Polk County, Oregon. Emergency Operations Plan

Transcription

1 Polk County, Oregon Emergency Operations Plan February 2014 Prepared By: POLK COUNTY EMERGENCY MANAGEMENT

2 This page left blank intentionally.

3 Preface The Polk County emergency management program is governed by a wide range of laws, regulations, plans, and policies. The program is administered by the Polk County Sheriff s Office and is coordinated by the Emergency Management Division. The program receives its authority from the Oregon Revised Statutes, which form the basis for the Oregon Administrative Rules. The National Response Plan, the National Contingency Plan, and the State of Oregon Emergency Management Plan provide planning and policy guidance to counties and local entities. Collectively, these documents support the foundation for this County Emergency Operations Plan. This Emergency Operations Plan is an all-hazard plan describing how the County will organize and respond to events. It is based on, and is compatible with, the laws, regulations, plans, and policies listed above. The plan describes how various agencies and organizations in the County will coordinate resources and activities with other Federal, state, local, tribal, and private-sector partners. Use of the National Incident Management System/Incident Command System is a key element in the overall county response structure and operations. It is recognized that response to emergency or disaster conditions to maximize the safety of the public and to minimize property damage is a primary responsibility of government. It is the goal of Polk County that response to such conditions is done in the most organized, efficient, and effective manner possible. To aid in accomplishing this goal, Polk County has adopted the principles of the National Incident Management System, the National Response Plan, and the Incident Command System. Polk County also maintains this EOP with supporting plans/annexes and an Emergency Management Organization to facilitate response to major emergency or disaster events. Polk County public officials, departments, and employees who perform emergency and/or first response functions must be properly prepared. Department heads and elected officials will seek training for themselves and their employer to prepare Polk County to successfully carry out assigned emergency response roles. iii

4 This page left blank intentionally. iv

5 Letter of Promulgation v

6 This page left blank intentionally. vi

7 To be inserted here at a later time. vii

8 This page left blank intentionally. viii

9 Plan Administration This plan was developed for disasters, natural and man-made, outlining how the County will respond to such events. It is made readily available on the Polk County website. The plan will be reviewed annually by the Emergency Manager and/or the Emergency Manager Director who will facilitate needed updates. The County Emergency Operations Plan, including appendices and annexes, will be reviewed and approved by the Board of Commissioners (BOC) on a five-year cycle. All updates and revisions to the plan will be tracked and recorded in the following table. This process will ensure that the most recent version of the plan is disseminated and implemented by emergency response personnel. Record of Plan Changes Date Change Number Summary of Changes 2010 Original Release 2014 Update ix

10 Plan Administration (Cont.) Plan Distribution List Copies of this plan have been provided to the following jurisdictions, agencies, and persons. Updates will be provided. The recipient will be responsible for updating the Emergency Operations Plan when changes are received. The Polk County Emergency Management Director is ultimately responsible for all plan updates. Record of Plan Distribution Date Document Number Jurisdiction/Agency/Person Polk Public Works - Director Polk Community Development - Director Polk County Counsel Board of Commissioners Sheriff City of Dallas City of Independence City of Monmouth City of Falls City Polk County Public Health - Director Annex Maintenance Assignments Unless otherwise stated, the following are annex and emergency support functions assignments for corrections and/or changes. (Changes will be forwarded to the Emergency Management Director for revision and dissemination of the plan.) This does not preclude other departments and agencies with a vital interest in the annex from providing input to the document; such input is, in fact, encouraged. Annex Assignments Section/Annex Emergency Operations and Response Plan Assignment Polk County Emergency Management Organization x

11 Plan Administration (Cont.) Annex Assignments Section/Annex Emergency Support Function 1 Transportation Emergency Support Function 2 Emergency Communications and Warning Emergency Support Function 3 Public Works and Engineering Emergency Support Function 4 Fire Services Emergency Support Function 5 Emergency Management Emergency Support Function 6 Housing and Human Services Emergency Support Function 7 Resource Support Emergency Support Function 8 Public Health and Medical Services Emergency Support Function 9 Search and Rescue Emergency Support Function 10 Hazardous Materials Emergency Support Function 11 Agriculture and Natural Resources Emergency Support Function 12 Energy Emergency Support Function 13 Public Safety and Security Assignment Polk County Emergency Management Organization Polk County Sheriff Polk County Fire Defense Board Polk County Sheriff s Office Polk County Public Works Polk County Environmental Health Oregon Department of Transportation City of Dallas Public Works Falls City Public Works Dept. City of Independence Public Works Department City of Monmouth Public Works Department City of Willamina Public Works Fire Chief of each Participating Jurisdiction Polk County Emergency Management Organization American Red Cross Polk County Emergency Management Organization Polk County Human Services Department Polk County Emergency Management Organization Polk County Public Health Department Polk County Sheriff s Office Oregon State Fire Marshal (Urban Search and Rescue) Fire Chief of each Participating Jurisdiction Polk County Emergency Management Organization (with support from U.S. Department of Agriculture Extension Service and Oregon Dept of Agriculture Polk County Emergency Management Organization Polk County Sheriff s Office City of Dallas Police Department City of Monmouth Police Department City of Independence Police Department Oregon State Police xi

12 Plan Administration (Cont.) Annex Assignments Section/Annex Emergency Support Function 14 Community Recovery, Mitigation, Economic Stabilization Emergency Support Function 15 Emergency Public Information and External Affairs Incident Annex1 Severe Weather/Landslides Incident Annex 2 Flood (Including Dam Failure) Incident Annex 3 Wildfire Incident Annex 4 Hazardous Materials (Accidental Release) Incident Annex 5 Terrorism (Including Weapons of Mass Destruction and Chemical, Biological, Radiological, Nuclear and Explosive) Incident Annex 6 Public Health-Related Incident Annex 7 Animal and Agriculture-Related Incident Annex 8 Drought Incident Annex 9 Earthquake/Seismic Activity Incident Annex 10 Volcano/Volcanic Activity Assignment Polk County EMD Polk County Emergency Management Organization Hazard Mitigation Coordinator Polk County Assessor s Office Polk County Community Development Polk County Court Dallas Area Chamber of Commerce Monmouth & Independence Chamber of Commerce Willamina Chamber of Commerce Polk County Court Public Information Officer Network Polk County Emergency Management Organization Polk County Emergency Management Organization Fire Chiefs of each Participating Jurisdiction, including Oregon Department of Forestry, USDA Forest Service, and Bureau of Land Management Fire Chiefs of each Participating Jurisdiction Polk County Emergency Management Organization and Law Enforcement Agencies Polk County Public Health Department West Valley Hospital Polk County Emergency Management Organization Polk County Extension (Oregon State University) Emergency Management Division with Support from Local Water Districts and the U.S. Department of Agriculture Polk County Emergency Management Organization Polk County Emergency Management Organization xii

13 T able of Contents Section Page Preface... iii Letter of Promulgation... v Plan Administration... ix 1 Introduction Purpose Scope and Applicability Relationship to Other Plans Authorities Declaration of Emergency Unmet Needs Escalation Lines of Succession Liability Safety of Employees and Family Financial Management and Expense Tracking Situation and Planning Assumptions Situation Assumptions Roles and Responsibilities County Government Emergency Management Organization Function-Specific Roles and Responsibilities Emergency Management Services Emergency Operations Center Warning Law Enforcement Services Fire Services Environmental Health Division Public Health and Human Services Shelter and Mass Care Public Works xiii

14 Table of Contents (Cont.) Section Page Communications Services Damage Assessment Emergency Public Information Resource Management Evacuation Volunteer Services County Attorney Risk Management Information Services and Geographical Information Systems Other Roles and Responsibilities Incorporated Cities Regional Response Partners State Response Partners Federal Response Partners Concept of Operations General Emergency Response Context Incident Levels Incident Management Activation Response Priorities Initial Actions Communications, Notification, and Warning Direction and Control Inter-jurisdictional Coordination Transition to Recovery Demobilization Recovery Direction and Control Continuity of Operations / Continuity of Government Incident Command System Incident Commander Command Staff Positions General Staff Positions Incident Command Posts and Other Facilities Multi-Agency Coordination Unified Command Emergency Operations Center Plan Development, Maintenance, And Implementation xiv

15 Table of Contents (Cont.) Section Page Appendix A Templates and Forms... A-1 B Maps... B-1 C Reference List... C-1 D Glossary... D-1 Attachment Emergency Support Functions ESF 1 Transportation ESF 2 Emergency Communications and Warning ESF 3 Public Works and Engineering ESF 4 Fire Services ESF 5 Emergency Management ESF 6 Mass Care, Housing, and Human Services ESF 7 Resource Support ESF 8 Public Health and Medical Services ESF 9 Search and Rescue ESF 10 Hazardous Materials ESF 11 Agriculture and Natural Resources ESF 12 Energy ESF 13 Public Safety and Security ESF 14 Community Recovery, Mitigation, and Economic Stabilization ESF 15 Emergency Public Information and External Affairs Incident Annexes IA1 Severe Weather/Landslides IA2 Flood (Including Dam Failure) IA3 Drought IA4 Wildfire IA5 Hazardous Materials (Accidental Release) IA6 Earthquake/Seismic Activity IA7 Volcano/Volcanic Activity IA8 Terrorism IA9 Public Health-Related IA10 Animal and Agriculture-Related xv

16 This page left blank intentionally. xvi

17 L ist of Tables Table Page 1-1 State Support Functions (SSF) Polk County Emergency Support Functions (ESF) ESF Assignments Within ICS xvii

18 This page left blank intentionally. xviii

19 L ist of Figures Figure Page 5-1 Polk County EOC Structure Example Unified Command Structure for Polk County xix

20 This page left blank intentionally. xx

21 L ist of Abbreviations and Acronyms AAR AOC ATAB BOC CBRNE CFR COG COOP County EAS ECC EMD EMP EOC EOP ESF FBI FEMA GIS Governor HPP IA IAP IC ICP ICS IDA After-Action Report Agency Operations Center Area Trauma Advisory Board Board of Commissioners Chemical, Biological, Radiological, Nuclear, Explosive Code of Federal Regulations Continuity of Government Continuity of Operations Plan Polk County Emergency Alert Service Emergency Coordination Center Emergency Management Director Emergency Management Plan Emergency Operations Center Emergency Operations Plan Emergency Support Function Federal Bureau of Investigation Federal Emergency Management Agency Geographic Information Systems Governor of Oregon Hospital Preparedness Program Incident Annex Incident Action Plan Incident Commander Incident Command Post Incident Command System Initial Damage Assessment xxi

22 List of Abbreviations and Acronyms (Cont.) IP JIC JIS MOU NAWAS NIMS NRP OAR ODA ODF ODOT OEM OERS ORS OSHA PCARES PDA PIO PNP POD PSAP SAR Sheriff SNS SSF SNS SOP State UC UHF U.S. USDA Improvement Plan Joint Information Center Joint Information System Memorandum of Understanding National Warning System National Incident Management System National Response Plan Oregon Administrative Rules Oregon Department of Agriculture Oregon Department of Forestry Oregon Department of Transportation Oregon Emergency Management Oregon Emergency Response System Oregon Revised Statutes Oregon Health and Safety Administration Polk County Amateur Radio Emergency Services Preliminary Damage Assessment Public Information Officer Private Nonprofit Point of Dispensing Public Service Answering Point Search and Rescue Polk County Sheriff State Support Function Strategic National Stockpile Standard Operating Procedure State of Oregon Unified Command Ultra High Frequency United States U.S. Department of Agriculture xxii

23 List of Abbreviations and Acronyms (Cont.) VA VERT VHF WMD WVCC Veterans Association Veterinary Emergency Response Team Very High Frequency Weapons of Mass Destruction Willamette Valley Communications Center xxiii

24 This page left blank intentionally. xxiv

25

26

27 1 Introduction 1.1 Purpose The Polk County (County) Emergency Operations Plan (EOP) provides a framework for coordinated response and recovery activities during any type or size of emergency. The plan also provides specific information regarding direction and control, with guidance for all first responders and governmental agencies on strategic and tactical procedures supporting all phases of an emergency. This EOP complements the State of Oregon (State) Emergency Operations Plan (EOP) and the National Response Plan (NRP). It also identifies all Emergency Support Functions (ESFs) and critical tasks needed to support a wide range of response activities. The objectives of this plan are to: Define and assess the natural and manmade hazards of which the community should be aware and against which all entities and response agencies can assess their preparedness; Provide strategic and tactical procedures to support Polk County s primary mission of protecting lives and property during all phases of an emergency, as well as to guide the implementation of specific functions and operational responsibilities; Provide a model upon which each incorporated municipality within Polk County can develop its own disaster plan that will be coordinated with this plan and will show how each city intends to fulfill its responsibilities in responding to an emergency; Provide guidance for the implementation of a County Emergency Operations Center (EOC) from which operations may be directed, coordinated, and supported; Integrate multi-agency, regional, and tribal coordination into emergency operations through implementation of the Incident Command System (ICS)/National Incident Management System (NIMS); Establish response priorities; 1-1

28 1. Introduction Establish lines of authority and succession that County departments and agencies may invoke during any type of emergency; Define roles and responsibilities spanning various departments, agencies, divisions, and management levels in support of critical functions; Outline clear guidelines and procedures for ensuring consistent and timely release of emergency public information; and Provide procedures and criteria for requesting and allocating essential resources to support overall emergency operations. 1.2 Scope and Applicability This plan incorporates procedures supporting all facilities, operations, and personnel to be relied on during any type of emergency. The Polk County EOP supports a program for emergency management consistent with and supplemental to the State of Oregon Emergency Management Plan (EMP). In addition, it functions as a bridge between local, State, and Federal emergency management systems. Organized as a, the County EOP describes roles and responsibilities, as well as concepts of operations, command, and control, while clearly defining escalation pathways and legal authorities involved with critical decision-making and resource allocation by local and County governments. Fifteen ESF Annexes supplement the information in the and are consistent with support functions identified in State and Federal plans. Each ESF serves as an operational-level mechanism for identifying primary and support entities to maintain capabilities for providing resources and services most likely needed throughout all phases of an emergency. If capabilities or resources prove limited or unavailable to the County during an emergency or disaster, escalation pathways and resource request procedures are clearly defined in each ESF for seeking additional resources through State or Federal agencies. Additionally, Incident Annexes (IA) are included with the to provide tactical information and critical tasks unique to specific natural and manmade/technological hazards that could pose a threat to Polk County. Incident types are based on the hazards identified in the most recent Hazard Identification and Vulnerability Assessment conducted for the County. Incident-specific annexes in support of the Polk County EOP include: Severe weather/landslides, Flood (including dam failure), Drought, Wildfire, 1-2

29 1. Introduction Hazardous materials (accidental release), Earthquake/seismic activity, Volcano/volcanic activity, Terrorism (including weapons of mass destruction (WMD) and Chemical, Biological, Radiological, Nuclear and Explosive (CBRNE]), Public Health-Related, and Animal/Agriculture-Related, Note: Resource shortages are considered secondary risks during any emergency situation. The intent of the Polk County EOP is to provide the guidance and procedural information necessary to respond to any type of incident impacting a significant portion of the County. Individual communities and incorporated cities may maintain similar plans or procedures for implementation in response to localized incidents or initial activities prior to escalation to the County. If the County EOP is activated during an incident or Countywide emergency declaration, cities and communities will adopt command and control structure and procedures representative of County response operations. Procedures supporting NIMS implementation and training for the County have been developed and formalized by the Emergency Management Division. In addition, Continuity of Operations (COOP) and Continuity of Government Plans (COG) are under development for Polk County, and, when combined with the EOP, ESFs, and IAs, can be collectively referred to as a Comprehensive Emergency Management Plan for the County. Thus, each document lends a unique set of procedures and guidelines for supporting emergency preparedness, response, and recovery. A NIMS Implementation Plan has been formalized and adopted by the Polk County Board of Commissioners. 1.3 Relationship to Other Plans Homeland Security Presidential Directive-5 directed the Secretary of Homeland Security to develop, submit for review by the Homeland Security Council, and administer a NIMS and NRP. The NIMS, including the ICS, enhances the management of emergency incidents by establishing a single comprehensive system and coordinated command structure to help facilitate a more efficient response among departments and agencies at all levels of government and, if necessary, spanning across jurisdictions. 1-3

30 1. Introduction The NRP organizes the types of Federal response assistance a state is most likely to need into 15 ESFs. Each ESF has a primary agency assigned for maintaining and coordinating response activities. Oregon s EMP, Volume II, follows the ESF format in designating similar State Support Functions (SSFs). Table 1-1 summarizes the SSFs and notes responsible lead State agencies. Table 1-2 summarizes the County ESFs and highlights lead agencies or entities responsible for coordinating resources and activities within the jurisdiction. At a minimum, all emergency response personnel must be familiar with the NRP and have a working knowledge of the plans listed below. Table 1-1 State Support Functions (SSF) SSF Function Primary Responsible State Agency 1 Transportation Oregon Department of Transportation 2 Communications Oregon Emergency Management 3 Public Works and Engineering Oregon Department of Transportation 4 Firefighting Office of the State Fire Marshal 5 Information and Planning Oregon Emergency Management 6 Mass Care American Red Cross 7 Resource Support Department of Administrative Services 8 Health and Medical Services Oregon Health Division 9 Search and Rescue Oregon Emergency Management 10 Hazardous Materials Office of the State Fire Marshal Oregon Department of Environmental Quality 11 Food Oregon Department of Agriculture 12 Energy Oregon Office of Energy Department of Administrative Services 13 Public Safety Oregon State Police Table 1-2 Polk County Emergency Support Functions (ESF) ESF Function Primary Responsible Agency or Entity 1 Transportation Polk County Emergency Management Organization Polk County Public Works Oregon Department of Transportation 2 Emergency Communications Polk County Sheriff s Office and Warning 3 Public Works and Engineering Polk County Public Works Oregon Department of Transportation City of Dallas Public Works City of Falls City Public Works City of Independence Public Works City of Monmouth Public Works City of Salem Public Works City of Willamina Public Works 1-4

31 1. Introduction Table 1-2 Polk County Emergency Support Functions (ESF) ESF Function Primary Responsible Agency or Entity 4 Fire Services Fire Chief of each Participating Jurisdiction 5 Emergency Management Polk County Emergency Management Organization 6 Housing and Human Services Polk County Human Services Administration American Red Cross 7 Resource Support Polk County Emergency Management Organization 8 Public Health and Medical Services Polk County Public Health Department West Valley Hospital 9 Search and Rescue Polk County Sheriff s Office Oregon State Fire Marshal (Urban Search and Rescue) 10 Hazardous Materials Fire Chief of each Participating Jurisdiction 11 Agriculture and Natural Resources Polk County Emergency Management Organization with support from County Extension Service (Oregon State University); U.S. Department of Agriculture, Area Veterinarian In Charge; and the State Veterinarian s Office, Oregon Department of Agriculture 12 Energy Polk County Emergency Management Organization 13 Public Safety and Security Polk County Sheriff s Office City of Dallas Police Department City of Independence Police Department City of Monmouth Police Department City of Salem Police Department Oregon State Police 14 Community Recovery, Mitigation, and Economic Stabilization Polk County Assessor Polk County Community Development Polk County Court Dallas Chamber of Commerce Monmouth/Independence Chamber of Commerce City of Willamina Chamber of Commerce 15 Emergency Public Information and External Affairs Polk County Court Marion/Polk Public Information Officers Public Information Officer Network State of Oregon Emergency Management Plan The Oregon EMP is developed, revised, and published by the Director of Oregon Emergency Management (OEM) under the provisions of Oregon Revised Statute (ORS) , which are designed to coordinate the activities of all public and private organizations that provide emergency services within this state and to provide for and staff a State Emergency Coordination Center (ECC) to aid the Governor of Oregon (Governor). Oregon Revised Statutes makes the Governor responsible for the emergency services system within the state of 1-5

32 1. Introduction Oregon. The Director of OEM advises the Governor and coordinates the State s response to an emergency or disaster. The Oregon EMP includes three volumes: Volume I: Preparedness and Mitigation, includes plans and guidance necessary for State preparation to resist a disaster s effects. Sections include disaster hazard assessment, the Emergency Management Training and Exercise Program, and plans to mitigate (or lessen) a disaster s physical effects on citizens, the environment, and property. Volume II: Emergency Operations Plan, referred to as the, broadly describes how the State uses organization to respond to emergencies and disasters. It delineates the emergency management organization and includes a Hazard Specific Plans and Procedures appendix. Volume II describes management functional areas common to most major emergencies or disasters, such as communications, public information, and others. Volume III: Relief and Recovery provides State guidance, processes, and rules for assisting Oregonians with recovery from a disaster s effects. It includes procedures for use by government, business, and citizens. Activation and implementation of the Oregon EMP (or specific elements of the plan) may occur under various situations. The following criteria would result in activation of the EMP, including the EOP: The Oregon Emergency Response System (OERS) receives an alert from an official warning point or agency, indicating an impending or probable incident or emergency; The Governor declares a State of Emergency; A statewide disaster is imminent or occurring; Terrorist activities or WMD incidents are occurring or imminent; An alert, site emergency, or general emergency is declared at the Washington Hanford Nuclear Reservation in Washington State or at the research reactors at Oregon State University or Reed College; A community emergency (or other appropriate Chemical Stockpile Emergency Preparedness Program Emergency Classification Level) involving the Umatilla Chemical Depot occurs; A localized emergency escalates, adversely affecting a larger area or jurisdiction and exceeding local response capabilities; 1-6

33 1. Introduction A geographically limited disaster requires closely coordinated response by more than one state agency; and An affected city or County fails to act. Continuity of Operations and Government Plans Polk County is in the on-going process of developing COOP and COG plans. Once these have been fully developed, they may be used in conjunction with this EOP during various emergency situations. The COOP and COG plans detail the processes for accomplishing administrative and operational functions during emergencies that may disrupt normal business activities. Parts of these plans identify essential functions of County and local government, private sector businesses, and community services and delineates procedures developed to support their continuation. Elements of COOP/COG may include but are not limited to: Ensuring the County s continuous functions and operations during an emergency; Maintaining clear lines of authority and, when necessary, implementing the approved line of succession and proper delegation of authority; Protecting critical facilities, equipment, vital records, and other assets; Reducing or mitigating disruptions to operations and essential community services; Reducing loss of life, minimizing property damage, and protecting the local economy from significant impacts; and Achieving a timely and orderly recovery from emergencies and resumption of full services to the public. City Emergency Operations Plans The cities of Dallas, Independence, and Monmouth maintain emergency response and evacuation plans to be implemented during local emergencies. The City of Salem in Marion County and the City of Willamina in Yamhill County also have such plans. There plans extend coverage to the West Salem area of the city and the Southern area of Willamina that is located in Polk County. Specific community procedures and guidelines supporting localized response activities will be incorporated into overall County emergency operations as applicable and necessary. Currently, written EOPs have not been developed for other cities within Polk County. 1-7

34 1. Introduction Agency and Organization-Specific Plans A number of agency-specific plans and organizational procedures are available to support the County EOP and individual ESFs. These plans and procedures are interrelated and have a direct influence on the County s preparation prior to a major emergency or disaster, its activities in response to such an emergency or disaster, and its ability to successfully recover from such incidents or events. These plans also provide local, County, regional, and State agencies and entities with a consolidated framework for coordinating activities and resources, thus promoting efficient use of resources during all phases of emergency management. 1.4 Authorities This plan applies to and has been approved by the Polk County Board of Commissioners (BOC), which has delegated the Polk County Sheriff s (Sheriff) Office as the lead agency in the Polk County Emergency Management Organization. The Sheriff has been given the collateral title of EMD and is responsible for the organization, administration, and operations of the Emergency Management Organization. This title and its corresponding authority and responsibilities are subject to the direction and control of the Polk County BOC in accordance with ORS The Sheriff may appoint an Emergency Program Manager or carry out the duties him/herself. If an Emergency Program Manager is appointed, the Emergency Management Organization will assist him or her in carrying out his or her duties. The OEM and the Polk County Administration have shown their formal approval and acceptance of this plan through the Adoption Letters contained herein. The organizational and operational concepts set forth are promulgated under the following authorities: Federal Federal Civil Defense Act of 1950, PL as amended The Disaster Relief Act of 1974, PL as amended Robert T. Stafford Disaster Relief and Emergency Assistance Act, PL Title III, of the Superfund Amendments and Reauthorization Act of 1986, PL as amended Code of Federal Regulations (CFR), Title 44. Emergency Management Assistance EO 12656, Assignment of Emergency Preparedness Responsibilities, of November 18, 1988 State Of Oregon Oregon Revised Statutes through Executive Order of the Governor Polk County 1-8

35 1. Introduction Polk County Ordinance # The following sections highlight significant County and State regulations and plans governing activities for responding to major emergencies and disasters Declaration of Emergency In the context of the County EOP, a disaster or major emergency is considered an incident that requires the coordinated response of all government levels to save the lives and protect the property of a large portion of the population. When an incident occurs and a Mayor, City Manager, County BOC, or Administrative Officer determines that conditions have developed such that the manpower, equipment, or other resources or capabilities of the affected municipality or department are overwhelmed, the official may request that the Polk County Sheriff or EMD activate this EOP and the County EOC. Under the circumstances described above, the County s Presiding Official, in consultation with the County BOC and with support from the County Counsel, may issue an Emergency Declaration. This declaration will state that an emergency exists and will specify a location or description of the affected area and the jurisdictions included in the declaration. Oregon Emergency Management has set forth the following criteria for declaring a local emergency: Describe the circumstances impacting an identified area, Identify the problems for which assistance is needed, and Clearly state what has been done locally to respond to the impact and needs. In accordance with ORS Chapter 401, the Polk County EMD will submit emergency/disaster declarations to the OEM Director. If the Governor issues an emergency or disaster declaration, OEM will be contacted via the OERS for possible allocation of State resources to support the response. During a suspected or confirmed public health emergency, the Polk County Emergency Management Organization may declare a state of emergency under advisement from the Polk County Public Health Director. The latter may request that the County Court issue an order to implement and provide for enforcement of isolation and quarantine procedures. In an agricultural emergency, the Polk County Environmental Health Division will manage animal quarantine measures (note that, unlike human quarantines, animal quarantine measures do not require a court order). The Area Veterinarian in Charge for the United States Department of Agriculture (USDA)/Animal and Plant Health Inspection Service/Veterinary Services will assist the State Veterinarian as appropriate in any animal health emergency. Most likely, support from the State Brand Inspector, State agricultural agencies, Cooperative 1-9

36 1. Introduction Extension Services, and the Oregon Department of Human Services would be included in these procedures. Formal quarantine measures will be implemented in accordance with procedures established in the Oregon Animal Disease Emergency Management Plan as set forth by Oregon Department of Agriculture (ODA). Response activities may also be supported by the ODA s Veterinary Emergency Response Teams. Draft emergency/disaster declaration templates for Polk County and incorporated cities are included in Appendix A Unmet Needs Escalation The executives of Polk County and its incorporated cities are responsible for the direction and control of their respective resources during emergencies. Each city s executive is responsible for communicating unmet needs to the County, with all assistance and resource requests to be made through Polk County Emergency Management via the County EOC. The Polk County EMD will forward local or County resource requests to the OEM Director for review by the Governor. If possible, the County and/or affected local jurisdiction(s) will conduct an initial damage assessment prior to requesting State or Federal assistance. Particular attention will be given to special needs populations to appropriately allocate resources necessary for providing critical services during an emergency. In the case of emergencies involving fires threatening life and structures, the Conflagration Act (ORS ) can be invoked by the Governor through the Office of State Fire Marshal. The Act allows the State Fire Marshal to mobilize and fund fire resources throughout the State during emergency situations. The local Fire Chief and County Fire Defense Chief assess the status of the incident(s) and, after determining that all criteria have been met for invoking the Conflagration Act, notify the State Fire Marshal via OERS. The State Fire Marshal reviews the information and notifies the Governor, who authorizes the act. Refer to ESF 7 for more detailed information regarding resource coordination authorities and procedures Lines of Succession Each Polk County department is responsible for pre-identifying successors to its key management positions. All such personnel must be trained on the protocols and contingency plans required to maintain leadership within their departments. Individual department heads within Polk County are responsible for developing and implementing COOPs to ensure continued delivery of vital services during an emergency. Refer to the Polk County Sheriff s Office COOP (forthcoming) for the Emergency Management line of succession. 1-10

37 1. Introduction 1.5 Liability The County Administrator/ City Council is responsible for liability risk management during emergency operations. At such times, he or she will review emergency operations plans, monitor resource management, and assess safety concerns arising from hazard situations in order to control liability exposure to the greatest degree possible. With regard to mutual aid, liability issues and potential concerns among government agencies, private entities, other response partners, and across jurisdictions are addressed in the established agreements and other formal memoranda. Copies of these documents can be obtained from the Polk County EMD. During an emergency situation, a local declaration may be necessary to activate these agreements, authorize commitment of resources, and invoke the applicable liability provisions. 1.6 Safety of Employees and Family All department heads or designees are responsible for the safety of employees while on duty. Employees not on duty should attempt to make contact with their supervisors and managers within the first 24 hours following an incident. (Emergency should not be used as a common communication mechanism unless it is reflective of a need for emergency assistance or resources.) Agencies and departments with developed COOPs will establish alternate facilities and staff locations, as applicable. Notification procedures for employee duty assignments will follow the required procedures established by each agency and department. During biological incidents or public health emergencies such as influenza pandemics, maintaining a resilient workforce is essential to conducting the response activities required to protect the community and overall County from significant impacts to human lives and the economy. Thus, personnel should be given the tools to protect themselves and their families while they provide health and medical services during a pandemic or other type of public health emergency. Currently, plans formally addressing the safety and protection of medical personnel and response staff during a biological incident and/or contagious outbreak have not been developed. However, the Polk County Public Health Department maintains a Respiratory Control Policy and Procedure for all public health staff. Safety precautions and decisions regarding personal protective equipment will be specific to the type of incident occurring and will require justin-time training among the first responder community and other support staff to implement appropriate procedures. If necessary, the Oregon Occupational Safety and Health Administration may provide assistance and guidance regarding worker safety and health issues. Information on emergency procedures and critical tasks involved in a biological emergency incident or disease outbreak is presented in ESF 8 and in this EOP s IAs. 1-11

38 1. Introduction Processes in support of employees and their families during emergency situations or disasters will be further developed upon finalization of COOP/COG plans and other medical/health related procedures. 1.7 Financial Management and Expense Tracking Refer to ESFs 5 and 14 for additional information regarding financial management procedures to be used throughout the duration of an emergency or disaster. Expenditure reports should be submitted to the County Administrator and managed through the Treasurer s Office and the County Clerk to identify budgetary shortfalls. The County Personnel Director will support procurement issues related to personnel, both volunteer and paid. In addition, copies of expense records and all supporting documentation should be submitted for filing Federal Emergency Management Administration (FEMA) Public Assistance reimbursement requests. 1-12

39 2 Situation and Planning Assumptions 2.1 Situation Polk County comprises approximately 745 square miles of land in northwestern Oregon, much of which is undulating forest or farmland. The County reaches from the Willamette River (which forms the border with Marion County) in the east, with intermittent hills rising immediately from the valley floor in West Salem, to Lincoln County and the Coast Range on the west; Yamhill County lies to the north and Benton County to the south; the southeast corner of Polk County includes a short border with Linn County. The City of Dallas is the County seat, and there are five other incorporated cities in the County: Falls City, Independence, Monmouth, Salem (mostly in Marion County), and Willamina (mostly in Yamhill County). There are 16 additional unincorporated communities in the County. The U.S. Census estimates Polk County s population at approximately 76,600 as of 2013, a 21% increase since Most of the population is concentrated in West Salem, Dallas, Falls City, Independence, and Monmouth. A small portion resides in the City of Willamina, and the rest are scattered in small rural communities and on acreage throughout the County. Approximately half of the families in the County require governmental assistance to obtain adequate housing, and as of % of the population was impoverished. As of 2000, 10% of the population spoke a language other than English at home; 85% of the population over age 25 had graduated high school, and 25% held a bachelor s degree or higher. Thus, while literacy may not be a major obstacle to risk communication, language barriers may be present in certain areas of Polk County. It may be advisable for emergency managers and emergency response agencies to arrange for translation of emergency instructions and for providing preparedness information in different languages. Polk County s elevation runs from a low of approximately 130 feet at Lincoln by the Willamette River, to 3,275 feet in the westerly coast range at Laurel Mountain. The County s topography and geographical location result in a coastal zone climate characterized by relatively mild temperatures, seasonal precipitation, mild winters, and dry summers. Occasional winter storms can bring heavy rains and high winds. While seasonal water shortages can affect much of the County, portions may be inaccessible at certain times of year due to flooding of the Willamette, Luckiamute, and Yamhill Rivers and Rickreall Creek. 2-1

40 2. Situation and Planning Assumptions The area between the Willamette River and the Coast Range is approximately evenly divided between forests and undulating farmland, with much of the latter located in the floodplains of the Willamette and Luckiamute rivers. Polk County s economy is primarily based on timber and other agriculture, with approximately half of the County s land area designated for agricultural use. Major products include Douglas fir trees, grass seed, hops, and hazelnuts, as well as livestock and dairy products. There is a small airport near Independence (Independence State Airport), and portions of eastern Polk County are served by the freight-only Portland & Western Railroad. Five major arterial roads serve Polk County: Highway 221 runs north and south along the eastern border of the County and accommodates commercial and recreational traffic; Highway 223 runs north and south between Dallas and the Benton County line; Highway 99 runs north and south through the center of the County and accommodates a heavy portion of commercial traffic; Highway 22 runs east and west through the County and also accommodates a heavy portion of commercial traffic as well as recreational and commuter traffic to and from the coast; and Highway 18 merges with Highway 22 along the northwest corner of the County. Spirit Mountain Casino, the top tourist attraction in the state of Oregon, is located on Highway 18 in northwestern Polk County and attracts a daily average of 8,000 visitors. Highways 18 and 22 have been designated as Safety Corridors due to a high number of serious and fatal motor vehicle accidents. The hazards of greatest concern in Polk County are severe weather, flooding, and earthquakes. Large rainfall events have historically resulted in sewage entering the Willamette River at multiple locations, and windstorms have caused structural damage during past storms. Much of the County s building stock is constructed of unreinforced masonry or is otherwise of questionable seismic resistance, indicating significant life and property loss potential should an earthquake occur. Additionally, the partial or complete loss of key agricultural products could be economically disastrous for the County. Some agricultural chemicals (e.g., fertilizers) are moved, stored, and used within the County, and unknown quantities and types of hazardous materials are assumed to transit the County via rail and Highway 99W (an I-5 reliever). 2-2

41 2. Situation and Planning Assumptions The risk of a fire at the Grand Ronde Casino is of concern, as the West Valley Fire District is not sufficiently equipped to manage a large fire at such a facility, and the response time for dispatching the appropriate apparatus would be significant. Finally, the County has experienced a documented terrorist attack when the ecoterrorist group Earth Liberation Front perpetrated an arson attack on a Boise Cascade office in Polk County. A major disaster or emergency would cause environmental damage, injuries, property loss, and disruption of essential public services and could impact regional economic, physical, and social infrastructures. The extent of casualties and damage will reflect factors such as is the timing and severity of the event, weather conditions, population density, and the possible triggering of secondary risks such as fires and floods. Initial emergency response activities focus primarily on minimizing loss of life, property, and damage to critical infrastructure, including cultural and economic assets. Historically, these activities have been carried out by traditional first responders, such as fire services and law enforcement. Local governments develop, maintain, and implement the Comprehensive Emergency Management Plan and associated training programs that address all hazards. Agency-specific procedures and protocols established for support functions and critical tasks will be implemented in conjunction with the County EOP as needed or required. A number of emergency situations can result in overwhelming the capabilities and resources of local governments and jurisdictions during response operations. Thus, it is imperative for this jurisdiction to establish clear lines of authority, formalize resource request and allocation procedures, and activate contingency plans, including mutual aid agreements, to acquire additional regional, State, and Federal resources as needed. Annex Q of this EOP contains a full hazard analysis, and a comprehensive risk assessment can be found in the County s Hazard Mitigation Plan. 2.2 Assumptions The assumptions upon which this EOP is predicated are: Polk County is exposed to natural and manmade hazards that could disrupt the community at any time and at any place by causing damage and casualties. In some cases, dissemination of warning and increased readiness measures may be possible. However, incidents may occur with little or no warning. Disasters may be of a magnitude and severity that State and Federal assistance are required. However, considering shortages of time, space, equipment, supplies, and personnel during a catastrophic disaster, selfsufficiency will be necessary for the first hours or days following the event. State support of County emergency operations will be based on the 2-3

42 2. Situation and Planning Assumptions principle of self-help; the County will be responsible for utilizing all available local resources and for initiating mutual aid and cooperative assistance agreements before requesting assistance from the State. An emergency will require prompt and effective response and recovery operations by County emergency services, disaster relief, volunteer organizations, and the private sector. Local government officials recognize their responsibilities for the safety and well-being of the public and will assume their responsibilities in the implementation of this emergency plan. All emergency response personnel are appropriately trained in operating under the NIMS/ICS. Proper implementation of this plan may reduce or prevent disaster-related losses. Essential County services will be maintained as long as conditions permit. Normal operations may be disrupted during a disaster, and County communication and work centers may be destroyed or rendered inoperable; however, the County can still operate effectively if public officials, first responders, employees, volunteers, and residents are: Familiar with established policies and procedures; Assigned pre-designated tasks; Provided with assembly instructions; and Formally trained in their duties, roles, and responsibilities required during emergency operations. 2-4

43 3 Roles and Responsibilities Local and County agencies and response partners may have various roles and responsibilities throughout an emergency s duration. Therefore, it is particularly important that the local command structure established to support response and recovery efforts maintain a significant amount of flexibility to expand and contract as the situation changes. Typical duties and roles may also vary according to the severity of impacts, size of the incident(s), and availability of local resources. Thus, it is imperative to develop and maintain depth within the command structure and response community. Polk County has developed a plan for implementing the NIMS and to assist with the training and preparing of essential response staff and supporting personnel to incorporate ICS/NIMS concepts in all facets of an emergency. Each agency and department is responsible for ensuring that key staff are identified and trained at a level enabling effective execution of existing response plans, procedures, and policies. A training roster that highlights levels and types of training completed by response personnel and essential support staff for the County must be maintained by individual agencies, volunteer organizations, private companies, and other community partners. 3.1 County Government The Polk County BOC is charged by ORS with responsibility for establishing an Emergency Management Organization that has been implemented through the adoption of the Polk County Ordinances The BOC has appointed the Polk County Sheriff as the County s EMD; the EMD has in turn appointed an Emergency Manager to conduct emergency management activities. The EMD is responsible for developing a Countywide emergency management program that, through cooperative planning efforts with the five incorporated communities of Polk County, will provide a coordinated response to a major emergency or disaster. 3.2 Emergency Management Organization The Emergency Management Organization is tasked with coordinating the ongoing activities of the emergency management program (i.e., prevention, mitigation, preparedness, response, and recovery) and is administratively a unit of the Sheriff s Office. Responsibility for coordinating emergency management activities with State, regional, tribal, and private partners resides with the 3-1