HomeMy WebLinkAboutItem 06 A Resolution of the City of Springfield adopting the Eugene-Springfield Multi-Jurisdictional Emergency Operations Plan AGENDA ITEM SUMMARY Meeting Date: 10/20/2014
Meeting Type: Regular Meeting
Staff Contact/Dept.: Ken Vogeney/DPW Staff Phone No: 541-736-1026
Estimated Time: Consent Calendar
S P R I N G F I E L D C I T Y C O U N C I L Council Goals: Strengthen Public Safety by Leveraging
Partnerships and Resources
ITEM TITLE: ADOPTION OF THE EUGENE-SPRINGFIELD MULTI-JURISDICTIONAL EMERGENCY OPERATIONS PLAN AS THE CITY OF SPRINGFIELD
EMERGENCY MANAGEMENT PLAN
ACTION REQUESTED: Adopt/not adopt the following:
A RESOLUTION OF THE CITY OF SPRINGFIELD ADOPTING THE EUGENE-SPRINGFIELD MULTI-JURISDICTIONAL EMERGENCY OPERATIONS PLAN BASIC PLAN AND DIRECTING THE CITY MANAGER,
ACTING AS THE DIRECTOR OF EMERGENCY SERVICES, TO DEVELOP, APPROVE, AND IMPLEMENT NEW OR REVISED ANNEXES TO THE
EUGENE-SPRINGFIELD MULTI-JURISDICTIONAL EMERGENCY
OPERATIONS PLAN
ISSUE STATEMENT:
Eugene and Springfield staffs have cooperatively prepared a new Emergency
Operations Plan (EOP) for the two cities. The new EOP provides a framework for the cities to improve their coordination, collaboration and support for each other during larger community-scale emergencies, as well as aligns with current practice
at the federal, state, and county levels for providing Emergency Management coordination and support. The proposed EOP is comprised of the Basic Plan and numerous annexes.
ATTACHMENTS: Attachment 1 – Resolution Attachment 2 –Basic Plan of the Eugene-Springfield Multi-Jurisdictional
Emergency Operations Plan.
DISCUSSION/ FINANCIAL
IMPACT:
During the September 15, 2014 work session, Council discussed the proposed new EOP for the two cities that will provide the framework for improved coordination,
collaboration and support for each other during larger scale emergencies. At that meeting, Council expressed their support for this approach and directed staff to bring the Basic Plan of the EOP back to them for adoption.
In the past, staff has requested formal Council adoption of the full EOP whenever
changes were made to the document. Staff has found that this is not a very
effective approach for keeping the document current. In addition, the new structure of the EOP will lend itself to more frequent changes to the numerous annexes, with
only occasional changes to the Basic Plan. Therefore, the proposed resolution
authorizes the City Manager, acting as the Director of Emergency Services pursuant to the Municipal Code, to approve and implement administrative changes to the
Basic Plan and to develop, approve and implement changes to all of the EOP
annexes. In the future, only substantive changes to the Basic Plan will be brought back to Council for adoption.
CITY OF SPRINGFIELD
RESOLUTION NO. _______
A RESOLUTION OF THE CITY OF SPRINGFIELD ADOPTING THE EUGENE-SPRINGFIELD MULTI-JURISDICTIONAL EMERGENCY
OPERATIONS PLAN BASIC PLAN AND DIRECTING THE CITY MANAGER,
ACTING AS THE DIRECTOR OF EMERGENCY SERVICES, TO DEVELOP, APPROVE, AND IMPLEMENT NEW OR REVISED ANNEXES TO THE EUGENE-SPRINGFIELD MULTI-JURISDICTIONAL EMERGENCY OPERATIONS PLAN
WHEREAS, pursuant to Section 2.800, et seq. of the Springfield Municipal Code, the
City of Springfield has established an Emergency Management Program and an Emergency Management Plan; and
WHEREAS, the City Manager, acting as the director of emergency services, shall be
responsible for administration of the city’s emergency management program; and
WHEREAS, per Section 2.806 of the Springfield Municipal Code, specific duties of the
City Manager shall include the development, update and revision of the city’s emergency management plan; and
WHEREAS, the City of Springfield and the City of Eugene have cooperatively prepared
a new Emergency Management Plan entitled “Eugene-Springfield Multi-Jurisdictional
Emergency Operations Plan” (EOP) to establish a comprehensive, all-hazard approach to
protect the safety, health, and welfare of the community by providing a framework for the Cities of Eugene and Springfield to augment their individual jurisdiction’s capabilities,
while preserving their territorial authority, to effectively respond to and recover from a
significant incident; and
WHEREAS, the EOP is comprised of five main elements: Basic Plan, Emergency
Support Function Annexes, Support Annexes, Incident Annexes, and Operational Annexes, collectively referred to herein as the EOP Annexes; and
WHEREAS, the Basic Plan provides the overarching guidance and context for the
implementation of the EOP Annexes; and
WHEREAS, the EOP Annexes are in an on-going cycle of development, testing, and
revision to improve their effectiveness; and
WHEREAS, the City Council seeks to adopt the EOP Basic Plan and directs the City
Manager to develop, approve, and implement annexes and any administrative changes to
the Basic Plan.
Attachment 1, Page 1 of 2
NOW THEREFORE, BE IT RESOLVED THAT:
1. The City of Springfield hereby adopts the “Eugene-Springfield Multi-Jurisdictional Emergency Operations Plan” Basic Plan as its Emergency Management Plan pursuant to Section 2.806 of the Springfield Municipal Code, and that all prior
versions of the City of Springfield’s Emergency Management Plan are superseded and no
longer in effect; and
2. That the Springfield City Manager, acting as the director of emergency services, shall present substantive revisions to the Basic Plan of the “Eugene-Springfield Multi-
Jurisdictional Emergency Operations Plan” to the Council for approval prior to
implementation; and
3. That the Springfield City Manager is authorized to develop, approve, and
implement administrative revisions to the Basic Plan of the “Eugene-Springfield Multi-Jurisdictional Emergency Operations Plan” without notice to or further authorization by the Council; and
4. That the Springfield City Manager is authorized to develop, approve, and
implement new or revised Annexes to the “Eugene-Springfield Multi-Jurisdictional
Emergency Operations Plan” without notice to or further authorization by the Council; and
5. This Resolution shall take effect upon its adoption by the Council and approval by
the Mayor.
ADOPTED by the Common Council of the City of Springfield this 20th day of October
2014 with a vote of _____ for and _____ against.
______________________________
Christine L. Lundberg Mayor
ATTEST:
_______________________
Amy Sowa
City Recorder
Attachment 1, Page 2 of 2
Eugene-Springfield Multi-Jurisdictional
EMERGENCY OPERATIONS PLAN
September 2014
Prepared for:
City of Eugene
940 Willamette #200
Eugene, Oregon 97401
City of Springfield
225 Fifth Street
Springfield, Oregon 97477
Prepared by:
Attachment 2, Page 1 of 114
This document was prepared under a grant from the Office of
Grants and Training, United States Department of Homeland
Security. Points of view or opinions expressed in this document are
those of the authors and do not necessarily represent the official
position or policies of the Office of Grants and Training or the U.S. Department of Homeland Security.
Attachment 2, Page 2 of 114
iii September 1, 2014
Preface
The Eugene Springfield Multi-Jurisdictional Emergency Operations Plan (EOP) is
an all-hazard plan that describes how the Cities of Eugene and Springfield will
organize and respond to emergencies and disasters in their communities. It is
based on, and is compatible with, federal, State of Oregon, and other applicable
laws, regulations, plans, and policies, including Presidential Policy Directive 8,
the National Response Framework, State of Oregon Emergency Management
Plan, and the Lane County Emergency Operations Plan. This plan is compliant
with the National Incident Management System (NIMS) and incorporates the
principles set forth in the Incident Command System (ICS). Collectively, these
documents support the foundation for the Eugene Springfield Multi-Jurisdictional
EOP.
Response to emergency or disaster conditions in order to maximize the safety of
the public minimize, property damage, and mitigate environmental consequence
following an incident is a primary responsibility of government. It is the goal of
the Cities of Eugene and Springfield that responses to such conditions are
conducted in the most organized, efficient, and effective manner possible. To aid
in accomplishing this goal, the Cities of Eugene and Springfield have, in addition
to promulgating this plan, formally adopted the principles of NIMS, including
ICS and the National Response Framework.
The EOP is designed to be flexible, adaptable, and scalable. Consisting of a Basic
Plan, Emergency Support Function Annexes, Support Annexes, Incident Annexes,
and Operational Annexes, this EOP provides a framework for coordinated
response and recovery activities during a large-scale emergency. The plan
describes how various agencies and organizations in the Cities of Eugene and
Springfield will coordinate resources and activities with other federal, State of
Oregon, local, tribal, and private-sector partners.
The EOP does not have place holders for annexes that are incomplete. Only
completed procedures are listed. Additional annexes will be completed
throughout the review cycle and added to the EOP upon completion per the plan
maintenance cycle.
Attachment 2, Page 3 of 114
Eugene-Springfield Metro Area EOP Basic Plan
Preface
iv September 1, 2014
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Attachment 2, Page 4 of 114
v September 1, 2014
Letter of Promulgation
To all Recipients:
Promulgated herewith is the revised Emergency Operations Plan for the Cities of
Eugene and Springfield, known as the Eugene-Springfield Multi-Jurisdictional
Emergency Operations Plan. This plan supersedes any previous plans. It
provides a framework within which the Cities of Eugene and Springfield can plan
and perform their respective emergency functions during a disaster or national
emergency.
FEMA has established five mission areas of emergency management: prevention,
protection, mitigation, response, and recovery. This Emergency Operations Plan
attempts to combine three of these major mission areas to ensure that each City is
prepared to prevent, protect against, mitigate the effects of, respond to, and
recover from the hazards and threats that pose the greatest risk to each city. This
includes the following:
■ Prevention: activities necessary to avoid, prevent, or stop a threatened
or actual act of terrorism.
■ Response: activities necessary to save lives, protect property and the
environment, and meet basic human needs after an incident has
occurred.
■ Recovery: activities necessary to assist the community in recovering
effectively from a disaster.
This plan has been approved by both the City of Eugene and City of Springfield
with promulgation documents on file with the respective Cities. It will be revised
and updated as required. All recipients are requested to advise the Eugene and
Springfield Emergency Managers of any changes that might result in its
improvement or increase its usefulness. Plan changes will be transmitted to all
addressees on the distribution list.
If any portion of this plan is held invalid by judicial or administrative ruling,
such ruling shall not affect the validity of the remaining portions of this plan.
Attachment 2, Page 5 of 114
Eugene-Springfield Multi-Jurisdictional EOP Basic Plan
Letter of Promulgation
vi September 1, 2014
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Attachment 2, Page 6 of 114
vii September 1, 2014
Plan Administration
The Eugene and Springfield Emergency Managers will coordinate review,
revision, and re-promulgation of this plan, as outlined in Chapter 6.
Record of Plan Changes
All updates and revisions to the plan will be tracked and recorded (record
maintained separately by the Eugene Emergency Manager). This process will
ensure that the most recent version of the plan is disseminated and implemented
by emergency response personnel.
Plan Distribution List
Copies of this Emergency Operations Plan (EOP) will be provided to each City
department, appropriate jurisdictions, agencies, and persons electronically (list
maintained separately by the Eugene Emergency Manager). Updates will be
provided electronically, when available. Recipients will be responsible for
updating their departmental/agency copies when they receive changes. The
Eugene Emergency Manager is ultimately responsible for dissemination of all
plan updates.
Emergency Operations Plan Review Assignments
A list of agencies responsible for regular review of specific plan sections and
annexes to ensure that accuracy is maintained separately by the Eugene
Emergency Manager. Changes will be forwarded to the Eugene Emergency
Manager for revision and dissemination of the updated EOP.
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Eugene-Springfield Multi-Jurisdictional EOP Basic Plan
Plan Administration
viii September 1, 2014
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Attachment 2, Page 8 of 114
ix September 1, 2014
Table of Contents
Preface ................................................................................... iii
Letter of Promulgation ........................................................... v
Plan Administration .............................................................. vii
Table of Contents .................................................................. ix
List of Figures and Tables .................................................. xiii
Basic Plan
1 Introduction ................................................................... 1
1.1 General ....................................................................................... 1
1.1.1 Whole Community Planning ........................................................ 1
1.1.2 Access and Functional Needs Populations ................................. 2
1.2 Purpose and Scope .................................................................... 2 1.2.1 Purpose ...................................................................................... 2
1.2.2 Scope.......................................................................................... 3
1.3 Plan Activation ............................................................................ 3
1.4 Plan Organization ....................................................................... 4
1.4.1 Basic Plan ................................................................................... 4 1.4.2 Emergency Support Function Annexes....................................... 5
1.4.3 Support Annexes ........................................................................ 9
1.4.4 Incident Annexes ........................................................................ 9
1.4.5 Operational Annexes .................................................................. 9
1.5 Relationship to Other Plans ...................................................... 10 1.5.1 Federal Plans ............................................................................ 10
1.5.2 State Plans ............................................................................... 10
1.5.3 County Plans ............................................................................ 10
1.5.4 Regional and Metropolitan Plans .............................................. 10
1.5.5 City Plans .................................................................................. 11 1.5.5.1 City of Eugene .......................................................................... 11 1.5.5.2 City of Springfield ...................................................................... 11
1.5.6 Special District Emergency Plans ............................................. 11
1.6 Government Structure............................................................... 12
1.7 Continuity of Government ......................................................... 12 1.7.1 Lines of Succession .................................................................. 12 1.7.2 Preservation of Vital Records ................................................... 13
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1.8 Safety of Employees and Family .............................................. 13 1.9 Emergency Operations Center Administration .......................... 13
2 Situation and Planning Assumptions .......................... 1
2.1 Situation ...................................................................................... 1
2.1.1 Community Profile ...................................................................... 1
2.1.2 Population and Demographics .................................................... 2
2.1.3 Transportation ............................................................................. 3 2.1.4 Protection of Critical Infrastructure and Key Resources ............. 3 2.2 Threat/Hazard Identification ........................................................ 3
2.2.1 Capability Assessment................................................................ 6
2.3 Assumptions ............................................................................... 6
3 Roles and Responsibilities ........................................... 1
3.1 Emergency Management Organization....................................... 1
3.2 Assignment of Responsibilities ................................................... 1 3.2.1 Mayor and City Council ............................................................... 2
3.2.2 City Manager .............................................................................. 2
3.2.3 Executive Managers (Eugene)/Department Directors
(Springfield) ................................................................................ 3
3.2.4 Emergency Manager................................................................... 4 3.2.5 Disaster Teams and Committees ................................................ 4
3.3 Private Sector ............................................................................. 5
3.4 Other Agencies ........................................................................... 5
3.5 County, State, and Federal Response Partners ......................... 6
3.5.1 Lane County Fire Defense Board ............................................... 6 3.5.2 Integration of Response Partners ............................................... 7
4 Concept of Operations .................................................. 1
4.1 General ....................................................................................... 1
4.2 Incident Management Response Framework ............................. 1
4.3 Emergency Management Mission Areas .................................... 1
4.2.1 Prevention ................................................................................... 2 4.2.2 Protection .................................................................................... 2 4.3.3 Mitigation .................................................................................... 2
4.3.4 Response .................................................................................... 2
4.3.5 Recovery .................................................................................... 3
4.4 Response and Coordination ....................................................... 3
4.4.1 Incident Management ................................................................. 3 4.4.2 Incident Response Levels ........................................................... 3
4.4.2.1 Level 4 - Routine ......................................................................... 3
4.4.2.2 Level 3 - Incident ........................................................................ 3
4.4.2.3 Level 2 - Emergency ................................................................... 4
4.4.2.4 Level 1 - Catastrophic ................................................................. 4 4.4.3 Alerts, Warnings, and Interoperable Communications ................ 4
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4.5 Response Priorities ..................................................................... 4 4.5.1 Jurisdictional Response Authority ............................................... 5
4.6 Response Coordination .............................................................. 5
4.7 Recovery ..................................................................................... 5
5 Command and Control .................................................. 1
5.1 Emergency Operations Center ................................................... 1
5.1.1 Emergency Operations Center Activation Thresholds ................ 4 5.1.1.1 Minor ........................................................................................... 4 5.1.1.2 Monitoring and Assessment ........................................................ 4
5.1.1.3 Partial .......................................................................................... 4
5.1.1.4 Full .............................................................................................. 4
5.1.2 Emergency Operations Center Activation ................................... 4
5.1.3 Emergency Operations Activation Authority ................................ 5 5.1.4 Emergency Operations Center Organization .............................. 5
5.1.4.1 Command Staff ........................................................................... 6
5.1.4.2 General Staff ............................................................................... 7
5.1.5 Initial Action ................................................................................ 9
5.2 Emergency Declaration Process ................................................. 9 5.2.1 Declaration Authority................................................................... 9
5.2.2 Declaration Process .................................................................. 10
5.2.3 Submission to the County ......................................................... 10
5.2.4 State and Federal Declaration .................................................. 10
5.3 Resource Coordination ............................................................. 11 5.3.1 Resource Requests, Allocations, Distributions ......................... 11
6 Plan Development, Maintenance and
Implementation .............................................................. 1
6.1 Plan Review and Maintenance ................................................... 1
6.2 Training Program ........................................................................ 2
6.3 Exercises .................................................................................... 3
6.4 After Action Reports and Event Review ...................................... 3 6.5 Community Outreach .................................................................. 3
A Maps ............................................................................... 1
B Sample Disaster Declaration Forms............................. 1
C Authorities and References .......................................... 1
D Acronyms and Glossary ............................................... 1
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Emergency Support Function Annexes Federal:
ESF 1 – Transportation
ESF 2 – Communications
ESF 3 – Public Works and Engineering
ESF 4 – Firefighting ESF 5 – Emergency Management
ESF 6 – Mass Care, Emergency Assistance, Housing, and Human
Services
ESF 7 – Logistics Management and Resource Support
ESF 8 – Public Health and Medical Services ESF 9 – Search and Rescue
ESF 10 –Hazardous Materials Response
ESF 11 – Agriculture and Natural Resources
ESF 12 – Energy
ESF 13 – Public Safety and Security ESF 14 – Long-Term Community Recovery ESF 15 – Public Information and External Affairs
Eugene/Springfield
ESF 16 – Mass Fatality Management ESF 17 – Volunteer and Donations Management ESF 18 – Continuity of Government
ESF 19 – Business and Economic Stabilization
Support Annexes SA A – Debris Management SA B – Damage Assessment
SA C – Employee Services
Incident Annexes IA 1 – Hazardous Materials (Accidental Release) IA 2 – Terrorism
IA 3 – Infectious Diseases
Operational Annexes OA 1 – EOC Activation/Operations
OA 2 – EOC Position Roles and Responsibilities
OA 3 – Disaster Declaration Process
OA 4 – Leadership Communication Plan
OA 5 – Incident Command System
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xiii September 1, 2014
List of Figures and Tables
Figures
Figure 1-1 Eugene Springfield Multi-Jurisdictional EOP Organization .......................................................................... 4
Figure 2-1 Map of the Eugene-Springfield Metro Area ........................... 2
Figure 5-1 EOC Staffing Structure .......................................................... 2
Tables
Table 1-1 Emergency Support Functions .............................................. 5
Table 1-2 Primary and Support Departments ESF Responsibility
Matrix..................................................................................... 7
Table 1-3 List of Support Annexes ........................................................ 9
Table 1-4 List of Incident Annexes ........................................................ 9
Table 1-5 List of Operational Annexes ................................................ 10
Table 1-6 Special Districts ................................................................... 11
Table 1-7 City of Eugene Lines of Succession .................................... 12
Table 1-8 City of Springfield Lines of Succession ............................... 12
Table 2-1 Eugene and Springfield Risk Matrix ...................................... 5
Table 5-1 Emergency Operations Center Activation Authority .............. 5
Table 6-1 Plan Development and Update Schedule (Calendar
Year) ..................................................................................... 1
Table C-1 Legal Authorities .................................................................... 3
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Attachment 2, Page 14 of 114
Basic Plan
Attachment 2, Page 15 of 114
Attachment 2, Page 16 of 114
1 September 1, 2014
1 Introduction
1.1 General
The Eugene Springfield Multi-Jurisdictional Emergency Operations Plan
(EOP) provides the structure and mechanism to ensure resource collaboration
and operational coordination for the City of Eugene and the City of
Springfield. The EOP provides the framework for the Cities of Eugene and
Springfield to augment their individual jurisdiction’s capabilities, while
preserving their territorial authority, to effectively respond to and recover from
a significant incident. The Basic Plan provides overarching guidance.
Consistent with the model provided in the National Response Framework
(NRF) and inclusive of the National Incident Management System (NIMS),
this EOP can be partially or fully implemented in the context of a threat,
anticipation of a significant emergency, and in response to or recovery from a
catastrophic incident. Although no plan can anticipate all situations and
conditions that may arise during an emergency, this plan provides the
foundation and guidance to effectively manage and support a City-wide
incident or a multi-jurisdictional emergency.
There is no guarantee that the procedures and implementation instructions
included in this plan will produce a “perfect” response. Although this plan
describes resource collaboration utilizing multiple jurisdictions, government
assets and systems are vulnerable to a multitude of natural and technological
hazards that may result in a county-wide disruption of service. The Cities of
Eugene and Springfield will make every reasonable effort to respond based on
the situation, information, and resources at the time of the disaster.
1.1.1 Whole Community Planning
The “Whole Community” planning approach is based on the recognition that it
takes all aspects of a community to effectively prepare for, protect against,
respond to, recover from, and mitigate against any disaster. This includes all
emergency management partners, both traditional and nontraditional, such as
volunteer, faith-, and community-based organizations; the private sector; and
the public, including survivors of an incident.
Every person who lives or works in the Eugene-Springfield Metro Area shares
responsibility for minimizing the effects and risks of disasters on the
community. These individual responsibilities include hazard awareness,
knowledge of appropriate protective actions, taking proactive steps to mitigate
the effect of anticipated hazards, and preparations for personal and family
safety and self-sufficiency.
Attachment 2, Page 17 of 114
Eugene-Springfield Multi-Jurisdictional EOP Basic Plan
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To the greatest extent possible, the Cities of Eugene and Springfield will assist
residents in carrying out this responsibility by providing preparedness and
mitigation information and delivering critical public services during a disaster.
However, a major emergency is likely to damage the Eugene-Springfield
Metro Area’s critical infrastructure and reduce the workforce available to
continue essential government services. Knowledgeable community members
prepared to take care of themselves and their families can make a significant
contribution towards survival and community resiliency.
1.1.2 Access and Functional Needs Populations
The Cities of Eugene and Springfield recognize that throughout all mission
areas and phases of emergency management, the government must take into
account the needs of the whole community. When considering those with
special needs and others who are at risk, emergency management plans should
take into account the fact that effective preparedness outreach to these
populations may increase survival and self-reliance.
Populations with access and functional needs may include members of the
community who:
Have disabilities.
Live in institutionalized settings.
Are elderly.
Are children.
Are from diverse cultures.
Have limited English proficiency or are non-English-speaking.
Are transportation disadvantaged.
These members of the community may have needs before, during, and after an
incident in access and functional areas, including but not limited to,
maintaining independence, communication, transportation, supervision, and
medical care.
1.2 Purpose and Scope
1.2.1 Purpose
The purpose of the EOP is to establish a comprehensive, all-hazard approach to
protect the safety, health, and welfare of the community. The EOP provides a
framework for interaction between the two Cities and Lane County (County),
State of Oregon (State), and federal agencies, as well as public and private
organizations following a significant event. The EOP provides the following:
Attachment 2, Page 18 of 114
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3 September 1, 2014
An all-hazard analysis of the type of emergencies likely to impact the
Eugene-Springfield Metro Area.
A framework for multi-discipline and multi-jurisdictional coordination
and collaboration.
An overview of all phases of disaster management though mitigation,
preparedness, response, and recovery activities.
Designates NIMS as the operational framework and the Incident
Command System (ICS) as the management structure.
Identifies roles and responsibilities of City departments, offices, and
personnel in emergency operations, as well as those of cooperating
public- and private-sector agencies.
Provides clear guidelines and procedures for requesting and allocating
resources to support single jurisdiction and multi-jurisdiction
response and recovery activities.
Outlines clear guidelines and procedures for ensuring consistent and
timely release of emergency public information.
1.2.2 Scope
This plan incorporates a broad range of complex and constantly changing
operational requirements in anticipation of or in response to threats or acts of
terrorism, major disasters, and other natural or human-caused emergencies.
This plan is intended to guide the Cities of Eugene and Springfield emergency
operations while complementing and supporting the emergency plans and
procedures of responding agencies, other local governments, special districts,
and other public- and private-sector entities.
The plan and its appendices describe the scope of work for the response of the
City of Eugene, the City of Springfield, and supporting entities. City
operations and coordination will support the direct response of County, State,
regional, and private-sector entities. The scope of the EOP applies to all City
departments, agencies, and emergency partners that may be requested to
support or provide assistance in an actual or potential incident that overwhelms
a jurisdiction’s resources. The severity of these types of incidents requires a
coordinated response plan that provides the structure and mechanism to ensure
resource collaboration to support City government and communities during
such an event.
1.3 Plan Activation
Once promulgated, this EOP is in effect and may be implemented in whole or
in part to respond to:
■ Incidents in or affecting the Cities of Eugene and Springfield.
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4 September 1, 2014
■ Public health emergencies in or affecting the Cities of Eugene and
Springfield.
■ Non-routine life-safety issues in or affecting the Cities of Eugene
and Springfield that have the potential to overwhelm the
jurisdiction’s resources.
1.4 Plan Organization
This plan is consistent with the Comprehensive Preparedness Guide 101
Version 2 and is in alignment with NIMS and the NRF. The Eugene
Springfield Multi-Jurisdictional EOP is composed of five main elements, under
continuous development:
■ Basic Plan.
■ Emergency Support Function Annexes (ESFs).
■ Support Annexes (SAs).
■ Incident Annexes (IAs).
■ Operational Annexes (OAs).
Figure 1-1 Eugene Springfield Multi-Jurisdictional EOP
Organization
1.4.1 Basic Plan
The purpose of the Basic Plan is to:
■ Provide a description of the legal authorities upon which the Cities
of Eugene and Springfield structure their Emergency Management
Organizations (EMOs), including the emergency declaration
process, activation of mutual aid agreements, and requests for
resources and emergency spending powers.
■ Describe the context under which the Cities of Eugene and
Springfield will respond to an incident, independently or in
collaboration, a community profile for each jurisdiction and hazards
and threats facing the community.
Basic Plan
ESF
Annexes
Support Annexes Incident Annexes Operational Annexes
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Eugene-Springfield Multi-Jurisdictional EOP Basic Plan
1. Introduction
5 September 1, 2014
■ Assign and describe roles and responsibilities for each jurisdiction
and their employees tasked with emergency preparedness and
response functions.
■ Describe a concept of operations for the Cities of Eugene and
Springfield that defines how the jurisdictions will conduct
emergency operations and coordinate with other agencies and
partners.
■ Describe the Cities of Eugene and Springfield emergency response
structure, including activation and operation of the Emergency
Operations Center (EOC) and implementation of ICS.
■ Discuss the protocols for maintaining and reviewing this EOP,
including training, exercises, and public education components.
1.4.2 Emergency Support Function Annexes
To facilitate effective preparedness and operational activities, this EOP adopts
a functional approach that groups the types of assistance to be provided into 19
ESFs. Each ESF is headed by a primary City department or agency selected
based on its authorities, resources, and capabilities. The primary department
and/or agency appoints Points of Contact to manage each ESF’s function in the
City EOC. The federal ESF organization will work with the State, County, and
City ESF Points of Contact to ensure that resources and services are provided
in a timely manner. This EOP integrates both an ICS and ESF command
structure, without losing any of the integrity of either system. The City of
Eugene and the City of Springfield will, independently, incorporate the ESF
program into their standard operating procedures (SOPs). The ESF Annexes
are separate, stand-alone documents that supplement the Basic Plan. ESFs will
be developed and added to this EOP according to the schedule shown in Table
6-1.
Table 1-1 Emergency Support Functions
Annex Function
ESF 1 Transportation
ESF 2 Communications
ESF 3 Public Works and Engineering
ESF 4 Firefighting
ESF 5 Emergency Management
ESF 6 Mass Care, Emergency Assistance, Housing and Human Services
ESF 7 Logistics Management
ESF 8 Public Health)
ESF 9 Search and Rescue
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Table 1-1 Emergency Support Functions
Annex Function
ESF 10 Hazardous Materials Response
ESF 11 Agriculture and Natural Resources
ESF 12 Energy
ESF 13 Public Safety
ESF 14 Long-Term Community Recovery
ESF 15 Public Affairs and External Affairs
ESF 16 Mass Fatality Management
ESF 17 Volunteer and Donations Management
ESF 18 Continuity of Government
ESF 19 Business and Economic Stabilization
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Table 1-2 Primary and Support Departments ESF Responsibility Matrix
Emergency
Support
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S S S S S S P S P P
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S S S S P P P S S S S S S P S S P S S
Library, Recreation,
and Cultural Services
S S P S S S
Finance S S S S S S S S S S S S S S S S S S S
Fire & EMS S S P S S S P S P S S S
Legal S S S
Parks and Open
Space
S S P S S
Planning and
Development
S S S S P S S
Police S P S S S P S S S S
Public Works P P S S S P S S S
Risk Services S S S
Facility Management S S S S S S S
Attachment 2, Page 23 of 114
Eugene-Springfield Multi-Jurisdictional EOP Basic Plan
1. Introduction
8 September 1, 2014
Table 1-2 Primary and Support Departments ESF Responsibility Matrix
Emergency
Support
Functions ES
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Attachment 2, Page 24 of 114
Eugene-Springfield Multi-Jurisdictional EOP Basic Plan
1. Introduction
9 September 1, 2014
1.4.3 Support Annexes
SAs describe how governments, the private sector and volunteer organizations,
and nongovernmental organizations coordinate common functional processes
and administrative requirements necessary to ensure effective incident
management. SAs are separate, stand-alone documents that supplement the
Basic Plan.
Each annex is managed by one or more coordinating departments and is
supported by various cooperating agencies. The SAs are identified below.
Table 1-3 List of Support Annexes
Annex Function Lead Department
Eugene Springfield
SA A Debris Management Public Works Development & Public
Works
SA B Damage Assessment
Infrastructure
Public Works Development & Public
Works
SA C Employee Services Library, Recreational
and Cultural Services,
and Central Services
Human Resources
1.4.4 Incident Annexes
IAs provide tactical information and critical tasks unique to specific hazards
that have been identified in the Eugene Springfield Multi-Jurisdictional Natural
Hazard Mitigation Plan. The IAs are designed as functional checklists that
identify step-by-step actions for each hazard through the pre-incident,
response, and recovery phases of an incident.
Table 1-4 List of Incident Annexes
Annex Function Lead Department
Eugene Springfield
IA 1 Hazardous Materials Fire Fire
IA 2 Terrorism Police Police
IA 3 Infectious Diseases Fire Fire
1.4.5 Operational Annexes
OAs outline the tactical roles of basic emergency response such as EOC
activation, specific roles and responsibilities, disaster declaration, and Incident
Command.
Attachment 2, Page 25 of 114
Eugene-Springfield Multi-Jurisdictional EOP Basic Plan
1. Introduction
10 September 1, 2014
Table 1-5 List of Operational Annexes
Annex Function
OA 1 EOC Activation/Operations
OA 2 EOC Position Roles and Responsibilities
OA 3 Disaster Declaration Process
OA 4 Leadership Communication Plan
OA 5 Incident Command System
1.5 Relationship to Other Plans
The EOP is supported by a number of other plans within or affecting the area
that contain information and resources useful in all phases of emergency
management. Plans of significance are listed and linked below.
1.5.1 Federal Plans
2003 Homeland Security Presidential Directive 5 (HSPD-5)
Presidential Policy Directive 8 (PPD-8)
National Response Framework (NRF)
National Disaster Recovery Framework
National Infrastructure Protection Plan
1.5.2 State Plans
The State of Oregon Emergency Operations Plan
State of Oregon Cascadia Subduction Zone Catastrophic Earthquake
and Tsunami Operations Plan
1.5.3 County Plans
2012 Lane County Emergency Operations Plan
2012 Lane County Hazard Mitigation Plan
2008 Lane County Public Health Plan
2008 Lane County Community Wildfire Protection Plan
1.5.4 Regional and Metropolitan Plans
The Eugene-Springfield Multi-Jurisdictional Natural Hazard Mitigation
Plan
The Eugene-Springfield Metropolitan Area General Plan or Metro Plan
The Eugene Springfield Transportation Plan (TransPlan)
Attachment 2, Page 26 of 114
Eugene-Springfield Multi-Jurisdictional EOP Basic Plan
1. Introduction
11 September 1, 2014
Eugene-Springfield Metropolitan Area Public Facilities and Services
Plan
1.5.5 City Plans
1.5.5.1 City of Eugene
Community Climate and Energy Action Plan
City of Eugene Comprehensive Stormwater Management Plan
Stormwater Basin Master Plan
1.5.5.2 City of Springfield
Stormwater Facilities Master Plan
Stormwater Management Plan
Wastewater Master Plan
1.5.6 Special District Emergency Plans
Special districts are responsible for establishing liaison with the City and
County organizations to support emergency management capabilities for the
community. Special districts (e.g., education, water, fire and rescue districts)
provide primary emergency response for incidents in their areas using their
own plans, policies, and procedures, which are coordinated with County and
City emergency plans. Most special district incident response is limited to
activities directly related to the service(s) they provide. They rely on support
from external agencies during response to a major incident.
Table 1-6 Special Districts
Name Type
Eugene
Eugene School District 4J Education
Bethel School District #52 Education
Eugene Water and Electric Board Water, Electricity
Santa Clara Fire District Fire
University of Oregon Education
Lane Community College Education
Private Colleges and Universities Education
Springfield
Springfield Utility Board Water, Electricity
Rainbow Water District Water
Glenwood Water District Water
Attachment 2, Page 27 of 114
Eugene-Springfield Multi-Jurisdictional EOP Basic Plan
1. Introduction
12 September 1, 2014
Table 1-6 Special Districts
Name Type
Eugene Water and Electric Board Electricity
Emerald People’s Utility District Electricity
Springfield School District 19 Education
Eugene School District 4J Education
Willamalane Park and Recreation District Park and Recreation
1.6 Government Structure
Eugene and Springfield are both charter cities operating under council-
manager forms of government, with the councils enacting policy and the City
Managers responsible for day-to-day operations of the City.
1.7 Continuity of Government
1.7.1 Lines of Succession
To maintain city operations and ensure the orderly continuation of leadership
in an emergency situation, the following order of responsibility has been
established for each jurisdiction, illustrated in Table 1-7 and Table 1-8.
Table 1-7 City of Eugene Lines of Succession
Emergency Coordination Emergency Policy and Governance
1. City Manager
2. Assistant City Manager
3. Central Services Director
4. Public Works Director
1. Mayor
2. Council members (order of succession)
Table 1-8 City of Springfield Lines of Succession
Emergency Coordination Emergency Policy and Governance
1. City Manager
2. Assistant City Manager
3. Development & Public Works
Director
4. Fire and EMS Chief/Deputy
5. Police Chief
6. Emergency Manager
1. Mayor
2. Council members (order of succession)
3. City Manager
An additional succession line is stipulated in Eugene Code, Chapter 2; 2.1035,
which states, “the municipal judge, the city manager, and the chief officer or
head of each department of city government shall designate not less than three
nor more than seven emergency interim successors in addition to duly
Attachment 2, Page 28 of 114
Eugene-Springfield Multi-Jurisdictional EOP Basic Plan
1. Introduction
13 September 1, 2014
authorized deputies, assistants, or subordinates, and specify the order of
succession of the designated emergency interim successors. Designations shall
be in writing filed with the City Recorder and shall be kept in the public
records.” Each City department is responsible for pre-identifying staff for a
clear line of succession in the absence of the highest ranking official or lead
worker.
1.7.2 Preservation of Vital Records
Each City department must provide for the protection, accessibility, and
recovery of the City’s vital records, systems, and equipment. These are
records, systems, and equipment that, if lost or damaged, will impair the City’s
ability to conduct business or carry out essential functions.
1.8 Safety of Employees and Family
All department heads or designees are responsible for the safety of employees.
Employees should attempt to contact their supervisors and managers as soon as
possible following an incident. Departments are tasked with developing their
respective Continuity of Operations (COOP) plans establishing alternate
facilities and staff locations as needed. Notification procedures for employee
duty assignments will follow required procedures established by each
department.
Maintaining a resilient workforce is essential to providing overall response and
recovery activities. Personnel should be provided information to protect
themselves and their families, suitable to hazardous conditions.
All City departments and employees may be expected to contribute to the
emergency response and recovery efforts of the community. Each employee is
encouraged to develop emergency plans to facilitate family safety and self-
sufficiency, which, in turn will enable employees to assume their
responsibilities to the Cities and residents as rapidly as possible.
1.9 Emergency Operations Center
Administration
Information on EOC administration can be found in OA 2 – EOC Position
Roles and Responsibilities and in departmental operating procedures.
Attachment 2, Page 29 of 114
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1. Introduction
14 September 1, 2014
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Attachment 2, Page 30 of 114
1 September 1, 2014
2 Situation and Planning
Assumptions
2.1 Situation
The Cities of Eugene and Springfield are exposed to many hazards, all of which
have the potential to disrupt the community, cause damage, and create casualties.
Emergencies or disasters can occur without warning and cause human suffering,
injury, death, property damage, environmental degradation, loss of essential
services, and economic hardship for the community. The extent of casualties and
damage will reflect factors such as when the event occurs, how severe it is,
weather conditions, population density, and the possible triggering of secondary
risks, such as fires and floods. Initial emergency response activities focus
primarily on minimizing loss of life, property, and damage to critical
infrastructure, including cultural and economic assets. Department-specific
procedures and protocols define support functions and critical tasks that will be
implemented in conjunction with the EOP as needed or required.
2.1.1 Community Profile
The Cities of Eugene and Springfield comprise an area of 59.4 square miles
and are located at the southern end of the Willamette Valley. The Cities are
situated at the confluence of the Willamette and McKenzie Rivers, between the
Coast Range and the Cascade Mountains, about 50 miles east of the Pacific
Coast. They are separated by Interstate 5.
Attachment 2, Page 31 of 114
Eugene-Springfield Multi-Jurisdictional EOP Basic Plan
2. Situation and Assumptions
2 September 1, 2014
Figure 2-1 Map of the Eugene-Springfield Metro Area
2.1.2 Population and Demographics
The Eugene/Springfield area is the second largest metropolitan area in Oregon.
The 2010 census population estimates for the Cities of Eugene and Springfield
were 156,185 and 59,403, respectively. The 2010 estimates are approximately
13.3% higher than the 2000 estimates for Eugene and 12.4% higher for
Springfield
Disaster impacts (in terms of loss and the ability to recover) vary among
population groups following a disaster. Historically, 80% of the disaster
burden falls on the public. Of this number, a disproportionate burden is placed
upon special needs groups, particularly children, the elderly, the disabled,
minorities, and low income persons. The Eugene/Springfield area has a
substantial population of children and elderly adults. In the 2010 census, the
population of Eugene and Springfield residents less than 18 years old was
estimated to be 18% and 24%, respectively. Additionally, the population of
residents 65 years and over residing in Eugene was 13% and 11% for
Springfield. According to the 2010 census, approximately 21.5% of
individuals live in poverty in Eugene and 19.9% in Springfield. The disabled
are a high needs population that must be considered when planning for
emergencies. Almost 42% of Eugene’s elderly population is classified as
disabled, while roughly 45% of Springfield’s elderly population is considered
disabled.
Attachment 2, Page 32 of 114
Eugene-Springfield Multi-Jurisdictional EOP Basic Plan
2. Situation and Assumptions
3 September 1, 2014
2.1.3 Transportation
Interstate 5, which connects Oregon to Washington and California, runs
between the Cities of Eugene and Springfield. State Highway 99 also runs
north-south through the City of Eugene. State Highway 126 runs east-west
through both Eugene and Springfield, connecting the Cities to the Oregon
coast and to communities east of the Cascade Mountains. Public transit is
provided by the Lane Transit District, which covers most of Lane County.
Union Pacific owns and operates rail that runs north-southeast through Eugene.
Additionally, there is a smaller cargo rail connecting the Eugene and
Springfield area to the coast. Amtrak also runs passenger trains daily through
the area.
The City of Eugene owns and operates the Eugene Airport, which is the second
largest airport in Oregon and fifth largest airport in the Pacific Northwest. The
Eugene Airport serves a six-county region and connects the Eugene/
Springfield area to large and small western cities such as Portland, Seattle,
Medford, and Salt Lake City.
2.1.4 Protection of Critical Infrastructure and Key
Resources
Critical Infrastructure and Key Resources (CIKR) are owned and operated by
the each of the Cities or local partners and support the delivery of critical and
essential services. These resources are necessary to ensure the Eugene-
Springfield Metro Area’s security, public health and safety, and economic
vitality. CIKR includes the assets, systems, networks, and functions that
provide vital services to the City, State, region, and, sometimes, the nation.
The Federal Emergency Management Agency (FEMA) has identified 16
Critical Infrastructure Sectors. More information about these sectors can be
found at Critical Infrastructure Sectors.
2.2 Threat/Hazard Identification
A wide range of natural and human-caused hazards have the potential to
disrupt the community, causing casualties and/or damaging property and the
environment. The following is a hazard and threat specific overview
describing occurrence and impact to the Eugene Springfield area. More
information can be found in the 2009 Eugene/Springfield Multi-Jurisdictional
Natural Hazards Mitigation Plan.
Earthquake: The Eugene/Springfield area has not experienced any
major earthquake events in recent history. Seismic events do,
however, pose a threat. In particular, a Cascadia Subduction Zone
event could produce devastating damage and loss of life.
Attachment 2, Page 33 of 114
Eugene-Springfield Multi-Jurisdictional EOP Basic Plan
2. Situation and Assumptions
4 September 1, 2014
Flood: Flooding is frequent in the Eugene and Springfield area.
Riverine flooding, in particular, is the leading cause of flooding
events and occurs when warm winter rain melts mountain snow.
Landslide: The severity or extent of landslides is typically a function
of geology and the landslide triggering mechanism. Rainfall-
initiated landslides tend to be smaller than earthquake-induced
landslides, which may be very large. Even small slides can cause
property damage, result in injuries, or take lives.
Volcano: The Cascade Range of the Pacific Northwest has more than a
dozen active volcanoes. Volcano-related hazards that could most
likely affect the Eugene/Springfield area are volcanic ash (tephra)
and flooding from lahars.
Wildfire: Fire is an essential part of Oregon’s ecosystem, but it is also
a serious threat to life and property. The size of the Eugene/
Springfield wildland-urban interface makes wildfire a hazard worth
addressing.
Winter Storm: Destructive winter storms that produce heavy snow,
ice, rain, freezing rain, and high winds typically originate in the
Gulf of Alaska or in the central Pacific Ocean. These storms are
most common from October through March. The recurrence
interval for severe winter storms throughout Oregon is about every
13 years; however, many localized storms may occur between these
periods.
Dam Safety: While not a natural hazard, dam safety is of concern to
the residents of Eugene and Springfield because of their proximity
to earthquake and landslide hazards in the region.
Hazardous Materials: Hazardous materials can be found throughout
Eugene and Springfield and, if released into the environment, can
be dangerous to community residents and the surrounding
environment.
Terrorism: The Eugene and Springfield area has a history of
environmental activism that has occasionally manifested itself in
violent acts. In addition, the large sporting events that are hosted in
the area, such as national and international track events, are
vulnerable to terrorist attacks.
Pandemic. The potential for pandemic influenza and the possibility of
bioterrorism together generate the threat of a major health
emergency in the area. Major threats include flu outbreaks and
food/waterborne illness. Detection, surveillance, and epidemiology
are crucial elements in responding to potential health hazards.
Attachment 2, Page 34 of 114
Eugene-Springfield Multi-Jurisdictional EOP Basic Plan
2. Situation and Assumptions
5 September 1, 2014
Transportation Disruption. This hazard includes major incidents
involving motor vehicles, trains, aircraft or vessels. Both freight
and passenger trains travel through the area and Interstate 5 bisects
the Cities of Eugene and Springfield. Additionally, flight paths for
the Eugene Airport cross parts of the Cities of Eugene and
Springfield.
Tsunami (population migration). The Eugene/Springfield area is
located along a travel route from the Oregon coast. Therefore, the
Cities may be impacted by this proximity and the associated needs
of residents fleeing a tsunami. The Eugene/Springfield area may be
additionally impacted if a regional earthquake is the cause of the
tsunami.
Utility Disruption (power, water, wastewater). Utility or
infrastructure emergencies involving failure or disruption of
electrical, telephone, computer, water, fuel, sewer, or sanitation
systems may impact large populations within the area. An
additional hazard is created by a major natural gas pipeline crossing
the area. Hazards increase significantly if incidents include a fire or
explosion, a release of hazardous materials, or large numbers of
casualties
Civil Unrest. This hazard may include protests, strikes,
demonstrations, or riots. Civil disorder can begin non-violently but
can quickly escalate to a violent collective action.
Table 2-1 Eugene and Springfield Risk Matrix
Hazard Vulnerability Probability
Winter Storm* High High
Flood: Riverine *** Medium Medium
Flood: Stormwater *** Low High
Wildfire: Eugene *** Medium High
Wildfire: Springfield *** Low High
Terrorism: Domestic Low High
Terrorism: International Medium Low
Landslide: Eugene Low High
Landslide: Springfield Low Medium
Hazardous Materials incident Medium High
Earthquake: Subduction Zone High Medium
Earthquake: Crustal High Low
Earthquake: Intraplate High Low
Attachment 2, Page 35 of 114
Eugene-Springfield Multi-Jurisdictional EOP Basic Plan
2. Situation and Assumptions
6 September 1, 2014
Volcano High Medium
Dam Safety High Low
*Winter storm includes snow, ice, and wind
*** Continued mitigation planning assumes climate change will lead to higher probability in the future
Source: 2009 Multi-Jurisdictional Natural Hazard Mitigation Plan
Vulnerability
High More than 10% of population or assets to be affected
Med 1%–10% of population or assets to be affected
Low Less than 1% of population or assets to be affected
Probability
High One incident likely within 10–35 years
Med One incident likely within 35–75 years
Low One incident likely within 75–100 years
2.2.1 Capability Assessment
The City of Eugene uses the Department of Homeland Security, National
Preparedness standard Core Capabilities to assess the emergency management
program and identify areas for improvement. The Cities of Eugene and
Springfield work with the County to develop plans, agreements, procedures,
exercises, and critical tasks needed for strengthening regional capabilities.
2.3 Assumptions
This EOP is based on the following assumptions and limitations:
Each City will retain its autonomy and will handle emergencies at its
individual local level until an incident reaches a size that demands
multi-jurisdictional resource collaboration.
Personnel may be unable or unavailable to report to work. Certain
operations or services may be unavailable due to blocked access or
damage to facilities.
Some incidents occur with enough warning that appropriate notification
can be issued. Other incidents occur with no advance warning.
Overwhelmed systems could impair communication.
Non-essential operations may be curtailed to free up resources to
respond to the event.
The Cities are dependent on privately owned and operated critical
infrastructure, including water, fuel, and power utilities, to provide
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services. If inoperable or depleted, response and recovery efforts
may be delayed.
Residents may need to utilize their own resources and be self-sufficient
following an emergency event for one week or more. Vulnerable
populations will require additional resources to meet access and
functional needs.
A large-scale incident will exceed the emergency response capabilities
of the Cities and the state. Additional resources will be required
from other states and/or the federal government to achieve an
effective response.
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3 Roles and Responsibilities
3.1 Emergency Management Organization
Eugene and Springfield each has an EMO, which consists of all levels of City
government. The Mayor, City Council, City Manager, Department Executive
Managers, City Attorney, and individual departments all have certain
responsibilities in the various phases of emergency management for the Cities
of Eugene and Springfield. The EMO is responsible for the City's emergency
preparations (planning, training, and mitigation), as well as response and
recovery operations. It centralizes command and information coordination to
enable its unified chain-of-command to operate efficiently and effectively in
managing the City's resources.
The Cities’ Emergency Management goal is to effectively bring every
available resource to bear against the incident.
The City of Eugene and the City of Springfield have established the following
EMO operational priorities:
Ensure life safety and preservation.
Repair and restore essential systems and services.
Provide a basis for direction and control of emergency operations.
Provide for the protection, use, and distribution of remaining resources.
Provide for continuity of government.
Ensure that recovery activities are completed effectively and timely.
Coordinate resource collaboration with the other jurisdiction when
deemed necessary.
Protect property and the environment.
Practice fiscal responsibility.
3.2 Assignment of Responsibilities
This section provides an overview of the key functions and procedures that the
City of Eugene and the City of Springfield will accomplish during mitigation,
preparedness, response to, and recovery from an emergency. The EOP is built
upon the idea that both Cities will follow their established procedures
regardless of the level or duration of jurisdictional collaboration. Where
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applicable, this plan identifies procedural differences between the two Cities
and points of collaboration.
3.2.1 Mayor and City Council
The ultimate responsibility for policy, budget, and political direction for each
City government is borne by the respective City Councils. During
emergencies, this responsibility includes encouraging public involvement and
assistance, issuing policy statements as needed to support actions and activities
of recovery and response efforts, and providing the political contact needed for
visiting State and federal officials. Additionally, the City Councils will
provide an elected liaison with the community and other jurisdictions.
General responsibilities of the Mayors and City Councils are as follows:
■ Convene the City Council for emergency session(s). (Mayor)
■ Assist in communication and coordination efforts with elected
officials of other governmental entities. (Mayor)
■ Ensure the line of succession. (Mayor and City Council)
■ Be available to address the community, and act as a conduit, within
their respective wards or at evacuation centers. (Mayor and City
Council)
■ Review emergency expenditures and ensure adequate appropriation
of finance resources to meet emergency expenses. (Mayor and City
Council)
■ Coordinate emergency public information with City Manager’s
Office staff and Public Information Officer (PIO). (Mayor and City
Council)
■ Meet, as needed, to provide policy direction and enact ordinances
that reduce the impact to residents. Examples may include flood
plain ordinances, land use and development codes, and anti-price-
gouging ordinances. (Mayor and City Council)
3.2.2 City Manager
The City Managers of Eugene and Springfield are responsible for continuity of
government, overall direction of their Cities’ emergency operations, and
dissemination of public information.
City Manager responsibilities include:
■ Ensuring continuity of government.
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■ Recommending to their City Councils any ordinances, policies, or
procedures that would assist their City Councils and other City
officials in the performance of their duties in preparing for,
responding to, and recovering from an emergency.
■ Declaring a State of Emergency, requesting assistance through Lane
County.
3.2.3 Executive Managers (Eugene)/Department Directors
(Springfield)
The City Managers will determine, based on the nature of an emergency,
which Executive Managers/Department Directors will staff the Policy Rooms.
Executive Managers/Department Directors not immediately reporting to their
EOC will either report to their respective departments to provide staff
assistance or prepare to take a later shift as part of the Executive
Group/Executive Team. The City Attorney's role is to advise other members
of the Executive Group/Executive Team regarding legal matters and provide
assistance in presenting emergency ordinances to their City Councils for
adoption. Members of the Executive Group/Executive Team will determine
which legal measures are to be processed by the City Council. The City
Managers are responsible for declaring a State of Emergency for their
respective cities and, if necessary, requesting additional assistance from other
jurisdictions or higher levels of government. Responsibilities of the Executive
Group/Executive Team are as follows:
■ Provide resources to ensure that staff receive necessary training for
managing emergency events, including maintenance of this EOP.
■ Maintain communication and support with their Mayor and City
Council; stay informed of event status.
■ Determine City services to be curtailed or modified during the
course of an emergency, including determining an appropriate time
for services to come back online.
■ Provide policy guidance to the EOC Manager.
■ Review critical press releases prior to release.
■ Determine priorities for City resources.
■ Recommend emergency ordinances to their City Council.
■ Review ordinances for legal and liability issues.
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3.2.4 Emergency Manager
The Cities of Eugene and Springfield each have designated staff members as
their Emergency Managers. The purpose of the Emergency Manager position
is to ensure that the day-to-day functions of the EMO are performed and to
maintain situational awareness of potential threats or hazards to their City.
Responsibilities of the Emergency Managers include:
■ Ensuring that all City departments develop, maintain, and exercise
their respective Emergency Support Functions and annexes to this
plan.
■ Updating the EOP.
■ Providing coordination of emergency plans, programs, and
operations with the County and neighboring jurisdictions and other
public and private agencies with emergency services
responsibilities.
■ Serving as the primary EOC Manager during activations.
■ Serving as day-to-day liaison between Eugene-Springfield, the
County, public, volunteer, private, and other agencies for
emergency planning.
■ Convening disaster team and committee meetings.
3.2.5 Disaster Teams and Committees
The Cities of Eugene and Springfield have developed City staff groups to
oversee the design, development, and implementation of emergency
management activities.
City of Eugene Disaster Operations Task Team comprises representatives from
all City departments and is charged with the following responsibilities:
Ensuring that designated staff have completed required training.
Ensuring employee participation in emergency management exercises.
Encouraging employees to prepare their homes and families for
emergencies.
Participating in regularly scheduled meetings.
Ensuring that the primary and alternative EOC locations are in a state
of operational readiness.
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Ensuring that their departments are accountable for fulfilling their
essential functions outlined in their standard operating policies and
procedures.
Updating appropriate EOP annexes.
City of Springfield Emergency Management Committee – The Emergency
Management Committee is an interdepartmental team established through the
authority of the City Manager/Director of Emergency Services that seeks to
reduce Springfield’s vulnerability to loss of life and injury to persons, property,
the built and natural environments, and economic vitality resulting from
emergencies through effective strategies and practices of mitigation,
preparation, response, and recovery and fostering individual, community, and
City resilience.
Eugene/Springfield Community Emergency Response Team (CERT) –The
Cities support a multi-jurisdictional CERT team trained to respond in
communities and support the Cities upon request.
3.3 Private Sector
Private-sector organizations, such as the Lane County Local Emergency
Planning Committee, play a key role before, during, and after an incident.
Owners/ operators of certain regulated facilities or hazardous operations may
bear responsibilities under the law for preparing for and preventing incidents
from occurring and responding to an incident once it occurs. Partnership with
private industry is crucial for a whole community emergency response concept.
3.4 Other Agencies
Nongovernmental and volunteer organizations play enormously important
roles before, during, and after an incident. In the Eugene-Springfield Metro
Area, nongovernmental organizations such as the American Red Cross (Red
Cross) provide sheltering, emergency food supplies, counseling services, and
other vital support services to support response and promote the recovery of
disaster victims. Nongovernmental organizations collaborate with responders,
governments at all levels, and other agencies and organizations.
The roles of nongovernmental organizations prior to and during an emergency
may include:
■ Training and managing volunteer resources.
■ Identifying shelter locations and needed supplies.
■ Providing critical emergency services to those in need, such as
cleaning supplies, clothing, food shelter, and assistance with post-
emergency cleanup.
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■ Identifying those whose needs have not been met and helping to
coordinate assistance for them.
These organizations include but are not limited to:
Red Cross.
Amateur Radio Emergency Service.
Radio Amateur Civil Emergency Service.
Oregon Voluntary Organizations Active in Disaster.
3.5 County, State, and Federal Response
Partners
The Lane County Emergency Management Program provides a coordinated
response to a major emergency or disaster and may deploy resources under the
direction of the County to respond should emergency conditions exist that
threaten residents of the Cities of Eugene and Springfield.
Under Oregon statutes, the Governor has broad responsibilities for the
direction and control of all emergency activities in a State-declared emergency.
In addition, the administrator of the Oregon Office of Emergency Management
(OEM) is responsible to coordinate all activities and organizations for
emergency management within the State and to coordinate in emergency
matters with other states and the federal government.
Under the direction and control of department heads, agencies of State
government represent the State emergency operations organization.
Responsibility for managing state-wide ESFs is assigned by the Governor to
the state-level departments best suited to carry out each function applicable to
the emergency situation. These departments coordinate with their ESF
counterparts at the local and national levels.
Federal response partners are typically requested by OEM in the event that
State resources become limited or specialized services are needed. In most
instances, federal resources become available following a formal declaration of
emergency by the Governor. Thus, procedures and policies for allocating and
coordinating resources at the federal level follow the Oregon EOP and, if
necessary, the NRF.
3.5.1 Lane County Fire Defense Board
The mission of the Lane County Fire Defense Board is to increase firefighter
safety, increase public safety, reduce property damage due to fire or hazardous
material situations, and oversee emergency medical response throughout Lane
County. In addition, the Board’s mission is:
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To provide organizational structure and operational procedures for the
mobilization and direction of the firefighting forces of the Lane
County Mutual Assistance Agreement members that may exceed
the capabilities of one district/department’s fire defenses.
To develop, enact, and maintain policy for the benefit of the members
of the Lane County Fire Defense Board and the organizations over
which it has jurisdiction.
To provide a medium in which to interact and solve the fire service
problems relating to Lane County.
To conform to, and implement when required, the Oregon State Fire
Service Plan.
3.5.2 Integration of Response Partners
As the response effort unfolds and additional resources and personnel are
requested to augment existing capabilities, personnel from other local, State, or
federal agencies will integrate into the Incident Command Post and the EOC to
enhance emergency response.
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4 Concept of Operations
4.1 General
City government has a responsibility to protect public health and safety and to
preserve property and the environment from the effects of a disaster, to the
extent possible. In keeping with the foundational emergency management
principle that “all disasters are local,” each jurisdiction is responsible for
preparing and responding to all hazards that affect the community. City
government is also responsible for organizing, training, and equipping
emergency personnel with the appropriate facilities and equipment, as well as
providing suitable warning and communications systems.
The concept of operations is to provide assistance to affected visitors and
residents of Eugene and Springfield in a collaborative, unified and expedited
manner. When emergency situations arise the decision may be made to
activate all or part of this plan. In addition, the EOC may be activated based
on the type, size, severity, and expected duration of the emergency.
Responsibilities include management and coordination of large-scale events, as
well as identifying and obtaining additional assistance/resources for emergency
response agencies from the county, state, and/or federal government.
4.2 Incident Management Response Framework
From routine emergencies handled by a single City resource to a major disaster
impacting the entire County or region, all emergency response operations will
adhere to the principles of NIMS and ICS. In Oregon, implementation of
NIMS and ICS is mandatory during an emergency incident.
4.3 Emergency Management Mission Areas
The Cities of Eugene and Springfield undertake a year-round approach to
ensure that City personnel and the community are prepared for an emergency
or disaster, regardless of size or severity. City departments and partner
agencies develop operational capabilities that facilitate response in the event of
a disaster or emergency.
When the community is engaged in personal preparedness, it becomes
empowered to identify its needs and the existing resources that may be used to
address them. Collectively, the community can determine the best ways to
organize and strengthen its resilience. This allows the Cities to better focus
their resources in an emergency response.
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This EOP, by its nature, focuses on response and short-term recovery
activities. Emergency management mission areas focus on activities
conducted by each level of government before, during, and after an emergency.
The overall emergency management mission includes the following activities:
4.2.1 Prevention
Prevention-related actions serve to avoid, intervene, or stop an incident from
occurring and are taken to protect lives and property in the City. This involves
applying intelligence and other information to a range of efforts, such as
deterrence operations; heightened inspections; improved surveillance and
security operations; investigations to determine the full nature and source of
the threat; public health and agricultural surveillance and testing processes;
immunizations, isolation, or quarantine; and, as appropriate, specific law
enforcement operations aimed at deterring, preempting, interdicting, or
disrupting illegal activity; and apprehending potential perpetrators and
bringing them to justice.
4.2.2 Protection
Protection-related actions reduce the vulnerability of CIKR in the City. These
efforts deter, mitigate, or neutralize terrorist attacks, major disasters, and other
emergencies.
Protection-related actions require coordination on the part of federal, State, and
local governments; the private sector; and concerned citizens across the
country. Protection in the City includes continuity of government and
operations planning; awareness elevation and understanding of threats and
vulnerabilities to critical facilities, systems, and functions; and expansion of
voluntary security-related information sharing among private entities, as well
as between government and private entities.
4.3.3 Mitigation
Mitigation is an action to reduce or eliminate long-term risk to people,
property, the environment, and the economy from natural and technological
hazards. Hazard mitigation includes activities that focus on reducing the
vulnerability of critical infrastructure or stopping an incident from occurring.
This EOP, in conjunction with the Eugene-Springfield Multi-Jurisdictional
Natural Hazards Mitigation Plan, provides policy guidance for hazard
mitigation in Eugene and Springfield.
4.3.4 Response
Response involves activities that address the short-term, direct effects of an
incident. Response includes immediate actions to preserve life, property, and
the environment; meet basic human needs; and maintain the social, economic,
and political structure of the community.
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4.3.5 Recovery
Recovery-related activities consist of both short-term and long-term efforts.
Short-term recovery can best be defined as the actions taken by responders to
address and provide for the essential and immediate needs of the community
members in the aftermath of a disaster.
Long-term recovery focuses on restoring communities. This is accomplished
by assisting property owners in repairing or rebuilding homes and businesses
and assisting local governments, school districts, and other public nonprofit
agencies in restoring or reconstructing damaged infrastructure. Post-disaster
mitigation programs should be implemented during the recovery period.
4.4 Response and Coordination
4.4.1 Incident Management
Operational direction and control of response activities within local
jurisdictions is conducted by on-scene Incident Commanders who provide
situational awareness and request resources through the EOC when activated.
4.4.2 Incident Response Levels
The EOP is based on the premise that emergency functions for various city and
regional response agencies involved in emergency management will generally
parallel normal day-to-day functions. As an emergency progresses, lead
response departments will determine the need for additional resources and
request them as needed. The escalation of an incident may impact the ability
to provide services, which may require a change in the operational
collaboration level between the two Cities.
The activation status of either City’s Emergency Operation Center (EOC) and
the response level of the emergency management system do not necessarily
reflect or indicate the operating status of the City government as a whole or
any individual department.
4.4.2.1 Level 4 - Routine
A Level 4 response is a routine emergency response generally limited to one
city and is handled within the normal organizational procedures. It is typically
achievable with the resources of a single department, though it may include
minor support from other departments.
4.4.2.2 Level 3 - Incident
A Level 3 response is one that exceeds the resources of a single city
department and requires support from several departments. It is an occurrence
that is generally limited to one city and requires multi-department response,
and may include activating resources of other agencies through mutual aid
agreements. The City EOC may be activated. Additional resources and
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coordination would be determined by the Incident Commander and may
require multi-jurisdictional resource coordination.
4.4.2.3 Level 2 - Emergency
A Level 2 response affects a large portion of the population, property, and
critical services in Eugene and/or Springfield. Response to a Level 2
emergency requires the activation of the EOC and requires multi-agency
response not normally serving that area. This is an emergency or threat of an
emergency leading to significant damage, injury, or loss of life or property. A
Level 2 response may require a full activation of one or both Cities’ EOCs, and
it may be declared a “State of Emergency”. Additional resources and
coordination would be determined by the Incident Commander and requested
through City EOCs to the County.
4.4.2.4 Level 1 - Catastrophic
A Level 1 response is for a catastrophic disaster that overwhelms local
response capabilities and mutual aid leading to long-term impacts on the
incident area. A Level 1 response will likely require a full activation of both
Cities’ EOCs. A “State of Emergency” would likely be declared. Additional
resources and coordination would be determined by the Incident Commander
and requested through City EOCs to the County, State, and Federal
Government.
4.4.3 Alerts, Warnings, and Interoperable
Communications
Warnings, emergency information, or disaster reports may be received by any
of the departments in the two cities. Such information will be relayed to the
appropriate dispatch center as deemed appropriate. Decisions to respond,
implement this EOP, and activate the EOC will be made by the City Managers,
Emergency Managers, or other designated official.
Interoperable communications systems are addressed in ESF 2.
Alerts and warnings to the public will be prepared and distributed according to
ESF 15.
4.5 Response Priorities
The Cities of Eugene and Springfield have pre-established response strategies
and actions to be taken immediately before, during, or directly after an
emergency occurs to save lives, minimize damage to property and the
environment, and enhance the effectiveness of disaster recovery and business
resumption. Specific City ESF response activities are listed in the various
ESFs supporting this EOP.
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4.5.1 Jurisdictional Response Authority
Responsibility for responding to emergencies rests with local government.
Neighboring jurisdictions, State and Federal agencies will not assume authority
or responsibility for responding to any emergency incident, unless local
response thresholds are exceeded. When requested, these agencies will provide
support to local jurisdictions. The City in which the incident occurs has
jurisdictional authority and primary responsibility for managing the incident.
If the incident affects Eugene and/or Springfield, the impacted city (or cities),
the County, and the State will ensure that life safety and life sustaining
activities continue without interruption for their jurisdictions until federal
assistance arrives.
4.6 Response Coordination
Lead response departments will determine the need for additional assistance
and resources and request them as needed. The escalation of an incident may
impact the Cities’ ability to provide services, which may require a change in
the operational level of the Cities response systems. In these situations,
additional resources will be requested through mutual aid agreements, county,
state, or federal processes.
4.7 Recovery
Concurrent with the immediate response to an emergency, the response
agencies or organizations involved with short- and long-term recovery
operations may need to be activated to provide for ongoing social needs,
planning, and rebuilding damaged infrastructure.
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5 Command and Control
5.1 Emergency Operations Center
The City of Eugene and the City of Springfield operate EOCs. The EOCs are
used to coordinate response to any major disaster or emergency situation.
While the EOC staffing structure mirrors that of an Incident Management
Team (IMT), the EOC staff does not replace the ICS positions that may be
activated to support IMTs in the field nor does it provide operational control to
those positions. The EOC is used to support and coordinate information with
the IMT and outside jurisdictions.
The EOC Manager oversees the functional operations of the EOC to ensure
that response and recovery activities are performed in accordance with NIMS
and ICS principles. These operations are:
Maintain City-wide situational awareness
Coordinate adequate communications.
Obtain and coordinate limited critical resources.
Provide crisis communications and public information.
Evaluate hazards and formulate contingency plans.
Support continuity of operations for essential City functions.
Facilitate recovery processes.
Facilitate multi-jurisdictional resource collaboration.
The City of Eugene and the City of Springfield each operate a “warm” EOC
that can be activated within 30 to 60 minutes. In the event of an escalating
incident for which both jurisdictions agree to collaborate resources, each EOC
will continue to operate independently. The locations of each jurisdiction’s
EOCs are:
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EOC Locations EUGENE SPRINGFIELD
Primary: Sheldon EOC
Fire Station 6
2435 Willakenzie Road
Springfield EOC
230 4th Street
Alternate 1: Fire Training Center
1705 W. Second Avenue
Development and Public
Works – Operations
201 S. 18th Street
Alternate 2: Eugene Police Department
300 Country Club Road
Springfield Library
225 – 5th Street
Alternate 3: Eugene Library
4th Floor
100 W. 10th Avenue
Lane County EOC
Primary EOC: Lane County Public Service Building (Sheriff’s Office),
125 East 8th Avenue, Eugene, Oregon
Alternate EOC: Lane County Public Works “Veneta Shops,” 25398
Jeans Road, Veneta, Oregon
Figure 5-1 EOC Staffing Structure
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Policy
EOC Manager
EOC Operations
Public Safety
ESF 4, 9, 10 (Fire)
ESF 13 (LE)
Infrastructure
ESF 1,3 (PW)
ESF 12
(Utilities)
Human Services
ESF 6
(Mass Care)
ESF 8 (Public Health)
EOC Logistics
ESF 7
(Logistics)
Volunteer
Management
Facilities
ESF 2
(Communication)
IT
Call Center
ARES
Telcom
EOC Planing
Documentation Situation Unit
GIS
Damage Assesment
Recovery
Mitigation
Task Force
Finance/Admin
Time
Procurement
Compensation/Claims
Cost
Safety Officer Liaison Officer
Joint Information
Center
Incident Commander/
Incident Command
Post
County/State/
Partners
Coordination EOC Staffing Structure Figure 5.1
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5.1.1 Emergency Operations Center Activation
Thresholds
EOC operations are dictated by the size and complexity of an event and
generally fall into four categories or phases. These phases maybe modified as
the situation dictates. The general phases of operation are:
5.1.1.1 Minor
The EOC is not activated during routine emergencies. The Emergency
Manager may monitor event(s) if asked by the on-scene Incident Commander.
5.1.1.2 Monitoring and Assessment
The EOC may be activated at a monitoring level in order to assess a small
incident or event that could rapidly escalate, such as a weather event or
wildfire.
5.1.1.3 Partial
Partial activation is for the coordination of an incident that requires more
support than is available at the IMT level. This approach may be optimal for
planned public events, incidents of moderate size, and scope or incidents
requiring specialized resource support. Emergency Management will
determine initial staffing. EOC Command will determine which portions of
the EOP to activate.
5.1.1.4 Full
Full EOC activation is for major incidents that require application of a broad
range of community resources to save lives and protect property. Emergency
plans will be implemented and the EOC will be activated to coordinate
response and recovery activities.
5.1.2 Emergency Operations Center Activation
The Emergency Manager, or designee, is the primary EOC Manager and is
advised of any emergent situations. The Emergency Manager has the
responsibility to monitor and follow up on any threat that has the potential to
impact the City. The Emergency Manger in conjunction with executive
leadership will use this information to determine the need to activate the City
EOC.
Upon activation:
■ The City Emergency Manager is the primary EOC Manager.
■ The on-scene Incident Commander retains tactical control of the
incident; the EOC Manager assumes responsibility for coordinating
and prioritizing resources in support of emergency operations.
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■ The on-scene Incident Commander may establish an on-scene
Incident Command Post and IMT at the scene to maintain close
contact and coordination with the EOC.
■ The EOC Manager will determine the level of EOC staffing
required; alert the appropriate personnel, agencies, and
organizations; and, if multi-jurisdiction resource collaboration is
active, maintain contact with all active EOCs.
■ Emergency operations will be conducted by City Departments,
augmented as required by trained reserves, volunteer groups, and
forces supplied through mutual aid agreements. County, State, and
federal support will be requested as the situation dictates.
Department heads and organization leaders are responsible for the
emergency functions assigned to their activities, as outlined in their
respective annexes.
■ The EOC may, as appropriate, operate on a 24-hour basis or as
needed.
■ The Emergency Manager of the affected City will immediately
notify the County Emergency Management office upon EOC
activation. Periodic updates will be issued as the situation requires.
5.1.3 Emergency Operations Activation Authority
Each jurisdiction is responsible for activating its respective EOC. When the
decision to activate is made, the EOC activation status will be conveyed to
EOC staff as well as any staff that are already engaged in incident monitoring
and assessment. If a jurisdiction’s primary and alternate EOCs are unusable,
an additional EOC site will be selected. Table 5-1, below, illustrates the City
management staff that has authority to activate the EOC.
Table 5-1 Emergency Operations Center Activation Authority
City of Eugene City of Springfield
1. City Manager
2. Assistant City Manager
3. Central Services Director
4. Fire and EMS Chief
5. Public Works Director
6. Police Chief
7. Emergency Manager
1. City Manager
2. Assistant City Manager
3. Fire & EMS Chief
4. Police Chief
5. Development & Public Works
Director
6. Emergency Manager
5.1.4 Emergency Operations Center Organization
The EOC is organized using ICS including the functional areas outlined below
and aligns with any IMTs it supports.
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5.1.4.1 Command Staff
Policy Group
The City Manager, or designee, and Executive Team provide overall direction
and control for emergency actions to preserve public health, protect life and
public property, or provide relief to the community overtaken by such
occurrences.
Whenever an emergency occurs that requires activation of the EOC, the
Executive Team will be activated, in whole or part, to assess the situation and
oversee City department actions. The City Manager makes recommendations
to the Mayor and City Council members on actions for consideration.
Emergency Operations Center Manager
In general, the EOC Manager is responsible for all functions not assigned to
one of the primary ICS sections and for the following specific tasks:
■ Determining EOC objectives and strategies.
■ Approving and supporting implementation of an EOC Incident Action
Plan (IAP).
■ Coordinating all activities supporting the incident or event.
■ Approving release of information through the Public Information
Officer (PIO).
■ Performing the duties of the following Command Staff if no one is
assigned to the position:
o Safety Officer
o PIO
o Liaison Officer
Safety Officer
In general, the Safety Officer is responsible for:
■ Identifying initial hazards and personal protective equipment
requirements and defining decontamination areas.
■ Implementing site control measures.
■ Monitoring and assessing the health and safety of personnel.
■ Preparing and implementing a site Health and Safety Plan and updating
the EOC Manager on safety issues or concerns as necessary.
■ Exercising emergency authority to prevent or stop unsafe acts.
Public Information Officer
A lead PIO will most likely coordinate and manage a larger public information
network representing local, county, regional, and state agencies, political
officials, and stakeholders. These duties include:
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■ Developing and coordinating release of information to incident
personnel, media, and the general public.
■ Coordinating information sharing among the public information
network through the use of a Joint Information System (JIS) and, if
applicable, establishing and staffing a Joint Information Center (JIC).
■ Implementing information clearance processes with the EOC Manager.
■ Conducting and/or managing media briefings and implementing media
monitoring activities.
Liaison Officer
Specific liaison roles may be incorporated into the command structure
established at the City EOC, depending on the type of emergency incident that
has occurred. Liaisons represent entities and organizations such as hospitals,
school districts, public works/utility companies, and volunteer services such as
the Red Cross. Liaison responsibilities typically include:
■ Serving as the contact point for their organization to the EOC.
■ Coordinating information and incident updates among interagency
contacts, including the public information network.
■ Providing resource status updates and limitations regarding personnel,
capabilities, equipment, and facilities.
5.1.4.2 General Staff
Operations Chief
The Operations Chief position is typically filled by the lead department
managing response activities for a specific type of incident. The Operations
Section is typically organized into ESFs representing agencies involved in
operations, such as: fire, law enforcement, public health, and public works.
Private entities, companies, and nongovernmental organizations may also
support the Operations Section. Roles of the Operations Chief include:
The Operations Chief is responsible for:
■ Providing organizational support to IMTs in the field.
■ Managing and coordinating various liaisons representing community
response partners and stakeholders.
■ Directing EOC IAP implementation.
■ Requesting resources needed to support the EOC IAP and IMTs in the
field.
Planning Chief
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The Planning Section is responsible for forecasting future needs and events of
the response effort while ensuring implementation of appropriate procedures
and processes are accomplished. This section is typically supported by four
primary units: Resources, Situation, Documentation, and Demobilization. The
Planning Chief is responsible for:
■ Collecting, evaluating, and distributing information on the incident, and
providing a status summary.
■ Preparing and disseminating the EOC IAP.
■ Conducting planning meetings and status updates for EOC operations.
■ Maintaining resource status.
Logistics Chief
The Logistics section is typically supported by the following units: Supply,
Food, Communications, Medical, Facilities, and Ground Support. Depending
on the incident’s type and size, these units can be divided into two branches:
Service and Support.
The Logistics Chief is responsible for:
■ Providing and managing resources to meet the needs of EOC personnel
and IMTs in the field as requested.
■ Managing various coordinators of particular resources, such as
transportation-related equipment, EOC staff support services, supplies,
facilities, and personnel.
■ Estimating future support and resource requirements.
■ Assisting with development and preparation of the EOC IAP.
■ Ensuring functional communications
Finance/Administration
The Finance/Administration section is specific to the incident type and severity
of resulting impacts. Potential units assigned to this section include
Compensation/Claims, Procurement, Cost, and Time. The Finance and
Administration Chief is responsible for:
■ Monitoring costs related to the entire incident.
■ Maintaining accounting, procurement, and personnel time records.
■ Conducting cost analyses.
Emergency Support Functions
Each City’s EOC will be staffed with representatives of the agencies
responsible for each ESF. This provides a modular structure to activate
capabilities needed to best address the requirements of the incident. The ESFs
are staffed with subject matter experts from primary and supporting agencies
and organizations and are activated as needed and on the basis of the size and
complexity of the incident.
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5.1.5 Initial Action
Upon activation of all or part of this plan, the EOC manager will take specific
actions to:
Alert threatened populations
Request appropriate City emergency services to activate necessary
resources.
Ensure radio frequencies are assigned and communications equipment
is activated; confirm a communications plan is developed and
implemented; and confirm interoperability among EOC staff, field
Incident Command Posts, and response agencies.
Determine whether City resources are or will be overwhelmed
Notify personnel and prepare to staff the EOC
Ensure Personnel Identification and Accountability procedures are
functioning to:
● Control access to the EOC.
● Identify personnel engaged in activities at the EOC.
● Account for personnel engaged in EOC activities.
Implement procedures for maintaining continuity of operations
Conduct and manage ESF primary and supporting agency
responsibilities.
Coordinate with regional and County Emergency Managers.
Activate procedures to track and manage personnel time and resource
expenditures related to the event.
5.2 Emergency Declaration Process
5.2.1 Declaration Authority
In the event that a City’s resources are overwhelmed, the City Manager may
declare a State of Emergency for his or her respective jurisdiction, as defined
in Eugene City Code 2.0155 (2) and Springfield City Code 2.808. An
Emergency Declaration grants the requesting City the ability to obtain
additional County, State, and federal support. The necessity for a declaration
of emergency will depend upon the scope and magnitude of the incident,
impact to the affected City’s essential services, and the recognition that
resource capabilities are, or will be, overwhelmed. Each City may
independently, and without prejudice, declare a State of Emergency for its
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jurisdictions to ensure that emergency measures are invoked, and authorized
based on city code.
5.2.2 Declaration Process
The Emergency Declaration process is based on the legal framework contained
in each City’s ordinances. The process is described in detail in OA 2 –
Emergency Declaration Process
5.2.3 Submission to the County
When a disaster occurs and the City has responded to the best of its ability and
is, or will become, overwhelmed by the incident, the City may request
assistance from Lane County. The declaration of a local emergency must
include a description of the situation and existing conditions that warrant the
declaration, the geographic boundaries of the emergency area, the special
powers being invoked, or the emergency controls to be imposed by the County.
The effective period for the declaration must also be time and duration
specified (e.g., for 72 hours). The emergency period can be extended if
emergency conditions still exist after the effective period expires. If State or
federal assistance is needed, it must also declare that all appropriate and
available resources have been expended, and contain a request to the Governor
for the type of assistance required. Requests must include:
■ Description of the mission to be accomplished.
■ Types of assistance needed.
■ Certification that all resources have been expended.
■ Preliminary assessment of property damage or loss, injuries, and
deaths.
If the County is unable to provide the assistance requested, the County may
declare a local emergency and request that the Governor declare an emergency.
The County may add its support to the request, request that additional areas or
services be included, or pass the request through to the State without any
comment.
5.2.4 State and Federal Declaration
Requests by a local jurisdiction for a “Declaration of State of Emergency” by
the Governor are made by the Executive Officer of Lane County. If the
emergency occurs within a city, the Chief Executive(s) of that city must
request assistance from the County prior to a State declaration. State
assistance may be provided after local resources are exhausted, nearing
depletion, or projected to be inadequate and mutual aid agreements have been
initiated.
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In the event that the capabilities of the State are not sufficient to meet the
requirements as determined by the Governor, federal assistance may be
requested. FEMA coordinates the Governor’s Presidential request for
assistance in accordance with the NRF.
5.3 Resource Coordination
As incidents expand, response departments will determine the need for
additional assistance and resources and request them as needed. The escalation
of an incident may impact the City’s ability to provide services, which may
require a change in the operational level of the City’s response system.
5.3.1 Resource Requests, Allocations, Distributions
Resource requests and emergency/disaster declarations must be submitted by
the affected City’s Emergency Manager to the County Emergency Manager
according to provisions outlined under Oregon Revised Statutes (ORS)
Chapter 401. Each City is responsible for the direction and control of City
resources during an emergency and for requesting any additional resources
required for emergency operations. Any jurisdiction that requests resources is
responsible for the tracking, resource typing, and recovery of the requested
resource. There is no obligation for either jurisdiction to fulfill a resource
request. Each jurisdiction will independently request County assistance.
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6 Plan Development, Maintenance
and Implementation
6.1 Plan Review and Maintenance
If a plan is to be effective, its contents must be known and understood by those
who are responsible for its implementation. The Cities’ Emergency Managers
will brief their appropriate public and private officials concerning their roles in
emergency management and ensure proper distribution of the plan, including
any amendments made to the plan.
The EOP will be reviewed every two years and revised at a minimum of every
two years from the date of last publication. ESF and other annexes will also be
revised on a staggered two-year cycle. By 2019, the EOP in its entirety will be
revised or re-written to comply with the FEMA’s five-year re-promulgation
mandate.
Notwithstanding the regular update schedule, the EOP may be reviewed on an
annual basis, gathering updates from other sources such as local, State, and
federal agencies. EOP review will also focus on integration and compliance
with NIMS.
EOP sections are scheduled for rewrite, completion, or update in the following
years.
Table 6-1 Plan Development and Update Schedule (Calendar Year)
SECTION 2014 2015 2016 2017 2018
Basic Plan X X X
Emergency Support Function Annexes
ESF 1 – Transportation X X X
ESF 2 – Communications X X X
ESF 3 – Public Works and Engineering X X X
ESF 4 – Firefighting X X X
ESF 5 – Emergency Management X X
ESF 6 – Mass Care, Emergency Assistance,
Housing, and Human Services X X
ESF 7 – Logistics Management X X
ESF 8 – Public Health X X
ESF 9 – Search and Rescue X X X
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Table 6-1 Plan Development and Update Schedule (Calendar Year)
SECTION 2014 2015 2016 2017 2018
ESF 10 – Oil and Hazardous Materials X X X
ESF 11 – Agriculture and Natural Resources X X
ESF 12 – Energy X X
ESF 13 – Public Safety and Security X X X
ESF 14 – Long-Term Community Recovery X X
ESF 15 – External Affairs X X
ESF 16 – Mass Fatality Management X X
ESF 17 – Volunteer and Donations
Management X X
ESF 18 – Continuity of Government X X
ESF 19 – Business and Economic
Stabilization
X X
Support Annexes
SA A – Debris Management X X
SA B – Damage Assessment Infrastructure X X
SA C – Employee Services X X
Incident Annexes
IA 1 – Hazardous Material X X X
IA 2 – Terrorism X X
IA 3 – Infectious Disease X X X
Operational Annexes
OA 1 – EOC Activation and Operation X X X
OA 2 – Roles and Responsibilities X X X
OA 3 – Disaster Declaration Process X X X
OA 4 – Leadership Communication Plan X X
OA 5 – Incident Command System X X
Each department is expected to develop and maintain procedural updates and
training and to maintain its annex to the EOP as required. Emergency
Management is required to incorporate new Presidential Directives, legislative
changes, and procedural changes based on lessons learned from exercises and
actual events.
6.2 Training Program
Emergency management training is managed through individual departments
based on guidance from Emergency Managers in both Eugene and Springfield.
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Emergency Management training in the City of Eugene is tracked through the
City’s Employee Learning and Development System (ELDS) and is monitored
to ensure that requirements are met.
6.3 Exercises
The Cities will conduct exercises throughout the year to test and evaluate this
EOP. Whenever feasible, the Cities will coordinate with the County, State,
and federal government to participate in joint exercises. These exercises will
consist of tabletop exercises, drills, functional exercises, and annual full-scale
exercise.
6.4 After Action Reports and Event Review
In order to document and track lessons learned from exercises, the Emergency
Managers conduct a review, or “hot wash,” with exercise participants after
each exercise. The Emergency Managers also coordinate an After Action
Report (AAR), which describes the objectives of the exercise and documents
the results of the evaluation. Similarly, reviews and AARs will be facilitated
after an actual disaster that will document activities of the incident to improve
readiness. The AAR should describe actions taken, identify equipment
shortcomings and strengths, and recommend ways to improve operational
readiness. The Emergency Manager of each City will ensure that equipment,
training, and planning shortfalls identified following an incident are addressed
by the EMOs from each City.
AARs are on file with each Cities’ Emergency Management Office.
6.5 Community Outreach
The whole community approach requires that emergency management make
efforts to involve the community in emergency planning. As the EOP and
annexes are developed and maintained, the Cities will continue to reach out to
community groups and agencies.
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A Maps
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B Sample Disaster Declaration
Forms
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Appendix B. Declaration of State of Emergency
3 September 1, 2014
DECLARATION OF STATE OF EMERGENCY
To: Insert name and title,
Lane County Emergency Management
From: Insert name and title,
At insert military time on insert month, day, year, a/an insert description of
emergency incident or event type occurred in the insert City name within the
geographic boundaries of insert geographic boundaries threatening life and
property. The current situation and conditions are:
Deaths: insert number of deaths
Injuries: insert number of injuries
Population at risk: insert number of population at risk
The current emergency conditions or threats are: insert conditions or threats.
An initial estimate of the damage and impacts is: insert initial estimate.
The following assistance is being requested: insert specific information about
the assistance being requested
Actions that have been taken and resources that have been committed: insert
the current actions taken and resources that have been committed by the
Cities.
We do hereby declare that a State of Emergency now exists in the insert City
name and that the City has expended or will shortly expend its necessary and
available resources. We respectfully request that the County provide
assistance, consider the City an “Emergency Area” as provided for in ORS
401, and, as appropriate, request support from State agencies and/or the
federal government.
Signed:
___________________________________________________________
Title: insert title Date & Time: insert date and military time
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Appendix B. Declaration of State of Emergency
4 September 1, 2014
This request may be passed to the County via radio, telephone, or fax. The
original signed document must be sent to Lane County Emergency
Management, with a copy placed in the final incident package.
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C Authorities and References
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Authorities
In the context of this EOP, a disaster or major emergency is characterized as an
incident requiring the coordinated response of all government levels to save the
lives and protect the property of a large portion of the population. This plan is
issued in accordance with, and under the provisions of, ORS Chapter 401,
which establishes the authority for each City to establish an emergency
management program and appoint an Emergency Manager who will be
responsible for the organization, administration and operation of the
emergency management program.
Table C-1 Legal Authorities
Federal
Executive Order 13347, July 2004, Individuals with Disabilities in Emergency
Preparedness
Homeland Security Presidential Directive 5: Management of Domestic Incidents
National Disaster Recovery Framework
National Incident Management System (NIMS)
National Preparedness Goal
National Response Framework (NRF)
Pet Evacuation and Transportation Standards Act of 2006, Public Law 109-308, 2006
Presidential Policy Directive 8: National Preparedness
Robert T. Stafford Disaster Relief and Emergency Assistance Act, as amended.
State of Oregon
Oregon Revised Statutes (ORS) 294.481 – Authorization to Receive Grants or Borrow
or Expend Moneys to Respond to Public Emergency
Oregon Revised Statutes 279B.080 – Emergency Procurements
ORS 401. Emergency Management and Services
ORS 402. Emergency Mutual Assistance Agreements
ORS 403. 9-1-1 Emergency Communications System; 2-1-1 Communications System;
Public Safety Communications System
ORS 404. Search and Rescue
ORS 431. State and Local Administration and Enforcement of Health Laws
ORS 433. Disease and Condition Control; Mass Gatherings; Indoor Air
ORS 476. State Fire Marshal; Protection From Fire Generally
ORS 477. Fire Protection of Forests and Vegetation
State of Oregon Emergency Operations Plan
Lane County
Lane Manual Chapters 3.044(5) and 54 as amended
Ordinances and Emergency Operations Plans of municipalities within Lane County
Board of County Commissioners Resolution and Order No. 05-9-13-12, In the Matter
of Adopting a Revised Emergency Operations Plan for Lane County and the
National Incident Management System (NIMS)
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4 September 1, 2014
Table C-1 Legal Authorities
City of Eugene
Eugene Code 2.1055; Emergency Code
Eugene Code 2.1035; Municipal Judge, City Manager and Department Heads (Lines of
Succession)
City of Springfield
Springfield Municipal Code (Springfield, Oregon) provisioned under Municipal
Code, Chapter 1, Sections 2.800 to 2.818, Emergency Management, as amended
(by Ordinance No. 5866, 1 November 1997).
2001 Springfield Charter
Springfield Land Use Development Code
Mutual Aid and Intergovernmental Agreements
State law (ORS 402.010 and 402.015) authorizes local governments to enter
into Cooperative Assistance Agreements with public and private agencies in
accordance with their needs (e.g., the Omnibus Mutual Aid Agreement).
Personnel, supplies, and services may be used by a requesting agency if the
granting agency cooperates and extends such services. However, without a
mutual aid pact, both parties must be aware that State statutes do not provide
umbrella protection, except in the case of fire suppression pursuant to ORS 476
(the Oregon State Emergency Conflagration Act). During an emergency
situation, a local declaration may be necessary to activate these agreements and
allocate appropriate resources.
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5 September 1, 2014
References
Federal
■ Federal Emergency Management Agency, Comprehensive Planning
Guide 101, 2010.
(http://www.fema.gov/pdf/about/divisions/npd/CPG_101_V2.pdf )
■ Federal Emergency Management Agency, FEMA 64, Emergency
Action Planning Guidelines for Dams, 1998.
(http://www.fema.gov/plan/prevent/damfailure/fema64.shtm )
■ Homeland Security Presidential Directive 5: Management of
Domestic Incidents, 2003.
(http://www.dhs.gov/xabout/laws/gc_1214592333605.shtm )
■ National Incident Management System, 2008.
(http://www.fema.gov/pdf/emergency/nims/NIMS_core.pdf )
■ National Response Framework, 2008.
(http://www.fema.gov/emergency/nrf/ )
■ Public Law 93 234, as amended, Flood Disaster Protection Act of
1973. (http://www.fdic.gov/regulations/laws/rules/6500-3600.html )
■ Public law 93-288, The Disaster Relief Act of 1974, as amended by
Public Law 100-707, The Robert T. Stafford Disaster Relief and
Emergency Assistance Act of 1988.
(http://www.fema.gov/about/stafact.shtm )
■ The Code of Federal Regulations, Title 44, Part 206.
(http://ecfr.gpoaccess.gov/cgi/t/text/text-
idx?c=ecfr&sid=58d3c66822cc6df274ab5bb11faa77ff&rgn=div5&
view=text&node=44:1.0.1.4.57&idno=44 )
State
■ Office of the State Fire Marshal. Oregon Fire Services
Mobilization Plan. 2011.
(http://www.oregon.gov/osp/SFM/pages/oregon_mob_plan.aspx)
■ Oregon Emergency Management. State of Oregon Emergency
Declaration Guidelines for Local Elected and Appointed Officials.
September 2011.
http://www.oregon.gov/OMD/OEM/docs/library/ea_officials_guide
_sept_2011.pdf
■ Oregon Revised Statutes (ORS) 401.305 through 401.335, 294.455
and 279B.080. (http://www.leg.state.or.us/ors/ )
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Lane County
■ Community Wildfire Protection Plan, 2008
■ Emergency Operations Plan, 2012
■ Natural Hazard Mitigation Plan, 2012
■ Memoranda of Agreement / Understanding
Other
■ Eugene-Springfield Multi-jurisdictional Natural Hazard Mitigation
Plan, 2009
■ All other Public Laws or Executive Orders enacted or to be enacted
which pertain to emergencies/disasters.
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D Acronyms and Glossary
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Acronyms
AAR After Action Report
CBRNE Chemical, Biological, Radiological, Nuclear, Explosives
CERT Community Emergency Response Team
CIKR Critical Infrastructure and Key Resources
City City of Eugene or City of Springfield
COOP Continuity of Operations
County Lane County
DEQ Oregon Department of Environmental Quality
DSHS Department of Social and Health Services
EAS National Emergency Alert System
ECC Emergency Coordination Center
EMO Emergency Management Organization
EMS Emergency Medical Services
EOC Emergency Operations Center
EOP Emergency Operations Plan
ESF Emergency Support Function
FA Functional Annex
FBI Federal Bureau of Investigation
FEMA Federal Emergency Management Agency
Fire & EMS Eugene-Springfield Fire and Emergency Medical Services District
HSPD-5 Homeland Security Presidential Directive 5
IA Incident Annex
IAP Incident Action Plan
ICS Incident Command System
IDA initial damage assessment
JIC Joint Information Center
JIS Joint Information System
MOU Memorandum of Understanding
NIMS National Incident Management System
NRF National Response Framework
OA Operational Annex
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OEM Oregon Emergency Management
ORS Oregon Revised Statutes
PDA Preliminary Damage Assistance
PIO Public Information Officer
Red Cross American Red Cross
SA Support Annex
SOP Standard Operating Procedure
State State of Oregon
WMD weapons of mass destruction
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Glossary of Key Terms
Unless otherwise noted, all definitions originate from National Response Framework
Resource Center Glossary; this glossary meets a NIMS core objective – shared terminology.
Access and Functional Needs Populations: Children and adults who experience disabilities
and others who experience functional needs such as:
Maintaining Independence - Individuals requiring support to be independent in daily
activities may lose this support during an emergency or a disaster. Such support
may include consumable medical supplies (diapers, formula, bandages, ostomy
supplies, etc.); durable medical equipment (wheelchairs, walkers, scooters, etc.);
service animals; and/or attendants or caregivers. Supplying needed support to
these individuals will enable them to maintain their pre-disaster level of
independence.
Communication - Individuals who have limitations that interfere with the receipt of
and response to information will need that information provided in methods they
can understand and use. They may not be able to hear verbal announcements, see
directional signs, or understand how to get assistance due to hearing, vision,
speech, cognitive, or intellectual limitations, and/or limited English proficiency.
Transportation - Individuals who cannot drive or who do not have vehicles may
require transportation support for successful evacuation. This support may include
accessible vehicles (e.g., vehicles with lift equipment or oxygen facilities) or
information about how and where to access mass transportation during an
evacuation.
Supervision - Before, during, and after an emergency, individuals may lose the
support of caregivers, family, or friends or may be unable to cope in a new
environment (particularly if they have dementia, Alzheimer’s disease, or
psychiatric conditions such as schizophrenia or intense anxiety). Young children
may be unable to identify themselves if separated from their caregivers, and when
in danger, they may lack the cognitive ability to assess the situation and react
appropriately.
Medical Care - Individuals who are not self-sufficient or who do not have adequate
support from caregivers, family, or friends may need assistance with managing
unstable, terminal, or contagious conditions that require observation and ongoing
treatment; managing intravenous therapy, tube feeding, and vital signs; receiving
dialysis, oxygen, and suction administration; managing wounds; and operating
power-dependent equipment to sustain life. These individuals require the support
of trained medical professionals.
Access Control Point: Designated sites identifying critical locations that can be used to
control egress and ingress into a certain area.
Accessible: Having the legally required features and/or qualities that ensure easy entrance,
participation, and usability of places, programs, services, and activities by individuals with a
wide variety of disabilities.
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6 September 1, 2014
Acquisition Procedures: A process used to obtain resources to support operational
requirements.
Acutely Toxic Chemicals: Chemicals which can cause both severe short and long-term
health effects after a single, brief exposure (short duration). These chemicals can cause
damage to living tissue, impairment of the central nervous system, severe illness or, in
extreme cases, death when ingested, inhaled or absorbed through the skin.
Advanced Life Support (ALS): Emergency medical care beyond basic life support including
one or more of the following: administration of drugs, defibrillation, insertion of special
airways, or heart monitoring. Specially trained personnel who staff the department’s medic
units provide this level of care.
Agency Administrator/Executive: The official responsible for administering policy for an
agency or jurisdiction. An Agency Administrator/Executive (or other public official with
jurisdictional responsibility for the incident) usually makes the decision to establish an Area
Command.
Agency Dispatch: The agency or jurisdictional facility from which resources are sent to
incidents.
Agency Representative: A person assigned by a primary, assisting, or cooperating Federal,
State, tribal, or local government agency, or nongovernmental or private organization, that has
been delegated authority to make decisions affecting that agency's or organization's
participation in incident management activities following appropriate consultation with the
leadership of that agency.
Agency: A division of government with a specific function offering a particular kind of
assistance. In the Incident Command System, agencies are defined either as jurisdictional
(having statutory responsibility for incident management) or as assisting or cooperating
(providing resources or other assistance). Governmental organizations are most often in
charge of an incident, though in certain circumstances private-sector organizations may be
included. Additionally, nongovernmental organizations may be included to provide support.
Alert: Informs people of impending danger.
All-Hazards: Describing an incident, natural or manmade, that warrants action to protect life,
property, environment, and public health or safety, and to minimize disruptions of
government, social, or economic activities.
Allocated Resource: Resource dispatched to an incident.
Amateur Radio Emergency Services (ARES): Radio communications services conducted
by volunteer licensed amateur radio operators providing emergency radio communications to
local, regional, or state emergency management organizations.
American Red Cross: Also known as the American National Red Cross or Red Cross, the
Red Cross a volunteer-led, humanitarian organization that provides emergency assistance,
disaster relief and education inside the United States.
Apparatus: A vehicle used for firefighting, such as a pumper or ladder truck.
Area Command: An organization established to oversee the management of multiple
incidents that are each being handled by a separate Incident Command System organization or
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7 September 1, 2014
to oversee the management of a very large or evolving incident that has multiple Incident
Management Teams engaged. An Agency Administrator/Executive or other public official
with jurisdictional responsibility for the incident usually makes the decision to establish an
Area Command. An Area Command is activated only if necessary, depending on the
complexity of the incident and incident management span-of-control considerations.
Assessment: The process of acquiring, collecting, processing, examining, analyzing,
evaluating, monitoring, and interpreting the data, information, evidence, objects,
measurements, images, sound, etc., whether tangible or intangible, to provide a basis for
decision-making.
Assigned Resource: Resource checked in and assigned work tasks on an incident.
Assignment: Task given to a personnel resource to perform within a given operational period
that is based on operational objectives defined in the Incident Action Plan.
Assistant: Title for subordinates of principal Command Staff positions. The title indicates a
level of technical capability, qualifications, and responsibility subordinate to the primary
positions. Assistants may also be assigned to Unit Leaders.
Assisting Agency: An agency or organization providing personnel, services, or other
resources to the agency with direct responsibility for incident management. See Supporting
Agency.
Automatic Move-Up: Since time is of the essence, fire crews closest to the fire incident will
be sent first. In order to ensure there is no gap in coverage around the incident as nearby
stations are vacated to respond, units from other fire stations nearby may be moved up to
cover key stations around the incident. This is done under prearranged plans, making the
move-up “automatic”.
Available Resource: Resource assigned to an incident, checked in, and available for a
mission assignment, normally located in a Staging Area.
Badging: The assignment of physical incident-specific credentials to establish legitimacy and
limit access to various incident sites.
Basic Life Support (BLS): Emergency medical care limited to establishing and maintaining
an open airway, providing respiratory assistance and performing cardiopulmonary
resuscitation. Fire crews provide this level of care.
Branch: The organizational level having functional or geographical responsibility for major
aspects of incident operations. A Branch is organizationally situated between the Section
Chief and the Division or Group in the Operations Section, and between the Section and Units
in the Logistics Section. Branches are identified by the use of Roman numerals or by
functional area.
Cache: A predetermined complement of tools, equipment, and/or supplies stored in a
designated location, available for incident use.
Camp: A geographical site within the general incident area (separate from the Incident Base)
that is equipped and staffed to provide sleeping, food, water, and sanitary services to incident
personnel.
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Capability Assessment: Formal measurement of current capabilities against standards and
criteria that have been established as necessary to perform basic emergency management
functions.
Catastrophic Incident: Any natural or human-made incident, including terrorism, that
results in extraordinary levels of mass casualties, damage, or disruption severely affecting the
population, infrastructure, environment, economy, national morale, and/or government
functions. A catastrophic event could result in sustained national impacts over a prolonged
period of time; almost immediately exceeds resources normally available to State, local,
tribal, and private-sector authorities in the impacted area; and significantly interrupts
governmental operations and emergency services to such an extent that national security
could be threatened. All catastrophic events are Incidents of National Significance.
Categorizing Resources: The process of organizing resources by category, kind, and type,
including size, capacity, capability, skill, and other characteristics. This makes the resource
ordering and dispatch process within and across organizations and agencies, and between
governmental and nongovernmental entities, more efficient, and ensures that the resources
received are appropriate to their needs.
Category (CAT): When related to fallout shelter spaces, indicates a range of protection
factors (PF). This is used to more easily define the capability of a shelter since there will be a
wide range of protection factors throughout the facility. Categories normally used are: CAT
0 – PF 10-19, CAT 1 – PF 20-39, CAT 2 – PF 40-69 (usually combined with CAT 3), CAT 3
– PF 70-99, CAT 4 – PF 100-up
Certifying Personnel: The process of authoritatively attesting that individuals meet
professional standards for the training, experience, and performance required for key incident
management functions.
Chain of Command: The orderly line of authority within the ranks of the incident
management organization.
Check-In: The process through which resources first report to an incident. All responders,
regardless of agency affiliation, must report in to receive an assignment in accordance with
the procedures established by the Incident Commander.
Chemtree (Chemical Transportation Emergency Center): Located in Washington, D.C.,
this facility, sponsored by the chemical industry, provides 24-hour assistance in dealing with
chemical transportation emergencies.
Chief: The Incident Command System title for individuals responsible for management of
functional Sections: Operations, Planning, Logistics, Finance/Administration, and
Intelligence/Investigations (if established as a separate Section).
Command Staff: The staff who report directly to the Incident Commander, including the
Public Information Officer, Safety Officer, Liaison Officer, and other positions as required.
They may have an assistant or assistants, as needed.
Command: The act of directing, ordering, or controlling by virtue of explicit statutory,
regulatory, or delegated authority.
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Common Operating Picture: An overview of an incident by all relevant parties that provides
incident information enabling the Incident Commander/Unified Command and any supporting
agencies and organizations to make effective, consistent, and timely decisions.
Common Terminology: Normally used words and phrases-avoiding the use of different
words/phrases for same concepts-to ensure consistency and to allow diverse incident
management and support organizations to work together across a wide variety of incident
management functions and hazard scenarios.
Communications/Dispatch Center: Agency or interagency dispatch centers, 911 call
centers, emergency control or command dispatch centers, or any naming convention given to
the facility and staff that handles emergency calls from the public and communication with
emergency management/response personnel. The center can serve as a primary coordination
and support element of the Multiagency Coordination System(s) (MACS) for an incident until
other elements of the MACS are formally established.
Communications: The process of transmission of information through verbal, written, or
symbolic means.
Company: Basic unit of a fire department, a company consists of a piece of fire apparatus
and the crew assigned to it. Personnel are selected, trained, and assigned to the various types
of fire apparatus, resulting in engine companies (pumpers) and truck companies (ladder and
snorkel trucks).
Complex: Two or more individual incidents located in the same general area and assigned to
a single Incident Commander or to Unified Command.
Comprehensive Preparedness Guide 101: A guide designed to assist jurisdictions with
developing operations plans. 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.
Contingency Plan: Document developed to identify and catalog all the elements required to
respond to an emergency, defining responsibilities and specific tasks and serving as a
response guide.
Continuity of Government: A coordinated effort within the Federal Government's executive
branch to ensure that National Essential Functions continue to be performed during a
catastrophic emergency (as defined in National Security Presidential Directive 51/Homeland
Security Presidential Directive 20).
Continuity of Operations: An effort within individual organizations to ensure that Primary
Mission Essential Functions continue to be performed during a wide range of emergencies.
Cooperating Agency: An agency supplying assistance other than direct operational or
support functions or resources to the incident management effort.
Coordinate: To advance an analysis and exchange of information systematically among
principals who have or may have a need to know certain information to carry out specific
incident management responsibilities.
Corrective Actions: The implementation of procedures that are based on lessons learned
from actual incidents or from training and exercises.
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10 September 1, 2014
Credentialing: The authentication and verification of the certification and identity of
designated incident managers and emergency responders.
Critical Infrastructure: Assets, systems, and networks, whether physical or virtual, so vital
to the United States that the incapacitation or destruction of such assets, systems, or networks
would have a debilitating impact on security, national economic security, national public
health or safety, or any combination of those matters.
Damage Assessment: Appraisal or determination of actual effects resulting from an
emergency or disaster. An estimate of the damages to a geographic area is made after a
disaster has occurred, and serves as the basis for the Governor’s request for a Presidential
Disaster Declaration.
Decontamination: Reduction or removal of contaminating radioactive or chemical materials
from a structure, area, object, or person.
Delegation of Authority: A statement provided to the Incident Commander by the Agency
Executive delegating authority and assigning responsibility. The delegation of authority can
include objectives, priorities, expectations, constraints, and other considerations or guidelines,
as needed. Many agencies require written delegation of authority to be given to the Incident
Commander prior to assuming command on larger incidents. (Also known as Letter of
Expectation.)
Demobilization: The orderly, safe, and efficient return of an incident resource to its original
location and status.
Department Operations Center (DOC): An Emergency Operations Center (EOC) specific
to a single department or agency. The focus of a DOC is on internal agency incident
management and response. DOCs are often linked to and, in most cases, are physically
represented in a combined agency EOC by authorized agent(s) for the department or agency.
Deputy: A fully qualified individual who, in the absence of a superior, can be delegated the
authority to manage a functional operation or to perform a specific task. In some cases a
deputy can act as relief for a superior, and therefore must be fully qualified in the position.
Deputies generally can be assigned to the Incident Commander, General Staff, and Branch
Directors.
Direction and Control: Direction and control rests with the Executive Group (City
Manager, Departmental Executive Managers, City Attorney), the Command Group
(Command Section staff: Lead PIO, Liaison Officer, etc.), and the EMO Emergency Manager.
The Executive Group provides policy direction, and the Command Group determines
Response activities and use of resources.
Director: The Incident Command System title for individuals responsible for supervision of a
Branch.
Disaster Recovery Center: A readily accessible facility or mobile office where residents can
go for information about FEMA or other disaster assistance programs, or for questions related
to their case.
Dispatch: The ordered movement of a resource or resources to an assigned operational
mission, or an administrative move from one location to another.
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Division: The organizational level having responsibility for operations within a defined
geographic area. Divisions are established when the number of resources exceeds the
manageable span of control of the Section Chief. See Group.
Drill: Supervised instruction period aimed at testing, developing, and maintaining skills in a
particular operation. A drill is often a component of an exercise.
Early Earning System: Automatic system of inter-connected smoke and/or heat detection
devices within a building, monitored on a 24-hour basis by someone on the premises or
connection to an alarm monitoring service.
Emergency Alert System (EAS): A national warning system in the United States put into
place in 1977. In addition to alerting the public of local weather emergencies such as
tornadoes and flash floods, the official EAS is designated to enable the President of the
United States to speak to the United States within 10 minutes. EAS is jointly coordinated by
FEMA, the Federal Communications Commission (FCC), and the National Weather Service
(NOAA/NWS). The EAS is used on AM, FM and Land Mobile Radio Service, as well as
VHF, UHF, FiOS (wireline video providers), and cable television including low-power
stations.
Emergency Management Assistance Compact (EMAC): A congressionally ratified
organization that provides form and structure to interstate mutual aid. Through EMAC, a
disaster-affected State can request and receive assistance from other member States quickly
and efficiently, resolving two key issues up front: liability and reimbursement.
Emergency Management Organization (EMO): Overall organization of emergency service
and emergency management personnel who are responsible for carrying out emergency
functions and activities in the event of an emergency situation.
Emergency Management/Response Personnel: Includes Federal, State, territorial, tribal,
substate regional, and local governments, nongovernmental organizations, private sector-
organizations, critical infrastructure owners and operators, and all other organizations and
individuals who assume an emergency management role. (Also known as emergency
responder.)
Emergency Manager: Individual who has the primary, day-to-day responsibilities for
emergency management programs and activities; coordinates a jurisdiction’s mitigation,
preparedness, response and recovery activities.
Emergency Medical Technician (EMT): Individual who has received formal training in pre-
hospital and emergency care and is state certified to attend to an ill, injured, or disabled
individual. The state recognizes three levels of EMT certification: Basic, Intermediate,
Paramedic
Emergency Medical Dispatching: System under which communications personnel are
trained to not only receive and dispatch emergency medical calls, but also provide instructions
over the phone on how to handle such emergencies.
Emergency Operations Center (EOC): The physical location at which the coordination of
information and resources to support incident management (on-scene operations) activities
normally takes place. An EOC may be a temporary facility or may be located in a more
central or permanently established facility, perhaps at a higher level of organization within a
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jurisdiction. EOCs may be organized by major functional disciplines (e.g., fire, law
enforcement, medical services), by jurisdiction (e.g., Federal, State, regional, tribal, city,
county), or by some combination thereof.
Emergency Operations Plan: An ongoing plan for responding to a wide variety of potential
hazards.
Emergency Operations Plan: The “steady-state” plan maintained by various jurisdictional
levels for responding to a wide variety of potential hazards.
Emergency Public Information: Information that is disseminated primarily in anticipation
of or during an emergency. In addition to providing situational information to the public, it
frequently provides directive actions required to be taken by the general public.
Emergency Support Function (ESF): A grouping of government and certain private-sector
capabilities into an organizational structure to provide the support, resources, program
implementation, and services that are most likely to be needed to save lives, protect property
and the environment, restore essential services and critical infrastructure, and help victims and
communities return to normal, when feasible, following domestic incidents. The ESFs serve
as the primary operational-level mechanism to provide assistance to State, local, and tribal
governments or to Federal departments and agencies conducting missions or primary Federal
responsibility.
Emergency: Any incident, whether natural or manmade, that requires responsive action to
protect life or property. Under the Robert T. Stafford Disaster Relief and Emergency
Assistance Act, an emergency means any occasion or instance for which, in the determination
of the President, Federal assistance is needed to supplement State and local efforts and
capabilities to save lives and to protect property and public health and safety, or to lessen or
avert the threat of a catastrophe in any part of the United States.
Engine: Fire department pumper, operated with a complement of three fire fighters.
Enhanced Life Support: Level of emergency medical care in which fire companies are
staffed and equipped to provide some advanced life support techniques, such as cardiac
monitoring and the use of defibrillation for certain heart problems.
Evacuation Recommendation: Recommendation made by a presiding official to all or part
of the population to evacuate from a stricken or threatened area, considered necessary for the
preservation of life or other disaster mitigation response or recovery.
Evacuation: The organized, phased, and supervised withdrawal, dispersal, or removal of
civilians from dangerous or potentially dangerous areas, and their reception and care in safe
areas.
Evacuees, Spontaneous: Persons who might leave an area in periods of intense crisis in
response to a real or feared threat whether or not they are advised to.
Event: See Planned Event.
Exclusion Zone: Area where contamination does or could occur.
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Exercise: Activity designed to promote emergency preparedness; test or evaluate emergency
operation’s plans, procedures, or facilities; train personnel in emergency response duties; and
demonstrate operational capability. There are three specific types of exercises: Tabletop,
Functional, and Full-Scale.
Tabletop Exercise: Activity in which elected and appointed officials and key agency
staff are presented with simulated emergency situations without time constraints.
Usually informal, in a conference room environment; designed to elicit
constructive discussion by the participants as they attempt to examine and then
resolve problems based on existing emergency operating plans. Purpose is for
participants to evaluate plans and procedures and resolve questions of coordination
and assignment of responsibilities in a non-threatening format and under minimum
stress.
Functional Exercise: Activity designed to test or evaluate the capability of an
individual function or complex activity within a function. Applicable where the
activity is capable of being effectively evaluated in isolation from other emergency
management activity. (Example) A Direction and Control functional exercise:
Activity designed to test and evaluate the centralized emergency operations
capability and timely response of one or more units of government under a stress
environment. Centered in an EOC or interim EOC; simulates the use of outside
activity and resources.
Full-Scale Exercise: Intended to evaluate the operational capability of emergency
management systems in an interactive manner over a substantial period of time.
Involves testing of a major portion of the basic elements existing within
emergency operations plan and organizations in a stress environment. This type of
exercise includes mobilization of personnel and resources and actual movement of
emergency workers, equipment, and resources required to demonstrate
coordination and response capability.
Federal Coordinating Officer (FCO): The Federal officer who is appointed to manage
Federal resource support activities related to Stafford Act disasters and emergencies. The
FCO is responsible for coordinating the timely delivery of Federal disaster assistance
resources and programs to the affected State and local governments, individual victims, and
the private sector.
Federal Emergency Communications Coordinator (FECC): That person, assigned by
GSA, who functions as the principal Federal manager for emergency telecommunications
requirements in major disasters, emergencies, and extraordinary situations, when requested by
the FCO or FRC.
Federal Emergency Management Agency (FEMA): FEMA prepares the nation for all
hazards and manages federal response and recovery efforts following any national incident.
FEMA also initiates mitigation activities, trains first responders, works with state and local
emergency managers, and manages the National Flood Insurance Program and the U.S. Fire
Administration. FEMA became part of the U.S. Department of Homeland Security on March
1, 2003.
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Federal On-Scene Coordinator (FOSC) or (OSC): The Federal official pre-designated by
the EPA or the USCG to coordinate responses under subpart D or the NCP, or the government
official designated to coordinate and direct removal actions under subpart E of the NCP.
Federal Resource Coordinator (FRC): The Federal official appointed to manage Federal
resource support activities related to non-Stafford Act incidents. The FRC is responsible for
coordinating support from other Federal departments and agencies using interagency
agreements and MOUS.
Federal: Of or pertaining to the Federal Government of the United States of America.
Field Operations Guide: Durable pocket or desk guides that contain essential information
required to perform specific assignments or functions.
Finance/Administration Section: The Incident Command System Section responsible for all
administrative and financial considerations surrounding an incident.
Finance/Risk Management: Finance/Risk Management Section is established on incidents
when agencies involved have a specific need for financial and risk management services. In
the ICS, not all agencies will require the establishment of a separate Finance/Risk
Management Section. In some cases where only one specific function is required, that
position could be established as a Technical Specialist in the Planning Section.
First Responder: Local and non-governmental police, fire, and emergency personnel who in
the early stages of an incident are responsible for the protection and preservation of life,
property, evidence, and the environment, including emergency response providers as defined
in section 2 of the Homeland Security Act of 2002 (6 U.S.C. 101), as well as emergency
management, public health, clinical care, public works, and other skilled support personnel
(such as equipment operators) who provide immediate support services during prevention,
response, and recovery operations. First responders may include personnel from Federal,
State, local, tribal, or nongovernmental organizations.
Fixed Facility: Plant site where handling/transfer, processing, and/or storage of chemicals is
performed.
Flood Hazard: Natural hazard defined in terms of the one hundred-year flood. This type of
flood has a one- percent chance of occurring in any given year. People or structures located
in the one hundred-year flood zone are vulnerable to injury and damages. A flood disaster is
one that injures a number of people, causes significant property damage, or both.
Function: The five major activities in the Incident Command System: Command, Operations,
Planning, Logistics, and Finance/Administration. A sixth function, Intelligence/Investigations,
may be established, if required, to meet incident management needs. The term function is also
used when describing the activity involved (e.g., the planning function).
General Staff: A group of incident management personnel organized according to function
and reporting to the Incident Commander. The General Staff normally consists of the
Operations Section Chief, Planning Section Chief, Logistics Section Chief, and
Finance/Administration Section Chief. An Intelligence/Investigations Chief may be
established, if required, to meet incident management needs.
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15 September 1, 2014
Governor’s Authorized Representative: Person named by the Governor in the Federal-State
Agreement to execute, on behalf of the state, all necessary documents for disaster assistance
following declaration of an emergency or major disaster, including certification of application
for public assistance.
Governor’s Proclamation-State of Disaster: The Governor, by executive order or by
proclamation, declares a state of disaster if the Governor finds a disaster has occurred, or the
occurrence or threat of disaster is imminent.
Group: An organizational subdivision established to divide the incident management
structure into functional areas of operation. Groups are composed of resources assembled to
perform a special function not necessarily within a single geographic division. See Division.
Groups, Institutionalized: Persons who reside in public and private group quarters of a
varied nature rather than households. This includes hospital, nursing homes, orphanages,
colleges, universities, and correctional facilities. Residents generally lack household
possessions and/or transportation, and may require special care and/or custody.
Hazard Analysis: In the context of HAZMAT planning, use of a simplified vapor dispersion
model, which looks at the movement of toxic or explosive vapors over distance at a
concentration level of concern to determine whether the amount of chemical at a facility or in
a transport container poses a threat to the surrounding community and requires more detailed
analysis and planning.
Hazard Mitigation Plan: Written plan describing coordinated hazard mitigation planning
and implementation measures to accomplish the prevention or reduction of the adverse impact
of natural and man-made hazards.
Hazard Mitigation: Any cost-effective measure which will reduce the potential for damage
to a facility from a disaster event.
Hazard: Something that is potentially dangerous or harmful, often the root cause of an
unwanted outcome.
Hazardous Material (HAZMAT): For the purposes of ESF #1, hazardous material is a
substance or material, including a hazardous substance, that has been determined by the
Secretary of Transportation to be capable of posing an unreasonable risk to health, safety, and
property when transported in commerce, and which has been so designated(see 49 CFR
171.8). For the purposes of ESF #10 and the Oil and Hazardous Materials Incident Annex,
the term is intended to mean hazardous substances, pollutants, and contaminants as defined by
the NCP.
Hazardous Materials Incidents: Situation involving a spill or uncontrolled escape of a
hazardous material from a fixed facility or mobile container.
Hazardous Substance: As defined by the NCP, any substance designated pursuant to section
311 (b)(2)(A) of the Clean Water Act; any element, compound, mixture, solution, or
substance designated pursuant to section 102 of the Comprehensive Environmental Response,
Compensation, and Liability Act (CERCLA); any hazardous waste having the characteristics
identified under or listed pursuant to section 3001 of the Solid Waste Disposal Act (but not
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16 September 1, 2014
including any waste the regulation of which under the Solid Waste Disposal Act (42 U.S.C. '
6901 et seq.) has been suspended by act of Congress); any toxic pollutant listed under section
307 (a) of the Clean Water Act; any hazardous air pollutant listed under section 112 of the
Clean Air Act (42 U.S.C. ' 7521 et seq.); and any imminently hazardous chemical substance
or mixture with respect to which the EPA Administrator has taken action pursuant to section 7
of the Toxic Substances Control Act (15 U.S.C. ' 2601 et seq.).
High Risk Area: Areas designated by the federal government, or locally through a Hazard
Vulnerability analysis, as relatively more likely to experience the direct effects of certain
natural disaster or nuclear attack.
Incident Action Plan: An oral or written plan containing general objectives reflecting the
overall strategy for managing an incident. It may include the identification of operational
resources and assignments. It may also include attachments that provide direction and
important information for management of the incident during one or more operational periods.
Incident Base: The location at which primary Logistics functions for an incident are
coordinated and administered. There is only one Base per incident. (Incident name or other
designator will be added to the term Base.) The Incident Command Post may be co-located
with the Incident Base.
Incident Command Post (ICP): The field location where the primary functions are
performed. The ICP may be co-located with the Incident Base or other incident facilities.
Incident Command System (ICS): A standardized on-scene emergency management
construct specifically designed to provide 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,
designed to aid in the management of resources during incidents. It is used for all kinds of
emergencies and is applicable to small as well as 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 Command: The Incident Command System organizational element responsible for
overall management of the incident and consisting of the Incident Commander (either single
or unified command structure) and any assigned supporting staff.
Incident Commander (IC): The individual responsible for all incident activities, including
the development of strategies and tactics and the ordering and release of resources. The IC has
overall authority and responsibility for conducting incident operations and is responsible for
the management of all incident operations at the incident site.
Incident Management Team (IMT): An Incident Commander and the appropriate
Command and General Staff personnel assigned to an incident. The level of training and
experience of the IMT members, coupled with the identified formal response requirements
and responsibilities of the IMT, are factors in determining "type," or level, of IMT.
Incident Management: The broad spectrum of activities and organizations providing
effective and efficient operations, coordination, and support applied at all levels of
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17 September 1, 2014
government, utilizing both governmental and nongovernmental resources to plan for, respond
to, and recover from an incident, regardless of cause, size, or complexity.
Incident Objectives: Statements of guidance and direction needed to select appropriate
strategy(s) and the tactical direction of resources. Incident objectives are based on realistic
expectations of what can be accomplished when all allocated resources have been effectively
deployed. Incident objectives must be achievable and measurable, yet flexible enough to
allow strategic and tactical alternatives.
Incident of National Significance: Based on criteria established in HSPD-5 (paragraph 4), an
actual or potential high-impact event that requires a coordinated and effective response by and
appropriate combination of Federal, State, local, tribal, nongovernmental, and/or private-
sector entities in order to save lives and minimize damage, and provide the basis for long-term
community recovery and mitigation activities.
Incident: An occurrence, natural or manmade, that requires a response to protect life or
property. Incidents can, for example, include major disasters, emergencies, terrorist attacks,
terrorist threats, civil unrest, wildland and urban fires, floods, hazardous materials spills,
nuclear accidents, aircraft accidents, earthquakes, hurricanes, tornadoes, tropical storms,
tsunamis, war-related disasters, public health and medical emergencies, and other occurrences
requiring an emergency response.
Information Management: The collection, organization, and control over the structure,
processing, and delivery of information from one or more sources and distribution to one or
more audiences who have a stake in that information.
Integrated Planning System: A system designed to provide common processes for
developing and integrating plans for the Federal Government to establish a comprehensive
approach to national planning in accordance with the Homeland Security Management
System as outlined in the National Strategy for Homeland Security.
Intelligence Officer: The intelligence officer is responsible for managing internal
information, intelligence, and operational security requirements supporting incident
management activities. These may include information security and operational security
activities, as well as the complex task of ensuring that sensitive information of all types (e.g.,
classified information, law enforcement sensitive information, proprietary information, or
export-controlled information) is handled in a way that not only safeguards the information,
but also ensures that it gets to those who need access to it to perform their missions effectively
and safely.
Intelligence/Investigations: An organizational subset within ICS. Intelligence gathered
within the Intelligence/Investigations function is information that either leads to the detection,
prevention, apprehension, and prosecution of criminal activities-or the individual(s) involved-
including terrorist incidents or information that leads to determination of the cause of a given
incident (regardless of the source) such as public health events or fires with unknown origins.
This is different from the normal operational and situational intelligence gathered and
reported by the Planning Section.
Interoperability: Ability of systems, personnel, and equipment to provide and receive
functionality, data, information and/or services to and from other systems, personnel, and
equipment, between both public and private agencies, departments, and other organizations, in
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a manner enabling them to operate effectively together. Allows emergency
management/response personnel and their affiliated organizations to communicate within and
across agencies and jurisdictions via voice, data, or video-on-demand, in real time, when
needed, and when authorized.
Job Aid: Checklist or other visual aid intended to ensure that specific steps of completing a
task or assignment are accomplished.
Joint Field Office (JFO): 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 National Incident Management System principles.
Although the JFO uses an Incident Command System 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 (JIC): A facility established to coordinate all incident-related
public information activities. It is the central point of contact for all news media. Public
information officials from all participating agencies should co-locate at the JIC.
Joint Information System (JIS): A structure that integrates incident information and public
affairs into a cohesive organization designed to provide consistent, coordinated, accurate,
accessible, timely, and complete information during crisis or incident operations. The mission
of the JIS is to provide a structure and system for developing and delivering coordinated
interagency messages; developing, recommending, and executing public information plans
and strategies on behalf of the Incident Commander (IC); advising the IC concerning public
affairs issues that could affect a response effort; and controlling rumors and inaccurate
information that could undermine public confidence in the emergency response effort.
Jurisdiction: A range or sphere of authority. Public agencies have jurisdiction at an incident
related to their legal responsibilities and authority. Jurisdictional authority at an incident can
be political or geographical (e.g., Federal, State, tribal, local boundary lines) or functional
(e.g., law enforcement, public health).
Jurisdictional Agency: The agency having jurisdiction and responsibility for a specific
geographical area, or a mandated function.
Key Resource: Any publicly or privately controlled resource essential to the minimal
operations of the economy and government.
Letter of Expectation: See Delegation of Authority.
Level of Concern: Concentration of an extremely hazardous substance in the air, above
which may be serious immediate health effects to anyone exposed to it for short periods of
time.
Liaison Officer: A member of the Command Staff responsible for coordinating with
representatives from cooperating and assisting agencies or organizations.
Liaison: A form of communication for establishing and maintaining mutual understanding
and cooperation.
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Local Emergency: Duly proclaimed existence of conditions of a disaster or of extreme peril
to the safety or health of persons and property within local jurisdictional boundaries.
Local Government: Public entities responsible for the security and welfare of a designated
area as established by law. A county, municipality, city, town, township, local public
authority, school district, special district, intrastate district, council of governments
(regardless of whether the council of governments is incorporated as a nonprofit corporation
under State law), regional or interstate government entity, or agency or instrumentality of a
local government; an Indian tribe or authorized tribal entity, or in Alaska a Native Village or
Alaska Regional Native Corporation; a rural community, unincorporated town or village, or
other public entity. See Section 2 (10), Homeland Security Act of 2002, Pub. L. 107-296, 116
Stat. 2135 (2002).
Logistics Section: The Incident Command System Section responsible for providing
facilities, services, and material support for the incident.
Logistics: The process and procedure for providing resources and other services to support
incident management.
Maintenance Facility: Location where preventive maintenance and minor repairs can be
made, both to Fire Department vehicles and specialized equipment, such a breathing
apparatus’.
Major Disaster: As defined under the Robert T. Stafford Disaster Relief and Emergency
Assistance Act (42 U.S.C. 5122), a major disaster is any natural catastrophe (including any
hurricane, tornado, storm, high water, wind-driven water, tidal wave, tsunami, earthquake,
volcanic eruption, landslide, mudslide, snowstorm, or drought), or, regardless of cause, any
fire, flood, or explosion, in any part of the United States, which in the determination of the
President causes damage of sufficient severity and magnitude to warrant major disaster
assistance under this Act to supplement the efforts and available resources of States, tribes,
local governments, and disaster relief organizations in alleviating the damage, loss, hardship,
or suffering caused thereby.
Management by Objectives: A management approach that involves a five-step process for
achieving the incident goal. The Management by Objectives approach includes the following:
establishing overarching incident objectives; developing strategies based on overarching
incident objectives; developing and issuing assignments, plans, procedures, and protocols;
establishing specific, measurable tactics or tasks for various incident-management functional
activities and directing efforts to attain them, in support of defined strategies; and
documenting results to measure performance and facilitate corrective action.
Manager: Individual within an Incident Command System organizational unit who is
assigned specific managerial responsibilities (e.g., Staging Area Manager or Camp Manager).
Media Staging Area: Central location from which the media can operate. Media badges will
be issued as news crews arrive and will be retrieved as they leave the scene.
Mitigation: Activities providing a critical foundation in the effort to reduce the loss of life
and property from natural and/or manmade disasters by avoiding or lessening the impact of a
disaster and providing value to the public by creating safer communities. Mitigation seeks to
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fix the cycle of disaster damage, reconstruction, and repeated damage. These activities or
actions, in most cases, will have a long-term sustained effect.
Mobilization Guide: Reference document used by organizations outlining agreements,
processes, and procedures used by all participating agencies/organizations for activating,
assembling, and transporting resources.
Mobilization: The process and procedures used by all organizations-Federal, State, tribal, and
local-for activating, assembling, and transporting all resources that have been requested to
respond to or support an incident.
Multiagency Coordination (MAC) Group: A group of administrators or executives, or their
appointed representatives, who are typically authorized to commit agency resources and
funds. A MAC Group can provide coordinated decision-making and resource allocation
among cooperating agencies, and may establish the priorities among incidents, harmonize
agency policies, and provide strategic guidance and direction to support incident management
activities. MAC Groups may also be known as multiagency committees, emergency
management committees, or as otherwise defined by the Multiagency Coordination System.
Multiagency Coordination System (MACS): A system that provides the architecture to
support coordination for incident prioritization, critical resource allocation, communications
systems integration, and information coordination. MACS assist agencies and organizations
responding to an incident. The elements of a MACS include facilities, equipment, personnel,
procedures, and communications. Two of the most commonly used elements are Emergency
Operations Centers and MAC Groups.
Multijurisdictional Incident: An incident requiring action from multiple agencies that each
have jurisdiction to manage certain aspects of an incident. In the Incident Command System,
these incidents will be managed under Unified Command.
Mutual Aid Agreement or Assistance Agreement: Written or oral agreement between and
among agencies/organizations and/or jurisdictions that provides a mechanism to quickly
obtain emergency assistance in the form of personnel, equipment, materials, and other
associated services. The primary objective is to facilitate rapid, short-term deployment of
emergency support prior to, during, and/or after an incident.
National Coordinating Center for Telecommunications: A joint telecommunications
industry--Federal Government operation established to assist in the initiation, coordination,
restoration, and reconstitution of NS/EP telecommunications services and facilities.
National Counterterrorism Center (NCTC): The NCTC serves as the primary Federal
organization for analyzing and integrating all intelligence possessed or acquired by the U.S.
Government pertaining to terrorism and counterterrorism, excepting purely domestic
counterterrorism information. The NCTC may, consistent with applicable law, receive,
retain, and disseminate information from any Federal, State, or local government or other
source necessary to fulfill its responsibilities.
National Disaster Medical System (NDMS): A coordinated partnership between DHS,
HHS, DOD, and the Department of Veterans Affairs established for the purpose of responding
to the needs of victims of a public health emergency. NDMS provides medical response
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assets and the movement of patients to health care facilities here definitive medical care is
received when required.
National Essential Functions: A subset of government functions that are necessary to lead
and sustain the Nation during a catastrophic emergency and that, therefore, must be supported
through continuity of operations and continuity of government capabilities.
National Incident Management System: A set of principles that provides a systematic,
proactive approach guiding government agencies at all levels, nongovernmental
organizations, and the private sector to work seamlessly to prevent, protect against, 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 Infrastructure Coordinating Center (NICC): Managed by the DHS Information
Analysis and Infrastructure Protection Directorate, the NICC monitors the Nation’s critical
infrastructure and key resources on an ongoing basis. In the event of an incident, the NICC
provides a coordinating vehicle to share information with critical infrastructure and key
resources information sharing entities.
National Interagency Fire Center (NIFC): A facility located in Boise, ID, that is jointly
operated by several Federal agencies and is dedicated to coordination, logistical support, and
improved weather services in support of fire management operations throughout the United
States
National Response Center (NRC): A national communications center for activities related to
oil and hazardous substance response actions. The National Response Center, located at
DHS/USCG Headquarters in Washington, DC, receives and relays notices of oil and
hazardous substances releases to the appropriate Federal OSC.
National Response Framework: A guide to how the Nation conducts all-hazards response.
National Response Team (NRT): The NRT, comprised of the 16 Federal agencies with
major environmental and public health responsibilities, is the primary vehicle for coordinating
Federal agency activities under the NCP. The NRT carries out national planning and response
coordination and is the head of a highly organized Federal oil and hazardous substance
emergency response network. EPA serves as the NRT Chair, and DHS/USCG serves as Vice
Chair.
National Strike Force: The National Strike Force consists of three strike teams established
by DHS/USCG on the Pacific, Atlantic, and Gulf coasts. The strike teams can provide advice
and technical assistance for oil and hazardous substances removal, communications support,
special equipment, and services.
National: Of a nationwide character, including the Federal, State, tribal, and local aspects of
governance and policy.
Nongovernmental Organization (NGO): An entity with an association that is based on
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, not a
private benefit. Examples of NGOs include faith-based charity organizations and the
American Red Cross. NGOs, including voluntary and faith-based groups, provide relief
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services to sustain life, reduce physical and emotional distress, and promote the recovery of
disaster victims. Often these groups provide specialized services that help individuals with
disabilities. NGOs and voluntary organizations play a major role in assisting emergency
managers before, during, and after an emergency.
Nuclear Incident Response Team (NIRT): Created by the Homeland Security Act to
provide DHS with a nuclear/radiological response capability. When activated, the NIRT
consists of specialized Federal response teams drawn from DOE and/or EPA. These teams
may become DHS operational assets providing technical expertise and equipment when
activated during a crisis or in response to a nuclear/radiological incident as part of the DHS
Federal response.
Officer: The Incident Command System title for a person responsible for one of the
Command Staff positions of Safety, Liaison, and Public Information.
On-Scene Command Post: Facility at a safe distance from an accident site, from which the
incident commander, responders, and technical representatives can make response decisions,
deploy manpower and equipment, maintain liaison with media, and handle communications.
Operational Period: The time scheduled for executing a given set of operation actions, as
specified in the Incident Action Plan. Operational periods can be of various lengths, although
usually they last 12 to 24 hours.
Operations Planning: Process of determining need for application of resources and
determining methods of obtaining and committing resources to fill operational needs.
Operations Section: The Incident Command System (ICS) Section responsible for all tactical
incident operations and implementation of the Incident Action Plan. In ICS, the Operations
Section normally includes subordinate Branches, Divisions, and/or Groups.
Oregon Law Enforcement Telecommunication Systems: Electronic message switching
system network providing landline, teletype communication to federal, state, and local law
enforcement agencies within Oregon.
Organization: Any association or group of persons with like objectives. Examples include,
but are not limited to, governmental departments and agencies, nongovernmental
organizations, and the private sector.
Overpressure: Transient pressure (usually expressed in pounds per square inch) exceeding
ambient pressure, manifested in the shock (or blast) wave from an explosion. Variation of
overpressure with time depends on energy yield of explosion, distance from the point of burst,
and medium value of overpressure at a given location and is generally experience at the
instant the shock (or blast) wave reaches the location.
Perimeter: Hazardous materials incidents may require the establishment of inside and outside
perimeters. Inside Perimeter: Only those directly involved in the response (Hazardous
Materials team, necessary fire personnel, clean-up teams, etc.) shall be allowed into this area.
Security of inside perimeter is the responsibility of the Fire Department. Outside Perimeter:
Area to which other emergency responders (ambulance, emergency management, police,
public works, and additional fire personnel) and the media will be allowed access. Security of
the outside perimeter is the responsibility of the Police Department.
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Permit and Information Center (PIC): Located at 99 W 10th Ave., the PIC is the site that
will serve as the damage assessment center.
Personal Responsibility: The obligation to be accountable for one's actions.
Personnel Accountability: The ability to account for the location and welfare of incident
personnel. It is accomplished when supervisors ensure that Incident Command System
principles and processes are functional and that personnel are working within established
incident management guidelines.
Placard: 10 ¾” x 10 ¾” diamond shaped, color-coded sign affixed to the front, rear, and both
sides of a transport vehicle identifying a specific hazard regarding the material being
transported. 704 Placard: Diamond-shaped, color-coded sign affixed to a stationary site
designating the multiple hazards associated with chemical storage at that site.
Plain Language: Communication that can be understood by the intended audience and meets
the purpose of the communicator. For the purpose of the National Incident Management
System, plain language is designed to eliminate or limit the use of codes and acronyms, as
appropriate, during incident response involving more than a single agency.
Planned Event: A scheduled nonemergency activity (e.g., sporting event, concert, parade,
etc.).
Planning Meeting: A meeting held as needed before and throughout the duration of an
incident to select specific strategies and tactics for incident control operations and for service
and support planning. For larger incidents, the Planning Meeting is a major element in the
development of the Incident Action Plan.
Planning Section: The Incident Command System Section responsible for the collection,
evaluation, and dissemination of operational information related to the incident, and for the
preparation and documentation of the Incident Action Plan. This Section also maintains
information on the current and forecasted situation and on the status of resources assigned to
the incident.
Plume: A vapor cloud formation associated with HAZMAT, which has shape and buoyancy.
Portability: An approach that facilitates the interaction of systems that are normally distinct.
Portability of radio technologies, protocols, and frequencies among emergency
management/response personnel will allow for the successful and efficient integration,
transport, and deployment of communications systems when necessary. Portability includes
the standardized assignment of radio channels across jurisdictions, which allows responders to
participate in an incident outside their jurisdiction and still use familiar equipment.
Preparedness Organization: An organization that provides coordination for emergency
management and incident response activities before a potential incident. These organizations
range from groups of individuals to small committees to large standing organizations that
represent a wide variety of committees, planning groups, and other organizations (e.g., Citizen
Corps, Local Emergency Planning Committees, Critical Infrastructure Sector Coordinating
Councils).
Preparedness: A continuous cycle of planning, organizing, training, equipping, exercising,
evaluating, and taking corrective action in an effort to ensure effective coordination during
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incident response. Within the National Incident Management System, preparedness focuses
on the following elements: planning; procedures and protocols; training and exercises;
personnel qualification and certification; and equipment certification.
Pre-Positioned Resource: A resource moved to an area near the expected incident site in
response to anticipated resource needs.
Prevention: Actions to avoid an incident or to intervene to stop an incident from occurring.
Prevention involves actions to protect lives and property. It involves applying intelligence and
other information to a range of activities that may include such countermeasures as deterrence
operations; heightened inspections; improved surveillance and security operations;
investigations to determine the full nature and source of the threat; public health and
agricultural surveillance and testing processes; immunizations, isolation, or quarantine; and,
as appropriate, specific law enforcement operations aimed at deterring, preempting,
interdicting, or disrupting illegal activity and apprehending potential perpetrators and bringing
them to justice.
Primary Mission Essential Functions: Government functions that must be performed in
order to support or implement the performance of National Essential Functions before, during,
and in the aftermath of an emergency.
Principal Federal Official (PFO): The Federal official designated by the Secretary of
Homeland Security to act as his/her representative locally to oversee, coordinate, and execute
the Secretary’s incident management responsibilities under HSPD-5 for Incidents of National
Significance.
Private Sector: Organizations and individuals that are not part of any governmental structure.
The private sector includes for-profit and not-for-profit organizations, formal and informal
structures, commerce, and industry.
Promulgation Document: Letter of approval or resolution of the Plan by the jurisdiction’s
chief executive.
Protected Groups: Groups, including women, minorities, and people with access and
functional needs identified for consideration under affirmative action guidelines.
Protocol: A set of established guidelines for actions (which may be designated by
individuals, teams, functions, or capabilities) under various specified conditions.
Public Information Officer: A member of the Command Staff responsible for interfacing
with the public and media and/or with other agencies with incident-related information
requirements.
Public Information: Processes, procedures, and systems for communicating timely, accurate,
and accessible information on an incident's cause, size, and current situation; resources
committed; and other matters of general interest to the public, responders, and additional
stakeholders (both directly affected and indirectly affected).
Publications Management: Subsystem that manages the development, publication control,
publication supply, and distribution of National Incident Management System materials.
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Radio Amateur Civil Emergency Services (RACES): Radio communications services
conducted by volunteer licensed amateur radio operators providing emergency radio
communications to local, regional, or state emergency management organizations.
Radiological Emergency Response Teams (RERTs): Teams provided by EPA’s Office of
Radiation and Indoor Air to support and respond to incidents or sites containing radiological
hazards. These teams provide expertise in radiation monitoring, radionuclide analyses,
radiation health physics, and risk assessment. RERTs can provide both mobile and fixed
laboratory support during a response.
Rapid Response Center: Serves as central location for media and public to receive
information about an emergency. Information is disseminated primarily through use of a
“hotline” phone number publicized in the media. The Rapid Response Center is also used to
conduct news conference, when necessary.
Reception Area: This refers to a location separate from staging areas, where resources report
in for processing and out-processing. Reception Areas provide accountability, security,
situational awareness briefings, safety awareness, distribution of IAPs, supplies and
equipment, feeding, and bed down.
Recovery Plan: A plan developed to restore an affected area or community.
Recovery: The development, coordination, and execution of service- and site-restoration
plans; the reconstitution of government operations and services; individual, private-sector,
nongovernmental, and public assistance programs to provide housing and to promote
restoration; long-term care and treatment of affected persons; additional measures for social,
political, environmental, and economic restoration; evaluation of the incident to identify
lessons learned; post incident reporting; and development of initiatives to mitigate the effects
of future incidents.
Regional Response Teams (RRTs): Regional counterparts to the National Response Team,
the RRTs comprise regional representatives of the Federal agencies on the NRT and
representatives of each State within the region. The RRTs serve as planning and preparedness
bodies before a response, and provide coordination and advice to the Federal OSC during
response actions.
Reimbursement: A mechanism to recoup funds expended for incident-specific activities.
Resource Guide: Current list of all resources (equipment, personnel, and supplies) which can
be used by emergency services in response to local disaster or emergency.
Resource Management: A system for identifying available resources at all jurisdictional
levels to enable timely, efficient, and unimpeded access to resources needed to prepare for,
respond to, or recover from an incident. Resource management under the National Incident
Management System includes mutual aid agreements and assistance agreements; the use of
special Federal, State, tribal, and local teams; and resource mobilization protocols.
Resource Tracking: A standardized, integrated process conducted prior to, during, and after
an incident by all emergency management/response personnel and their associated
organizations.
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Resources: Personnel and major items of equipment, supplies, and facilities available or
potentially available for assignment to incident operations and for which status is maintained.
Resources are described by kind and type and may be used in operational support or
supervisory capacities at an incident or at an Emergency Operations Center.
Response Time: The time necessary for an emergency vehicle, operating with warning lights
and siren, to travel from its location to the scene of an emergency.
Response: Activities that address the short-term, direct effects of an incident. Response
includes immediate actions to save lives, protect property, and meet basic human needs.
Response also includes the execution of emergency operations plans and of mitigation
activities designed to limit the loss of life, personal injury, property damage, and other
unfavorable outcomes. As indicated by the situation, response activities include applying
intelligence and other information to lessen the effects or consequences of an incident;
increased security operations; continuing investigations into nature and source of the threat;
ongoing public health and agricultural surveillance and testing processes; immunizations,
isolation, or quarantine; and specific law enforcement operations aimed at preempting,
interdicting, or disrupting illegal activity, and apprehending actual perpetrators and bringing
them to justice.
Retrograde: To return resources back to their original location.
Risk: Probability that a hazard will occur during a particular time period.
Safety Officer: A member of the Command Staff responsible for monitoring incident
operations and advising the Incident Commander on all matters relating to operational safety,
including the health and safety of emergency responder personnel.
Section: The Incident Command System organizational level having responsibility for a
major functional area of incident management (e.g., Operations, Planning, Logistics,
Finance/Administration, and Intelligence/Investigations (if established). The Section is
organizationally situated between the Branch and the Incident Command.
Self-Contained Breathing Apparatus (SCBA): Air tanks and mask worn by fire fighters at
fires and hazardous materials incidents.
Shelter Manager: A pre-trained individual, selected by the local coordinator, who provides
for internal organization, administration, and operation of a shelter facility.
Shipping Papers: Documentation carried by the driver of a truck, or other mode of
transportation, which states what the hazardous material is, the amount, and how it is package,
i.e., boxes, drums, and tanks.
Single Resource: An individual, a piece of equipment and its personnel complement, or a
crew/team of individuals with an identified work supervisor that can be used on an incident.
Situation Report: Confirmed or verified information regarding the specific details relating to
an incident.
Span of Control: The number of resources for which a supervisor is responsible, usually
expressed as the ratio of supervisors to individuals. (Under the National Incident Management
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System, an appropriate span of control is between 1:3 and 1:7, with optimal being 1:5, or
between 1:8 and 1:10 for many large-scale law enforcement operations.)
Special Needs Population: A population whose members may have additional needs before,
during, and after an incident in functional areas, including but not limited to: maintaining
independence, communication, transportation, supervision, and medical care. Individuals in
need of additional response assistance may include those who have disabilities; who live in
institutionalized settings; who are elderly; who are children; who are from diverse cultures,
who have limited English proficiency, or who are non-English-speaking; or who are
transportation disadvantaged.
Staging Area: Temporary location for available resources. A Staging Area can be any
location in which personnel, supplies, and equipment can be temporarily housed or parked
while awaiting operational assignment.
Standard Operating Guidelines: A set of instructions having the force of a directive,
covering those features of operations which lend themselves to a definite or standardized
procedure without loss of effectiveness.
Standard Operating Procedure: 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.
State Coordinating Officer (SCO): Person appointed by the Governor to serve as the on-
scene representative for the Division of Emergency Management and to work in concert with
the Federal Coordinating Officer in administering state and federal assistance to disaster
victims.
State Emergency Management Plan: State Plan designated specifically for state-level
response to emergencies or major disasters, which sets forth implementing federal disaster
assistance.
State Radiation Team/Radiological Monitoring Team: Response team dispatched to the
site of a radiological incident by the Bureau of Radiation Control, Oregon Department of
Health. Emergency management radiological monitoring resources, including aerial
monitoring may augment the team(s), if requested, by the Department of Health. At the
incident scene, all radiation control capabilities are coordinated by the Department of Health,
which also furnishes technical guidance and other services to local governments.
State: When capitalized, refers to any State of the United States, the District of Columbia, the
Commonwealth of Puerto Rico, the Virgin Islands, Guam, American Samoa, the
Commonwealth of the Northern Mariana Islands, and any possession of the United States. See
Section 2 (14), Homeland Security Act of 2002, Pub. L. 107-296, 116 Stat. 2135 (2002).
Status Report: Information specifically related to the status of resources (e.g., the availability
or assignment of resources).
Strategic Plan: A plan that addresses long-term issues such as impact of weather forecasts,
time phased resource requirements, and problems such as permanent housing for displaced
disaster victims, environmental pollution, and infrastructure restoration.
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Strategic: Strategic elements of incident management are characterized by continuous, long-
term, high-level planning by organizations headed by elected or other senior officials. These
elements involve the adoption of long-range goals and objectives, the setting of priorities, the
establishment of budgets and other fiscal decisions, policy development, and the application
of measures of performance or effectiveness.
Strategy: The general plan or direction selected to accomplish incident objectives.
Strike Team: A set number of resources of the same kind and type that have an established
minimum number of personnel, common communications, and a leader.
Subject-Matter Expert (SME): An individual who is a technical expert in a specific area or
in performing a specialized job, task, or skill
Substate Region: A grouping of jurisdictions, counties, and/or localities within a State
brought together for specified purposes (e.g., homeland security, education, public health),
usually containing a governance structure.
Supervisor: The Incident Command System title for an individual responsible for a Division
or Group.
Supporting Agency: An agency that provides support and/or resource assistance to another
agency. See Assisting Agency.
Supporting Technology: Any technology that may be used to support the National Incident
Management System, such as orthophoto mapping, remote automatic weather stations,
infrared technology, or communications.
System: Any combination of facilities, equipment, personnel, processes, procedures, and
communications integrated for a specific purpose.
Tactics: The deployment and directing of resources on an incident to accomplish the
objectives designated by strategy.
Task Force: Any combination of resources assembled to support a specific mission or
operational need. All resource elements within a Task Force must have common
communications and a designated leader.
Technical Specialist: Person with special skills that can be used anywhere within the Incident
Command System organization. No minimum qualifications are prescribed, as technical
specialists normally perform the same duties during an incident that they perform in their
everyday jobs, and they are typically certified in their fields or professions.
Technology Standards: Conditions, guidelines, or characteristics that may be required to
facilitate the interoperability and compatibility of major systems across jurisdictional,
geographic, and functional lines.
Technology Support: Assistance that facilitates incident operations and sustains the research
and development programs that underpin the long-term investment in the Nation's future
incident management capabilities.
Terrorism: As defined in the Homeland Security Act of 2002, activity that involves an act
that is dangerous to human life or potentially destructive of critical infrastructure or key
resources; is a violation of the criminal laws of the United States or of any State or other
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subdivision of the United States; and appears to be intended to intimidate or coerce a civilian
population, to influence the policy of a government by intimidation or coercion, or to affect
the conduct of a government by mass destruction, assassination, or kidnapping.
Threat: Natural or manmade occurrence, individual, entity, or action that has or indicates the
potential to harm life, information, operations, the environment, and/or property.
Tools: Those instruments and capabilities that allow for the professional performance of
tasks, such as information systems, agreements, doctrine, capabilities, and legislative
authorities.
Traffic Control Points: Placed along evacuation routes, staffed by law enforcement officials,
to direct and control movement to and from the area being evacuated.
Training Facility (Fire and Rescue): Site where fire and emergency training can be
conducted on a regular basis. Such facilities normally include a tower for practice in repelling
and raising ladders, structures in which test burns may be conducted props for exercises in
flammable liquid and gas fire fighting, multiple fire hydrants, and areas into which large
volumes of water may be discharged. In addition to physical props necessary for “hands-on”
training, such facilities normally include classroom areas and office space for training staff.
Triage: System of assigning priorities of medical treatment to the injured/ill on the basis of
urgency and chance of survival.
Tribal: Referring to any Indian tribe, band, nation, or other organized group or community,
including any Alaskan Native Village as defined in or established pursuant to the Alaskan
Native Claims Settlement Act (85 Stat. 688) [43 U.S.C.A. and 1601 et seq.], that is
recognized as eligible for the special programs and services provided by the United States to
Indians because of their status as Indians.
Truck: Fire department ladder truck. Vehicles are normally equipped with either a
mechanically operated aerial ladder or a boom and bucket type of device. Additionally,
trucks are equipped with a full complement of hand-raised ladders, as well as specialized
equipment not carried other fire apparatus such as forcible entry and rescue tools.
Type: An Incident Command System resource classification that refers to capability. Type 1
is generally considered to be more capable than Types 2, 3, or 4, respectively, because of size,
power, capacity, or (in the case of Incident Management Teams) experience and
qualifications.
Unified Approach: The integration of resource management, communications and
information management, and command and management in order to form an effective
system.
Unified Area Command: Version of command established when incidents under an Area
Command are multijurisdictional. See Area Command.
Unified Command (UC): An Incident Command System application used when more than
one agency has incident jurisdiction or when incidents cross political jurisdictions. Agencies
work together through the designated members of the UC, often the senior persons from
agencies and/or disciplines participating in the UC, to establish a common set of objectives
and strategies and a single Incident Action Plan.
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Uniform Fire, Building and Mechanical Codes (UFC, UBS, UMC): Standardized codes
regulating construction, occupancy, access, and use of building, which have been adopted for
use. The Planning and Development/Building and Permit Services Division and the Fire
Prevention Bureau enforce codes.
Unit Leader: The individual in charge of managing Units within an Incident Command
System (ICS) functional Section. The Unit can be staffed by a number of support personnel
providing a wide range of services. Some of the support positions are pre-established within
ICS (e.g., Base/Camp Manager), but many others will be assigned as technical specialists.
Unit Log: Activity log describing chronology of events, incoming and outgoing messages,
and other pertinent information for records relating to incident, as well as post-incident
evaluation.
Unit: The organizational element with functional responsibility for a specific incident
planning, logistics, or finance/administration activity.
Unity of Command: An Incident Command System principle stating that each individual
involved in incident operations will be assigned to only one supervisor.
Urban Search and Rescue: Operational activities that include locating, extricating, and
providing on-site medical treatment to victims trapped in collapsed structures.
Utility: Structures or systems of electrical power, water storage, supply and distribution,
sewage collection and treatment, telephone, transportation, or other similar public service.
Vital Records: The essential agency records that are needed to meet operational
responsibilities under national security emergencies or other emergency or disaster conditions
(emergency operating records), or to protect the legal and financial rights of the government
and those affected by government activities (legal and financial rights records).
Volunteer Organization: Any chartered or otherwise duly recognized tax-exempt local,
state, or national organization, which has provided or may provide services to state or local
governments or individuals in a disaster or emergency.
Volunteer: For purposes of the National Incident Management System, any individual
accepted to perform services by the lead agency (which has authority to accept volunteer
services) when the individual performs services without promise, expectation, or receipt of
compensation for services performed. See 16 U.S.C. 742f(c) and 29 CFR 553.10
Vulnerability: Susceptibility to injury or damage from hazards.
Vulnerable Zone: Area over which the airborne concentration of a chemical involved in an
accidental release could reach the level of concern.
Warning: Notification of the imminent impact of a specific hazard, and immediate actions
that should be taken.
Weapons of Mass Destruction (WMD): As defined in Title 18, U.S.C. ' 2332a: (1) any
explosive, incendiary, or poison gas, bomb, grenade, rocket having a propellant charge of
more than 4 ounces, or missile having an explosive or incendiary charge of more than one-
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31 September 1, 2014
quarter ounce, or mine or similar device; (2) any weapon that is designed or intended to cause
death or serious bodily injury through the release.
Wireless Priority Service (WPS): XE "WPS (Wireless Priority Service)" WPS allows
authorized NS/EP personnel to gain priority access to the next available wireless radio
channel to initiate calls during an emergency when carrier channels may be congested.
Attachment 2, Page 114 of 114