Comprehensive Preparedness Guide (CPG) 101
Producing Emergency Plans
A Guide for All-Hazard Emergency Operations
Planning for State, Territorial, Local, and Tribal
Governments
INTERIM Version 1.0
1 August 2008
(Intentionally Blank)
CONTENTS
PREFACE................................................................................................................................ P-1
Acknowledgments............................................................................................................... P-3
1. INTRODUCTION AND OVERVIEW .............................................................................. 1-1
Introduction........................................................................................................................ 1-1
Purpose......................................................................................................................... 1-1
Applicability and Scope................................................................................................ 1-2
Supersession.................................................................................................................. 1-3
Authorities.................................................................................................................... 1-3
How to Use This Guide................................................................................................. 1-3
Recommended Training................................................................................................ 1-5
NIMS Compliance and Integration............................................................................... 1-5
Administrative Information .......................................................................................... 1-5
Revision Process ........................................................................................................... 1-5
2. THE PLANNING PROCESS............................................................................................. 2-1
Overview............................................................................................................................ 2-1
Planning Principles ............................................................................................................. 2-2
Characteristics of Effective Planning Processes................................................................. 2-5
Steps in the Planning Process ............................................................................................. 2-5
Form a Collaborative Planning Team................................................................................. 2-6
Understand the Situation..................................................................................................... 2-14
Conduct Research ......................................................................................................... 2-14
Analyze the Information ............................................................................................... 2-17
Determine Goals and Objectives ........................................................................................ 2-19
Plan Development............................................................................................................... 2-20
Develop and Analyze Courses of Action, Identify Resources...................................... 2-20
Plan Preparation, Review, Approval................................................................................... 2-23
Write the Plan ............................................................................................................... 2-23
Approve and Implement the Plan ................................................................................. 2-24
Plan Refinement and Execution.......................................................................................... 2-25
Exercise the Plan and Evaluate Its Effectiveness ......................................................... 2-25
Review, Revise, and Maintain the Plan ........................................................................ 2-28
3. EMERGENCY OPERATIONS PLAN FORMATS .......................................................... 3-1
Emergency Plans and Procedures ....................................................................................... 3-1
State, Territorial, Local, and Tribal EOPs .................................................................... 3-2
Structuring an EOP ............................................................................................................. 3-4
Traditional Functional Format ...................................................................................... 3-5
Emergency Support Function (ESF) Format ................................................................ 3-7
August 2008 INTERIM - Comprehensive Preparedness Guide 101
Agency/Department-Focused Format........................................................................... 3-9
Using EOP Templates......................................................................................................... 3-11
4. EMERGENCY OPERATIONS PLAN CONTENT........................................................... 4-1
The Basic Plan .................................................................................................................... 4-1
Introductory Material.................................................................................................... 4-1
Purpose, Scope, Situation, and Assumptions................................................................ 4-2
Concept of Operations .................................................................................................. 4-3
Organization and Assignment of Responsibilities........................................................ 4-4
Direction, Control, and Coordination ........................................................................... 4-4
Disaster Intelligence (Information Collection) ............................................................. 4-4
Communications ........................................................................................................... 4-5
Administration, Finance, and Logistics ........................................................................ 4-5
Plan Development and Maintenance ............................................................................ 4-5
Authorities and References........................................................................................... 4-6
Supporting Annexes............................................................................................................ 4-6
Functional, Support, Emergency Phase, or Agency-Focused Annex Content ............. 4-7
Hazard- or Incident-Specific Annexes or Appendices.................................................. 4-9
Annex and/or Appendix Implementing Instructions..................................................... 4-11
Special Preparedness Programs .................................................................................... 4-12
5.
ADDITIONAL TYPES OF PLANS................................................................................... 5-1
General Types of Plans ....................................................................................................... 5-1
Procedural Documents.................................................................................................. 5-2
Determining Whether Response Information Belongs in a Plan
or Procedural Document ............................................................................................... 5-4
6.
LINKING FEDERAL, STATE, TERRITORIAL, LOCAL, AND
TRIBAL PLANS ................................................................................................................ 6-1
Recent Changes to Emergency Planning Requirements..................................................... 6-1
National Incident Management System........................................................................ 6-3
National Response Framework..................................................................................... 6-5
Emergency Management Assistance Compact (EMAC).............................................. 6-6
Relationship between Federal Plans and State EOPs ......................................................... 6-7
The National Response Framework (NRF) .................................................................. 6-7
FEMA Regional Response Plans (RRPs) ..................................................................... 6-8
State Emergency Operations Plan................................................................................. 6-9
APPENDIX A: AUTHORITIES AND REFERENCES .......................................................... A-1
APPENDIX B: GLOSSARY AND LIST OF ACRONYMS................................................... B-1
APPENDIX C: EMERGENCY OPERATIONS PLAN (EOP) COMPONENT NIMS
INTEGRATION ASSESSMENT................................................................... C-1
APPENDIX D: EOP DEVELOPMENT GUIDE..................................................................... D-1
Comprehensive Preparedness Guide 101
August 2008
APPENDIX E: SAMPLE HAZARD PROFILE WORKSHEET ............................................ E-1
APPENDIX F: SAMPLE ORGANIZATION RESPONSIBILITY MATRIX........................ F-1
APPENDIX G: SAMPLE DEPARTMENT-TO-ESF CROSS-REFERENCE MATRIX ....... G-1
APPENDIX H: SAMPLE INFORMATION COLLECTION MATRIX................................. H-1
FIGURES
2.1
Comparison of Published Planning Processes .................................................................. 2-1
3.1
Traditional Functional EOP Format.................................................................................. 3-6
3.2
Emergency Support Function EOP Format....................................................................... 3-8
3.3
Agency/Department-Focused EOP Format....................................................................... 3-10
6.1
Relationships of National Preparedness Initiatives to State, Territorial, Local,
and Tribal Emergency Planning........................................................................................ 6-2
TABLES
2.1
Potential Members of a Larger Community Planning Team ............................................ 2-9
2.2
Sample Hazard List ........................................................................................................... 2-18
4.1
Comparison of Potential Functional Annex Structures..................................................... 4-8
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Comprehensive Preparedness Guide 101 August 2008
PREFACE
This FEMA Comprehensive Preparedness Guide, CPG 101, continues the more
than 50-year effort to provide guidance about emergency operations planning to
State, Local, Territorial, and Tribal Governments. Some predecessor material
can be traced back to the 1960s-era Federal Civil Defense Guide. Long-time
emergency management (EM) practitioners also will recognize the influence of
Civil Preparedness Guide 1-8, Guide for the Development of State and Local
Emergency Operations Plans, and State and Local Guide (SLG) 101, Guide for
All-Hazards Emergency Operations Planning, in this document.
While CPG 101 maintains its link to the past, it also reflects the changed reality of
the current emergency planning environment. Hurricane Hugo and the Loma
Prieta earthquake influenced the development of CPG 1-8. Hurricane Andrew
and the Midwest floods shaped the contents of SLG 101. In a similar way,
CPG 101 reflects the impacts of the September 11, 2001, terrorist attacks and
recent major disasters, such as Hurricanes Katrina and Rita, on the emergency
planning community. CPG 101 integrates concepts from the National Incident
Management System (NIMS) and National Response Framework (NRF), and
it incorporates recommendations from the 2005 Nationwide Plan Review. It also
references the Target Capabilities List (TCL) that outlines the fundamental
capabilities essential to implementing the National Preparedness Guidelines. As
part of a larger planning modernization effort, CPG 101 provides methods for
emergency planners to:
•
Develop sufficiently trained planners to meet and sustain planning
requirements;
•
Identify resource demands and operational options throughout the
planning process;
•
Link planning, preparedness, and resource and asset management
processes and data in a virtual environment;
•
Prioritize plans and planning efforts to best support emergency
management and homeland security strategies and allow for their
seamless transition to execution;
•
Provide parallel and concurrent planning at all levels;
•
Produce and tailor the full range and menu of combined Federal,
State/Tribal, and Local Government options according to changing
circumstances; and
August 2008 INTERIM - Comprehensive Preparedness Guide 101
•
Quickly produce plans on demand, with revisions as needed.
This Guide provides emergency managers and other emergency services
personnel with the Federal Emergency Management Agency’s (FEMA’s) best
judgment and recommendations on how to address the entire planning process –
from forming a planning team, through writing and maintaining the plan, to
executing the plan. It also encourages emergency managers to follow a process
that addresses all of the hazards that threaten their jurisdiction through a suite
of plans connected to a single, integrated emergency operations plan (EOP).
Over the past five years, many communities have also been developing multi-
hazard mitigation plans, addressing many of the same hazards as their
emergency operations plan. In fact, the hazard identification and risk assessment
sections of these plans should be the same (although the mitigation plans are
only required to address natural hazards communities are encouraged to
address man-made and technological hazards as well). Communities are
encouraged to coordinate their mitigation and emergency management planning
efforts to reduce duplication of effort.
This Guide should help State and Local Government emergency management
organizations produce EOPs that:
•
Serve as the basis for effective response to any hazard that threatens
the jurisdiction,
•
Integrate prevention and mitigation activities with traditional response
and recovery planning, and
•
Facilitate coordination with the Federal Government during incidents
that require the implementation of the National Response Framework
(NRF).
Additionally, CPG 101 incorporates concepts that come from disaster research
and day-to-day experience:
•
Effective plans convey the goals and objectives of the response and
the intended actions needed to achieve them.
•
Successful responses occur when organizations know their roles,
accept them, and understand how they fit into the overall plan.
•
The process of planning is more important than the document that
results from it.
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•
Plans are not scripts followed to the letter but are flexible and
adaptable to the actual situation.
This Guide is part of a larger series of emergency planning related CPGs
published by FEMA. CPG 101 discusses the steps used to produce an EOP,
possible EOP structures, and what goes into the basic plan and its annexes.
Follow-on guides will provide detailed information about planning considerations
for different response functions and hazards.
While CPG 101 is the foundation for public sector emergency planning in the
United States, emergency planners in all disciplines and organizations may find
portions of this Guide useful in the development of their emergency response
plans. FEMA-141, Emergency Management Guide for Business and Industry,
provides additional information for developing emergency response plans for
private sector organizations.
ACKNOWLEDGMENTS
A working group composed of State, Territorial, Local, and Tribal government
emergency managers and emergency management researchers developed
CPG 101. The group included representatives from:
State and Territorial Governments
•
Commonwealth of Pennsylvania: Pennsylvania Emergency
Management Agency
•
State of Arkansas: Arkansas Department of Emergency Management
•
State of California: Office of Emergency Services
•
State of Delaware: Delaware Emergency Management Agency
•
State of Florida: Office of Public Health Preparedness
•
State of Illinois: Illinois Emergency Management Agency
•
State of Maryland: Maryland Emergency Management Agency
•
State of Michigan: Michigan State Police
•
State of Minnesota: Minnesota Homeland Security and Emergency
Management
•
State of Mississippi: Mississippi Emergency Management Agency
•
State of New Jersey: Office of Homeland Security and Preparedness;
Department of Law and Public Safety
•
State of New Mexico; New Mexico Office of Emergency Management
•
State of Nevada: Southern Nevada Health District
•
State of Ohio: Ohio Emergency Management Agency
•
State of Oklahoma: Department of Emergency Management;
Department of Homeland Security
•
State of South Carolina: South Carolina Emergency Management
Division; South Carolina Law Enforcement Division
August 2008 INTERIM - Comprehensive Preparedness Guide 101
Local and Tribal Governments
•
Baltimore County (MD): Office of Homeland Security and Emergency
Management
•
Chesterfield County (VA): Office of Emergency Management
•
City of Grapevine (TX): Grapevine Fire Department
•
City of Milwaukee (WI): Department of Public Works
•
City of San Francisco (CA): Office of Emergency Services
•
Clark County (NV): Office of Emergency Management and Homeland
Security
•
Cobb County (GA): Emergency Management Agency
•
Cullman County (AL) : Emergency Management Agency
•
Johnson County (KS): Office of Emergency Management and
Homeland Security
•
Jones County (MS): Emergency Management Agency
•
Madison County (AL): Emergency Management Agency
•
Madison County (OH): Emergency Management Agency
•
Marion County (AL): Emergency Management Agency
•
Mobile County (AL): Emergency Management Agency
•
Overland Park (KS): Overland Park Police Department
•
Rockingham County (NC): Emergency Services
Professional Associations
•
International Association of Emergency Managers
•
National Emergency Management Association
Industry, Research Organizations, and Universities
•
Argonne National Laboratory: Center for Integrated Emergency
Preparedness
•
CRA, Incorporated
•
Innovative Emergency Management, Incorporated
•
Oklahoma State University: Center for the Study of Disasters and
Extreme Events
•
Towson University: Center for Homeland Security
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1. INTRODUCTION AND
OVERVIEW
INTRODUCTION
PURPOSE
CPG 101 provides general guidelines on developing Emergency Operations
Plans (EOPs). It promotes a common understanding of the fundamentals of
planning and decision making to help emergency planners examine a hazard and
produce integrated, coordinated, and synchronized plans. This Guide helps
emergency managers in State, Territorial, Local, and Tribal governments in their
efforts to develop and maintain a viable all-hazard EOP. Each jurisdiction’s EOP
must reflect what that community will do to protect itself from its unique hazards
with the unique resources it has or can obtain.
The value of planning rests in its proven ability to influence events before
they occur and in its indispensable contribution to unity of effort. Planning
is part of the broad framework of incident management and an essential activity
of homeland security. The President identified emergency planning as a national
security priority, and this prioritization is reflected in the National Preparedness
Guidelines (NPG). Planning must be conducted in an atmosphere of trust and
mutual understanding. Accomplished properly, planning
provides a methodical way to think through the entire
“Let our
life cycle of a potential crisis, determine required
advance
capabilities, and help stakeholders learn and practice
worrying
their roles. It directs how we envision and share a
become
desired outcome, select effective ways to achieve it,
and communicate expected results. Planning is not advanced
formulaic or scripted. No planner can anticipate every thinking and
scenario or foresee every outcome. Planners measure a planning.”
plan’s quality by its effectiveness when used to address
unforeseen events, not by the fact that responders Winston
executed it as scripted. Planning includes the collection
Churchill
and analysis of intelligence and information and the
development of plans, procedures, mutual aid
agreements, and other publications that comply with the relevant laws, policies,
and guidance needed to perform response missions and tasks.
Comprehensive planning systems involve both deliberative planning and incident
action planning. Deliberative planning is the process of developing strategic and
August 2008 INTERIM - Comprehensive Preparedness Guide 101
operational plans based upon facts or assumptions about the circumstances
involved in a hypothetical situation; in other words, they are created in advance
of events. In incident action planning, we adapt existing deliberative plans during
an incident or when we recognize an event is about to occur. Emergency
planners will find that both are critical to developing a robust planning capability
within and among all stakeholders (including nongovernmental organizations
[NGOs]).
Planners achieve unity of purpose through horizontal integration and
vertical coordination of emergency plans among all levels and sectors. This
supports the foundational principle that response starts at the Local level and
adds State, Regional, and Federal assets as the affected jurisdiction needs more
resources and capabilities. This means that plans must be coordinated vertically
among levels of government to ensure a common operational focus. Similarly,
emergency planners at each level must ensure that individual department and
agency response plans fit into the jurisdiction’s concept of operations
(CONOPS). This horizontal integration ensures that the department or agency
understands, accepts, and is prepared to execute response missions identified in
the jurisdiction’s EOP. Incorporating both aspects ensures that the sequence and
scope of a planned operation (what should happen, when, and at whose
direction) is synchronized for all responders in purpose, place, and time.
A shared planning system or planning community increases collaboration,
shortens planning cycles, and makes plans easier to maintain. Planning is
an essential homeland security activity. It requires policies, procedures, and tools
that support the decision makers and planners who make up the emergency
planning community. The goal of both the Comprehensive Preparedness Guide
initiative and the broader scope National Preparedness Guidelines is to create a
simple national planning system and develop a national planning community that
can cope with change.
APPLICABILITY AND SCOPE
The U.S. Department of Homeland Security recommends that teams responsible
for developing EOPs within State, Territorial, Local, and Tribal governments and
in the private sector use CPG 101 to guide their efforts. It provides a context for
EOPs in light of other existing plans and describes a process to use in any
planning effort. The Guide recognizes that many jurisdictions across the country
have already developed EOPs. Therefore, it establishes no immediate
requirements but suggests that the next iteration of all EOPs generally follow this
guidance.
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SUPERSESSION
CPG 101 is new. It replaces SLG 101, which is rescinded.
AUTHORITIES
Through the Robert T. Stafford Disaster Relief and Emergency Assistance Act
(the Stafford Act), as amended, 42 U.S.C. 5121, et seq., Congress recognizes
emergency management as a joint responsibility of Federal, State, and Local
governments. For the Federal government, Congress defines a role that includes
providing "necessary direction, coordination, and guidance" (Sec. 601, 42 U.S.C.
5195) for the nation's emergency management system, to include "technical
assistance to the states in developing comprehensive plans and programs for
preparation against disasters" (Sec. 201(b), 42 U.S.C. 5131(b)).
The Stafford Act also provides the legal basis for FEMA's mitigation plan
requirements for State, local, and Indian Tribal governments (44 Code of Federal
Regulations (CFR) Part 201) as a condition of receiving funding for
mitigation grants. This Act provides an opportunity for states and local
governments to take a new and revitalized approach to mitigation planning and
emphasizes the need for state, Tribal, and local entities to closely coordinate
mitigation planning and implementation efforts. The requirement for a State
mitigation plan is continued as a condition of disaster assistance, adding
incentives for increased coordination and integration of mitigation activities at the
State level.
The Post-Katrina Emergency Management Reform Act of 2006 established new
leadership positions and position requirements within the Federal Emergency
Management Agency (FEMA), brought new missions into FEMA, restored some
that had previously been removed, and enhanced the agency’s authority by
directing the FEMA Administrator to undertake a broad range of activities before
and after disasters occur. The Post-Katrina Act contains provisions that set out
new law, amend the Homeland Security Act, and modify the Stafford Act.
Additionally, the regulations governing emergency management and assistance
are promulgated in Chapter 1, Title 44 of the Code of Federal Regulations and
provide procedural, eligibility, and funding requirements for program operations.
State, Territorial, Local, and Tribal governments should use this Guide to
supplement laws, policies, and regulations from their jurisdictions.
HOW TO USE THIS GUIDE
CPG 101 is designed to help both novice and experienced planners navigate the
planning process. Chapter 1, in addition to addressing the applicability, authority,
purpose, and scope of CPG 101, suggests minimum training needs for
August 2008 INTERIM - Comprehensive Preparedness Guide 101
emergency planners. It also
CPG 101 Content Summary
discusses NIMS compliance
and informs users about how 1. Introduction
to recommend changes for 2. The Planning Process
future versions. Chapter 2 3. EOP Formats
outlines planning principles
4. EOP Content
and the steps of the planning
5.
Additional Types of Plans
process. It discusses how to
6.
Linking Federal, State, Territorial, Local, and Tribal
produce EOPs as a team,
Plans
the importance of research
7. Appendices
and hazard analysis in
producing a plan, and how to A. Authorities and References
determine the roles and B. Glossary and Acronyms
responsibilities of C. NIMS Integration Assessment
participating organizations.
D. EOP Development Guide
Chapter 3 provides some
E.
Hazard Profile Worksheet
practice-based options for
F.
Organization Responsibility Matrix
structuring EOPs. Chapter 4
G.
Department-to-ESF Cross-Reference Matrix
discusses typical content for
H.
Information Collection Matrix
an EOP’s basic plan and
annexes. Chapter 5
summarizes other forms of emergency plans and the relationship between those
plans and an EOP. Chapter 6 explains how Federal and State emergency plans
link to Local plans. The appendices include the following:
•
A list of source material used in developing the Guide,
•
A glossary of terms and a list of acronyms used throughout the Guide,
•
An EOP component assessment derived from National Integration Center
(NIC) materials,
•
Checklists to help guide EOP development,
•
A sample hazard profile worksheet,
•
A sample organizational responsibility matrix,
•
A sample department-to-ESF (emergency support function) cross-
reference matrix, and
•
A sample information collection matrix.
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RECOMMENDED TRAINING
This guide assumes that users have some experience in emergency
management and emergency planning. At a minimum, users should have
completed the following Independent Study courses offered by FEMA’s
Emergency Management Institute:
•
IS 1: Emergency Manager – An Orientation to the Position
•
IS 100: Introduction to the Incident Command System I-100
•
IS 200: ICS for Single Resources and Initial Action Incidents
•
IS 208: State Disaster Management
•
IS 230: Principles of Emergency Management (This course will be revised
to reflect CPG101 as the basis for training.)
•
IS 235: Emergency Planning
•
IS 292: Disaster Basics
•
IS 700: National Incident Management System (NIMS), An Introduction
•
IS-701 Multiagency Coordination Systems
•
IS-702 NIMS Public Information Systems
•
IS-703 NIMS Resource Management
•
IS-706 NIMS Intrastate Mutual Aid – An Introduction
•
IS 800b: The National Response Framework, An Introduction
NIMS COMPLIANCE AND INTEGRATION
In November 2005, the NIC published guides for integrating NIMS concepts into
EOPs. This Guide incorporates the concepts and suggestions found in those
documents.
ADMINISTRATIVE INFORMATION
Terms and acronyms in the text emphasized with bold type come from the
FEMA Acronyms, Abbreviations, and Terms (FAAT) or the National Incident
Management System (NIMS). The glossary lists most terms used in CPG 101
that have FAAT or NIMS definitions. Bold and italic type is used for terms or
acronyms first identified in this CPG.
REVISION PROCESS
FEMA will revise CPG 101 as needed and issue change pages through the
publication distribution system and on-line through a variety of sources
(e.g., DHSInteractive [https://interactive.dhs.gov/suite/portal/index.jsp] and DHS
Lessons Learned Information Sharing [http://www.llis.dhs.gov]).
August 2008 INTERIM - Comprehensive Preparedness Guide 101
FEMA welcomes recommendations on how to improve this CPG so it better
serves the needs of the emergency management community. You can provide
recommendations for improving this Guide to:
DHS/FEMA
National Preparedness Directorate
Planning and Assistance Branch
800 K Street, NW
Washington, DC 20531
ATTN: CPG Initiative
E-mail: donald.lumpkins@dhs.gov
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2. THE PLANNING PROCESS
OVERVIEW
This chapter describes an approach for emergency planning that is consistent
with the process described in the National Incident Management System manual.
When planners use this process consistently during the preparedness phase, its
use during response operations becomes second nature. The goal is to make the
planning process routine across all phases of emergency management.
The process described in this chapter blends concepts from a variety of sources,
including not only the NIMS manual but also previously published FEMA
guidance and National Response Team hazardous materials planning
guidance. Figure 2.1 shows the relationships among the different processes. This
chapter suggests an emergency planning process that planners can apply at all
levels of government to tactical, operational, and strategic planning efforts. This
process also allows private and nongovernmental organizations to integrate and
find synergy with government planning efforts. Although individual planners can
use this process, it is most effective when used by a planning team.
Figure 2.1 Comparison of Published Planning Processes
August 2008 INTERIM - Comprehensive Preparedness Guide 101
PLANNING PRINCIPLES
The challenge of developing an all-hazards plan for protecting lives, property,
and the environment within is made easier if the emergency planners preparing it
apply the following principles to the planning process:
Planning is an orderly, analytical, problem-solving process. It follows a set
of logical steps from plan initiation to analysis of objectives, to development and
comparison of ways to achieve the objectives, and to selection of the best
solution. Rather than concentrating on every detail of how to achieve the
objective, an effective plan structures thinking and supports insight, creativity,
and initiative in the face of an uncertain and fluid environment. While using a
prescribed planning process cannot guarantee success, inadequate plans and
planning are proven contributors to failure.
Plans guide preparedness activities. They provide a common framework to
guide preparedness by establishing the desired end state and the tasks required
to accomplish it. This process identifies the capabilities required. Capabilities
provide the means to accomplish a mission and achieve desired outcomes by
performing critical tasks, under specified conditions, to target levels of
performance. Exercises provide opportunities to demonstrate and evaluate
performance, while periodic assessments of plans identify lessons learned and
provide the means to share best products and practices.
Planning helps deal with complexity. Homeland security problems are most
often a complex set of interrelated problems. The National Strategy for Homeland
Security attaches special emphasis to planning for catastrophic events with “the
greatest risk of mass casualties, massive property loss and immense social
disruption.” Planning provides the opportunity for a jurisdiction or regional
response structure to work through these very complex situations and their
unique set of problems. Planning helps emergency managers understand how
their decisions might affect the ability of their jurisdiction and neighboring
jurisdictions to achieve response goals.
Emergency planning addresses all hazards. The causes of emergencies can
vary greatly, but many of the effects do not. This means planners can address
emergency functions common to all hazards in the basic plan instead of having
unique plans for every type of hazard. For example, floods, wildfires, and
hazardous materials releases may lead a jurisdiction to issue an evacuation
order. Even though each hazard’s characteristics (e.g., speed of onset, size of
the affected area) are different, the general tasks for conducting an evacuation
are the same. Differences in the speed of onset may affect when an evacuation
order is given, but the process of issuing an evacuation order does not change.
All-hazards planning ensures that when we plan for emergency functions, we
identify common tasks and who is responsible for accomplishing those tasks.
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Emergency planning does not need to start from scratch. Planners should
take advantage of others' experience. The State is a valuable resource for the
Local jurisdiction. Many States publish their own standards and guidance for
emergency planning, conduct workshops and training courses, and assign their
planners to work with Local planners. FEMA supports State training efforts
through its National Preparedness Directorate by offering resident, locally
presented, and independent-study emergency planning courses. FEMA also
publishes many documents related to planning for specific functions and
hazards. By reviewing existing emergency or contingency plans, planners can:
•
Identify applicable authorities and statutes,
•
Gain insight into community risk perceptions,
• Identify organizational arrangements used in the past,
•
Identify mutual aid agreements with other jurisdictions, and
•
Learn how some planning issues were resolved in the past.
Planning depicts the anticipated environment for action. This promotes early
understanding and agreement on planning assumptions and risks, and it
provides the context for interaction. Effective planning identifies clear tasks and
purposes, promotes frequent interaction among stakeholders, guides
preparedness activities, establishes procedures for implementation, provides
measures to synchronize actions, and allocates or reallocates resources. It can
also serve, at least in part, as a substitute for experience. Experience helps us
know intuitively what to expect and what actions to take. In situations where we
lack experience, planning provides the opportunity to anticipate conditions and
systematically think through potential problems and workable solutions. Planners
should review the existing emergency plans for questionable assumptions,
inaccuracies, inconsistencies, omissions, and vagueness. Critiques of recent
emergency operations and exercises in the jurisdiction will help planners develop
a list of topics to address when updating plans.
Planning must involve all partners. Just as a coordinated emergency response
depends on teamwork, good emergency planning requires a team effort. The
most realistic and complete plans are prepared by a team that includes
representatives of the departments, agencies, and private sector and NGOs that
will have to execute the plan. This principle is so important that the first step of
the planning process is forming a planning team. When the plan considers and
incorporates the views of the individuals and organizations assigned tasks in it,
the more likely they are to accept and use it.
Planning assigns tasks, allocates resources, and establishes
accountability. Decision makers must ensure planners have the means to
accomplish the mission. They do so by organizing, staffing, equipping, and
August 2008 INTERIM - Comprehensive Preparedness Guide 101
allocating resources. They ensure planners have clearly established priorities to
make the most efficient use of key resources, and they hold planners and plan
participants accountable for effective planning and performance.
Planning includes senior officials throughout the process to ensure both
understanding and buy-in. Potential planning team members have many day-
to-day concerns. For a team to come together, potential members must be
convinced that emergency planning has a higher priority, and the person to
convince them is the jurisdiction's chief executive. They discipline the process to
meet requirements of time, planning horizons, simplicity, and level of detail. They
ensure plans comply with policy and law, are relevant, and are suitable for
implementation. Planning helps decision makers anticipate and think critically,
reducing time between decisions and actions. The more involved decision
makers are in planning, the better the planning product is. The emergency
manager has to enlist the chief executive's support for and involvement in the
planning effort. The emergency manager must explain to the chief executive
what is at stake in emergency planning by:
•
Sharing the hazard analysis for the jurisdiction,
•
Describing what the government body and especially the chief executive
will have to do,
•
Discussing readiness assessments and exercise critiques, and
•
Reminding the chief executive that planning is an iterative, dynamic
process that ultimately facilitates his or her job in an emergency.
Planning is influenced by time, uncertainty, risk, and experience. These
factors define the starting point where planners apply appropriate concepts and
methods to create solutions to particular problems. Since this involves judgment
and balancing of competing demands, plans cannot be overly detailed, followed
to the letter, or so general that they provide insufficient direction. This is why
planning is both science and art, and why plans are evolving frameworks.
Those aspects of planning that are quantifiable, measurable, and lend
themselves to analysis – such as how long it takes a team to mobilize and travel
certain distances – are part of the science of planning. Planners gain knowledge
about the science of planning through training and study. Other aspects of
planning, such as the choice of particular options or arrangement of a specific
sequence of actions, are part of the art of planning. Applying the art of planning
requires an understanding of the dynamic relationships between participants and
of the conditions and complexity imposed by the situation. Mastering the art of
planning comes through exercises and operational experience.
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Effective plans not only tell those within the planning community what to
do (the task) and why to do it (the purpose). They also inform those outside
the jurisdiction about how to cooperate and provide support and what to
expect. Plans identify important constraints (what “must be done”) and restraints
(what “must not be done”) that affect freedom of action and expectations.
Planning is fundamentally a risk management tool. Uncertainty and risk are
inherent in response planning and operations. Risk management during planning
identifies potential hazards and assesses the probability and severity of each to
mission accomplishment. Decision makers determine and communicate
acceptable levels of risk.
CHARACTERISTICS OF EFFECTIVE PLANNING PROCESSES
Examples of effective planning processes include the U.S. Department of
Defense’s (DoD’s) Joint Operation Planning and Execution System, DHS’s
National Planning and Execution System, and the National Oil and Hazardous
Substances Pollution Contingency Plan System. These planning systems and
processes share common characteristics. They are:
•
Constantly occurring;
•
Attempt to reduce unknowns in the anticipated event, while acknowledging
it is impossible to preplan every aspect of a response;
•
Aim at evoking appropriate actions;
•
Are based on what is likely to happen and what people are likely to do;
•
Are based on facts, including knowledge about people’s typical behavior,
the threat or hazard itself, and required capabilities;
•
Focus on general principles while maintaining flexibility;
•
Are partly a training and education activity; and
•
Are tested.
STEPS IN THE PLANNING PROCESS
There are many ways to produce an EOP. The planning process that follows has
enough flexibility for each community to adapt it to its unique characteristics and
situation. Small communities can follow just the steps that are appropriate to their
size, known hazards, and available planning resources. The steps of this process
are to:
1. Form a collaborative planning team;
2. Understand the Situation;
a) Conduct research
August 2008 INTERIM - Comprehensive Preparedness Guide 101
b) Analyze the information
3. Determine Goals and Objectives;
4. Plan Development;
a) Develop and analyze courses of action
b) Identify resources
5. Plan Preparation, Review, Approval; and
a) Write the plan
b) Approve and implement the plan
6. Plan Refinement and Execution;
a) Exercise the plan and evaluate its effectiveness
b) Review, revise, and maintain the plan
FORM A COLLABORATIVE PLANNING TEAM
Experience and lessons
learned indicate that
emergency planning is best
performed by a team. Using a
team or group approach
helps response organizations
define their perception of the
disaster/emergency and the
role they will play. Case
studies and research
reinforce this concept by pointing out that the common thread found in successful
responses is that the responding organizations have understood and accepted
their roles. In addition, members of the planning team should be able to
understand and accept the roles of other departments and agencies. One goal of
using a planning team is to build and expand relationships that help bring
creativity and innovation to planning during emergencies. It helps establish a
planning routine, so that processes followed before an emergency are the same
as those used during an emergency.
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In most jurisdictions, the
emergency manager is the senior
elected official’s policy advisor for
mitigation, preparedness,
response, and recovery strategies.
In this role, emergency managers
are often responsible for
coordinating and developing the
EOP. In practice, this means that
the emergency manager usually
provides oversight to the planning
team. However, other government
agencies or departments have
statutory authority and
responsibility for implementing
preparedness and response
actions. Two key groups in this
regard are law enforcement and
public health. Law enforcement
often has the lead in addressing
prevention issues, in concert with
other services. Public health in the
modern era continues to address
unique hazards that cross the
bounds between natural and
intentional. Thus, the emergency
manager must ensure that
emergency planning involves the
jurisdiction's entire emergency
team.
Initially, the team should be small,
consisting of planners from the
organizations that usually respond
to an emergency or disaster. They
form the core for all planning
efforts. As the emergency plan
matures, the core team expands to
include other planners.
Jurisdictions that use an agency
and department response
structure might use a core team
consisting of planners from:
•
Emergency management,
A Small Community Planning Team
A small community (population of 1,500) took
the following approach to forming its planning
team:
Who was involved in the core planning team?
Any department or office that was likely to
be involved in most if not all responses.
Involvement was limited to the 5–7 most
central people – Fire Chief, Police Chief,
Emergency Manager, Emergency Planner,
Head of Public Works.
What did they do?
-Provided information to create a
complete plan draft.
-Answered the questions about the
community for the draft plan.
-Provided additional commentary on
roles and responsibilities.
-Gave information about the
communities’ standard operations.
-Clarified command structures.
-Provided information about resources,
capabilities, threats, and risks.
-Gave writers information for
integration.
Who participated in the larger planning team?
Responders and stakeholders who might
become involved in a major incident. In this
case, the community used a 10–20 member
group that included emergency managers
from surrounding communities, business
leaders, secondary responders,
representatives from industry, community
leaders, and community contractors.
What did they do?
-Reviewed the full plan.
-Provided insights and recommendations
for improvement.
-Integrated additional perspectives.
-Agreed to provide additional support.
August 2008 INTERIM - Comprehensive Preparedness Guide 101
•
Law enforcement,
•
Fire services,
•
Emergency medical services,
•
Public health,
•
Hospitals and health care facilities,
•
Public works,
•
Social services,
•
Private sector, and
•
NGOs (including those that address special needs issues).
A jurisdiction might want to base the core planning team’s membership on the
EOP structure it uses. For example, locations using an Emergency Support
Function (ESF) EOP structure might form a core team composed of planners
from the lead agency or department for ESF-4 (Fire), ESF-5 (Emergency
Management), ESF-6 (Mass Care), ESF-8 (Public Health and Medical Services),
and ESF-13 (Public Safety).
No matter how a jurisdiction structures its core planning team, it needs the
involvement of executives from the member departments or agencies. Their
participation indicates support for the planning function. They are able to speak
with authority on policy, provide subject matter expertise, and provide
accountability as it relates to their agency or department.
FEMA encourages the establishment of state and local Citizen Corps Councils
(CCCs) to bring government and nongovernment community leaders together to
facilitate continuous integrated community all-hazard emergency planning. Local
government-sponsored CCCs can be a valuable resource for including multi-
sector representation in developing and updating government EOPs and
coordinating and integrating with nongovernmental plans.
Table 2.1 identifies potential members of the larger planning community and their
areas of expertise upon which the core planning team can draw. The list is not
all-inclusive. The emergency manager must constantly bring planners or subject
matter experts who have experience and insights that are appropriate for the task
into the planning process.
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Table 2.1 Potential Members of a Larger Community Planning Team
Individuals/Organizations What They Bring to the Planning Team
Senior Official (SO, elected or .
Support for the emergency planning process
appointed) or designee
.
.
.
Government intent by identifying planning goals and
essential tasks
Policy guidance and decision-making capability
Authority to commit the jurisdiction’s resources
Emergency Manager or designee .
.
.
.
Knowledge about all-hazard planning techniques
Knowledge about the interaction of the tactical,
operational, and strategic response levels
Knowledge about the preparedness, response, recovery,
and mitigation strategies for the jurisdiction
Knowledge about existing mitigation, emergency,
continuity, and recovery plans
Fire Services Chief or designee .
.
.
Knowledge about fire department procedures, on-scene
safety requirements, hazardous materials response
requirements, and search-and-rescue techniques
Knowledge about the jurisdiction’s fire-related risks
Specialized personnel and equipment resources
Law Enforcement Chief or designee .
.
Knowledge about police department procedures, on-scene
safety requirements, local laws and ordinances, explosive
ordnance disposal methods, and specialized response
requirements, such as perimeter control and evacuation
procedures
Specialized personnel and equipment resources
Public Works Director or designee .
.
Knowledge about the jurisdiction’s road and utility
infrastructure
Specialized personnel and equipment resources
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Table 2.1 (cont.)
Individuals/Organizations What They Bring to the Planning Team
Emergency Medical Services (EMS)
Director or designee
.
.
.
.
Knowledge about emergency medical treatment
requirements for a variety of situations
Knowledge about treatment facility capabilities
Specialized personnel and equipment resources
Knowledge about how EMS interacts with the Emergency
Operations Center (EOC) and incident command
Healthcare Facility Manager or
designee
.
.
.
.
Knowledge about the jurisdiction’s surge capacity
Knowledge about medical treatment requirements for a
variety of situations
Knowledge about interactions among EMS, hospitals, and
health departments
Knowledge about historic syndromic surveillance
Public Health Officer or designee .
.
.
.
.
Records of morbidity and mortality
Knowledge about the jurisdiction’s surge capacity
Understanding of the special medical needs of the
community
Knowledge about historic infectious disease and
syndromic surveillance
Knowledge about infectious disease sampling procedures
Hazardous Materials Coordinator .
.
Knowledge about hazardous materials that are produced,
stored, or transported in or through the community
Knowledge about U.S. Environmental Protection Agency
(EPA), Occupational Safety and Health Administration
(OSHA), and U.S. Department of Transportation (DOT)
requirements for producing, storing, and transporting
hazardous materials and responding to hazardous
materials incidents
Mutual Aid Partners .
Knowledge about specialized personnel and equipment
resources available within their jurisdiction
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Table 2.1 (cont.)
Individuals/Organizations What They Bring to the Planning Team
Transportation Director or designee .
.
.
.
Knowledge about the jurisdiction’s road infrastructure
Knowledge about the area’s transportation resources
Familiarity with the key local transportation providers
Specialized personnel resources
Agriculture Extension Service .
Knowledge about the area’s agricultural sector and
associated risks (e.g., fertilizer storage, hay and grain
storage, fertilizer and/or excrement runoff)
Tax Assessor .
Records of all properties in the community and their value
Building Inspector .
.
.
Knowledge about the types of construction used in the
community
Knowledge about land use and land-use restrictions
Records of planned development
School Superintendent or designee .
.
.
Knowledge about school facilities
Knowledge about the hazards that directly affect schools
Specialized personnel and equipment resources
(e.g., buses)
Nongovernment Organizations .
Knowledge about specialized resources that can be
(includes participants in Volunteer brought to bear in an emergency
Organizations Active in Disaster
[VOAD]), and other private, not-for.
Lists of shelters, feeding centers, and distribution centers
profit, faith-based, and community
organizations .
Knowledge about special-needs populations
Citizen Corps Councils .
.
Knowledge about integrating government and
nongovernmental plans
Assistance in identifying, developing, and integrating
nongovernmental resources to fill gaps identified by
planning
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Table 2.1 (cont.)
Individuals/Organizations What They Bring to the Planning Team
Local business and industry
representatives
.
.
.
Knowledge about hazardous materials that are produced,
stored, and/or transported in or through the community
Facility response plans (to be integrated with the
jurisdiction’s EOP)
Knowledge about specialized facilities, personnel, and
equipment resources that could be used in an emergency
Amateur Radio Emergency Service .
List of ARES/RACES resources that can be used in an
(ARES)/Radio Amateur Civil emergency
Emergency Services (RACES)
Coordinator
Media representatives .
Knowledge about community media infrastructure and
capabilities
Social services agencies
representatives
.
Knowledge about special-needs populations
Utility representatives .
.
Knowledge about utility infrastructures
Knowledge about specialized personnel and equipment
resources that could be used in an emergency
Veterinarians/animal shelter
representatives
.
Knowledge about the special response needs for animals,
including livestock
Local Federal asset representatives .
.
.
Knowledge about specialized personnel and equipment
resources that could be used in an emergency
Facility response plans (to be integrated with the
jurisdiction’s EOP)
Knowledge about potential hazards at Federal facilities
(e.g., research laboratories, military installations)
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Planners must persuade these leaders and/or their designees to take an active
interest in emergency planning. Although scheduling meetings with so many
participants may prove difficult, it is critical that everyone participates in the
planning process and takes ownership of the plan. This objective can be
accomplished by involving leaders and managers from the beginning. Their
expertise and knowledge of their organizations’ resources are crucial to
developing a plan that considers the entire jurisdiction’s needs and the resources
that are available in an emergency.
A community benefits from the active participation of all stakeholders. Some tips
for gathering the team together include the following:
•
Plan ahead. The planning team should receive plenty of notice about
where and when the planning meeting
will be held. If time permits, ask the team
One way to overcome
members to identify the time(s) and
place(s) that will work for the group. scheduling issues is to
use planning tools
•
Provide information about team
expectations. Planners should explain
that support on-line
why participating on the planning team is
collaboration. Many
important to the participants’ agencies
and to the community itself, showing the
of the tools available
participants how their contributions will
lead to a more effective emergency allow for
response. In addition, budget and other
coordination, version
project management concerns should be
outlined early in the process.
control, and plan
•
Ask the senior elected or appointed implementation
official (SO) or designee to sign the
during a crisis.
meeting announcement. A directive from
the executive office will carry the
authority of the SO and sends a clear
signal that the participants are expected to attend and that emergency
planning is important to the community.
•
Allow flexibility in scheduling after the first meeting. Not all team members
will need to attend all meetings. In some cases, task forces or
subcommittees can complete the work. When the planning team chooses
to use this option, it should provide project guidance (e.g., timeframes and
milestones) but let the subcommittee members determine when it is most
convenient to meet.
August 2008 INTERIM - Comprehensive Preparedness Guide 101
•
Consider using external facilitators. Third-party facilitators can perform a
vital function by keeping the process focused and mediating
disagreements.
The key to planning in a group setting is to allow open and frank discussion
during the process. A lot of interaction among planners can help elicit a common
operational understanding. Individual group members must be encouraged to
express objections or doubts. If a planner disagrees with a proposed solution,
that planner must also identify what needs to be fixed.
UNDERSTAND THE SITUATION
CONDUCT RESEARCH
This step and Step 2b
(Analyze the Information)
start the problem solving
process. Hazards are the
general problems that
emergency managers face.
Researching and analyzing
information about potential
hazards a jurisdiction may
face brings specificity to the planning process. If hazards are viewed as problems
and emergency plans are the solution, then hazard identification and analysis are
key steps in the planning process.
Gathering information about the jurisdiction's planning framework, potential
hazards, resource base, and geographic or topological characteristics that could
affect emergency operations is the first step of research. Planners need two
types of information: facts and assumptions.
•
Facts are verifiable pieces of information, such as laws, regulations,
floodplain maps, and resource inventories.
•
Assumptions consist of information accepted by planners as being true in
the absence of facts in order to provide a framework or set conditions for
variables so that planning can proceed. Assumptions are used as facts
only if they are considered valid (likely to be true) and are necessary for
solving the problem. Emergency managers change assumptions to facts
when they implement a plan. For example, when one plans for dealing
with a flood, the location of the water overflow, size of the flood hazard
area, and speed of the rise in water may be assumed. When the plan is
put into effect, these assumptions are replaced by the facts of the
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situation, and the plan is modified
accordingly. Use assumptions
sparingly – put great effort into doing
research and acquiring facts.
A variety of information sources are available
to planners. The Universal Task List (UTL),
Target Capabilities List (TCL), Resource
Typing List, National Planning Scenarios
(NPS), and other recently published
documents can help define response issues,
roles, and tasks. Hazard maps are available
in compilations of hazard information made
by FEMA and State emergency management
agencies, the U.S. Geological Survey
(USGS) and State geological surveys, and
the National Weather Service (NWS) and its
local offices. For more localized hazards,
maps from the Federal Insurance
Administration (FIA), maps of 10- and 50-mile
emergency planning zones (EPZs) around
nuclear power plants, and any maps of
hazardous materials (HAZMAT) sites
prepared by Local Emergency Planning
Committees (LEPCs) may be useful.
Jurisdictional geographic information system
(GIS) data and raw data collected for
disasters (such as global positioning system
[GPS] locations and depth of flood at the site)
may also be available for use.
For historical investigations, Federal and
State analyses provide tabulated data about
historical occurrences of hazards by
jurisdiction. Local organizations (e.g., the
local chapter of the American Red Cross
[ARC]), utilities, other businesses, and
members of the planning team can provide
records about their experiences in previous
disasters. Avoid limiting the number of
sources and encourage long-time community
residents to contribute to the process.
The sources for “expert opinions” on hazard
Gathering Data on the
Special-Needs
Populations
To properly plan for the
entire community,
governments must have an
informed estimate of the
number and type of special-
needs individuals in the
population. Emergency
planners should base their
assessments on lists and
information collected from
multiple sources, including
these:
•
U.S. Census data
•
Social services listings
(dialysis centers,
Meals on Wheels,
etc.)
•
Para-transit providers
•
Health departments
•
Utility providers
•
Job access services
•
Congregate settings
•
Schools
•
County emergency
alert list serves
•
Medicaid
•
Hospitals
•
Day care centers (for
children or senior
citizens)
•
Places of worship
The key to getting good
information is to cultivate
good relationships with the
service agencies. Data on the
special-needs population
needs updating at least once
a year.
potential are similar: Federal, State, and Local agencies; academic, industrial,
and public interest group researchers; private consultants specializing in hazard
August 2008 INTERIM - Comprehensive Preparedness Guide 101
analysis; and professional associations concerned with the hazards on a
planner’s list. Sources for information on the community and possible
consequences from hazards vary. To determine the potential consequences of
certain facility-based hazards, planners might check with the facility or the
agency (Local, State, Regional, or Federal) that regulates that kind of facility. For
demographic data, Census data are available, as are off-the-shelf computer
products that organize such data by zip code.
The planning team should also make extensive use of the information about the
jurisdiction that both government organizations and NGOs develop for their own
purposes. For example, the local planning and zoning commission or department
may have extensive demographic, land use, building stock, and similar data. The
tax assessor and/or local realtors' association can often provide information on
the numbers, types, and values of buildings. Building inspection offices maintain
data on the structural integrity of buildings, codes in effect at time of construction,
and the hazard effects that a code addresses. Local public works (or civil
engineering) departments and utilities are sources for information on potential
damage to and restoration time for the critical infrastructures threatened by
hazard effects. The Chamber of Commerce may offer a perspective on damage
to businesses and general economic loss. Other sources of information
mentioned previously – emergency service logs and reports, universities,
professional associations, etc. – also apply.
It is also important to involve civic leaders, members of the public, and
representatives of community-based organizations in the planning process. They
may serve as an important resource for validating assumptions about public
needs, capabilities, and reactions. Since many planning assumptions and
response activities will directly impact the public-at-large, it is critical to involve
these representatives during the planning phase and to ensure their inclusion
during validation and implementation. Potential roles include support to planning
teams, public outreach, and establishing Community Emergency Response
Teams (CERTs). Planners can obtain assistance for including the community
sectors in the planning process from State or Local CCCs.
The second step of research is organizing the information into a format that is
usable by the planning team. One effective method for organizing hazard
information is to use a matrix based on disaster dimensions used during the
hazard analysis process:
1. Probability or frequency of occurrence,
2. Magnitude – the physical force associated with the hazard,
3. Intensity/severity – the impact or damage expected,
4. Time available to warn,
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5. Location of the event – a specific or indeterminate site or facility,
6. Potential size of the disaster area,
7. Speed of onset – how fast the hazard can impact the public, and
8. Duration – how long the hazard will be active.
Depending on the kinds of decisions and analyses the information is meant to
support, planners might use other categories for data organization. For example,
the decision that one hazard poses more of a threat than another may require
only a qualitative estimate (e.g., high versus medium), whereas planning how to
deal with health and medical needs caused by a particular hazard may require
estimates of likely fatalities and injuries.
ANALYZE THE INFORMATION
Hazard analysis is the basis
for mitigation and infrastructure
protection efforts and EOP
development. From an
emergency planning
perspective, hazard analysis
helps a planning team decide
what hazards merit special
attention, what actions must be
planned for, and what
resources are likely to be
needed. FEMA Publication 386-2, Understanding Your Risks: Identifying Hazards
and Estimating Loss, provides a detailed method for conducting hazard and risk
assessments for many hazards. Planners can also obtain the Hazards U.S. Multi-
Hazard (HAZUS-MH) model from FEMA. HAZUS-MH is a nationally applicable
and standardized methodology and software program that estimates potential
losses from earthquakes, floods, and hurricane winds.
In addition, FEMA has several resources available for the analysis of human-
caused events, primarily terrorism. These resources include the National
Planning Scenarios, Fusion Center Technical Assistance, and Transit Risk
Assessment Module/Maritime Assessment Strategy Toolkit. Hazard analysis
requires that the planning team knows the kinds of emergencies that have
occurred or could occur in the jurisdiction. The process should begin with a list of
the hazards that concern emergency managers in the planners’ jurisdiction,
developed from research conducted earlier in the planning process. A list of
concerns might include those listed in Table 2.2.
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Planners must remember to keep in mind that hazard lists pose two problems.
The first is the possibility of exclusion or omission. There is always a potential for
new and unexpected hazards (part of the reason why maintaining an all-hazards
capability is important). The second is that such lists involve groupings, which
can affect subsequent analysis. A list may give the impression that hazards are
independent of one another, when in fact they are often related (e.g., an
earthquake might give rise to dam failure). Lists may group very different causes
or sequences of events that require different types of responses under one
category. For example, "Flood" might include dam failure, cloudbursts, or heavy
rain upstream. Lists also may group a whole range of consequences under the
category of a single hazard. "Terrorism," for example, could include use of
conventional explosives against people or critical infrastructure; nuclear
detonation; or release of lethal chemical, biological, or radiological material.
Table 2.2 Sample Hazard List
Natural Hazards Technological Hazards Human-Caused
Hazards
- Avalanche
- Drought
- Earthquake
- Epidemic
- Flood
- Hurricane
- Landslide
- Tornado
- Tsunami
- Volcanic eruption
- Wildfire
- Winter storm
- Airplane crash
- Dam failure
- HAZMAT release
- Power failure
- Radiological release
- Train derailment
- Urban conflagration
- Civil disturbance
- School violence
- Terrorist act
- Sabotage
The planning team must compare and prioritize risks to determine which hazards
merit special attention in planning (and other emergency management efforts). It
also must consider the frequency of the hazard and the likelihood or severity
potential of its consequences in order to develop a single indicator of the threat.
This effort allows for comparisons and the setting of priorities. While a
mathematical approach is possible, it may be easier to manipulate qualitative
ratings (e.g., high, medium, low) or index numbers (e.g., reducing quantitative
information to a 1-to-3, 1-to-5, or 1-to-10 scale based on defined thresholds) for
different categories of information used in the ranking scheme. Some
approaches involve the consideration of only two categories – frequency and
consequences – and treat them as equally important. In other approaches,
potential consequences receive more weight than frequency. While it is important
to have a sense of the magnitude involved (whether in regard to the single
indicator used to rank hazards or to estimate the numbers of people affected),
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these indicators are static. Some hazards may pose a threat to the community
that is so limited that additional analysis is not necessary. A sample hazard
profile worksheet is provided in Appendix E.
DETERMINE GOALS AND OBJECTIVES
By using information from the
hazard profile developed as
part of the analysis process,
the planning team thinks
about how the hazard would
evolve in the jurisdiction and
what defines a successful
response. Starting with a
given intensity for the hazard,
the team imagines the
hazard's development from initial warning (if available) to its impact on the
jurisdiction (as identified through analysis) and its generation of specific
consequences (e.g., collapsed buildings, loss of critical services or infrastructure,
death, injury, or displacement). These scenarios should be realistic and created
on the basis of the jurisdiction’s hazard and risk data. Planners may use the
event or events that have the greatest impact on the jurisdiction (worst-case),
those that are most likely to occur, or an event constructed from the impacts of a
variety of hazards. During this process of building a hazard scenario, the
planning team identifies the needs and demands that determine response
actions and resources. Planners are looking for hazard-, response-, and
constraint-generated needs and demands.
•
Hazard-generated needs and demands are caused by the nature of the
hazard. They lead to response functions like public protection, population
warning, and search and rescue.
•
Response-generated needs and demands are caused by actions taken in
response to a hazard-generated problem. These tend to be common to all
disasters. An example is the potential need for emergency refueling during
a large-scale evacuation. Subsets could include the needs to find a site for
refueling, identify a fuel supplier, identify a fuel pumping method, control
traffic, and collect stalled vehicles.
•
Constraint-generated demands are caused by things planners must do,
are prohibited from doing, or are not able to do. The constraint may be
caused by a law, regulation, or management directive or by some physical
characteristic (e.g., terrain and road networks that make east-west
evacuations impossible).
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Once the needs and demands are identified, the planning team restates them as
operational priorities, goals, and objectives. Written properly, they tell responding
organizations what to accomplish and by when. Operational priorities indicate a
desired end-state for the response. Goals are broad, general statements that
indicate the intended solution to problems identified by planners during the
previous step. They are what personnel and equipment resources are supposed
to achieve. They help identify when major elements of the response are complete
and when the response is successful. Objectives are more specific and
identifiable actions carried out during the response. They lead to achieving
response goals. They are the things that responders have to accomplish – the
things that translate into activities, implementing procedures, or operating
procedures by responsible organizations. The following callout box shows the
relationships among operational priorities, goals, and objectives. As goals and
objectives are set, planners may identity more needs and demands.
Relationships among Operational Priorities, Goals, and Objectives
Operational priority: Protect the public from hurricane weather and storm surge.
Response goal: Complete evacuation before arrival of tropical storm (TS) winds.
Intermediate objective: Complete tourist evacuation 72 hours before arrival of TS winds.
Intermediate objective: Complete medical evacuations 24 hours before arrival of TS winds.
PLAN DEVELOPMENT
DEVELOP AND ANALYZE COURSES OF ACTION, IDENTIFY RESOURCES
This step is a process of
generating and comparing
possible solutions for
achieving the goals and
objectives identified in
Step 3. The same scenarios
used during problem
identification are used to
develop potential courses of
action. Planners consider the
needs and demands, goals,
and objectives to develop several response alternatives. The art and science of
planning will help determine how many solutions or alternatives to consider;
however, at least two options should always be considered. Although developing
only one solution may speed the planning process, it will most likely provide an
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inappropriate response, leading to
more damaging effects on the
affected population or environment.
The process of developing courses
of action is often referred to as
either game planning or war
gaming. It combines aspects of
scenario-based, functional, and
capabilities-based planning. At
its core, game planning is a form of
brainstorming. It depicts how the
response unfolds by using a
process of building relationships
among the hazard action, decision
points, and response actions.
Game planning helps planners
determine what tasks occur
immediately at event initiation,
tasks that are more mid-event
focused, and tasks that affect long-
term operations. The planning team
should work through this process
by using tools that help members
visualize response flow, such as a
white board, “yellow sticky chart,”
or some type of project
management or special planning
software. Game planning follows
these steps:
1.
Establish the timeline.
Supporting Planning Concepts
Scenario-Based Planning: As the name
implies, this planning process starts with
building a scenario. The impact of the
scenario is analyzed to determine
appropriate response strategies.
Functional Planning: This planning
process identifies the common tasks that
the community must perform during
emergencies. It is the basis for the all-
hazards approach to planning described
in SLG 101. It identifies lead and
supporting agencies for response tasks.
Capabilities-Based Planning: A capability
is the ability to take a course of action.
Capability-based planning answers the
question, “Do I have the right mix of
TOPPLEF (training, organizations, plans,
people, leadership and management,
equipment, and facilities) elements to
perform required response tasks?” The
Target Capabilities List provides a
definition; an outcome; and preparedness
and performance activities, tasks, and
measures for a predetermined set of
capabilities. It combines aspects of
scenario and functional based planning
and uses the planning process described
in CPG 101.
Planners typically use the speed of hazard onset to establish the timeline.
The timeline may also change by phases. For example, a hurricane’s
speed of onset is typically days, while a major HAZMAT incident’s speed
of onset is minutes. The timeline for a hurricane might be in hours and
days, particularly during the pre- and post-impact phases. The timeline for
the HAZMAT incident would most likely be in minutes and hours. For a
multijurisdictional or layered plan, the timeline for a particular scenario is
the same at all participating levels of government. Placement of decision
points and response actions on the timeline depicts how soon the different
government entities enter the plan.
2.
Depict the scenario. Planners use the scenario information developed in
Step 4 (Determine Goals and Objectives) and place the hazard
information on the timeline.
August 2008 INTERIM - Comprehensive Preparedness Guide 101
3.
Identify and depict decision points. Decision points indicate the place in
time, as hazard events unfold, when leaders anticipate making decisions
about a course of action. They indicate where and when decisions are
required to provide the best chance of achieving an intermediate objective
or response goal (the desired end state). They also help planners
determine how much time is available or needed to complete a sequence
of actions.
4.
Identify and depict response actions. For each response action depicted,
some basic information is needed. Developing this information during
game planning helps planners incorporate the task into the plan when they
are writing it. A response action is correctly identified when planners can
answer the following questions about it:
•
What is the action?
•
Who does it?
•
When do they do it?
•
How long does it take/how much time is actually available to do it?
•
What has to happen before it?
•
What happens after it?
•
What resources does it need?
STOP!
NOW IS A GOOD TIME TO TAKE THE WORK TO DATE AND REVIEW IT
WITH YOUR SENIOR OFFICIALS – IT IS IMPORTANT FOR THEM TO
UNDERSTAND WHAT YOU ARE PLANNING FOR AND WHY
5.
Identify resources. Initially, the planning team identifies resources needed
to accomplish response tasks in an unlimited manner. The object is to
identify the resources needed to make the response work. Once the
planning team identifies all the needs and demands, they begin matching
available resources to requirements. By tracking obligations and
assignments, the planning team determines resource shortfalls and
develops a list of needs that private suppliers or other jurisdictions might
fill. The resource base also should include a list of facilities vital to
emergency operations, and the list should indicate how individual hazards
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might affect the facilities. Whenever possible, resources should be
matched with other geographical/regional needs so that multiple demands
for the same or similar resources can be identified and conflicts resolved.
The EOP should account for unsolvable resource shortfalls so they are not
just “assumed away.”
6.
Identify information needs. Another outcome from the game planning effort
is a “list” of the information needs for each of the response participants.
Planners need to identify the information they need and the time they
need it by to drive decisions and trigger critical actions.
7.
Assess progress. When game planning, the process should be
periodically “frozen” so the planning team can:
•
Identify progress made toward the end state,
•
Identify goals and objectives met and new needs or demands,
•
Identify “single point failures” (i.e., tasks that, if not completed, would
cause the response to fall apart),
•
Check for omissions or gaps,
•
Check for inconsistencies in organizational relationships, and
•
Check for mismatches between the jurisdiction’s plan and plans from
other jurisdictions with which they are interacting.
PLAN PREPARATION, REVIEW, APPROVAL
WRITE THE PLAN
This step turns the results of
game planning into an
emergency plan. The
planning team develops a
rough draft of the base plan,
functional or hazard or
annexes, or other parts of
the plan as appropriate. The
recorded results of the game
planning process used in the
previous step provide an
outline for the rough draft. As the planning team works through successive drafts,
they add necessary tables, charts, and other graphics. A final draft is prepared
August 2008 INTERIM - Comprehensive Preparedness Guide 101
and circulated to organizations that have responsibilities for implementing the
plan for their comments. (See Chapter 3 for more information on plan formats.)
Following these simple rules for writing plans and procedures will help ensure
that readers and users understand their content:
•
Keep the language simple and clear by writing in plain English.
Summarize important information with checklists and visual aids such as
maps and flowcharts.
•
Avoid using jargon.
•
Use short sentences and the active voice. Qualifiers and vague words
only add to confusion.
•
Provide enough detail to convey an easily understood concept of
operations. The less certain a situation, the less detail can be put into the
plan. Those parts of a plan that would be most affected by the hazard’s
effects should have the least amount of detail. Conversely, those that
would be least affected by the hazard effects should have the most
amount of detail. The amount of detail a plan should provide depends on
the target audience and the amount of certainty about the situation.
Similarly, plans written for a jurisdiction or organization with high staff
turnover might require more detail.
•
Format the plan and present its content so that its readers can quickly find
solutions and options. Focus on providing mission guidance and not on
discussing policy and regulations. Plans should provide guidance for
carrying out common tasks as well as enough insight into intent and vision
so that responders can handle unexpected events. However, when writing
a plan, “stay out of the weeds.” Procedural documents (e.g., standard
operating procedures) should provide the fine details.
APPROVE AND IMPLEMENT THE PLAN
The written plan should be
checked for its conformity to
applicable regulatory
requirements and the
standards of Federal or State
agencies (as appropriate)
and for its usefulness in
practice. Planners should
consult the next level of
government about its
emergency plan review
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cycle. Reviews of plans allow other agencies with emergency responsibilities to
suggest improvements to a plan based on their accumulated experience. States
may review local plans; FEMA regional offices may assist States in the review of
emergency plans, upon request. Hazard-specific Federal programs (such as the
Radiological Emergency Preparedness Program [REPP]) require periodic review
of certain sections of the all-hazards plan and may require review of associated
standard operating procedures (SOPs). Conducting a tabletop exercise
involving the key representatives of each tasked organization may serve as a
practical and useful means to help validate the plan.
Use of the TCL to validate the plan is another method of review. At a minimum,
the plan should address all TCL Phase I capabilities. However, the jurisdiction
does not have to provide all of the resources needed to meet a capability. For
example, many jurisdictions do not have the bomb squads or Urban Search and
Rescue teams required to meet certain capabilities.
Neighboring jurisdictions can provide those resources (or capability elements)
through mutual aid agreements, memorandums of agreement or understanding,
regional compacts, or some other formal request process.
Once the plan validation is completed, the emergency manager should present
the plan to the appropriate elected officials and obtain official promulgation of the
plan. The promulgation process should be based in specific statute, law, or
ordinance. Obtaining the senior official's approval through a formal promulgation
documentation process is vital to gaining the widest acceptance possible for the
plan. It is also important to establish the authority required for changes and
modifications to the plan.
Once approved, the emergency manager should arrange to distribute the plan
and maintain a record of the people and organizations that received a copy (or
copies) of the plan. “Sunshine” laws may require a copy of the plan be posted on
the jurisdiction’s web-site or be placed in some other public accessible location.
PLAN REFINEMENT AND EXECUTION
EXERCISE THE PLAN AND
EVALUATE ITS
EFFECTIVENESS
Exercising the plan and
evaluating its effectiveness
involve using training and
exercises and evaluating
actual events to determine
August 2008 INTERIM - Comprehensive Preparedness Guide 101
whether the goals, objectives, decisions, actions, and timing outlined in the plan
led to a successful response. In this way, homeland security and other
emergency preparedness exercise programs (e.g., Homeland Security Exercise
and Evaluation Program [HSEEP], REPP, and Chemical Stockpile Emergency
Preparedness Program [CSEPP]) become an integral part of the planning
process. Similarly, planners need to be aware of lessons and practices from
other communities. The Lessons Learned Information Sharing Web site
(http://www.llis.dhs.gov) provides an excellent forum for evaluating concepts
identified in a jurisdiction’s plan against the experiences of others.
Commonly used criteria can help decision makers determine the effectiveness
and efficiency of plans. These measures include adequacy, feasibility,
acceptability, completeness, and compliance with guidance or doctrine. Decision
makers directly involved in planning can employ these criteria, along with their
understanding of plan requirements, not only to determine a plan’s effectiveness
and efficiency but also to assess risks and define costs. Some types of analysis,
such as a determination of acceptability, are largely intuitive. In this case,
decision makers apply their experience, judgment, intuition, situational
awareness, and discretion. Other analyses, such as a determination of feasibility,
should be rigorous and standardized to minimize subjectivity and preclude
oversights.
•
Adequacy. A plan is adequate if the scope and concept of planned
response operations identify and address critical tasks effectively; the plan
can accomplish the assigned mission while complying with guidance; and
the plan’s assumptions are valid, reasonable, and comply with guidance.
•
Feasibility. When determining a plan’s feasibility, planners assess
whether their organization can accomplish the assigned mission and
critical tasks by using available resources within the time contemplated by
the plan. They allocate available resources to tasks and track the
resources by status (assigned, out of service, etc.). Available resources
include internal assets and those available through mutual aid or through
existing State, Regional compact, or Federal assistance agreement.
•
Acceptability. A plan is acceptable if it meets the needs and demands
driven by the event, meets decision maker and public cost and time
limitations, and is consistent with the law. The plan can be justified in
terms of the cost of resources and if its scale is proportional to mission
requirements. Planners use both acceptability and feasibility tests to
ensure that the mission can be accomplished with available resources,
without incurring excessive risk regarding personnel, equipment, materiel,
or time. They also verify that risk management procedures have identified,
assessed, and applied control measures to mitigate operational risk (risk
of achieving operational objectives).
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•
Completeness. Planners must determine whether the plan:
-
Incorporates all tasks to be accomplished,
-
Includes all required capabilities,
-
Provides a complete picture of the sequence and scope of the planned
response operation (i.e., what should happen, when, and at whose
direction),
-
Makes time estimates for achieving objectives, and
-
Identifies success criteria and a desired end state.
•
Compliance with Guidance and Doctrine. The plan needs to comply
with guidance and doctrine to the maximum extent possible, since they
provide a baseline that facilitates both planning and execution.
When using these criteria, planners should ask the following questions:
•
Did an action, a process, a decision, or the response timing identified in
the plan make the situation worse or better?
•
Were new alternate courses of action identified?
•
What aspects of the action, process, decision, or response timing make it
something to keep in the plan?
•
What aspects of the action, process, decision, or response timing make it
something to avoid or remove from the plan?
•
What specific changes to plans and procedures, personnel, organizational
structures, leadership or management processes, facilities, or equipment
can improve response performance?
A remedial action process can help a planning team identify, illuminate, and
correct problems with the jurisdiction’s EOP. This process captures information
from exercises, post-disaster critiques, self-assessments, audits, administrative
reviews or lessons-learned processes that may indicate that deficiencies exist. It
then brings members of the planning team together again to discuss the problem
and to consider and assign responsibility for generating remedies. Remedial
actions may involve revising planning assumptions and operational concepts,
changing organizational tasks, or modifying organizational implementing
instructions (i.e., the SOPs). Remedial actions also may involve providing
refresher training on performing tasks assigned by the EOP to an organization’s
personnel. The final component of a remedial action process is a mechanism for
tracking and following up on the assigned actions. As appropriate, significant
issues and problems identified through a remedial action process and/or the
annual review should provide the information needed to allow the planning team
to make the necessary revision(s) to the plan.
August 2008 INTERIM - Comprehensive Preparedness Guide 101
REVIEW, REVISE, AND MAINTAIN THE PLAN
This step closes the loop in
the planning process. It is
really all about adding the
information gained in Step 6a
to the research collected in
Step 2a and starting the
planning cycle over again.
Remember, emergency
planning is a continuous
process that does not stop
when the plan is published.
Planning teams should establish a process for reviewing and revising the EOP.
Reviews should be a recurring activity. Some jurisdictions have found it useful to
review and revise portions of the EOP every month. Many accomplish their
reviews on an annual basis. In no case should any part of the plan go for more
than two years (24 months) without being reviewed and revised. Teams should
also consider reviewing and updating the plan after the following events:
•
A change in response resources (policy, personnel, organizational
structures, or leadership or management processes, facilities, or
equipment),
•
A formal update of planning guidance or standards,
•
A change in elected officials,
•
Each activation,
•
Major exercises,
•
A change in the jurisdiction’s demographics or hazard profile, or
•
The enactment of new or amended laws or ordinances.
The planning process is all about response stakeholders bringing their strengths
to the table to develop and reinforce a jurisdiction’s emergency management
program. Properly developed, supported, and executed emergency plans are a
direct result of an active and evolving program.
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3. EMERGENCY OPERATIONS
PLAN FORMATS
EMERGENCY PLANS AND PROCEDURES
The centerpiece of comprehensive emergency management is the emergency
operations plan (EOP). Each jurisdiction develops an EOP that defines the scope
of preparedness and incident management activities necessary for that
jurisdiction. A jurisdiction's EOP is a document that:
•
Assigns responsibility to organizations and individuals for carrying out
specific actions at projected times and places during an emergency that
exceeds the capability or routine responsibility of any one agency;
•
Sets forth lines of authority and organizational relationships and shows
how all actions will be coordinated;
•
Describes how people and property are protected in emergencies and
disasters;
•
Identifies personnel, equipment, facilities, supplies, and other resources
available – within the jurisdiction or by agreement with other jurisdictions –
for use during response and recovery operations;
•
Reconciles requirements with other jurisdictions; and
•
Identifies steps to address mitigation concerns during response and
recovery activities.
As a public document, an EOP also cites its legal basis, states its objectives, and
acknowledges assumptions.
An EOP is flexible enough for use in all emergencies. A complete EOP describes
the:
•
Purpose of the plan,
•
Situation,
•
Assumptions,
August 2008 INTERIM - Comprehensive Preparedness Guide 101
•
Concept of Operations (CONOPS),
•
Organization and assignment of responsibilities,
•
Administration and logistics,
•
Plan development and maintenance, and
•
Authorities and references.
The EOP contains annexes and appendices appropriate to the jurisdiction’s
organization and operations. EOPs predesignate jurisdictional and/or functional
area representatives to the Incident Command, Unified Command, or
multiagency coordination entity whenever possible to facilitate responsive and
collaborative incident management.
An EOP also defines the scope of preparedness activities necessary to make the
EOP more than a mere paper plan. This is because the EOP defines the
requirements to effectively manage response. These requirements are used to
set training and exercise goals. Training helps emergency personnel become
familiar with their responsibilities and acquire the skills necessary to perform
assigned tasks. Exercises provide a means to validate plans, checklists, and
response procedures and evaluate the skills of personnel. Adjusting an EOP
after conducting training or exercises or responding to events also makes it
practice-based.
The EOP facilitates response and short-term recovery (which set the stage for
successful long-term recovery). Response actions are time-sensitive. Some post-
disaster recovery issues, such as the rebuilding and placement of temporary
housing facilities, also must be addressed quickly. Advance planning makes
performing this task easier, especially when a changing environment requires
“mid-course corrections.” The EOP helps drive decisions on long-term
prevention, recovery, and mitigation efforts or risk-based preparedness
measures directed at specific hazards. Jurisdictions (especially those with known
severe hazards and vulnerabilities) should consider planning for housing and
overall community recovery and to link those plans to the EOP.
STATE, TERRITORIAL, LOCAL, AND TRIBAL EOPS
In our country's system of emergency management, the Local government must
act first to attend to the public’s emergency needs. Depending on the nature and
size of the emergency, State, Territorial, regional compact organizations (such as
the National Capital Region), and Federal assistance may be provided to the
Local or Tribal jurisdiction. The focus of Local and Tribal EOPs is on the
emergency measures that are essential for protecting the public. At the minimum,
these include warning, emergency public information, evacuation, and shelter.
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States, Territories, and regional compact organizations play three roles: They
assist Local jurisdictions whose capabilities must be augmented or are
overwhelmed by an emergency; they themselves respond first to certain
emergencies; and they work with the Federal Government when Federal
assistance is necessary. The State/Territorial EOP is the framework within which
Local EOPs are created and through which the Federal Government becomes
involved. As such, the State/Territorial EOP ensures that all levels of government
are able to mobilize as a unified emergency organization to safeguard the wellbeing
of their citizens. The State/Territorial EOP should serve to synchronize and
integrate Local, Tribal, and Regional plans. Regional compact organization
operations plans serve a similar purpose.
Emergency management involves several kinds of plans, just as it involves
several kinds of actions. While the EOP is considered the centerpiece of a
jurisdiction’s emergency management effort, it is not the only plan that addresses
that effort. Other types of plans support and supplement the EOP. (See
Chapter 5 for a further discussion of these plans.)
A planning team's main concern is to include all essential information and
instructions in the EOP. Poor organization of that information can limit the EOP's
effectiveness. FEMA does not mandate a particular format for EOPs. In the final
analysis, an EOP's format is "good" if its users understand it, are comfortable
with it, and can extract the information they need. When an EOP cannot pass
that test – in training, exercises, actual response, plan review and coordination
meetings, and the like -- some change of format may be necessary. In designing
a format for an all-hazard EOP and in reviewing the draft, the planning team
should consider the following:
•
Organization. Do the EOP sections and subsections help users find what
they need, or must users sift through information that is not relevant? Can
single subdivisions be revised without forcing a substantial rewrite of the
entire EOP?
•
Progression. In any one section of the EOP, does each element seem to
follow from the previous one, or are some items strikingly out of place?
Can the reader grasp the rationale for the sequence and scan for the
information he or she needs?
•
Consistency. Does each section of the EOP use the same logical
progression of elements, or must the reader reorient himself or herself in
each section?
•
Adaptability. Does the EOP’s organization make its information easy to
use during unanticipated situations?
August 2008 INTERIM - Comprehensive Preparedness Guide 101
•
Compatibility. Does the EOP format promote or hinder coordination with
other jurisdictions, including the State and/or Federal Government? Can
reformatting the EOP or making a chart of the coordination relationships
(i.e., a "crosswalk") solve problems in this area?
STRUCTURING AN EOP
While the causes of emergencies vary greatly, their potential effects do not. This
means that jurisdictions can plan to deal with effects common to several hazards
rather than develop separate plans for each hazard. For example, earthquakes,
floods, and hurricanes can all force people from their homes. The jurisdiction can
develop a plan organized around the task of finding shelter and food for the
displaced. If desired, the EOP planners can make minor adjustments to reflect
differences in the speed of onset, duration, and intensity of the hazards.
The planning team must try to identify all critical common tasks or functions that
participating organizations must perform. Then it must assign responsibility for
accomplishing each of those functions. Finally, the emergency manager must
work with the heads of tasked organizations to ensure that they prepare SOPs
detailing how they will carry out critical tasks associated with the emergency
management strategy. Because the jurisdiction's goal is a coordinated and
integrated response, all EOP styles should flow from a basic plan that outlines
the jurisdiction's overall emergency organization and its policies.
This section outlines a variety of formats that a jurisdiction could use for an EOP,
to include a Functional format, an Emergency Support Function format, and an
Agency / Department-Focused format. These format options come from EOPs
used by State, Territorial, Local, and Tribal governments across the nation. No
matter the source, these formats are, at best, suggestions for new planners on
where to start when developing an EOP. Seasoned planners can use these
formats to validate the effectiveness of their EOP’s organization.
As the planning team begins to develop a new EOP, members must discuss
what format is the most effective and easiest to use by their jurisdiction.
Population size, the jurisdiction’s style of government, or the results of a
vulnerability assessment may help the team decide which format to use. For
example, in a sprawling metropolitan county that contains several municipalities,
county emergency operations may take on more of a coordination-and-support
flavor. Thus, an ESF approach may be optimal for the county EOP. In contrast, a
small rural community whose EOC may also be a command post or Area
Command location providing a central node for tactical command and control as
well as strategic decision making may get more utility out of a functional EOP. In
short, "form follows function" in the sense that operational needs should help
determine the EOP format a jurisdiction uses.
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The planning team may modify any of these formats to make the EOP fit the
jurisdiction’s emergency management strategy, policy, resources, and
capabilities. Note, however, that some States prescribe an EOP format for their
Local governments.
TRADITIONAL FUNCTIONAL FORMAT
The traditional functional structure is probably the most commonly used EOP
format. This is the format found in both FEMA CPG 1-8 and SLG-101, both of
which were used by many jurisdictions to draft their EOPs in the 1980s and
1990s. Its format has three major sections: the Basic Plan, Functional
Annexes, and Hazard-Specific Appendices (Figure 3.1).
The Basic Plan provides an overview of the jurisdiction’s preparedness and
response strategies. It describes expected hazards, outlines agency roles and
responsibilities, and explains how the jurisdiction keeps the plan current.
The Functional Annexes are individual chapters that focus on specific response
and recovery missions, such as Communications and Damage Assessment.
These annexes describe the actions, roles, and responsibilities that participating
organizations have for completing tasks for a function. They discuss how the
jurisdiction manages the function before, during, and after the emergency and
identify the agencies that implement that function. However, each Functional
Annex addresses only general strategies used for any emergency.
The Hazard-Specific Appendices describe strategies for managing
preparedness and response missions for a specific hazard. Attached to the end
of each functional annex, they explain the procedures that are unique to that
annex for a hazard type. For example, the Direction and Control Annex may have
an appendix that discusses how local law enforcement’s command post will
coordinate its functions with the Federal Bureau of Investigation’s (FBI’s)
on-scene operations center during a terrorist response. These appendices may
be short or long, depending on the details needed to explain the actions, roles,
and responsibilities. Strategies already outlined in a Functional Annex should not
be repeated in a Hazard-Specific Appendix.
If the planning team notes that it has an appendix in every annex for the same
hazard, it could consider combining these appendices into one larger appendix to
the base plan. For example, chemical or radiological emergencies often drive
similar strategies for each annex. In this case, the planning team may want to
merge those strategies into one chemical or radiological appendix to the EOP.
The traditional format also uses a specific outline to define the elements of each
annex or appendix. When the format is followed, EOP users can find information
in the plan easier because the same type of information is in the same location.
The traditional EOP format is flexible enough to accommodate all jurisdictional
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TRADITIONAL FUNCTIONAL EOP FORMAT
1)
Basic Plan
i) Promulgation Document/Signature Page
ii) Approval and Implementation
iii) Record of Changes
iv) Record of Distribution
v) Table of Contents
a)
Purpose, Scope, Situations, and Assumptions
i) Purpose
ii) Scope
iii) Situation Overview
(a) Hazard Analysis Summary
(b) Capability Assessment
(c) Mitigation Overview
iv) Planning Assumptions
b) Concept of Operations
c) Organization and Assignment of Responsibilities
d) Direction, Control, and Coordination
e) Disaster Intelligence
f) Communications
g) Administration, Finance, and Logistics
h) Plan Development and Maintenance
i) Authorities and References
2)
Functional Annexes
a) Direction and Control
b) Continuity of Government/Operations
c) Communications
d) Warning
e) Emergency Public Information
f) Evacuation
g) Mass Care
h) Health and Medical
i) Resource Management
3)
Hazard-Specific Appendices (Note: This is not a complete list. Planning teams must
define the annexes on the basis of their hazard analysis.)
a) Earthquake
b) Flood/Dam Failure
c) Hazardous Materials
d) Hurricane/Severe Storm
e) Lethal Chemical Agents and Munitions
f) Radiological Incident
g) Terrorism
h) Tornado
FIGURE 3.1 TRADITIONAL FUNCTIONAL EOP FORMAT
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preparedness and response strategies. The planning team can add annexes or
appendices to include a new response function or newly identified hazard.
Similarly, the team can separate an operational issue (e.g., Mass Care) into two
separate annexes (e.g., Emergency Sheltering and Life Support).
EMERGENCY SUPPORT FUNCTION (ESF) FORMAT
The ESF format is the plan structure used in the NRF. Many State-level EOPS
also use this format. It begins with a Basic Plan, includes unique Appendices
that support the whole plan, addresses individual Emergency Support Function
(ESF) Annexes, and then attaches separate Support or Incident Annexes
(Figure 3.2).
The Basic Plan provides an overview of the jurisdiction’s emergency
management system. It briefly explains the hazards faced, capabilities, needs
and demands, and the jurisdiction’s emergency management structure. It also
reviews expected mission execution for each emergency phase and identifies the
agencies that have the lead for a given ESF. The Basic Plan then outlines the
ESFs activated during an emergency.
Appendices provide relevant information not already addressed in the Basic
Plan. Typically, this includes common information such as a list of terms and
definitions, guidelines for EOP revision, or an EOP exercise program. It may also
include forms used for managing most emergencies.
The ESF Annexes identify the ESF coordinator and the primary and support
agencies for each ESF. ESFs with multiple primary agencies should designate
an ESF coordinator to coordinate pre-incident planning. An ESF Annex describes
expected mission execution for each emergency phase and identifies tasks
assigned to members of the ESF.
The Support Annexes describe the framework through which a jurisdiction’s
departments and agencies, the private sector, not for profit and volunteer
organizations, and other NGOs coordinate and execute the common emergency
management strategies. The actions described in the Support Annexes apply to
nearly every type of emergency. Each Support Annex identifies a coordinating
agency and cooperating agencies. In some instances, two departments or
agencies share coordinating agency responsibilities.
The Incident Annexes describe the policies, situation, CONOPS, and
responsibilities for particular hazards or incident types. Each Incident Annex has
four sections:
•
Policies: The policy section identifies the authorities unique to the incident
type, the special actions or declarations that may result, and any special
policies that may apply.
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•
Situation: The situation section describes the incident or hazard
characteristics and the planning assumptions. It also outlines the
management approach for those instances when key assumptions do not
hold (e.g., how authorities will operate if they lose communication with
senior decision makers).
EMERGENCY SUPPORT FUNCTION EOP FORMAT
1)
Basic Plan
(i) Promulgation Document/Signature Page
(ii) Approval and Implementation
(iii) Record of Changes
(iv) Record of Distribution
(v) Table of Contents
a)
Purpose, Scope, Situations, and Assumptions
i) Purpose
ii) Scope
iii) Situation Overview
(a) Hazard Analysis Summary
(b) Capability Assessment
(c) Mitigation Overview
iv) Planning Assumptions
b) Concept of Operations
c) Organization and Assignment of Responsibilities
d) Direction, Control, and Coordination
e) Disaster Intelligence
f) Communications
g) Administration, Finance, and Logistics
h) Plan Development and Maintenance
i) Authorities and References
2)
Emergency Support Function Annexes
a) ESF #1 – Transportation
b) ESF #2 – Communications
c) ESF #3 – Public Works and Engineering
d) ESF #4 – Firefighting
e) ESF #5 – Emergency Management
f) ESF #6 – Mass Care, Emergency Assistance, Housing, and Human Services
g) ESF #7 – Resource Support
h) ESF #8 – Public Health and Medical Services
i) ESF #9 – Search and Rescue
j) ESF #10 – Oil and Hazardous Materials
k) ESF #11 – Agriculture and Natural Resources
l) ESF #12 – Energy
m) ESF #13 – Public Safety and Security
n) ESF #14 – Long-Term Community Recovery
o) ESF #15 – External Affairs
p) Other Locally Defined ESFs
Figure 3.2 Emergency Support Function EOP Format
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3)
Support Annexes
a) Financial Management
b) Local Mutual Aid/Multi-State Coordination
c) Logistics Management
d) Private Sector Coordination
e) Public Affairs
f) Volunteer and Donation Management
g) Worker Safety and Health
4)
Incident Annexes
a) Biological
b) Catastrophic
c) Cyber
d) Food and Agriculture
e) Nuclear/Radiological
f) Oil and Hazardous Materials
g) Terrorism
h) Other Hazards as Required
Figure 3.2 (cont.)
•
Concept of Operations: This section describes the flow of the emergency
management strategy for the incident or hazard. It identifies special
coordination structures, specialized response teams or unique resources
needed, and other special considerations unique to the type of incident or
hazard.
•
Responsibilities: Each Incident Annex identifies the coordinating and
cooperating agencies involved in an incident- or hazard-specific response.
AGENCY/DEPARTMENT-FOCUSED FORMAT
The Agency/Department-Focused Format addresses emergency management
strategies by describing each department or agency’s tasks in a separate
section. In addition to the Basic Plan, this format includes Response and
Support Agency sections and Hazard-Specific Procedures for the individual
agencies (Figure 3.3). Very small communities may find this format more
appropriate for their situation than the other formats previously presented.
Just like all of the other EOP formats, the Basic Plan provides an overview of a
jurisdiction’s ability to respond to disasters. It summarizes the basic tasks taken
to prepare for a disaster and defines how the plan is developed and maintained.
Separate Response and Support Agency sections discuss the emergency
functions completed by individual departments or agencies. Each individual
agency section still needs to refer to other agency sections to ensure
coordination with their respective emergency management strategies. The
Hazard-Specific Procedures section addresses the unique preparedness,
August 2008 INTERIM - Comprehensive Preparedness Guide 101
response, and recovery strategies relevant to each department or agency for
specific disaster types. The hazard-specific procedures can immediately follow
each agency section or be attached as a separate chapter to the plan.
AGENCY/DEPARTMENT-FOCUSED EOP FORMAT
1)
Basic Plan
i) Promulgation Document/Signature Page
ii) Approval and Implementation
iii) Record of Changes
iv) Record of Distribution
v) Table of Contents
a)
Purpose, Scope, Situations, and Assumptions
i) Purpose
ii) Scope
iii) Situation Overview
(a) Hazard Analysis Summary
(b) Capability Assessment
(c) Mitigation Overview
iv) Planning Assumptions
b) Concept of Operations
c) Organization and Assignment of Responsibilities
d) Direction, Control, and Coordination
e) Disaster Intelligence
f) Communications
g) Administration, Finance, and Logistics
h) Plan Development and Maintenance
i) Authorities and References
2)
Response Agencies
a) Fire
b) Law Enforcement
c) Emergency Medical
d) Emergency Management
e) Hospital
f) Public Health
g) Others as Needed
3)
Support Agencies
a)
Identify those agencies that have a support role during an emergency and
describe/address the strategies they are responsible for implementing.
4)
Hazard-Specific Procedures
a)
For any response or support agency, describe/address its hazard-specific strategies.
Figure 3.3 Agency/Department-Focused EOP Format
This format allows EOP users to review only those procedures specific to their
agency without having to review everyone else’s response tasks. The individual
sections still reference the unique relationships that need to exist with other
agencies during a disaster; however, they do not contain details on the other
departments’ or agencies’ strategies. If needed, the plan users can go to the
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other departments’ or agencies’ sections and review their procedures to
understand the bigger picture. The level of detail provided in each section varies
according to the needs of the specific department or agency. Agencies or
departments with detailed SOPs may not need much information in their portion
of the plan, while others may need to provide more details in the EOP.
USING EOP TEMPLATES
Emergency managers and planners, particularly at the Local level, recognize that
the planning process demands a significant commitment of time, effort, and
resources. It is challenging to gather the team, work through the planning
process, and accomplish the writing and validation of a plan before its
promulgation. To ease this burden, many planners and jurisdictions use EOP
templates to complete their plans. Some States provide templates to their Local
jurisdictions. Other templates are available through hazard-specific preparedness
programs or commercially from private sector vendors.
Emergency managers must ensure using those templates does not undermine
the planning process. For example, “fill in the blank” templates defeat the
socialization, mutual learning, and role acceptance that are so important to
achieving effective planning and a successful response. The best templates are
those that offer a plan format and describe the content that each section might
contain – allowing for tailoring to the jurisdiction’s geographic, political, and social
environment. Using this definition, planners could consider CPG 101 a template
because it provides plan formats (Chapter 4) and content guidance (Appendix D)
When using an EOP template, planners should consider whether:
•
The resulting EOP represents the jurisdiction’s unique hazard situation by
ensuring that the underlying facts and assumptions that drove the
template’s content match those applicable to the jurisdiction.
•
The hazard and risk assessments match the jurisdiction’s demographics,
infrastructure inventory, probability of hazard occurrence, etc.
•
The template identifies the resources needed to address the problems
generated by an emergency or disaster only in a general way.
•
Using the template may stifle creativity and flexibility, thereby constraining
the development of strategies and tactics needed to solve disaster
problems.
•
Using the templates makes it easy to plan “in a vacuum,” by allowing a
single individual to “write” the plan.
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In the end, planners will usually find that, in order to adapt the template to their
jurisdiction’s needs, they needed to go through the planning process anyway.
This observation does not mean that planners should not use templates or plans
from other jurisdictions to help with writing style and structure. Similarly, planners
may find software programs specifically designed to support plan development,
helpful. What it does mean, is that planners must evaluate the usefulness of any
planning tool (template, software) used as part of the planning process. They
should be particularly wary of templates or programs claiming guaranteed NIMS
compliance. The only way to ensure NIMS compliance is to build response
relationships by following the planning process outlined in this CPG.
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4. EMERGENCY OPERATIONS
PLAN CONTENT
THE BASIC PLAN
The Basic Plan provides an overview of the jurisdiction's approach to emergency
operations. It details emergency response policies, describes the response
organization, and assigns tasks. Although the Basic Plan guides the
development of the more operationally oriented annexes, its primary audience
consists of the jurisdiction's chief executive, his or her staff, and agency heads.
The plan elements listed in this chapter (not necessarily in the order presented or
under the headings given here) should meet the needs of this audience while
providing a solid foundation for the development of supporting annexes.
INTRODUCTORY MATERIAL
Certain items that enhance accountability and ease of use should preface the
EOP. Typical introductory material includes the components that follow.
•
Cover page. The cover page has the title of the plan. It should include a
date and identify the jurisdiction(s) covered by the plan.
•
Promulgation document. The promulgation document enters the plan “in
force.” Promulgation is the process that officially announces/declares a
plan (or law). It gives the plan official status and gives both the authority
and the responsibility to organizations to perform their tasks. It should also
mention the responsibilities of tasked organizations with regard to
preparing and maintaining SOPs and commit those organizations to
carrying out the training, exercises, and plan maintenance needed to
support the plan. The promulgation document also allows the chief
executives to affirm their support for emergency management.
•
Approval and implementation page. The approval and implementation
page introduces the plan, outlines its applicability, and indicates that it
supersedes all previous plans. It should also include a delegation of
authority for specific modifications that can be made to the plan and by
whom they can be made WITHOUT the senior official's signature. It
should include a date and must be signed by the senior official(s)
(e.g., governor, Tribal leader[s], mayor, county judge, commissioner[s]).
August 2008 INTERIM - Comprehensive Preparedness Guide 101
•
Record of changes. Each update or change to the plan needs to be
tracked. The record of changes, usually in table format, contains, at a
minimum, a change number, the date of the change, and the name of the
person who made the change. Other relevant information could be
considered.
•
Record of distribution. The record of distribution, usually in table format,
indicates the title and the name of the person receiving the plan, the
agency to which the receiver belongs, the date of delivery, and the
number of copies delivered. Other relevant information could be
considered. The record of distribution can be used to prove that tasked
individuals and organizations have acknowledged their receipt, review,
and/or acceptance of the plan. Copies of the plan can be made available
to the public and media without SOPs, call-down lists, or other sensitive
information.
•
Table of contents. The table of contents should be a logically ordered and
clearly identified layout of the major sections and subsections of the plan
that will make finding information within the plan easier.
PURPOSE, SCOPE, SITUATION, AND ASSUMPTIONS
Purpose. The rest of the EOP flows logically from its purpose. The Basic Plan’s
purpose is a general statement of what the EOP is meant to do. The statement
should be supported by a brief synopsis of the Basic Plan, the Functional
Annexes, and the Hazard-Specific Appendices.
Scope. The EOP should also explicitly state the scope of emergency and
disaster response to which the plan applies and the entities (departments,
agencies, private sector, citizens, etc.) and geographic areas to which it applies.
Situation overview. The situation section characterizes the “planning
environment,” making it clear why an EOP is necessary. At a minimum, the
situation section should summarize hazards faced by the jurisdiction and discuss
how it fits into Regional response structures. The situation section covers:
•
Relative probability and impact of the hazards,
•
Geographic areas likely to be affected by particular hazards,
•
Vulnerable critical facilities (nursing homes, schools, hospitals,
infrastructure, etc.),
•
Population distribution,
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•
Characteristics and locations of special needs populations
(e.g., individuals living in the community and in residential facilities who
may require assistance with regard to transportation, child care, health
care, personal care activities, language comprehension, etc.), and
•
Dependencies on other jurisdictions for critical resources.
The level of detail is a matter of judgment; some information may be limited to a
few specific Functional Annexes and presented there. Maps should be included
(as tabs) to support the situation description.
Planning assumptions. These identify what the planning team assumed to be
facts for planning purposes in order to make it possible to execute the EOP.
During operations, the assumptions indicate areas where adjustments to the plan
have to be made as the facts of the event become known. “Obvious”
assumptions should be included but limited to those that need to be explicitly
stated (e.g., do not state as an assumption that the hazard will occur; it is
reasonable for the reader to believe that if the hazard was not possible, the plan
would not address it).
CONCEPT OF OPERATIONS
The audience for the Basic Plan needs to be able to visualize the sequence and
scope of the planned emergency response. The CONOPS section is a written or
graphic statement that explains in broad terms the decision maker’s or leader’s
intent with regard to an operation. The CONOPS is designed to give an overall
picture of the operation. It is included primarily to clarify the purpose, and it
explains the jurisdiction's overall approach to an emergency (i.e., what should
happen, when, and at whose direction). Topics should include the division of
Local, State, Federal, and any intermediate inter-jurisdictional responsibilities;
activation of the EOP; “action levels” and their implications (if formalized in the
jurisdiction); the general sequence of actions before, during, and after an
emergency; and who should request aid and under what conditions. (The
necessary forms should be contained in tabs.) General emergency management
goals and objectives are discussed in this section. State EOPs should designate
who appoints a State Coordinating Officer (SCO) and how the SCO and the
State response organization will coordinate and work with Federal response
personnel in accordance with the NRF. The CONOPS should touch on direction
and control, alert and warning, and continuity of operations matters that may be
dealt with more fully in annexes.
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ORGANIZATION AND ASSIGNMENT OF RESPONSIBILITIES
This section of the Basic Plan establishes the emergency organization that will
be relied on to respond to an emergency situation. It includes a list of the kinds of
tasks to be performed, by position and organization, and it provides a quick
overview of who does what, without all of the procedural details included in
Functional Annexes. When two or more organizations perform the same kind of
task, one should be given primary responsibility, and the other(s) should be given
a supporting role. For the sake of clarity, a matrix of organizations and areas of
responsibility (including functions) should be included to summarize the primary
and supporting roles. (Shared general responsibilities, such as developing SOPs,
should not be neglected, and the matrix might include organizations not under
jurisdictional control, if they have defined responsibilities for responding to
emergencies that might occur in the jurisdiction.) Organization charts, especially
those depicting how a jurisdiction is implementing the Incident Command
System (ICS) or Multiagency Coordination System (MACS) structure, are
helpful.
In addition, this section is where a jurisdiction discusses the response organizing
option that it uses for emergency management – ESF, or agency and
department, or functional areas of ICS/NIMS, or a hybrid. The selected
management structure determines what types of annexes are included in the
EOP and must be carried through to any hazard annexes. A sample organization
responsibility matrix is provided in Appendix F.
DIRECTION, CONTROL, AND COORDINATION
This section describes the framework for all direction, control, and coordination
activities. It identifies who has tactical and operational control of response assets.
It discusses multijurisdictional coordination systems and processes used during
an emergency, which are ways to acknowledge multiple sovereignty but still
coordinate actions. Specifically, this section discusses how multijurisdictional
coordination systems allow organizations to coordinate efforts across
jurisdictions while allowing each jurisdiction to remain its own “command center.”
This section also provides information on how department and agency plans nest
into the EOP (horizontal coordination) and how higher-level plans are expected
to layer on the EOP (vertical integration). This section (and the plan in general) is
typically not the place to talk in detail about EOC organization and operations.
Those are SOP issues.
DISASTER INTELLIGENCE (INFORMATION COLLECTION)
This section describes the required critical or essential information common to all
emergencies identified during the planning process. In general terms, it identifies
the type of information needed, where it is expected to come from, who uses the
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information, how the information is shared, the format for providing the
information, and any specific times the information is needed. The contents of
this section are best provided in a tabular format. This section may be expanded
as an annex or it may be included as an appendix or tab in the Direction, Control,
and Coordination section. Appendix H provides a sample information collection
matrix.
COMMUNICATIONS
This section describes the response organization-to-response organization
communication protocols and coordination procedures used during emergencies
and disasters. It discusses the framework for delivering communications support
and how the jurisdiction’s communications integrate into the Regional or National
disaster communications network. It does not describe communications
hardware or specific procedures found in departmental SOPs. Separate
interoperable communications plans should be identified and summarized. This
section may be expanded as an annex and is usually supplemented by
communications SOPs and field guides.
ADMINISTRATION, FINANCE, AND LOGISTICS
This section covers general support requirements and the availability of services
and support for all types of emergencies, as well as general policies for
managing resources. The following should be addressed in this section of the
plan:
•
References to Mutual Aid Agreements, including the Emergency
Management Assistance Compact (EMAC);
•
Authorities for and policies on augmenting staff by reassigning public
employees and soliciting volunteers, along with relevant liability
provisions;
•
General policies on keeping financial records, reporting, tracking resource
needs, tracking the source and use of resources, acquiring ownership of
resources, and compensating the owners of private property used by the
jurisdiction.
If this section is expanded, it should be broken into individual Functional Annexes
– one for each element.
PLAN DEVELOPMENT AND MAINTENANCE
The overall approach to planning and the assignment of plan development and
maintenance responsibilities are discussed in this section. This section should:
August 2008 INTERIM - Comprehensive Preparedness Guide 101
•
Describe the planning process, participants in that process, and how
development and revision of different ”levels” of the EOP (Basic Plan,
annexes, appendices, and SOPs) are coordinated during the
preparedness phase;
•
Assign responsibility for the overall planning and coordination to a specific
person; and
•
Provide for a regular cycle of testing, reviewing, and updating the EOP.
AUTHORITIES AND REFERENCES
This section provides the legal basis for emergency operations and activities.
This section of the plan includes the following:
•
Lists of laws, statutes, ordinances, executive orders, regulations, and
formal agreements relevant to emergencies;
•
Specification of the extent and limits of the emergency authorities granted
to the SO, including the conditions under which these authorities become
effective, and when they would be terminated;
•
Pre-delegation of emergency authorities (i.e., enabling measures sufficient
to ensure that specific emergency-related authorities can be exercised by
the elected or appointed leadership or their designated successors); and
•
Provisions for the continuity of operations (e.g., the succession of
decision-making authority and operational control) to ensure that critical
emergency functions can be performed.
SUPPORTING ANNEXES
What follows is a discussion of the purpose and potential content of supporting
annexes to the Basic Plan. For consistency, the recommended structure for all
annexes is the same as that of the Basic Plan. The annexes should include, as
appropriate, the same content sections:
•
Purpose, situation overview, and planning assumptions;
•
CONOPS;
•
Organization and assignment of responsibilities;
•
Direction, control, and coordination;
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• Disaster intelligence;
•
Administration, finance, and logistics; and
•
Authorities and references.
FUNCTIONAL, SUPPORT, EMERGENCY PHASE, OR AGENCY-FOCUSED
ANNEX CONTENT
Functional, Support, Emergency Phase, or Agency-Focused Annexes add
specific information and direction to the EOP. As indicated in Chapter 4 and
Appendix D, Support, Emergency Phase, and Agency-Focused Annexes are
variations of Functional Annexes tailored to the EOP format used by the
jurisdiction. They all focus on critical operational functions and who is responsible
for carrying them out. These annexes clearly describe the policies, processes,
roles, and responsibilities that agencies and departments carry out before,
during, and after any emergency. While the Basic Plan provides broad,
overarching information relevant to the EOP as a whole, these annexes focus on
specific responsibilities, tasks, and operational actions that pertain to the
performance of a particular emergency operations function. These annexes also
establish preparedness targets (e.g., training, exercises, equipment checks and
maintenance) that facilitate achieving function-related goals and objectives
during emergencies and disasters.
An early and very important planning task is to identify the functions that are
critical to successful emergency response. These core functions become the
subjects of the separate functional, support, emergency phase, or agency-
focused annexes. The constitutional and organizational structures of a
jurisdiction’s government, the capabilities of its emergency services agencies,
and established policy and intended outcome of emergency operations influence
the choice of core functions. While no single list of functions applies to all
jurisdictions, the following list of core functions warrants special attention
because they may require specific actions during emergency response
operations:
•
Direction, control, coordination;
• Disaster intelligence;
• Communications;
• Population warning;
•
Emergency public information;
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•
Public protection (e.g., evacuation, in-place sheltering);
•
Mass care;
•
Health and medical services; and
•
Resource management.
This is not an exhaustive or even comprehensive list of emergency response
functions. Each jurisdiction must assess its own needs, and additional or different
annexes from those identified in Appendix D should be prepared at the planning
team’s discretion. States should encourage their jurisdictions to use a consistent
set of core emergency functions to facilitate coordination and interoperability.
Some jurisdictions may want to modify their Functional Annex structure to use
the 15 ESFs identified in the NRF. Some communities that have adopted the
ESF approach have also added additional ESFs to meet Local needs. The ESF
structure facilitates the orderly flow of Local requests for governmental support to
the State and Federal levels and the provision of resources back down to Local
Government during an emergency. State and Local jurisdictions that choose not
to adopt the ESF structure should cross-reference their Functional Annexes with
the ESFs. Appendix G provides an example of a simple matrix used to cross-
reference Functional Annexes with ESFs. Table 4.1 shows some possible
relationships between the traditional emergency management core functions and
the department/agency and ESF structures.
Table 4.1 Comparison of Potential Functional Annex Structures
EM Functions Departments and Agencies ESFs
Direction, Control,
Coordination
All Departments and Agencies All ESFs
Disaster Intelligence All Departments and Agencies All ESFs
Communications All Departments and Agencies ESF 2 – Communications
Population Warning Fire, Law Enforcement, Public
Safety, Public Works, Schools
ESF 2 – Communications
ESF 3 – Public Works and
Engineering
ESF 4 – Firefighting
ESF 5 – Emergency Management
ESF 13 – Public Safety and Security
ESF 15 – External Affairs
Emergency Public
Information
All Departments and Agencies All ESFs
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Table 4.1 (cont.)
EM Functions Departments and Agencies ESFs
Public Protection Agriculture, Environment, Fire,
Law Enforcement, Public
Safety, Public Works, Roads,
Schools, Transportation
ESF 1 - Transportation
ESF 2 – Communications
ESF 4 – Firefighting
ESF 5 – Emergency Management
ESF 9 – Search and Rescue
ESF 10 – Oil and Hazardous
Materials Response
ESF 11 – Agriculture and Natural
Resources
ESF 13 – Public Safety and Security
Mass Care Aging, Family Services,
Housing, Labor, Schools, Social
Services, Volunteers
ESF 1 - Transportation
ESF 2 – Communications
ESF 5 – Emergency Management
ESF 6 – Mass Care, Emergency
Assistance, Housing and
Human Services
ESF 13 – Public Safety and Security
Health and Medical
Services
Emergency Medical Services,
Health, Hospitals, Nursing
Homes, Assisted Living
ESF 1 - Transportation
ESF 2 – Communications
ESF 4 – Firefighting
ESF 5 – Emergency Management
ESF 8 – Public Health and Medical
Services
Resource Management Agriculture, Budget &
Management, Economic
Development, Energy, Human
Resources, Labor, Public
Services, Purchasing,
Volunteers
ESF 1 – Transportation
ESF 5 – Emergency Management
ESF 7 – Resource Support
ESF 11 – Agriculture and Natural
Resources
ESF 12 – Energy
HAZARD-OR INCIDENT-SPECIFIC ANNEXES OR APPENDICES
The contents of Hazard- or Incident-Specific Annexes or Appendices focus on
the special planning needs generated by the subject hazard. These annexes or
appendices contain unique and regulatory response details that apply to a single
hazard. The EOP’s structure determines whether an annex or appendix is used.
Functional EOPs usually add Hazard-Specific Appendices to the Functional
Annexes. Other EOP structures (e.g., the emergency phase structure) use
Hazard-Specific Annexes. Hazard- or Incident-Specific Annexes are “standalone”
elements of the EOP. Hazard- or Incident-Specific Appendices are
sections in a Functional Annex that provide supplemental information regarding a
particular hazard’s special requirements.
Hazard- or Incident-Specific Annexes or Appendices usually identify hazard-
specific risk areas and evacuation routes, specify provisions and protocols for
warning the public and disseminating emergency public information, and specify
the types of protective equipment and detection devices for responders. The
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annexes or appendices have tabs that serve as work aids for items including
maps, charts, tables, checklists, resource inventories, and summaries of critical
information. As indicated previously, Hazard-Specific Annexes and Appendices
follow the Basic Plan’s content organization. Hazard-specific information is
typically provided in the CONOPS section by adding these information areas:
•
Assess and control hazards. (These tasks normally take place at the
scene of an emergency or disaster. Not all emergency and disaster
situations have a scene, so these tasks apply to many, but not all,
hazards. The first task, however – examine the situation – applies to all
hazards.) In this step, emergency responders:
-
Examine the situation,
-
Assess the hazard,
-
Select the control strategy,
-
Control the hazard, and
-
Monitor the hazard.
•
Select protective actions. (These tasks normally take place at an EOC. In
some cases, information from the scene must be communicated to the
EOC for these tasks to be done properly.) In this step, emergency
managers:
-
Analyze the hazard,
-
Determine the protective action,
-
Determine the public warning, and
-
Determine the protective action implementation plan.
•
Conduct public warning.
-
Disseminate public warnings.
•
Implement protective actions.
-
Control access and isolate danger area,
-
Provide evacuation support,
-
Provide decontamination support,
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-Provide medical treatment,
-Provide support to special populations, and
-Provide search and rescue.
• Implement short-term stabilization.
-Conduct shelter operations,
-Unite families,
-Provide continued medical treatment,
-Increase security, and
-Stabilize the affected area.
• Implement recovery.
-Implement reentry and
-Implement return.
ANNEX AND/OR APPENDIX IMPLEMENTING INSTRUCTIONS
Each annex or appendix (as well as the Basic Plan) may use implementing
instructions in the form of:
• SOPs,
• Maps,
• Charts,
• Tables,
• Forms, and
• Checklists.
Implementing instructions may be included as attachments or referenced. The
EOP planning team may use supporting documents as needed to clarify the
contents of the plan, annex, or appendix. For example, the Evacuation Annex
may be made clearer by attaching maps with evacuation routes marked to it.
Because these routes may change depending on the location of the hazard,
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maps may also be included in the Hazard-Specific Appendices to the Evacuation
Annex. Similarly, the locations of shelters may be marked on maps supporting
the Mass Care Annex.
SPECIAL PREPAREDNESS PROGRAMS
Some jurisdictions participate in special preparedness programs that publish their
own planning guidance. Two examples are CSEPP and REPP. When
participating jurisdictions are developing an EOP, they must ensure they meet
the special planning requirements of these programs. Jurisdictions must decide
whether this compliance is best accomplished by incorporating the requirements
across Functional Annexes or by developing a Hazard-Specific Annex for the
program.
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5. ADDITIONAL TYPES OF
PLANS
GENERAL TYPES OF PLANS
Emergency management involves several kinds of plans, just as it involves
several kinds of actions. While the EOP is considered the centerpiece of a
jurisdiction’s emergency management effort, it is not the only plan that addresses
that effort. There are other types of plans that support and supplement the EOP.
Administrative plans describe policies and procedures basic to the support of a
governmental endeavor. Typically, they deal less with external work products
than with internal processes. Examples include plans for financial management,
personnel management, records review, and labor relations activities. Such plans
are not the direct concern of an EOP. However, planners should reference the
administrative plan in the EOP if its provisions apply during an emergency.
Planners should make similar references in the EOP for exceptions to normal
administrative plans permitted during an emergency.
A mitigation plan outlines a jurisdiction’s strategy for mitigating the hazards it
faces. In fact, a mitigation plan is required of States that seek funds for post-
event mitigation after Presidential declarations under the Stafford Act. Mitigation
planning is often a long-term planning effort and may be part of or tied to the
jurisdiction’s strategic development plan or other similar document. Mitigation
planning committees may differ from operational planning teams in that they
include zoning boards and individuals with long-term cultural or economic
interests. Existing plans for mitigating hazards are relevant to an EOP,
particularly in short-term recovery decision making, which can affect prospects
for effective implementation of a mitigation strategy aimed at reducing the long-
term risk to human life and property in the jurisdiction.
Preparedness plans cover three objectives:
1. Maintaining readiness of existing emergency management capabilities,
2. Preventing emergency management capabilities themselves from falling
victim to emergencies, and
3. Augmenting the jurisdiction's emergency management capability.
Preparedness plans address the process and schedule for identifying and
meeting training needs (on the basis of expectations created by the EOP);
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the process and schedule for developing, conducting, and evaluating
exercises and correcting identified deficiencies; and plans for procuring or
building facilities and equipment that could withstand the effects of the
hazards facing the jurisdiction. The EOP incorporates the results of
preparedness activities (that certain equipment and facilities are available,
that people are trained and exercised, etc.) as assumptions.
Typically, an EOP does not spell out recovery actions (except for conducting
rapid damage assessments and satisfying the needs of disaster victims for
immediate life support). However, the EOP should provide for a transition to a
recovery plan, if any exists, and for a stand-down of response forces. The EOP
may cover some short-term recovery actions that are natural extensions of
response. For example, meeting human needs would require maintaining
logistical support for mass-care actions initiated in the response phase. It would
also involve the restoration of infrastructure “lifelines” and perhaps the removal of
debris to facilitate the response. At the State's discretion, its disaster assistance
plans for distribution of Federal and State relief funds might be included as an
annex to the EOP. Disaster assistance plans identify how to identify, contact,
match to aid, certify, and issue checks to eligible aid recipients.
Beyond response-phase or short-term recovery lies long-term recovery.
Developing long-term mitigation and recovery plans involves identifying strategic
priorities for restoration, improvement, and disaster resiliency. Here emergency
management planning starts to intersect with the community development
planning of other agencies. In fact, such plans might be developed under the
authority of a department or agency other than the emergency management
organization.
PROCEDURAL DOCUMENTS
Procedural documents differ from a CONOPS or a plan. They describe how to
accomplish specific activities that are required to finish a task or achieve a goal
or objective. Put simply, plans describe the “what,” and procedures describe the
“how.” Jurisdictions across the country typically use the following types of
procedural documents:
Overviews are brief concept summaries of an incident-related function, team, or
capability. There are two types of overview documents. One type explains
general protocols and procedures. This document serves as the bridge between
all functional or hazard-specific planning annexes and procedural documentation.
It could contain an EOC layout, describe activation levels, and identify which
functions or sections are responsible for planning, operational, and support
activities. An easy way to develop an overview document would be to review the
assignments and responsibilities outlined in the EOP and ensure that the
overview document references the procedures developed to fulfill them. Such an
overview document could then function as a project management document that
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is used to track the status of procedures as they are developed. A successful
overview document would help orient a newly arriving member of the department
or agency who was brought in to support a particular function, mission, or
section. The second type of overview document is specific to a functional team or
area. It describes the general responsibilities and tasks of a functional team. This
overview document provides enough information to supporting personnel to help
them in activities related to the function, team, or capability summarized by the
document. It identifies qualifications to support the team, provides a summary of
operational procedures, and defines possible missions in greater detail than is
described in plan annexes. As an example, the overview document addressing
transportation would describe the purpose of this function, composition of support
personnel, requirements for the team or branch, and missions that might be
required. It might also identify the hazards or conditions that determine when
missions are assigned.
Standard operating procedures (SOPs) or operating manuals are complete
reference documents that detail the procedures for performing a single function
or a number of interdependent functions. Collectively, practitioners refer to both
documents as SOPs. SOPs often describe processes that evolved institutionally
over the years or document common practices so that institutional experience is
not lost to the organization as a result of staff turnover. Sometimes they are task-
specific (e.g., how to activate a siren system or issue an Emergency Alert
System [EAS] message). SOPs or operating manuals should grow naturally out
of the responsibilities identified and described in the EOP. Staff who typically
engage in emergency activities should develop the procedures found in an SOP.
SOPs provide the means to translate organizational tasks into specific action-
oriented checklists that are very useful during emergency operations. They tell
how each organization or agency will accomplish its assigned tasks. Normally,
SOPs include checklists, call-down rosters, resource listings, maps, and charts,
and they give step-by-step procedures for notifying staff; obtaining and using
equipment, supplies, and vehicles; obtaining mutual aid; reporting information to
organizational work centers and the EOC; communicating with staff members
who are operating from more than one location, etc. Development of certain
procedures is required in REPP, CSEPP, and Emergency Planning and
Community Right-to-Know Act (EPCRA) planning. The emergency manager
works with the senior representatives of tasked organizations to ensure that the
SOPs needed to implement the EOP do, in fact, exist and do not conflict with the
EOP or one another.
Field operations guides (FOGs) or handbooks are durable pocket or desk guides
that contain essential information required to perform specific assignments or
functions. FOGs give people assigned to specific teams, branches, or functions
information only about the procedures they are likely to perform or portions of an
SOP appropriate for the missions they are likely to complete. The FOG is a short-
form version of the SOP and serves as a resource document. The FOG is
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complete enough to hand to new members of the EOC, and when combined with
the overview document, it gives them an accurate and complete picture of the
positions they fill. In addition to relevant procedures, the FOG or handbook may
include administrative procedures that staff must follow.
Job aids are checklists or other materials that help users perform a task.
Examples of job aids include telephone rosters, report templates, software or
machine operating instructions, and task lists. Job aids are often included in
FOGs and handbooks to help relatively inexperienced EOC personnel complete
their assigned tasks or as a reference for experienced personnel. Job aids may
also serve the purpose of minimizing complexity or opportunity for error in
executing a task (e.g., providing a lookup chart of temperature conversions rather
than providing a formula for doing the conversion).
DETERMINING WHETHER RESPONSE INFORMATION BELONGS IN A
PLAN OR PROCEDURAL DOCUMENT
Planners should prepare procedural documents to keep the plan free of
unnecessary detail. The basic criterion is: What does the entire audience of this
part of the plan need to know or have set out as a matter of public record?
Information and how-to instructions used by an individual or small group should
appear in procedural documents. The plan should reference procedural
documents as appropriate.
With regard to many responsibilities in the emergency plan, it is enough to assign
the responsibility to an individual (by position or authority) or organization and
specify the assignee's accountability: To whom does the person report, or with
whom does the person coordinate? For example, a plan that assigns
responsibility for putting out fires to the fire department would not detail
procedures used at the scene or what fire equipment is most appropriate. The
emergency plan would defer to the fire department’s SOPs for that. However, the
plan would describe the relationship between the incident commander (IC) and
the central organization that directs the total jurisdictional response to the
emergency, of which the fire in question might be only a part.
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6. LINKING FEDERAL, STATE,
TERRITORIAL, LOCAL, AND
TRIBAL PLANS
The Robert T. Stafford Disaster Relief and Emergency Assistance Act, Public
Law 93-288, as amended, authorizes the Federal Government to respond to
disasters and emergencies to provide State and Local governments with
assistance to save lives and protect public health, safety, and property. The NRF
was developed to help expedite Federal support to State and Local governments
dealing with the consequences of large-scale disasters. In general, the NRF is
implemented when the State's resources are not sufficient to cope with a
disaster, and the State’s governor has requested Federal assistance.
This chapter summarizes the response planning considerations that shape the
content of the NRF, Regional Response Plans (RRPs), and State EOPs. It also
outlines the links between Federal and State emergency response operations for
planning purposes (Figure 6.1).
RECENT CHANGES TO EMERGENCY PLANNING REQUIREMENTS
The terrorist attacks of September 11, 2001, illustrated the need for all levels of
government, the private sector, and NGOs to prepare for, protect against,
respond to, and recover from a wide spectrum of possible events and scenarios
that would exceed the capabilities of any single entity. These events require a
unified and coordinated national approach to planning and to domestic incident
management. To address this need, President George W. Bush signed a series
of Homeland Security Presidential Directives (HSPDs) intended to develop a
common approach to preparedness and response. Three HSPDs are of
particular importance to emergency planners:
•
HSPD-5, Management of Domestic Incidents, identifies steps for improved
coordination in response to incidents. It requires DHS to coordinate with
other Federal departments and agencies and State, Local, and Tribal
governments to establish a national response framework and a national
incident management system.
•
HSPD-8, National Preparedness, describes the way Federal departments
and agencies will prepare for an incident. It requires DHS to coordinate
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with other Federal departments and agencies and with State, Local, and
Tribal governments to develop a National Preparedness Goal.
•
HSPD 8, Annex I, National Planning, describes a common Federal
planning process that supports the development of a family of related
planning documents. These documents include strategic guidance
statements, strategic plans, concept plans, operations plans, and tactical
plans. Annex I required the development of an Integrated Planning
System (IPS) guide integration and synchronization across federal
departments and agencies. IPS provides the federal government with a
consistent direction and delineation of authorities, responsibilities and
requirements, common terms of reference, and plans based upon shared
assumptions. IPS uses the same planning principles found in CPG 101.
The goal is to provide consistency of process despite different planning
requirements – where state and local governments focus planning on
most likely events while the federal government centers its efforts around
the most dangerous scenarios.
Figure 6.1 Relationships of the National Preparedness Initiatives to State,
Territorial, Local, and Tribal Emergency Planning
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•
HSPD-20, National Continuity Policy, establishes the national policy on
the continuity of Federal Government structures and operations. It
describes eight National Essential Functions and provides guidance on
continuity of government and operations for State, Local, Territorial, and
Tribal governments and private sector organizations in order to ensure
rapid and effective response to and recovery from national emergencies.
Together, NIMS, the NRF, and the National Preparedness Guidelines define how
to prevent, protect against, respond to, and recover from a major event and
define the measures of a response effort’s success. These efforts align Federal,
State, Local, and Tribal entities; the private sector; and NGOs in providing an
effective and efficient national structure for preparedness, incident management,
and emergency response.
NATIONAL INCIDENT MANAGEMENT SYSTEM
NIMS provides a consistent framework for incident management at all
jurisdictional levels, regardless of the cause, size, or complexity of the incident.
Building on the ICS, NIMS provides the nation’s first responders and authorities
with the same foundation for incident management for terrorist attacks, natural
disasters, and all other emergencies. NIMS requires institutionalization of ICS
and its use to manage all domestic incidents.
According to the NIC, “institutionalizing the use of ICS” means that government
officials, incident managers, and emergency response organizations at all
jurisdictional levels adopt the ICS. Actions to institutionalize the use of ICS take
place at two levels: the policy level and the organizational/operational level.
At the policy level, institutionalizing ICS means that government officials:
•
Adopt ICS through executive order, proclamation, or legislation as the
jurisdiction’s official incident response system, and
•
Direct all incident managers and response organizations in their
jurisdictions to train, exercise, and use ICS in their response operations.
At the organizational/operational level, incident managers and emergency
response organizations should:
•
Integrate ICS into functional, system-wide emergency operations policies,
plans, and procedures;
•
Provide ICS training for responders, supervisors, and command-level
officers; and
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•
Conduct exercises for responders at all levels, including responders from
all disciplines and jurisdictions.
NIMS integrates existing best practices into a consistent, nationwide approach to
domestic incident management that is applicable at all jurisdictional levels and
across functional disciplines. Five major components make up the NIMS
system’s approach:
•
Command and Management. NIMS standard incident command structures
are based on three key organizational systems:
-
Incident Command System: ICS defines the operating characteristics,
interactive management components, and structure of incident
management and emergency response organizations engaged
throughout the life cycle of an incident.
-
Multiagency Coordination Systems: MACS defines the operating
characteristics, interactive management components, and
organizational structure of supporting incident management entities
engaged at the Federal, State, Local, Tribal, and Regional levels
through mutual-aid agreements and other assistance arrangements.
Some examples of multiagency coordination entities that that are part
of the MACS structure include emergency operations centers, resource
centers, dispatch centers, and joint field offices.
-
Public Information: Public information refers to processes, procedures,
and systems for communicating timely, accurate, and accessible
information to the public during crisis or emergency situations.
•
Preparedness. Effective incident management begins with a host of
preparedness activities conducted on a “steady-state” basis well in
advance of any potential incident. Preparedness involves an integrated
combination of planning, training, exercises, personnel qualification and
certification standards, equipment acquisition and certification standards,
and publications management processes and activities.
•
Resource Management. NIMS defines standardized mechanisms and
establishes requirements for processes to describe, inventory, mobilize,
dispatch, track, and recover resources over the life cycle of an incident.
•
Communications and Information Management. NIMS identifies the
requirements for a standardized framework for communications,
information management (collection, analysis, and dissemination), and
information sharing at all levels of incident management.
•
Ongoing Management and Maintenance. This component establishes the
NIC to provide strategic direction for and oversight of NIMS, supporting
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both routine review and the continuous refinement of the system and its
components over the long term.
-
Supporting Technologies. Technology and technological systems
provide supporting capabilities essential to implementing and refining
NIMS. These systems include voice and data communications
systems, information management systems (e.g., recordkeeping and
resource tracking), and data display systems. Also included are
specialized technologies that facilitate ongoing operations and incident
management activities in situations that call for unique technology-
based capabilities.
NATIONAL RESPONSE FRAMEWORK
The National Response Framework (NRF) is a guide to how the nation conducts
all-hazards incident response. It uses flexible, scalable, and adaptable
coordinating structures to align key roles and responsibilities across the nation. It
captures 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 NRF explains the common discipline and structures that
have been exercised and have matured at the Local, State and National levels
over time. It captures key lessons learned from Hurricanes Katrina and Rita,
focusing particularly on how the Federal Government organizes itself to support
communities and States in catastrophic incidents. Most importantly, it builds upon
NIMS, which provides a consistent national template for managing incidents.
The NRF identifies State, Territorial, Local, and Tribal jurisdiction responsibility to
develop detailed, robust all-hazards EOPs. It says these plans must clearly
define leadership roles and responsibilities and clearly articulate the decisions
that need to be made, who will make them, and when. Emergency plans should
include both hazard-specific and all-hazards plans tailored to the locale. They
should be integrated and operational and incorporate key private sector business
and NGO elements. Plans should include strategies for both no-notice and
forewarned evacuations, with particular considerations for assisting special-
needs populations. Specific procedures and protocols should augment these
plans to guide rapid implementation.
The NRF indicates that each Federal department or agency must also plan for its
role in incident response. Virtually every Federal department and agency
possesses personnel and resources that a jurisdiction may need when
responding to an incident. Some Federal departments and agencies have
primary responsibility for specific aspects of incident response, such as
hazardous materials remediation. Others may have supporting roles in providing
different types of resources, such as communications personnel and equipment.
Regardless of their roles, all Federal departments and agencies must develop
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policies, plans, and procedures governing how they will effectively locate
resources and provide them as part of a coordinated Federal response.
Depending on the jurisdiction, the new emergency planning requirements
identified in the NRF may cause significant or only minor changes to EOP
content. Minimally, the changes mean that a jurisdiction must:
•
Use ICS to manage all incidents, including recurring and/or planned
special events;
•
Integrate all response agencies and entities into a single, seamless
system, from the Incident Command Post, to the Department Emergency
Operations Centers (DEOCs) and Local Emergency Operations Centers
(LEOCs), to the State EOC and to Regional- and National-level entities;
•
Develop and implement a public information system;
•
Identify and characterize all resources according to established standards
and types;
•
Ensure that all personnel are trained properly for the jobs they perform;
and
•
Ensure communications interoperability and redundancy.
Planners should consider each of these requirements as they develop or revise
their jurisdiction’s EOP.
EMERGENCY MANAGEMENT ASSISTANCE COMPACT (EMAC)
EMAC is a national interstate mutual aid agreement that enables states to share
resources during times of disaster. Since the 104th Congress ratified the
compact, EMAC has grown to become the nation's system for providing mutual
aid through operational procedures and protocols that have been validated
through experience. All States are members of EMAC. The National Emergency
Management Association (NEMA), headquartered in Lexington, KY, administers
EMAC.
EMAC acts as a complement to the federal disaster response system, providing
timely and cost-effective relief to states requesting assistance from assisting
member states who understand the needs of jurisdictions that are struggling to
preserve life, the economy, and the environment. EMAC can be used either in
lieu of federal assistance or in conjunction with federal assistance, thus providing
a "seamless" flow of needed goods and services to an impacted state. EMAC
further provides another venue for mitigating resource deficiencies by ensuring
maximum use of all available resources within member states' inventories.
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RELATIONSHIP BETWEEN FEDERAL PLANS AND STATE EOPS
Federal response plans (such as National and Regional response plans) and
State EOPs describe each respective governmental level's approach to
emergency response operations. Since both levels of government provide
support, there are some similar and overlapping functions in the plans.
THE NATIONAL RESPONSE FRAMEWORK (NRF)
The NRF provides structures for implementing nationwide response policy and
operational coordination for all types of domestic incidents. The NRF’s basic
premises are that incidents are generally handled at the lowest jurisdictional level
possible and that each response level can request from another level before
becoming overwhelmed.
CONCEPT OF OPERATIONS
The Federal government may implement the NRF after a large-scale disaster has
occurred or upon a warning that such a disaster is likely to occur. In either case,
the fundamental assumption is that the situation has exceeded or will exceed the
State and Local governments' capabilities to respond and recover. It guides the
activities of Federal agencies (and supporting organizations like the ARC) tasked
to perform response and recovery actions.
FUNCTIONAL ORGANIZATION
The NRF uses 15 ESFs to group and describe the kinds of resources and types
of Federal assistance available to augment State and Local response efforts. The
ESFs are:
1. Transportation;
2. Communications;
3. Public Works and Engineering;
4. Firefighting;
5. Emergency Management;
6. Mass Care, Emergency Assistance, Housing, and Human Services;
7. Logistics Management and Resource Support;
8. Public Health and Medical Services;
9. Search and Rescue;
10. Oil and Hazardous Materials Response;
11. Agriculture and Natural Resources;
12. Energy;
13. Public Safety and Security
14. Long-Term Community Recovery; and
15. External Affairs.
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Each ESF has a Federal department or agency identified as its coordinator.
During response and recovery operations, the coordinating agency forms and
activates a team that is responsible for working with the appropriate State and
Local officials to identify unmet resource needs. The team also coordinates the
flow of resources and assistance provided by the Federal government to meet
these needs. The NRF serves as the foundation for the development of National
and Regional response plans that implement Federal response activities.
FEMA REGIONAL RESPONSE PLANS (RRPS)
FEMA RRPs supplement the NRF and detail the specific Regional-level
response and recovery actions and activities potentially taken by Federal
departments and agencies to support the Federal response effort. They also
provide the necessary link between the State EOP and the NRF. Each FEMA
RRP:
•
Specifies the responsibilities assigned to each of the tasked Federal
departments and agencies for mobilizing and deploying resources to
assist State(s) in response/recovery efforts;
•
Describes the relationship between the responding Federal
agencies/departments and their State counterparts;
•
Provides information to the States on the various response mechanisms,
capabilities, and resources available to them through the Federal
government; and
•
Includes organizational tasking and implementing instructions for
accomplishing the actions agreed upon in the Region/State
Memorandums of Understanding (MOUs). An MOU is a written agreement
between the Federal and State Governments. The FEMA Regional
Director and the appropriate State official are the signatories. The MOU
describes the working relationship and provisions made to facilitate joint
Federal/State operations during large-scale disasters. The following list
identifies some of the typical MOU responsibilities that may be addressed
in a FEMA RRP:
-
Notification procedures and protocols for communicating with State
officials (points of contact, such as the State’s governor, Emergency
Management Agency director, and EOC managers); means of
communication (telephone, cell, pager, radio, teletype, e-mail, fax,
etc.); frequency of contact; and message content (initial discussions on
scope of the disaster; the State's initial assessment of the situation;
identification of liaison officers and their estimated arrival time at the
State EOC/JFO (joint field office); likely staging areas for Federal
response teams, etc.);
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-
Provision for Incident Management Assistance Team (IMAT)
personnel to assist in conducting a "rapid situation assessment"
immediately after a disaster has occurred or immediately before one;
-
Coordination responsibilities of Regional liaison officer(s) and the
provisions established for deployment to the State EOC;
-
Provisions for deployment of IMAT members to the State EOC/JFO,
staging locations, or directly into the area impacted by the disaster; and
-
Provisions for obtaining work space in the State EOC and other
locations for the initial response cadre, arrangements to obtain work
space for the JFO and other follow-on response teams, and a variety of
other activities that require extensive coordination.
STATE EMERGENCY OPERATIONS PLAN
The State emergency response mission is much broader than the Federal
Government's. In addition to providing resources to satisfy unmet local needs, the
State EOP addresses several operational response functions. These functions
focus on actions – such as the direction and control, warning, public notification,
and evacuation – that must be dealt with during the initial phase of response
operations and that fall outside the Federal response mission and thus are not
appropriate for inclusion in Federal response plans. Appendix F shows how the
functions described in Chapter 5, if adopted, may link with Federal ESFs in those
emergencies that require implementation of the NRF.
Because States have an additional responsibility to channel Federal assistance
provided under the NRF, some States choose to mirror the NRF functions. There
is no need for States to mirror the Federal ESFs exactly; States have
successfully used a hybrid approach, either by giving State counterparts of
Federal ESFs those extra responsibilities appropriate to the State level or by
creating functions in addition to those used by the Federal government to
address State responsibilities and concerns. The important thing is that the
State's choice of functions fits its own CONOPS, policies, governmental
structure, and resource base. That determination is critical because the State
EOP details what the State government will do to respond to all large-scale
disasters and emergencies that could harm people and property within the State,
whether or not links to the NRF/RRP framework become necessary. The State
EOP:
•
Identifies the State’s departments and agencies designated to perform
response and recovery activities and specifies tasks they must
accomplish.
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•
Describes the State’s role and commitments in regional compact
agreements and organizations.
•
Outlines the assistance that is available to local jurisdictions during
disaster situations that generate emergency response and recovery needs
beyond what the local jurisdiction can satisfy.
•
Specifies the direction and control and the communications procedures
and systems that will be relied on to alert, notify, recall, and dispatch
emergency response personnel; warn local jurisdictions; protect citizens
and property; and request aid/support from other States and/or the
Federal government (including the role of the Governor’s Authorized
Representative).
•
Describes provisions for obtaining initial situation assessment information
from the local jurisdiction(s) that are directly impacted by the disaster or
emergency.
•
Includes organizational tasking and instructions for accomplishing the
actions agreed upon in the Region/State MOU. The MOU describes the
working relationship and provisions made to facilitate joint Federal/State
operations during large-scale disasters. The following list identifies some
of the typical responsibilities contained in the MOUs that may be
addressed in the State EOP:
-
Provisions for notifying the FEMA Regional Office about the
occurrence of a disaster or evolving emergency that may warrant
activation of the RRP.
-
Communication protocols to include means of communication,
frequency of contact, and message content (e.g., warning messages,
situation reports, and requests for assistance).
-
Provisions for requesting Federal response teams to assist the State.
-
Preparation of a joint FEMA/State Preliminary Damage Assessment
(PDA).
•
Provisions for providing work space and communication support to the
Regional liaison officers and other Federal teams deployed to the State
EOC, staging areas, or the area directly impacted by the disaster.
•
Provisions for designating a State Coordinating Officer (SCO) to work
directly with the Federal Coordinating Officer (FCO).
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•
Provisions for assisting the FCO in identifying candidate locations for
establishing the JFO.
•
Details on the coordinating instructions and provisions for implementing
interstate compacts, as applicable.
•
Explanations about logistical support for planned operations.
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APPENDIX A: AUTHORITIES
AND REFERENCES
AUTHORITIES
Superfund Amendments and Reauthorization Act of 1986, Public Law 99-149, as
amended.
Robert T. Stafford Disaster Relief and Emergency Assistance Act of 1988, 42 U.S.C.
5121, et seq., as amended.
Homeland Security Act of 2002, 6 U.S.C. 101, et seq., as amended.
Post-Katrina Emergency Management Reform Act of 2006, Public Law 109-295.
Pet Evacuation and Transportation Standards Act of 2006, Public Law 109-308.
The Code of Federal Regulations, Title 44, Chapter 1, Federal Emergency Management
Agency, October 1, 2007.
Homeland Security Presidential Directive 5, Management of Domestic Incidents,
February 28, 2003.
Homeland Security Presidential Directive 8, National Preparedness, December 17,
2003.
Homeland Security Presidential Directive 8, Annex I, Planning, January, 2008.
National Security Presidential Directive 51/ Homeland Security Presidential Directive 20,
National Continuity Policy, May 4, 2007.
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ASTHO (Association of State and Territorial Health Officials). 2002. Preparedness
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Canton, L.G., 2007. Emergency Management; Concepts and Strategies for Effective
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DA (Department of the Army). 2005. Field Manual 5-0: Army Planning and Orders
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—— 2007. Accommodating Individuals with Disabilities in the Provision of Disaster
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Dynes, R.R., E.L. Quarantelli, and G.A. Kreps. 1981. A Perspective on Disaster
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Dynes, R.R., 1994. “Community Emergency Planning: False Assumptions and
Inappropriate Analogies.” International Journal of Mass Emergencies and Disasters.
12 (2): pp. 141–158 (August).
Emergency Management Accreditation Program. 2006. EMAP Standard.
Lexington, KY: EMAP.
FEMA (Federal Emergency Management Agency). 2006. CSEPP Planning Guidance.
Washington, DC: Federal Emergency Management Agency.
—— 1996. Guide for All-Hazard Emergency Operations Planning, State and Local
Guide SLG-101. Washington, DC: Federal Emergency Management Agency.
—— 1990. CPG 1-8: Guide for the Development of State and Local Emergency
Operations Plans. Washington, DC: Federal Emergency Management Agency.
Gordon, J.A. 2002. Comprehensive Emergency Management for Local Governments:
Demystifying Emergency Planning. New London, CT: Rothstein Associates,
Incorporated.
Hewett, P.L., Jr., J.E. Mitrani, W.C. Metz, and J.J. Vercellone. 2001. “Coordinating,
Integrating, and Synchronizing Disaster Response: Use of an Emergency Response
Synchronization Matrix in Emergency Planning, Exercises, and Operations.”
International Journal of Mass Emergencies and Disasters 19(3): pp. 329–348 (August).
Inman, A., 2005. Planning for the Unplanned. New York, NY: Routledge.
Jablonowski, M., 1999. "Divide and Conquer: A Modular Approach to Contingency
Planning.” Disaster Recovery Journal. Fall: pp. 70–72.
Kamien, D., Ed., 2006. The McGraw Hill Homeland Security Handbook. New York, NY:
McGraw Hill.
Lindell, M.K., and R.W. Perry. 1992. Behavioral Foundations of Community Emergency
Planning. Washington, DC: Hemisphere Publishing Corporation.
NFPA (National Fire Protection Agency). 2007. NFPA 1600: Standard on
Disaster/Emergency Management and Business Continuity Programs. Quincy, MA:
NFPA.
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NRT (National Response Team). 2001. NRT 1: Hazardous Materials Emergency
Planning Guide. Washington, DC: NRT.
O’Leary, M., Ed., 2004. The First 72 Hours: A Community Approach to Disaster
Preparedness. New York, NY: iUniverse, Incorporated.
Perry, R.W., and M.K. Lindell. 2007. Emergency Planning. Hoboken, NJ: John Wiley
and Sons.
Quarantelli, E.L., 1995. Disaster Planning, Emergency Management and Civil
Protection: The Historical Development and Current Characteristics of Organized Efforts
to Prevent and Respond to Disasters. Paper No. 227. Newark, DE: Disaster Research
Center, University of Delaware.
—— 1989. “Planning and Management for the Prevention and Mitigation of Natural
Disasters, Especially in a Metropolitan Context: Initial Questions and Issues Which
Need to Be Addressed.” Planning for Crisis Relief: Towards Comprehensive Resource
Management and Planning for Natural Disaster Prevention, Volume 3. Nagoya, Japan:
United Nations Centre for Regional Development.
—— 1988. “Assessing Disaster Preparedness Planning.” Regional Development
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—— 1987. Criteria Which Could Be Used in Assessing Disaster Preparedness Planning
and Managing. Paper No. 122. Newark, DE: Disaster Research Center, University of
Delaware.
—— 1985. Organization Behavior in Disasters and Implications for Planning. Report
Series No. 18. Newark, DE: Disaster Research Center, University of Delaware.
Sylves, R.T., and W. Waugh, Jr., 1996. Disaster Management in the U.S. and Canada:
The Politics, Policymaking, Administration, and Analysis of Emergency Management.
Springfield, IL: Charles C. Thomas Publisher.
Waeckerle, J.F., 1991. "Disaster Planning and Response.” The New England Journal of
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Wang, H.M., 2004. “Contingency Planning: Emergency Planning for Terrorist Attacks.”
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Waugh, W.L., and K. Tierney, Eds., 2007. Emergency Management: Principles and
Practice for Local Government, 2nd Edition. International City Management Association.
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APPENDIX B: GLOSSARY AND
LIST OF ACRONYMS
GLOSSARY
Accessible
Having the legally required features and/or qualities that ensure entrance,
participation, and usability of places, programs, services, and activities by
individuals with a wide variety of disabilities.
American Red Cross
The American Red Cross is a humanitarian organization, led by volunteers, that
provides relief to victims of disasters and helps people prevent, prepare for, and
respond to emergencies. It does this through services that are consistent with its
Congressional Charter and the Principles of the International Red Cross
Movement.
Assumptions (Management)
Statements of conditions accepted as true and that have influence over the
development of a system. In emergency management, assumptions provide
context, requirements, and situational realities that must be addressed in system
planning and development and/or system operations. When these assumptions
are extended to specific operations, they may require re-validation for the specific
incident.
Assumptions (Preparedness)
Operationally relevant parameters that are expected and used as a context,
basis, or requirement for the development of response and recovery plans,
processes, and procedures. For example, the unannounced arrival of patients to
a healthcare facility occurs in many mass casualty incidents. This may be listed
as a preparedness assumption in designing initial response procedures.
Similarly, listing the assumption that funds will be available to train personnel on
a new procedure may be important to note.
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Assumptions (Response)
Operationally relevant parameters for which, if not valid for a specific incident’s
circumstances, the EOP-provided guidance may not be adequate to assure
response success. Alternative methods may be needed. For example, if a
decontamination capability is based on the response assumption that the facility
is not within the zone of release, this assumption must be verified at the
beginning of the response.
Attack
A hostile action taken against the United States by foreign forces or terrorists,
resulting in the destruction of or damage to military targets, injury or death to the
civilian population, or damage to or destruction of public and private property.
Capabilities-based planning
Planning, under uncertainty, to provide capabilities suitable for a wide range of
threats and hazards while working within an economic framework that
necessitates prioritization and choice. Capabilities-based planning addresses
uncertainty by analyzing a wide range of scenarios to identify required
capabilities.
Checklist
Written (or computerized) enumeration of actions to be taken by an individual or
organization meant to aid memory rather than provide detailed instruction.
Citizen Corps Council
Councils sponsored by government at local, state, tribal, territorial, and national
level with the mission of bringing community and government leaders together to
involve community members in all-hazards emergency preparedness, planning,
mitigation, response, and recovery.
Community
A political entity that has the authority to adopt and enforce laws and ordinances
for the area under its jurisdiction. In most cases, the community is an
incorporated town, city, township, village, or unincorporated area of a county.
However, each State defines its own political subdivisions and forms of
government.
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Contamination
The undesirable deposition of a chemical, biological, or radiological material on
the surface of structures, areas, objects, or people.
Dam
A barrier built across a watercourse for the purpose of impounding, controlling, or
diverting the flow of water.
Damage Assessment
The process used to appraise or determine the number of injuries and deaths,
damage to public and private property, and status of key facilities and services
(e.g., hospitals and other health care facilities, fire and police stations,
communications networks, water and sanitation systems, utilities, and
transportation networks) resulting from a man-made or natural disaster.
Decontamination
The reduction or removal of a chemical, biological, or radiological material from
the surface of a structure, area, object, or person.
Disaster
An occurrence of a natural catastrophe, technological accident, or human-caused
event that has resulted in severe property damage, deaths, and/or multiple
injuries. As used in this Guide, a “large-scale disaster” is one that exceeds the
response capability of the Local jurisdiction and requires State, and potentially
Federal, involvement. As used in the Stafford Act, a “major disaster” is “any
natural catastrophe [...] 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 [the] Act to supplement the efforts and available resources or States, local
governments, and disaster relief organizations in alleviating the damage, loss,
hardship, or suffering caused thereby.” (Stafford Act, Sec. 102(2), 42 U.S.C.
5122(2).
Disaster Recovery Center
Places established in the area of a Presidentially declared major disaster, as
soon as practicable, to give victims the opportunity to apply in person for
assistance and/or obtain information related to that assistance. DRCs are staffed
by Local, State, and Federal agency representatives, as well as staff from
volunteer organizations (e.g., the American Red Cross).
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Earthquake
The sudden motion or trembling of the ground produced by abrupt displacement
of rock masses, usually within the upper 10 to 20 miles of the earth's surface.
Emergency
Any occasion or instance, such as a hurricane, tornado, storm, flood, tidal wave,
tsunami, earthquake, volcanic eruption, landslide, mudslide, snowstorm, fire,
explosion, nuclear accident, or any other natural or man-made catastrophe, that
warrants action to save lives and to protect property, public health, and safety.
Emergency Medical Services
Services, including personnel, facilities, and equipment required to ensure proper
medical care for the sick and injured from the time of injury to the time of final
disposition (which includes medical disposition within a hospital, temporary
medical facility, or special care facility; release from the site; or being declared
dead). Further, EMS specifically includes those services immediately required to
ensure proper medical care and specialized treatment for patients in a hospital
and coordination of related hospital services.
Emergency Operations Center
The protected site from which State and Local civil government officials
coordinate, monitor, and direct emergency response activities during an
emergency.
Emergency Operations Plan
A document that: describes how people and property will be protected in disaster
and disaster threat situations; details who is responsible for carrying out specific
actions; identifies the personnel, equipment, facilities, supplies, and other
resources available for use in the disaster; and outlines how all actions will be
coordinated.
Emergency Support Function
In the NRF, a functional area of response activity established to facilitate the
delivery of Federal assistance required during the immediate response phase of
a disaster to save lives, protect property and public health, and maintain public
safety. ESFs represent those types of Federal assistance that a State will most
likely need because of the impact of a catastrophic or significant disaster on its
own resources and response capabilities, or because of the specialized or
unique nature of the assistance required. ESF missions are designed to
supplement State and Local response efforts.
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Evacuation
Organized, phased, and supervised dispersal of people from dangerous or
potentially dangerous areas.
•
Spontaneous Evacuation. Residents or citizens in the threatened areas
observe an emergency event or receive unofficial word of an actual or
perceived threat and, without receiving instructions to do so, elect to
evacuate the area. Their movement, means, and direction of travel are
unorganized and unsupervised.
•
Voluntary Evacuation. This is a warning to persons within a designated
area that a threat to life and property exists or is likely to exist in the
immediate future. Individuals issued this type of warning or order are
NOT required to evacuate; however, it would be to their advantage to
do so.
•
Mandatory or Directed Evacuation. This is a warning to persons within
the designated area that an imminent threat to life and property exists
and individuals MUST evacuate in accordance with the instructions of
local officials.
Evacuees
All persons removed or moving from areas threatened or struck by a disaster.
Federal Coordinating Officer
The person appointed by the President to coordinate Federal assistance in a
Presidentially declared emergency or major disaster. The FCO is a senior FEMA
official trained, certified, and well experienced in emergency management, and
specifically appointed to coordinate Federal support in the response to and
recovery from emergencies and major disasters.
Field Assessment Team
A small team of pre-identified technical experts who conduct an assessment of
response needs (not a preliminary damage assessment) immediately following a
disaster. The experts are drawn from the Federal Emergency Management
Agency, other agencies and organizations (e.g., U.S. Public Health Service, U.S.
Army Corps of Engineers, U.S. Environmental Protection Agency, and American
Red Cross) and the affected State(s). All FAsT operations are joint Federal/State
efforts.
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Flash Flood
Follows a situation in which rainfall is so intense and severe and runoff is so
rapid that recording the amount of rainfall and relating it to stream stages and
other information cannot be done in time to forecast a flood condition.
Flood
A general and temporary condition of partial or complete inundation of normally
dry land areas from overflow of inland or tidal waters, unusual or rapid
accumulation or runoff of surface waters, or mudslides/mudflows caused by
accumulation of water.
Governor’s Authorized Representative
The person empowered by the Governor to execute, on behalf of the State, all
necessary documents for disaster assistance.
Hazard Mitigation
Any action taken to reduce or eliminate the long-term risk to human life and
property from hazards. The term is sometimes used in a stricter sense to mean
cost-effective measures to reduce the potential for damage to a facility or
facilities from a disaster event.
Hazardous Material
Any substance or material that, when involved in an accident and released in
sufficient quantities, poses a risk to people's health, safety, and/or property.
These substances and materials include explosives, radioactive materials,
flammable liquids or solids, combustible liquids or solids, poisons, oxidizers,
toxins, and corrosive materials.
High-Hazard Areas
Geographic locations that, for planning purposes, have been determined through
historical experience and vulnerability analysis to be likely to experience the
effects of a specific hazard (e.g., hurricane, earthquake, hazardous materials
accident) that would result in a vast amount of property damage and loss of life.
Hurricane
A tropical cyclone, formed in the atmosphere over warm ocean areas, in which
wind speeds reach 74 miles per hour or more and blow in a large spiral around a
relatively calm center or eye. Circulation is counter-clockwise in the Northern
Hemisphere and clockwise in the Southern Hemisphere.
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Incident Command System
A standardized, on-scene, emergency management construct, specifically
designed to provide for the adoption of an integrated organizational structure that
reflects the complexity and demands of single or multiple incidents without being
hindered by jurisdictional boundaries. ICS is the combination of facilities,
equipment, personnel, procedures, and communications operating within a
common organizational structure that is designed to help manage resources
during incidents. It is used for all kinds of emergencies and applicable to both
small and large and complex incidents. ICS is used by various jurisdictions and
functional agencies, both public and private, to organize field-level incident
management operations.
Incident Management Assistance Teams
Interagency teams composed of subject-matter experts and incident
management professionals. IMAT personnel may be drawn from national or
regional Federal department and agency staff according to established protocols.
IMATs make preliminary arrangements to set up Federal field facilities and
initiate establishment of the JFO.
Joint Field Office
The Joint Field Office is the primary Federal incident management field structure.
The JFO is a temporary Federal facility that provides a central location for the
coordination of Federal, State, tribal, and local governments and private-sector
and nongovernmental organizations with primary responsibility for response and
recovery. The JFO structure is organized, staffed, and managed in a manner
consistent with NIMS principles and is led by the Unified Coordination Group.
Although the JFO uses an ICS structure, the JFO does not manage on-scene
operations. Instead, the JFO focuses on providing support to on-scene efforts
and conducting broader support operations that may extend beyond the incident
site.
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 JIC.
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 JIS provides a structure and system for developing and
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delivering coordinated interagency messages; developing, recommending, and
executing public information plans and strategies on behalf of the Incident
Commander (IC); advising the IC about 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
Multiple definitions are used. Each use depends on the context:
•
A range or sphere of authority. Public agencies have jurisdiction at an
incident related to their legal responsibilities and authority.
Jurisdictional 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).
•
A political subdivision (Federal, State, County, Parish, Municipality)
with the responsibility for ensuring public safety, health, and welfare
within its legal authorities and geographic boundaries.
Mass Care
The actions that are taken to protect evacuees and other disaster victims from
the effects of the disaster. Activities include providing temporary shelter, food,
medical care, clothing, and other essential life support needs to the people who
have been displaced from their homes because of a disaster or threatened
disaster.
Multiagency Coordination Systems
Multiagency coordination systems provide the architecture to support
coordination for incident prioritization, critical resource allocation,
communications systems integration, and information coordination. The
components of multiagency coordination systems include facilities, equipment,
personnel, procedures, and communications. Two of the most commonly used
elements are EOCs and MAC Groups. These systems assist agencies and
organizations responding to an incident.
Mitigation
Mitigation is the effort to reduce loss of life and property by lessening the impact
of disasters. This is achieved through risk analysis, which results in information
that provides a foundation for mitigation activities that reduce risk.
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National Incident Management System (NIMS)
Provides a systematic, proactive approach that guides government agencies at
all levels, the private sector, and nongovernmental organizations to work
seamlessly to prepare for, prevent, respond to, recover from, and mitigate the
effects of incidents, regardless of cause, size, location, or complexity, in order to
reduce the loss of life or property and harm to the environment.
National Response Framework
A guide to how the nation conducts all-hazards incident management.
Nongovernmental Organization
An entity with an association that is based on the interests of its members,
individuals, or institutions. It is not created by a government, but it may work
cooperatively with government. Such organizations serve a public purpose and
are not for private benefit. Examples of NGOs include faith-based charity
organizations and the American Red Cross.
Recovery
The long-term activities beyond the initial crisis period and emergency response
phase of disaster operations that focus on returning all systems in the community
to a normal status or to reconstituting these systems to a new condition that is
less vulnerable.
Resource Management
Those actions taken by a government to (a) identify sources and obtain
resources needed to support disaster response activities; (b) coordinate the
supply, allocation, distribution, and delivery of resources so that they arrive
where and when they are most needed; and (c) maintain accountability for the
resources used.
Regional Response Coordination Center (RRCC)
Coordinates Regional response efforts, establishes Federal priorities, and
implements local Federal program support until a Joint Field Office is
established.
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Scenario-Based Planning
Planning approach that uses a Hazard Vulnerability Assessment to assess the
hazard’s impact on an organization on the basis of various threats that the
organization could encounter. These threats (e.g., hurricane, terrorist attack)
become the basis of the scenario.
Senior Official
The elected or appointed official who, by statute, is charged with implementing
and administering laws, ordinances, and regulations for a jurisdiction. He or she
may be a mayor, city manager, etc.
Service Animal
Any guide dog, signal dog, or other animal individually trained to assist an
individual with a disability. Service animals’ jobs include, but are not limited to:
•
Guiding individuals with impaired vision;
•
Alerting individuals with impaired hearing (to intruders or sounds such
as a baby’s cry, the doorbell, and fire alarms);
•
Pulling a wheelchair;
•
Retrieving dropped items;
•
Alerting people to impending seizures; and
•
Assisting people with mobility disabilities with balance or stability.
Special-Needs Population
A population whose members may have additional needs before, during, or after
an incident in one or more of the following functional areas: maintaining
independence, communication, transportation, supervision, and medical care.
Individuals in need of additional response assistance may include those who
have disabilities; live in institutionalized settings; are elderly; are children; are
from diverse cultures, have limited proficiency in English or are non-Englishspeaking;
or are transportation disadvantaged.
Standard Operating Procedure
A set of instructions constituting a directive, covering those features of operations
which lend themselves to a definite, step-by-step process of accomplishment.
SOPs supplement Emergency Operations Plans (EOPs) by detailing and
specifying how tasks assigned in the EOP are to be carried out. SOPs constitute
a complete reference document or an operations manual that provides the
purpose, authorities, duration, and details for the preferred method of performing
a single function or a number of interrelated functions in a uniform manner.
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State Coordinating Officer
The person appointed by the Governor to coordinate State, Commonwealth, or
Territorial response and recovery activities with FRP-related activities of the
Federal Government, in cooperation with the Federal Coordinating Officer.
State Liaison
A Federal Emergency Management Agency official assigned to a particular
State, who handles initial coordination with the State in the early stages of an
emergency.
Storm Surge
A dome of sea water created by the strong winds and low barometric pressure in
a hurricane that causes severe coastal flooding as the hurricane strikes land.
Terrorism
The use or threatened use of criminal violence against civilians or civilian
infrastructure to achieve political ends through fear and intimidation rather than
direct confrontation. Emergency management is typically concerned with the
consequences of terrorist acts directed against large numbers of people (as
opposed to political assassination or hijacking, which may also be considered
terrorism).
Tornado
A local atmospheric storm, generally of short duration, formed by winds rotating
at very high speeds, usually in a counter-clockwise direction. The vortex, up to
several hundred yards wide, is visible to the observer as a whirlpool-like column
of winds rotating about a hollow cavity or funnel. Winds may reach 300 miles per
hour or higher.
Tsunami
Sea waves produced by an undersea earthquake. Such sea waves can reach a
height of 80 feet and can devastate coastal cities and low-lying coastal areas.
Warning
The alerting of emergency response personnel and the public to the threat of
extraordinary danger and the related effects that specific hazards may cause. A
warning issued by the National Weather Service (e.g., severe storm warning,
tornado warning, tropical storm warning) for a defined area indicates that the
particular type of severe weather is imminent in that area.
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Watch
Indication by the National Weather Service that, in a defined area, conditions are
favorable for the specified type of severe weather (e.g., flash flood, severe
thunderstorm, tornado, tropical storm).
LIST OF ACRONYMS
AAR After Action Review
ARC American Red Cross
ARES Amateur Radio Emergency Service
CBRNE Chemical, Biological, Radiological, and/or Nuclear Explosive
CCC Citizen Corps Council
CEM Comprehensive Emergency Management
CEO Chief Executive Officer
CERT Community Emergency Response Team
CFR Code of Federal Regulations
COG Continuity of Government
CONOPS Concept of Operations
COOP Continuity of Operations
CP Command Post
CPG Comprehensive Preparedness Guide
CSEPP Chemical Stockpile Emergency Preparedness Program
DEOC Department Emergency Operations Center
DHS U.S. Department of Homeland Security
DMORT Disaster Mortuary Operational Response Team
DNR Department of Natural Resources
DoD U.S. Department of Defense
DOJ U.S. Department of Justice
DOT U.S. Department of Transportation
EAS Emergency Alert System
ECL Emergency Condition Level
EM Emergency Management
EMAC Emergency Management Assistance Compact
EMAP Emergency Management Accreditation Program
EMS Emergency Medical Services
EOC Emergency Operations Center
EOP Emergency Operations Plan
EPA U.S. Environmental Protection Agency
EPCRA Emergency Planning and Community Right-to-Know Act
EPZ Emergency Planning Zone
ESF Emergency Support Function
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FAA Federal Aviation Administration
FAAT Federal Emergency Management Agency (FEMA) Acronyms,
Abbreviations, and Terms
FAC Family Assistance Center
FBI Federal Bureau of Investigation
FCO Federal Coordinating Officer
FDA Food and Drug Administration
FEMA Federal Emergency Management Agency
FHA Federal Highway Authority
FIA Federal Insurance Administration
FOG Field Operations Guide
GIS Geographic Information System
GPS Global Positioning System
HAZMAT Hazardous material(s)
HAZUS-MH Hazards U.S. Multi-Hazard
HSEEP Homeland Security Exercise and Evaluation Program
HSPD Homeland Security Presidential Directive
IAP Incident Action Plan; Initial Action Plan
IC Incident Commander
ICP Incident Command Post
ICS Incident Command System
IMAT Incident Management Assistance Team
JFO Joint Field Office
JIC Joint Information Center
LEOC Local Emergency Operations Center
LEPC Local Emergency Planning Committee
LL Lessons Learned
MACS Multiagency Coordination System
MOU Memorandum of Understanding
MRC Medical Reserve Corps
NEMA National Emergency Management Association
NFIP National Flood Insurance Program
NFPA National Fire Protection Association
NGO Nongovernmental Organization
NIC National Integration Center
NIMS National Incident Management System
NLT Not Less Than
NPG National Preparedness Guidelines
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NPS National Planning Scenarios
NRC U.S. Nuclear Regulatory Commission
NRF National Response Framework
NTSB National Transportation Safety Board
NWS National Weather Service
OSHA Occupational Safety and Health Administration
PDA Preliminary Damage Assessment
PIO Public Information Officer
RACES Radio Amateur Civil Emergency Services
REPP Radiological Emergency Preparedness Program
RRCC Regional Response Coordination Center
RRP Regional Response Plan
RST Regional Support Team
RTO Recovery Time Objective
SBA Small Business Administration
SCO State Coordinating Officer
SERC State Emergency Response Commission
SLG State and Local Guide
SO Senior Official (elected or appointed)
SOP Standard Operating Procedure
TCL Target Capabilities List
TOPPLEF Training, Organization, Plans, People, Leadership, and Management
TS Tropical storm
UC Unified command
USDA U.S. Department of Agriculture
USGS U.S. Geological Survey
UTL Universal Task List
VOAD Volunteer Organization Active in Disaster
VIPS Volunteers in Police Service
WMD Weapons of Mass Destruction
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APPENDIX C: EMERGENCY
OPERATIONS PLAN (EOP)
COMPONENT NIMS
INTEGRATION ASSESSMENT
The questions below are provided to help State, Local, and Tribal governments
develop Emergency Operations Plans (EOP) that are consistent with the National
Incident Management System (NIMS) concepts and terminology. They are
derived from checklists found in State NIMS Integration and Local and Tribal
NIMS Integration published by the National Integration Center in 2006.
Question 1: Does the EOP define the scope of preparedness and incident
management activities necessary for the jurisdiction?
The EOP should cover all hazards that the jurisdiction could reasonably expect to
occur and all the preparedness and incident management activities necessary to
ensure an effective response to those hazards. Regulatory requirements may
also dictate the hazards and preparedness activities that must be included in the
EOP.
Question 2: Does the EOP describe organizational structures, roles,
responsibilities, policies, and protocols for providing emergency support?
A description of the organizational structure should clearly identify which
organizations will be involved in the emergency response. After each
organization is identified, it should be assigned a specific set of responsibilities,
which are normally based on its strengths and capabilities. The policies and
protocols for providing emergency support should be described in the EOP. This
information is typically described in the administration and logistics section as
well as the authorities and references section of the basic plan.
Question 3: Does the EOP facilitate response and short-term recovery
activities?
An EOP is usually not a mitigation plan and not a recovery plan. The EOP should
describe and provide the basis for a jurisdiction’s response and short-term
recovery operations. The response activities typically take place initially and are
designed to save lives, reduce suffering, and protect property and the
August 2008 INTERIM - Comprehensive Preparedness Guide 101
environment. The short-term recovery activities typically follow the response
activities and are designed to stabilize the situation and set the stage for reentry
and recovery.
Question 4: Is the EOP flexible enough to use in all emergencies?
The EOP should reflect the State, Local, or Tribal jurisdiction’s approach to all
types of emergencies. The functional annexes should provide an outline of roles
and responsibilities of each responding agency regardless of the type of
emergency. In other words, the EOP should be flexible and useful in the event of
any emergency.
Question 5: Does the EOP have a description of its purpose?
The purpose should include a general statement of what the EOP is meant to do.
It should also include a brief summary of the components of the plan, including
the functional annexes and hazard-specific appendices.
Question 6: Does the EOP describe the situation and assumptions?
The situation sets the stage for planning. It should be based on the State, Local,
or Tribal jurisdiction’s hazard identification analysis. The situation section
typically covers a characterization of the population, the probability and impact of
the hazard, vulnerable facilities, and dependencies on resources from other
jurisdictions. The assumptions section should describe those things that are
assumed to be true that directly impact the execution of the EOP. The
assumptions may describe the limitations of the EOP and provide a basis for
improvisation and modification if they become necessary. Assumptions may also
identify potential hazards and describe the nature of those hazards and the
frequency at which they are expected to occur.
Question 7: Does the EOP describe the concept of operations?
The CONOPS will capture the sequence and scope of the planned response and
explain the overall approach to the emergency situation. The CONOPS should
cover the division of responsibilities, sequence of actions (before, during, and
after the incident), the manner in which requests for resources will be met, and
the person and circumstances under which requests for additional aid from the
State will be made (this section should include the process for declaring a state
of emergency). The CONOPS should mention direction and control, alert and
warning, and other activities. This information is usually outlined in the Basic Plan
and fully detailed in the Functional and Hazard-Specific Annexes and
Appendices.
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Question 8: Does the EOP describe the organization and assignment of
responsibilities?
The organization and assignment of responsibilities should establish which
organizations will be relied on to respond to the emergency. The EOP should
describe the tasks each element of the organization is responsible for and
expected to perform. The description of these responsibilities is typically generic
in the Basic Plan and more detailed in Functional and Hazard-Specific Annexes
and Appendices. The Basic Plan typically contains a matrix that plots response
functions by agency and allows for a quick clarification of the assignment of
primary and support responsibilities.
Question 9: Does the EOP describe administration and logistics?
The EOP has a section that covers general support requirements and availability
of support services from other agencies. It should also contain general policies
for managing resources. This section of the EOP should also reference Mutual
Aid Agreements, liability provisions, and policies for reassigning public
employees and soliciting and using volunteers. It is also important to include
general policies on financial record keeping, tracking of resources, and
compensation of private property owners.
Question 10: Does the EOP contain a section that covers its development
and maintenance?
The EOP should include a section describing the overall approach to planning,
the participants included in the planning process, and the way in which the plan
will be maintained and updated. One individual should be assigned to coordinate
these processes and provisions and to address regular reviews, testing, and
revisions. This information is typically found in the plan development and
maintenance section.
Question 11: Does the EOP contain authorities and references?
The EOP should list references to any laws, statutes, ordinances, executive
orders, regulations, and formal agreements relevant to the emergencies. These
will indicate the legal basis for emergency operations and should specify the
extent and limits of emergency authorities. This information is typically found in
the authorities and reference section.
Question 12: Does the EOP contain Functional Annexes?
Functional Annexes are the part of the EOP that begin to provide specific
information and direction. Functional Annexes should cover activities to be
performed by anyone with a responsibility under that function. Functional
Annexes also clearly define actions before, during, and after an emergency
August 2008 INTERIM - Comprehensive Preparedness Guide 101
event. Some examples of Functional Annex titles are Communications, Mass
Care, and Health and Medical Services.
Question 13: Does the EOP contain Hazard-Specific Appendices?
Hazard-Specific Appendices are supplements to Functional Annexes. Whereas
planning considerations common to all hazards are addressed in Functional
Annexes, hazard-specific information is included in the appendices. The
appendices should be created for any Functional Annex that does not provide
enough hazard-specific information to respond to a specific type of emergency.
In many cases, the EOP contains Hazard-Specific Annexes that follow a format
similar to that of the Basic Plan. An EOP is considered compliant whether or not
it contains Hazard-Specific Appendices or Annexes.
Question 14: Does the EOP contain a glossary?
Since many terms in emergency management have special meanings, it is
important to define words, phrases, abbreviations, and acronyms. This
information is typically described in the glossary section. In order to be fully
compliant with this standard, an EOP must consistently use NIMS definitions and
acronyms as they apply throughout the EOP.
Question 15: Does the EOP predesignate functional area representatives to
the EOC/Multiagency Coordination System (MACS)?
This information is typically described in Functional or Hazard-Specific Annexes
and is more detailed than the information in the Basic Plan. NIMS doctrine states
that all incidents use the Incident Command System (ICS) to establish command
and control for the response at the scene of an incident. Most incidents are
managed locally, and the EOP is the guide on how the local response to an
incident will be handled. Therefore, it is appropriate that the jurisdiction set up
and utilize an EOC or a MACS, depending on the size and complexity of the
incident. The EOP should predesignate which organization is assigned which
responsibilities, and that organization should provide representatives to the EOC
or MACS that is being utilized. In some cases, a State, Tribal, or Local agency is
the lead for a particular hazard that requires that agency to take control of an
incident scene. These designations are normally established by laws,
regulations, executive orders, or policies. The designated agency should have
trained personnel in place to set up an ICS structure at the scene and to provide
the incident commander for that incident. If an agency is requested to send a
representative to the scene, that representative should be folded in to the unified
command of the incident. If agency-specific designations apply to a jurisdiction,
they should be indicated in the EOP.
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Question 16: Does the EOP include preincident and postincident public
awareness, education, and communications plans and protocols?
The EOP should describe the public awareness and education plans and
protocols that are provided to the community. Public awareness and education
plans and protocols provide valuable information to citizens on potential hazards,
protective action options to address those hazards, and how people will be
alerted and notified if they are at risk. How this information will be communicated
to the public before and after incidents occur should be described in the EOP.
This information is typically located in the emergency public warning annex.
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APPENDIX D: EOP
DEVELOPMENT GUIDE
BASIC PLAN
This component provides an overview of the jurisdiction’s emergency
management/response program and its ability to prepare for, respond to, and
recover from disasters/emergencies.
TABLE OF CONTENTS
This item outlines the plan’s format, key sections, attachments, charts, etc.
.
List/identify the major sections/chapters and/or key elements within
the EOP.
PROMULGATION STATEMENT
This component is a signed statement formally recognizing and adopting the plan
as the jurisdiction’s all-hazards EOP.
.
Include a Promulgation Statement signed by the jurisdiction’s senior
elected or appointed official(s). (Note: This statement must be
updated each time a new senior elected or appointed official takes
office.)
INTRODUCTION
This section explains the plan’s intent, whom it involves, and why it was
developed.
.
Describe the purpose for developing and maintaining an EOP
(e.g., coordinate local agency SOPs, define disaster-specific
procedures, outline roles and limitations).
.
Describe at what times or under what conditions this plan would be
activated (e.g., major county disaster versus minor local emergency,
major state-wide disaster, terrorist attack within the local community,
County, or State).
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.
Describe who has the authority to activate the plan (e.g., EMA office,
Chief Elected Official, State Official, Fire/Police Chief, etc.).
.
Describe the process, templates, and individuals involved in issuing a
declaration of emergency for a given hazard and how the declaration
will be coordinated with neighboring jurisdictions and the State.
.
Describe how legal questions/issues are resolved as a result of
preparedness, response, or recovery actions, including what liability
protection is available to responders.
.
Describe the process by which the EMA office coordinates with all
agencies, boards, or divisions having emergency management
functions within the jurisdiction.
.
Describe how emergency plans take into account special needs
populations and service or working animals.
.
Describe how emergency plans take into account companion and
farm animal care.
.
Identify other response/support agency plans that directly support the
implementation of this plan (e.g., hospital, school emergency, facility
plans).
.
Define the four phases of emergency management (Mitigation,
Preparedness, Response, and Recovery) and describe how the
jurisdiction uses them to develop the plan and local procedures.
.
Identify/define the words, phrases, acronyms, and abbreviations that
have special meanings with regard to emergency management and
are used repeatedly in the plan.
.
Identify/describe the Local, State, and Federal laws that specifically
apply to the development and implementation of this plan, including
but not limited to the following:
•
Local and Regional ordinances and statutes
•
State laws or revised code sections that apply to emergency
management and homeland security
•
State administrative code sections that define roles,
responsibilities, and operational procedures
•
State Attorney General opinions
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•
Federal regulations and standards (e.g., Stafford Act, FEMA
Policy, Patriot Act, National Fire Protection Association [NFPA]
1600)
.
Identify/describe the reference manuals used to develop the plan
and/or help prepare for and respond to disasters or emergencies,
including but not limited to the following:
•
General planning tools
•
Technical references
•
Computer software
ASSIGNMENT OF ROLES AND RESPONSIBILITIES
This section provides an overview of the key functions and procedures that State
or Local agencies will accomplish during an emergency, including the roles
Local, State, Federal, Tribal, and private agencies will take to support local
operations.
.
Identify/outline the responsibilities assigned to each organization that
have an emergency response and/or recovery procedure defined in the
plan, including but not limited to the following:
•
Local response agencies (Fire, Law Enforcement, EMS) and
support agencies (e.g., Health, EMA, Medical Care Facilities
and Organizations, Coroner, Engineer)
•
Local senior elected or appointed officials (e.g., Governor,
Mayor, Commissioner, Administrative Judge, Council, Executive
Director)
•
State agencies most often and/or likely to be used to support
Local operations (e.g., Department of Transportation, State
Police/Highway Patrol, Department of Natural Resources [DNR],
Environmental Protection/Quality, Emergency Management,
Homeland Security, Department of Health/Public Health, and
National Guard).
•
Regional organizations or groups most often and/or likely to be
used to support Local operations.
•
Federal agencies most often and/or likely to be used to support
Local operations (e.g., FEMA, USCG, U.S. Department of
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Justice [DOJ], FBI, Federal Aviation Administration [FAA],
National Safety Transportation Board [NTSB], DoD, DOT)
• Government-sponsored volunteer resources (e.g., Community
Emergency Response Teams [CERTs], Medical Reserve Corps
[MRC], Volunteers in Police Service [VIPS] or Auxiliary Police).
•
Private and volunteer organizations (e.g., American Red Cross,
Salvation Army, faith-based groups, VOAD, Chamber of
Commerce, Community Action Commission, private sector
support)
.
Describe how roles and responsibilities will be determined for
unaffiliated volunteers and how these individuals will be incorporated
into the response organization.
.
Describe/identify what Mutual Aid Agreements are in place for the
quick activation and sharing of resources during an emergency.
Examples of agreements that may exist include the following:
•
Agreements between response groups (e.g., fire and police,
emergency medical/ambulance)
•
Agreements for additional resources/assistance between
neighboring jurisdictions’ response forces (e.g., fire, police,
EMS)
•
Agreements for providing and receiving additional resources
through the Emergency Management Assistance Compact
(EMAC)
•
Agreements for alert and notification and dissemination of
emergency public information
• Resource agreements (e.g., outside assistance, personnel,
equipment)
•
Agreements between medical facilities inside and outside the
jurisdiction (e.g., for using facilities, accepting patients)
•
Evacuation agreements (e.g., use of buildings, restaurants,
homes as shelters/lodging, relocation centers; transportation
support), including agreements between jurisdictions for the
acceptance of evacuees
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Note: Actual Mutual Aid Agreements should not be included in
the plan in their entirety. The EOP should only identify that the
agreement exists and briefly summarize who is covered by the
agreement, what goods or services are covered, and what
limitations apply, if any.
Note: Mutual aid may also be addressed separately in each
section of the EOP if the jurisdiction believes that such
placement will help to better explain how that mutual aid directly
supports a specific procedure.
.
Describe how the jurisdiction maintains a current list of available
National Incident Management System (NIMS) Typed Resources and
Credentialed Personnel.
.
Describe how all tasked organizations maintain current notification
rosters, SOPs, and checklists to carry out their assigned tasks.
.
Provide a matrix that summarizes which tasked organizations have the
primary lead versus a secondary support role for each defined
response function.
.
Describe the jurisdiction’s policies regarding public safety enforcement
actions required to maintain the public order during a crisis response,
including teams of enforcement officers needed to handle persons who
are disrupting the public order, violating laws, requiring quarantine, etc.
CONTINUITY OF GOVERNMENT/OPERATIONS
The jurisdiction needs to have a process in place to ensure vital government
functions can be implemented and managed immediately following a disaster.
Note: COG/ Continuity of Operations (COOP) may have a separate plan from the
EOP. If a separate COG/COOP plan is used, it should be identified in the EOP.
.
Describe essential functions, such as providing vital services,
exercising civil authority, maintaining the safety and well-being of the
populace, and sustaining the industrial/economic base in an
emergency.
.
Describe plans for establishing Recovery Time Objectives (RTOs) or
recovery priorities for each essential function.
.
Identify personnel and/or teams needed to perform essential functions.
.
Describe key elements for establishing orders of succession.
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.
Describe plans for human resource management.
.
Describe the arrangements in place that support decision making with
regard to implementing response and recovery functions
(e.g., resolutions that allow the County Administrator to act on behalf of
the Commissioners to suspend normal bidding regulations for
purchasing equipment or establishing contracts).
.
Describe the arrangements in place to protect records deemed
essential for government functions (e.g., tax records,
birth/death/marriage certificates, payroll and accounting data).
.
Describe the processes that will be used to identify the critical and
time-sensitive applications, processes, and functions that need to be
recovered and continued following an emergency or disaster
(e.g., business impact analysis, business continuity management, vital
records preservation, alternate operating facilities) as well as the
personnel and procedures necessary to do so.
.
Predetermine delegations of authority
.
Identify continuity/alternate facilities
.
Identify continuity communications
.
Identify and protect vital records
.
Develop test, training, and exercise (TT&E)
.
Develop devolution of control and direction
.
Develop evaluations, after action reports, and lesson learned
.
Develop corrective action plans
PLAN MAINTENANCE
This section describes the process used to regularly review and update the EOP.
.
Describe how this plan was coordinated with the EOPs from
adjoining/intra-State Regional jurisdictions to include Local political
subdivisions that develop their own EOPs in accordance with State
statute.
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.
Describe the process used to review and revise the plan each year or
– if changes in the jurisdiction warrant (e.g., changes in administration
or procedures, newly added resources/training, revised phone contacts
or numbers) – more often.
.
Describe the responsibility of each organization/agency (governmental
and NGO) to review and submit changes to its respective portion(s) of
the plan.
.
Identify/summarize to whom the plan is distributed, including whether it
is shared with other jurisdictions. Include a plan distribution list.
Note: This list can be maintained as a Tab to the plan.
.
Describe/identify how or where the plan is made available to the public.
.
Summarize the process used to submit the plan for review,
coordination, and/or evaluation by other jurisdictions/organizations.
.
Include a page to document when the changes are received and
entered into the plan.
PREPAREDNESS OVERVIEW
This section provides a brief overview of the steps taken by the jurisdiction to
prepare for disasters.
HAZARD ANALYSIS
This section summarizes the major findings identified from a completed Hazard
Analysis of each hazard likely to impact the jurisdiction. Note: The Hazard
Analysis information can be presented as a Tab to the EOP or maintained as a
part of the Local Mitigation Plan. In either case, this section needs to provide an
overview of the analysis process and its results and then refer to the Tab or the
Mitigation Plan.
.
Summarize/identify the hazards that pose a unique risk to the
jurisdiction and would create the need to activate this plan
(e.g., threatened or actual natural disasters, acts of terrorism, or other
man-made disasters).
.
Summarize/identify the probable high-risk areas (population,
infrastructure, and environmental) that are likely to be impacted by the
defined hazards (e.g., special needs facilities, wildlife refuges,
types/numbers of homes/businesses in floodplains, areas around
chemical facilities).
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.
Summarize/identify the likelihood that the defined hazards have and
will continue to occur within the jurisdiction (e.g., historical frequency,
probable future risk, national security threat assessments).
.
Describe how the intelligence community’s (State/Local fusion centers,
joint terrorism task forces, national intelligence organizations) threat
analyses have been incorporated into the jurisdiction’s Hazard
Analysis.
.
Describe how agricultural; food supply; cyber security; chemical,
biological, radiological, and nuclear explosive (CBRNE) events; and
pandemics (those located/originating in the jurisdiction as well as a
nonlocal, nationwide, or global event) have been assessed and
incorporated into the jurisdiction’s Hazard Analysis.
.
Describe the assumptions made and the methods used to complete
the jurisdiction’s Hazard Analysis, including what tools or
methodologies were used to complete the analyses (e.g., a State’s
Hazard Analysis and Risk Assessment Manual, Mitigation Plan
guidance, vulnerability assessment criteria, consequence analysis
criteria).
.
Include maps that show the high-risk areas that are likely to be
impacted by the identified hazards (e.g., residential/commercial areas
within defined floodplains, earthquake fault zones, vulnerable zones for
hazardous materials facilities/routes, areas within ingestion zones for
nuclear power plants, critical infrastructure).
.
Describe/identify the hazards that could originate in a neighboring
jurisdiction and could create hazardous conditions in this jurisdiction
(e.g., watershed runoff, chemical incident, riot/terrorist act).
.
Describe/identify the unique time variables that may influence the
Hazard Analysis and preplanning for the emergency (e.g., rush hours,
annual festivals, seasonal events, how quickly the event occurs, the
time of day that the event occurs).
CAPABILITY ASSESSMENT
This process is used by the jurisdiction to determine its capabilities and limits in
order to prepare for and respond to the defined hazards. Note: The jurisdiction
may wish to address this topic as part of the hazard-specific sections. This
decision would allow the jurisdiction to address the unique readiness issues and
limitations for each specific hazard. In this case, this section should provide an
overview of the jurisdiction’s abilities and then refer the reader to the hazard-
specific sections for more detailed information.
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.
Summarize the jurisdiction’s ability to respond to and recover from a
disaster caused by the defined hazards.
.
Describe the jurisdiction’s limitations to responding to and recovering
from a disaster on the basis of training, equipment, or personnel.
.
Describe the methods used and agencies involved in a formal
capability assessment, including a description of how often this
assessment is conducted.
.
Describe methods used and NGOs (business, not-for-profit,
community, and faith based) involved in formal community capability
assessment, including a description of how often this assessment is
conducted.
MITIGATION PROGRAM
This section covers the actions taken in advance to minimize the impact that is
likely to result from an emergency, including short and long-term strategies.
Note: Specific Mitigation Plans/guidance documents may be available from State
EMAs, FEMA, or DHS.
.
Provide a brief overview of the mitigation programs used locally to
reduce the chance that a defined hazard will impact the community
(e.g., move homes/businesses out of floodplain, establish and enforce
zoning/building codes, install surveillance cameras, conduct cargo
surveillance and screening), including short- and long-term strategies.
.
Identify potential protection, prevention, and mitigation strategies for
high-risk targets.
.
Describe the procedures used to develop sector-specific protection
plans, including critical infrastructure systems and facilities, port
security, transportation security, food chain, food and medical
production/supply, and cyber security.
.
Describe the procedures used to educate and involve the public in the
mitigation programs (e.g., building safe rooms/homes, home
relocation, streambed cleaning).
.
Describe the process and agencies used to develop Mitigation Plans
and how these are coordinated with Local, State, Tribal, and Federal
agencies/plans.
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LOGISTICS/RESOURCE MANAGEMENT
This mechanism is used to identify and acquire resources in advance of a
disaster, especially to overcome gaps possibly identified in a capability
assessment.
.
Describe/identify the procedures and agencies involved in using the
existing hazard analysis and capability assessment to identify what
resources are needed for a response to a defined hazard, including
using past incident critiques to identify/procure additional resources.
.
Describe/identify the steps taken to overcome the jurisdiction’s
identified resource shortfalls, including identifying the resources that
are only available outside the jurisdiction (e.g., HAZMAT, Water
Rescue, Search and Rescue teams, CBRNE) and the procedures to
request those resources.
.
Provide a brief summary statement about specialized equipment,
facilities, personnel, and emergency response organizations currently
available to respond to the defined hazards. Note: A Tab to the plan or
a separate Resource Manual should be used to list the types of
resources available, amounts on hand, locations maintained, and any
restrictions on use.
.
Describe the process used to identify private agencies/contractors that
will support resource management issues (e.g., waste haulers, spill
contractors, landfill operators). Identify existing Memorandums of
Agreement or Understanding and contingency contracts with these
organizations.
.
Describe the process used to identify, deploy, utilize, support, dismiss,
and demobilize affiliated and spontaneous unaffiliated volunteers.
.
Describe plans, procedures, and protocols for resource management
in accordance with the NIMS Resource Typing, and include pre-
positioning of resources to efficiently and effectively respond to an
event.
.
Describe the process used to manage unsolicited donations.
.
Describe plans for establishing logistic staging areas for internal and
external response personnel, equipment, and supplies.
.
Describe plans for establishing points of distribution across the
jurisdiction.
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.
Describe plans for providing support for a larger, Regional incident.
.
Describe strategies for transporting materials through restricted areas,
quarantine lines, law enforcement checkpoints, and so forth that are
agreed upon by all affected parties.
DOCUMENTATION
This process is used by a jurisdiction to document the response to and recovery
from a disaster. Note: This information can also be discussed for each
emergency response function or for the specific hazards.
.
Describe the process and agencies used to document the actions
taken during and after the emergency (e.g., incident and damage
assessment, incident command logs, cost recovery).
.
Describe/summarize the reasons for documenting the actions taken
during both the response and recovery phases of the disaster
(e.g., create historical records, recover costs, address insurance
needs, develop mitigation strategies).
.
Include copies of the reports that are required (e.g., cost recovery,
damage assessment, incident critique, historical record).
.
Describe the agencies and procedures used to create a permanent
historical record of the event (After-Action Report) and include
identifying the actions taken, resources expended, economic and
human impacts, and lessons learned as a result of the disaster.
CRITIQUE
This section describes the method used by the jurisdiction to review and discuss
the response in order to identify strengths and weaknesses in the emergency
management and response program.
.
Describe the reasons and need to conduct an incident critique
(e.g., review actions taken, identify equipment shortcomings, improve
operational readiness, highlight strengths/initiatives).
.
Describe the methods and agencies used to organize and conduct a
critique of the disaster, including how recommendations are
documented to improve local readiness (e.g., change
plans/procedures, acquire new or replace outdated resources, retrain
personnel).
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.
Describe the links and connections between the processes used to
critique the response to an emergency/disaster and the processes
used to document recommendations for the jurisdiction’s exercise
program.
.
Describe how the jurisdiction ensures the deficiencies and
recommendations identified during a critique are
corrected/completed.
COST RECOVERY/REIMBURSEMENT
These are procedures used to recover the costs incurred during the response to
a disaster.
.
Describe/identify the various programs that allow Local political
jurisdictions and their response/support agencies to recover their
costs (e.g., Small Business Administration [SBA], Public Assistance
Program).
.
Describe the procedures agencies follow to document the
extraordinary costs incurred during response and recovery operations
(e.g., personnel overtime, equipment used/expended, contracts
initiated).
.
Describe/identify the programs and how the jurisdiction assists the
general public to recover their costs and begin rebuilding (e.g., SBA,
unemployment, worker’s compensation).
.
Describe the methods used to educate responders and Local officials
about the cost recovery process.
.
Describe the impact and role that insurance has in recovering costs
(e.g., self-insured, participation in the National Flood Insurance
Program [NFIP], homeowner policies).
TRAINING PROGRAM
This process is used by the jurisdiction to provide or develop training programs
and other types of educational programs for emergency responders, medical
personnel, and Local government officials.
.
Describe the jurisdiction’s preparedness planning and review cycle
program that encompasses planning, training, exercising, evaluation,
and the incorporation of after action reviews (AARs) and lessons
learned (LL).
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EXERCISE PROGRAM
Various agencies use different methods and schedules to conduct and evaluate
an exercise of the plan.
.
Describe how the jurisdiction’s annual Exercise and Training Plan
Workshop is used to establish periodical tests of its EOP. Describe
how frequently plans for each phase of emergency management
(preparedness, protection, response, recovery, and mitigation) are
exercised.
FUNCTIONAL, SUPPORT, AGENCY-FOCUSED ANNEXES
RESPONSE OPERATIONS
This section contains the methods and procedures to be followed by first
responders and government agencies to respond to an emergency and to protect
the public and environment from the immediate impacts of the disaster.
INITIAL NOTIFICATION
This process is used to recognize that an emergency has occurred and then to
notify the proper agencies to respond to the emergency.
.
Describe/identify the procedures and agencies used to receive and
document the initial notification that an emergency has occurred.
.
Describe/identify plans, procedures, and polices for coordinating,
managing, and disseminating notifications effectively to alert/dispatch
response and support agencies (e.g., 911 Centers, individual
Fire/Police dispatch offices, call trees) under all hazards and
conditions.
.
Describe/identify the procedures and agencies used to notify and
coordinate with adjacent jurisdiction(s) about a local emergency that
may pose a risk (e.g., flash flood, chemical release, terrorist act).
.
Describe the use of Emergency Condition/Action Levels in the initial
notification process (e.g., Snow emergency levels 1–3, Chemical levels
1–3, Crisis Stages 1–4).
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INCIDENT ASSESSMENT
These are procedures followed by those who arrive on the scene first and identify
the risks posed by the disaster. This assessment is used to develop a response
action plan.
.
Describe the procedures used by first response agencies to gather
essential information and assess the immediate risks posed by the
disaster.
.
Describe how the initial assessment is disseminated/shared in order to
make protective action decisions and establish response priorities,
including the need to declare a state of emergency.
.
Describe/identify the procedures and agencies used to monitor the
movement and future effects that may be created by the disaster.
INCIDENT COMMAND
This process is used by the jurisdiction to implement an Incident Command
System (ICS) and manage the response operations during the disaster.
Note: This may also be referred to as an Incident Management System or
Unified Command System.
.
Describe/identify who is in charge and has the overall responsibility to
coordinate response operations (e.g., Fire for chemical, Police for riot,
Mayor for natural hazard), including how they will share command
should the incident cross multiple jurisdictional boundaries.
.
Describe the procedures used to implement a NIMS-compliant ICS and
coordinate response operations, including identifying the key positions
used to staff the ICS (e.g., Operations, Agency Liaisons, Safety) and
using NIMS forms.
.
Describe how/where an Incident Command Post (ICP) will be
established (e.g., chief’s car, command bus, nearest enclosed
structure) and how it will be identified during the emergency
(e.g., green light, flag, radio call).
.
Describe the process used to coordinate activities between the ICP
and an activated EOC, including how/when an IC can request the
activation of an EOC.
.
Describe the procedures used to coordinate direct communications
between the on-scene responders as well as with the off-scene
agencies that have a response role (e.g., Hospital, ARC, Health).
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.
Describe the process the IC will use to secure additional
resources/support when local assets are exhausted or become limited,
including planned State, Federal, and private assets.
.
Describe the process the IC will use to coordinate and integrate the
unplanned arrival of individual citizens and volunteer groups into the
response system and to clarify their limits on liability protection.
EMERGENCY OPERATIONS CENTER (EOC)
The jurisdiction has a process for activating and utilizing an EOC to support and
coordinate response operations during the disaster. Note: EOC procedures may
be addressed in an SOP. If a separate SOP is used, it should be identified in the
EOP.
.
Describe the purpose and functions of an EOC during an emergency
or declared disaster.
.
Describe/identify under what conditions the jurisdiction will activate an
EOC and who makes this determination.
.
Identify the primary and alternate sites that will likely be used as an
EOC for the jurisdiction (e.g., city hall, fire department, EMA office,
dedicated facility).
.
Describe the process used to activate the primary or an alternate EOC
(e.g., staff notification, equipment setup), including the procedures
needed to move from one EOC to another.
.
Identify who’s in charge of the EOC (e.g., EMA Director, Chief Elected
Official, Fire/Police Chief, Department/Agency Director), and describe
how operations will be managed in the EOC.
.
Describe/identify the EOC staff and equipment requirements
necessary for an EOC (e.g., first response liaisons, elected officials,
support agencies, communications, administrative support).
.
Describe/identify the procedures used to gather and share pertinent
information between the scene, outside agencies, and the EOC
(e.g., damage observations, response priorities, resource needs),
including sharing information between neighboring and State EOCs.
.
Describe the EOC’s abilities to manage an emergency response that
lasts longer than 24 hours (e.g., staffing needs, shift changes, resource
needs, feeding, alternate power).
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.
Describe the plans and procedures to transition from response to
recovery operations.
.
Describe the process used to deactivate/close the EOC (e.g., staff
releases, equipment cleanup, documentation).
.
Identify the lead official and at least two alternates responsible for
staffing each key position at the primary EOC, as well as the alternates
if different that is consistent with NIMS.
.
Describe procedures for routinely briefing senior elected officials not
present in the EOC on the emergency situation (e.g., governor,
commissioner, administrative judge, mayor, city council, trustees) and
for authorizing emergency actions (e.g., declare an emergency,
request State and Federal assistance, purchase resources).
.
Provide a diagram of the primary and alternate EOCs (e.g., locations,
floor plans, displays) and describe/identify the critical communications
equipment available/needed (e.g., phone numbers, radio frequencies,
faxes).
.
Provide copies of specific NIMS-compliant forms or logs to be used by
EOC personnel.
COMMUNICATIONS
This system should provide for reliable and effective communications among
responders and Local Government agencies during an emergency.
.
Describe/identify the procedures and personnel used to manage
communications between the on-scene personnel/agencies (e.g., radio
frequencies/tactical channels, cell phones, data links, Command Post
(CP) Liaisons, communications vehicle/van) in order to establish and
maintain a common operating picture of the event.
.
Describe/identify the procedures and agencies used to identify and
overcome communications shortfalls (e.g., personnel with incompatible
equipment, use of ARES/RACES at the CP/off-site locations, CB
radios).
.
Describe/identify the procedures and personnel used to manage
communications between the on-scene and off-site
personnel/agencies (e.g., shelters, hospitals, EMA).
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Describe the procedures used by 911/Dispatch Centers to
support/coordinate communications for the on-scene
personnel/agencies, including alternate methods of service if
911/Dispatch is out of operation (e.g., resource mobilization,
documentation, backup).
.
Describe the arrangements that exist to protect emergency circuits with
telecommunications service priority for prompt restoration/provisioning.
.
Describe/identify the procedures used by an EOC to support and
coordinate communications between the on- and off-scene personnel
and agencies.
.
Describe/identify the interoperable communications plan and
compatible frequencies used by agencies during a response (e.g., who
can talk to whom, including contiguous Local, State, and private
agencies).
.
Describe how 24-hour communications are provided and maintained.
DISASTER INTELLIGENCE
.
Identify disaster intelligence position requirements for the EOC’s
planning section.
.
Describe plans for coordination between the planning section and the
jurisdiction’s fusion center.
.
Describe information dissemination methods (verbal, electronic,
graphics, etc.) and protocols.
.
Describe critical information needs and collection priorities.
.
Describe long-term disaster intelligence strategies.
INCIDENT SCENE OPERATIONS
These procedures are used by a jurisdiction’s personnel to implement the
immediate life safety procedures and to stabilize the actual scene of the
emergency so that recovery operations can proceed.
.
Describe/identify the procedures to be followed by Fire personnel to
contain and stabilize a disaster (e.g., fire suppression, victim rescue,
victim and equipment decontamination, equipment staging).
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Describe/identify the procedures to be followed by Law Enforcement
personnel to contain and stabilize a disaster (e.g., crowd control,
hostage negotiation, evacuation of areas, collection of evidence).
.
Describe/identify the procedures to be followed by personnel to
implement specific Search-and-Rescue operations (e.g., confined
space, heavy equipment, river rescue, dive teams).
.
Describe/identify the procedures of the jurisdiction’s support agencies
to assist in the stabilization of the actual disaster site (e.g., public
works to support heavy equipment rescue needs, engineer’s office to
control or provide access to/from the immediate area).
.
Describe/identify how the jurisdiction will arrange and integrate outside
response/support efforts when local abilities are limited or exhausted
(e.g., Mutual Aid, and private, State, and Federal assets).
.
Describe/identify how the jurisdiction will provide food, shelter, and
alternate water supplies needed to support personnel conducting
Incident Scene Operations.
.
Describe/identify the functions of and the procedures used to establish
formal exclusion zones to protect the public (e.g., hot or evacuation
area, and warm or safety/buffer zones).
RESPONSE PERSONNEL SAFETY
These procedures are employed on-scene to ensure responder safety.
.
Describe the purpose of appointing a Safety Officer and the
procedures the Officer will use to manage the safety of on-scene
personnel (e.g., brief personnel on existing hazards, halt operations
that are unsafe).
.
Describe the procedures and agencies used to recognize and provide
rest/rehabilitation for responders (e.g., heat stress, fluid retention,
mental fatigue, backup personnel).
.
Describe/identify the procedures and personnel used to establish an
accountability system for on-scene personnel who are operating
in/around the immediate hazard area.
.
Describe/identify the safety procedures in place to operate within a
defined exclusion zone (e.g., hot or evacuation area, and warm or
safety/buffer zone), including accounting for personnel as they enter
and leave the hazard zones.
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Describe the jurisdiction’s procedures to set up and/or provide
decontamination at the scene of any emergency (e.g., contamination
by floodwaters or other infectious hazard). Note: This topic may be
addressed in the separate hazard-specific sections.
.
Describe/identify plans, procedures, and protocols to protect fatality
management personnel from infectious diseases, environmental,
radiological, chemical, and other hazards when handling remains.
.
Describe the procedures and agencies used to provide mental health
support to responders during and after an incident (also known as
critical incident stress debriefings).
EMERGENCY FUNCTIONS
.
MEDICAL/VICTIM CARE/MASS CASUALTY/MASS FATALITY
These procedures are used to provide immediate medical assistance to those
directly impacted by the emergency.
.
Describe/identify the procedures to be followed by emergency medical
personnel to contain and stabilize a disaster (e.g., set up triage,
provide initial treatment, conduct/coordinate transport).
.
Describe/identify the procedures to be followed for tracking patients
from the incident scene through their courses of care.
.
Describe how emergency system patient transport and tracking
systems are interoperable with national and DoD systems.
.
Describe/identify the procedures used to coordinate with private
agencies to support on-scene medical operations (e.g., air ambulance,
private EMS), including the process of staging and integrating those
assets at the scene.
.
Describe/identify the agencies and unique procedures used to manage
on-scene functions of mass casualty/fatality events (e.g., identification
of bodies, expansion of mortuary services, notification of next-of-kin).
.
Describe/identify the process for using hospitals, nursing homes,
and/or other facilities as emergency treatment centers or as mass
casualty collection points.
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Describe/identify the process for identifying shortfalls in medical
supplies (e.g., backboards, medicines) and then acquiring those
additional resources either locally or from external sources.
.
Describe/identify the procedures that hospitals, within or outside of the
jurisdiction, will use to assist medical operations with on-scene
personnel (e.g., prioritize patient arrival, divert patients to other sites
when full/less capable, conduct decontamination, provide triage team
support).
.
Describe the procedures the Coroner will implement during a disaster
(e.g., victim identification, morgue expansion, mortuary services,
Disaster Mortuary Operational Response Team [DMORT] activation)
and how they will be coordinated with responders (e.g., EMS officer,
ICP/EOC, local hospitals).
.
Describe plans for recovering human remains, transferring them to the
mortuary facility, establishing a Family Assistance Center (FAC),
assisting with personal effects recovery, conducting autopsies,
identifying victims, and returning remains to the victims’ families for
final disposition.
.
Describe the procedures that health department personnel will follow to
support on-scene medical and local hospitals in obtaining additional
resources when local supplies are likely to be exhausted.
PUBLIC WARNING/EMERGENCY PUBLIC INFORMATION
This system provides reliable, timely, and effective information/warnings to the
public at the onset and throughout a disaster.
.
Describe/identify the procedures and agencies used to
initiate/disseminate the initial notification that a disaster or threat is
imminent or has occurred (e.g., EAS activation, door-to-door, sirens,
cable/TV messages).
.
Describe/identify the procedures and agencies used to provide
continuous and accessible public information about the disaster
(e.g., media briefings, press releases, cable interruptions, EAS),
secondary effects, and recovery activities.
.
Describe/identify the procedures and agencies used to ensure that
information provided by all sources includes the necessary content to
enable reviewers to determine its authenticity and potential validity.
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Describe/identify plans, procedures, programs, and systems to control
rumors by correcting misinformation rapidly.
.
Describe the procedures and agencies used to alert and inform
special-needs populations in the workplace, public venues, and in their
homes.
.
Describe the role of a public information officer (PIO) and describe the
procedures this person will use to coordinate public information
releases (e.g., working with media at the scene, using a Joint
Information Center [JIC], coordinating information among
agencies/elected officials).
.
Describe how responders/local officials will use and work with the
media during an emergency (e.g., schedule press briefings, establish
media centers on-scene, control access to the scene, responders,
victims).
.
Describe the use of Emergency Condition Levels (ECLs) in the public
notification process (e.g., snow emergencies, HAZMAT incidents,
nuclear power plant events).
.
Include prepared public instructions and/or prescripted EAS messages
for identified hazards, including materials for managers of congregate
care facilities, such as childcare centers, group homes, assisted living
centers, and nursing homes.
.
Describe the procedures and agencies used to manage rumor control
on- and off-scene (e.g., monitoring AM/FM radio and television
broadcasts).
.
List the local media contacts and identify their abilities to provide
warnings.
POPULATION PROTECTION
These procedures are followed to implement and support protective actions by
the public and coordinate an evacuation.
.
Describe the jurisdiction’s plans, procedures, and protocols to
coordinate evacuations and sheltering-in-place.
.
Describe the protocols and criteria used to decide when to
recommend evacuation or sheltering-in-place.
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.
Describe the conditions necessary to initiate an evacuation or
sheltering-in-place and identify who has the authority to initiate such
action.
.
Describe the procedures and agencies used to conduct the
evacuation (of high-density areas, neighborhoods, high-rise buildings,
subways, airports, special events venues, etc.) and to provide
security for the evacuation area.
.
Describe the plan for receiving evacuees due to hazards in
neighboring jurisdictions.
.
Describe the procedures and agencies used to exchange information
between and among the evacuating jurisdiction, the receiving
jurisdiction(s), and the jurisdictions that evacuees will pass through.
.
Describe coordination strategies for managing and possibly relocating
incarcerated persons during a crisis response.
.
Describe how and when the public is notified, including the actions
they may be advised to follow during an evacuation, while sheltering
in place, upon the decision to terminate sheltering-in-place, and
throughout the incident.
.
Describe the protocols and criteria the jurisdiction will use to
recommend termination of sheltering-in-place.
.
Describe/identify the procedures and resources (e.g., both
pre-identified and ad-hoc collection points, staging areas,
transportation resources) used to identify and assist moving
evacuees, including assisting special-needs populations, persons
with mobility impairments, and persons in institutions.
.
Describe the procedures used to provide for the care of the
evacuees’ service animals/pets/livestock or to instruct evacuees on
how to manage their service animals/pets/livestock during an
evacuation.
.
Describe how agencies coordinate the decision to return evacuees to
their homes, including informing evacuees about any health concerns
or actions they should take when returning to homes/businesses.
.
Describe/identify the procedures and resources used to identify and
assist the return of evacuees to their homes/communities, including
special-needs populations.
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.
Describe the procedures used when the general public refuses to
evacuate (e.g., implement forced removal, contact next of kin, place
unique marking on homes, take no action).
SHELTERING AND MASS CARE
These procedures implement sheltering and mass-care operations for the
evacuees.
.
Describe the procedures and agencies used to identify, open, and
staff emergency shelters, including temporarily using reception
centers while waiting for shelters to open officially.
.
Describe the agencies and methods used to provide for short-term
lodging and mass-care needs (e.g., beds/rest, food/water, crisis
counseling, phones, clergy support, special-needs experts).
.
Describe how shelters coordinate their operations with on-scene and
other off-site support agencies (e.g., expected numbers evacuated,
emergency medical support).
.
Describe how shelters keep evacuees informed about the status of
the disaster, including information about actions that may need to be
taken when evacuees return home.
.
Describe the agencies and methods used to provide care and support
for institutionalized or special-needs individuals (e.g., medical and
prescription support, durable medical equipment, child care,
transportation, foreign language interpreters) and their caregivers.
.
Describe the procedures and agencies used to care for companion
and service animals brought to the shelters by the evacuees.
.
Describe the procedures and agencies used to notify or inform the
public about the status of injured or missing relatives.
.
Describe the methods to identify, screen, and handle evacuees
exposed to the hazards posed by the disaster (e.g., infectious waste,
polluted floodwaters, chemical hazards) and to keep the shelter free
of contamination.
.
Describe arrangements in place with other jurisdictions for receiving
their assistance in sheltering, including providing shelters when it is
not practical locally (e.g., no available shelters or staff support).
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Describe the procedures and agencies used to identify and address
the general public’s “unmet needs” during the disaster.
PUBLIC HEALTH
These procedures provide for the public’s general health as a result of the
emergency.
.
Describe the agencies and methods used to maintain efficient
surveillance systems supported by information systems to facilitate
early detection, reporting, mitigation, and evaluation of expected and
unexpected public health conditions.
.
Describe the agencies and methods used to determine the public
health issues created by the disaster (e.g., food/water safety,
biological concerns) and to prioritize how the issues will be managed,
including how this process is coordinated with the ICP/EOC
(e.g., issue vaccinations, establish quarantines).
.
Describe the agencies and alternate methods used to provide potable
water to the jurisdiction when the water systems are not functioning
(e.g., private sources, boil orders, private wells).
.
Describe the agencies and alternate methods used to provide
alternate sources for human waste disposal (e.g., arrange portable
latrines, encourage sharing with those on own septic systems).
.
Describe the procedures and agencies used to assess and provide
mental health services for the general public impacted by the disaster
(critical incident stress debriefings).
.
Describe/identify the procedures used to assess and provide vector
control services (e.g., insect and rodent controls, biological
wastes/contamination, use of pesticides).
.
Describe/identify the procedures used to assess and provide food
production and agricultural safety services (e.g., conducting a
coordinated investigation of food and agricultural events or
agricultural or animal disease outbreaks).
.
Describe the use and coordination of health professionals, incident
commanders, and PIOs to issue public health media releases and
alert the media.
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.
Describe/identify the procedures and agencies involved in initiating,
maintaining, and demobilizing medical surge capacity, including
Mutual Aid Agreements for medical facilities and equipment.
.
Describe/identify the procedures used to assess and provide animal
care services (e.g., remove and dispose of carcasses, rescue/recover
displaced pets/livestock, treat endangered wildlife) and the agencies
utilized in this process (e.g., veterinarians, animal hospitals, Humane
Society, State DNR).
.
Describe the procedures and agencies used to identify and respond
to grave sites/cemeteries that are impacted by the disaster
(e.g., recover and replace unearthed/floating/missing coffins, review
records to confirm identification, manage closed/historical gravesites).
.
Describe the use and coordination of health professionals from
outside agencies to support local response needs (e.g., poison
control centers, State/Local Departments of Health/Public Health,
Centers for Disease Control [CDC], Funeral Directors Association,
U.S. Department of Agriculture [USDA], Food and Drug
Administration [FDA], Medical Reserve Corps [MRC]).
.
Identify potential sources for medical and general health supplies that
will be needed during a disaster (e.g., medical equipment,
pharmaceutical supplies, laboratories, toxicologists). Note: This
information could be maintained under a separate Tab or as part of a
comprehensive resource manual.
INFRASTRUCTURE
This response procedure is needed to identify and coordinate the control of
public utilities and transportation issues that could otherwise create additional
hazards to the local population.
.
Describe/identify the likely types of energy and utility problems that
will be created as result of the emergency (e.g., downed power lines,
wastewater discharges, ruptured underground storage tanks).
.
Describe/identify the procedures and agencies used to identify,
prioritize, and coordinate energy and utility problems that will be
created as a result of the disaster (e.g., shut off gas/electricity to
flooded areas, restore critical systems, control underground
water/gas main breaks).
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.
Describe the procedures and agencies used to identify, prioritize, and
coordinate the removal of debris from roadways to ensure access for
local responders (e.g., snow/debris removal, stream clearance of
debris/ice), including coordinating road closures and establishing
alternate routes of access.
.
Describe the procedures and agencies used to protect affected
populations during a disaster when there are periods of extreme
temperatures and/or shortages of energy, including how the
jurisdiction coordinates with energy-providing companies during
outages.
DAMAGE ASSESSMENT
These procedures are used to determine the extent of damage caused by the
disaster to private and public property and facilities.
.
Describe the procedures and agencies used to conduct and
coordinate damage assessments on private property (e.g., home
owners, businesses, renters).
.
Describe the procedures and agencies used to conduct and
coordinate damage assessments on public property
(e.g., government, private, not-for-profit).
.
Describe the processes used to collect, organize, and report damage
information to other County, State, or Federal operations centers
within the first 12 to 36 hours of the disaster/emergency.
.
Describe the procedures for requesting supplemental State/Federal
assistance through the State EMA.
.
Include copies of the damage assessment forms used locally
(e.g., State-adopted or -recommended EMA’s damage and needs
assessment form or a County equivalent). Note: These may be
attached as a Tab to the plan.
DEBRIS MANAGEMENT
This procedure describes how the jurisdiction will coordinate the cleanup and
disposal of debris from the disaster site. Note: Check to see if your State has
developed specific planning guidance on how to develop a debris management
program and subsequent plans.
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.
Describe the procedures used to coordinate the debris collection and
removal process (e.g., gather and recycle materials, establish
temporary storage sites, sort/haul debris).
.
Describe the procedures for communicating debris management
instructions to the general public (e.g., separation/sorting of debris,
scheduled pickup times, drop-off sites for different materials),
including a process for issuing routine updates.
.
Describe the procedures and agencies used to assess and resolve
potential health issues related to the debris removal process
(e.g., mosquito/fly infestation, hazardous and infectious wastes).
.
Describe the procedures and agencies used to inspect and arrange
for the inspection and subsequent disposal of contaminated food
supplies (e.g., from restaurants, grocery stores).
.
Identify the agencies likely to be used to provide technical assistance
on the debris removal process (e.g., State Environmental Protection
Agency, State Department of Health/Public Health, State Department
of Agriculture, Local and surrounding County Health Departments).
.
Describe the procedures and agencies (e.g., Local building
inspectors, private contractors) used to condemn, demolish, and
dispose of structures that present a safety hazard to the public.
.
Pre-identify potential trash collection and temporary storage sites,
including final landfill sites for specific waste categories
(e.g., vegetation, food, dead animals, hazardous and infectious
wastes, construction debris, tires/vehicles).
INFRASTRUCTURE/PUBLIC WORKS
These methods are used to repair and replace roads and bridges and restore
public utilities.
.
Describe standards and procedures to identify qualified contractors
offering recovery/restoration services.
.
Describe/identify procedures to coordinate credentialing protocols so
lifeline personnel have access to critical sites following an incident.
.
Describe the procedures used to identify, prioritize, and coordinate
the work to repair/restore local roads, bridges, and culverts
(e.g., along City, County, Township, State, Interstate, and
U.S. routes).
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.
Describe the procedures and agencies used to repair/restore local
water and waste systems (e.g., water/waste treatment plants,
sewer/water lines, public/private wells), including providing temporary
water and waste systems until normal operations resume.
.
Describe the procedures and agencies used to prioritize and
coordinate the repair/restoration of vital services (e.g., gas, electric,
phone), including conducting safety inspections before the general
public is allowed to return to the impacted area.
.
Describe the procedures used to incorporate and coordinate
assistance from State, Federal, and private organizations (e.g., State
Building Inspectors/Contractors, Local/State Historical Preservation
Office, Federal Highway Administration [FHA], private contractors).
DONATIONS MANAGEMENT
This process is used to coordinate the collection and distribution of goods and
monies that will be donated following an emergency.
.
Describe the procedures and agencies used to establish and staff
donation management functions (e.g., set up toll-free hotlines, create
databases, appoint a donations liaison/office, use support
organizations).
.
Describe the procedures and agencies used to verify and/or vet
voluntary organizations and/or organizations operating relief funds.
.
Describe the procedures and agencies used to collect, sort, manage,
and distribute in-kind contributions, including procedures for
disposing of or refusing goods that are not acceptable.
.
Describe the procedures used to coordinate donation management
issues with neighboring districts and the State’s donations
management system.
.
Describe the process used to tell the general public about the
donations program (e.g., instructions on items to bring and not bring,
scheduled drop-off sites and times, the way to send monies),
including a process for issuing routine updates.
.
Describe the procedures and agencies used to handle the
spontaneous influx of volunteers.
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Describe the procedures and agencies used to receive, manage, and
distribute cash contributions.
.
Pre-identify sites that will likely be used to sort and manage in-kind
contributions (e.g., private warehouses, government facilities).
HAZARD-SPECIFIC ANNEXES
These sections describe emergency response strategies that apply only to a
specific hazard. Note 1: Hazard-specific information can be integrated into the
above response and recovery sections if the local community believes such
integration would make the plan easier to read and use. This information may
also be addressed in completely separate stand-alone plans. In a stand-alone
case, the EOP shall include specific references to those plans when appropriate
and also provide a brief summary on how the EOP procedures are to be
coordinated with the stand-alone procedures. Note 2: Some hazards have
unique planning requirements that are required and/or recommended to be
discussed as per specific State and Federal laws. The local EMA must review
those requirements and determine how the EOP can best address and meet
those legal requirements. The items below attempt to identify any such legal
requirements for developing plans and procedures on the basis of a specific
hazard.
NATURAL HAZARDS
These events are created by nature and are typically weather related. Note: The
following events are not the only natural hazards. The County must complete its
own hazard analysis to identify what natural incidents will require activation of the
EOP procedures.
Floods
Address the hazard-unique procedures and methods the jurisdiction uses to
prepare for and respond to flood emergencies/disasters (e.g., flash floods,
inundation floods, floods resulting from dam failures or ice jams).
.
Describe/identify the jurisdiction’s specific concerns, capabilities,
training, procedures, agencies, and resources that will be used to
mitigate against, prepare for, respond to, and recover from floods.
Include a hazard summary that discusses where (e.g., 100-year and
common floodplains) and how floods are likely to impact the
jurisdiction.
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Tornadoes
Address the hazard-unique procedures and methods the jurisdiction uses to
prepare for and respond to tornado emergencies/disasters.
.
Describe/identify the jurisdiction’s specific concerns, capabilities,
training, procedures, agencies, and resources that will be used to
mitigate against, prepare for, respond to, and recover from tornadoes.
Include a hazard analysis summary that discusses where/how
tornadoes are likely to impact the jurisdiction (e.g., historical/seasonal
trends, damage levels F1 through F5).
Winter Storms
Address the hazard-unique procedures and methods the jurisdiction uses to
prepare for and respond to winter storm emergencies/disasters.
.
Describe/identify the jurisdiction’s specific concerns, capabilities,
training, procedures, agencies, and resources that will be used to
mitigate against, prepare for, respond to, and recover from winter
storms (e.g., blizzards, ice jams, ice storms). Include a hazard analysis
summary that discusses where/how winter storms are likely to impact
the jurisdiction.
Droughts
Address the hazard-unique procedures and methods the jurisdiction uses to
prepare for and respond to drought emergencies/disasters.
.
Describe/identify the jurisdiction’s specific concerns, capabilities,
training, procedures, agencies, and resources that will be used to
mitigate against, prepare for, respond to, and recover from droughts
(e.g., water conservation, public water outages, wildfire issues).
Include a hazard analysis summary that discusses where/how
droughts are likely to impact the jurisdiction.
Earthquakes
Address the hazard-unique procedures and methods the jurisdiction uses to
prepare for and respond to earthquake emergencies/disasters.
.
Describe/identify the jurisdiction’s specific concerns, capabilities,
training, procedures, agencies, and resources that will be used to
mitigate against, prepare for, respond to, and recover from
earthquakes. Include a hazard analysis summary that discusses
where/how earthquakes are likely to impact the jurisdiction.
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TECHNOLOGICAL HAZARDS
These events are emergencies that involve materials created by man and pose a
unique hazard to the general public and environment. The jurisdiction needs to
consider events that are caused by accident (e.g., mechanical failure, human
mistake) or result of an emergency caused by another hazard (e.g., flood, storm)
or are caused intentionally.
Radiological
Address the hazard-unique procedures and methods to prepare for and respond
to releases that involve radiological materials that are at licensed facilities or in
transport.
.
Describe/identify the jurisdiction’s specific concerns, capabilities,
training, procedures, agencies, and resources that will be used to
mitigate against, prepare for, respond to, and recover from radiological
hazards. Include a hazard analysis summary that discusses
where/how radiological materials are likely to impact the jurisdiction,
including incidents that occur at fixed facilities, along transportation
routes, or as fallout from a nuclear weapon.
.
If applicable, describe/include procedures that address the
requirements of FEMA/NRC (U.S. Nuclear Regulatory Commission)
NUREG 0654 and Code of Federal Regulations (CFR) Part 44,
Section 350, as it applies to the jurisdiction’s planning for
emergencies/disasters involving regulated nuclear power plants.
Hazardous Materials
Address the hazard-unique procedures and methods used to prepare for and
respond to releases that involve HAZMAT that is manufactured, stored, or used
at fixed facilities or in transport. This section may include materials that exhibit
incendiary or explosive properties when released. Note: Some States have laws
that require each Local Emergency Planning Committee (LEPC) to develop a
Chemical Emergency Preparedness and Response Plan on this topic. Some
States have laws requiring the Local EMA to incorporate the LEPC’s plan into the
EMA’s planning and preparedness activities. Specific planning criteria
established by a State Emergency Response Commission (SERC) must be
reviewed and addressed in order to develop the LEPC plan.
.
For LEPCs that complete a stand-alone plan, describe how the
jurisdiction coordinates that plan’s procedures with the EOP.
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.
For LEPC plans that are part of the EOP, describe how the planning
team utilized and adhered to the SERC criteria in order to be in
compliance with those requirements and the EOP requirements
discussed above.
Biological Emergencies
Address the hazard-unique procedures and methods to prepare for and respond
to incidents that are biological in nature (e.g., viruses, bacteria, infectious wastes,
epidemics).
.
Describe/identify the jurisdiction’s specific concerns, capabilities,
training, procedures, agencies, and resources that will be used to
mitigate against, prepare for, respond to, and recover from epidemic
diseases and biological incidents (e.g., West Nile virus, hoof and
mouth disease, smallpox). Include a hazard analysis summary that
discusses where/how biological incidents are likely to impact the
community.
HUMAN-CAUSED HAZARDS
These are disasters created by man, either intentionally or by accident.
Note: The jurisdiction must complete its own hazard analysis to identify what
social incidents will require activation of the EOP’s procedures.
Terrorist Acts
Describe/identify the jurisdiction’s specific concerns, capabilities, training,
procedures, agencies, and resources that will be used to mitigate against,
prepare for, respond to, and recover from terrorist acts. The attacks covered
should include, but not be limited to, attacks involving weapons of mass
destruction (WMDs), such as CBRNE materials. Note: Some State EMAs or
Homeland Security offices have developed specific guidance for this planning
element. Specific planning criteria are established in that guidance, and it must
be reviewed in order to develop the terrorism plan.
.
Address and ensure the State’s terrorism planning criteria are in
compliance with the EOP requirements discussed above.
Civil Unrest
Address the hazard-unique procedures and methods the jurisdiction uses to
prepare for and respond to civil unrest emergencies/disasters.
.
Describe/identify the jurisdiction’s specific concerns, capabilities,
training, procedures, agencies, and resources that will be used to
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mitigate against, prepare for, respond to, and recover from civil unrest
emergencies (e.g., riots, school shootings).
ADDITIONAL HAZARDS (AS APPLICABLE)
This section is to be used when the locality has included procedures that will be
used to prepare for and respond to other hazards as identified in the jurisdiction’s
hazard analysis (e.g., mass casualty, airline/plane crash, train crash/derailment,
school emergencies).
.
Describe/identify the jurisdiction’s specific concerns, capabilities,
training, procedures, agencies, and resources that will be used to
mitigate against, prepare for, respond to, and recover from other
hazards as defined in the jurisdiction’s hazard analysis.
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APPENDIX E: SAMPLE
HAZARD PROFILE
WORKSHEET
Hazard Profile Worksheet
Hazard:
Potential magnitude (Percentage of the community that can be affected):
Catastrophic: More than 50%
Critical: 25 to 50%
Limited: 10 to 25%
Negligible: Less than 10%
Frequency of Occurrence:
.
Highly likely: Near 100% probability in next year.
.
Likely: Between 10 and 100% probability in next year, or at
least one chance in next 10 years.
.
Possible: Between 1 and 10% probability in next year, or at
least one chance in next 100 years.
.
Unlikely: Less than 1% probability in next 100 years.
Seasonal Pattern:
Areas Likely to be Affected Most:
Probable Duration:
Potential Speed of Onset (Probable amount of warning time):
.
Minimal (or no) warning.
.
6 to 12 hours warning.
.
12 to 24 hours warning.
.
More than 24 hours warning.
Existing Warning Systems:
Does a Vulnerability Analysis Exist?
Yes •
No •
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APPENDIX F: SAMPLE
ORGANIZATION
RESPONSIBILITY MATRIX
Agencies,
Departments
Managing Emergency Operations
1
Situation Reporting2
Damage Assessment
3
Alert, Warning, Notification
4
Emergency Public Information
5
Communication Systems
6
Resource Management
7
Human Resources8
Search & Rescue
9
Public Works
10
Public Health Services
11
Animal Considerations
12
Fire Services13
Emergency Medical Services
14
Law Enforcement Services
15 Coroner/Medical Examiner 16
Population Relocation
17
Transportation
18
Human Services
19
Donated Goods & Services20
Emergency Fiscal & Administrative
21
Ambulance Service S S S S S S S S S S
American Red Cross S S S S S S S S S S S S S P S
Building Inspection
Services
S S S S S S S S
Business & Industry S S S S S S S S S S S S
Campuses, Universities S S S S S S S S
Churches S S S S S S S S
Civil Air Patrol S S S S S S S S
Communications Dept. S S S S S S S
Community Service
Organizations
S S S S S S S S
Coroner/Medical
Examiner
S S S S S S P S
Data Processing S S S S S S S
Department of Health S S S S S S P S S
Emergency Management
Department
P P P P P P P S P S S S S S S S P P S P P
Equipment Management S S S S S S S S
Finance S S S S S S S
Fire Services S S S S S S S S S P P S S S S
Funeral Directors Assoc. S S S S S S S S
Fleet Services S S S S S S S S
General Services S S S S S S S S
Hospitals S S S S S S S S S
Human Resources S S S S S S S S P S
Humane Society S S S S S S S P S
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Agencies,
Departments
Managing Emergency Operations
1
Situation Reporting2
Damage Assessment
3
Alert, Warning, Notification
4
Emergency Public Information
5
Communication Systems
6
Resource Management
7
Human Resources8
Search & Rescue
9
Public Works
10
Public Health Services
11
Animal Considerations
12
Fire Services13
Emergency Medical Services
14
Law Enforcement Services
15
Coroner/Medical Examiner
16
Population Relocation
17
Transportation
18
Human Services
19
Donated Goods & Services20
Emergency Fiscal & Administrative
21
Information Mgt. Services S S S S S S S S S
Law Enforcement S S S S S S S P S S S P S P S S
Media S S S S S S S S
National Guard S S S S S S S S
Other NGOs S S S S S S S S S
Parks & Recreation S S S S S S P S S S
Personnel Board S S S S S S S S S
Public (General) S S S S S S S
Public Works S S S S S S S P S S S S S S
Purchasing Department S S S S S S S
RACES S S S S S S S S S
Risk Management S S S S S S S
Salvation Army S S S S S S S S S S
Schools (Districts) S S S S S S S S P S S
Tax Assessor S S S S S S S
Utilities S S S S S S S S S
Veterinarians S S S S S S S S S S
Volunteer Organizations S S S S S S S S S S
S= Secondary; P= Primary.
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APPENDIX G: SAMPLE
DEPARTMENT-TO-ESF CROSSREFERENCE
MATRIX
ESF #1 – Transportation
ESF #2 – Communications
ESF #3 – Public Works and EngineeringESF #4 – FirefightingESF #5 – Emergency Management
ESF #6 – Mass Care, Housing, and Human
ServicesESF #7 – Resources Support
ESF #8 – Public Health and Medical Services
ESF #9 – Search and Rescue
ESF #10 – Oil and Hazardous Materials Response
ESF #11 – Agriculture and Natural Resources
ESF #12 – EnergyESF #13 – Public Safety and Security
ESF #14 – Long-Term Recovery and Mitigation
ESF #15 – Emergency Public Information
Office of Homeland Security and/or
Emergency Management
P P S P S P P
Agriculture and Forestry S P S S SS SS P S S S
Budget, Finance, and Management S S
Culture, Recreation, and Tourism S S S S S S S S S
Department of Corrections SS S S S S S S
Department of Health and Hospitals SS S S S S P S S S S
Department of Transportation P S P S S SS SS S S S S
Department of Wildlife and Fisheries SS S S P S S S S
Economic Development S S S P S
Education S S S
Environmental Quality S S S P S S S
Fire Marshal S S SS S
Indian Affairs S S
Justice S S P S
Labor S S S S S
National Guard S P S S S S P S SS S S S S S
Natural Resources S S S S S S P S S S
Public Service Commission SS S P S S
Social Services S S P S S S
State Police S P S S S P P S S
Volunteer Organizations SS S S SS S S S S
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APPENDIX H: SAMPLE
INFORMATION COLLECTION
MATRIX
Information
Element
Specific
Requirement
Collection
Method
Responsible
Element Deliverables When
Needed
Distribute
To
Status of all modal State liaison/
systems, air, sea, ERT-A/FCO
land, rail reports
Status of major/primary State
roads Department of
Transportation
Status of critical and Initial
noncritical bridges
Status of
ESF-1
Assessment
team reports
Situation
briefings
report/estimate
on airports within
1 to 6 hours after
Transportation
Status
transcontinental/regional
natural gas and fuel
pipelines
Community
relations
ESF-1 Situation
reports
landfall
Remainder not
Status of evacuation U.S. Army GIS products less than (NLT)
12 hours after
routes Corps of landfall
Engineers
Status of public transit
systems Remote
sensing/aerial
Accessibility concerns reconnaissance
Debris issues Predictive
modeling
EOC Status
Status of Local EOCs
Status of State EOC
Status of Agency EOCs
Location and status of
Federal facilities
established
State liaison/
ERT-A/FCO
ESFs/other
Federal
agencies
Regional
offices
Regional
Support Team
(RST)
Operations
Situation
briefings
Situation
reports
GIS products
Displays
NLT 1 hour after
landfall
What are the State and
Local priorities?
Operation
status (+/- two
levels)
What are the major
State operations in
support of the Local
jurisdictions?
What support is being
State liaison/
ERT-A/FCO
Open sources
and media
RST
Operations
Operations
Section input
for situation
report
Status
NLT 6 hours after
landfall
Updated every
O-Period
received from other Briefings
States under JIC
Emergency
Management
Assistance Compacts?
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