ANNEX C SHELTER & MASS CARE CITY OF HOUSTON

Transcription

1 ANNEX C SHELTER & MASS CARE CITY OF HOUSTON

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3 TABLE OF CONTENTS COVER PAGE... i APPROVAL & IMPLEMENTATION... ii ABLE OF CONTENTS... iii 1. AUTHORITY PURPOSE EXPLANATION OF TERMS SITUATION &ASSUMPTIONS CONCEPT OF OPERATIONS ORGANIZATION & ASSIGNMENT OF RESPONSIBILTIES DIRECTION & CONTROL READINESS LEVELS ADMINISTRATION & SUPPORT ANNEX DEVELOPMENT MAINTENANCE REFERENCES APPENDICES...23 APPENDIX 1 - RECEPTION & CARE FACILITIES...24 APPENDIX 2 - SHELTER & MASS CARE DOCUMENTS - ARC...25 APPENDIX 3 AMERICAN RED CROSS INTAKE & ASSESSMENT FORM...31 APPENDIX 4 SHELTER & MASS CARE DOCUMENTS -TSA...34 APPENDIX 5 HURRICANE RECEPTION & CARE...37 APPENDIX 6 SHELTER PLACEMENT GUIDANCE...38 ANNEX C SHELTER & MASS CARE JUNE 6, 2012 iii

4 1. AUTHORITY ANNEX C SHELTER & MASS CARE 1.1 The Americans with Disabilities Act of 1990 (ADA), the Rehabilitation Act of 1973, and the Fair Housing Act (FHA) 1.2 See the City of Houston Emergency Management Basic Plan for General Authorities 2. PURPOSE 2.1 The purpose of this annex is to outline organizational arrangements, operational concepts, responsibilities, and procedures to protect evacuees and others from the effects of an emergency situation by providing shelter and mass care. 3. EXPLANATION OF TERMS 3.1 Acronyms ARC DDC DWI EMC EOC FNSS HHSC MOU OEM NSS NIMS PIO SOPs TSA USDA VOAD American Red Cross Disaster District Committee Disaster Welfare Inquiry Emergency Management Coordinator Emergency Operations or Operating Center Functional Needs Support Services Health and Human Services Commission Memorandum of Understanding Office of Emergency Management National Shelter System National Incident Management System Public Information Officer Standard Operating Procedures The Salvation Army United States Department of Agriculture Voluntary Organizations Active in Disaster ANNEX C SHELTER & MASS CARE JUNE 6,

5 3.2 Definitions Companion Animal Animals generally kept for company, amusement, psychological support, and security, but not trained specifically to work or perform individual tasks. Companion animals are not allowed in American Red Cross (ARC) shelters, to include most other shelter facilities Evacuation Shelter A short-term shelter opened for temporary housing of people who have evacuated due to an impending threat. Most evacuation shelters are open for a 72-hour period. The American Red Cross (ARC) square footage standard for evacuation shelters is 15 square feet per evacuee Functional Needs Support Services (FNSS) Services that enable children and adults with or without disabilities that seek shelter in a general population shelter have access and functional needs met for maintaining their health, safety, and independence. May include but not limited to personal assistance services (PAS), durable medical equipment (DME), consumable medical supplies (CMS), and reasonable modification to common practices, policies and procedures (e.g. sensory, physical, mental health, cognitive and/or intellectual disabilities affecting their capability to function independently without assistance) General Shelter A type of shelter designed to house members of the public without regard to age, gender, or health condition. Evacuees may include individuals who are able to meet their daily needs either independently or with a caregiver and may require some assistance with activities of daily living (e.g. oxygen dependent, mobility disability / self ambulating with or without DME, including wheelchair, deaf, hard of hearing, blind or low vision with or without service animal, diabetic insulin dependent or diet controlled, dialysis, etc.) Mass Care Mass Care is the function and process by which the immediate emergency needs of disaster victims or emergency workers in a disaster-affected area are addressed in the most expeditious manner, without identifying specific needs of individuals or families on a case-by-case basis. Mass care shelters may require reasonable provision of medications and enhancements to services for meeting functional and/or access needs for occupants seeking shelter (see FNSS definition). ANNEX C SHELTER & MASS CARE JUNE 6,

6 3.2.6 Medical Shelter Individuals who occupy a medical shelter require active monitoring, management, or intervention by a medical professional to manage their medical / health condition are placed in medical shelters (e.g. hospice patients, ventilator patients, tracheotomy requiring suctioning, extensive wound management, isolation due to infectious disease, cardiac dysrhythmia, nursing home care, requires skilled nursing if no services available, etc.) National Shelter System (NSS) The National Shelter System (NSS) is a national data-base that is managed by the American Red Cross (ARC), which contains information for over 56,000 potential shelter facilities and is used to track and report shelter information during disasters. The tool enables emergency managers and disaster workers to identify the location, managing agency, capacity, current population, and other relevant information of all shelters operational in response to disasters Refuge of Last Resource (RLR) A pre-designated facility that provides a facility that offers immediate short-term protection for community residents during a threatening or disaster situation. RLR occupants will either return to home or if needed seek extended shelter services through ARC services Service Animals Special trained dog or miniature horse that works or performs specific tasks for the benefit of an individual having a disability (e.g. Blind or limited vision, deaf, provide non-violent protection, pulling wheelchairs, assisting during seizures, retrieving medications, equipment, support assistance for balance, etc.) Shelter Sheltering may include congregate sheltering or the use of commercial facilities, such as motels and hotels, as shelters for individuals or families. Shelters may be open in anticipation of a disaster, during an evacuation or after a disaster occurs Shelters are intended as a safe haven from impending disaster and/or short-term emergency housing until disaster victims can return to their homes or locate alternate housing after a disaster. Whether before or after a disaster shelters will be located in safe areas and will provide appropriate services Welfare Inquiries Welfare inquiries are requests from relatives, friends, employers, or others for information on the status of persons in an area affected by an emergency situation who cannot be located because they have evacuated, ANNEX C SHELTER & MASS CARE JUNE 6,

7 become separated from their families, or cannot be contacted by normal means of communications. Registration of disaster victims in the Red Cross Safe and Well database at shelters provides the information needed to answer welfare inquiries. 4. SITUATION AND ASSUMPTIONS 4.1 Situation The City of Houston s Hazard Analysis identifies numerous hazards that could cause an evacuation of some portion of the City of Houston (Annex E, Evacuation). Although the City of Houston has a resident population in excess of 2.0 million, likely scenarios could require shelter and mass care for a few families to as many or more than a 100,000 persons The City has the responsibility for coordinating shelter and mass care needs to protect local residents displaced from their residents or businesses who evacuate into or out of City s jurisdictional boundaries due to an actual or threatening emergency/disaster situation. The City of Houston does not stand-up mass care shelters for evacuees fleeing due to a hurricane threat Shelter and mass care needs may range from provisional accommodations to extended accommodations. Provisional accommodations are intended to provide short-term interim relief from the elements, restroom facilities, and a place to sit, etc. during the initial hours of an event (e.g. apartment fire, industrial incident, localized flooding, hazardous materials, etc.) METRO buses, taxi services, recreational facilities, local churches, and/or schools might be used for evacuating and sheltering residents. Normally these situations are short-term (less than a day) and have limited number of people to manage. Extended mass care and shelter accommodations are expected for large numbers of evacuees where feeding, sleeping, restroom, and shower facilities are desirable, including other support and assistance services considered necessary for evacuees. Mass care and shelter support for large scale events are expected to cover an extended period of time lasting for days, weeks, or months The ARC identifies suitable shelter facilities based on a set of standards, criteria, and maintains a list of potential shelters through the National Shelter System (NSS), maintains shelter kits, and trains shelter management personnel. Shelter facility criteria include ADA and Functional Needs Support Services (FNSS) requirements for all shelters If ARC services are not available or reaching capacity, other volunteer organizations and religious groups (i.e. Feed the Children, TSA, United ANNEX C SHELTER & MASS CARE JUNE 6,

8 4.2. Assumptions Way, Southern Baptist Convention, etc.) may be called on to open shelters. Some of these organizations and groups coordinate their efforts with and through the ARC, while others may operate shelter facilities themselves and assume full responsibility for them Shelters may have to be opened with little notice. Until the ARC or other volunteer support personnel arrive and assist with the responsibility for managing such shelters, the City of Houston will coordinate shelter activities Volunteer organizations that normally respond to emergency situations will assist in shelter and mass care operations If additional resources are needed to conduct shelter and mass care operations, support may be requested pursuant to inter-local agreements and from state and federal emergency management agencies. When requested by a local jurisdiction, the Governor may authorize the use of military forces to support shelter and mass care operations Facilities planned for shelter and mass care use will be available at times of need When evacuation is recommended during an emergency situation, it is estimated that approximately 80 percent of those for whom evacuation has been recommended will independently evacuate. The vast majority of evacuees will seek refuge with friends or relatives or go to commercial accommodations rather than a public shelter. In addition, some people who are not at risk may spontaneously evacuate and some of those individuals may seek public shelter For hazards that are highly visible or extensively discussed in the media, people may evacuate prior to an official recommendation to do so. Hence, shelter and mass care operations may have to commence early in an emergency situation Essential public and private services will be continued during shelter and mass care operations. However, for a major evacuation that generates a large-scale shelter and mass care operation, normal activities at schools, community centers, churches, and other facilities used as shelters may need to be curtailed. 5. CONCEPT OF OPERATIONS 5.1 General The City is responsible for integrating concepts of the National Incident Management System (NIMS) into response plans for coordinating and providing mass care and other support services to persons affected by a disaster/emergency situation. The requirements for services may vary ANNEX C SHELTER & MASS CARE JUNE 6,

9 depending upon the nature, type, and level of the emergency. The City and ARC will work together with volunteer organizations that provide shelter and mass care support to determine the availability of shelter and feeding facilities, encourage facility owners to sign agreements for use of those facilities, and encourage facility owners to allow their personnel to participation in shelter management training For local emergency or disasters not related to a hurricane event, the City s Incident Commander (IC) and / or Emergency Management Coordinator (EMC) is responsible for recognizing, determining, and requesting opening of shelter(s) and commencing mass care operations based on the prevailing emergency/disaster situation. For hurricane s, prelandfall evacuation shelters will not be opened in the City The EMC may request the opening of shelters and recommend the closing of shelters when the situation dictates they are no longer required. These actions are coordinated with the ARC and other shelter providers. Refer to Appendix 1 for statement regarding shelter list. The EMC or designee may further assign tasks and responsibilities to support shelter and mass care efforts based on unique needs of the emergency/disaster situation The City, in cooperation with volunteer disaster assistance organizations, will coordinate the provision of temporary shelter and essential life support services for people displaced from their homes The ARC and other private disaster assistance organizations will be called upon to: Open and provide temporary shelter services for displaced population Activate or organize shelter teams and provide shelter kits Register, track, and maintain accountability of shelter occupants for local, regional, state, or national emergency/disaster situations Provide for meeting occupant daily FNSS needs either independently or requiring caregiver assistance to meet activities of daily living (e.g. oxygen dependent, mobility disability / self ambulating with or without DME, including wheelchair, deaf, hard of hearing, blind or low vision with or without service animal, diabetic insulin dependent or diet controlled, dialysis, etc.) Provide feeding, emergency first aid, and other basic life support needs for those occupying temporary shelters For extended shelter operations, activate Safe and Well system Provide periodic reports on the status of shelter and mass care operations. In some disasters, the federal government may be ANNEX C SHELTER & MASS CARE JUNE 6,

10 5.2 Shelter requested to provide emergency housing. Disaster victims will be encouraged to obtain housing with family or friends or in commercial facilities. To the extent possible, local government will assist and coordinate post-disaster housing needs of the homeless Refer to Appendix 4 for statement regarding Hurricane Reception & Care Shelter Selection: The ARC publishes standards for temporary shelters. The following criteria may be useful in screening facilities to determine which merit more detailed inspection: Must be structurally sound and in a safe condition Must not be located in an area subject to flooding and/or where flooding can cut off access to the facility Must not be in a hazardous materials risk area Should have adequate sleeping space Should have sufficient restrooms for the population to be housed Must have adequate power/utility service to support shelter facility/occupant needs Have capability to adequately control climate Kitchen/feeding area is desirable Shower facilities are desirable if the facility will be used for more than one day Telephone service is essential Provide adequate parking desirable to accommodate both staff and shelter occupants Shelter Facilities The ARC executes agreements with building owners for use of structures as shelters and normally inspects the facilities it plans to use to determine their capacities and the availability of various types of equipment Schools are the most frequently used shelters because they generally have substantial space, a feeding capability, sufficient restrooms, and adequate climate control systems. Those who wish to utilize schools for sheltering must secure permission in writing from school officials. ANNEX C SHELTER & MASS CARE JUNE 6,

11 Community centers and churches are also frequently used as shelters. Permission to use these facilities or any other facilities for disaster operations should also be secured in writing from the owners or operators of those facilities In most shelters, evacuees must sleep on the floor because there are generally no cots immediately available. Public information messages coordinated with the ARC should highlight this situation and encourage those who plan to take refuge in a public shelter to bring bedding Shelter Operations The specific facilities that will be used for sheltering and feeding during an emergency will depend on the needs of the situation, the status of available facilities, the location of the hazard area, and the anticipated duration of operations. Shelters are typically opened and closed based on need. When occupancy of existing shelters reaches 75 to 80 percent, consideration should be given to opening an additional facility. It is generally more effective in terms of resource utilization to operate a few large shelters rather than numerous smaller shelters Shelters should be managed by individuals with shelter operations training, preferably individuals who work in the facility on a daily basis. The ARC will maintain a listing of shelters and mass care facilities in the local area To ensure consistency in shelter activities, it is desirable that all shelters follow a general set of operating guidelines. When the ARC opens a shelter, ARC policies guide how the facility is staffed and operated Shelter managers are expected to provide periodic reports on the number of occupants and the number of meals served. Volunteer groups operating shelters may also be required to report this information through their organizational channels Local government is responsible for providing the following support for shelter operations: Security and, if necessary, traffic control at shelters Fire inspections and fire protection at shelters Transportation for food, shelter supplies, and equipment if the organization operating the shelter cannot do so Public health to provide support to shelter facility operations for monitoring, assessing, and ANNEX C SHELTER & MASS CARE JUNE 6,

12 5.3 Mass Care implementing measures for minimizing and/or responding to disease outbreaks among occupants Working with ARC, ensure that shelters meet ADA and FNSS requirements for accessing and reception of services for occupants Transportation of shelter occupants to feeding facilities, if necessary Ensure that basic medical attention and care is provided, if the organization operating the shelter cannot adequately do so Evacuees normally return to their homes as soon as the danger has passed. Hence, most shelters are closed quickly and returned to normal use. However, some evacuees may be unable to return to their homes due to damage or destruction. It may be necessary to have one or more shelters remain open for an extended period until those who cannot return to their residences can be relocated to motels, rental units, mobile homes, and other types of temporary lodging. Individuals being sheltered in long-term shelters should have access to showers, on-site feeding and cots. Mass care includes the registration of evacuees, feeding of evacuees and emergency workers, and provision of other life support needs for shelter occupants Registration The purpose of registration is to be able to respond to inquiries about the status of evacuees, monitor health concerns, and provide a basis for post-emergency follow-up support. The ARC registration/intake document will be used for registering and gathering essential information for all shelter operations (see Appendix 3) The sheltering organization/entity will handle registration of those being sheltered and provide appropriate information to the City of Houston Office of Emergency Management (OEM). The Shelter Officer, located in the EOC, should coordinate with other organizations that operate shelters to ensure that evacuees occupying those facilities are registered and information provided to the EOC Feeding Both fixed facilities and mobile units may be used for preparing and serving meals. Fixed facilities include schools, churches, and civic buildings serving as shelters. The ARC, TSA, and other ANNEX C SHELTER & MASS CARE JUNE 6,

13 disaster relief agencies may also deploy self-contained mobile feeding units to supplement fixed feeding facilities The U.S. Department of Agriculture (USDA), through the Health and Human Services Commission (HHSC), food banks, and commercial facilities provides USDA commodities used in preparing meals or for distribution to disaster victims If a school is used as a congregate feeding site, the school may use USDA commodities already on its shelves to prepare meals for mass care operations. USDA will replace them or credit their entitlement dollars as long as school officials provide HHSC with an itemized list of specific commodities used and daily meal counts. USDA commodities may not be used without prior approval from HHSC. The request must come from the ARC. Form FCS-292, which is a report of commodity distribution, must be completed by school officials within 30 days after the termination of assistance to the disaster victims. Also HHSC will arrange to have additional USDA commodities shipped to the feeding site, if necessary, either directly from USDA or one of the HHSC warehouses Other Needs In addition to the provision of shelter and mass care services, evacuees may need assistance with clothing, basic medical attention, prescription medicines, disaster mental health services, temporary housing, and other support services. Some of these services may be provided by the same volunteer organizations that are operating shelters. Many human services programs also serve disaster victims that have not been evacuated from their homes. A description of human services programs and procedures for requesting human services support are provided in Annex O (Human Services) Health Care/Support Facilities Facilities such as hospitals, nursing homes, group homes, and correctional institutions require specially trained and prepared staff to manage occupants effectively. Such facilities are responsible for the welfare and safety of their clients, which may include but not limited to specially trained staff, special equipment, and facilities. Facilities providing this level of specialized care are required by state and federal regulations to have disaster preparedness plans in place that provide for evacuation, transportation, and relocation of occupants if become necessary population phases of an emergency (e.g. hospitals, nursing homes, hospice, assisted living, home health care, psychiatric, etc.). ANNEX C SHELTER & MASS CARE JUNE 6,

14 5.4.2 Situations may occur where occupants in a hospital, nursing home, home health, or psychiatric care facility may have to be evacuated. If time or other factors do not permit transportation to a pre-designated distant shelter, evacuees may be temporarily placed in a designated Medical Shelter. Medical shelters will also be dedicated to medical care dependent evacuees that are not institutionalized in a hospital or nursing home facility, but requires care administered and coordinated by a licensed care provider (i.e. physician, nurse, respiratory therapist, specialist, etc.) In the event facilities such as hospitals, nursing homes, prisons, specialtycare centers, etc. encounter difficulty evacuating and relocating their patients/residents/clients, local officials may need to assist in locating transportation resources and reception sites. It may be necessary to assist in relocating residents living at home that have FNSS needs. Evacuees with FNSS needs will congregate into a general population shelter. 5.5 Animals Evacuees who go to the homes of relatives or friends or commercial accommodations with their animals do not normally pose difficulties during an evacuation. However, evacuees with animals seeking public shelter can create potential problems. For health reasons, animals, with the exception of service animals, are not allowed in emergency shelters operated by the ARC and most other organized volunteer groups Organizations operating a shelter facility will continue to permit an individual with a disability the use of a service animal in its disaster or evacuation shelters; or will make special arrangements to accommodate the individual, together with the service animal, within the facility or in another appropriate facility Depending on the situation, one or more of the following approaches to handle evacuees arriving with animals will be used: Advise animal owners, via media announcements, of kennels, animal shelters, and veterinary clinics that have agreed to temporarily shelter animals If feasible direct animal owner to a public shelter that has covered exterior corridors or adjacent support buildings where animals on leashes or in carriers may be temporarily housed In all such circumstances, the care and supervision of the service animal is the responsibility of the individual and not that of the organization operating shelter facility. 5.6 Welfare Inquiries The City will attempt to answer disaster welfare inquiries to the extent possible using the registration data obtained at shelters and other facilities ANNEX C SHELTER & MASS CARE JUNE 6,

15 until the ARC can assume that function. For more information on Welfare Inquiries, see Section 9.5 of this annex. 5.7 Actions by Phases of Emergency Management This annex plan follows an all-hazard approach and acknowledges that most responsibilities and functions performed during an emergency are not hazard specific. Likewise, this plan accounts for activities before and after, as well as during emergency operations; consequently, all phases of emergency management are addressed as shown below Mitigation Identify volunteer organizations and develop cooperative agreements for assisting and supporting shelter and mass care operational needs In coordination and collaboration with volunteer organizations identify suitable shelter and feeding facilities that minimizes additional threats or risks to evacuees Preparedness In coordination with volunteer organizations, identify potential shelters, and develop general shelter and mass care procedures for the local area Coordinate basic communication and reporting procedures with key participants and stakeholders engaged during the shelter and mass care event Coordinate and develop facility setup plan for potential shelter sites Identify population groups requiring functional access and/or support service assistance during an emergency (i.e., senior citizens, wheelchair, oxygen, FNSS, etc.), and ensure preparations are made in advance and throughout disaster phases to appropriately provide and support shelter occupants Response Activate and staff shelters and mass care facilities based on situation and need for sheltering services Provide information to the public using valid and appropriate communication and media sources, regarding locations and policies/procedures related to shelter guidelines Provide assistance and support as needed in the registration of evacuees. ANNEX C SHELTER & MASS CARE JUNE 6,

16 Provide food, clothing, first aid, and other essential services to evacuees as requested and/or recognized as needed Maintain on-going and dynamic communications flow between mass care facilities and the designated Shelter Officer assigned to manage and coordinate shelter operations Provider periodic reports on shelter occupancy and meals served Provide on-going communication and disseminate critical information and guidance to victims needing additional services Recovery Perform a rapid damage assessment to the identified impact area to determine magnitude, condition, and capacity of infrastructure prior to repatriating residents back to community Assist evacuees in returning to their homes if necessary Assist those who cannot return to their homes with temporary housing Deactivate shelters and mass care facilities and return them to normal use Inform public of on-going recovery programs that may be available once damage assessment and impact magnitude has been assessed and evaluated. 5.8 National Incident Management System (NIMS) The National Incident Management System (NIMS) is used to manage and efficiently coordinate all aspects of shelter operations, to include facilities, equipment, personnel, procedures, and communications into the response organizational and management structure. NIMS will be used to organize, coordinate, and manage both near- term and long- term field level operations required to provide and support shelter needs for the City. 6. ORGANIZATION & ASSIGNMENT OF RESPONSIBILITIES 6.1 General The EMC, based on the situation will designate a Shelter Coordinator, who will be responsible for overseeing and supporting the coordination of shelter and mass care operations occurring in the City. Services will be provided through coordinated efforts between OEM, ARC, TSA and other volunteer agencies and / or through mutual-aid agreements with various support groups. Shelter / lodging facility managers will be responsible for the operation of their individual facilities. ANNEX C SHELTER & MASS CARE JUNE 6,

17 6.2 Operations will be organized in accordance with NIMS guidelines. 6.3 Task Assignments EMC will: Develop and provide oversight for the City s Shelter and Mass Care program Determine based on emergency/disaster situation when and to what extent shelters services will be needed Designate Shelter Coordinator for coordinating shelter/mass care Request ARC liaison to EOC for shelter operations Work with ARC to manage and coordinate Shelter and Mass Care operations Implement a coordinated process with ARC to rapidly identify and evaluate spontaneous/pop-up shelters capacity to comply with shelter and FNSS criteria Coordinate with other VOAD groups needed to support shelter and mass care services Recommend activation and deactivation of facilities ARC Government Liaison will: Act as a resource to the ARC Disaster Relief Operation Establish and maintain contact and coordination, at the appropriate levels, with government units that are providing resources for disaster relief, advocacy for those affected by a disaster, and/or long-term recovery assistance Maintain a current list of names and telephone numbers (both office/day and after-hours) of government contacts Identify potential problems that could affect relationships with participating government agencies and, if necessary, refer these problems through appropriate administrative channels Regularly keep government entities informed of its disaster response activities throughout the local ARC jurisdiction Ensure the ARC is represented at appropriate meetings held by participating government agencies as part of their disaster response efforts Maintain a good working relationship with all entities involved in the response effort Share information regarding the following activities: ANNEX C SHELTER & MASS CARE JUNE 6,

18 Identification of other volunteer agencies development of emergency agreements Identification of potential shelters and mass care facilities Coordination of mass feeding among the ARC, TSA, Baptist Men, etc Coordination among the ARC, TSA and other relief agencies the bulk distribution of human-need items (i.e., cleanup kits, ice, etc) ARC responsible for ensuring that all shelters are coordinated and merged through the National Shelter System (NSS) Law Enforcement will: Provide security and law enforcement at shelters/mass care facilities Provide security and management of occupants entering shelters that self-report or discovered of having a criminal background Provide escort for American Red Cross (ARC), Salvation Army (TSA), and other Volunteer Disaster Services (i.e. Mobil Cantinas, Emergency Communications vehicles) when appropriate and available Provide back-up communications Direct and manage traffic control and flow Fire Service will: Inspect shelter/mass care sites for fire safety Provide and maintain shelter fire extinguishers Train shelter personnel in fire safety and fire suppression Provide Basic Life Support (BLS) or Advanced Life Support (ACLS) if requested for shelter occupants Provide expert guidance to ARC for spontaneous/pop-up shelters if needed EOC will: Coordinate public transportation to emergency shelter and feeding sites, bulk distribution points, etc Establish Shelter / Mass Care Liaison to ensure continuity of shelter operations ANNEX C SHELTER & MASS CARE JUNE 6,

19 Establish communication and support coordination and management of resources as needed Health and Medical (Fire Department/EMS & Health Department) will: Coordinate medical assistance at Mass Care Facilities Monitor and report known or suspect disease or food borne pathogen outbreaks Support ARC as needed for emergency and health related matters Human Services Officer (Houston Department of Health Human Services - HDHHS) will: Provide support during shelter and mass care operations Coordinate Crisis Counseling Ensure follow-up services as needed for shelter occupants Support EOC operations and provide support to response staff as needed ARC through agreement will: Staff and operate shelter/mass care facilities Register evacuees Provide emergency clothing Provide emergency food Process inquiries from concerned families outside the disaster area Monitor, track, and provide update shelter information using the National Shelter System (NSS) Maintain a current list of shelters, emergency feeding sites, and lodging facilities for reporting and planning for future resources Ensure mass care shelters are compliant with state and federal ADA/FNSS requirements TSA through agreement will: Assist in mass feeding operations Collect and distribute food, clothing, and other supplies Provide other support as needed for mass care provisions. ANNEX C SHELTER & MASS CARE JUNE 6,

20 The PIO will: Provide information to the public and the media on the locations of shelters and shelter operating policies and guidelines Provide updates on the emergency situation to shelter occupants through the shelter manager, and the media through appropriate channels Provide information to the public when shelters will be deactivating Provide information to public and the media where to go for additional information if residents are unable to return to their pre-disaster location Public Works & Engineering will: As best as possible, ensure power, water supply, and sanitary services are operable at shelter and mass care facilities during emergency conditions Provide barricades and other forms of support in managing egress and exit from major shelter facilities Provide update information to the City s EOC related to conditions of critical infrastructure Willing and available to support accessing and inspecting local facility(s) to determine structural integrity, roadway accesscontrol, and ensure utilities are establish to support shelter operations PWE will support General Building Services (GSD) to determine condition of City owned facilities. GSD is responsible for assessing and determining impact and structural integrity of City-owned and Refuge of Last Resort (RLR) facilities. 7. DIRECTION AND CONTROL 7.1. General As Identified in the Basic Plan, Section 1.8, Policies Decisions regarding emergency management (Shelter and Mass Care) rest with the Mayor and coordination of this policy is delegated to the Emergency Management Coordinator for implementation and general direction The designated assigned Shelter Coordinator for the City will plan and manage the conduct of shelter and mass care activities, coordinating as necessary with volunteer organizations that participate in shelter operations or mass feeding and other departments and agencies. ANNEX C SHELTER & MASS CARE JUNE 6,

21 7.1.3 Shelter and feeding facility managers will be responsible for the operation of their individual facilities Shelter coordination and management will consistently follow NIMS incident management guidelines, expanding and contracting in size based on shelter needs. For additional details of NIMS refer to Basic Plan sec Line of Succession The following is the line of succession to the Mayor: Mayor Pro-tem Vice Mayor Pro-tem The following is the line of succession for the EMC: Deputy EMC See Basic Plan and Annex N (Direction & Control) for additional details on line of authority for the City of Houston. 8. READINESS LEVELS 8.1 Increased Readiness Conditions for the City are set forth in section of the Basic Plan. The following shall apply Readiness Level IV Routine Readiness Routine monitoring of daily situations and activities Routine operations Perform routine maintenance and testing of backup systems (i.e. generators, networks) Develop and implement ongoing training and exercise program for emergency preparedness, response, and recovery Informing first responders/volunteers of situations occurring that could escalate Ensure hazardous materials response team (if available) is aware of situation and provisions made to immediately respond if necessary On-going review of Shelter & Mass Care annexes and related SOGs/SOP s. ANNEX C SHELTER & MASS CARE JUNE 6,

22 8.1.2 Readiness Level III Increased Readiness (City departments implment the following actions as standard operating conditions June 1 - November 30.) Review plans and procedures Inform key volunteer and key stakeholders of situation Monitoring the situation and determining level of readiness needed Alert personnel for possible emergency duty activation and deploy personnel and equipment to investigate and update on incident status Check equipment readiness and correct deficiencies Check emergency supply status and fill shortfalls identified Review and update as necessary the employee notification process as well as employee duties, assignments, and Tier designations Review equipment inventories and status. Make necessary arrangements with stakeholders and/or vendors to expedite pending repairs to priority equipment, vehicles, apparatus, resources, etc Maintain regular testing of all communications systems Review inventory of emergency supplies and materials necessary to meet the threat of the domestic incident and restock supplies as necessary to support the emergency situation Maintain regular testing of auxiliary power supplies Follow procedures for emergency fuel ordering and reporting of quantities on hand as outlined in the department s Fuel Management Plan Assure all emergency SOPs and key personnel contact information is up-to-date and current Review needs for the hardening and protection of physical facilitates Issuing public warning and providing public information if necessary Ensure interoperability communication systems are operable and verified for functionality Readiness Level II High Readiness The Director will brief Deputy Directors, Command Staff, and other key persons on the threat and potential of the domestic incident and its impact to the Department and Divisions. ANNEX C SHELTER & MASS CARE JUNE 6,

23 The Deputy Directors will begin making preparations with their divisional staffs Managers and supervisors will begin making preparations with their employees, including shift assignments Placing first responders in alert status; placing off-duty personnel on standby. Off-duty personnel will be contacted as to reporting instructions as situation dictates level of preparedness and response. All voluntary leaves (vacation, etc.) will be evaluated Correct any deficiencies in equipment status or material supplies immediately All fuel tanks should now be topped off according to Emergency Fuel Ordering Procedures If applicable respective City departments/agencies should prepare Emergency Operations Center (EOC)/Department Operations Center (DOC)/Division Emergency Center (DEC) for possible activation The Emergency Management Coordinator communicates with department leaders, aprising of situation and decision on activation status of the EOC. Continue monitoring the situation Alert personnel for possible emergency duty as emergency situation dictates Review inter-local agreements and contracts for resource support and alert potential resource providers of possible emergency operations Identify personnel to staff the ICP and EOC Investigating the situation and partially or fully activating the EOC to monitor as situation dictates Advising appropriate state and federal agencies Preparing to issue public warning if it becomes necessary Readiness Level I Maximum Readiness All Department personnel have been briefed on the domestic incident that is now imminent or may have already occurred The City of Houston EOC is fully operational and staffed accordingly to provide appropriate support as situation dictates If applicable department Operations Center (EOC, DOC, DEC s) fully operational and staffed. ANNEX C SHELTER & MASS CARE JUNE 6,

24 Designated departmental personnel are in the HEC, EOC, or DOC upon request for activation support All personnel and equipment are located and/or staged at their assigned locations Implement plans to protect government facilities and equipment Advise resource suppliers of situation Continue to monitor the situation. 9. ADMINISTRATION AND SUPPORT 9.1 Records Documentation of Activities/Resources: Shelter and feeding facility managers shall maintain a record of supplies received and expended. Copies of these records will be provided to the assigned Shelter Coordinator, who shall maintain a consolidated file Documentation of Costs: All departments and agencies will maintain records of personnel and equipment used and supplies expended during shelter and mass care operations as a basis for possible cost recovery from a responsible party or insurer or possible reimbursement of expenses by the state or federal government. 9.2 Reports Shelter Managers at active shelters will report occupancy and number of meals served figures to the City s designated Shelter Coordinator The EOC will include shelter occupancy information in the periodic Situation Report sent to the DDC and other agencies. Information on the Situation Report is provided in Annex N, Direction & Control The ARC and other volunteer groups may also report shelter and feeding information through their organizational channels. 9.3 Training & Exercises The EMC will coordinate with the ARC to insure that shelter management and other appropriate training is made available to local officials and volunteers who participate in shelter and mass care activities. All departments and organizations should ensure that their personnel are trained to accomplish the tasks assigned to them. Training will include FNSS for those managing and supporting shelter and mass care operations Emergency exercises shall periodically include a shelter and mass care scenario based on the types of hazardous threats faced by this jurisdiction. Volunteer organizations that participate in shelter and mass care ANNEX C SHELTER & MASS CARE JUNE 6,

25 9.4 Communications operations should be involved and encouraged to engage to participate in such exercises The initial communications between shelter and mass care facilities and the designated Shelter Coordinator will be by telephone, and subsequently will utilize appropriate internet-based crisis information technology (including, but not limited to: WebEOC, PIER Systems, , and Text Messaging). If telephones and internet-based technology cannot be used, radios should be provided and disseminated based on situation; amateur radio operators may be able to assist and enhance communications in conjunction or if other communications infrastructures fail. 9.5 Welfare Inquiries (DWI) We will attempt to respond to disaster welfare inquiries until the ARC can establish a Welfare Inquiry system to answer requests from relatives and friends concerning the safety and welfare of evacuees or those in disaster areas. The Welfare Inquiry system uses information from the Safe and Well System, shelter lists, casualty lists, hospitals, and other sources to aid in family reunification and in responding to inquiries from immediate family members from outside the affected area about the status of their loved ones. The American Red Cross Safe and Well System is available at all times Mass care facilities assist in Welfare Inquiry by gathering information on disaster victims though registration of victims in the Safe and Well System Shelter managers must be aware of the importance of confidentiality in gathering and releasing information about shelter occupants. 9.6 External Assistance If shelter and mass care needs cannot be satisfied with local resources and those obtained pursuant to inter-local agreements and from volunteer organizations, authorized local officials may request state assistance from the DDC Chairperson located at the Texas Department of Public Safety in Houston. 10. ANNEX DEVELOPMENT & MAINTENANCE 10.1 OEM has the responsibility for the development and maintenance of this Annex. As such, extensive coordination with support agencies and volunteer groups will be cultivated. Each agency will develop Standard Operating Procedures (SOPs) that address their assigned tasks This annex will be reviewed annually and updated at any point in the revision cycle if significant changes occur that would directly impact implementation of this plan. ANNEX C SHELTER & MASS CARE JUNE 6,

26 10.3 Departments and agencies assigned responsibilities in this annex are responsible for developing and maintaining SOPs covering those responsibilities. 11. REFERENCES 11.1 ARC Disaster Services Program, Mass Care Preparedness and Operations, ARC 3031, April ARC Disaster Services Program, Disaster Welfare Inquiry, ARC 3044, April Annex C (Shelter & Mass Care) to the State of Texas Emergency Management Plan 11.4 American Red Cross home page: This site contains information on the ARC as well as information on the coverage areas for the ARC Chapters as well as addresses and phone numbers for those chapters Texas Division of Emergency Management (TDEM), Functional Needs Support Services Tool Kit, April 1, FEMA, Robert T. Stafford Disaster Relief and Emergency Assistance Act (Stafford Act) as amended, and related Authorities as of June The Americans with Disabilities Act of 1990 (ADA), the Rehabilitation Act of 1973, and the Fair Housing Act (FHA) 12. APPENDICIES APPENDIX 1... RECEPTION & CARE FACILITIES APPENDIX 2... SHELTER & MASS CARE DOCUMENTS ARC APPENDIX 3... AMERICAN RED CROSS INTAKE & ASSESSMENT FORM APPENDIX 4... SHELTER & MASS CARE DOCUMENTS - TSA APPENDIX 5... HURRICANE RECEPTION & CARE APPENDIX 6... SHELTER GUIDANCE / PLACEMENT ANNEX C SHELTER & MASS CARE JUNE 6,

27 APPENDIX 1 to ANNEX C RECEPTION AND CARE FACILITIES As a Shelter and Mass Care provider for the City of Houston, the local ARC (Greater Houston Area Chapter) updates annually facilities they plan to use as shelters in the event of an emergency or disaster. The ARC maintains a listing of potential shelter sites on file at their Houston headquarters. ANNEX C SHELTER & MASS CARE JUNE 6,

28 APPENDIX 2 to ANNEX C SHELTER & MASS CARE DOCUMENT AMERICAN RED CROSS Memorandum of Agreement Memorandum of Understanding Between The American Red Cross and City of Houston, Texas I. Purpose The purpose of this Memorandum of Understanding (MOU) is to define a working relationship between The American Red Cross (hereinafter Red Cross) and City of Houston, Texas (hereinafter City of Houston), in preparing for and responding to disaster. This MOU provides the broad framework for cooperation between the Red Cross and City of Houston in assisting individuals and families who have been impacted by disaster and providing other humanitarian services. ANNEX C SHELTER & MASS CARE JUNE 6,

29 II. Parties A. City of Houston a. City of Houston City Charter, as amended, November 7, 2006 b. City Ordinance #04-682, as amended April 18, 2007 c. City of Houston Administrative Procedure 4.2 d. Executive Order #1-25, Exercising of Mayors Emergency Authority during a Local State of Disaster e. Executive Order #1-49, Adopting the National Incident Management System f. The Americans with Disabilities Act of 1990 (ADA), the Rehabilitation Act of 1973, and the Fair Housing Act (FHA) g. Robert T. Stafford Disaster Relief and Emergency Assistance Act (Stafford Act) as amended, and related to Authorities as of June 2007 The City has the responsibility for coordinating shelter and mass care needs to protect local residents displaced from their residents or businesses who evacuate into or out of City s jurisdictional boundaries due to an actual or threatening emergency/disaster situation. The City of Houston does not stand-up mass care shelters for evacuees fleeing due to a hurricane threat. B. American Red Cross 1. Services for people affected by disasters Founded in 1881, the American Red Cross is the nation's premier emergency response organization. As part of a worldwide movement that offers neutral and impartial humanitarian care, the American Red Cross is the community-based organization that mobilizes people to aid victims of disasters with the aim of preventing and relieving suffering. The Red Cross is closely integrated into community response efforts, including the efforts of federal, state and local government and non-government organizations. Our goal is to work with all partners to lead a well-integrated, effective and efficient response to every disaster. The Red Cross provides disaster services without regard to race, color, national origin, religion, gender, age, disability, sexual orientation, citizenship or veteran status. It follows the Fundamental Principles of the International Red Cross and Red Crescent Movement. Following a disaster, whether natural or human-made, the Red Cross may provide some or all of the following services: ANNEX C SHELTER & MASS CARE JUNE 6,

30 Food, Shelter and Emergency Supplies During a disaster, our first priority is to ensure that people have a safe place to stay, food, and emergency supplies. Red Cross works with government and community partners to open shelters where residents will find comfort with a hot meal, recovery information, and a place to rest. For emergency workers and people returning to their homes, the Red Cross mobilizes emergency response vehicles from which disaster workers distribute food, water, and essential clean-up items that might not be immediately available in the community Welfare Information Disasters often disrupt regular communication channels and can separate families. Through the Red Cross nationwide network of chapters, family members may request welfare information regarding their loved ones. The Red Cross Safe and Well Web site enables people within a disaster area to let their families and friends outside of the affected region know that they are all right. Clients register on Safe and Well at During large-scale disasters, individuals without internet access can call RED-CROSS to register. Client Casework and Recovery Planning and Assistance Red Cross provides individual client services through casework people with disaster-related needs, with particular attention to those who have experienced significant damage or loss of their homes. This casework process helps the worker to assess the client s immediate needs, and connect the client with items, financial assistance and referrals to local resources to meet those needs. The caseworker also engages the client in a brief planning process which can help identify action steps for the client to follow in the first few days or weeks after a disaster. Red Cross caseworkers protect client confidentiality and work closely with other organizations and groups to ensure clients have access to all available resources. Disaster Health and Mental Health Services After an emergency, injuries can ensue, essential prescription medicines lost, and the shock and stress of sudden loss can overwhelm a person s normal coping skills. The Red Cross deploys licensed health and mental health professionals who are trained and equipped to provide assistance at the time of a disaster. Disaster health services professionals can provide emergency first aid and medical assessment, triage and replacement of emergency medications with item distribution, financial assistance or referrals to community partners. Disaster mental health professionals provide mental health assessments, crisis intervention and a sympathetic ear to those in need. 2. Services related to the National Response Framework The American Red Cross is a co-lead for the mass care component of Emergency Support Function #6 of the National Response Framework. In this role, the Red Cross engages in a variety of activities to support states in their planning, coordinating and executing of mass care programs and strategies. The Red Cross also takes a leadership role in working with other nongovernmental organizations and private companies that provide services during a disaster. ANNEX C SHELTER & MASS CARE JUNE 6,

31 3. Organization The American Red Cross is a single corporation, chartered by the United States Congress to provide humanitarian services. Its national headquarters, located in Washington, D.C., is responsible for implementing policies and procedures that govern Red Cross activities and provides administrative and technical oversight and guidance to the chartered units, which include chapters and blood services regions. Each chapter has certain authority and responsibility for carrying out Red Cross disaster preparedness and response activities, delivering local Red Cross services, and meeting corporate obligations within the territorial jurisdiction assigned to it. Each chapter is familiar with the hazards of the locality and surveys local resources for personnel, equipment, supplies, transportation, emergency communications, and facilities available for disaster relief. The chapter also formulates cooperative plans and procedures with local government agencies and private organizations for relief activities should a disaster occur. Through its nationwide organization, the Red Cross coordinates its total resources for use in large disasters. In order to provide these services, the Red Cross may call on the Federal, state or local government for assistance when voluntary contributions are not sufficient to meet community needs. III. Cooperative Actions The Red Cross and City of Houston will coordinate their respective disaster relief activities to maximize services to the community and avoid duplication of efforts in the following ways: 1. Maintain close coordination, liaison, and support at all levels with conferences, meetings, and other means of communication. Include a representative of the other party in appropriate committees, planning groups and task forces formed to mitigate, prepare for, respond to, and recover from disasters and other emergencies. Develop joint Standard Operating Procedures for notification of disaster and emergency situations. 2. During disasters and emergencies, keep each other informed of the human needs created by the events and the services they are providing. Share current data regarding disasters, to include statistical information, historical information, emerging needs and trends, damage assessments, among others, and disaster declarations, and service delivery. 3. During a disaster or emergency situation the Red Cross will, as appropriate at the request of City of Houston, provide liaison personnel to City of Houston Emergency Operations Center during a disaster. City of Houston will provide work space and, whenever possible, other required support, such as a computer, access and a designated phone line for the Red Cross liaison personnel assigned to the Emergency Operations Centers. 4. City of Houston will facilitate the Red Cross s use of county-owned facilities for shelters and service delivery sites wherever possible. The terms and conditions of such use will be set forth in a separate agreement. ANNEX C SHELTER & MASS CARE JUNE 6,

32 5. Work together to develop plans and secure resources to facilitate delivery of services to people with disabilities and/or functional and access needs during a disaster. 6. Actively participate in reviewing and carrying out responsibilities outlined in the state and local emergency operations plans. 7. During the time of disaster and readiness, keep the public informed of the parties cooperative efforts through the public information offices of the Red Cross and City of Houston. 8. City of Houston recognizes that the Red Cross is dependent upon voluntary public financial donations and will encourage residents to support Red Cross disaster relief with financial contributions. In accordance with applicable laws and regulations, City of Houston will support the Red Cross and work together, as appropriate, to acquire necessary resources and identify funding sources that increases the county and Red Cross capacity to respond to disasters and emergencies. 9. Advocate for programs and public policy/decisions, when appropriate, designed to mitigate disaster damage and loss of life in City of Houston. 10. Encourage state residents to support the needs of hospital patients with blood donations when appropriate. 11. Actively seek to determine other areas, projects, and services within the Red Cross and City of Houston where cooperation and support will be mutually beneficial with jointly defined goals and objectives. 12. Use or display the name, emblem, or trademarks of the American Red Cross or City of Houston only in the case of defined projects and only with the prior express written consent of the other organization. 13. Make training, educational and other developmental opportunities available to the other party s personnel and explore joint training and exercises. Encourage all staff and volunteers to engage in training, exercises, and disaster response activities, as appropriate 14. Explore opportunities for collaboration to provide community, family, and citizen disaster preparedness within City of Houston. 15. Allow the use of each other s facilities, as available and if agreed upon in writing, for the purpose of preparedness training, meetings and response and recovery activities. 16. Widely distribute this MOU within the Red Cross and City of Houston departments and administrative offices and urge full cooperation. ANNEX C SHELTER & MASS CARE JUNE 6,

33

34 APPENDIX 3 to ANNEX C AMERICAN RED CROSS INTAKE & ASSESSMENT FORM ANNEX C SHELTER & MASS CARE JUNE 6,

35 (Continued) APPENDIX 3 to ANNEX C AMERICAN RED CROSS INTAKE & ASSESSMENT FORM ANNEX C SHELTER & MASS CARE JUNE 6,

36 (Continued) APPENDIX 3 to ANNEX C AMERICAN RED CROSS INTAKE & ASSESSMENT FORM Revision as of Initial Intake and Assessment Tool ANNEX C SHELTER & MASS CARE JUNE 6,

37 APPENDIX 4 to ANNEX C SHELTER & MASS CARE DOCUMENT SALVATION ARMY AGREEMENT 1. GENERAL The Houston Metro Area Command Corps of TSA, hereafter referred to as TSA, identifies all personnel employed by this disaster relief agency, to include its advisory board members, service units, other volunteer forces, and any other personnel assigned for special duties. 2. MOBILIZATION The offices-in-charge, when notified of impending disaster, will remain at his/her assigned position at the local area TSA headquarters. From this vantage point, he/she will direct all disaster relief activities as they apply to TSA. Personnel with pre-disaster assignments will proceed to designated points and carry out their assigned duties. Take all precautions necessary to safeguard TSA records. Services Provided: 2.1. Emergency Mass Care: Emergency feeding service Mobile canteen service Collection and distribution of food, clothing, and other supplies Supplementary shelters Counseling and morale building services Specialized skills, such as skills of interpreters and social workers 2.2. Emergency Family Services: Social service inquiries Survey of family needs 3. STANDARD OPERATING PROCEDURE 3.1. The officer-in-charge will be notified before any impending disaster. During this phase, designated groups within the corps will activate in-house emergency plans that outline specific duties that must be accomplished before any disaster occurs. For the benefit of the citizens of the City of Houston, these plans should include, but are not limited to: Notifying designated person to take up assigned duties in the EOC to serve as liaison between the City of Houston and TSA Checking all emergency equipment, clothing, supplies, and special vehicles ANNEX C SHELTER & MASS CARE JUNE 6,

38 required to carry out pre-disaster and recovery duties Checking fuel, to include type, amount needed, and procedure for refueling, location, and time needed Entering into any agreement with the ARC, the Mennonite Disaster Service, and other relief or disaster assistance organizations, whenever such organizations are engaged in providing relief before, during, and after a major disaster If a disaster occurs, all personnel will report to designated places and proceed with assigned duties The emergency management agency will be kept informed on a recurring basis of the status of all supplementary shelters used by TSA, to include: Shelter location Number of shelters Special requirements 4. DISASTER RECOVERY In the tradition of meeting and preparing for needs as they arise, TSA has structured its organization program to respond to disaster emergencies, both natural and manmade. It is also during this phase that TSA is prepared to render services to help alleviate human suffering Services Provided: Collection and distribution of medicine, food, clothing, supplies, or other items Repairs to homes as possible Supplementary shelter for those displaced Household furnishings Emergency feeding service Mobile canteen services Counseling and morale building service Specialized skills, such as skills of interpreters and social workers Social services inquiries Survey of family needs Assistance in identification and registration of disaster victims ANNEX C SHELTER & MASS CARE JUNE 6,

39 5. ADMINISTRATIVE 5.1. Any member of TSA staff and/or volunteer temporarily designated as an agent for the city in making any special purchase or contract for services before, during, or after any disaster will provide the EMC with all associated paperwork as soon as possible The EMC will also be provided daily reports on a recurring basis on the status of all supplementary shelters, their location, and the status of shelterees falling in this special category. 6. AUTHORITY Authority for the preceding is contained in the terms prescribed in the Disaster Relief Act of 1974, Section 312. ANNEX C SHELTER & MASS CARE JUNE 6,

40 APPENDIX 5 to ANNEX C HURRICANE RECEPTION & CARE Due to its close proximity to the Gulf of Mexico, the City of Houston is not considered a primary evacuation destination for hurricane evacuees! ANNEX C SHELTER & MASS CARE JUNE 6,

41 APPENDIX 6 to ANNEX C SHELTER PLACEMENT GUIDANCE ANNEX C SHELTER & MASS CARE JUNE 6,

42 (CONTINUED) APPENDIX 6 to ANNEX C SHELTER PLACEMENT GUIDANCE ANNEX C SHELTER & MASS CARE JUNE 6,