Municipal Emergency Management Guide. Municipal Emergency Management Guide

Transcription

1 Municipal Emergency Management Guide Municipal Emergency Management Guide 1

2 Municipal Emergency Management Guide Developed by the PEI Office of Public Safety A division of the Department of Justice and Public Safety October

3 Municipal Emergency Management Guide TABLE OF CONTENTS PREFACE... 5 Section Developing a Municipal Emergency Program... 7 Risk Assessment... 8 Business Continuity Planning Agencies Emergency Plans Evacuation Plan Section The Process to Writing a Plan Organization Stage Consultation Development Stage Check Stage Contingency Plans Stress Management and Debriefing Developing Memorandums of Understanding or Agreements Developing Your Evacuation Plan Section Municipal Emergency Operations Centres The Emergency Operations Centre (EOC): EOC Physical Location, Equipment and Supplies Equipping a Municipal Emergency Operations Centre Basic Office Supplies Suggested Inventory of Information Items Diagrams and Charts Forms Maps, Overlays and Photographs EOC Management Structure EOC Personnel

4 Municipal Emergency Management Guide External Agencies in EOC EOC Activation Incident Command System Emergency Procedures Step 1 Activate the Fan-Out Step 2 Activate the EOC Step 3 Close the EOC Reporting check list for Key Personnel EOC Manager Operations Sections Communications Coordinator Fire Branch - Fire Chief Police Branch - Police Chief (RCMP) Transportation Coordinator Human Resources Coordinator Emergency Social Services Coordinator Public Information Officer Department Reps Technical Specialists Section Crisis Communications Section Emergency Social Services (ESS) Section Municipal Emergency Exercises Sample Exercise: Hay Wagon Sample Exercise Exercise October Appendices

5 Municipal Emergency Management Guide PREFACE Why do we need to plan? January 2008 Ice Storm A ll municipalities will face emergencies. In the 21 st century we have become more reliant on technology, communications, and transportation. As a result, we are more adversely affected by severe weather, floods, or epidemics. We are not immune to these threats. In PEI, municipalities are usually the first to respond in an emergency. However, a large-scale emergency may require more resources and personnel than your primary responders can provide. To be able to respond in an effective and coordinated manner in an emergency, it is vital that municipalities develop an emergency management program. We are not immune to these threats. The key element of emergency preparedness is municipal emergency program planning. When developing your municipal emergency program, you will need commitment from local officials and input and support from the PEI Office of Public Safety and other supporting agencies that will participate in an emergency response. Once the plan is developed, it is very important to exercise the plan to ensure that it functions as intended and to familiarize emergency personnel with their roles. 5

6 Municipal Emergency Management Guide The Office of Public Safety offers training and assistance to support municipalities with emergency preparedness activities. The Office of Public Safety also works directly with all provincial government departments, liaises with volunteer agencies, and communicates with the federal emergency agency, Public Safety Canada. Develop and exercise your emergency plan as soon as possible. Because most emergencies are unexpected, it is important to develop the plan before, rather than during or worse after - an emergency. Planning ahead ensures that your municipality has taken all necessary steps to prepare for an emergency and reduces liability exposure. The key element of emergency preparedness is developing a municipal emergency plan. 6

7 Municipal Emergency Management Guide Section 1 Developing a Municipal Emergency Program E mergency Management is comprised of four distinct but intertwining phases: Mitigation, Preparedness, Response, and Recovery. Mitigation deals with taking corrective measures to ensure that an area of potential risk is identified, and those measures are taken in order to reduce or eliminate the risk and potential impact on the community. Preparedness activities can help ensure that appropriately trained staff and other resources are identified and available to respond when mitigation is not feasible or practical. The Response phase involves the community s actions to deal with a current risk. The Recovery phase involves the efforts of the community and its residents to return to normal. The responsibility for the health and welfare of municipal residents rests with the elected officials of a municipal government. Every municipality must be prepared, to the extent of its own capabilities, to meet the threats that may arise from an emergency. Hurricane Juan

8 Municipal Emergency Management Guide The first steps in mitigation and preparedness are hazard analysis and risk assessment. Emergency management activities at the municipal level include: conducting a hazard, risk and vulnerability assessment of the community; ensuring the creation of an effective emergency management plan (Samples of various plans that may be adapted to the needs of each municipality are available from PEI OFFICE OF PUBLIC SAFETY on our website ) and ensuring the plan is maintained, exercised and modified annually; conducting public emergency management training, awareness and education programs; and providing leadership and direction during an emergency situation. Risk Assessment The first steps in mitigation and preparedness are hazard analysis and risk assessment. Appropriate mitigation and preparedness activities can only follow once risks are adequately identified and assessed. The process of conducting a risk assessment is based on a review of the features of hazards such as their location, intensity, frequency and probability; and the probability of the physical, social, economic and environmental impacts vulnerability and exposure, while taking into account municipal capacity. Such assessments can help municipalities obtain and update information needed to underpin their emergency plans. However, learning what to ask for can require some specialist knowledge and individual municipalities may benefit from discussion at a wider regional level. 8

9 Municipal Emergency Management Guide Municipalities can contact PEI Office of Public Safety for assistance completing a hazard risk assessment and help to define specific areas for emergency management planning focus. The next step in developing a municipal emergency management program is to obtain training. Individuals with an emergency management role should attend a basic emergency management (BEM) course through PEI Office of Public Safety. Through BEM participants will learn the dynamics of comprehensive planning gain an understanding of the roles various agencies have in planning and responding to an emergency and develop an understanding of the requirements for planning. Contact PEI Office of Public Safety at [email protected] or (902) for dates and locations or visit our training calendar at When an emergency occurs in your community, usually police, fire, and/or ambulance personnel respond. When the emergency escalates beyond the capacity of these primary responders, the municipality needs to activate further personnel and resources. Citizens depend on and expect their local government to provide an effective, coordinated response to such an emergency to limit any damage or losses that may occur in their lives, property, or the environment. An emergency management planning committee should be assembled and include representatives from various response agencies and organizations that will complement an effective emergency response. Include police, fire, ambulance, social services, volunteer organizations, amateur radio operators, etc., in the planning committee. The Emergency Management Coordinator (EMC) should lead this committee and host at least three meetings a year. This role is further defined in the section on page 49. Seek input from committee members and the 9

10 Municipal Emergency Management Guide agencies they represent on what should be included in your municipal emergency management plan and in exercising the plan. The following components should be also be considered in your municipal emergency management plan; however, each component should be developed according to your municipality, its needs, and resources. Business Continuity Planning Business Continuity Management (BCM) is a holistic management process used to identify potential impacts that threaten an organization. BCM offers tools aims to improve an organization's resilience. By identifying, in advance, the impacts of a wide variety of potential disruptions to the organization, personnel can prioritize actions to achieve resilience in areas such as security, facilities and Information Technology. While concerned with all scales of resilience, through an organization s BCM, can plans ways to survive the loss of part or all of its operational capability such as staff or equipment. Because an organization's depends on its management and operational staff as well as technology and geographical diversity resilience must be developed throughout the organization from senior management to shop floor and across all sites and the supply chain. 10

11 Municipal Emergency Management Guide Agencies Emergency Plans Part of a comprehensive municipal emergency plan is incorporating other agencies emergency plans into the municipal plan. This section of the plan includes the planning and operating information for individual agencies and departments that may have a key response role in an emergency. Evacuation Plan Every municipality should have an evacuation plan as a stand alone or complementary document to the municipal emergency plan. Sudden emergencies such as a dangerous goods spill, a forest fire, or rising flood waters may require the municipality to evacuate residents quickly and for an extended period of time. 11

12 Municipal Emergency Management Guide Section 2 The Process to Writing a Plan Writing the Plan M ayors and Council should ensure that their municipality develops and exercises a municipal emergency plan. The plan should be well thought out, researched, and practiced to ensure maximum effectiveness and acceptance. In addition the emergency management plan should be updated on an annual basis to ensure that resources listed are current and contacts accurate. Emergency Preparedness Week is celebrated across the country during the first full week of May this is an ideal time for municipalities to designate for planning updates. There are fifteen steps to develop an effective emergency response plan; these steps are outlined within stages. 12

13 Municipal Emergency Management Guide Step by Step Guidelines: Organization Stage The purpose of the planning process is to produce a realistic assessment of the risks your community faces and develop a program for emergency response to effectively respond to those risks. That same program will also enable you to deal effectively with other risks you have not anticipated. Step 1. Pass a municipal by-law The process of developing an emergency plan begins and ends with the municipal council. The council must support the idea of emergency planning, provide funding, if applicable, and appoint the members of the emergency planning committee. Council gives the planning committee the authority through by-law to develop an emergency plan. The municipal council should be involved at various points in the planning process, both to keep elected officials informed about the content of the plan and to build support for it. The by-law should enable council to o Appoint a standing committee of council including at least two council members o Appoint an emergency management coordinator for the municipality o Establish an emergency management planning committee o Allocate finances for extraordinary expenses incurred during an emergency o By-law template see Appendices section of this guide 13

14 Municipal Emergency Management Guide Step 2. Form a standing committee to council Municipal council should appoint two or more council members to a standing committee that will serve as the executive in an emergency situation and will represent executive concerns in emergency planning. The standing committee will liaise with the emergency management coordinator regarding planning issues and emergency threats in the region. The standing committee will also negotiate any mutual aid agreements with other municipalities or organizations. Step 3. Appoint an emergency management coordinator; establish an emergency management planning committee The standing committee to council should appoint an emergency management coordinator who has the support and recognition of primary emergency responders, municipal officials and administrators, and representatives from agencies that participate in the emergency planning and response processes. The emergency management coordinator will motivate, amalgamate and coordinate a response when an emergency occurs in the municipality. The emergency management coordinator will also act as the chairperson for the emergency management planning committee. This committee should include representatives from all organizations that will participate in a municipal emergency response, including persons from o Police department o Fire department o Ambulance 14

15 Municipal Emergency Management Guide o Senior municipal administration o Public works o Community services Members of the committee should have many years experience in their respective fields, possess a sound knowledge of their operational roles, procedures, and resources, and have the authority to make decisions on behalf of their department or agency. Avoid making the planning committee too large. It is usually better to develop a support group to provide expertise and assistance on specific topics as needed. A support group might include representatives from: o Industries or private utilities o Local schools o Provincial government departments, where applicable o Volunteer organizations: Canadian Red Cross, the local amateur radio club, etc. o Transportation companies o Equipment suppliers o Other stakeholders or involved participants 15

16 Municipal Emergency Management Guide The emergency management planning committee will report to the standing committee through the emergency management coordinator. The latter should periodically brief the standing committee to ensure ongoing support and approval of actions, plans or procedures, and decisions. Consultation Through meetings with other governments, private-sector organizations, and volunteer agencies, analyze possible hazards and assign roles and responsibilities. Also, develop a contact list of available resources and qualified personnel. Step 4. Consult with PEI Office of Public Safety for assistance Your municipal emergency management committee should call on PEI Office of Public Safety for any or all of the following: o Emergency resources to respond to a particular emergency if unavailable in your municipality or reached their capacity o Assistance to ensure your plan is complete and sessions on developing an emergency management program for staff and council o Training in basic emergency management, exercise design and advanced emergency management 16

17 Municipal Emergency Management Guide Step 5. Reinforce the aim Ensure that everyone (Council and staff) understands the purpose for writing an emergency plan and supports the concept and goals. Consult with all affected stakeholders as well and explain how the planning committee plans to achieve these goals. Step 6. Conduct a hazard analysis Emergency planning includes identifying and assessing the risks your community faces. Through research, local historical records, and your own knowledge, you can gain insight into potential threats your region faces and some probable effects of an emergency. Be realistic. The goal is not to anticipate every possible risk, but to develop systematic procedures that provide an effective response to a probable, and not so probable emergency. Keep in mind the question: What would we do if? Every community has specific risks: Your goal is to identify those risks and provide a basis for dealing with them. Hazard analysis is also beneficial for developing an outline for everyone participating in an emergency response. Consider all possible resources your municipality has at its disposal, and where you may obtain items that are not available or may be in limited supply. If you face a lack of resources or qualified personnel to carry out necessary functions in an emergency, you can develop a mutual aid agreement or sign a memorandum of understanding (MOU) with another municipality or organization that will provide needed assistance in an emergency. 17

18 Municipal Emergency Management Guide Step 7 Determine what needs to be done; decide who does what The plan is a blueprint for your emergency response. Part of the blueprint development involves assigning roles and responsibilities to specific groups or individuals for various aspects of emergency planning or response. Develop these responsibilities with the individuals or groups who will carry them out to ensure agreement and clear understanding of the roles. Step 8 Evaluate resources vs. tasks A municipal emergency plan is only as effective as that municipality s ability to carry it out. An effective emergency response involves two components: o Recognizing the developing emergency and responding quickly and effectively o Making the best use of existing resources in the municipality The plan is essentially a blueprint for an emergency response. Maintain a current contact list or directory of all necessary personnel, including council members, primary responders, and persons responsible for resources which may be needed in your community. 18

19 Municipal Emergency Management Guide The directory should indicate contact names, all available phone numbers and, ideally, a designated alternate for all resources you may need in an emergency. It is very important that you update this directory regularly. Your plan should outline a notification system that describes who initiates the callout and how it will proceed. An established call-out procedure will ensure that all necessary personnel and resources are contacted to respond to the emergency. Consider the following: o Can you respond to more than one emergency at a time? o Where could you obtain additional people and equipment, if needed? o Do you have reliable communications and transportation system in place? 19

20 Municipal Emergency Management Guide Development Stage Bring together the findings from the consultation and write a detailed plan. Have the plan approved and provide training as necessary. Step 9 Make detailed plans The emergency management coordinator will develop the basic emergency plan. The plan should outline the chain of command at the emergency site and operations centre, and include guidelines for implementing the authority structure. During the plan development, the members of the emergency planning committee will each describe, in writing, their roles and responsibilities in an emergency response. The plan should outline the immediate responsibilities and actions of each agency/department and: o List available personnel and other resources and indicate how they would be activated during an emergency situation o Describe the duties of all other personnel involved o Outline alerting and assembly instructions, including all telephone fan-out charts Public awareness and support are an important element in emergency planning. Seek public consultation during this planning stage. Representatives from other organizations or agencies, volunteers and citizens may provide you with feedback or issues you may not have considered. Taking the time for consultations while developing your plan will better reflect your municipality and make your plan more effective. 20

21 Municipal Emergency Management Guide Public awareness and support are an important element in emergency planning. Step 10 Integrate plans developed by other agencies Emergency plans for specific organizations may already exist in your municipality. Hospitals, for example, develop an emergency plan as part of the accreditation process. Police and fire departments routinely develop response plans for various contingencies. School boards and special institutions (nursing homes, correctional facilities, etc.) are required to develop their own plans. Find out what plans exist and integrate as appropriate under the umbrella of your municipal plan. The emergency management coordinator should be responsible for ensuring the separate sections are coordinated into one umbrella plan. Step 11 Present plan to standing committee of council The emergency management coordinator presents the working plan to the standing committee of council. This committee will review the plan. 21

22 Municipal Emergency Management Guide Step 12 Recommend plan to council The standing committee of council will present the plan to council. Council may approve as is or suggest some changes. Step 13 Revise and approve the plan If changes are required, the standing committee of council will make the necessary revisions and will present the revised plan to council. These steps may be repeated until council approval is granted. Step 14 Provide education and training Share the emergency plan with all those who may play a role in the emergency response. Meet with representatives from participating departments and agencies to inform them and answer any questions about their roles and responsibilities in an emergency response. Ensure that all participants understand their roles and are able to provide guidance to their staff or volunteers who may also form part of the response team. Provide or refer representatives or their staff members for training as necessary. PEI Office of Public Safety has developed a number of comprehensive emergency preparedness courses for anyone who may be called on in an emergency response. The Basic Emergency Management (BEM) is offered several times a year. PEI Office of Public Safety can also arrange for emergency management training at the Emergency Preparedness College in Ottawa, Ontario. Please consult the PEI OFFICE OF PUBLIC SAFETY website at for further training opportunities. 22

23 Municipal Emergency Management Guide Hurricane Juan 2003 Check Stage Step 15 Exercise the plan Exercise your plan, in part and in whole. Examine how well components of the plan work and check how effectively your municipality can respond. Analyze your plan for areas that need to be improved and make necessary revisions. Exercising the emergency plan is as important as writing it. Exercises can range from tabletop exercises, to a full-scale field exercise. (See Section 5 for more information on municipal emergency exercises.) An emergency exercise is not meant to be a test where the responders are graded on a pass/fail basis, but serves as a learning tool for all involved. It is an opportunity for everyone to apply their roles and responsibilities and to consider components and issues that could unexpectedly arise during an emergency. PEI Office of Public Safety officers are available to attend your exercise event either an observer or evaluator as your needs require. 23

24 Municipal Emergency Management Guide In exercising your plan, it is always helpful to include citizen participation. Public participation makes the exercise more realistic, provides your citizens an opportunity to learn more about the roles of an individual, and builds community support for your local emergency management operations. Make sure your emergency plan provides for the distribution of information to the public during an emergency. Exercising your emergency plan is just as important as writing it. Conclude the exercise with a debriefing session. Everyone who participated in the response should participate in the debriefing. This is an opportunity for everyone to share their perspectives on the response and to provide both positive and negative feedback. The Public Safety Officer or evaluator should also provide feedback on the emergency, focusing particularly on the effectiveness of the plan and the coordination of personnel, resources, and events. It is likely that the exercise will highlight some areas in your emergency plan that requires revision. Make appropriate revisions based observations from the exercise. Plans should be reassessed and updated once a year with committee / council approval. 24

25 Municipal Emergency Management Guide Emergency preparedness is a continuous activity; write your plan and exercise it! Contingency Plans Contingency plans are arrangements for specific emergencies for which a municipality has a vulnerability to. Consider the following: o What agencies should be involved? o What is the specific role for each agency? o What resources are needed to handle such an emergency? o What skilled or qualified personnel are needed to respond effectively? o How can those resources and personnel be reached? o If those personnel or resources are unavailable locally, what other municipalities, agencies, or organizations have the specialized equipment or skills? Stress Management and Debriefing Schedule a debriefing session within 24 to 72 hours of the postemergency stage. All personnel must be debriefed. This can happen in a variety of ways. Emergency managers may choose to debrief on a onetime basis, in a small group, together with all responders and agency representatives. 25

26 Municipal Emergency Management Guide Debriefing must be incorporated in your emergency plan that will allow for an open discussion to evaluate the success of the response Debriefing sessions should include the following: o An objective assessment of the emergency and response o Difficulties individuals or groups faced (e.g., communication, misunderstanding of one s role, etc.) o Recommended changes for the municipal emergency plan and future response efforts o Comments from each individual Debriefing must be incorporated in your emergency plan that will allow for an open discussion to evaluate the success of the response and identify necessary changes for the municipal plan. Debriefing is a useful process so participants can express any frustrations and anxieties experienced during the emergency. Failure to address these feelings can result in a form of aftershock that can lead to increased stress related symptoms. Without proper debriefing, these symptoms may become evident shortly after the emergency and may last for years. For some individuals, even mock and tabletop emergency exercises can be stressful. It is important that everyone get adequate rest and relief during and after the emergency. Start assigning enforced relief and rest periods shortly after the activation of the EOC for everyone, including management personnel. 26

27 Municipal Emergency Management Guide Emergency managers should be aware of the mental capacity of their personnel to ensure that those who are having a difficult time coping have an opportunity to take a break or are removed from the situation. Debriefing session 27

28 Municipal Emergency Management Guide Developing Memorandums of Understanding or Agreements By definition, emergencies are unpredictable. This makes it almost impossible to ensure all necessary resources and qualified personnel are always available and accessible when an emergency happens. Often, however, those personnel or tools are vital to an effective, coordinated response. One way to quickly access resources, assets and qualified personnel in an emergency is to develop a Memorandum of Understanding (MOU) or an agreement (MOA) with local organizations or neighbouring municipalities. An MOU or MOA outlines expected roles and responsibilities of both the municipality and the provider of additional or alternate services or resources, both before and during an emergency response. Consider developing an MOU or MOA with the following resources: o Local school board for use of school facilities, buses, and other equipment in case an evacuation is necessary and a reception centre must be established o Neighbouring municipality for specialized equipment, specialized or additional personnel and/or facilities o Ground search and rescue team for special services such as doorto-door notification for residents in emergency-affected area, follow-up searches, etc. o Community service organizations such as Lions Club and Women s Institute to provide support services such as meal preparation / delivery 28

29 Municipal Emergency Management Guide Your MOU or written agreement should include the following information: o The complete title of each of the parties involved o Definitions to clarify wording used o A brief description of the municipality and other organization describing their purpose and authority structures o The purpose of MOU or MOA o The municipal responsibilities in an emergency response as well as in conjunction with the other party (e.g., provision of training, etc.) o The responsibilities and roles of the other party prior to and in an emergency response o A description of cost recovery for services incurred in a municipal emergency response o An account of insurance coverage and/or liability information o The terms of agreement, including renewal, amendment, and termination information o The appropriate signatures from the municipality and the participating party 29

30 Municipal Emergency Management Guide Developing Your Evacuation Plan When creating the evacuation plan consider the following: o Citizen protection: Is evacuation the only way to protect them from harm? o Municipal training: Who needs to be trained? What should they be trained in? o Citizen rights and responsibilities in an evacuation: What method of public education does your municipality have in place to inform them of these questions? o Public notification: How will you let people know they have to leave the area? Where will they be required to go? o Demographics: What unique characteristics do residents in the affected area have such as disabilities, cultural and language differences? o Public needs: What special needs do people in the affected area have (e.g., transportation, pets, livestock)? What information should they know? o Evacuee numbers: how many people will need to be evacuated? Should others in the area be alerted? How will the municipality deal with separated family members? o Effect on citizens: How will an evacuation affect their stress level and coping skills combined with a large-scale emergency? What kind of support is available to them? o Effect on others: How will the evacuation affect neighbouring municipalities? Who does what in an evacuation? 30

31 Municipal Emergency Management Guide o Effects on other municipal components: How will the evacuation affect the local economy, political consequences and the social fabric of the community? o Area considerations: What parts of the municipality are particularly at risk to evacuate? What can be done to reduce that risk? o Area needs: If many people need to be evacuated, can the municipal infrastructure (roads, bridges, etc.) handle the volume of traffic at this time? o Authority: Can the evacuation happen only when the municipality has declared a state of local emergency? Who orders an evacuation? What liability considerations are there? What are the consequences of these liabilities? o Agencies involved: Who does what in an evacuation? o Re-entry phase: Who will monitor and determine when it is safe for evacuees to return? o Recovery: What assistance is in place for evacuees who face damage or losses as a result of the emergency? In answering the questions above, your municipality should be able to develop a comprehensive evacuation plan. For further evacuation training, planning or exercise assistance, please contact PEI Office of Public Safety. 31

32 Municipal Emergency Management Guide Section 3 Municipal Emergency Operations Centres Planning and Operating Guidelines O nce your municipality has developed an emergency plan, the next step is to create an emergency operations centre (EOC) and assembling an emergency operations group structure. Similar to the emergency plan, an emergency operations centre and group require a commitment from local officials combined with input and support from provincial government agencies including PEI Office of Public Safety. The Emergency Operations Centre (EOC): The Emergency Operations Centre (EOC) is a facility designated for gathering and disseminating information and conducting analysis. Clear, concise, and frequent communication is essential in the EOC in order for decisions and policies governing the emergency response to be planned and implemented in the best possible way. 32

33 Municipal Emergency Management Guide For an emergency response to be effective, everyone staffing the EOC must be able to identify and access resources in an expedient manner. Develop and regularly update a list of contact names and phone numbers of potential personnel and lists of equipment, materials, and supplies that may be useful in an emergency response. 33

34 Municipal Emergency Management Guide EOC Physical Location, Equipment and Supplies Consider the following factors when deciding where to locate your municipality s EOC: o How vulnerable is the location in an emergency? o How convenient is it for EOC staff to get to in an emergency? o Does the EOC have back up power if the emergency causes a loss of electricity, water, and sewage services to the municipality? o What budgetary restraints exist? o How well can the building be secured in an emergency? Develop your EOC before an emergency occurs. Analyze potential hazards and take them into consideration when selecting the site. For example, there is little sense in locating your EOC in an area at high risk for flooding. The EOC must be a self-sufficient facility that can operate independently for a reasonable amount of time with its own electrical generator, an independent water supply and sewage disposal system, and adequate ventilation. Facilities must be located in an area where security personnel can manage and control people entering and leaving the EOC, particularly the operations room. The following areas should be designated in the EOC: o Operations Room - the largest room or area in the facility should be designed to allow for effective management and coordination in the emergency response. 34

35 Municipal Emergency Management Guide o Executive Room - preferably separate but near the operations room, the executive room houses elected officials, who provide authority and direction in the response effort. o Communications Room - separate but close to the activity of the operations room; this is the heart of the EOC. o Public Information Centre - the public information centre is where news of the emergency is disseminated to the public. o Rest areas - stress and fatigue are natural consequences of an emergency; it is imperative to include a quiet area separate from the EOC where personnel can rest. o Washrooms. o Kitchen and food storage facilities that have sufficient equipment, supplies, and food to enable personnel to function effectively during the crisis. The EOC design and layout for small and large municipalities will vary; each municipality will find it needs to design its EOC to fit the needs and building capacities of the municipality. 35

36 Municipal Emergency Management Guide Equipping a Municipal Emergency Operations Centre The following is a suggested list of basic equipment for a municipal emergency operations centre. Consider the specific municipal hazards and needs of EOC staff to ensure that the EOC is properly prepared. o Desks o o Chairs o Telephone books o Tables o Identification tags o Television set o Emergency operations plans o VCR / DVD player o Coat rack o Telephones (unlisted) o Hangers o Additional telephone jacks o In/Out boxes o Black/white board o Photocopier o Display boards o Fax machine o Projection screen o Video and audio cassettes o Overhead projector o Flashlights o Radio o Camera o Computer / printer o Bookcase o Calendar o Food storage cabinet o Local area maps o Kettle o Aerial maps of the area o Garbage cans o Clock o Water jugs and glasses o calculators o Blankets o Tape recorder o Coffee pot, supplies o Shredding machine o Stove o Easel o Cots o Food preparation, serving o Cell phone chargers utensils and equipment 36

37 Basic Office Supplies o Paper (8 1/2 X 11) o Paper towels o Envelopes o Printer toner o Note pads o Extension cords o Thumbtacks o Message pads o Log forms o Message forms o File folders o First-aid kit o Clipboards o Tape o Staples o Rubber stamps, ink pads o Pens, pencils o Markers, dry erase and felt tip o Paper for easel charts o o Paperclips o Rubber bands o Rulers o Protractors, compass o Hole punch o Post-it notes o Digital camera o Flash lights o Paper plates o Disposable cups o Plastic utensils o Garbage bags o Beverages o Snack foods o Toilet paper o Batteries o Clipboards o Glue sticks o Map tacks o Bristol board 37

38 Suggested Inventory of Information Items Plans Plans and instructions listed below should be kept in a separate filing cabinet or bookshelf and be readily available for use in an emergency: o Prince Edward Island All Hazards Emergency Plan o Your municipal emergency plan o Emergency response plans from various responders (fire, police, ambulance) o Fan-out contact list for responders and agency representatives o Standing operating procedures for the EOC o Municipal evacuation plan o Mutual aid agreements or memoranda of understanding o Emergency plans of neighbouring municipalities o Current list of locations and description of dangerous goods within the municipality o Relevant documentation on dangerous goods (including the CANUTEC manual) o a directory of current media and public information resources for the area o Municipal Crisis Communication Plan 38

39 Diagrams and Charts Display diagrams and charts listed below in easily visible locations. Ideally, laminate them and use dry-erase markers. o A list of municipal organizations, their locations and status o Personnel location board (to show where key people are) o Officers duty schedule o Courier service schedule o Communications diagram o Communications status board o Key resource location boards o Reception centre control board o Chart of EOC layout o Location of electronic new media transmitters, reporters, and coverage areas 39

40 Forms A supply of standardized forms should be kept in separate files or on different clipboards and marked accordingly. They include: o Operations logs o Message forms o In/out registers o Incident commander status reports o Mutual aid request forms o Operational instructions o Situation report forms o News release templates Miscellaneous Information Keep these other items readily available: o Department organizational charts o List of key officials and means to contact the following: o provincial government o municipal key officials and staff o industry representatives o Distribution lists 40

41 Maps, Overlays and Photographs o Suggested maps available from the Department of Environment, Energy and Forestry include: o Large scale master operations map, post on the wall of the operations room, preferably laminated, use dry-erase markers o Planning map: a duplicate of the master operations map, for the executive council and EOC director o 1:10,000 or 1:25,000 operations map of county or municipality and province o Laminated large-scale map for duty officer o Laminated maps of suitable scale as necessary for special tasks o Overlays showing o Areas affected o Site layout o Plumes, wind direction affecting dangerous gases o Flood lines based on empirical data o Any other special requirements. Aerial photographs of the municipality are an asset for planning in the EOC 41

42 The EOC Policy Group is responsible for making operational decisions to support efficient response to an emergency or disaster at the site. EOC Management Structure Executive Group In a municipality the Executive Group includes the Mayor and members of Council authorized to make high level decisions concerning the community's response and recovery. The Executive Group does not have responsibility for direct emergency management at the site during an incident. Two members of the Executive Group should be present near the EOC or accessible for consultation during an emergency. Command Group The Emergency Operations Centre (EOC) Command group is comprised of municipal representatives, under the direction of the EOC Manager. The EOC Command Group is responsible for making operational decisions to support efficient response to an emergency or disaster at the site. When the EOC is activated it should be staffed to a level that matches the needs of the incident. The size and composition of the EOC may vary according to the requirements of the particular circumstances. The Command Group is led by the EOC Manager who is responsible for overall emergency policy and coordination, public information and media 42

43 relations, agency liaison, and proper risk management procedures, through the joint efforts of local government agencies and private organizations. There are four management functions required to manage an emergency: Operations Responsible for coordinating all jurisdictional operations in support of the emergency response through implementation of the Action Plan. Planning Responsible for collecting, evaluating, and disseminating information, developing the jurisdiction s Action Plan and tracking all resources, and maintaining all EOC documentation. Logistics Responsible for providing facilities, services, personnel, equipment and materials. Finance / Administration Responsible for financial activities and other administrative aspects. The Incident Commander is an integral part of the EOC function. He / She assumes overall control at the incident site, sets priorities, develops strategies, selects tactics and assigns tasks in response to the emergency. Limitations may be imposed upon the Incident Commander, such as the time available, a lack of sufficient resources, and restricted evacuation routes. However, the Incident Commander is given the widest possible scope to implement initiative with minimal restrictions. The Incident Commander may call upon the (Local Authority's) EOC at any time to provide support, coordination, and policy guidance. 43

44 Not every EOC function will be filled in every emergency or disaster. The situation will dictate the functions which need to be activated. An active EOC may require only an EOC Manager, in some situations. EOC Personnel EOC personnel and agencies may change throughout the course of an emergency. The usual emergency service organizations (police, fire, and ambulance) will be actively involved at the site during the initial and post impact stages. During recovery, reconstruction, and renewal, these emergency services will be phased out of direct action and others will become the leading agencies. The staff for the EOC will be made up of designated municipal employees and support agencies who have been trained in advance. 44

45 The EOC may include the following personnel: Executive Group Mayor / Chairperson Council CAO EOC Command Group EOC Manager Safety Officer Liaison Officer Public Information Officer Operations Section Fire Branch (Fire Chief) Police Branch (RCMP / Municipal Police) Ambulance Branch (Island EMS) Health Branch (Dept of Health) Emergency Social Services Branch Environmental Branch Public Works Branch Utilities Branch (Maritime Electric, Bell Aliant, Eastlink etc) Planning Section Situation Awareness Resources Tracking Documentation Advanced Planning Demobilization Recovery 45

46 Technical Specialists Logistics Section Information Technology Communications EOC Support (Facilities, Security, Food, Accommodations) Supply Personnel Transportation Mapping Finance / Administration Section Financial Administration 46

47 External Agencies in EOC Depending on the nature of the emergency, representatives from external agencies as follows may participate in the EOC: Island EMS Maritime Electric Canadian Red Cross Aliant Eastlink RCMP Environment Canada Canadian Forces Liaison Other departments or key agencies The function of each representative will be determined by the EOC Manager, and may include any position in the EOC Management or General Staff. 47

48 EOC Activation The function of the EOC is to provide support in terms of additional resources for the Incident Commander by obtaining resources, maintaining up-to-date information, coordinating activities and providing the public with information and to ensure that services remain available to those outside the site. The EOC also coordinates related activities that are beyond the scope of the on-site Incident Commander, such as largescale media relations and evacuations. The following positions are delegated the authority to activate an emergency Operations Centre, in whole or in part: Mayor Councilors Municipal Administrator An Incident Commander from a municipal department Emergency Program Coordinator or Delegate A declaration of state of local emergency or provincial emergency is not required to activate the EOC. However, the EOC must be activated if a local or provincial State of Emergency has been declared. 48

49 SAMPLE MEOC Organizational Chart 49

50 Incident Command System The Incident Command System (ICS) uses a standardized approach to manage events by engaging several agencies and spanning jurisdictional boundaries. ICS uses common terminology, roles and responsibilities, and can easily expand and contract based on the needs of the emergency. PEI Office of Public Safety provides training courses on Incident Command System and Emergency Operations Centre Management. The following pages list the different roles and responsibilities in the EOC and at the site. These suggested roles should be implemented as the needs exist and depending on the size of the emergency. In smaller events one individual may play several roles, while in larger events there may need a different person in each role. COMMAND STAFF (at the site) Incident Commander (may have a deputy if required) o Reports to Municipal Emergency Operations Centre (EOC) Manager o Responsible for overall management of the incident o Ensures planning meetings are scheduled as required o Approves and authourize implementation of Incident Action Plan o Determines incident objectives and strategy o Authorizes release of information to media o Orders the demobilization of the incident when appropriate o Provides advise and information to the executive group 50

51 Information Officer (may have assistants as required) o Reports directly to the Incident Commander o Advises the Incident Commander o Develops material for use for both media briefings and public communication o Ensures the monitoring of print and electronic media coverage of the event o Oversees the flow of information within the EOC and with all response agencies Liaison Officer o Reports directly to the Incident Commander o Serves as the primary contact for agency representatives o Advises agencies of operational updates and status o Monitors incident to identify current or potential interorganizational problems Safety Officer (may have assistants as required) o Reports directly to the Incident Commander o Identifies hazardous situations associated with the incident o Reviews the action plan for safety implications o Exercises authority to stop and/or prevent unsafe acts 51

52 GENERAL STAFF Operations Section The Operations Section manages all tactical operations. For an event such as a large fire this section should be managed by the Fire Chief (or designate) o Reports directly to the Incident Commander o Manages all tactical operations o Assists in development of the operations portion of the incident action plan o Creates branches / divisions, task forces to carry out the strategies in the action plan as required Logistics Section All incident supports are provided by the logistics section and ensures that, if resources are required for the operations, they are provided: o Reports directly to the incident commander o Monitors the resources for continuous operability o Requests and releases resources as required o Oversees the demobilization of logistics section Planning Section The planning section collects, evaluates, processes and disseminates information for use at the incident. o Reports directly to the incident commander o Collects and processes information for situational awareness o Provides input and supervises the preparation of the Incident action plan o Determines need for specialized resources o Monitors incident status and informs IC of any changes 52

53 Finance / Administration Section The Finance / Administration Section manage all financial aspects of the incident. o Reports directly to the Incident Commander o Collects all documentation for incident and provide financial updates as required o Ensures procurement procedures for supplies are properly prepared and completed o Ensures that all personnel time records are accurately completed and inputted 53

54 Emergency Procedures Step 1 Activate the Fan-Out When an emergency exists or may exist, the emergency management coordinator contacts the following people: o Mayor and members of the executive council o Department officials o Communications operators o Operations officer o Public information officer o Administrative support personnel All contacts must be initiated quickly for maximum effectiveness. Each person will have a list of contacts and will ensure the information is passed within minutes of the initial message. Step 2 Activate the EOC The emergency management coordinator will set up the Emergency Operations Centre. This may mean adapting an existing office, hall, council chamber, etc., into an executive room, an operations room, a communications room, a public information centre, security area, and rest and public information areas. Boxes of emergency food, office supplies, additional telephones, logs, events display boards, and other materials and equipment necessary for the EOC should be readily accessible. Individual action lists in your emergency plan will outline the specific responses to those personnel in the EOC group. 54

55 Communications Without proper communications, the effectiveness of the response will be seriously jeopardized. Design your EOC to facilitate movement and dissemination of information from the emergency site to the resource managers and to the public. From the Incident Commander to the EOC Depending on the nature of the emergency, the Incident Commander (IC) may not be able to establish a telephone link with the EOC from the site. There should be an alternatives communications plan. Once the information arrives at the EOC, it must be handled efficiently. All messages and actions are entered in the departmental log. Any significant messages pertinent to the conduct and planning of operations should be passed to the operations officer or the assistant. Such messages may include a declaration of a state of emergency, road closures, location of reception centres for evacuees, etc. The public information officer should develop a system to pass information and requests to the PEI Office of Public Safety as well as establish a compatible backup communications system. If the emergency requires the assistance of the Provincial Government it may be requested to send a municipal representative to the PEI Joint Emergency Operations Centre (JEOC), PEI Office of Public Safety. 55

56 Without proper communications, the effectiveness of the response will be seriously jeopardized. To the Public The Municipality should make every effort to provide regular updates on the emergency to the citizens, including the ability to issue an emergency warning and give directions to the public. Make arrangements with your local media outlets in advance of an emergency so that they can be reached when needed. Your emergency plan should include a public information plan to most effectively manage the media in an emergency. Several notification tools may be used: o Special bulletins or newsletters issued out from the EOC o Print and electronic media o News briefings It is vital for the communications officer to monitor the news media in order to balance rumors and misinformation with factual information. Regular briefings with accurate facts and timely information are important. 56

57 Step 3 Close the EOC Once responders no longer need additional support or when municipal crews have begun cleaning up, emergency managers should begin to consider closing the EOC. Upon closure or shortly thereafter, the EOC manager should lead an operational debriefing session for all participants to assess the emergency response, the decision will include a review of how resources and personnel were used, and how tasks were distributed. 57

58 Reporting check list for Key Personnel Suggested reporting check lists for key personnel who will staff the Emergency Operations Centre: EOC Manager o Alert EOC members o Create a staffing plan o Determine operational status of the EOC o Obtain a communications status report o Check operational status of each department o Get an overview of what has happened cause and potential effects o Check information displays on operations map and main event log o Obtain briefings from response departments (situation reports) o Brief new arrivals o Request situation reports from the site o Appoint the appropriate service to be in charge of the emergency o Ensure that the IC is appointed o Establish direct communications with the IC o Prepare a briefing for the mayor o Deal with immediate problems and requests o Begin long-range planning Remember, success is dependant on good communication 58

59 Operations Sections o Activate the EOC o Switch on all radios, telephones, computers, fax machines, etc o Open all radio logs o Activate telephones o Open the main event log o Alert PEI Office of Public Safety o Open the telephone log for the EOC director o Meet with building security officer and provide him/her with the following: o list of restricted areas o location for holding the media and providing briefings o sample of the EOC emergency identification pass o operations officer s telephone number (confidential) o Determine and request whatever EOC clerical and technical support is required o Place all emergency response volunteers on standby 59

60 Communications Coordinator o Check your telephone o Open your logs and record the date and time of your arrival o Ensure there is a ready supply of message forms and logs at all work stations o Check for any messages delivered prior to your arrival o Open in/out messages delivered prior to your arrival o Do a complete operational check of all available radio networks o Complete the communications status board o Report communications status to the EOC director and receive briefings on the emergency o Assign radio operators to eternal locations, as required o Establish radio communications with site Fire Branch - Fire Chief o Check your telephone o Open your log and record the date and time of your arrival o Check for any messages delivered prior to your arrival o Obtain from the dispatcher all available information on the emergency including resources committed and those held in reserve o Brief the EOC director on departmental status and provide situation report on the emergency o Highlight problem areas or unusual resource requirements o Display emergency-related information on the operations map and in the main event log o Answer immediate needs of the emergency o Begin long-range planning 60

61 Police Branch - Police Chief (RCMP) o Check your telephone o Open your log and record the date and time of your arrival o Check for any messages delivered prior to your arrival o Obtain from the dispatcher all available information on the emergency including resources committed and those held in reserve o Brief the EOC director on police department status and provide a situation report on the emergency o Highlight problem areas or unusual resource requirements o Have emergency-related information displayed on the operations map and in the main event log o Answer immediate needs of the emergency o Begin long-range planning 61

62 Transportation Coordinator o Check your telephone o Open your log and record the date and time of your rival o Check for any messages delivered prior to your arrival o Obtain from the dispatcher a status report on buses in service: o buses committed to emergency o number of drivers on standby o number of buses available o Brief the EOC director on departmental status. Report any areas where regular bus service may have to be suspended due to the emergency o Receive briefings from the EOC director o Answer immediate needs of the emergency o Begin long-range planning Human Resources Coordinator o Check your telephone o Open your log and record the date and time of your arrival o Check for any messages delivered prior to your arrival o Check the operational status of your department o Report the operational status to the EOC director and receive briefing on the emergency o Check with other staff officers for any immediate or possible future personnel requirements o Report to the communications officer any immediate or anticipated communications requirements o Answer immediate needs of the emergency o Begin long range planning 62

63 Emergency Social Services Coordinator o Check your telephone o Open your log and record the date and time of your arrival o Check for any messages delivered prior to your arrival o Determine the operational status of your department o Report to the communications officer any immediate or anticipated communications requirements o Determine from the operations officer which volunteer agencies are on standby o Report departmental status to the EOC director and receive a briefing on the emergency o Answer immediate needs of the emergency o Begin long-range planning Public Information Officer o Check your telephone o Activate your Municipal Crisis Communication plan o Open your log and record the date and time of your arrival o Check for any messages delivered prior to your arrival o Check the operational status of the telephone information centre o Report to the EOC director and receive briefing o In accordance with your Crisis Communication Plan prepare a first news release for the public, including o what happened (cause, effects) o a request for people to stay away from the emergency area o telephone number for information centre o any other information or instructions o Schedule periodic press conferences and advise the media (longrange planning) o Be aware of alternative methods of communicating to the public in the event that media are not available (bull horns, social media, internet, etc.) 63

64 Department Reps Technical Specialists These include representatives from the fire department, police, community services, etc. Who are responsible for the following: o Operational planning o Decisions and coordination within the services they represent o Operational support to the emergency and continued service to unaffected areas of the municipality Emergency Response Logs The EOC and the site team keep logs and any other records in accordance with municipal planning and legal requirements. These records may include information; actions and instructions handled by each staff member and may also include details about expenditures. Logs and records are collected, labeled and stored at the end of the operation. Demobilization When the incident commander advises the team that site operations are about to be demobilized (stood down), all appropriate contacts and incoming replacements must be informed at the same time. 64

65 Section 4 Crisis Communications A crisis communication plan is a vital part of emergency preparedness and response. Having a solid crisis communication plan, which has been integrated with your crisis management or operations plan, is well-tested, understood and practiced, can not only save an organization s reputation, but at times, it can also save lives. The first pages of a crisis communication plan should clearly outline the steps the organization will take in the event of a crisis, who is responsible for taking these steps, and how to contact the crisis communication team. The crisis communication plan should be reviewed and approved by operational and communications staff and should be updated, regularly, to verify that the information and protocols are accurate. A copy of the plan should also be maintained in the office and offsite both electronically and in paper format. A copy of the plan should be made available to each team member, other staff and key emergency response partners for use in the event of a crisis. Ensure that all the team members understand its contents. A crisis communication plan template can be found in the appendices section of this guidebook and is available in electronic format from the Office of Public Safety. 65

66 Section 5 Emergency Social Services (ESS) E mergency Social Services (ESS) are the essential services which meet immediate non-medical needs in the event of a disaster or emergency. The Public Health Agency of Canada lists five essential services as follows: Emergency Clothing Emergency Lodging Emergency Feeding Personal Services Registration and Inquiry Services Municipalities are primarily responsible for providing emergency social services within their jurisdiction. The government of Prince Edward Island works in partnership with community agencies, such as the Canadian Red Cross, Salvation Army and other local service organizations to deliver emergency social services. This enhances the resiliency of the community and the province. When community officials need support in response to an emergency, it is important that they clearly understand where and how they can locate assistance. The more prepared individuals and municipalities are the better able they are to respond and recover. Individuals are encouraged prepare in advance to take care of themselves and their family for 72 hours following any emergency or disaster. This allows emergency personnel time to respond to the most immediate emergency requirements. When individuals are no longer able to cope on their own they look to their 66

67 municipality for support. When a municipality exceeds capacity for response, or requires special resources the municipality can then turn to the province. In order to access these supports municipalities should be aware of the following: Municipalities have the overall responsibility for taking mitigative action, preparing for, responding to and recovering from emergencies or disasters. The Office of Public Safety is responsible to coordinate and manage the emergency response on behalf of the Province of PEI. Requests that are made to the province from municipalities for support must be submitted to the Office of Public Safety through the Emergency Measures Organization. Requests may be made verbally but will require follow up in writing. Municipalities should submit the following information when requesting support from the province: o Details of request for resources what, how much, when and for how long completion of requisition request form. o Requests must be made by an authourized entity from the Municipality, i.e. Mayor or designate; a copy of the requisition form can be found in Appendix section.. o Once the Office of Public Safety has responded to the request with information based on the availability of the resource and with an estimated cost for the resource, the municipality must provide acknowledgement prior to resources being released. The municipality may submit claims for eligible expenses through the Disaster Financial Assistance Agreement; requests made outside the process may not be eligible for reimbursement. 67

68 Section 6 Municipal Emergency Exercises A n emergency exercise is a simulation of an actual experience. The exercise enables people to practice their roles and responsibilities, rehearse using relevant equipment, observe pre-established authority structures, and learn to whom they are reporting. It is an opportunity for responders to make mistakes and learn from them without the devastating consequences that might occur in a real emergency. Exercising your emergency plan allows for the following opportunities: o Identify issues or procedures not addressed or not sufficiently addressed in your emergency plan o Identify needed resources, trained personnel, equipment, or supplies o Identify training needs for those participating in an emergency response o Ensure pre-established authority structures function properly o Provide the most cost-effective response o Limit damage or losses to the municipality, residents, or environment in a real emergency o Provide an effective, coordinated response in a real emergency Types of Exercises The two types of exercises, Discussion Based and Operations Based are as follows: 68

69 Discussion Based: are exercises that familiarize participants with current plans, policies, agreements and procedures. They are also used to develop new plans, policies, agreements and procedures. Examples of discussion based exercises are: o Seminars o Workshops o Table Top Exercises o Games Operations Based: are exercises that validate plans, policies, agreements and procedures, clarify roles and responsibilities, and identify resource gaps in an operational environment. Examples of operations based exercises are: o Drills o Functional Exercises o Full Scale Exercises Choose your exercise based on the objectives you wish to achieve as well as the abilities and limitations of those participating in a response, equipment, and municipal resources. The emergency management program should include a section for exercise program, this section outlines the series of exercises involving efforts and participation of various groups and agencies that have a role to play within emergency response. To be most effective organizations should run an exercise on a yearly basis regardless of the type. 69

70 When designing an exercise program it should be developed on the Building Block Approach (see figure below) with a cycle of training and exercises that escalates in complexity, with each exercise designed to build upon the last. Building Block Approach Functional Full Scale Drills Games Seminar Workshop Table Top CAPABILITY Discussion Based Exercises Operations Based Exercises PLANNING/TRAINING The success of an exercise is measured by whether it provided a realistic setting to practice an emergency response in order to identify mistakes and to take corrective action. These learning s are vital for determining what further training is needed for agency representatives, for acquiring necessary resources, or for developing agreements with other municipalities or organizations to provide assistance in an emergency. Complete any emergency exercise with a debriefing session. Give participants an opportunity to talk about his/her role in the emergency response, thoughts and feelings about the process, and what changes to the plan or response are recommended. 70

71 A debriefing gives everyone a chance to objectively access the emergency, assess performance, improve the overall response, and add improvements to the emergency plan. The success of an exercise is measured by whether it provided a realistic setting to practice an emergency response in order to identify mistakes and to take corrective action. 71

72 Sample Exercise: Hay Wagon What follows is an exercise adaptable for any community. It is an excellent tool for a table-top, walkthrough, or paper exercise. The dangerous goods described in the exercise are regularly transported in the province of Prince Edward Island and could pose a serious threat to the local environment, ecosystem, or other areas of the province. For a full description of the hazardous materials, see Environment Canada s Manual for Spills of Hazardous Material and CANUTEC s Dangerous Goods Initial Emergency Response Guide. To make this exercise realistic, it would be helpful to have a map or sketch of your municipality. Scenario: Time: 19:15 Date: March 24 A tractor pulling a wagonload of hay is proceeding west along Route 201 in the area of Route 201 and Water Street, south of the Town of Bridgetown. At the same time an 18-metre truck is approaching from the north on Water Street. The truck s brakes do not function properly and the rig goes through the stop sign and crashes into the wagon. The truck pushes the hay wagon into the ditch on the south side of Route 201 and rolls over onto its side amidst scattered hay. The driver of the tractor is thrown from his vehicle onto the road. The truck driver is unconscious but still in the cab of the truck. Consider and discuss the probable immediate activities from the accident. Who should be warned? Who should respond? 72

73 Time: 19:25 Date: March 24 Police and firefighters are at the scene of the accident, and a fire has broken out in the hay surrounding the wagon and truck. The fire is gaining in intensity, and there is considerable smoke coming from the burning vehicle. The truck displays dangerous goods placards that indicate that the trailer contains flammable liquids, oxidizers, and / or corrosives. Consider and discuss: Where can additional information about the truck s contents be obtained? What further assistance and warnings should you provide? What protection is necessary to limit further damage or losses? Media shows up on the scene, who talks to them and what should they be told? Time: 19:45 Date: March 24 It has been determined that the truck was carrying L drums of acetone, two metal kegs of hydrogen peroxide, and a number of 2X2 wooden boxes containing nylon, lycra, and Styrofoam. The fire is still burning, and unprotected personnel are complaining of headaches, nausea and dizziness. The wind is from the south at 10 km/h. Consider what actions are necessary at this point to protect the lives of responders and those who live in the area. Time: 20:00 Date: March 24 It has been decided to evacuate residents who live in the immediate area of the accident, along Water Street and in the Town of Bridgetown. Consider and discuss the evacuation with the following points in mind: How will residents be warned? 73

74 Who will warn them? What kind of warning is needed? Where should the evacuees go? How should they get there? What organization can look after the evacuees? When should that organization be notified of the evacuation? What arrangements need to be made for registration and inquiry services? What other issues surrounding the evacuation need to be considered? Time: 20:15 Date: March 24 The fire seems to be under control when, suddenly, a violent reaction occurs and the fire engulfs the truck. Bystanders see a brown gas escaping from the truck. Discuss the probable situation with reference to the following: What likely happened at the scene? What is the state of the casualties? Has the area been secured? How is the public being informed of the current situation? What feedback is coming in from the public? How are public concerns being addressed? Time: 20:30 Date: March 24 The immediate danger appears to be over. Discuss the probable course of events leading to a return to normal conditions, with reference to the following: Has the scene remained secured? Have residents returned to their homes? Who is responsible for clean-up at the scene? What effect will this emergency have on future emergency planning? Was there a legal basis for evacuation? 74

75 Hay Wagon Exercise Follow-up There are several issues to consider that will affect an emergency response. 1. This incident affects two jurisdictions as it occurred outside the incorporated jurisdiction of the Town of Bridgetown but within the municipal fire district. This incident points out how important it is for the municipality to coordinate emergency planning efforts with neighbouring communities / municipalities. An effective way to handle such jurisdictional and planning issues is to develop a small coordinating committee that will report to their respective planning committees. 2. The emergency response agencies will need information about the contents of the truck. The Fire Department responding would contact CANUTEC for further information. If the cab of the truck is accessible, there should be a description of the goods in the truck. The drums of acetone and hydrogen peroxide have ruptured and the contents have reacted violently. An explosion releases carbon monoxide, carbon dioxide, oxygen, and water. Nitrogen in nylon produces nitrogen monoxide, and nitrogen dioxide - the brown gas - will cause symptoms similar to pneumonia. Furthermore, the carbon or Styrofoam will also produce PAHs (hydrocarbons) and carbon monoxide. In short, several toxic chemical reactions are happening as a result of this accident that could cause an explosion and lead to health problems for those in the immediate area without protective gear. Ensure that the local hospital has the appropriate resources to handle individuals suffering from such burns and chemical intake. It would also be helpful to distribute information to residents in the area with information on possible symptoms they may experience and the action 75

76 they should take in such a case. Consider roping off the site and posting warning signs in the immediate area of toxic fumes and other dangers. 3. This incident will involve co-operation of several key organizations, including the police, paramedics, and firefighters. The first senior responder from one of these organizations on the scene is the incident commander. The incident commander should initiate the incident command system by designating a leader from the other two organizations and establishing communications with the EOC. The Department of Environment, Energy and Forestry and the Office of Public Safety should also be involved, as well as the municipal public works department. Those who call in responders should inform them clearly of the situation at hand. Responders can then provide the necessary equipment, such as self-contained breathing apparatus, protective clothing, and material to absorb or clean up any spilled fluids. 4. When evacuating residents, there are various components that need to be considered. Local schools or community centres can be appropriate reception centres, as they are often centrally located and can handle large numbers of people. In choosing a site, consider whether it is currently in use and, whether it is privately owned. Also take into consideration the direction of the wind from the emergency site. Evacuation plans should describe how to notify residents (door-to-door, loud speaker, media, etc.), evacuation routes, alternative ways to transport evacuees, and logistics for the emergency centre. 76

77 Consider what residents want or need to know concerning the accident and the evacuation. Keep the statement clear and concise: o There are dangerous fumes in the area due to an accident o There is a threat of an explosion o It is in their own best interest to leave until the area is considered safe o Reassure them that the area will be secured and guarded 5. Traffic control and area security are vital to limiting further damage that might result from the emergency. Local police and the public works department should set up barricades and control points to admit only emergency vehicles and personnel to the site. Other traffic should be diverted until the clean-up has been completed. 6. The public will want to know and the public will need to know what is going on. It will not be long before the media show up at the scene with queries as to what happened and how it could have been prevented. In accordance with your Crisis Communication Plan the designated municipal public information officer should involve the media with accurate and up-to-date information. Brief the media regularly and develop a suitable media area for future briefings. Use the media, as well as other communication methods, to relay information to the public about evacuations in the area and rerouting traffic. 7. In planning emergency social services, consider all the information residents need to know - such as where to go, how to get there, how long they can expect to remain evacuated - and address any special needs or concerns they might have. At the evacuation/reception centre, begin registration and inquiry response services and establishing an emergency feeding station for evacuees and responders, as the situation permits or necessitates. 77

78 Hay wagon Exercise: Aftermath Considerations Upon completion of the Hay Wagon Exercise, take some time to discuss and examine possible challenges that may arise following the Hay Wagon scenario. Problem: The fire chief reports that problems were encountered with the evacuation process. The following questions arose at the debriefing: Which authority is responsible to conduct an evacuation? How were the residents of both municipalities advised? Who is responsible for accommodating the evacuees? Can the responsible organization meet its obligations? Under what legislation does this duty fall? How was the size of the area to be evacuated determined, and how was the evacuation site selected? How was the security of homes and businesses maintained while the residents were away? What is the registration and inquiry process and who can assist? How were the special needs of the King s Meadow (special care facility in the vicinity) residents met? How would the parents of the day-care and school children be notified of the location and condition of their children, and could problems arise when reuniting parents and children? How would pets and livestock accommodated during evacuation? During the evacuation, an adult of sound mind refused to be evacuated. What can be done? What action can be taken if a state of local emergency is not declared? 78

79 How does this differ if a state of emergency is declared? What segment of the population can be legally evacuated if a state of local emergency is not declared and under what legislation? Problem: At the debrief, a heated discussion arose among the fire chief, insurance adjuster, mayor and police, regarding chain of command, roles, and responsibilities. What are the roles and responsibility of each of the above organizations? Who is in command, and why? How does the Environmental Protection Act affect the command structure? How do these agencies interrelate? What other agencies, departments, or individuals may be involved? Problem: A notice of legal action for damage resulting from the emergency is being served on the town mayor and council. If a State of Local Emergency is declared, what protections are provided for in the Emergency Measures Act, and under what section? What is the legal position of the municipality if a State of Local Emergency is not declared? Discuss the related significance of keeping accurate logs of all communications and activities. Problem: The media have requested an up-to-date report on post emergency recovery, causes, corrective measures taken, environmental impact, loss of life, costs, etc. Who will prepare the releases? 79

80 Is an effective media plan in place? Who will sign off on information supplied to the media? Problem: The insurance company insuring the truck refuses to honour claims based on: a) the fact that the truck was apparently operating illegally on the Trans Canada Highway b) their assessment that the hay wagon driver may be at fault c) the insurance company s adjuster did not preauthorize the expenditures for contamination clean-up. Who determines fault, and when? If fault is not immediately evident, who pays the up-front costs? What is the result if the driver of the uninsured hay wagon is found to be at fault? Problem: A search is required for a special care resident who wandered away. What is the process to arrange for Ground Search and Rescue teams; and why is the process appropriate? Who pays the costs incurred for the search effort? 80

81 Problem: There have been several deaths as a result of inhalation of toxic fumes. What action can be taken if the number of casualties exceeds the capacity of the local hospitals? What resources can be used as a temporary morgue? Problem: The MLA has been in contact with the mayor wanting to know what is being done for residents. How can the MLA expect to contribute to the response and recovery process? Under what circumstances may financial assistance be obtained from the provincial government and federal government? Problem: A green/yellow scum has been observed in the watercourse, 3 km downstream from the emergency site. Is this contamination a result of the hay wagon accident or an unexplained spill? What is the process to prove the source? What are the implications if the source is the truck involved in the emergency or, if it is not? A fish kill (50+) has been discovered. What agencies should be involved? Identify possible implications and complications that may arise. Problem: The telephone company has apologized for any interruptions in telephone services resulting from overloads of the system. 81

82 What effect would the loss of telephone service have on the operations and management of the emergency? What contingencies are built into the communication plan to accommodate this type of situation? Problem: Bills and invoices have started to arrive from various contractors and suppliers. Discuss the importance, in relation to this requirement, of maintaining accurate logs that identify goods and services obtained during the emergency, their sources, and supporting details What are the cost-sharing arrangements between responding municipalities? Problem: An investigation has revealed that food products can absorb chlorine gas directly from the air or from contact with chlorine residue on contaminated surfaces (e.g., clothes). What action can be taken to ensure that contaminated food products are not consumed? What precautions may need to be communicated to the public? 82

83 Problem: A report has just confirmed that some of the domestic water supply (wells and reservoirs) have been contaminated with chlorine. How will the public be notified? What immediate action should be taken? What direction will be given, regarding: o determining acceptable limits? o side effects? o corrective action? How would you dispose of the contaminated water? Problem: Public donations of food continue to be received. How are food donations handled in terms of storage, distribution, quality control maintenance, and disposal? Are there regulations for the safe handling of food and where is this information available? 83

84 Problem: Approximately 100 head of livestock have perished in the emergency. What agencies should be involved? How should the remains be disposed of? Problem: The Emergency Measures Office is updated on the status of the emergency. What services could the Office of Public Safety have assisted with in this emergency? Problem: The municipalities declared that the State of Local Emergency has passed. What is the process to terminate the State of Local Emergency? How can this arrangement be put in place? What notification and to whom should be issued? 84

85 Sample Exercise Exercise October Conduct of Exercise The following table top exercise does not describe difficulties in great detail, but focuses on the planning committee and the organization and function of the Emergency Operations Centre (EOC). The exercise can be conducted during a regular meeting of the planning committee with little preparation. The exercise may help determine the physical layout of the EOC and the exchange of information between the agency representatives that will be required in response to an emergency. Exercise October Weather reports from the past two days indicate that a severe storm is expected to reach PEI in the early morning of February 24, combined with high winds and freezing rain. Already on the ground 30 centimeters of snow, will increase operational challenges. The Municipal Emergency Management Coordinator feels apprehensive about the storm and suggests a review of the instructions for setting up the MEOC. He / She should also be prepared to discuss standard operating procedures. o Will all agency representatives be required to participate during the initial preparations? o How and when will the EOC be activated to cope with the storm? o How and by whom will arrangements be made for communications within the EOC? Several hours pass. Environment Canada issues a warning at 5:30 am on February 24 that predicts the storm will affect all of PEI. Areas of the 85

86 province have been experiencing strong winds and freezing rain; there are increasing reports of damage and power outages. The wind is from the west at 40 km/h but is predicted to increase to 100 km/h. o How should the public be warned of the storm s severity? note the early hour. o What areas are facing significant risks? o What can citizens do to protect themselves from the effects of the storm? By 10:00 am, the next day, all areas in PEI are experiencing the full effects of the storm. Driving is extremely hazardous, and there have been numerous reports of power outages. Three community care facilities and some citizens are requesting auxiliary power. o What sources of auxiliary power are available for special care homes and other medical institutions? o What emergency plans do the community care facilities have? o How long can residents remain in homes without power? By late afternoon, winds have finally decreased and the snowfall has reduced to just flurries, all primary and secondary roads are passable, power has yet to be restored in the area. Maritime Electric has just issued a press release stating that power could remain out for up to 48 hours. The increased requests for emergency power have increased considerably at the MEOC. Private homes, financial institutions, farms, poultry operations, service stations and greenhouses are requesting auxiliary power units. A seven-year-old boy, at home suffering from cystic fibrosis, needs a mist tent, which requires auxiliary power. o What can be done to provide assistance to these people? 86

87 o What operating information may be required? It has been decided to evacuate approximately 200 people living in areas from North Street to West Street. Consider and discuss the evacuation from the following points of view: o What information and discussion led to the decision to evacuate and why? o How will people be informed of the evacuation? o Who will warn them? o What kind of warning should they receive? o Where will evacuees be told to go? o How will they get there considering the blizzard conditions? o Who is responsible for care at the evacuation centre? o Who is responsible for transportation to and from the evacuation centre? o Who is responsible for security of the evacuation centre and evacuated homes? o How will special needs residents be transported to the evacuation centre? During the course of operations in EOC, there is a requirement for a wide exchange of information and some method of displaying the current situation so that all agency representatives remain up to date. Consider and discuss the above problems and give a suggested solution. Post-Exercise Debriefing While this was only an exercise, it is important to take some time after to discuss with all participants how the situation could have been handled differently, what other items should have been considered, and even how participants felt about a decision or the exercise as a whole. 87

88 Appendices Appendix A Appendix B Appendix C Appendix D Appendix E Sample Municipal Emergency By-law Sample Mutual Aid Agreement Crisis Communication Plan template Reception Centre Service Checklist and Guideline Resource Requisition Form 88

89 Appendix A Sample Emergency Management By-Law BY-LAW # A By-Law to establish and maintain a Municipal Emergency Measures Organization for the Municipality of and to authorize the Municipality to participate to the full extent of its capabilities in the Municipal Emergency Measures Plan. WHEREAS Section 8(b) of the Emergency Measures Act states that each municipality may prescribe duties that contain the preparation and coordination of emergency measures plans for further emergency planning; AND WHEREAS it is deemed expedient to establish a Municipal Emergency Measures Plan to serve the Municipality of. THEREFORE the Council of the Municipality of enacts as follows: 1. A Municipal Emergency Measures Plan is hereby established, hereinafter referred to as Municipal Emergency Measures Plan. 2. The purpose and objective of the Municipal Emergency Measures with the cooperation of the Provincial Emergency Measures Organization are as follows: a. to plan for the emergency operation of municipal government; b. to establish plans for the cooperation and mutual assistance between municipal governments in the event of a disaster or emergency; c. to prepare plans for public survival; d. to coordinate the emergency plans of the municipal departments and services having immediate responsibilities in the event of a disaster or emergency; e. to cooperate with authorities of the municipality, neighbouring municipalities and provincial authorities who have been assigned comparable duties; f. to conduct emergency measures courses for the training of personnel who have an emergency role; 89

90 g. to conduct a public self-help education program related to emergencies; and h. to carry out other similar work within the geographical area encompassed by the municipality. 3. The Municipality of Emergency Measures Organization may consist of: a. Members of Council b. A Municipal Emergency Measures Coordinator c. Emergency Operations Centre staff 4. The Chair and Council will select an individual from within the Municipality to be appointed as the Municipal Emergency Measures Coordinator (MEMC). This individual will receive direction from and report to the Chair and Council. 5. The Municipal Emergency Measures Organization shall have the following powers and responsibilities: a. to establish policy for the Municipality of Emergency Measures, subject to approval of the Council; b. subject to the approval of the Council, to name or assign such persons, as it may deem advisable, to perform duties related to continuity of Municipal government and public survival in the case of an emergency or disaster. 6. The Municipal Emergency Measures Coordinator shall be responsible for: a. developing and implementing the Municipal Emergency Measures Plan; b. coordinating or integrating plans for the continued functioning of municipal services which would be required in the event of an emergency; and c. when policy decisions are required, submitting the matter to Mayor and Council in the form of recommendations. d. the performance of other related duties as directed by the Chair and Council. 90

91 7. The local authority, when satisfied that an emergency exists or may exist in that municipality, may declare a State of Local Emergency in respect of that municipality. Where the council is unable to act promptly in declaring a state of local emergency in the municipality pursuant to Section 9(2) of the Emergency Measures Act, the mayor of chair of the municipality may, after consulting a majority of the members of a council of the municipality where practicable, declare a state of local emergency in the municipality [S.9(2)(1)]. I,, Administrator and Treasurer of the Municipality of do hereby certify that the forgoing is true and a correct copy of a By-Law, duly passed by Council, at a duly called and regularly constituted meeting held on the day of 20. Municipality of Administrator and Treasurer 91

92 Appendix B Mutual Aid Agreement EMERGENCY MUTUAL AID AGREEMENT/ LETTER OF UNDERSTANDING "DRAFT" Between the Municipality of enter name here and Community or Organization enter name here: WHEREAS an emergency could affect any municipality/community to such a degree that their resources would be insufficient to manage with the situation; AND WHEREAS the above-name municipality/community wish to make prearrangement for prompt emergency action in support of any municipality/community in the group which may be affected or threatened by an emergency and require assistance: (the areas of mutual concern are listed in paragraph 2 below) THEREFORE, the above named agree as follows: 1. The parties to the agreement will render all possible help to each other upon request when required subject to the following conditions: a. The normal channels of communication shall be between the Mayor/Chairman responsible for emergency measures services of the municipality/community or any official designated by them. b. On receipt of a call for assistance, whether general or specific as to resources required, the extent of the assistance given will be at the discretion of each responding authority having regard to its own local needs/situation at the time. c. Any costs incurred in connection with the mobilization, movement and deployment of mutual aid resources will, in the first instance, be borne by the municipality/community requesting/receiving the aid. 92

93 2. The areas of mutual concern within the planning responsibilities of the municipality/community are as follows: a. Preservation of law and order. b. Control of traffic. c. Reception services, including the provision of emergency lodging, emergency feeding, emergency clothing, personal services and registration and inquiry for people who have lost or were forced to evacuate their homes, or who require emergency assistance because of the breakdown of normal assistance. d. Co-ordination of medical services, hospitals and public health measures. e. Maintenance and repair of highways. f. Maintenance and repair of water and sewage systems. g. Co-ordination and control of fire fighting services. (This agreement does not nullify any existing forest fire control agreements of other fire mutual aid arrangements approved by the mayor/chairman of the responsible municipality/community. h. Repair and maintenance of other utilities. i. Other local emergency services as may be required. j. Agricultural emergencies. k. Flood control and action after flooding. l. Dangerous goods incidents or other environmental emergencies. 3. It is further agreed that the appropriate municipality/community authorities will have their staff meet as necessary to develop and update guidelines for compatible planning and emergency arrangements within the areas of common concern outlined in this agreement. 93

94 4. Termination of Agreement This Mutual Aid Agreement/Letter of Understanding shall terminate when mutually agreed upon by the two parties involved. In witness where of this Mutual Aid Agreement/Letter of Understanding has been executed on behalf of the two parties involved. Witness Municipality/Community Date Witness Municipality/Community Date 94

95 July 2010 Guideline for Developing a Crisis Communication Plan (with Templates) 95

96 OVERVIEW A crisis communication plan is a vital part of emergency preparedness and response. Having a solid crisis communication plan, which has been integrated with your crisis management or operations plan - and is well-tested, understood and practiced - can not only save an organization s reputation, but at times, may also save lives. The first pages of a crisis communication plan should clearly outline the steps the organization will take in the event of a crisis, who is responsible for taking these steps, and how to contact the crisis communication team. The crisis communication plan should be reviewed and approved by operational and communications staff and should be updated, regularly, to verify that the information and protocols are accurate. Worksheets are provided throughout this plan so your relevant information can be entered and updated as needed. A copy of the plan should also be maintained in the office and offsite both electronically and in paper format. A copy of the plan should be made available to each team member, other staff and key emergency response partners for use in the event of a crisis. Ensure that the plan is kept upto-date and that the team members have read the plan and understand its contents. DEFINITION Throughout this document the terms emergency and crisis may be used interchangeably to refer to a present or imminent event which requires the prompt co-ordination of action or special regulation of persons or property to protect the health, safety or welfare of people or to limit damage to property or the environment. NOTE: When developing your organization-specific plan, delete samples, replace with your own information and put plan on your organization letterhead. 96

97 RESOURCES The attached information sheets and templates are suggested for your use to develop your Crisis Communication Plan or for your use during an emergency event. Adapt as required for your organization s purposes. Topic Title Page Introduction Page Internal Contacts Emergency / Crisis Evaluation Media Relations Developing your messages Dissemination of information Setting up a press conference Hyperlink link Brief Overview Guidance Review Chart Assessing the Crisis Level Assessing Your Audience Concerns Crisis Inquiry Log Tips for Interacting with the Media Media sources Media Contact List Sample message development chart Template message development chart Media Advisory Press release templates Issuing a Holding / Empathy Statement Distribution List (media and other) Check list 97

98 (logo) Crisis Communication Plan for (organization) Last updated July 8,

99 INTRODUCTION/OVERVIEW This introduction reflects the policies, resources and plans for communicating during an emergency for (organization). (This is an introductory statement, or letter from the CEO (etc.) which briefly outlines your organization s policies, resources and plans for communicating during an emergency.) Guidance This Emergency Communication Plan will be kept at the office and offsite (where), both electronically and in paper format. (Name or title) is responsible to ensure that a copy of this plan is available to each team member, as well as other staff and key emergency response partners for use in the event of a crisis. It is also the responsibility of (?) to ensure that the plan is kept up-todate and that team members have read the plan and understand its contents. Review (Name or title or group) will review this plan on a [monthly/quarterly/ bi-yearly] basis to check that: 1. Contact information lists are current. 1. New initiatives or identified risks are assessed and included. 2. Changes to risk communications policies, practices or procedures are up-to-date. 99

100 INTERNAL CONTACTS Crisis situations can escalate very quickly, and it is extremely important that all appropriate officials are kept up-to-date on the situation. The process for notification of officials, communication officer, other representatives of a situation is outlined below: Name and title Roles and Responsibilities Situation requiring notification Insert specific roles determined by company, i.e., message approval, spokesperson, etc. List (vaguely or defined) what situations would require the involvement of this official. 100

101 ASSESSING THE CRISIS LEVEL Your assessment of the situation can help determine communication requirements. Level of Situation 4 Highly Intense Communication Characteristics Media have immediate and urgent need for information. Spokesperson may need to provide holding statement or empathy statement (see template). One or more groups or individuals express anger or outrage. Broadcast and print media appear on-site for live coverage. Crisis causes growing attention from local and regional media. 3 Intense 2 Moderately Intense 1 Minimally Intense Media contacts non-communication staff for information about the crisis. In addition to the media, stakeholders and community partners are present at site. Affected and potentially affected parties threaten to talk to the media. Crisis situation may/may not have occurred; the situation is attracting slow, but steady media coverage. External stakeholders receive media inquiries. The public at large is aware of the situation/event but is attracting very little attention. Crisis attracts little or no attention. Pre-event information requests are received. Public and/or media are virtually unaware of crisis. 101

102 AUDIENCE LIST AND ANTICIPATED CONCERNS Audience Schools (example) Concerns Drinking water for students, hand washing capabilities 102

103 CRISIS INQUIRY LOG Date: Time of Call: Caller: Caller s interest (media, family, etc.) Organization: Phone number: Address (if applicable) Person taking call: Nature of Inquiry: Response: Request for additional information: Reply made by: Date/Time: Response: Result: 103

104 TIPS FOR INTERACTING WITH THE MEDIA In times of crisis, the public turns to the media - television, newspaper, Web sites and radio - for information about what has happened, what they should do, and what will happen. The media greatly influence what people think about and the opinions they form during emergencies. When working with the media, it is important to consider the following needs and concerns: Short deadlines - reporters need follow-up information and updates in a timely manner. Ask when their deadline is; then meet it. Space limitations - provide succinct information - reporters cannot always include the background information you provide. Keep information to no more than three points. Reporters love concise sound bites. Keep responses to 10 seconds. Reporters are competitive. Provide information equally. Avoid exclusive interviews that favor specific media outlets. Be prepared to provide the media: Timely information. Prevent information vacuums; speculation and rumor can grow and have a serious impact on the situation. Facts, sources and relevant materials. Have easy-to-read materials with important information ready for distribution. Readily available points of contact. Identify people who can speak with the media directly and/or provide easily accessible contact information. Setting up a press briefing: Book a time and place. Sent a Media Advisory to media outlets (sample attached) If time permits and if appropriate, remind media by phone. Prepare key messages. Start on time. Before the interview: Do your homework on issues. Develop a list of questions the media are likely to ask. Develop and practice key messages and responses to anticipated questions. Practice speaking without jargon or acronyms. Remember that everything you say can be reported. There is no such thing as "off the record" replies or commentary. 104

105 During an interview: Stick to your message Stay "on message." Never say no comment. Direct the interview toward your pre-determined key messages. Focus your communications on how problems can be rectified. Avoid using "I." Speak for the organization using its name or the pronoun "we." Be respectful Look at the interviewer rather than the camera or monitor. Listen carefully and repeat questions if necessary to clarify. Treat all questions seriously. Never lie or knowingly mislead. Avoid jargon, technical terms or acronyms. Limit their use and explain those you must use. Humor of any kind is not appropriate in an emergency situation. Stick to the facts Avoid answering hypothetical questions. Never comment on issues outside your area of expertise. Correct any information errors immediately upon discovery. Never disagree with the organization you represent by saying: "Personally, I don't agree," or "Speaking for myself," or "If it were me " Avoid speculating. Stick to the facts of what has been, is being, and will be done. Avoid making promises you can't keep. Promise only what you can deliver. State your willingness to explore other options. Deal effectively with difficult questions. Keep your cool, even if the interviewer becomes hostile. Don't become defensive. Respond to issues, not personalities. End debates, rather than continue them. Avoid negative words and phrases. Avoid words like no, never and none. Use positive or neutral terms. Don't blame others. Don't point fingers at others. Avoid details on how much the response effort is costing. Focus on how the response has supported the safety/health/ well-being (for example) of those affected. Don't repeat negative allegations. Refute critical allegations succinctly. Use bridging phrases to direct the conversation back to your key messages. Bridging phrases... and another important question is but what the public needs to know is... (but what we really want the public to know) Your question relates to the issue of... Let me put your question into perspective... I think a point of clarification might be helpful... I don t have a simple answer to that question... but here s what I do know

106 SOURCES FOR DELIVERING INFORMATION In emergencies, taking advantage of existing communication methods and channels is critical. Learn what appropriate channels are likely to be used and communicate the messages through these channels. Consider using both traditional and new avenues to get information out to the public. Print, Radio and TV Local Cable Channel Organizational web page Facebook Twitter , public alerts Face to face (town hall) forums Community groups Door to door Flyers, etc. Other 106

107 MEDIA CONTACT LIST Media outlet Reporter(s) Contact information Notes The Guardian CBC TV CBC Radio (Include info about deadlines, preferences, challenges, etc.) 107

108 MESSAGE DEVELOPMENT The development of key messages takes into consideration both the crisis assessment, and assessment of audience concerns. Sample - issue: drinking water contamination. Key Message 1 Key Message 2 Key Message 3 Safe drinking water being provided to the community. We apologize for any concern or inconvenience caused by the situation. We are working to control any further contamination. Support point 1.1 Support point 2.1 Support point 3.1 We have arranged for potable water supplies. We immediately notified the authorities. We are monitoring the wells. Support point 1.2 Support point 2.1 Support point 3.1 We worked with the local water authorities to provide drinking water We will continue to provide information. We are working with local authorities. Support point 1.3 Support point 2.1 Support point 3.1 Citizens can pick up bottles of water at the fire department. People with mobility restrictions can arrange for delivery by calling The next press briefing will be held at 3:00 pm. We have set up a toll free line for inquiries:

109 TEMPLATE FOR MESSAGE DEVELOPMENT Key Message 1 Key Message 2 Key Message 3 Support point 1.1 Support point 2.1 Support point 3.1 Support point 1.2 Support point 2.1 Support point 3.1 Support point 1.3 Support point 2.1 Support point

110 SAMPLE MEDIA ADVISORY (invitation to a press conference/briefing) Fax, or hand deliver to media... The following media advisory is issued today by the [Name of Company]: For Immediate Release Media are invited to a press briefing at 11:00 am Tuesday, July 17, 2010 at City Hall 25 Town Hall Street, Charlottesville Mayor Charles and Chief Environmental Engineer Joe Doe will be providing details on the water contamination issue. Media contact: Person, Company, Phone Number, Webpage 110

111 PRESS RELEASE TEMPLATE The following press release is issued today by the [Name of Company]: For Immediate Release Date - Municipality - Spokesperson s name and title said today that....the situation... (is under control, is being addressed, firefighters are on the scene, etc) We (organization name) are taking steps to... quote: what actions the organization is taking, telling people what actions they should be taking, or voicing compassion and concern he/she said. Key Message 1: Outline the issue, and the main message to get out to the public Supporting Point 1.1: What is being done, who is doing it Supporting Point 1.2: More pertinent details Supporting Point 1.3: What the public can do to help (themselves or others) Key Message 2: Next steps Supporting Point 2.1: More pertinent details Supporting Point 2.2: Resources available to help Supporting Point 2.3: Where can the public go for more information (indicates the end of the release - info below the 30 is for media info only and not for public) Media contact: Person, Company, Phone Number, Webpage 111

112 SAMPLE HOLDING STATEMENT The following statement is issued today by the [Name of Company]: For Immediate Release Date - Municipality - At approximately [time] there was (Brief general description - fire, accident, etc.) at [Location]. We are working to determine (damage, injuries, etc.). At this time we have confirmed that [there are three injuries, etc.] The safety and well-being of citizens is our first priority [expression of compassion/concern if appropriate]. As more information is available we will be providing updates through [web site address] and regular media briefings. Note for Media: A media briefing will be held at [location] at [time - e.g.: later today, 2:30 pm, every hour on the hour, etc.] media contact info ********************************************************** SAMPLE EMPATHY STATEMENT The following statement was released today by [Name, title and name of operation]: "We understand the concerns, fears and questions Islanders may have about the [incident - cave in, accident, etc.] that took place [time frame - this morning, afternoon, today, yesterday, etc.]. Our thoughts and prayers are with our employees and their families. "At this time we are doing everything we can to [action: determine what happened, conduct a rescue operation, etc.]. "The safety and well-being of [those effected, community/neighbors] is our first priority. "As more information is available, we will be providing updates through [Web site address] and regular media briefings. Note for Media: Media briefings will be held at [Location] at [time - e.g.: later today, 2:30 pm, every hour on the hour, etc.]. media contact info

113 PRESS CONFERENCE CHECKLIST Establish a site for the media quickly - or they will establish one themselves. Coordinate with head office or EOC for a location that is: Away from the EOC Easily accessible As comfortable as possible Select a facility with: Parking with enough space for satellite trucks Separate interview space (if possible) Security - have the media check in when they arrive. Be sure they have appropriate media credentials Minimal overhead noise Washroom facilities if possible Select a facility capable of accommodating: Podium with ability to attach several microphones Table and chairs or designated section for spokespeople Chairs for media Suitable backdrop for photo and video feeds Additional needs to consider: Computers/Internet access, projector, screen, etc. Media feed (audio splitter for on-site recording during press conferences) Electrical outlets Electrical power strips Flip charts and black or blue markers Masking tape Notepaper/Pens Telephones (landlines) - especially if cell phones don't work in that area Communication Appoint a media liaison to address logistics and media needs Communicate through press briefings so that all media receive the same information at the same time. Send Media Advisory (invitation to press conference) 24 hours in advance or with as much notice as possible Develop your messages, brief your spokesperson. Distribute materials (in French and English, if possible) including press release, backgrounders, maps, etc. Post online as well. Set a time for follow-up and stick to it. Even if you do not have new information, it is important to provide the media with an up-to-date statement. 113

114 Appendix D Reception Centre Service Checklist Reception Centre Service Priority Action Checklists and Guidelines A Reception Centre (RC) is a one-stop service site or facility - school gym, church hall, community hall, arena, or other appropriate location - where, in a disaster or emergency, people evacuate to and where their immediate basic needs are met by the five Emergency Social Services (ESS) response teams: Emergency Clothing, Emergency Lodging, Emergency Food Service, Registration and Inquiry Service, and Personal Services. Past disaster experience has shown that disaster survivors or evacuees may arrive at RC with minor injuries, without necessary medication or may be ill or recovering from an illness. First Aid and Public Health Services are therefore provided in addition to the five basic ESS. Other municipal emergency services may also be needed by evacuees in the RC such as transportation, sanitation and recreation. These checklists and guidelines are based on the Public Health Agency of Canada s Reception Centre Services Manual

115 Priority Action Checklist - Before Evacuees Arrive The Reception Centre Supervisor is responsible for opening, managing, coordinating, the delivery of services to disaster survivors or evacuees, and for closing the Reception Centre. When the RC Supervisor receives a request to open a reception centre, his/her first operational priorities are as follows: First Priorities: 1. Clarify authority and restrictions on expending money with the EOC. Ensure all expenditures are documented. 2. Contact building owner/custodian to secure access. 3. Initiate Reception Centre Services (RCS) staff call-out. 4. Report to the reception centre. Priorities - As Reception Centre is Opened: 1) Establish RC Supervisor's office and administrative services. 2) Start RC operations log to record decisions, status, activities, and problems. Record date and time of RCS staff arrival. 3) Brief RCS staff, ESS supervisors and Support Agencies on: a) Type of disaster or emergency b) Number of people expected and time of arrival c) Special requirements or problem areas, if any and d) Unusual resource requirements. 4) Check operational status (personnel, supplies, equipment available or required, space allocation, operational procedures, etc.) of the following services: a) First aid for evacuees that may have injuries. 115

116 b) Emergency clothing: i) To prevent loss of life due to exposure. ii) To meet clothing needs until normal sources are available. c) Safe, immediate, temporary lodging for evacuees such as: i) Private accommodations. Lodging with persons volunteering their own homes or cottages. ii) Commercial accommodations. Motels, Hotels, Hostels, etc. d) Group lodging facilities. Buildings not normally used for living purposes such as schools, community halls, arenas, etc. e) Provision of food or meals: i) For those without food or food preparation facilities, including special food requirements for infants, elderly, and for women who are pregnant or nursing. ii) Possibly for recovery workers and volunteers. f) Registration and inquiry: i) To collect information and answer inquiries on the condition and whereabouts of survivors. ii) To assist in reuniting families. iii) To determine general and special requirements such as medical, feeding, clothing, and lodging. g) Personal services to provide survivors/evacuees with: i) Temporary care for unaccompanied children, dependent elderly persons, residents from special care facilities. ii) Information on financial and material aid available. iii) Emotional support to people with personal problems aggravated by a disaster. h) Public health services including health inspections of reception centres/shelters and public health nurse services. i) Health care services to meet medical needs beyond first aid. Primarily for evacuees who were previously hospitalized or experiencing medical conditions. 116

117 j) Telecommunication services may include additional telephones. Amateur radio operators will be useful in maintaining contact with the EOC during power outages as cellular telephone systems are easily overwhelmed. k) Maintenance of the facility. l) Sanitation of the facility. m) Security of the facility and people. n) Administration of the facility to include documentation of financial expenditures, borrowed or loaned items, posting of notices, and safekeeping of evacuees/survivors valuables. 5). Ensure all staff members wear some identification. 6). Have RCS personnel immediately check readiness of and address any shortcomings of: a) Sanitation facilities garbage disposal, showers, sinks, toilets, toilet paper, paper towel, soap, etc. b) Fire exits unlocked, easy to access, and well marked. c) Emergency generator- ready for operation d) Emergency lighting e) Heating equipment f) Ventilation or air conditioning operation g) Internal communications such as walkie-talkies, public address system h) Source of drinking water 7). Designate a first aid room or area as soon as possible. Room should have running water. 8). Post appropriate signs on main streets leading to the RC indicating the location of the RC. 9). Arrange parking control if not provided by police. 10). Post appropriate signs in the RC indicating where and what services are offered, and any rules such as pet restrictions, lights out, quiet hours, and curfews. 117

118 11). Establish telecommunication centre close to RCS Supervisor's office. Maintain communication with the municipal emergency operations centre and other key contacts 12). Restrict use of telephone and two-way radio to authorized personnel. 13). Consider measures that may be required to protect evacuees from media intrusion. Liaise with the EOC Public Information Officer for direction on staff giving media interviews. 14). Take an inventory of equipment and materials that belong to the facility and assess and record general condition of the facility. Use a video camera for a visual record of the state of the facility prior to the evacuees arrival 15). Establish a fire plan and post it. If the facility is to be used as a shelter, a fire watch/security shift should be conducted overnight. 16). Establish a rest area for workers. Priority Action Checklist- As Evacuees Arrive 1) RCS personnel posted in the front entrance or foyer of the RC meet and greet the evacuees and inform them of the various services available. 2) Personal Services volunteers may also meet and greet victims or evacuees to offer emotional support or personal care to unaccompanied children, dependent adults or elderly or groups with special needs. 3) Accompany persons requiring First Aid or with any health concerns to the First 4) Aid Room or Health Care Services. 5) Depending on the nature of the disaster event, general well-being or condition of disaster survivors, people are directed to the Service they judge to be the most pressing, e.g., clothing, food, registration and inquiry etc. 118

119 6) Emergency Food Service would usually have hot drinks, juices, snacks, sandwiches, fruits available for evacuees upon arrival. 7) Evacuees would be asked to register as soon as possible after they have arrived but not until their immediate basic needs have been met. 8) As soon as the basic needs of evacuees are met, the RC Supervisor should hold an information meeting to: a) Introduce him/herself and supervisors, b) Reassure evacuees about the safety of the location, c) Bring them up to date regarding the disaster or emergency, d) Inform them of services available, locations of emergency exits, smoking areas, and evacuation procedures. e) Answer questions evacuees may have. f) Request volunteers if the need exists. 9) The RC Supervisor would let evacuees know when updated information about the event will be next presented. Evacuees should be briefed even if there is no information to report. In some emergencies or disasters, newspapers, radio and television sets are provided so evacuees can follow news reports. In some sensitive circumstances such as a mass casualty incident, it may be beneficial for officials to brief evacuees/survivors within the reception centre prior to conducting conferences with the media. 10) Ensure adequate telephone services are installed for the use of evacuees. 11) RC Supervisor needs to check with the Municipal EOC to determine how long evacuees are expected to remain in the RC. This information is essential for the Emergency Food Service who will either have to prepare or order food in. 12) If appropriate, request the Municipality s Parks and Recreation department or other organization to organize activities for children. 119

120 13) Maintain accurate records of equipment and supplies purchased or borrowed. 14) Maintain a reception centre operations log. Priority Action Checklists - Continuing Priorities Once evacuees have settled in and Services are fully operational, the RC Supervisor is responsible for: 1) Briefing evacuees daily at set times 2) Monitoring the morale of evacuees and staff. Ensure staff has access to copies of Appendix P to the Public Health Agency of Canada Reception Centre Services Manual (Emergency Workers and Volunteers-Coping with Stress During and After a Disaster). 3) Monitoring operational status of facility. 4) Maintaining daily schedules for each Service. 5) Briefing the municipal EOC on the needs of evacuees, nature of activities and problems encountered. 120

121 Priority Action Checklist - Closing Plans for closing the RC begin as soon as evacuees return to their home or are transferred to Group Lodging Facilities or Commercial Accommodations or other forms of temporary lodging, unless it is used as central information and meeting site. Once the RC Supervisor is informed of the closing of the RC, he/she would: 1) Ensure that the Reception Centre facility and grounds are cleaned by RCS personnel. Collect volunteer ID cards. 2) Arrange for the inspection of the facility by owner. Conduct a joint inspection with the owner. Resolve any problems and document unresolved issues. If damage is serious, video tape and report to the Emergency Operations Centre. 3) Arrange for inventories of supplies and equipment. 4) Restock equipment and supplies. 5) Return borrowed and rented equipment to suppliers. Obtain final invoices for equipment and supplies purchased or rented. 6) Arrange for disconnection and removal of additional telephone services and for final billing for utilities and disconnections. 7) Turn over Operations Log, receipts and outstanding invoices to the EOC. 8) Post a notice informing disaster survivors or evacuees where further assistance is available. 9) Arrange for letters of appreciation or recognition of staff, donors of goods, services and facilities used during the operation. 10) Prepare final report on the Reception Centre operation for the EOC s Social Services Manager in order to update the reception centre/shelter plan for the next emergency. 121

122 RESOURCE REQUISITION FORM 1. PERSON MAKING REQUEST Name: Position: Phone No: 2. REQUEST DETAILS Detailed description of resource (include size, capacity, use) Request number Location (destination where the task/resource is to be completed/delivered) Target date & time (time for completion/delivery of task/resource) Date: Time: am/pm Contact person (the person taking delivery of the task/resource if different from person making request) Name: Position: Phone: Authorization (the person that has authourity to make the request) Name: Signature: Position: 3. ACTION DETAILS Office Use Referred to (the person who will take action on the request) Name: Position: Phone No: Referral date & time Date: Time: am/pm Estimated Cost $ Recommended Section Manager Name: Position: Approval (same person who authourized request) Signature: ID No: Name: Signature: Position: 4. COMPLETION DETAILS Name: ID No: Date: Time: am/pm Final Cost: $ 122

123 123