Service Animals
Whenever possible, the City will consider preparedness, evacuation, shelter
operations, and public outreach and education activities that identify issues
particular to household pets and service animals. These issues may include:
■ Preparedness. Preparedness activities that relate to the needs of
household pets and service animals. This includes involving members
of the community familiar with pet and service animal issues.
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■ Shelter. Identifying resources for food and crates, as well as staffing
resources needed to supervise household pets.
■ Public Outreach and Education. Promoting personal preparedness
among families with pets as well as at local pet rescue agencies.
See the Jackson County EOP, SA F-Animals in Disaster for more details.
5.6.2.3 Managing, Transportation and Communicating
Agencies and organizations involved in managing, transporting, and
communicating with Access and Functional Needs Populations during an
emergency and pertaining to mass care include:
■ Area hospitals
■ Private clinics and care facilities
■ Red Cross and other volunteer agencies
■ School districts
■ Local radio stations serving the City
■ Citizen Alert System/Everbridge
Nursing homes and residential care facilities are required to have disaster and
emergency plans in place that ensure the transfer of clients to appropriate
facilities.
5.6.2.4 Programs in Place
The City has the following programs in place for vulnerable populations:
■ Rogue Valley Council of Governments
■ Options for Homeless Residents of Ashland
To learn more about the Federal Emergency Management Agency's Office of
Disability Integration and Coordination and the Functional Needs Support
Services Guidance, visit http://www.fema.gov/about/odic/.
See the Jackson County EOP, SA G - Special Needs Populations for more details.
5.7 Public Health Services
Jackson County Health and Human Services provides health, and welfare services
to all citizens within Jackson County. Contact with the Department during a
major emergency will be through Jackson County Emergency Management or the
County EOC.
Services provided by Jackson County Health and Human Services may include:
■ Upon request, screening shelter residents and visitors for
communicable diseases.
■ Establishing and monitoring isolation space.
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■ Providing staff and supplies for immunizations as directed by the
medical officer.
■ Providing advice on sanitation measures for emergency food and
water.
■ Monitoring garbage and waste disposal.
Health and Human Services will request emergency medical, health and welfare
services not available in the County from the Oregon Health Authority.
See the Jackson County EOP, ESF 8 - Public Health and Medical Services for
more details.
5.8 Volunteer and Donations Management
Responsibilities related to volunteer and donations management include:
■ Coordinating the disaster response activities of volunteers affiliated
with City-recognized community and faith-based groups.
■ Coordinating and/or providing guidance on the management and/or
utilization of solicited donations (physical and monetary) received by
City-recognized community and faith-based groups.
■ Managing spontaneous/unaffiliated volunteers and unsolicited
donations and referring those resources to appropriate City recognized
community and faith-based groups.
■ Providing guidance to community and faith-based groups engaged in
the management of spontaneous/unaffiliated volunteers and/or
unsolicited donations as requested.
All volunteer and donations management-related activities will be performed in a
manner that is consistent with the National Incident Management System and the
Robert T. Stafford Disaster Relief and Emergency Assistance Act.
Requests for assistance with volunteer and donations management will first be
issued in accordance with established mutual aid agreements; once those
resources have been exhausted, a request may be forwarded to the County EOC.
5.9 Agriculture and Animal Protection
5.9.1 General
County Emergency Management and other County departments and organizations
will coordinate and/or provide the agriculture and natural resources services they
are equipped to and then coordinate with other emergency response partners,
especially Oregon Department of Agriculture (ODA) and United States
Department of Agriculture (USDA), for emergencies that affect the local
agricultural food supply, animal and plant health, and the well-being of animals in
the County. If the provided services still are not adequate, the County can declare
a state of emergency in accordance with the declaration requirements in the
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County EOP Basic Plan. If the County EOC is activated, agriculture and natural
resources services will be coordinated through the County EOC.
5.9.2 Agricultural Food Supply
The County will coordinate with its emergency response partners regarding the
safety and viability of locally grown food (including items grown in private
gardens) potentially affected by an emergency event (such as drought, flooding, a
terrorist act involving hazardous or radioactive materials, etc.). This will entail
coordinating with ODA, USDA, County Health and Human Services, and others
regarding the safety of the local food supply and, for a national emergency, the
safety of the national food supply, in order to inform and protect persons in the
County.
5.9.3 Animal and Plant Diseases and Health
Domestic animals, wild animals, plants, and the timber industry could be
vulnerable to the spread of animal or plant diseases related to an emergency. The
County has procedures and policies specific to managing disease control and the
health of certain animals and plants affected by an emergency, which are
referenced in Clackamas County's ESF 8 - Public Health and Medical Services.
Important elements to consider include the identification and control of animal
and plant diseases associated with or exacerbated by an emergency; isolation or
quarantine of animals; and the disposition df animals killed by the emergency or
required to be destroyed as a result of the emergency.
The County will coordinate with emergency response partners for related
information and services. With support from the Oregon Department of Human
Services, the County will be the principal point of contact for an outbreak of a
highly infectious/contagious animal or zoonotic (capable of being transmitted
from animals to people) disease posing potential impacts to human health.
The ODA in particular has broad expertise with animal and plant diseases and
health, including the authority to:
■ Declare an animal health emergency.
■ Impose restrictions on importations of animals, articles, and means of
conveyance.
■ Quarantine animals, herds, parts of the State, and the entire State and
create quarantine areas.
■ Stop the movement of animals.
■ Require the destruction of animals, animal products, and materials.
■ Animal quarantine measures will be implemented through county Public
Health Departments and do not require a court order.
5.9.4 Care and Assistance for Animals
The County recognizes that care and concern for domestic animals might delay
and affect emergency actions necessary for the well-being of humans. Animals in
Disasters planning should address care and assistance for livestock, household
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pets, other domestic animals that are not household pets (e.g., horses), and wild'
animals affected by an emergency. This includes concerns such as sheltering
them, evacuating them, and aiding injured or displaced animals. The County will
coordinate with local emergency response partners to accomplish this, including
County Emergency Management (which might open animal evacuation shelters,
for instance, at a local school), local veterinarians, the ODA (for livestock and
other domestic animals that are not pets), and Oregon Department of Fish and
Wildlife (for wild animals).
Persons in the City and County have the primary responsibility for the health and
,welfare of their livestock, household pets, and other domestic animals and will be
encouraged to provide for their care in an emergency to the extent possible. This
is best handled by public information campaigns as part of emergency
preparedness.
Additional information is provided in Clackamas County's EOP, Support Annex 3
-Animals in Disaster.
5.9.5 Natural and Cultural Resources and Historic Properties
Local soil and water conservation districts and other state and federal
organizations will take the lead for assessing threats to natural resources from an
emergency, including water quality, air quality, forest land, fishing, wildlife, soil
quality, and others. The County will coordinate with the State Historic
Preservation Office and others regarding impacts to cultural resources and historic
properties owned or managed by the County.
Important emergency response entities will include County and State Forestry
Departments, local soil and water conservation districts, Oregon Department of
Environmental Quality, Oregon Department of Fish and Wildlife, and tribal
organizations.
5.9.6 Policies and Authorities
The ODA, in accordance with Oregon State law, specifically Oregon Revised
Statutes, Chapter 596 (Disease Control Generally) and Oregon Administrative
Rules 603 Division 11, has the authority to:
■ Declare an animal health emergency.
■ Impose restrictions on importations of animals, articles, and means of
conveyance.
■ Quarantine animals, herds/flocks, parts of the State, and the entire State;
create quarantine and isolation areas.
■ Stop the movement of animals.
■ Require the destruction of animals, animal products, and materials.
■ Specify the method for destruction and disposal of animals, products, and
materials.
■ Indemnify owners for animals destroyed.
■ Employ deputy state veterinarians and livestock inspectors.
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Farm Service Agency (FSA) programs are administered through the USDA and
are subsequently activated by the United States Secretary of Agriculture in
support of a natural hazard event, such as drought. These include:
■ Noninsured Assistance Program
■ Emergency Conservation Program
■ Emergency Conservation Reserve Program Haying and Grazing
Assistance
■ Emergency loans
Not all FSA programs require a disaster declaration prior to activation.
The FSA has local offices throughout the State, including in Oregon City, that are
often co-located with the Natural Resources Conservation Service and/or the local
soil and water conservation district office. More information about programs
administered by the FSA can be accessed via the following website:
http://disaster.fsa.usda.gov/fsa.asp
5.10 Care of Response Personnel and EOC Staff
Unexpected emergencies may require City employees to remain on duty without
the opportunity to return home to check on their families. The Welfare Unit
within the EOC Logistics Section will assign personnel to make contact by phone
or in person to on duty personnel families, and relay status back to the Emergency
Center. Welfare Unit staff will ensure that the status of the families of on-duty
personnel is relayed to the employee. In addition, the Public Information Officer
will establish a number for family members to call to get information or leave
messages for on-duty personnel.
Emergency Communications of Southern Oregon maintains a comprehensive list
of all city employees, their addresses, and dependents. Home phone numbers and
addresses are privileged information and not to be released to the media or to the
public without prior approval.
Response personnel will be released to their homes or stations to sleep. If
necessary, space may be arranged in a shelter. This shelter should be different
than the one used for disaster victims or evacuees.
Families of response personnel may be sheltered together in the event of an
extended incident involving a major shelter operation. This will facilitate keeping
families informed and help maintain the morale of response personnel.
6 Annex Development and Maintenance
The Emergency Manager is responsible for regular review and maintenance of
this annex. To ensure that City staff is familiar with their roles in providing
human services, the City will incorporate elements of human services into its
training and exercise program.
FA 2-16
City of Ashland Emergency Management Plan Functional Annexes
FA 2. Human Services
7 Supporting Plans and Procedures
The following documents support human services for the City:
■ County Emergency Operations Plan
• ESF 6 - Mass Care, Emergency Assistance, Housing, and
Human Services
• ESF 8 - Public Health and Medical Services
• ESF 11 - Agriculture and Natural Resources
• ESF 14 - Long-Term Community Recovery
• SA F - Animals in Disaster
• SA G - Special Needs Populations
■ Jackson County Health and Human Services Emergency Operations
Plan
8 Appendices
Appendix A Shelter Materials
■ A-1 Shelter Survey Form
■ A-2 Sample Shelter Agreement
I
FA 2-17
O
City of Ashland Emergency Management Plan Functional Annexes
FA 2. Human Services
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FA 2-18
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City of Ashland Emergency Management Plan Functional Annexes
FA 2. Human Services
Appendix A Shelter Materials
A-1 Shelter Survey Form
A-2 Sample Shelter Agreement
FA 2-19
City of Ashland Emergency Management Plan Functional Annexes
FA 2. Human Services
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FA 2-20
City of Ashland Emergency Management Plan Functional Annexes
FA 2. Human Services
Appendix A-1 Shelter Survey Form
Thisform is intended to record information needed to make decisions when it becomes necessary to open a
shelter.
Directions:
Please print all information. Complete one survey for each area within a facility that is to be used as a shelter or,
if the entire facility is to be used as a shelter, for each facility. Complete all sections as thoroughly as possible,
indicating numbers, space dimensions, etc.
This form is generic to many types of facilities; some of the questions on this form may not apply to every site. In
such cases, answer not applicable (N/A).
General Facili Information
Facility Information
Facility Name:
Name/Description of area in this facility being surveyed for use as a shelter (e.g., gymnasium):
Are there other areas in this facility being surveyed? If yes, name them.
Governing Agency/Owner:
Street Address:
Town/City: Zip Code:
Latitude: Longitude:
Map Locator Information (map name, page, grid):
Mailing Address (if different):
Business Phone Number: ( ) Fax Number: ( ) -
E-mail Address (if applicable):
Primary Contact to Authorize Facility Use: Alternate Contact to Authorize Facility Use:
Name: Name:
Day Phone: ( ) - Day Phone: ( ) -
After Hours/Emergency Phone: After Hours/Emergency Phone: O
Mobile Phone: ( ) - Mobile Phone: ( ) -
E-mail: E-
mail:
FA 2-21
City of Ashland Emergency Management Plan Functional Annexes
FA 2. Human Services
Primary Contact to Open Facility: Alternate Contact to Open Facility:
Name: Name:
Day Phone: ( ) - Day Phone: ( )
After Hours/Emergency Phone: After Hours/Emergency Phone: ( )
Mobile Phone: ( )
E-mail: Mobile Phone: ( )
E-mail:
Facility Physical Information
***Attach a sketch or copy of the facility floor plan.
Availability for Use/Use Restrictions
Some facilities arc only available durim, certain times due to other activities. Please indicate the periods that the facility is available.
❑ Facility available for use at any time of the year
❑ Facility only available for use during the following time periods:
From: to
From: to
❑ Facility is not available for use during the following time periods:
From: to
From: to
Is the facility within 5 miles of an evacuation route? ❑ Yes ❑ No
Is the facility within 10 miles of a nuclear or hazardous materials storage or disposal site? ❑ Yes ❑ No
Are there trees, towers, or other potential hazards that could impact the safety of the facility or block access to it
after a disaster? ❑ Yes ❑ No
If yes, please describe:
Is smoking allowed in the facility buildings? ❑ Yes ❑ No
Is smoking allowed on the facility grounds? ❑ Yes ❑ No
Capacity
Shelter Capacity - How many persons can be accommodated for sleeping?
Area available for shelter use:
Length: x Width: = Total Area:
Record only useable space. For example, if a room is 600 square feet but has furniture or fixtures that occupy
half of that space and can't or won't be removed, the useable space is 300 square feet.
The area listed above ❑ is ❑ is not ❑ is partially disabled accessible.
Calculation of Shelter Capacity (Total Area - Square feet per person = Capacity)
Recommended range of square feet per person by shelter type:
Evacuation shelter: 15 to 30 square feet per person
General shelter: 40 to 60 square feet per person
Access and Functional Needs Shelter: 80 square feet per person
FA 2-22
City of Ashland Emergency Management Plan Functional Annexes
FA 2. Human Services
Type of Shelter I Total Area Square Feet/ Capacity
per person
❑ Evacuation
❑ General
❑ Access and Functional Needs
* Does the actual layout of the area being surveyed decrease the usable space and significantly impact the capacity
of the area? If so, explain.
Seating Capacity - How many persons can be accommodated in fixed (not pull-out) seating areas (bench
and flip-up type seating)?
❑ Bench Measured Linear Feet of Bench 16 ft/person = Bench Seating Capacity
❑ Chairs Number of Chairs Counted = = Seating Capacity
❑ Not Applicable
Number of on-site parking spaces (do not include on-street parking in this figure):
Number of handicapped parking spaces:
Do curb cuts exist in and exiting the parking area that are at minimum 35 inches wide? ❑ Yes ❑ No
When the facility is in normal use (e.g., school in session): When the facility is not in normal use (e.g., school
❑ On-site parking is adequate for shelter residents not in session):
❑ Off-site parking is available as noted below (e.g., on ❑ On-site parking is adequate for shelter residents
streets around the school): ❑ Off-site parking is available as noted below (e.g.,
on streets around the school):
❑ There is not adequate on-site or off-site parking
available ❑ There is not adequate on-site or off-site parking
available
General Facility Construction
Facility Construction Number of stories: Approximate year of
❑ Wood Frame ❑ Prefabricated construction:
❑ Concrete ❑ Trailer Elevator: Chair Lift:
❑ Masonry ❑ Bungalow ❑ Yes ❑ No ❑ Yes ❑ No
❑ Metal ❑ Pod
❑ Portable Classroom ❑ Other Where, in relation to Quantity:
If "Other," describe: shelter area?
FA 2-23
City of Ashland Emergency Management Plan Functional Annexes
FA 2. Human Services
❑ Accessible doorways (minimum 35 inches wide) ❑ Ramps (minimum 35 inches wide):
❑ Fixed ❑Portable
❑ Automatic doors or appropriate door handles ❑ Level Landings
Open Space: Indicate quantity and size (square feet)
❑ Athletic Field(s):
❑ Fenced Court(s):
❑ Secured Playground Area
❑ Other:
Fire Safety
Some facilities that appear to be suitable for sheltering might not meet local fire codes based on building
capacity. It is recommended that local codes be examined to determine ifthe facility meets them.
Does the facility have inspected fire extinguishers? ❑ Yes ❑ No
Does the facility have functional fire sprinklers? ❑ Yes ❑ No
Does the facility have a fire alarm? ❑ Yes ❑ No
If yes, choose one: ' ❑ Manual (pull down) ❑ Automatic
Does the fire alarm directly alert the fire department? ❑ Yes ❑ No
Does the facility have an internal fire hose system? ❑ Yes ❑ No
Does the facility have smoke detectors in/near the shelter area? ❑ Yes ❑ No
Sanitation Facilities
Indicate the quantity of only those sanitation facilities that will be accessible to shelter staff and residents near the area being surveyed for use
as a shelter. If more than one area within the facility is being surveyed, only describe the sanitation facilities that wilt be for the exclusive use
of the shelter area described in this survey.
Standards for ADA-compliant, accessible features for people with disabilities:
Toilets: Bathroom stall (38 inches wide); Grab bars (33-36 inches wide)
Showers: Shower stall (36 in x 36 in); Grab bars (33-36 inches in height); Shower seat (17-19 inches in height);
Fixed shower head (48 inches in height) or Hand-held spray unit with hose accessible for people with disabilities:
Sinks: Sink (34 inches in height); Towel dispenser (39 inches in height)
Urinals Toilets ' Showers Sinks
ADA Not ADA Not ADA Not ADA Not compliant
compliant compliant compliant compliant compliant compliant compliant
Men's
Women's
Unisex
Total
Are there any limitations on the availability of these facilities? ❑ Yes ❑ No
If yes, describe limitations (e.g., only during specific time blocks, etc.):
Are there baby diaper changing tables in any of the restroom facilities? ❑ Yes ❑ No
FA 2-24
I
City of Ashland Emergency Management Plan Functional Annexes
FA 2. Human Services
Food Preparation Facilities
❑ There are no food preparation or food service capabilities at this facility
❑ Full-Service Kitchen: food is stored, prepared, and served on site.
If full-service, number of meals that can be produced:
❑ Food is prepared off site by a central kitchen and served on site
Central Kitchen Contact: Phone Number: ( )
❑ Warming Oven Kitchen
Appliances/Equipment: Indicate quantity and size (square feet) as appropriate.
Refrigerators: Walk-in Refrigerators: Industrial Refrigerators:
Freezers: Walk-in Freezers: Roasters:
Burners: Griddles: Warmers:
Ovens: - Convection Ovens: Microwaves:
1
Steamers: Steam Kettles: Food Processors:,
Ice Machines: Sinks: Number of Sink Compartments:
Commercial Dishwasher (approvedsmifaiion levels): Non-commercial Dishwasher:
Location of equipment if in area other than kitchen:
Dining Facilities
Dining area on site: Location:
❑ Yes ❑ No
Snack Bar: If yes, seating capacity:
❑ Yes ❑ No
Cafeteria: If yes, seating capacity:
❑ Yes ❑ No
Other indoor seating: If yes, describe; include size and seating capacity:
❑ Yes ❑ No
Total estimated seating capacity for eating:
Standards for accessible for people with disabilities
Tables (28-34inches in height); Serving Line/Counter (28-34 inches in height); Aisles (minimum 38 inches wide)
Are there accessible tables? Are serving line/counters Are aisles accessible?
❑ Yes ❑ No accessible? ❑ Yes ❑ No
If yes, number: ❑ Yes ❑ No
FA 2-25
City of Ashland Emergency Management Plan Functional Annexes
FA 2. Human Services
Additional comments related to food preparation or dining areas:
Health Service Facilities
Number of private rooms available: Access to locked refrigeration? E] Yes L] No
Total square footage of available space for health care needs:
Location of health service area:
Laundry Facilities
Number of clothes washers: Number of clothes dryers:
Availability to shelter operator ❑ Yes ❑ No
Are laundry facilities coin operated? ❑ Yes ❑ No
Special conditions or restrictions:
Facility Services Information
Electricity
Emergency (generator power) on site: ❑ Yes ❑ No Capacity in kilowatts:
Is facility staff required to operate emergency generator? ❑ Yes ❑ No
This generator powers:
❑ Facilities throughout the shelter area
❑ Only emergency lights and other critical circuits in the shelter area
❑ No generator serves the shelter area
Estimated run-time without refueling (in hours): ❑ Auto start Fuel type:
❑ Manual start
Emergency fuel serve (fuel reserve) availability: If yes, quantity (in gallons):
❑ Yes ❑ No
Utility Company/Vendor: Emergency Phone Number:
Generator Fuel Vendor: Emergency Phone Number:
Generator Repair Contact: Emergency Phone Number:
Heating
Source of heat: ❑ Electric ❑ Natural Gas ❑ Propane ❑ Oil ❑ Gasoline ❑ Diesel
Shelter area is heated: ❑ Yes ❑ No
FA 2-26
City of Ashland Emergency Management Plan Functional Annexes
FA 2. Human Services
UtilityNendor: Emergency Phone Number:
Repair Company: Emergency Phone Number:
Source of cooling: ❑ Electric ❑ Natural Gas ❑ Propane
Shelter area is air conditioned: ❑ Yes ❑ No
UtilityNendor: Emergency Phone Number:
Repair Company: Emergency Phone Number:
Source of Water: ❑ Municipal ❑ Well(s) ❑ Trapped Water
If trapped, potable (drinkable) storage capacity in gallons: Non-potable (undrinkable) storage capacity in
gallons:
UtilityNendor: Emergency Phone Number:
Repair Company: Emergency Phone Number:
Cooking: *refer to Food Preparation Facilities for additional information on facility cooking capacities.
Source of Cooking Energy: ❑ Electric ❑ Natural Gas ❑ Propane
UtilityNendor: Emergency Phone Number:
Repair Company: Emergency Phone Number:
Communications Information
Is there an NOAA Weather Radio at this facility? ❑ Yes ❑ No
If yes, where is it located?
Is there an emergency communications (ham) radio at this facility? ❑ Yes ❑ No
If yes, where is it located?
Who is trained/authorized to operate it? Name: Contact ( )
Telephone/fax machines:
Telephone Service: ❑ Traditional Landline ❑ VOIP (intemet line)
FA 2-27
I
City of Ashland Emergency Management Plan Functional Annexes
FA 2. Human Services
Are there business telephones available to shelter staff: If yes, list any restrictions:
❑ Yes ❑ No
Are there business telephones available to shelter occupants: If yes, list any restrictions:
❑ Yes ❑ No
Are there accessible telephones (49 inches from floor)? Is there Telecommunications Devise for the Deaf
❑ Yes ❑ No (TDD) availability?
If yes, number of accessible phones: ❑ Yes ❑ No
Are there Earpiece telephones (volume adjustable)? Are there Fax machines available to shelter staff?
❑ Yes ❑ No ❑ Yes ❑ No
Is there speaker telephone/conference availability? Total number of fax machine telephone lines:
❑ Yes ❑ No
Utility/vendor: Emergency phone number:
Repair company: Emergency phone number:
Computers:
Type of intcrni scn ice a~nn~ction: ❑ Dial-up ❑ High-Speed ❑ Cable ❑ Wireless
Computers available to shelter staff: Is there public access to computers?
❑ Yes ❑ No ❑ Yes ❑ No
Number of computers:
Location of computers for evacuee use:
~I
Utility/vendor: Emergency phone number:
Repair company: Emergency phone number:
Television:
Is there a TV available for shelter use? ❑ Yes ❑ No
Location of cable TV drop for shelter area:
Shelter Management Information
This section is d, i,rned to identik ;hcltcr use capahiliLes ofth~! facilitc for icgi;tration. nwil"l ement and pet-Care.
Shelter Management
Location of shelter registration: Is there a computer netvWl' c drop in this area?
❑ Yes
❑ No
FA 2-28
City of Ashland Emergency Management Plan Functional Annexes
FA 2. Human Services
Location of office for shelter management team: Is there a computer network drop in this area?
❑ Yes
❑ No
Phone number in this office:
Shelter supply kit is located:
Key for kit is located:
Pet Care Capacity: if applicable
Pets could be housed:
❑ On-site in existing facility Capacity:
❑ On-site using additional resources (Tents/Trailers) Capacity:
❑ Combination of existing facility and additional resources
❑ Off-site
Location of pet intake area: Location of pet shelter area:
Is the space used for the pet shelter area near chemicals: ❑ Yes ❑ No
Location of outdoor pet walking area:
Facility Staff
Facility personnel required when using facility: ❑ Yes ❑ No
Facility kitchen staff required when using facility kitchen: ❑ Yes ❑ No
Voluntary organizations (such as church orfire auxiliaries) required when using the facility: ❑ Yes ❑ No
Sanitation/Maintenance staff required: ❑ Yes ❑ No
Will any of the above groups be experienced or trained in shelter management? ❑ Yes ❑ No
Shelter Agreement Information
Does the facility/owner have a current agreement for use as emergency shelter? ❑ Yes ❑ No
Date: Updated:
Additional information about agreement, if applicable:
Additional Notes (use additional page as needed):
FA 2-29
City of Ashland Emergency Management Plan Functional Annexes
FA 2. Human Services
Survey completed/updated by: Date:
Printed name and title ofauthorized facilitypersonnel: Signature ofauthorized personnel:
Agency/Organization of authorized facilitypersonnel:
Printed name and title ofshelter surveyor: Signature ofshelter surveyor
Agency/Organization'of surveyor:
Shelter Determination:
❑ Facility can be used as general emergency shelter.
❑ Facility can be used as an evacuation shelter.
❑ Facility can be used as an access and functional needs shelter.
❑ Facility can be used as a pet-friendly shelter
❑ Facility will not be used as a shelter.
Facility is ADA-compliant: ❑ Partially ❑ Fully ❑ Not ADA Accessible
Is this shelter entered in the National Shelter System (NSS)? ❑ Yes ❑ No
NSS ID:
FA 2-30
City of Ashland Emergency Management Plan Functional Annexes
FA 2. Human Services
Appendix A-2 Sample Shelter Agreement
The City of Ashland coordinates the provision of mass care services to
individuals, families, and communities impacted by a disaster. Certain disaster
relief activities are supported by private facility owners who permit their
buildings to be used as a temporary shelter for disaster victims and designated
community organizations, like the American Red Cross or Salvation Army, who
support relief activities. This agreement is between the City of Ashland and a
facility owner ("Owner") so that the City can use the facility as an emergency
shelter during a disaster that directly or indirectly impacts the City.
Parties and Facility
Owner:
Legal name:
Chapter:
24-Hour Point of Contact:
Name and
title:
~-Work phone: Cell phone/pager:
!Address for Legal Notices:
City of Ashland
City Department/Agency:
24-Hour Point'of Contact:
Name and title:
Work phone: Cell phone/pager:
IAddressfor Legal Notices:
Copies of legal notices must also be sent to:
FA 2-31
City of Ashland Emergency Management Plan Functional Annexes
FA 2. Human Services
Shelter Facility:
(Insert name and complete street address of building or, if multiple buildings, write "See
attached facility list" and attach a facility list, including the complete street address of each
building that is part of this agreement).
Terms and Conditions
■ Use of Facility: Upon request, and if feasible, the Owner will permit
the City of Ashland to use the facility on a temporary basis as an
emergency public shelter.
■ Shelter Management: The City of Ashland will have primary
responsibility for the operation of the shelter and will designate a
member of the relief organization personnel as Shelter Manager, to
manage the sheltering activities. The Owner will designate a Facility
Coordinator to coordinate with the Shelter Manager regarding the use
of the facility by the City of Ashland.
■ Condition of Facility: The Facility Coordinator and Shelter Manager
(or designee) will jointly conduct a pre-occupancy survey of the
facility before it is turned over to the City of Ashland to record any
existing damage or conditions. The Facility Coordinator will identify
and secure all equipment that the City of Ashland should not use while
sheltering in the facility. The City of Ashland will exercise reasonable
care while using the facility as a shelter and will make no
modifications to the facility without the express written approval of the
Owner.
■ Food Services: Upon request by the City of Ashland, or Shelter
Manager, and if such resources exist and are available, the Owner will
make the food service resources of the facility, including food,
supplies, equipment, and food service workers, available to feed the
shelter occupants. The Facility Coordinator will designate a Food
Service Manager to coordinate the provision of meals at the direction
of and in cooperation with the Shelter Manager. The Food Service
Manager will establish a feeding schedule, determine food service
inventory and needs, and supervise meal planning and preparation.
The Food Service Manager and Shelter Manager will jointly conduct a
pre-occupancy inventory of the food and food service supplies in the
facility before it is turned over to the City of Ashland.
■ Custodial Services: Upon request by the City of Ashland, and if such
resources exist and are available, the Owner will make the facility's
custodial resources, including supplies and custodial workers,
FA 2-32
City of Ashland Emergency Management Plan Functional Annexes
FA 2. Human Services
available to provide cleaning and sanitation services at the shelter.
The Facility Coordinator will designate a Facility Custodian to
coordinate the provision of cleaning and sanitation services at the
direction of and in cooperation with the Shelter Manager.
■ Security: In coordination with the Facility Coordinator, the Shelter
Manager, as he or she deems necessary and appropriate, will
coordinate with law enforcement regarding any public safety issues at
the shelter.
■ Si naee and Publicity: The City of Ashland may post signs identifying
the shelter as a City of Ashland emergency shelter in locations
approved by the Facility Coordinator and will remove such signs when
the shelter is closed. The Owner will not issue press releases or other
publicity concerning the shelter without the express written consent of
the Shelter Manager. The Owner will refer all media questions about
the shelter to the Shelter Manager.
■ Closing the Shelter: The City of Ashland will notify the Owner or
Facility Coordinator of the closing date for the shelter. Before the
County vacates the facility, the Shelter Manager and Facility
Coordinator will jointly conduct a post-occupancy survey, to record
any damage or conditions. The Shelter Manager and Facility
Coordinator or Food Service Manager will conduct a post-occupancy
inventory of the food and supplies used during the shelter operation.
■ Reimbursement: The City of Ashland will reimburse the Owner for the
following:
• Damage to the facility or other property of Owner, reasonable
wear and tear expected, resulting from the operations of the
City of Ashland. Reimbursement for facility damage will be
based on replacement at actual cash value. The City of
Ashland will select from among bids from at least three
reputable contractors. The City of Ashland is not responsible
for storm damage or other damage caused by the disaster.
• Reasonable costs associated with custodial and food service
personnel that would not have been incurred but for the City of
Ashland's use of the facility for sheltering. The City of
Ashland will reimburse at a per-hour, straight-time rate for
wages actually incurred but will not reimburse for (i) overtime
or (ii) costs of salaried staff.
• Reasonable, actual, out-of-pocket operational costs, including
the costs of the utilities indicated below, to the extent that such
costs would not have been incurred but for the City of
Ashland's use of the premises (both parties must initial all
utilities to be reimbursed by the City of Ashland):
FA 2-33
City of Ashland Emergency Management Plan Functional Annexes
FA 2. Human Services
Owner initials City initials
Water
Gas
Electricity
Waste Disposal
The Owner will submit any request for reimbursement to the
City within 60 days after the shelter closes. Any request for
reimbursement for food, supplies or operational costs must be
accompanied by supporting invoices. Any request for
reimbursement for personnel costs must be accompanied by a
list of the personnel and the dates and hours worked at the
shelter.
■ Insurance: The City of Ashland and designated relief organizations
that support mass care activities shall carry insurance coverage in the
amounts of at least $1,000,000 per occurrence for Commercial General
Liability and Automobile Liability. The City of Ashland shall also
carry Workers' Compensation coverage with statutory limits for the
jurisdiction within which the facility is located and $1,000,000 in
Employers' Liability.
■ Indemnification: The City of Ashland shall defend, hold harmless, and
indemnify the Owner against any legal liability, including reasonable
attorney fees, in respect to bodily injury, death and property damage
arising from the negligence of the City of Ashland during the use of
the premises.
■ Term: The term of this agreement begins on the date of the last
signature below and ends 30 days after written notice by either party.
Owner (legal name)
By (signature) By (signature)
Name (printed) Name (printed)
Title Title
Date Date
FA 2-34
FA 3 - Infrastructure Services
City of Ashland Emergency Management Plan Functional Annexes
FA 3. Infrastructure Services
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City of Ashland Emergency Management Plan Functional Annexes
FA 3. Infrastructure Services
Table of Contents
1 Purpose and Scope FA 3-1
2 Policies and Agreements FA 3-1
3 Situation and Assumptions FA 3-2
3.1 Situation FA 3-2
3.2 Assumptions FA 3-2
4 Roles and Responsibilities FA 3-2
4.1 Emergency Manager (Fire Chief) FA 3-2
4.2 Public Works Department FA 3-3
4.3 Fire & Rescue FA 3-3
`4.4 Police Department FA 3-4
4.5 Building Department FA 3-4
4.6 Parks and Recreation FA 3-4
4.7 Local Utilities FA 3-4
6 Concept of Operations FA 3-4
5.1 General FA 3-4
'5.2 Transportation FA 3-5
5.3 Infrastructure Repair and Restoration FA 3-6
5.4 Energy and Utilities FA 3-6
' 5.5 Debris Management FA 3-7
6 Annex Development and Maintenance FA 3-7
7 Supporting Plans and Procedures FA 3-7
8 Appendices FA 3-8
FA 3-iii
City of Ashland Emergency Management Plan Functional Annexes
FA 3. Infrastructure Services
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FA 3-iv
City of Ashland Emergency Management Plan Functional Annexes
FA 3. Infrastructure Services
FA 3 Tasked Agencies
Primary Agencies Public Works Department
Supporting Building Department
Agencies Fire & Rescue
Jackson County Emergency Management
Jackson County Road Department
Oregon Department of Transportation
Local Utilities:
Water: City of Ashland
Sewer: City of Ashland
Electricity: Ashland Municipal Electric Utility
Gas: Avista Natural Gas
Telephone(s): CenturyLink
1 Purpose and Scope
This annex provides information regarding the coordination of infrastructure,
public works, damage assessment, and engineering services during all phases of
emergency management. It outlines basic roles and responsibilities for primary
agencies, provides a concept of operations to assist the City of Ashland (City) in
coordinating emergency services, and references related authorities, agreements,
and supporting plans. The City Emergency Management Organization, as
outlined in the Basic Plan of this Emergency Management Plan, is designed to
provide support to local infrastructure services agencies through assistance in
accessing needed resources and coordination in more complex incidents and
events. Nothing in this annex is meant to replace or supersede the standard
operating procedures of local response agencies.
The annex covers the following functions:
■ Transportation
■ Infrastructure Repair and Restoration
■ Energy and Utilities
■ Debris Management
See FA 4 for information on Damage Assessment.
2 Policies and Agreements
The following policies and agreements are currently in place to support
infrastructure services for the City:
■ Oregon WateriWastewater Agency Response Network (ORWARN);
ORWARN is composed of member utilities providing voluntary
emergency assistance to each other. ORWARN facilitates rapid and
short-term deployment of emergency services, in the form of
personnel, equipment, and materials.
FA 3-1
City of Ashland Emergency Management Plan Functional Annexes
FA 3. Infrastructure Services
3 Situation and Assumptions
3.1 Situation
The City has identified critical infrastructure and resources to be protected and
prioritized during an emergency event or disaster, to the greatest extent possible.
During an emergency situation, the protection of human lives will take
precedence during all facets of response, and essential services within the City
will be maintained as long as conditions permit.
In addition, a utility failure would impact the availability of essential services
such as the water supply, electrical power, natural gas, telephone, and sanitary
sewer services. While a failure may result from natural or human-created causes,
the severity of the incident must be measured by the duration of the disruption of
the service and its impact on life and property.
3.2 Assumptions
■ Response operations for the City Public Works Department will
include assisting law enforcement and fire services in traffic control
and rescue operations and clearing and maintaining critical lifeline
routes.
■ In a natural hazards event such as flood, windstorm, or earthquake
response, the City Public Works will generally be assigned or assume
the lead agency role.
4 Roles and Responsibilities
4.1 Emergency Manager (Fire Chief)
■ Regularly brief the Mayor and City Council on situational
developments.
■ Collect resource requirement information from all City departments.
■ Evaluate the situation and determine whether the Emergency
Management Plan needs to be implemented.
■ Assess developing conditions and evaluate their potential impact.
■ Research sources of needed resources.
■ Establish and maintain contact with the Jackson County (County);
provide updates on developing conditions.
■ Consider activating the Emergency Operations Center (EOC).
■ Document actions taken and costs incurred.
■ Facilitate post-incident analysis.
FA 3-2
City of Ashland Emergency Management Plan Functional Annexes
FA 3. Infrastructure Services
4.2 Public Works Department
The Public Works Department is responsible for public works and engineering
activities for disasters, for Recovery operations, and for coordinating fuel and
power needs. Primary responsibilities include:
■ Developing and maintaining an emergency notification list of
department personnel.
■ Opening emergency response routes for rescue and life-saving
operations.
■ Restoring streets and managing street traffic, including traffic control
devices.
■ Restoring wastewater (sanitary sewer) and storm water system
capacities.
■ Restoring and operating sanitary sewer pump stations and pressure
mains.
■ Interfacing with utility providers to ensure timely restoration of
services.
■ Removing and disposing of debris from public rights-of-way and City
property that was a direct result of a disaster event.
■ Maintaining storm water flow.
■ Administering of existing contracts and developing new ones to
restore infrastructure and services.
■ Keeping the City's fleet operational and providing emergency fuel
supplies and equipment necessary to provide for the public's safety,
health, and well-being; this will be given top priority during an
emergency.
■ Keeping the City's emergency generators operational.
■ Coordinating with the police to assist in traffic control.
■ Developing and maintaining operating procedures for disaster
response.
■ Establishing contracts and relationships with contractors and vendors
who may play key roles in repair and restoration of County
infrastructure.
■ Requesting assistance through the County, if necessary.
■ Documenting incident actions and costs incurred.
■ Notifying regulating agency(s), as appropriate.
4.3 Fire & Rescue
The Fire Department is responsible for:
■ Notifying appropriate personnel of the developing situation.
■ Assessing the department's minimum resource needs to maintain
operations.
I
FA 3-3
City of Ashland Emergency Management Plan Functional Annexes
FA 3. Infrastructure Services
■ Evaluating potential safety issues and making recommendations to the
Safety Officer.
■ Providing communication resources and support as needed.
■ Providing fire suppression personnel and equipment to support public
works response and recovery activities.
■ Establishing priorities for debris clearance.
4.4 Police Department
The Police Department is responsible for:
■ Alerting personnel of developing conditions.
■ Assessing the department's minimum resource needs to maintain
operations.
■ Evaluating potential security and safety issues and making
recommendations to the Safety Officer.
■ Providing police personnel and equipment to support public works
response and recovery activities.
■ Providing communication resources and support as needed.
4.5 Building Department
■ Supporting Public Works Engineering in conducting surveys of
damaged structure.
4.6 Parks and Recreation
■ Provides equipment and personnel as requested for back up.
■ Coordinates field response and recovery efforts with Public Works.
■ Provides building maintenance functions as needed.
4.7 Local Utilities
■ Coordinating response activities with City Public Works regarding
restoration of services.
■ Making repairs and restoring services as soon as possible.
■ Supporting the City with equipment, personnel, etc., as appropriate.
5 Concept of Operations
5.1 General
When the Emergency Management Plan is implemented, all activities and
resources in support of infrastructure services will be coordinated by the City
EOC staff as identified and managed using the Incident Command System. The
City Public Works Department is the lead agency for infrastructure operations and
solid waste (debris) management.
FA 3-4
City of Ashland Emergency Management Plan Functional Annexes
FA 3. Infrastructure Services
Public Works will focus on restoring vital lifeline systems to the community, with
an emphasis on critical roads. Public Works will also place emphasis on
supporting law enforcement, fire, and search and rescue services with evacuation
and traffic control capabilities. Other operational priorities include:
■ Damage assessment (see FA 4).
■ Stabilization of damaged public and private structures to facilitate
search and rescue and/or protect the public's health and safety.
■ Identification and labeling of uninhabitable/unsafe structures.
■ Coordination of the closure and repair of transportation infrastructure.
■ Repair and restoration of damaged public systems (e.g., water,
wastewater, and stormwater systems).
Coordination with utility restoration operations (power, gas, and
telecommunications).
■ Prioritization of efforts to restore, repairs, and mitigate infrastructure
owned by the City and County.
Public Works will use local contractors to supplement its emergency response
capabilities, escalating unmet needs through the County EOC and/or mutual aid
partners.
See the Jackson County EOP, Support Annex B - Damage Assessment for more
details.
5.2 Transportation
Emergency transportation operations involve:
■ Identification of areas impacted and people at risk.
■ Identification, designation, and maintenance of access and egress
routes.
■ Arrangements to obtain additional emergency transportation resources,
with highest priority given to resources needed for protection of life.
■ Designation of transportation bases, staging areas, and refueling and
repair facilities.
■ Coordination with neighboring jurisdictions to ensure that
transportation priorities and routes are consistent and coordinated.
When transportation-related activities are staffed in the EOC, the Public Works
Department representative will be responsible for the following:
■ Serve as a liaison with supporting agencies and community partners.
■ Provide a primary entry point for situational information related to
transportation infrastructure from the field/scene.
■ Share situation status updates related to transportation infrastructure to
inform development of Situation Reports.
FA 3-5
City of Ashland Emergency Management Plan Functional Annexes
FA 3. Infrastructure Services
■ Participate in, and provide transportation-specific reports for, EOC
briefings.
■ Assist in development and communication of transportation-related
actions to tasked agencies.
■ Monitor ongoing transportation-related actions.
■ Share transportation-related information with the Public Information
Officer to ensure consistent public messaging.
■ Coordinate transportation-related staffing to ensure the function can be
staffed continuously across operational periods.
See the Jackson County EOP, Emergency Support Function (ESF) I -
Transportation for more detail.
5.3 Infrastructure Repair and Restoration
When public works-related activities are staffed in the EOC, the public works and
engineering representatives will be responsible for the following:
■ Serve as a liaison with supporting agencies and community partners.
■ Provide a primary entry point for situational information related to
public works.
■ Share situation status updates related to public works to inform
development of Situation Reports.
■ Participate in, and provide public works-specific reports for, EOC
briefings.
■ Assist in development and communication of public works-related
actions to tasked agencies.
■ Monitor ongoing public works-related actions.
■ Share public works-related information with the Public Information
Officer to ensure consistent public messaging.
■ Coordinate public works-related staffing to ensure that the function
can be staffed across operational periods and into short-term recovery.
See the Jackson County EOP, ESF 3 - Public Works and Engineering for more
details.
5.4 Energy and Utilities
Utility failures generally occur with little or no warning. Fortunately, they will
likely be isolated to a portion of the City. If the incident involves a City utility,
i.e., water or sanitary sewer/electric, Public Works and the Electric Department
responsibilities cover all phases of the planning process, including the
development and maintenance of each department's standard operating
procedures. For other utility failures, such as natural gas and telephone service,
the planning responsibility includes coordination with the utility(s) affected, as
well as evacuation and shelter planning for the affected population.
FA 3-6
City of Ashland Emergency Management Plan Functional Annexes
FA 3. Infrastructure Services
Energy- and utility- related actions may include:
■ Collecting, evaluating, and sharing information regarding
energy/utility system damage and estimations of the impact of
outages/failures within affected areas.
■ Coordinating restoration of service in impacted areas.
■ Ensuring backup power and utility sources for critical facilities.
See the Jackson County EOP, ESF 12 - Energy and the Oregon Fuel Action Plan
for more details.
5.5 Debris Management
A debris management plan defines the roles, responsibilities, and procedures and
provides guidance for development and implementation of all elements-involved
in managing debris removal operations in the response and recovery phases of a
disaster.
The Jackson County Road Department will address larger debris management
issues for the County. If needed, the City will request the following infrastructure
services from County Emergency Management:
■ Identification and labeling of uninhabitable/unsafe structures.
■ Establishment of priorities and processes for issuing demolition and
building permits.
■ Stabilization of damaged public and private structures to facilitate
search and rescue and/or protect the public's health and safety.
■ Development and designation of emergency collection, sorting, and
debris routes and sites for debris clearance from public and private
property.
6 Annex Development and Maintenance
The Public Works Department is responsible for regular review and maintenance
of this annex. To ensure that City staff is familiar with their roles in providing
infrastructure services, the City will incorporate elements of infrastructure
services into its training and exercise program.
7 Supporting Plans and Procedures
The following documents support infrastructure services for the City:
■ County Emergency Operations Plan
• ESF 1 -Transportation
• ESF 3 - Public Works and Engineering
• ESF 12 - Energy
• SA B - Damage Assessment
FA 3-7
City of Ashland Emergency Management Plan Functional Annexes
FA 3. Infrastructure Services
■ Oregon Fuel Action Plan
■ Oregon Recovery Plan
8 Appendices
■ None at this time.
FA 3-8
City of Ashland Emergency Management Plan Functional Annexes
FA 3. Infrastructure Services
THIS PAGE LEFT BLANK INTENTIONALLY
FA 3-9
FA 4 - Recovery Strategy
City of Ashland Emergency Management Plan, Functional Annexes
FA 4. Recovery Strategy
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City of Ashland Emergency Management Plan Functional Annexes
FA 4. Recovery Strategy
Table of Contents
1 Purpose and Scope FA 4-1
2 Policies and Agreements FA 4-1
3 Situation and Assumptions FA 4-1
4 Roles and Responsibilities FA 4-2
4.1 Emergency Operations Center FA 4-2
4.1.1 Operations Section FA 4-3
4.1.2 Planning Section FA 4-3
4.1.3 Logistics Section FA 4-3
4.1.4 Finance Section FA 4-3
4.1.5 Public Information Officer FA 4-3
4.2 City Departments FA 4-3
4.2.1 Public Works Department FA 4-3
4.2.2 Building Department FA 4-4
4.2.3 Finance Department FA 4-4
4.2.4 Other City Agencies FA 4-4
5 Concept of Operations FA 4-5
5.1 General FA 4-5
5.1.1 Local Emergency Declaration FA 4-5
5.1.2 Local Request for County and State Assistance FA 4-5
5.1.3 Federal Recovery Efforts FA 4-6
5.2 Readiness FA 4-6
5.3 Short-Term Recovery Activities FA 4-7
5.4 Intermediate Recovery FA 4-7
5.5 Long-Term Recovery Activities FA 4-7
5.6 Damage Assessment FA 4-8
5.6.1 Windshield Surveys FA 4-8
5.6.2 Initial Damage Assessment FA 4-9
5.6.3 Preliminary Damage Assessment FA 4-10
5.7 Public Assistance FA 4-10
5.7.1 Eligible Entities and Projects FA 4-10
5.7.2 Request for Public Assistance FA 4-11
5.7.3 Steps to Obtain Disaster Assistance FA 4-11
5.8 Individual Assistance FA 4-11
5.8.1 Insurance FA 4-12
5.8.2 Voluntary Agency Assistance FA 4-12
FA 4-iii
City of Ashland Emergency Management Plan Functional Annexes
FA 4. Recovery Strategy
5.8.3 Disaster Recovery Centers FA 4-12
5.9 Long-Term Recovery FA 4-14
5.9.1 National Disaster Recovery Framework FA 4-14
5.9.2 Community Planning and Capacity Building FA 4-15
5.9.3 - Economic Recovery FA 4-15
5.9.4 Health and Social Services Recovery FA 4-15
5.9.5 Housing Recovery FA 4-15
5.9.6 Infrastructure Systems Recovery FA 4-16
5.9.7 Natural and Cultural Resources Recovery FA 4-16
6 Annex Development and Maintenance FA 4-16
7 Supporting Plans and Procedures FA 4-16
8 Appendices FA 4-16
Appendix A Damage Assessment Materials FA 4-19
Appendix A-1 Initial Damage Assessment Checklist FA 4-21
Appendix A-2 Preliminary Damage Assessment Checklist......... FA 4-25
Appendix A-3 Initial Damage Assessment Summary Report
Form FA 4-31
Appendix B Public Assistance Materials FA 4-33
Appendix C Individual Assistance Materials FA 4-35
Appendix C-1 Disaster Recovery Center Requirements
Checklist FA 4-37
Appendix C-2 FEMA Disaster Recovery Center Site
Requirements List FA 4-39
Appendix D Typical Individual Assistance Programs FA 4-41
FA 4-iv
City of Ashland Emergency Management Plan Functional Annexes
FA 4. Recovery Strategy
I
FA 4 Tasked .Agencies
Agencies Emergency Manager
Public Works Department
Building Department
Supporting Finance Department
Agencies Fire & Rescue
Jackson County Emergency Management
American Red Cross
Rogue Valley Council of Governments
1 Purpose and Scope
This annex outlines the basic City of Ashland (City) services and resources
necessary to recover from a disaster. It covers the following functions:
■ Damage Assessment
■ Public Assistance
■ Individual Assistance
In addition, this annex outlines the scope of long-term recovery activities as
defined in the National Disaster Recovery Framework. The City has not
developed a formal Recovery Plan to date, but will take the functional elements of
long-term recovery into consideration in its recovery planning as described in
Section 5.9 of this annex.
2 Policies and Agreements
The following policies and agreements are currently in place to support recovery
for the City:
■ None at this time.
3 Situation and Assumptions
The recovery phase of an emergency is the period of time following the response
period, when actions are taken to help citizens return to a normal, or safer, life as
soon as possible after an emergency.
Recovery is both a short- and long-term process. In the short term, emphasis is
placed on restoring vital services to the community and identifying and providing
basic needs to the public. Long-term recovery restores the community to its
normal state, or better. It is at this point that knowledge gained by the incident is
converted to mitigation measures for future hazard risks.
Local, Jackson County (County), and Federal government are responsible for
assisting the public and private sectors in disaster recovery. A widespread
disaster may affect the functionality of business, disrupt employment, interrupt
government services, and impact tax revenue. Recovery is a function undertaken
FA 4-1
City of Ashland Emergency Management Plan Functional Annexes
FA 4. Recovery Strategy
during and after an event, along with the response. Expeditious recovery will
limit costs, damages, and long-term impacts on the community. The purpose of
this Recovery Strategy annex is to provide a strategy for the City to coordinate its
recovery efforts with its partners at the State of Oregon (State) and Federal levels.
In most cases, recovery begins during an event's response phase, when damage is
identified and assessed. Damages are classified as being in the private or public
sector. The extent of damages in dollars will determine what, if any, State or
Federal assistance may be available during the recovery phase. To request this
assistance, a local proclamation of emergency must be made and communicated
to the Governor. Good record keeping and mitigation planning will support
recovery efforts and ensure post-emergency compensation.
In addition to assistance available from governments, private non-profit
organizations support recoveries as well. The American Red Cross (Red Cross)
and Salvation Army are examples of those involved in such efforts. The
Governor can also request direct assistance from selected Federal agencies
without a formal presidential declaration.
4 Roles and Responsibilities
During recovery, many of the Section Chiefs' responsibilities and activities
continue, but sometimes with a change in focus. These responsibilities are
described below.
4.1 Emergency Operations Center
■ Activate the disaster assessment team or process. Ensure that damage
information is received from private nonprofit organizations.
■ Receive and compile disaster information to:
• Share the information with the appropriate County and
municipal agencies.
• Prioritize response and recovery activities.
• Determine whether additional resources are needed.
• Submit forms to County Emergency Management as needed.
■ Coordinate with appropriate agencies to address unmet needs.
■ Receive and disseminate information to decision makers to prioritize
recovery efforts and determine the need for State or Federal assistance.
■ Coordinate the involvement of community response partners regarding
the Preliminary Damage Assessment (PDA) and disaster declaration
process.
■ Assist County, State, and Federal agencies with conducting PDAs.
■ Ensure that documentation of disaster-related response and recovery
costs is complete.
■ Coordinate with local officials to identify and recommend mitigation
projects.
FA 4-2
City of Ashland Emergency Management Plan Functional Annexes
FA 4. Recovery Strategy
4.1.1 Operations Section
■ Coordinate restoration of roads, bridges, and essential services;
essential service facilities; and work on long-term reconstruction.
■ Coordinate temporary housing and long-term shelter operations for
displaced individuals.
■ Coordinate initial damage assessments.
4.1.2 Planning Section
■ Demobilize resources.
■ Document of emergency activities.
■ Create situation status reports.
e Coordinate resource management with the Logistics Section and
Incident Commander.
■ Create incident-specific maps to assist in damage assessment and
recovery efforts.
4.1.3 Logistics Section
■ Make arrangements for Disaster Recovery Center (DRC) for the
Federal Emergency Management Agency (FEMA).
■ Document emergency activities.
■ Coordinate resource management with the Planning and Finance
Sections.
4.1.4 Finance Section
■ Keep records of all costs incurred.
■ Document emergency activities.
■ Prepare documents for submission to State and Federal government.
■ Coordinate and document damage assessment.
4.1.5 Public Information Officer
■ Disseminate public information.
■ Document all emergency activities.
4.2 City Departments
4.2.1 Public Works Department
■ Provide qualified representative to report to the Emergency Operations
Center (EOC) to assume overall responsibility for damage assessment
activities.
■ Coordinate with Building, Planning and Urban Renewal Departments
in Recovery phase.
■ SuPP1Y fuel for emergency vehicles at scene if necessary.
FA 4-3
I
City of Ashland Emergency Management Plan Functional Annexes
FA 4. Recovery Strategy
■ Supply staff to assist if City Hall relocation is activated.
■ Serve as liaison for transportation with local, state and federal needs.
■ Coordinate flood, drainage and sewer problems.
■ Make sure Engineering Division coordinates with Building
Department on structural integrity for rescue work and for occupancy
after a disaster.
■ Recognize City Engineer will conduct a Structural Damage Survey for
FEMA with the help of the Building Department.
4.2.2 Building Department
The Building Department is responsible for structural damage surveys, supports
disaster recovery functions and flood way and plain.
■ Support Public Works Engineering in conducting surveys of damaged
structure.
■ Prepare damage reports for the Emergency Operations Center and the
City Administrator.
■ Condemn damaged buildings and post.
■ Support recovery functions of disaster.
■ Coordinate with City Engineer on Structural Damage Survey for
FEMA.
4.2.3 Finance Department
■ Provide qualified representative to report to the EOC and assume
responsibility for all necessary fiscal activities.
■ Financial Department duties and responsibilities include tracking,
analyzing, approving, and reporting fiscal activities in support of
recovery operations.
■ Helps disaster victims understand the procedures and complete
paperwork necessary for State and Federal assistance programs.
4.2.4 Other City Agencies
■ Assist with the damage assessment and disaster declaration processes
as requested.
■ Document disaster-related response and recovery costs.
■ Coordinate with local officials to identify and recommend mitigation
projects.
FA 4-4
City of Ashland Emergency Management Plan Functional Annexes
FA 4. Recovery Strategy
5 Concept of Operations
5.1 General
Disaster recovery is a continuum of overlapping activities and efforts. These
efforts include pre-disaster planning and short-term, intermediate, and long-term
recovery activities, as outlined in this section.
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5.1.1 Local Emergency Declaration
When the City is faced with an emergency or disaster condition that requires a
coordinated response beyond that which occurs routinely and the required
response is not achievable solely with the added resources acquired through
mutual aid or cooperative assistance agreements, the City Administrator (or
designee) may decide to declare a local emergency.
A local emergency declaration provides City officials with the additional
authority that may be needed to address emergency conditions; can facilitate
large-scale evacuations; and, once the appropriate response is beyond the
capability of the City, can set the stage for requesting State assistance.
See the Basic Plan, Chapter 1 for procedures for declaring a state of emergency.
5.1.2 Local Request for County and State Assistance
If an emergency has occurred wholly within the boundaries of the City, a request
for assistance from the State must be submitted to the County for transmittal to
Oregon Emergency Management (OEM) for consideration by the Governor. The
State has a reasonable expectation that counties will endeavor to assist cities
within their jurisdictions before turning to the State and/or Federal government for
assistance.
Requests for assistance submitted to the County for transmittal to the State must
include:
■ The type of emergency or disaster.
■ The location(s) affected.
FA 4-5
City of Ashland Emergency Management Plan Functional Annexes
FA 4. Recovery Strategy
■ Deaths, injuries, and population still at risk.
■ The current emergency conditions or threat.
■ An initial estimate of the damage and impacts.
■ Actions taken and resources committed by local governments.
■ Specific information about the assistance being requested.
Additional information about the emergency declaration process and guidelines
for requesting state emergency declaration or request for federal assistance can
befoundhere: htW.-Ilwww.ore on.gov/oem/Documents/decl guide.pdf.
5.1.3 Federal Recovery Efforts
Community recovery assistance from the County and Federal levels comes in the
form of activating Emergency Support Function (ESF) 14 - Long-Term
Community Recovery. This support function provides a mechanism for
coordinating Federal support to State, tribal, regional, and local governments;
nongovernmental organizations; and the private sector to enable community
recovery from the long-term consequences of extraordinary disasters. ESF 14
accomplishes this by identifying and facilitating availability and use of sources of
recovery funding and by providing technical assistance for community recovery
and recovery planning support. For information regarding County recovery
procedures, refer to ESF 14 in the County EOP. For information at the Federal
level, ESF 14 can be found at https://www.fema.gov/protecting-our-communities.
NOTE: Detailed information regarding local and state recovery processes can be
found at htto://www.oregon.gov/OEM/Documents/OR RECOVERY PLAN
DEC%202014.pdf.
5.2 Readiness
Focus: Preparing Timeline: Ongoing
Readiness efforts that build community and organization resiliency are paramount
to the initiation, implementation, and success of recovery efforts. Specific efforts
that must be undertaken in the readiness phase include:
■ Pre-disaster planning, including maintenance and improvements of this
plan, as well as local and tribal recovery plans, based on lessons learned
and after action reports.
■ Mitigation planning and project implementation at all levels for natural,
technological, and human-caused disasters.
■ Building community capacity, including policy development and
implementation, resource management, community education,
infrastructure protection, recovery organization maintenance, and whole
community planning and coordination.
■ Conduct disaster readiness exercises and after action meetings.
FA 4-6
City of Ashland Emergency Management Plan Functional Annexes
FA 4. Recovery Strategy
5.3 Short-Term Recovery Activities
Focus: Stabilizing Timeline: Days to weeks
Short-term recovery focuses on stabilizing communities. This phase of recovery
addresses health and safety needs beyond rescue, the assessment of damages and
needs, the prioritization and restoration of basic infrastructure, and the
mobilization of recovery organizations and resources.
Short-term recovery activities may include:
■ Mass care and sheltering.
■ Removal of debris on primary transportation routes.
■ Support businesses with temporary infrastructure.
■ Ongoing surveillance and response to the public health impacts of a
disaster.
■ Identifying those in need of emotional/psychological support.
■ Emergency and temporary medical care.
■ Assessment and understanding of risks and vulnerabilities to mitigate
impacts.
■ Short-term recovery activities, which are guided by the Emergency
Management Plan and coordinated through the EOC.
5.4 Intermediate Recovery
Focus: Rebuilding Timeline: Weeks to months
Intermediate recovery focuses on rebuilding the community. This phase of
recovery involves returning individuals, families, critical infrastructure, and
essential government or commercial services to a functional, if not pre-disaster,
state. Such activities are often characterized by temporary actions that provide a
bridge to permanent measures.
Intermediate recovery activities may include:
■ Provision of interim housing.
■ Repair and restoration of infrastructure.
■ Support to reestablish businesses.
■ Engaging of support networks to provide ongoing emotional/
psychological support to those in need.
■ Ensuring continuity of public health and health care services.
■ Social services assistance to vulnerable populations, including food
programs, unemployment programs, and self-sufficiency programs.
■ Mitigation of future impacts through education of the community on ways
to rebuild stronger.
5.5 Long-Term Recovery Activities
Focus: Revitalizing Timeline: Months to years
FA 4-7
City of Ashland Emergency Management Plan Functional Annexes
FA 4. Recovery Strategy
Long-term recovery focuses on revitalizing the community. This phase of
recovery may continue for months or years and addresses complete
redevelopment and revitalization of the impacted area; rebuilding or relocating
damaged or destroyed social, economic, natural, and built environments; and the
transition to self-sufficiency, sustainability, and resilience.
Long-term recovery activities may include:
■ Implementation of long-term housing solutions.
■ Rebuilding of infrastructure to meet future needs.
■ Long-term economic revitalization.
■ Ongoing psychological/emotional support.
■ Reestablishment of disrupted public health and health care resources.
■ Ensuring continuation of key social services to support vulnerable
populations.
■ Implementation of long-term mitigation strategies.
See Section 5.9 for additional information on Long Term Recovery
5.6 Damage Assessment
Damage assessment is conducted in two phases: initial damage assessment (IDA)
and secondary damage assessment. The IDA, a Planning Section responsibility,
provides supporting information for the disaster declaration and is the
responsibility of the City. The secondary damage assessment is an in-depth
analysis of long-term effects and costs of the emergency and is performed with
the combined efforts of local, State, and Federal agencies and the Red Cross.
■ The timely and accurate assessment of damage to public or private
property will be of vital concern to local officials following a disaster
and will have great bearing upon the manner in which recovery is
conducted in the City.
■ Damage assessments may need to be undertaken at different periods
during a disaster event: a "windshield" survey may be conducted
initially to obtain an overall general impression of the event's impact
as part of preparing to issue the disaster declaration. A more detailed
damage assessment will need to be performed to document the need
for State and Federal aid.
■ County, State, and Federal assistance will depend upon the adequate
and timely documentation of the results of the disaster on the local
community.
See the Oregon IDA and PDA Public Infrastructure Instruction Manual for more
information.
5.6.1 Windshield Surveys
During the initial phase of an event with widespread property damage (such as
windstorm, earthquake, etc.), normal communication links may not exist. It will
FA 4-8
City of Ashland Emergency Management Plan Functional Annexes
FA 4. Recovery Strategy
be important to get an account of the damage as soon as possible so in order to
prioritize resource assignments.
As appropriate after an event, units from appropriate agencies may begin a process
called "windshield surveys." Windshield surveys consist of response agency units
driving throughout the City in a systematic manner to survey predetermined high-
priority facilities. When damage is discovered, a description of the situation is to
be reported. The goal is to get a quick overview of the entire situation and then
assign resources to the priority situations.
5.6.2 Initial Damage Assessment
During an emergency or disaster, local governments conduct a quick initial
assessment of damages and impacts, sometimes as part of a request for State or
Federal resources to augment local ones. The Emergency Program Coordinator
coordinates this assessment and usually assigns some IDA responsibilities to other
local government departments.
The IDA evaluates the damages and costs related to a disaster, the impact of the
disaster on the community, and which State, Federal, or volunteer agency
programs might be able to provide needed assistance. With respect to Federal
assistance, a determination during the IDA of the extent of affected homes,
businesses, and public facilities assists State officials in determining whether they
need to follow up with other damage or impact assessments, including perhaps a
PDA for Individual Assistance, Public Assistance, or both.
As soon as it can safely be done during or following the event, local officials
should complete the Initial Damage Assessment Summary Report Form and
forward it to the County. Counties should forward the completed form to OEM.
■ Priority #1: Public Safety and Restoration of Vital Services
• Emergency Operations
• EOC
• Fire stations
• Police department
• City facilities
• Hazardous Industries
• Hazardous occupancy industry
• Natural gas pipelines
• Electrical power stations and other similar facilities
• Utilities and Transportation Infrastructure
• Sanitary sewer
• Storm and water lines
• Bridges and overpasses
• Medical facilities
■ Mass care and shelter facilities
• Medical clinics
• Other Vital Public Services
FA 4-9
City of Ashland Emergency Management Plan Functional Annexes
FA 4. Recovery Strategy
• Schools and other public facilities
• Food supplies
• Other major businesses
■ Priority #2: Assessment of Damage to Support Emergency or Major
State of Emergency Declaration
• Multi-family complexes
• Single-family residences
• Other businesses
5.6.3 Preliminary Damage Assessment
The IDA should provide the basis for subsequent assessment activities. PDAs most
often occur during the recovery phase after initial response activities have taken
place. Finance Section personnel should be able to perform the tasks outlined
below.
■ Identify damaged facilities and lead State and federal damage assessment
teams to them.
■ Document expenditures in response to events for which a declaration has
been requested. The State of Oregon standard for cost estimating is
contained in the State Forestry Fire Plan. If the City can document actual
costs, these should be used to develop accurate cost estimates.
■ In the event that the Finance Section is not staffed, the City Manager (or
designee will) coordinate this activity.
The City Public Works Department will provide personnel to lead damage
assessment teams. Volunteers may be trained and can be expected to lead damage
assessment teams for Priority 42 Initial Damage Assessments. Additional support
may be available from the County.
See the State Disaster Recovery Guidebook, Part I- Overview for more detailed
information on damage assessment.
5.7 Public Assistance
Requests for Public Assistance for the City will be coordinated with County
Emergency Management.
5.7.1 Eligible Entities and Projects
Eligible applicants under the Public Assistance Program are units of local
government, state agencies, organizations, and agencies of tribal populations, and
private nonprofit organizations that meet certain criteria.
To be eligible for assistance, a project must result from a Presidentially declared
emergency or major disaster, must lie within the designated disaster area, must be
the responsibility of an eligible applicant, and must not fall within the authority of
another Federal agency.
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5.7.2 Request for Public Assistance
Applicants notify FEMA of their intent to apply for public assistance by filing a
Request for Public Assistance form. The request form is an applicant's official
notification to FEMA of their intent to apply for Public Assistance. The form
outlines general information identifying the applicant, including the applicant's
name, address, and primary and secondary contacts. If the applicant is unable to
submit the request form to OEM at the Applicants' Briefing, the applicant must
submit the form within 30 days of the date of designation of the County for Public
Assistance. An applicant need not wait until all damage is identified before
requesting assistance.
Federal and State personnel will review each request form to ensure applicant
eligibility. Once a request form has been submitted, the project formulation
process can begin. Project formulation is the process of documenting the eligible
facility, the eligible work, and the eligible cost for damaged projects.
5.7.3 Steps to Obtain Disaster Assistance
There are five primary steps to obtaining public disaster assistance:
■ A request form is submitted by the applicant.
■ A Public Assistance Coordinator is assigned to each applicant.
■ The applicant presents a list of damages to the Public Assistance
Coordinator at the kickoff meeting. This list serves as the basis for
completing Project Worksheets. The applicant then has 60 days from
the date of the kickoff meeting to report or identify damages to FEMA.
■ The Public Assistance Coordinator and State staff work with the
applicant/subgrantee to identify any special considerations, ensure that
all damage and emergency work costs are identified, and ensure that
the scope-of-work on Project Worksheets is eligible and complete.
■ Upon approval of Project Worksheets, the funds are obligated to OEM,
who is the grantee and will disburse Public Assistance funds to the
subgrantee. Federal funds for small projects will be disbursed after
approval, and Federal funds for large projects will be disbursed as
work is accomplished.
See http://www.oregon.govloemlemresourcesldisasterassistIPagesIDamage-
Assessment.aspx for more detailed information on public assistance.
5.8 Individual Assistance
Individual Assistance programs strive to meet the disaster-related needs of
individuals and families while utilizing disaster assistance resources as efficiently
as possible. Disaster recovery officials especially strive to avoid duplication of
benefits. Efficient use of recovery resources is also aided by providing assistance
through a sequence of programs. Those with serious unmet disaster-related needs
proceed through each step until all avenues, public and private, have been
explored to meet those needs.
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5.8.1 Insurance
Claims should be made in accordance with appropriate insurance policies in effect
for the hazard that caused the disaster. Disaster assistance programs are not a
replacement for proper insurance, nor can any disaster assistance program provide
cost recovery for those affected by disaster as comprehensive as that provided by
insurance policies. Moreover, most natural disasters that affect an individual or
family are not widespread enough to result in the implementation of Federal
disaster assistance programs. Hence, in the vast majority of cases, insurance and
voluntary agency assistance is the only avenues for helping families and
individuals to recover.
5.8.2 Voluntary Agency Assistance
Many voluntary agencies provide disaster recovery assistance to individuals and
families. Like insurance, voluntary agencies should be viewed as having
resources that are utilized prior to governmental disaster assistance programs. In
cases for which there is a Presidential declaration of emergency, access to some
voluntary agency assistance may be gained at or through DRCs. Most voluntary
agency assistance is intended to meet immediate disaster-related needs such as
shelter, food, clothing, health and medical care (including counseling and mental
health assistance), essential household furnishings, bedding, transportation, and,
sometimes, temporary assistance to rent housing.
See Appendix D, Typical Individual Assistance for additional individual
assistance programs.
5.8.3 Disaster Recovery Centers
The Logistics Section may be called upon to arrange for a large facility to serve as
a DRC, where citizens can meet with federal/ state/local and volunteer agency
representatives to apply for disaster assistance. Appropriate facilities include
schools, churches, and community centers. Advertising of these facilities will be
coordinated by the Public Information Officer through the Joint Information
Center (if activated) located in the Federal/State Disaster Field Office.
Local, State, and Federal entities will:
■ If individual assistance is authorized, establish a local disaster
recovery assistance center to assist qualified citizens with filing claims
for financial or housing assistance.
■ If public assistance is authorized, dispatch assessors to develop, in
coordination with local representatives, disaster survey reports for
public damage and response costs.
■ Provide technical assistance and advice regarding recovery and
mitigation activities to both citizens and public agencies, as
appropriate.
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■ Coordinate public information and assistance activities with the EOC
Public Information Officer and keep local authorities informed of
assistance provided to local residents, businesses, and local entities.
■ Identify and coordinate with State and Federal agencies regarding a
location for the DRC.
Federal, state, local, and volunteer agencies may provide or accept applications
for the following services through the DRC:
■ Temporary housing for disaster victims whose homes are
uninhabitable as a result of a disaster.
■ Essential repairs to owner-occupied residences in lieu of temporary
housing, so that families can return to their damaged homes.
■ Disaster unemployment and job-placement assistance for those
unemployed as a result of a Major Disaster.
■ Disaster loans to individuals, businesses, and farmers for refinancing,
repair, rehabilitation, or replacement of damaged real and personal
property not fully covered by insurance.
■ Agricultural assistance payments, and technical assistance, and federal
grants for the purchase or transportation of livestock.
■ Information on the availability of food stamps and eligibility
requirements.
■ Individual and family grants to meet disaster- related expenses and
other needs of those adversely affected by major disasters when they
are unable to meet such needs through other means.
■ Legal counseling to low-income families and individuals.
■ Tax counseling concerning various disaster related tax benefits.
■ Consumer counseling and assistance in obtaining insurance benefits.
■ Crisis counseling and referrals to mental health agencies to relieve
disaster caused mental health problems.
■ Social Security assistance for recipients or survivors, such as death or
disability benefits or monthly payments.
■ Veteran's assistance, such as death benefits, pensions, insurance
settlements, and adjustments to home mortgages held by the Veteran's
Administration if a Veterans Administration-insured home has been
damaged.
■ Other specific programs and services as appropriate to the disaster.
See http://www.oregon.gov/oem/emresourcesldisasterassistIPagesIDamage-
Assessment. aspx for more detailed information on individual assessment.
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5.9 Long-Term Recovery
5.9.1 National Disaster Recovery Framework
The National Disaster Recovery Framework is a guide that enables effective
recovery support to disaster-impacted States, tribes, territorial and local
jurisdictions. It provides a flexible structure that enables disaster recovery
managers to operate in a unified and collaborative manner. It also focuses on how
best to restore, redevelop, and revitalize the health, social, economic, natural, and
environmental fabric of the community and build a more resilient nation.
The National Disaster Recovery Framework is consistent with the principles set
forth in the Presidential Policy Directive 8, National Preparedness, which directs
FEMA to work with interagency partners to publish a recovery framework. It is
the first framework published under the Presidential Policy Directive reflecting
the core recovery capabilities by supporting operational plans as an integral
element of a National Preparedness System. It is a first step toward the
Presidential Policy Directive 8 objective to achieve a shared understanding and a
common, integrated perspective across all mission areas-Prevention, Protection,
Mitigation, Response, and Recovery-in order to achieve unity of effort and
make the most effective use of the nation's limited resources.
The National Disaster Recovery Framework defines:
■ Core recovery principles.
■ Roles and responsibilities of recovery coordinators and other
stakeholders.
■ A coordinating structure that facilitates communication and
collaboration among all stakeholders, as well as guidance for pre- and
post-disaster recovery planning.
■ The overall process by which communities can capitalize on
opportunities to rebuild stronger, smarter, and safer.
The National Disaster Recovery Framework introduces six new Recovery Support
Functions that provide a structure to facilitate problem solving, improve access to
resources, and foster coordination among State and Federal agencies,
nongovernmental partners and stakeholders. Each Recovery Support Function
has coordinating and primary Federal agencies and supporting organizations that
operate together with local, State, and Tribal government officials,
nongovernmental organizations, and private-sector partners.
The National Disaster Recovery Framework presents three positions that provide
focal points for incorporating recovery considerations into the decision-making
process and monitoring the need for adjustments in assistance where necessary
and feasible throughout the recovery process. These positions are Federal
Disaster Recovery Coordinator, State or Tribal Disaster Recovery Coordinators,
and Local Disaster Recovery Managers.
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5.9.2 Community Planning and Capacity Building
The core recovery capability for community planning is the ability to effectively
plan and implement disaster recovery activities, engaging the whole community
to achieve their objectives and increase resilience. The goal of recovery planning
for the City is to unify and coordinate expertise and assistance programs from
across the City and in coordination with the County to aid in restoring and
improving the ability of the City to organize, plan, manage, and implement
recovery. Recovery planning assists the City in developing a pre- and post-
disaster system of support for their communities emphasizing the integration of
hazard mitigation throughout planning process. Recovery planning will serve as a
forum for helping to integrate the nongovernmental and private-sector resources
into City recovery planning processes.
5.9.3 Economic Recovery
The core recovery capability for economic recovery is the ability to return
economic and business activities (including agricultural) to a state of health and
develop new economic opportunities that result in a sustainable and economically
viable community. Economic recovery is a critical and integral part of recovery.
Disasters damage not only property but also entire markets for goods and
services. The speed and effectiveness of returning a community to self-
sufficiency and vitality depend upon quickly adapting to changed market
conditions, reopening businesses, and/or establishing new businesses. Businesses
employ workers, provide for community needs and services, and generate revenue
once again, allowing the community, both its members and government, to
provide for itself.
5.9.4 Health and Social Services Recovery
The core recovery capability for health and social services is the ability to restore
and improve health and social services networks to promote the resilience, health,
independence, and well-being of the whole community. The City will participate
in locally led recovery efforts to address public health, health care facilities and
coalitions, and essential social service needs.
5.9.5 Housing Recovery
The core recovery capability for housing is the ability to implement housing
solutions that effectively support the needs of the whole community and
contribute to its sustainability and resilience. Like infrastructure and safety
services, housing is a critical and often challenging component of disaster
recovery. It is critical because local economies cannot recover from devastating
disasters without adequate housing, especially affordable housing. It is
challenging because many years' worth of housing repair, rehabilitation,
reconstruction, and new construction often need to occur at an accelerated pace as
a result of a disaster. These conditions create design, construction, labor,
materials, logistics, inspection, and financing issues.
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5.9.6 Infrastructure Systems Recovery
The core recovery capability for infrastructure systems is the ability to efficiently
restore the infrastructure systems and services to support a viable, sustainable
community and improve resilience to and protection from future hazards. This
function promotes a holistic approach to disaster recovery coordination, support,
planning, and implementation for infrastructure systems that serve the
community.
5.9.7 Natural and Cultural Resources Recovery
The core recovery capability for natural and cultural resources is the ability to
protect these resources, including historic properties, through appropriate
response and recovery actions to preserve, conserve, rehabilitate, and restore them
in a manner consistent with post-disaster community priorities and in compliance
with appropriate environmental and cultural resources laws. This function
coordinates departments and agencies working together to provide information
and assistance to communities seeking to protect and restore natural and cultural
resources during recovery.
6 Annex Development and Maintenance
The Emergency Program Coordinator is responsible for regular review and
maintenance of this annex. To ensure that City staff are familiar with their roles
in providing disaster recovery services, the City will incorporate elements of
recovery into its training and exercise program.
7 Supporting Plans and Procedures
The following documents support recovery for the City:
■ County Emergency Operations Plan
• ESF 14 - Long-Term Recovery
• SA B - Damage Assessment
■ State of Oregon Recovery Plan
■ State of Oregon Disaster Recovery Guidebook
■ National Response Framework
• ESF 14 - Long-Term Community Recovery
■ National Disaster Recovery Framework
8 Appendices
■ Appendix A- Damage Assessment Materials
• A-1 -Initial Damage Assessment Checklist
• A-2 - Preliminary Damage Assessment Checklist
• A-3 - Initial Damage Assessment Summary Report Form
■ Appendix B - Public Assistance Materials
■ Appendix C - Individual Assistance Materials
• C-1 -Disaster Recovery Center Requirements Checklist
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C-2 - FEMA Disaster Recovery Center Requirements
Worksheet
■ Appendix D - Typical Individual Assistance Programs
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Appendix A Damage Assessment Materials
A-I Initial Damage Assessment Checklist
A-2 Preliminary Damage Assessment Checklist
A-3 Initial Damage Assessment Summary Report Form
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Appendix A-1 Initial Damage Assessment Checklist
As its name suggests, an Initial Damage Assessment (IDA) is meant to be an
initial assessment of the damage and impacts caused by the disaster. Do not
spend a great deal of time on details at this stage. The IDA only needs to outline
enough damage and impacts to the community to bring in the right programs for a
closer assessment.
All those using information obtained from an IDA should be cautioned
concerning the limitations of the data and should expect variations between this
initial assessment and the actual number of applications received should disaster
assistance programs be offered.
General
The following guidelines should be followed when conducting an IDA:
■ Examine and note areas of major damage and damage that is likely to
be expensive to repair and mitigate.
■ Although insured losses should be noted, do not spend a great deal of
time trying to collect detailed insurance information during the IDA.
Determining the details of insurance in place is time consuming and
unnecessary at this stage. If detailed insurance information is needed,
it can be collected during a second assessment, such as the joint
Preliminary Damage Assessment (PDA).
■ Note: An exception to this rule is "small disasters, " which require
collecting insurance information during the IDA in order that the
Small Business Administration can make a decision on whether or not
to dispatch personnel to Oregon to lead a Small Business
Administration "damage survey. "
■ The Individual Assistance IDA Field Data Collection Form is designed
to assist you in conducting the IDA for homes and businesses.
■ The Infrastructure (Public Assistance) IDA Data Collection Form may
assist you in conducting the IDA for public sector damages.
■ Analyze IDA data based on the following questions:
• Is the damage such that only immediate personal needs exist?
If so, these needs can probably be met by volunteer
organizations such as the American Red Cross (Red Cross),
Salvation Army, Mennonite Disaster Service, and others.
• Is the damage primarily to the agricultural sector? If so, you
may want to ask the State to look into U.S. Department of
Agriculture assistance.
• Are the impacts primarily to businesses that have suffered
significant damage or other problems that would cause loss of
revenue? If so, you may want to ask the state to look into
Small Business Administration (SBA) programs.
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• Is the damage primarily to homes? If so, perhaps the State
should request SBA assistance or request an Individual
Assistance joint PDA.
• Is the damage primarily to publicly owned facilities? If so,
perhaps the State should request a Public Assistance joint PDA.
Whom to Involve
Since speed and accuracy are essential in obtaining the maximum amount of
information in the shortest amount of time, more than one person should be
involved in the IDA process. The Emergency Program Coordinator should
assemble a team to assist, including members such as:
■ Red Cross officials: depending on the capabilities of the Red Cross
branch that serves your area, you may want to ask the Red Cross to
coordinate the IDA effort with respect to homes and to assess the
number of persons significantly impacted by the disaster. In some
cases, the Red Cross will have already done so; you may be able to
utilize information they have already gathered.
■ Building inspectors and tax assessors from local governments, and
appraisers from lending institutions or insurance companies, to
evaluate buildings, manufactured homes, and businesses.
■ City/County engineers, public works officials, utility officials, etc. to
assess damages to roads, bridges, other public facilities, and utility
systems.
■ Hospital and urgent care facility officials for information on injuries
and fatalities.
■ School district officials to provide school damage figures.
■ County health officials to assess of disaster effects on community
health.
■ Officials in charge of levees, drainage systems, private nonprofit,
recreational facilities, etc.
■ County agent for farm and ranch damage assessment.
Collecting Initial Damage Assessment Data by Telephone Bank
Local jurisdictions may want to establish a telephone bank to collect IDA
information on damage and impacts to homes and businesses. If you decide to
utilize the telephone bank approach, work with local media to reach affected
individuals, families, and businesses. For each, try to collect at least the
following:
■ Name of individual, family, or business.
■ Address of the damaged or impacted structure.
■ Mailing address if different.
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■ Telephone numbers where the person reporting the damage or impacts
can be reached.
■ If the damaged structure is a home, is it a primary home or a second
home? Is it a rental? If so, count the home twice: once as a home, a
second time as a business. Try to obtain the appropriate points of
contact for both the tenant and owner.
■ Is the loss/damage insured?
■ Obtain a brief description of, and, if possible, estimated cost associated
with, the damage or impact; collect only enough information to allow
you to categorize the damage as minor, major, or destroyed. Also note
homes and businesses that are not damaged but that are directly
impacted, such as loss of potable water, loss of septic system, loss of
driveway access, etc. Homes meeting these criteria should be noted as
"affected habitable"; businesses as "interrupted."
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Appendix A-2 Preliminary Damage Assessment Checklist
To prepare for the arrival of State and Federal joint Preliminary Damage
Assessment (PDA) officials, local jurisdictions should do as much of the
following as time permits.
General
■ The Emergency Program Coordinator should coordinate the PDA or
designate a PDA Coordinator. The person in this position should have
a working knowledge of the PDA process and forms and thorough
familiarity with local geography, government officials, and public
facilities.
■ Line up appropriate officials who will become the local government
representatives on the joint PDA Teams. For Individual Assistance,
consider assessors, building department inspectors, etc. For Public
Assistance, consider building department inspectors, road department
engineers and technicians, bridge engineers, etc.
■ Prepare maps that note the locations and nature of the damage.
• Delineate any areas where the damage is primarily to homes,
businesses, and agricultural land.
• Indicate the location of each damaged public facility and the
government agency responsible for its care.
• Mark the location of sites where disaster-related costs were
incurred.
• If possible, all damage sites should be identified by local
officials before State/Federal inspectors arrive.
■ On the same maps, indicate the best routes of travel, accounting for
roads and bridges that are out of service due to the disaster and
methods for efficient routing such as travel "loops" likely to be taken
by the joint PDA Teams.
■ Also on the maps, indicate areas where major utilities are still out of
service, areas with septic tanks or wells, areas that are still
experiencing the effects of the disaster, and health and safety hazards
such as hazardous materials spills, biological hazards, downed power
lines, etc.
■ If possible, have photographs of damage sites available for State and
Federal inspectors.
■ Assemble and briefly summarize information on the resources
committed by the jurisdiction in responding to the disaster. Be sure to
include the time commitment, overtime, etc. of the City staff who have
been involved.
■ Ask everyone involved in the joint PDA to look for ways of rebuilding
so there is less damage and hardship next time; provide these ideas to
the hazard mitigation PDA teams.
■ Set up ajoint PDA Team support facility that includes:
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• Tables and chairs
• Displays, such as maps, chalk boards, dry erase boards, flip
charts, bulletin boards, etc.
• Telephones and telephone directories
• Copies of the Oregon Blue Book
• One or more photocopiers
• Availability of drinking water, coffee, etc.
• Restrooms
• If available and appropriate, your Emergency Operations
Center can serve as the joint PDA Team support facility.
■ Make arrangements for a facility to conduct the joint PDA public
official and team briefings such as a courtroom, public auditorium,
lecture hall, etc.
■ Be prepared to provide high clearance vehicles for the use of the
teams; these vehicles should be driven by the local representative and
should comfortably seat up to five people.
If necessary, assist State and Federal joint PDA team members to find
lodging and meals during their stay in the disaster area.
Individual Assistance
■ Develop a written summary of the impacts of the disaster, including
the following information:
• Have there been injuries or deaths? Are persons missing?
• Are families isolated due to the disaster?
• Is public health and safety significantly compromised?
• Is debris on private property a health and safety hazard? Does
it prevent access to homes?
• Are services such as medical care, schools, mail delivery,
public transportation, communication, etc, significantly
affected?
• Are utilities (electric, gas, water, sewer, drainage systems,
dikes, etc.) out of service? When will service be restored? Are
outages widespread or concentrated in one area?
• Have many private vehicles been destroyed?
• Is there increased unemployment due to the disaster?
■ Gather and assemble the following information about the area(s)
affected by the disaster:
• Which affected areas are urban, suburban, and rural?
Commercial? Industrial? Delineate these areas on the teams'
maps.
• What was the economic base and condition prior to the
disaster?
• What was the pre-disaster market value of homes in the
disaster area(s)? Be prepared to provide dollar ranges to fit
"high," "medium," and "low" categories.
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■ Ask the American Red Cross to make available any information they
have collected during their "windshield" and "on-site detailed" damage
assessments.
■ Work with Oregon Emergency Management and the Federal
Emergency Management Agency to find out what you can about
insurance coverage in force in the disaster areas. FEMA will conduct
some of this research from its regional office.
■ What resources are available in the area to provide temporary housing
for displaced persons? Are there vacant rental homes, mobile homes,
or apartments?
■ If flooding has occurred, make estimates for the team regarding the
duration of flooding, as well as water depths and velocities. Was the
water contaminated with chemicals? Sewage? Other?
■ Assign local, State, Federal, and volunteer agency officials to each
team; have each team cover both dwellings and businesses in a
geographic area.
■ Dispatch teams to their areas; have each team report back to the central
PDA support facility periodically by radio or telephone. Some teams
may cover ground more quickly than others. If so, one or more
geographic areas may be assigned to a team or teams likely to finish
before others.
Public Assistance
■ Develop a written description of the impacts of the disaster on local
government, including:
• Population served by the local government.
• Budget balance before and after the disaster.
• Capability of local government to deal with the interruption or
loss of essential public services, continuing public health and
safety problems, and loss of public facilities, equipment,
materials, etc.
• Public service impacts that will continue without Federal
assistance, including deferral of permanent repairs, reductions
in ongoing services, delays in planned capital improvements,
continued isolation of families or communities, etc.
■ If the time the joint PDA will begin has been well established, make
appointments for the team at sites where the damage or the impact of
the damage is greatest.
■ In lieu of making appointments, develop a list of contacts for each
damage site, including telephone numbers, and times when they are
easiest to reach.
■ Ensure that local government representatives designated to serve on
joint PDA Teams have a knowledge of repairs already completed and
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repairs needing to be made, as well as a knowledge of the location of
damage sites.
■ Be prepared to provide State and Federal officials a detailed cost
breakdown of labor, equipment, materials, and supplies for all
completed work, including work completed through contracts with
private-sector companies. While a variety of forms can be used to
summarize these items, the format chosen must document who, what,
when, where, and how.
■ Be prepared to describe which sites will be repaired or reconstructed
by contract, and which will be repaired by local forces. If a
contractor's estimate has been received, have it available for the State
and Federal inspectors.
■ If damaged facilities are to be rebuilt to conform with new codes,
specifications, or standards, be prepared to provide inspectors with
copies of the specifications, local resolutions, ordinances, etc. that
require upgrading of the facilities.
■ Time permitting: Using as many "Infrastructure (Public Assistance)
Initial Damage Assessment Field Data Collection Forms" as
necessary, develop a list of work performed and facilities damaged as
a direct result of the disaster. Estimate the cost of repair or restoration
of damaged public facilities. Be sure to include work that has and has
not been completed. Organize the information by category of work.
■ Assign local, State, and Federal officials to each team; have each team
cover a geographic area.
■ Dispatch the teams to their areas; have each team report back into the
central PDA support facility periodically by radio or telephone. Some
teams may cover ground more quickly than others. If so one or more
geographic areas may be assigned to a team or teams likely to finish
before the others.
Hazard Mitigation
■ Think of the joint PDA as an opportunity to quickly identify hazard
mitigation opportunities before much of the permanent repair work has
been accomplished.
■ Talk with the people who helped you to accomplish the Initial Damage
Assessment about hazard mitigation opportunities they discovered
during this process; provide this information to the State and Federal
inspectors (Federal Emergency Management Agency and Small
Business Administration).
■ Resources permitting, assign a local representative to join Federal
Emergency Management Agency and Oregon Emergency
Management hazard mitigation staff assigned to accomplish the hazard
mitigation portion of the joint PDA. Assemble as many teams as
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appropriate and as resources permit; often there will be only one
hazard mitigation PDA team per local jurisdiction.
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Appendix A-3 Initial Damage Assessment Summary Report
Form
Electronic copies of the following damage assessment forms can be found at
htti2s://www.oregon.gov/OEM/emresources/d1sasterassist/Pages/Dama.-e-
Assessment.aspx.
Individual Assistance Initial Damage Assessment Field Data Collection Form
■ Estimated Disaster Economic Injury Worksheet For Businesses
■ Infrastructure (Public Assistance) Initial Damage Assessment Field
Data Collection Form - Instructions for form are attached (Excel
Spreadsheet)
■ Individual Assistance Initial Damage Assessment and Preliminary
Damage Assessment Calculation and Summary Form
■ initial Damage Assessment Summary Report Form (Excel
Spreadsheet)
■ Individual Assistance Joint Preliminary Damage Assessment Team
Assignments
■ Joint Preliminary Damage Assessment Individual Assistance Field
Form (Adapted from Federal Emergency Management Agency
[FEMA] Form 76-39)
■ Public Assistance Preliminary Damage Assessment Site Estimate
(Joint FEMA-OEM Form adapted from a FEMA Form)
■ Public Assistance Preliminary Damage Assessment Summary (FEMA
Form 90-80)
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Appendix B Public Assistance Materials
Electronic copies of the following public assistance materials can be found at
httvs://www oregon gov/OEM/emresources/disasterassist/Pages/Public-
Assistance.asox.
Request for Public Assistance (FF90-49)
■ Hazard Mitigation Proposal (FF90-61)
■ Project Worksheet (FF90-91)
■ PW-Damage Description and Scope of Work Continuation Sheet
(FF90-91A)
■ PW-Cost Estimate Continuation sheet (FF90-91B)
■ PW-Maps and Sketches Sheet (FF90-91 C)
■ PW-Photo Sheet (FF90-91D)
■ Validation Worksheet (FF90-118)
■ Project Validation Form (FF90-119)
■ Special Considerations Questionnaire (FF90-120)
■ PNP Facility Questionnaire (FF90-121)
■ Historic Review For Determination of Adverse Effect (FF90-122)
■ Force Account Labor Summary Record (FF90-123)
■ Materials Summary Record (FF90-124
)
■ Rented Equipment Summary Record (FF90-125)
■ Contract Work Summary Record (FF90-126)
■ Force Account Equipment Summary Record (FF90-127)
■ Applicant's Benefit Calculation (FF90-128)
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Appendix C Individual Assistance Materials
C-1 Disaster Recovery Center Requirements Checklist
C-2 FEMA Disaster Recovery Center Requirements Worksheet
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Appendix C-1 Disaster Recovery Center Requirements Checklist
General Information
Disaster Recovery Centers (DRCs) are sited only in jurisdictions where the need
exists and local officials request them. There are no State or Federal
reimbursement for costs associated with use of the building selected (e.g., rent
and utility costs).
Local officials must be willing to provide security at the facility during daily
operations. DRCs may be open for as short as a few days, and as long as a few
weeks. Site selection for DRCs is a joint local, State, and Federal responsibility.
This process is facilitated when local officials have prepared ahead of time and
identified buildings that could serve as DRCs.
Required
The following should be considered in identifying possible facilities to serve as
DRCs:
■ The building must be large enough for the needs of the situation
(number of agencies and clients anticipated in the DRC). This may
vary from as few as 1200 to more than 4,500 square feet.
Consequently, it is advisable to identify a variety of buildings of
different sizes in different locations within your jurisdiction.
■ Sufficient tables and chairs for the needs of the situation should be
readily available (either in the facility or easily moved to the facility).
Each agency working at the facility will need at least one table and
five chairs.
■ The building must have heat, electricity, good lighting, potable water,
rest rooms, and adequate parking.
■ Appropriate emergency medical support should be quickly available to
the building.
■ Appropriate fire protection should be readily available.
■ Access to and through the building must be barrier-free for disabled
persons. (DRCs must meet Americans with Disabilities Act
requirements and have a certification to that effect from the local
building official on file prior to the disaster.)
■ The building owner must be willing to allow the Federal Emergency
Management Agency and the Small Business Administration to install
telephone lines.
FA 4-37
City of Ashland Emergency Management Plan Functional Annexes
FA 4. Recovery Strategy
Preferred
■ The public should generally be familiar with the building.
■ The building should be proximate to most of the affected population.
Travel time should be reasonable for most of the people affected by
the disaster. Public transportation should be available, if possible.
■ Custodial support should be available at the facility.
■ An indoor waiting area near the entrance to the building is helpful.
■ Bilingual support should be available, if appropriate.
■ Child care is a useful addition if it can be provided at the facility.
■ Local officials should be prepared to help provide supplies, such as
trash cans, writing pads, pencils, local telephone directories, maps of
the disaster area(s), string, masking tape, etc.
FA 4-38
City of Ashland Emergency Management Plan Functional Annexes
FA 4. Recovery Strategy
Appendix C-2 FEMA Disaster Recovery Center Site
Requirements List
FEMA DRC SITE REQUIREMENTS WORKSHEET
The following is the worksheet that FEMA uses to evaluate potential DRC facilities=
Date site evaluated: Prima or seconds site circle one
Site address: Coup panne:
Site contact/telephone number: City name:
Aker hours contactrale hone: coup E.M. Directoritele hone:
Site accessible hrs:
Site Ise vs! location and who has them?
ORC 611E REQUIREME1418 MINO COMME1418
Proximate to affected area 5 ?
Parking adequate? (preferably 40 spaces or more, but no fewer
than 20 aces
Electricity, water, lighting adequate?
- adequate power available for tax machines and computers?
- water system functioning?
emergency lighting system available?
exterior lighting available?
Secure, safe, and sanitary facility?
building sound, of good construction, and non-leaking condition?
electric wiring in sound condition or sealed op from contact with
staff and clients? (no exposed wiring - no missing receptacle
cover plates or damaged receptacles)
sprinkler system operating or fire extinguishers available?
dry goers with no holes or other obstructions?
heating and/or cooling system(s) verified as inspected and
functioning properly?
- reatrooms functional orport.bl. units available?
- adequate ventilation ofworking area?
- can doors be locked?
- are windows secure?
akin lot ff htedlsafe for stag and clients to walk to theirears?
Lease or useagreement?
Agreement between coup lai officials?
Building Is handicap accessible?
- adequate handicap parking?
- ramp forwheelchair(if necessary)?
- doorways wide enough to accommodate wheelchair?
restrooms handicapped accessible including wheelchair?
Existing telephones available to FEMA? Number?
Incoming telephone cable capacity?
- number of pelts feeding the facllity and cable type?
- pre-existing service and telephone or circuit numbers?
contact local telephone company to verify availability of circuits to
support minimum .1 16 phone lines
- Verify that inside wiring can be easily accomplished. Existing
cabling may not be reliable. Insure that access to areas including
ceilin s, tole h....... s, and crawls aces is available.
Tables and chairs available to FEMA? Number?
minimum 15 tables, 60-75 chairs)
Fax available to FEMA?
- number of faxes '
- makefmodel#:
ndratiN no
Janitorial and trash pickup services? Frequency?
Crowd control devices such as ropes, cones, etc.?
Oregon Emergency Management Disaster Recomty Assislance Guidebook 0408-OE
Disaster Recovery Center Requirements Checklist- 2
FA 4-39
City of Ashland Emergency Management Plan Functional Annexes
FA 4. Recovery Strategy
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FA 4-40
City of Ashland Emergency Management Plan Functional Annexes
FA 4. Recovery Strategy
Appendix D Typical Individual Assistance Programs
Programs
Typical Individual Assistance HUMANITARIAN SERVICE GROUPS
(e.g., American Red Cross, Church Groups, Voluntary Organizations,
Community Service Groups)
Funded by: Agency or group
Administered by: Agency or group at temporary or permanent locations
Details: These services can be requested by individuals or by local or state
officials. Services provided include immediate emergency aid such as clothing,
food, medical assistance, shelter, cleanup help, transportation, furniture, and
medical supplies
EMERGENCY FOOD STAMP PROGRAM
Funded by: Food and Nutrition Services (U.S. Department of Agriculture
[USDA])
Administered by: State Department of Social and Health Services (DSHS)
Details: Provides food coupons to qualified disaster victims. Requires a
request to the USDA by the DSHS, based on request to DSHS by State
Emergency Management in coordination with local Emergency Management.
INSURANCE ASSISTANCE
Administered by: American Insurance Association, Federal Emergency
Management Agency, and National Flood Insurance Program
Details: Provide counseling regarding insurance problems or questions.
CONSUMER PROTECTION
Administered by: State Attorney General's Office
Details: Provides counseling regarding consumer problems, such as non-
availability of products and services needed for reconstruction, price gouging,
and disreputable business concerns and practices. May involve coordination
with the Insurance Commissioner and/or legal counsel.
FA 4-41
City of Ashland Emergency Management Plan Functional Annexes
FA 4. Recovery Strategy
Programs
Typical Individual Assistance CRISIS COUNSELING
Administered by: Jackson County Health and Human Services
Details: Available only after a special request by the Governor and approved
by the Federal Emergency Management Agency. Provides referral services and
short-term counseling for mental health problems caused or aggravated by a
disaster.
INDIVIDUAL AND FAMILY GRANT PROGRAM
Funded by: 75% Federal, 25% State
Administered by: State Emergency Management
Provides assistance to individuals and families to permit them to meet disaster-
related necessary expenses and serious needs for which other assistance is
either unavailable or inadequate. It is not intended as a replacement for an
insurance program.
TEMPORARY HOUSING PROGRAM
Funded by: 100% Federal
Administered by: Federal Emergency Management Agency
Details: Provides financial assistance or government-owned dwellings, if
available, for those whose primary residences are uninhabitable due to a
disaster.
DISASTER LOANS
Funded by: U.S. Small Business Administration
Administered by: U.S. Small Business Administration
Physical Disaster Loans - Low-interest loans to individuals for repair,
replacement, or rehabilitation of owner-occupied primary residences or
personal property loss for renters.
Business Loans (Physical Disaster Loans) - Low-interest loans to businesses
for repair, replacement, or rehabilitation of disaster-damaged property.
Economic Injury Disaster Loans - For businesses suffering economic loss as
a result of a single sudden physical event of catastrophic nature. The Small
Business Administration's maximum loan is $500,000. Funds can be used for
indebtedness and operating expenses.
FA 4-42
City of Ashland Emergency Management Plan Functional Annexes
FA 4. Recovery Strategy
Programs
Typical Individual Assistance EMERGENCY LOANS, FARMERS HOME ADMINISTRATION
Administered by: USDA
Details: Provides low-interest loans to farmers, ranchers, and agricultural
operators (either tenant-operator or owner-operator) for physical and production
losses. Loans may also be used to repair or replace farm property and supplies
or for repayment of farm operating debts incurred during the disaster year.
Loans may also be available if approved by the USDA, following a governor's
request
DISASTER UNEMPLOYMENT ASSISTANCE
Funded by: Federal Emergency Management Agency
Administered by: U.S. Department of Labor through the State Employment
Security Department
Details: Provides weekly benefit payments to those out of work due to a
disaster, including self-employed persons, farm workers, farm and ranch
owners, and others not normally covered under regular unemployment
insurance programs.
TAX ASSISTANCE
Administered by: Internal Revenue Service and Tax Information for Indian
Tribal Governments
Details: Provides counseling and assistance in the form of income tax rebates
to disaster victims who file income tax returns during the year of the disaster or
during any of the three previous years. These earlier returns may be amended
to receive an immediate tax rebate for non-insured casualty losses to homes,
personal property, businesses, or farming/ranching operations. Benefits may
also result from filing amended state income tax returns.
SOCIAL SECURITY BENEFITS
Funded by: Social Security Administration
Administered by: Social Security Administration
Details: Assistance to annuitants with address changes and expedited check
delivery. Assistance in applying for disability, death, survivor benefits, and
Social Security Insurance payments.
FA 4-43
City of Ashland Emergency Management Plan Functional Annexes
FA 4. Recovery Strategy
Programs
Typical Individual Assistance VETERAN'S BENEFITS
Funded by: Veterans Administration (VA)
Administered by: Veterans Administration
Details: Assistance in applying for VA death benefits, pensions, insurance
settlements, and adjustments to VA-insured home mortgages. VA
representatives will also record address changes, if necessary.
LEGAL SERVICES
Administered by: Federal Emergency Management Agency
Details: Free legal counseling to low-income persons for disaster-related
problems. May include replacing legal documents, transferring titles,
contracting problems, will probates, and insurance problems.
FA 4-44
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Incident Annex
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City of Ashland Emergency Management Plan Incident Annex
Table of Contents
1 Hazard Descriptions IA-1
1.1 Earthquake ...................................................................................IA-1
1.2 Major Fire .....................................................................................IA-1
1.3 Public Health IA-2
1.4 Severe Weather.' ..........................................................................IA-2
1.5 Volcano ........................................................................................IA-2
1.6 Hazardous Materials IA-3
1.7 Transportation Accidents (Including Air, Rail, and Road) .............IA-3
1.8 Terrorism ......................................................................................IA-3
1.9 Utility Failure IA-4
2 Pre-incident Actions IA-4
2.1 General ........................................................................................IA-4
2.2 Earthquake ...................................................................................IA-5
2.3 Major Fire .....................................................................................IA-5
2.4 Public Health ................................................................................IA-5
2.5 Severe Weather ...........................................................................IA-5
2.6 Volcano ........................................................................................IA-6
2.7 Transportation Accident (Including Air, Rail, and Road) ..............IA-7
2.8 Terrorism ......................................................................................IA-7
2.9 Utility Failure ................................................................................IA-7
3 Response Phase Actions IA-8
3.1 General ........................................................................................IA-8
3.2 Earthquake ....IA-9
3.3 Major Fire .....................................................................................IA-9
3.4 Public Health ................................................................................IA-9
3.5 Severe Weather .........................................................................IA-10
3.6 Volcano ......................................................................................IA-11
3.7 Hazardous Materials ..................................................................IA-11
3.8 Transportation Accidents (Including Air, Rail, and Road) IA-12
3.9 Terrorism ....................................................................................IA-13
3.10 Utility Failure ..............................................................................IA-14
4 Recovery/Demobilization Phase Actions IA-15
5 Resources ...................................................................IA-15
5.1 Earthquake ......IA-15
5.2 Major Fire IA-15
5.3 Public Health ..............................................................................IA-16
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City of Ashland Emergency Management Plan Incident Annex
5.4 Severe Weather .........................................................................IA-16
5.5 Volcano ......................................................................................IA-16
5.6 Hazardous Materials ..................................................................IA-17
5.7 Transportation Accidents (Including Air, Rail, and Road) IA-17
5.8 Terrorism ....................................................................................IA-17
5.9 Utility Failure ..............................................................................IA-17
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City of Ashland Emergency Management Plan Incident Annex
1 Hazard Descriptions
The following incidents are included within this annex and include action items and information
specific to the incident type.
■ Natural Hazards:
• Earthquake
• Major Fire
• Public Health Incident
• Severe Weather (including thunderstorm and lightning, tornado, windstorm,
hailstorm, severe winter storm, landslide, generalized flooding, and drought)
• Volcano
■ Human-Caused and Technological:
• Hazardous Materials
• Transportation Accidents (including air, rail, and roads)
• Terrorism
• Utility Failure
1.1 Earthquake
An earthquake of 5 or greater on the Richter scale may or may not cause widespread damage, but
it is a situation that may warrant activation of the Emergency Operations Center (EOC) to better
coordinate the flow of information and damage assessment needs.
Initially, the lead agencies for earthquake response will be the Police and Fire Departments. As
the initial assessment to determine the extent of damage, injury, and loss of life has been
accomplished, the EOC's Operations Section lead may be transitioned to the Fire Department.
As emergency response transitions from rescuing casualties to restoring critical services, the
Public Works Department may be expected to assume the role of lead department in the
Operations Section for the City of Ashland's (City's) earthquake response. Public Works
Department efforts in this response and early recovery phase of the disaster will likely
concentrate on reestablishment of public infrastructure facilities.
See the Natural Hazard Mitigation Plan for more information.
1.2 Major Fire
A major fire is an instance of uncontrolled burning that may involve grasslands, brush, or
woodlands, as well as multiple structures. There is an increasing vulnerability to such fires, due
to the increasing number of homes in fire-prone areas. The costs of fighting wildland fires today,
including using heavy equipment, helicopters, office and communications equipment, and
feeding and housing responders, can easily exceed expectations. Fuel, slope, weather, and
development are key components in wildfire hazard identification.
The lead agency for major fire response will be the Fire Department, with support from the
Police Department to control traffic.
See the Natural Hazard Mitigation Plan for more information.
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City of Ashland Emergency Management Plan Incident Annex
1.3 Public Health
For the purpose of this annex, the following incidents are included under public health:
■ Endemic and pandemic outbreaks
■ Contamination concerns
■ Bio- and chemical terrorism
Each public health incident may have its own characteristics, including interaction with other
hazards identified in this annex. For example, water contamination could be the result of massive
flooding.
The nature of the public health incident will determine agency involvement, but it is anticipated
that Jackson County (County) Health and Human Services Department will serve as the lead
agency.
1.4 Severe Weather
For the purpose of this annex, the following individual hazards are included under severe
weather:
■ Flooding (generalized) ■ Tornado
■ Hailstorm ■ Windstorm
■ Landslides ■ Drought - areas that may experience
■ Severe winter storm impacts
■ Thunderstorm and lightning
Each hazard may have its own characteristics, including the time of year it is most likely to
occur, severity, and associated risk; however, many hazards are interrelated. For example, wind
is a factor in thunderstorms and severe winter storms and hailstorms and rain can contribute to
landslides.
The nature of the severe weather will determine agency involvement, but the Public Works
Department will be heavily involved in leading operations.
See the Natural Hazard Mitigation Plan for more information.
1.5 Volcano
Oregon's vulnerability to volcanic events varies statewide. The Cascade Mountains, which
separate Western Oregon from Central Oregon, pose the greatest threat of volcanic activity.
Regions that include the Cascade Mountains are most vulnerable to the effects of a volcanic
event. Within the State of Oregon (State), there are several volcanoes that may pose a threat of
eruption-most notably, Mount Hood, which most recently erupted about 200 years ago, as well
as the Three Sisters, and Mt. Jefferson, which have not erupted for about 15,000 years but are not
considered extinct.
Initially, the lead agencies for volcano response will be the Police and Fire Departments. After
the initial assessment to determine the extent of damage, injury, and loss of life has been
accomplished, the EOC's Operations Section lead may be transitioned solely to the Fire
Department. As emergency response transitions from rescuing casualties to restoring critical
IA-2
City of Ashland Emergency Management Plan Incident Annex
services, the Public Works Department may be expected to assume the role of lead department in
the Operations Section for the City's volcano response. Public Works Department efforts in this
response and early recovery phase of the disaster will likely concentrate on reestablishment of
public infrastructure facilities.
See the Natural Hazard Mitigation Plan for more information.
1.6 Hazardous Materials
Hazardous materials are stored, used, and transported using roads, rail lines, pipelines, or flight
paths. Numerous industries and businesses use chemicals that pose a threat to their own private
property and employees. In addition, in some instances where a hazardous materials plume is
released, it may affect neighboring businesses and communities.
The lead agency for hazardous materials response will be the Fire Department, with support from
the Police Department to control traffic.
1.7 Transportation Accidents (Including Air, Rail, and Road)
The Federal Aviation Administration and National Transportation Safety Board (NTSB) have the
authority and responsibility to investigate all accidents involving aircraft. It is NTSB policy to be
on the scene of a major accident as soon as possible. In minor aircraft accidents, the Federal
Aviation Administration may respond to the scene instead of the NTSB. The Department of
Defense has the authority to investigate any accident involving military aircraft.
The NTSB has the authority and responsibility to investigate accidents involving selected rail
accidents. The Federal Railroad Administration monitors the occurrence of train accidents and
incidents 24 hours a day, seven days a week, 365 days a year.
Motor vehicle accidents that occur on roadways within the City would not normally constitute a
major emergency under the Emergency Management Plan, unless hazardous materials or mass
casualties/fatalities complicate the incident. The City Fire and Police Departments will assume
initial command if the transportation accident involves a fire and/or casualties and to secure the
incident site.
1.8 Terrorism
This annex can be applied to incidents involving weapons of mass destruction and chemical,
biological, radiological, nuclear, and explosive (CBRNE) materials.
The City Police Department has the lead role in terrorism crisis management within the City and
the County Sheriff's Office maintains authority in unincorporated segments of the County. The
lead agencies for the State and federal government are the Oregon State Police and the Federal
Bureau of Investigation (FBI), respectively.
The laws of the United States assign primary authority to state and local governments to respond
to the consequences of terrorism; the federal government provides assistance as required. The
City and County EOCs typically will be activated and have the lead role in terrorism
consequence management for most types of terrorist incidents, but the County Health and
Human Services Department will be assigned the lead local role in terrorism consequence
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City of Ashland Emergency Management Plan Incident Annex
management for incidents involving biological agents. The Oregon Office of Emergency
Management and Federal Emergency Management Agency are the State and federal
consequence management leads.
1.9 Utility Failure
A utility failure can happen at any time and is a disruption to the normal operations of electricity,
water, gas, and telephone services. While causes of these shortages may be natural or human-
caused, the severity of the incident must be measured by how seriously the shortage amount and
duration impacts life and property.
The type of utility will determine agency involvement, but the Public Works Department and
Ashland Municipal Electric Utility will be heavily involved in leading operations. Involvement
from utility companies will be required to ensure service restoration.
2 Pre-Incident Actions
2.1 General
The following pre-incident action items are appropriate to most incidents; however, the actions
should be evaluated for appropriateness in any given situation and do not replace common sense
or standard operating procedures (SOPS).
■ Determine the key stakeholders that should be notified of the arising situation.
■ Consider limited activation of the EOC.
■ Conduct pre-incident planning for protective actions (e.g., sheltering-in-place,
evacuation, activation of warming shelters).
■ Identify and review established evacuation routes and alternate routes for areas
vulnerable to the incident.
■ Prepare public information materials to inform residents and businesses of protective
measures. Utilize multiple media types, including print, television, radio, and social
media.
■ Identify and review existing agreements for mutual support and identify additional
community partners, including local contractors, vendors, and private organizations that
may be able to assist.
■ Anticipate potential unmet needs or resource shortfalls and identify strategies for meeting
those needs.
■ Identify and review procedures for registering mutual aid and other first responders as
they arrive on the scene and receive deployment orders.
■ Identify and review existing SOPS and agency-specific protocols specific to the incident.
Ensure that copies of all documents are available to response personnel as necessary.
■ Ensure that all departments are notified to provide situational awareness to the
Emergency Manager and/or the EOC if activated.
■ Prepare disaster declaration materials if appropriate. Brief key leadership.
■ Conduct just-in-time training based on incident requirements.
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City of Ashland Emergency Management Plan Incident Annex
2.2 Earthquake
In addition to the pre-incident actions listed in Section 2. 1, the following action items may be
appropriate:
■ Monitor the Pacific Northwest Seismic Network (https://www.pnsn.or
■ Identify potential protective measures, including:
• Pre-identified evacuation routes and alternate routes for areas vulnerable to
earthquakes to ensure accuracy.
• Appropriate infrastructure protection measures in landslide-prone areas.
■ Evaluate current resources and identify potential needs and shortfalls (e.g., bridge-free
evacuation routes, assembly sites, viable shelter locations).
2.3 Major Fire
In addition to the pre-incident actions listed in Section 2.1, the following action items may be
appropriate:
■ Monitor updated fire danger ratings detailing weather trends, fuel types, and likely fire
characteristics.
■ Identify potential protective measures, including:
• Pre-identified evacuation routes and alternate routes for areas vulnerable to the
fire.
• Relocation of equipment and personnel out of vulnerable areas.
■ Evaluate current resources and identify potential needs and shortfalls (e.g., water sources,
equipment, personnel).
2.4 Public Health
In addition to the pre-incident actions listed in Section 2.1, the following action items may be
appropriate:
■ Coordinate with the County Health and Human Services Department to monitor and
report the presence of contagious infection within the City.
■ Identify potential protective measures, including:
• Encourage personnel to wear face masks.
• Encourage personnel to obtain vaccinations.
• Encourage work-from-home options.
■ Evaluate current resources and identify potential needs and shortfalls (e.g., medical
supplies and equipment, personnel).
■ Engage with public health organizations to ensure the presence of adequate supplies and
medical equipment.
■ Identify and review drinking water quality plans.
■ Identify and review wastewater and sewage disposal plans.
2.5 Severe Weather
In addition to the pre-incident actions listed in Section 2.1, the following action items may be
appropriate:
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City of Ashland Emergency Management Plan Incident Annex
■ Monitor weather reports (http://www.weather.gov/, http://www.spc.noaa.goyn.
■ Identify potential protective measures, including:
• Review pre-identified cooling center locations.
• Review pre-identified warming center locations.
• For precipitation and flooding, identify areas that will likely need sandbagging to
protect residents and property.
■ Evaluate current resources and identify potential needs and shortfalls (e.g., cooling
centers, warming centers, alternative water sources, sandbags).
■ Participate in severe weather preparedness activities, seeking an understanding of
interactions with participating agencies in a severe weather scenario.
2.5.1 Flooding
In addition to the pre-incident actions listed in Sections 2.1 and 2.5, the following action items
may be appropriate:
■ Monitor expected rainfall and river, creek, and tributary levels.
■ Identify potential protective measures, including:
• Pre-identified evacuation routes and alternate routes for areas vulnerable to
flooding.
• Appropriate infrastructure protection measures in landslide/flood-prone areas
(coordinate with the Engineering Division to establish procedures).
■ Evaluate current resources and identify potential needs and shortfalls (e.g., sandbags,
equipment, clear evacuation routes, assembly sites, shelter locations).
■ Become familiar with flood-prone areas and the challenges they face.
■ Ensure that sandbags and other necessary equipment and supplies are prepared and ready
to use.
2.5.2 Drought
In addition to the pre-incident actions listed in Sections 2.1 and 2.5, the following action items
may be appropriate:
■ Monitor rainfall, weather, crop conditions, and water availability.
■ Identify potential protective measures, including:
• Identify alternative sources of drinking water.
• Work with the local water service provider to implement water conservation
efforts.
• Work with local farmers to implement herd management strategies.
■ Evaluate current resources and identify potential needs and shortfalls (e.g., potable water,
water for agricultural needs, financial support).
■ Pre-designate alternative sources of drinking water in case of drought or other water
shortage event.
2.6 Volcano
In addition to the pre-incident actions listed in Section 2. 1, the following action items may be
appropriate:
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City of Ashland Emergency Management Plan Incident Annex
■ Monitor volcanic activity and wind direction.
■ Identify potential protective measures, including:
• Pre-identified evacuation routes and alternate routes for areas vulnerable to
projected ash fall.
• Implement shelter-in-place plans.
• Identify traffic control needs.
■ Identify potential resource needs (e.g., ash removal equipment, masks, shelters).
2.7 Transportation Accident (Including Air, Rail, and Road)
In addition to the pre-incident actions listed in Section 2. 1, the following action items may be
appropriate:
■ Monitor weather reports for severe weather that may make it challenging for drivers,
pilots, and rail operators to see and/or control their vehicles, aircraft, and railcars (e.g.,
excessive rainfall, fog, snow, ice).
■ Identify potential protective measures, including:
• Assess the City's transportation infrastructure (e.g., roads, bridges, and traffic
control devices) and implement an emergency transportation route plan.
• Close roads or bridges that are experiencing flooding or icy conditions.
■ Evaluate current resources and identify potential needs and shortfalls (e.g., traffic
management supplies, personnel, mass fatality and mass casualty needs).
■ Ensure that City personnel are aware they should not attempt to remove accident-related
debris from the accident area except as necessary to facilitate fire suppression, rescue,
and emergency medical care.
2.8 Terrorism
In addition to the pre-incident actions listed in Section 2.1, the following action items may be
appropriate:
■ Monitor social media and other avenues for potential terrorism-related threats.
■ Identify potential protective measures, including:
• Shelter-in-place resources and activities.
• Pre-identified evacuation routes and alternate routes for potential targets of
terrorist activity.
■ Evaluate current resources and identify potential needs and shortfalls (e.g., personnel
trained in hazardous materials response, shelter-in-place supplies).
■ Ensure that City personnel have a basic awareness of hazardous materials response and
whom to contact.
2.9 Utility Failure
In addition to the pre-incident actions listed in Section 2. 1, the following action items may be
appropriate:
■ Monitor severe weather reports that may affect utilities (e.g., high winds, drought,
flooding).
■ Identify potential protective measures, including:
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• Remove tree branches or trees from power line areas.
• Coordinate with schools, daycare centers, nursing homes, rest homes, hospitals,
etc. in determining proper precautions and emergency actions prior to a utility
failure.
• Confirm emergency contact information for each utility that provides service in
the area.
• Check emergency generators to ensure they are in working condition.
• Review hazard information for vital facilities and the impact of a major utility
failure on one or more of those facilities.
• Coordinate with utilities to procure and produce information for distribution to the
public (e.g., "What to Do When the Lights Go Out').
■ Evaluate current resources and identify potential needs and shortfalls (e.g., generators,
equipment for clearing roads of debris, personnel).
3 Response Phase Actions
3.1 General
The following response action items are appropriate to most incidents; however, the actions
should be evaluated for appropriateness in any given situation and do not replace common sense
or SOPS.
■ Activate local warning/alert systems as appropriate.
■ Assist the EOC Safety Officer in ensuring that actions are taken to protect personnel and
emergency equipment from possible damage by the incident.
■ Conduct EOC operations in accordance with the Incident Action Planning process. See
https:Hgoo.gl/FaMF8T for more information.
■ Activate mutual aid as needed including placing backup teams on standby.
■ Ensure that all required notifications have been completed. Consider the following:
• Local, regional, state, and federal agencies/entities that may be able to mobilize
resources to support local response efforts
• Mutual aid partners
• Private-sector partners with which existing contracts are in place
• Adjacent jurisdiction EOCs
• Agency operations centers
■ Coordinate resource access, deployment, and storage in the operational area and track
resources as they are dispatched and/or used.
■ Determine the need for an emergency/disaster declaration and submit as needed.
■ Facilitate public information through the Public Information Officer (PIO) with approval
by the EOC Incident Commander.
■ If appropriate, establish and/or participate in a Joint Information Center and designate a
lead PIO for the City.
■ Maintain incident documentation, including financial records, for potential
reimbursement.
■ Develop appropriate reports to maintain situational awareness, including, but not limited
to:
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• Damage assessment
• Repair and restoration of essential services and vital systems needed
• Injuries and deaths
• Major equipment damage accrued during response activities
■ Develop and delivery situation reports (recurring action at regular intervals). [Incident
Command System (ICS) Form 209 - Incident Status Summary]
■ Develop and regularly update the Incident Action Plan (recurring action). [ICS Form 202
- Incident Obiectives, ICS Form 203 - Organization Assignment List, ICS Form 205 -
Incident Radio Communications Plan ICS Form 206 - Medical Plan ICS 208 - Safety
Message. Incident Map]
3.2 Earthquake
In addition to the response actions listed in Section 3.1, the following action items may be
appropriate:
■ Continue to monitor the Pacific Northwest Seismic Network for aftershocks.
■ Monitor secondary hazards associated with earthquakes (e.g., ruptured utility lines,
hazardous spills, fires, building collapses, landslides).
■ Implement protective measures (e.g., evacuation, assembly sites, shelter activation, traffic
control, search and rescue).
■ Coordinate debris management activities (e.g., clear right-of-way, establish temporary
debris storage sites).
■ Identify transportation resources to move people and equipment as necessary.
3.3 Major Fire
In addition to the response actions listed in Section 3.1, the following action items may be
appropriate:
■ Continue to monitor weather reports, including wind, expected rainfall, and thunderstorm
reports.
■ Monitor secondary hazards associated with fires (e.g., public health, erosion, landslides,
introduction of invasive species, changes in water quality).
■ Implement protective actions (e.g., evacuations, relocation of equipment and personnel).
■ Coordinate debris management activities (e.g., clear right-of-way, establish temporary
debris storage sites).
3.4 Public Health
In addition to the response actions listed in Section 3.1, the following action items may be
appropriate:
■ Continue to coordinate with the County Health and Human Services Department to
monitor and report the presence of public health incidents within the City.
■ Implement protective measures, in coordination with the County Health and Human
Services Department, to minimize the spread of disease (e.g., wash hands frequently,
wear mask, vaccinations, work from home).
■ Establish access control to quarantine areas through local law enforcement agencies.
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■ Collect and report vital statistics to the County Health and Human Services Department
or the County EOC if activated, including injuries and/or deaths due to the public health
emergency.
■ Coordinate with the County to plan for transportation of mass casualties to suitable care
facilities and mass fatalities to suitable emergency morgue facilities.
■ Coordinate with the County Health and Human Services Department to ensure that public
information being released is appropriate and in line with their messaging.
3.5 Severe Weather
In addition to the response actions listed in Section 3. 1, the following action items may be
appropriate:
■ Continue to monitor weather reports to project potential damage and determine the
affected areas.
■ Monitor secondary hazards associated with severe weather (e.g., landslides, agricultural
water needs, transportation infrastructure damage).
■ Implement protective measures (e.g., activate warming or cooling centers, provide
sandbag materials and equipment, traffic control measures).
■ Coordinate debris management activities (e.g., clear right-of-way, establish temporary
debris storage sites).
3.5.1 Flooding
In addition to the response actions listed in Sections 3.1 and 3.5, the following action items may
be appropriate:
■ Continue to monitor expected rainfall and river, creek, and tributary levels.
■ Monitor secondary hazards associated with flooding (e.g., landslides, infrastructure
damage, soil erosion and land degradation, epidemic diseases, poisoning, unhygienic
conditions, sedimentation, traffic accidents, water pollution, waterlogging/salinity).
■ Implement protective measures, including:
• Coordinate debris removal from necessary areas (e.g., storm drains, bridge
viaducts, main arterial routes, public rights-of-way, dams).
• Activate law enforcement resources (e.g., curfew enforcement, road closures,
security).
• Establish infrastructure protection measures in landslide/flood-prone areas.
■ Identify resource needs (e.g., sandbags, equipment, assembly sites, shelters) and request
additional support through mutual aid, private contractors, and the County.
■ Activate search and rescue operations as necessary.
3.5.2 Drought
In addition to the response actions listed in Sections 3.1 and 3.5, the following action items may
be appropriate:
■ Continue to monitor rainfall, temperatures, crop conditions, and water availability.
■ Monitor secondary hazards associated with drought (e.g., wildfires, economic).
■ Implement protective measures (e.g., water conservation efforts, voluntary or mandatory
water use restrictions, herd management strategies).
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■ Work with the PIO and local extension office to provide information and advice to
farmers affected via media releases and increase drought education and outreach to the
general public.
■ Identify resource needs (e.g., potable water, support to farmers).
3.6 Volcano
In addition to the response actions listed in Section 3. 1, the following action items may be
appropriate:
■ Continue to monitor volcanic activity and wind direction to project potential spread of
ash, fires, and/or gases.
■ Monitor secondary hazards associated with volcanic activity (e.g., ground deformation,
lahars, landslides, building roof collapses).
■ Implement protective measures (e.g., evacuations, shelter-in-place, traffic control,
promote wearing masks, promote staying indoors, open shelters).
■ Identify resource needs (e.g., ash removal equipment, masks, fire suppression
equipment).
■ Work with the PIO to provide information to the public regarding health protective
measures and appropriate ash removal methods.
3.7 Hazardous Materials
In addition to the response actions listed in Section 3.1, the following action items maybe
appropriate:
■ Monitor current and forecasted weather to project a potential spread of the hazardous
materials plume (recurring action).
■ Activate the Regional Hazardous Materials Team through the Oregon Emergency
Response System at 1-800-452-0311 for technical assistance.
■ Determine the type, scope, and extent of the hazardous materials, incident (recurring
action). Verify reports and obtain estimates of the area that may be affected. ICS Form
209: Status Summary]
• Notify 911 dispatch, supporting agencies, adjacent jurisdictions, and liaisons of
the situation.
• Assess the type, severity, and size of the incident. If possible, characterize the
hazardous material(s) of concern and determine appropriate personal protection
equipment requirements.
• Ensure that a health and safety plan is developed by the designated Safety Officer,
including monitoring first responders in accordance with applicable guidance.
■ Ensure that proper containment methods have been implemented by first responders until
hazardous materials response teams arrive.
■ Establish a safe zone and determine a location for on-site staging and decontamination.
Reevaluate as the situation changes.
■ Provide support for implementation of applicable Geographic Response Plans established
by the Oregon Department of Environmental Quality to guide activities throughout the
duration of the incident.
■ Support access control to the incident site through local law enforcement agencies.
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■ If applicable, establish immediate gross decontamination capability for victims.
■ Notify hazardous materials supporting agencies.
■ Ensure that all required hazardous notifications have been completed.
REQUIRED NOTIFICATIONS
■ The Oregon Department of Transportation should be contacted for incidents
occurring on state highways.
• Appropriate key stakeholder and partners for incidents that pose an actual or
potential threat to state parks, recreational areas, historical sites, environmental
sensitive areas, tourist routes, or other designated areas.
■ If agricultural areas and livestock are potentially exposed or impacted, notify
local extension services (Oregon State University), Oregon Department of
Agriculture, and the State Veterinarian.
■ Coordinate with the responsible party (if known) and the Oregon Department of
Environmental Quality on using private contractors for clean-up.
3.8 Transportation Accidents (Including Air, Rail, and Road)
In addition to the response actions listed in Section 3.1, the following action items may be
appropriate:
■ Continue to monitor weather reports for severe weather.
■ Conduct a scene assessment to determine appropriate level of emergency medical,
transportation, and hazardous materials response. Based on the location of the accident,
mass casualty, and/or evacuation procedures may be required. [ICS Form 209: Status
Summary]
■ Implement protective measures (e.g., road/bridge closures, alternate routes).
■ Identify resources needed to support the incident (traffic management supplies,
personnel, mass fatality and mass casualty support).
■ Secure the crash site to maintain integrity of the accident site (after fire suppression and
victim rescue operations are completed).
■ Ensure that all required notifications have been completed.
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REQUIRED NOTIFICATIONS
• Aircraft accident:
o Federal Aviation Administration
o Contact the National Transportation Safety Board prior to removing
deceased victims or moving aircraft wreckage. (Safety Office, 425-
227-2000, 24 hours)
o Oregon Department of Transportation (State Highways)
■ Railroad accident:
o Prior to removing any victims or wreckage, the Incident Commander or
EOC Incident Commander should contact the railroad company's
emergency response center, as well as the National Transportation
Safety Board.
■ State highway accident: Oregon Department of Transportation
■ Appropriate key stakeholder and partners for incidents that pose an actual or
potential threat to state parks, recreational areas, historical sites, environmental
sensitive areas, tourist routes, or other designated areas.
■ If agricultural areas and livestock are potentially exposed or impacted, notify
local extension services (Oregon State University), Oregon Department of
Agriculture, and the State Veterinarian.
■ Coordinate the collection, storage, and disposition of all human remains and their
personal effects from the accident site.
■ Coordinate provision of up-to-date information to friends and family of victims (if not
already being handled by another agency). Consideration should be given to keeping the
friends and family of the victims in a central location, protected from the press, and
where information can be provided to them as it becomes available.
• Allow the rail company, airline, or agency affected by the accident to confirm
casualties and to notify the next of kin via prescribed methodology.
■ Support the removal of debris in coordination with, or under the direction of,
investigating agencies such as the Transportation Security Administration, NTSB, and
FBI.
■ Coordinate with the American Red Cross to provide shelter and family referral services
through the EOC.
3.9 Terrorism
In addition to the response actions listed in Section 3.1, the following action items may be
appropriate:
■ Continue to work with County, State, and FBI resources to monitor terrorist activities.
■ Mobilize appropriate emergency personnel and first responders. When necessary, send
fire services, emergency medical services, hazardous materials, law enforcement, public
health, and others to the site. Determine responder activities and establish non-
contaminated areas prior to mobilizing resources.
■ Ensure that all required notifications have been completed.
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REQUI RED .NOTIFICATIONS
• Notification of the Oregon State Police and the Federal Bureau of
Investigation is required for all terrorism incidents.
• If an incident occurs on state highways, ensure that the Oregon Department of
Transportation has been notified.
■ Notification of appropriate key stakeholders and partners is required for
incidents that pose an actual or potential threat to state parks, recreational
areas, historical sites, environmental sensitive areas, tourist routes, or other
designated areas.
■ If agricultural areas and livestock are potentially exposed or impacted, notify
local extension services (Oregon State University), Oregon Department of
Agriculture, and the State Veterinarian.
■ Activate and participate in Unified Command. Unified Command may consist of City,
County, regional, state, and federal crisis management and consequence management
agencies.
■ Evaluate the safety of emergency personnel. Initiate development of site- and agent-
specific health and safety plan.
■ Implement protective actions (e.g., evacuations, sheltering). Refer to the United States
Department of Transportation Emergency Response Guidebook for determining the
appropriate evacuation distance from the source.
■ Activate public notification and advisory procedures.
■ Clear immediate area and notify appropriate first responders if an explosive device is
found.
• Be cognizant of any secondary devices that may be on site.
• Be cognizant that CBRNE agents maybe present..
■ Control and investigate the crime scene and collect evidence, photographs, and video
recordings.
See Section 3.6 for hazardous materials specific information.
3.10 Utility Failure
In addition to the response actions listed in Section 3.1, the following action items may be
appropriate:
■ Continue to monitor severe weather reports that may affect utilities.
■ Monitor secondary hazards associated with utility failure (e.g., traffic accidents due to
signals being out, public health concerns, communication difficulties, heating and cooling
difficulties).
■ Implement protective measures (e.g., utilize backup generators, clear debris from roads).
■ Identify the following:
• General boundary of the affected area
• Extent of utility disruption
• Immediate needs of response forces or utilities
• Estimated time of repair or duration of outage
• Estimated population affected
■ Coordinate with the American Red Cross to open shelters as appropriate.
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■ Establish communication with and request a liaison from the utility as appropriate.
4 Recovery/Demobilization Phase Actions
Recovery/demobilization actions begin once the threat to public safety has been eliminated. The
following recovery action items are appropriate to most incidents; however, the actions should be
evaluated for appropriateness in any given situation and do not replace common sense or SOPS.
■ Continue to monitor incident-specific secondary hazards.
■ Coordinate with the American Red Cross to determine how long shelter operations will
be continued, if activated during the incident.
■ Implement intermediate and long-term recovery activities.
■ Develop a strategy for transitioning the coordination and communication mechanisms for
ongoing recovery efforts (e.g., role of the EOC, situational awareness updates, and
communications protocols).
■ Consider long-term environmental impacts and remediation needs and implement actions.
■ Develop a Demobilization Plan to assist in an orderly demobilization of emergency
operation. [ICS Form 221 - Demobilization Plan]
■ Deactivate/demobilize the EOC, agency operations centers, and command posts.
■ Conduct post-incident debriefing(s) to identify success stories and opportunities for
improvement. Develop an After Action Report based on these debriefings.
■ Develop recommendations and correct any deficiencies reflected in the After Action
Report regarding changes in planning, zoning, and building codes/ordinances to lessen
the impact of future emergencies related to this type of incident.
■ Revise any applicable emergency response plans based on the success stories and/or
lessons learned during the response.
5 Resources
5.1 Earthquake
■ Cascadia Playbook https://www.oregon.~,,ov/OMD/OEM/Pages/Cascadia Playbook.aspx
■ United States Geological Survey Earthquake Hazards Program
https://earthquake.usys.gov/
■ Catalog of Federal Emergency Management Agency (FEMA) Earthquake Resources
https://www.fema.gov/media-library-data/1394506756491-
eac042da03e84513b9d034c7debcd6f8/FEMA P-736.13 Final 508.pdf
■ Resident Guidance from FEMA https://www.ready.gov/earthquakes
■ County Emergency Operations Plan (EOP), Incident Annex (IA) 2 Earthquake/Seismic
Activity
■ State of Oregon EOP, IA 2 - Earthquake
■ Oregon Resilience Plan
■ Oregon Fuel Action Plan
5.2 Major Fire
■ Fire Agency List by County
f
http://www.oregon.gov/osp/SFM/docs/FireAgencyLiStCOLinty.pd
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■ United States Forest Service Wildland Fire Assessment System, Fire Danger Rating
http://www.wfas.net/index.h/fire-danger-rating-fire-potential--danger-32
■ Resident Guidance from FEMA https://www.ready.gov/wildfires
■ County EOP, IA 3 - Wildland Fire
■ State of Oregon FOP
• Emergency Support Function (ESF) 4 -Firefighting
• IA 5 - Wildland Fire
5.3 Public Health
■ Oregon's Health Security, Preparedness, and Response Program
https://public.health.oregon.gov/Preparedness/Pages/index.asp
■ Cities Readiness Initiative http://www.crinorthwest.org/preptalk.html
■ Resident Guidance from FEMA
• Pandemic https://www.ready.gov/pandemic
• Chemical Threats https://www.ready.gov/chemical-threats
• Biological Threats https://www.ready.govlbiological-threats
■ County EOP, ESF 8 - Public Health
■ State of Oregon EOP, ESF 8 - Health and Medical
5.4 Severe Weather
■ National Oceanic and Atmospheric Association's National Climatic Data Center
/
http://www.ncdc.noaa.gov
■ United State Drought Monitor, updated weekly http://droughtmonitor.unl.edu/Home.aspx
■ Resident Guidance from FEMA
• Severe Weather https://www.ready.gov/severe-weather
• Drought https://www.ready.gov/drought
• Floods https://www.ready.gov/floods
• Snowstorms and Extreme Cold https://www.ready.gov/winter-weather
• Thunderstorms and Lightening https://www.ready.gov/thunderstorms-lightnin
g
• Extreme Heat https://www.ready.gov/heat
■ County EOP, IA 5 - Severe Weather
■ State of Oregon EOP
• IA 1 -Drought
• IA 3 - Flood
• IA 7 - Severe Weather
■ United States Geological Survey River Stream Flow data
https://waterdata.usgs.gov/or/nwis/current/?type=flow
5.5 Volcano
■ Mount Hood Coordination Plan, June 2013,
https://www.oregon.gov/OMD/OEM/plans train/Earthquake/volcano plan mt-hood.pdf
■ U.S. Geological Survey Volcano Hazards Program, lam://voleanoes.usgs.gov/index.html
■ Resident Guidance from FEMA https://www.ready.izov/volcanoes
■ County EOP, IA 6 - Volcano
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■ State of Oregon IA 6 - Volcano
http://www.oregon.gov/OMD/OEM/plans train/docs/eop/eop is 6 volcano.pdf
5.6 Hazardous Materials
■ Northwest Area Contingency Plan http://www.rrtIOnwac.com/nwacp
/
■ Pipeline and Hazardous Materials Safety Administration
http://www.phmsa.dot.gov/hazmat
■ Resident Guidance from FEMA https://www.ready.gov/hazardous-materials-incidents
■ County EOP, ESF 10 - Oil and Hazardous Materials
■ State of Oregon Emergency Operations Plan, ESF 10 - Hazardous Materials
http://www.oregon.gov/OMD/OEM/plans train/docs/eop/OR EOP 2015 ESF 10 hazm
at.pdf
5.7 Transportation Accidents (Including Air, Rail, and Road)
■ Oregon Department of Transportation Trip Check https://tripcheck.com
■ County Airport and Heliport Directory
https://www.oregon.gov/OMD/OEM/Pamplans train/Disaster-Aviation-
Annex.aspx#County Airport and Heliport Directory
■ Individual airport emergency response plans
■ Individual railroad emergency response plans
■ State of Oregon Disaster Aviation Annex
https://www.oregon.gov/OMD/OEM/Pages/plans train/Disaster-Aviation-Annex.aspx
5.8 Terrorism
■ County EOP
• IA 9 - Terrorism
• IA 10 - Bioterrorism
■ State of Oregon EOP
• IA 8 - Terrorism
https://www.oregon.gov/OMD/OEM/plans train/docs/eop/eop is 8 terrorism.pd
f
• IA 10 Cyber Security
https://www.oregon.gov/OMD/OEM/plans train/does/eop/eop is 10 cyber.pdf
5.9 Utility Failure
■ State of Oregon EOP, ESF 12 - Energy
■ Electrical company emergency response plans
■ Natural gas company emergency response plans
■ Cell phone company emergency response plans
■ Telecommunications company emergency response plans
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