Evacuation and Population Protection Annex (E) State of Texas Emergency Management Plan May 2014
This document is intended to provide guidance and is not prescriptive or comprehensive. Use judgment and discretion to determine the most appropriate actions at the time of an incident. These guidelines do not override local or regional plans, but are designed to complement those planning activities. This document does not prohibit any jurisdiction from implementing additional requirements or operating procedures within that jurisdiction. 2 Evacuation and Population Protection Annex April 24, 2015
Table of Contents Preface... 5 Using This Document... 6 Overview and Purpose... 7 Concept of Operations... 9 Strategies... 9 Decision-Making... 10 Strategy 1: Coordinate Evacuation and Population Protection Operations... 11 Strategy 2: Gather and Distribute Public Information... 13 Public Information... 13 Strategy 3: Provide Critical Transportation Support... 18 Critical Transportation Resources... 18 Survivor Collection Points... 18 Embarkation Hubs... 19 Refuge of Last Resort... 19 Evacuee Tracking... 19 Shelter Hub Reception Centers... 19 Evacuee Locating... 20 People with Disabilities and Other with Access and Functional Needs... 20 Residential Child Care Licensed Facilities... 20 Unaccompanied Minors... 21 Correctional Facilities... 21 Parolees... 21 Animal Evacuation... 21 Strategy 4: Support Medical Evacuation... 23 State Institutions and Facilities... 24 Drug Addiction Treatment... 24 Strategy 5: Assist with Traffic Management... 25 Evacuation Comfort Stations... 25 Strategy 6: Maximize Fuel Availability... 27 Commercial Refueling... 27 Temporary Fuel Locations... 27 Emergency Fuel on Evacuation Routes... 27 Strategy 7: Support Evacuee Repopulation... 29 April 24, 2015 Evacuation and Population Protection Annex 3
Medical Repopulation... 29 Strategy 8: Provide Response Resources... 31 Summary of Responsibilities... 34 Common Stakeholder Responsibilities... 34 Stakeholder Specific Responsibilities... 35 Authority... 46 Maintenance and Change... 48 Record of Changes... 49 Contributors... 50 References... 54 4 Evacuation and Population Protection Annex April 24, 2015
Preface During many disasters elected officials issue population protection orders to shelter in place or evacuate from hazardous conditions. Evacuations range from short-distance, temporary relocations of a few individuals to widespread displacement of multiple communities following a catastrophe. Most people self-evacuate, often creating traffic management and fuel availability issues. Some individuals need critical transportation assistance to evacuate to an area of safety, often bringing pets and personal effects. Evacuees may include medical patients or people with disabilities or other access and functional needs. When hazardous conditions subside, local elected officials determine when to allow residents of evacuated jurisdictions to repopulate their homes and businesses, which require coordination with sheltering jurisdictions and the state. This annex outlines the state s planned response to and support capabilities for population protection, which include coordination, public notification, resource management and the implementation of protective actions such as evacuation, shelter-in-place and refuge of last resort. This document also identifies measures used by the state to mitigate safety issues during evacuations and assist with the repopulation of areas affected by disaster. This document complies with Homeland Security Presidential Directive 5 (HSPD-5) Management of Domestic Incidents and Presidential Policy Directive 8 (PPD-8) National Preparedness and takes into account the needs of the whole of community. The state and organizations involved operate within the principles of the National Incident Management System (NIMS) in support of the National Response Framework (NRF). Section V.B and VI of the State of Texas Emergency Management Plan, in accordance with NIMS and relevant NRF guidelines, are the foundation for emergency response and recovery operations in Texas. April 24, 2015 Evacuation and Population Protection Annex 5
Using This Document This document is part of the State of Texas Emergency Management Plan. This section explains how this annex integrates with the plan and how and where to find additional supporting information. This document is not designed to be read from cover to cover. Use this page to quickly find the information you need. Find general background information, goals and assumptions here. 7 Find population protection decision making information here. 10 Find critical transportation support capabilities here. 18 Find an overview of medical evacuation support here. 23 Read about Texas traffic management capabilities here. 25 Find repopulation information here. 29 Review state population protection resources here. 31 Find a checklist of each agency s responsibilities here. 34 When you see a reference arrow ( ), look at the bottom of the page for a hyperlink to additional information from the State of Texas. For an explanation of the acronyms and terms in this document please refer to the State of Texas Acronyms and Terms (STAT) Book. 1 This document is an annex to the State of Texas Emergency Management Plan, which is composed of a basic plan, functional annexes, hazard annexes and support annexes and is designed to integrate vertically with local, regional, tribal and federal plans. This annex outlines evacuation and population protection, which falls under the support function for population protection and the core capabilities. Hazard-specific evacuation information may be found in each Hazard Annex to the State Emergency Management Plan. Shelter and feeding of evacuees is outlined comprehensively in the Mass Care Annex. 2 All sections of the plan contain links to related information. Each section should be considered as part of one comprehensive document available online at http://www.txdps.state.tx.us/dem. 1 State of Texas Acronyms and Terms (STAT) Book 2 For more information on evacuee sheltering and feeding, refer to the Mass Care Annex. 6 Evacuation and Population Protection Annex April 24, 2015
Overview and Purpose Successful response operations assist with the rapid restoration of essential functions while protecting residents from disaster hazards. This planning document defines a standardized statewide approach to evacuation and population protection operations for disasters. Goal Define operational concepts, responsibilities and procedures to accomplish evacuation, population protection and repopulation actions that mitigate life safety concerns and assist with the return of survivors to areas affected by disaster. Objectives Promote coordination among local, state, tribal and federal government entities and the private sector in support of safe public evacuation and shelter from identified hazards. Outline state responsibilities for the managed movement of people, service and assistive animals, household pets and resources from an area of danger to a safe location. Provide information on the state s ability to provide resources to support evacuation and population protection operations. Address applicable laws, policies and guidance relating to evacuation, refuge of last resort, shelter in place and repopulation initiatives. Audience Texas Emergency Management Council representatives State Operations Center personnel Disaster District Committee (DDC) Chairs State Medical Operations Center (SMOC) personnel Emergency management field personnel. Emergency Operations Center (EOC) staff. Officials responsible for evacuation and population protection decision making. Planning Assumptions Local jurisdictions exhaust all resources before requesting additional assistance from disaster district committees. When state resources are depleted, assistance may be sought from other states and the federal government. Primary responsibility for evacuation and population protection activities rests with local governments. Evacuation embarkation hubs are established and managed by local jurisdictions. Critical transportation resources for evacuation are supplied primarily by local jurisdictions. County and municipal jurisdictions may or may not coordinate evacuation orders with surrounding jurisdictions. Licensed care facilities are mandated to maintain emergency evacuation and transportation plans. April 24, 2015 Evacuation and Population Protection Annex 7
Evacuated jurisdictions are primarily responsible for evaluating the availability of utility services, food and water, medical care, transportation, and safe, habitable housing in affected areas; and jurisdictions use this information to determine appropriate times to allow the return of evacuees, and ensure that those returning are informed about available services in their home communities. During the repopulation process sheltering jurisdictions are responsible for coordinating with voluntary organizations, social workers, or medical discharge teams to verify that all members of family units are accounted for. Sheltering jurisdictions may require assistance to ensure all evacuees and patients are medically stable for transport to their home jurisdictions prior to their return. Sheltering jurisdictions may coordinate the return of service and assistive animals and household pets. Sheltering jurisdictions may coordinate transportation arrangements for general population evacuees, service and assistive animals, and household pets accompanying medical evacuees. Evacuating jurisdictions may coordinate with sheltering jurisdictions and their own DDC to request the return of evacuated residents, service and assistive animals, and household pets. Evacuated jurisdictions are primarily responsible for designating reception sites and receiving evacuees, service and assistive animals, and household pets returning home on state-provided transportation resources. Evacuated jurisdictions may or may not have the capability to transport returning evacuees, service and assistive animals, and household pets to care facilities, shelters or residences. Evacuated jurisdictions are responsible for coordinating departure and arrival times and reception sites for returning state-transported evacuees, service and assistive animals, and household pets with sheltering jurisdictions and their DDC. Evacuated jurisdictions may coordinate with the Department of State Health Services (DSHS) to determine if evacuated medical patient residences are safe for habitation prior to their return, and assist DSHS to verify habitability and availability of necessary medical services and support before a patient is transported to a residence. Evacuated jurisdictions may coordinate with local Fire Marshals or Inspectors, code enforcement agencies, Emergency Service Districts (ESDs), and/or veterinary practitioners to determine if evacuated animal shelters are safe for animal habitation prior to resuming operations, and determine the availability of necessary veterinary medical services and support before animals are transported to any evacuated shelter. 8 Evacuation and Population Protection Annex April 24, 2015
Concept of Operations Evacuation and population protection activities in the state of Texas vary widely in type, size and complexity. This section outlines the general concept of operations for the state's planned response in support of evacuation and population protection operations. Population protection measures maximize life safety during disasters by providing guidance to the public and government support for sheltering in place or evacuation operations. The state must be prepared to support population protection operations because disasters, evacuation routes, and shelter destinations do not generally respect jurisdictional boundaries, and therefore involve many jurisdictions and supporting partners. The lead entity for state evacuation and population protection is the Texas Department of Public Safety (DPS) Highway Patrol Division (THP). Depending upon the scope and type of disaster, population protection may include hazard identification, decision-making, coordination across multiple levels of government, effective public notification and coordinated resource management. This annex describes the lead, support and coordinating entities and methods used to provide robust evacuation and population protection measures. Strategies This section presents the state's strategies used to provide robust evacuation and population protection measures, which include: Strategy 1: Coordinate Population Protection Operations Strategy 2: Gather and Distribute Public Information Strategy 3: Provide Critical Transportation Support Strategy 4: Support Medical Evacuation Strategy 5: Assist with Traffic Management Strategy 6: Maximize Fuel Availability Strategy 7: Support Evacuee Repopulation Strategy 8: Provide Response Resources Each strategy describes an important piece of the state-level evacuation and population protection response in Texas. The chart on the following page provides an overview of decisions made at the local level and at the state level by the Chief of the Texas Division of Emergency Management (TDEM) in coordination with DPS THP during State Operations Center (SOC) activations. April 24, 2015 Evacuation and Population Protection Annex 9
Decision-Making The chart below provides an overview of the decisions made at the local level and at the state level by the Chief of TDEM in coordination with DPS Texas Highway Patrol (THP) during SOC activations. Evacuation and Population Protection Decision-Making Chart Evacuating Disaster District Committee (DDC) Regional Health Medical Operations Center (RHMOC) State Operations Center (SOC) State Medical Operations Center (SMOC) Sheltering Disaster District Committee (DDC) Public safety threat imminent or occurring Local jurisdiction requests evacuation support. Provide notification to partners Place state resources on alert. Response Is medical evacuation support required? YES Identify requirements for medical resource augmentation. NO Additional critical transportation resources required? Provide medical evacuation support resources. YES Activate critical transportation vehicles, personnel and Temporary Fuel Locations. Coordinate shelter resources for evacuees. NO Do medical evacuation needs exceed regional capabilities? Commercial fuel coordination required. Is traffic management required for evacuating vehicles? YES Activate Fuel Coordination Team. YES Activate Traffic Management Plans. Request assistance from the SMOC. Consider activating Evacuation Comfort Stations. Provide medical support resources. Support local jurisdictions with security for evacuated areas.. Resource needs exceed state capabilities. YES Do medical evacuation needs exceed state capabilities? Evacuated jurisdiction requests return of residents. Assist local jurisdictions with repopulation of medical evacuees. Request state mutual aid and/ or Federal resources. Activate repopulation transportation resources. NO Provide state support as needed, coordinate with SOC. Activate repopulation resources. Coordinate with Evacuating DDC to return critical transportation evacuees. 10 Evacuation and Population Protection Annex April 24, 2015
Strategy 1: Coordinate Evacuation and Population Protection Operations The evacuation and population protection response organization originates at the local level and can expand all the way to the federal government. This section outlines coordination mechanisms used to support emergency evacuation and population protection operations. County judges and municipal mayors are the Emergency Management Directors (EMD) of their jurisdictions. An EMD holds the authority to order mandatory evacuations and compel individuals in their jurisdictions to evacuate. While the state governor may recommend evacuations in Texas, EMDs are the only individuals in the state authorized to issue mandatory evacuation orders. When hazardous conditions subside, EMDs of evacuated communities decide when to allow residents to repopulate. When a jurisdiction has exhausted local resources and mutual aid capabilities to evacuate residents, service and assistive animals, and household pets, EMDs may request state assistance through their Disaster District Committee (DDC). DDCs consist of state agencies and volunteer groups that are able to provide resources within each disaster district. Disaster districts are aligned with Department of Public Safety (DPS) regional boundaries, and the local DPS Texas Highway Patrol (THP) captain or command lieutenant serves as the DDC Chair. Texas Division of Emergency Management (TDEM) District Coordinators (DCs) work closely with DDC Chairs in each disaster district, and assist in coordination between local jurisdictions, DDCs and the State Operations Center (SOC). Population Protection Coordination* TDEM, a division of DPS, operates the SOC year-round, 24 hours a day, communicating critical information via multiple systems to partner organizations at all levels of government. If a DDC needs additional resources, such as evacuation vehicles or personnel to support embarkation hubs, the DDC Chair requests assistance from the SOC using a State of Texas Assistance Request (STAR) form. Local Regional State Federal Other States Private sector partners MACC optional process (where MACCs exist) FEMA State Operations Center Disaster District Committee Local jurisdiction Federal agency partners State VOAD Emergency Management Council Other local jurisdictions in the region Private sector partners *This graphic represents coordination, not logistical processes for resource support.. April 24, 2015 Evacuation and Population Protection Annex 11
The SOC processes DDC requests and provides resources to fill unmet needs using state agency capabilities, voluntary organizations and contract services. The SOC also coordinates with partners from private sector businesses to carry out certain population protection requirements, such as increasing fuel availability. If the SOC is not able to provide resources to fill unmet needs, TDEM may submit mutual aid requests to other states or request federal assistance from the Federal Emergency Management Agency (FEMA), which coordinates federal resources during disasters. When evacuated jurisdictions are ready for evacuees, service and assistive animals, and household pets to return, DDCs and the SOC may assist with repopulation efforts by providing resource support and coordination. The Department of State Health Services (DSHS) takes the lead role for medical evacuee repopulation, to ensure the safe return of evacuated medical patients and their service and assistive animals. 12 Evacuation and Population Protection Annex April 24, 2015
Strategy 2: Gather and Distribute Public Information Timely, consistent public information helps the public react appropriately, maximizing public safety when jurisdictions issue population protection orders. This section describes state public information activities and messages used for population protection measures. Ensuring the public receives critical information during a disaster is vital to effective population protection operations. Primary responsibility for public notification belongs to affected local jurisdictions; however DDCs and the SOC are able to assist with the communication and dissemination of critical information. Public Information Emergency management council agencies and organizations with community relations, government relations and public affairs duties share responsibility for disseminating information to the public and the media during a disaster. A variety of public messages may be disseminated by the state, with the governor s press office serving as a unified point for public information. Press releases keep the public informed about hazardous conditions and provide information on health and safety considerations. Emergency Assistance Registration The State of Texas Emergency Assistance Registry (STEAR) is provided by the state as a tool for local emergency management personnel to gather information on the evacuation needs of their community. STEAR is a voluntary confidential registry, offered free of charge for individuals and care facilities that may need special notification or evacuation assistance. Registration in STEAR does not guarantee that individuals receive special notifications during an emergency, but provides participating local jurisdictions information on the special notification needs of their community. Individuals needing assistance can register for STEAR by calling 2-1-1, or submit an electronic STEAR Registration Form. 1 Assisted living facilities and nursing homes may register in STEAR using a STEAR Facility Registration Form. 2 Effective Communication Because many traditional emergency notification methods are not accessible by people with disabilities and others with access and functional needs, the state takes measures to effectively communicate public information to the whole community, using a combination of methods. Effective communication ensures the whole community receives the information necessary to make sound decisions and take 1 For more information, refer to the STEAR individual registration forms. 2 For more information, refer to the STEAR facility registration forms. April 24, 2015 Evacuation and Population Protection Annex 13
appropriate action. Interpreters for spoken languages other than English and for American Sign Language (ASL) are used whenever available. 3 The table below shows possible evacuation and population protection public messages, along with the applicable state emergency management council entities. Agency Texas Department of Public Safety (DPS) - Public Information Office (PIO) Message Press releases and social media messages providing guidance and information for a law enforcement or terrorism incident evacuation Texas Department of Public Safety (DPS) - Texas Division of Emergency Management (TDEM) Texas Health and Human Services Commission (HHSC) 2-1-1 Press releases and social media messages regarding public resources and to promote State of Texas Emergency Registration (STEAR) Texas Department of Public Safety (DPS) - Public Information Office (PIO) Texas Department of Public Safety (DPS) - Texas Division of Emergency Management (TDEM) Texas Animal Health Commission (TAHC) Texas A&M AgriLife Extension Service (AgriLife) Texas Department of Family and Protective Services (DFPS) Texas Department of State Health Services (DSHS) Texas Department of Public Safety (DPS) - Texas Division of Emergency Animal evacuation, care, and shelteringspecific press releases and social media messaging Radio, television and online messages to educate county EMDs, local VOADs, rural and urban communities and businesses about animal evacuation and sheltering Client contact through the DFPS Mass Communication System to activate their emergency plan, to ensure the safety of children and adults in State conservatorship Messages to support injury prevention during evacuations and remind the public to take medications if evacuating Radiological hazard press releases and social 3 For more information on the warning capabilities and resources, refer to the State Public Information Annex. 14 Evacuation and Population Protection Annex April 24, 2015
Agency Management (TDEM) Message media messages for affected areas Texas Department of State Health Services (DSHS) Texas Department of Public Safety (DPS) - Texas Division of Emergency Management (TDEM) Bioterrorism-related evacuation, quarantine, or shelter in place press release or social media messages Department of State Health Services (DSHS) Public Utility Commission (PUC) Press releases and social media messages concerning clear and safe roadways during debris removal operations Texas A&M Engineering Extension Service (TEEX) Texas Department of Public Safety (DPS) - Texas Division of Emergency Management (TDEM) Texas Department of Transportation (TxDOT) Texas Commission on Environmental Quality (TCEQ) Emergency protective measures specifying the steps needed to protect public health and safety during a hazardous materials incident Texas Department of Public Safety (DPS) - Texas Division of Emergency Management (TDEM) Texas Department of State Health Services (DSHS) Emergency Management Council Evacuation information and evacuation order notification press releases, social media, and dynamic message sign postings for the general public Texas Department of Public Safety (DPS) - Public Information Office (PIO) Texas Department of Public Safety (DPS) - Texas Division of Emergency Management (TDEM) April 24, 2015 Evacuation and Population Protection Annex 15
Agency Message Texas Department of Transportation (TxDOT) Texas A&M Forest Service (TFS) Wildfire evacuation status press releases and social media messages Texas Department of Public Safety (DPS) - Public Information Office (PIO) Texas Department of Public Safety (DPS) - Texas Division of Emergency Management (TDEM) Non-Governmental Organizations (NGO) Press releases and social media messages regarding available shelter locations, status of current open shelters, and pet and livestock friendly shelters Texas Department of Public Safety (DPS) - Texas Division of Emergency Management (TDEM) Texas Commission on Environmental Quality (TCEQ) Evacuation press releases and social media messages based on plume mapping and modeling Texas Department of Public Safety (DPS) - Texas Division of Emergency Management (TDEM) Texas Department of State Health Services (DSHS) Non-Governmental Organizations (NGO) Shelter-hub area information Texas Department of Public Safety (DPS) - Texas Division of Emergency Management (TDEM) Texas A&M Engineering Extension Service (TEEX) Press release or social media message with evacuation information reflecting specific hazard conditions, such as anticipated hurricane impacts or plume mapping and modeling Texas Department of Public Safety 16 Evacuation and Population Protection Annex April 24, 2015
Agency Message (DPS) - Texas Division of Emergency Management (TDEM) Texas Department of Public Safety (DPS) - Public Information Office (PIO) Specific hazard warning press releases Texas Department of Public Safety (DPS) - Texas Division of Emergency Management (TDEM) Texas Department of Transportation (TxDOT) Texas Department of Transportation (TxDOT) Texas Department of Public Safety (DPS) - Public Information Office (PIO) Dynamic message sign refueling messages for prior notice incidents, intended to stimulate demand for fuel while there is time to replenish the fuel system and avoid sudden depletion of fuel during evacuations. Dynamic message sign evacuation comfortstation information for the evacuating public Transportation route safety press releases and dynamic message sign notifications Texas Department of Transportation (TxDOT) Texas Department of Public Safety (DPS) - Public Information Office (PIO) Press releases, dynamic message sign and social media messages providing updated information on highway conditions and safe routes Texas Department of Public Safety (DPS) - Texas Division of Emergency Management (TDEM) Texas Department of Transportation (TxDOT) April 24, 2015 Evacuation and Population Protection Annex 17
Strategy 3: Provide Critical Transportation Support This section describes critical transportation support that the state may provide to assist local jurisdictions with the safe evacuation of affected communities. Some evacuees require transportation assistance to evacuate, including medical patients and people with disabilities and others with access and functional needs. Critical Transportation Resources Some evacuees require government-provided transportation to evacuate from an area threatened or affected by a disaster. Responsibility for evacuee, service and assistive animal, and household pet transportation rests with local jurisdictions; however, the state deliberately plans to support transportation assistance requests during evacuations. TDEM may request the use of school district buses for evacuation through DDCs, and school districts may provide these resources as statewide mutual aid. The state also has contingency contracts for commercial coach buses to assist local jurisdictions requesting state critical transportation support. State-provided transportation resources are allocated as needed to support movement of critical transportation evacuees, including people with disabilities and others with access and functional needs and individuals evacuating with service and assistive animals and household pets. The state can also provide a limited number of aircraft for evacuations. Aircraft are deployed for specific missions, based on priority of need, and capacity is limited. Texas is a party to the multi-state Emergency Management Assistance Compact (EMAC). The compact includes provisions for requesting transportation assistance from other states during disasters. TDEM coordinates with the Federal Emergency Management Agency (FEMA) to request additional resources to meet unmet needs if state and mutual aid capabilities are exhausted. Survivor Collection Points State Search and Rescue (SAR) resources assist in locating and rescuing disaster survivors. 4 When SAR operations are underway, SAR teams may transport rescued survivors to temporary safe areas, known as Survivor Collection Points. At these locations survivors may be accounted for and possibly be provided initial care. Other response resources can be used to evacuate survivors from Survivor Collection Points to appropriate medical care and shelters. 4 For more information on search and rescue, refer to the State Search and Rescue Annex (R). 18 Evacuation and Population Protection Annex April 24, 2015
Embarkation Hubs Local governments are responsible for identifying evacuation hub locations, direct operations and provide transportation for critical transportation evacuees, service and assistive animals, and household pets from their homes to embarkation hubs. The Texas Military Forces (TXMF) may be tasked to provide uniformed personnel to support local jurisdictions at locally managed evacuation embarkation hubs. Refuge of Last Resort For certain types of disasters, hazards may affect evacuation areas prior to the completion of the evacuation. In such cases, unless alternative plans are in place, embarkation hubs may become refuges of last resort for response personnel, evacuees, service and assistive animals, and household pets. If requested, onsite TXMF personnel can be tasked to support local operations at those locations. Evacuee Tracking Evacuees who travel on state transportation resources are registered in the Texas Emergency Tracking Network (ETN). 5 ETN assists in locating and reuniting evacuees with their families and ensures accountability of pets, service animals, and medical equipment. Tracking is initiated at evacuation embarkation hubs, reception centers and state-supported shelters. Evacuees are provided with wristbands and tags with tracking numbers linked to their pets and medical equipment. Evacuation transportation assets may also be tracked by GPS through ETN. The evacuation tracking component of the network is composed of the evacuation tracking systems used by jurisdictions in Texas. These include EMTrack, the Sabine-Neches Chiefs Association (SNCA) System, All Hazards Response Network (AHRN) and WebEOC. Evacuating jurisdictions determine which system(s) to use; and ETN s interface allows the collection of all identifying data into a single repository. The information obtained by ETN is provided to evacuating and sheltering jurisdictions. Shelter Hub Reception Centers Reception centers are used by some sheltering jurisdictions to receive evacuees with shelter and mass care needs 6 from evacuating jurisdictions. Reception center locations are provided to evacuating jurisdictions prior to embarkation. Upon arrival, evacuees may be triaged and assigned to a shelter. Reception centers work with local Emergency Operations Centers (EOCs) to track shelter status. Occupancy for each shelter and the number of evacuees processed by the reception center is forwarded to the DDC, and is compiled into shelter reports that are forwarded to the SOC. Sheltering DDCs may coordinate information with jurisdictions to facilitate reception center operations. In some areas of the state, such as Dallas-Fort Worth, DDCs have procedures in place to coordinate shelter hub operations for large-scale evacuations. 5 For more information on evacuees traveling by state resources, refer to the State Emergency Tracking Network Document. 6 For more information on mass care, refer to the State Mass Care Annex (C). April 24, 2015 Evacuation and Population Protection Annex 19
Evacuee Locating The American Red Cross (ARC) Safe and Well Website is a service that allows individuals affected by a disaster to register, so that family members may know they have evacuated to safe locations. 3 No specific location or contact information is displayed unless an individual chooses to provide the information in a custom message. People searching for individuals must know the person s name and address or phone number in order to see a post. During large-scale disasters, when internet and phone lines may be compromised, trained ARC volunteers can help individuals register using a paper form. People with Disabilities and Other with Access and Functional Needs The majority of individuals with disabilities live independently in the community. People with disabilities, access and functional needs can face a variety of challenges during evacuations and other population protection measures. The state plans for people with disabilities and others with access and functional needs to have access to emergency services, just as any other people do. State agencies work to integrate the resources necessary to ensure that all individuals are provided equal physical and programmatic support before, during and after emergency incidents. The whole of community approach enables accessible and integrated functional needs support services (FNSS) to meet the diverse needs of the public during evacuations and other population protection measures. The state can provide personnel to assist local jurisdictions in pairing people in need of critical transportation with appropriate evacuation vehicles. This service allows people to evacuate with the resources they need to support their safety and maintain independence, such as durable medical equipment and service animals. These measures assist children and adults with disabilities and others with access and functional needs to maintain their health, safety, independence and dignity. The State of Texas FNSS Integration Committee has created a FNSS Toolkit that provides guidance for local jurisdictions to incorporate into existing plans to meet access and functional needs requirements. 4 Residential Child Care Licensed Facilities Residential child care licensed facilities are mandated to inform the Department of Family Protective Services (DFPS) if the facility must close as a result of a disaster. Facilities must contact the DFPS Licensing Division and Child Protective Services (CPS) when children reach their evacuation destination. During times when mass evacuation is anticipated, DFPS enables an online reporting feature on the DFPS Website. 5 When the online reporting feature is not enabled or if the facility contractor does not have access to the internet, notification can be made by calling the DFPS abuse and neglect hotline. 3 For more information, refer to ARC Safe and Well website. 4 For more information, refer to the State FNSS tool kit. 5 For more information, refer to the DFPS website. 20 Evacuation and Population Protection Annex April 24, 2015
Unaccompanied Minors If unaccompanied children are found during the evacuation process, the manager in charge of the embarkation hub, reception center or shelter should call the state Child Abuse Hotline and ask the intake specialist for a Priority One Response for an unaccompanied minor. A callback number must be provided. When this occurs, DFPS contacts a contracted Child Placing Agency (CPA), which normally responds on-site to act on the child's behalf until a care situation is arranged. In the event of an imminent threat, the child should be placed in the care of law enforcement personnel until the danger has passed. Correctional Facilities The Texas Department of Criminal Justice (TDCJ) and Texas Juvenile Justice Department (TJJD) maintain evacuation and shelter in place procedures for incidents in which state correctional facilities are threatened by hazardous conditions. Both TDCJ and TJJD maintain resources and plans to transport detainees and youth to alternate facilities. TJJD may coordinate with TDCJ for assistance, if required. Correctional facilities should inform their DDC Chair and post status updates on WebEOC if the decision is made to evacuate. If necessary, the state can provide additional law enforcement resources to provide security. The state may also assist in the evacuation of private facilities housing state detainees. Federal correctional facilities in Texas may also request law enforcement support to evacuate or shelter detainees. Parolees Parolees released to the jurisdiction of the Parole Division who live within 50 miles of the Gulf coast are provided an Emergency Contact Card with instructions about the requirements to contact a toll-free Parole Division phone number in the event they are required to evacuate. All high risk parolees, including parolees on the Super Intensive Supervision Program (SISP), Electronic Monitoring (EM) program, and all Sex Offenders are required to provide a pre-approved evacuation address. All parolees residing in a Community Residential Facility (CRF) and those high risk parolees unable to provide a pre-approved evacuation address are transported to an alternate location and monitored by Parole Division staff in the event of an evacuation. Animal Evacuation Service, assistive animals, and household pets are accommodated on stateprovided transportation with evacuees whenever possible. Service animals accompanying evacuees must remain with the evacuee at all times during evacuation. State personnel may also assist in pairing evacuees and their service, assistive animals, and/or household pets with suitable transportation resources. Following evacuations, individuals may wish to quickly repopulate affected areas to access livestock that could not be evacuated. Catastrophic disasters can cause large scale livestock displacement and deaths, which can be a hazard to public safety. April 24, 2015 Evacuation and Population Protection Annex 21
The Texas Animal Health Commission (TAHC) assists local jurisdictions with animal planning efforts and issues Animal Issues Committee Plan Guidance Documents on developing animal evacuation capabilities using a Community Animal Response Plan (CARP). 6 The TAHC coordinates emergency response operations and activities related to animals and agriculture, and helps local jurisdictions find resources to fill unmet needs. TAHC also develops agreements with local volunteer organizations to assist with animal sheltering. 7 6 For more information, refer to TAHC CARP. 7 For more information on mass care for service, assistive animals and household pets, refer to the State Mass Care Annex (C). 22 Evacuation and Population Protection Annex April 24, 2015
Strategy 4: Support Medical Evacuation This section describes state capabilities to assist in the evacuation of hospital patients and persons needing care for acute medical conditions. Individuals in hospitals, nursing homes or home environments requiring sustained medical care are the focus of medical evacuations. During large-scale evacuations, the number of individuals requiring medical evacuation may overwhelm local jurisdiction capabilities. The State Medical Operation Center (SMOC), run by the Department of State Health Services (DSHS), supports the State Operations Center (SOC) by coordinating state-wide public health and medical resources. Regional Health Medical Operations Centers (RHMOC) support the DDC by coordinating state and regional public health and medical resources. Local jurisdiction medical evacuation coordination and resources may be requested through the DDC. 7 The SMOC may activate Medical Incident Support Teams (MIST) to support RHMOCs in the management of state and federal medical transportation assets, to assist in patient tracking, to support evacuations of medical facilities and nursing homes, and perform other medical evacuation activities, as determined by the DDC. The SMOC can provide medical transportation assets and medical staffing for medical coach buses and evacuation triage teams (ETT) to assist local jurisdictions with medical evacuation triage. RHMOCs can assist local jurisdictions with locating destinations for medical evacuees in hospitals, nursing homes and medical shelters. The SMOC also works with the SOC to initiate EMAC agreements with neighboring states to fill gaps in ambulances and medical teams and to request FEMA support for additional ground ambulances, if required. If needed, SMOC works with the SOC to request medical air evacuation support. The state may augment medical evacuation capabilities using small fixed wing and rotary wing aircraft. In extreme situations, large military aeromedical transportation assets may be provided by Texas Military Forces (TXMF) and the Federal National Disaster Medical System (NDMS). The SMOC can deploy Emergency Medical Task Force (EMTF) resources to support air hubs, embarkation points, reception centers, and other locations as necessary. During medical evacuations the SMOC monitors and tracks patient movement in WebEOC and the Emergency Tracking Network (ETN) throughout the incident, including medical evacuee repopulation. Public health and medical considerations are outlined comprehensively in the Public Health and Medical Support Annex. 8 7 For more information, refer to DSHS Response Operating Guidelines for Medical Evacuation and Ambulance Utilization. 8 For more information on medical support, refer to the State Public Health and Medical Support Annex (H). April 24, 2015 Evacuation and Population Protection Annex 23
State Institutions and Facilities State hospitals, state-supported living centers, and the University of Texas Medical Branch (UTMB) maintain emergency plans to evacuate or shelter in place hospital patients, staff, and service and assistive animals during emergencies and disasters. If a state facility evacuation is required, the facility may request critical transportation support and additional resources from the state. Specific requirements may exist for vehicles capable of transporting certain types of hospital patients or residents of state supported living centers. Drug Addiction Treatment Drug addiction treatment medication providers have protocols to provide emergency care for clients during a disaster. Clients are given a sufficient amount of medication that allows for evacuation and subsequent connection with a designated local medication dispensing location. Access to the local dispensing site should be made as quickly as possible. If evacuees arrive without a supply of medication, they are referred to local drug clinics or hospital emergency rooms. 8 8 For more information, refer to the Division of Pharmacologic Therapies directory of drug addiction treatment clinics website. 24 Evacuation and Population Protection Annex April 24, 2015
Strategy 5: Assist with Traffic Management Traffic management expedites the flow of vehicles on evacuation routes. This section explains traffic management coordination and procedures. DPS is the lead state agency for evacuation. During large-scale evacuations the Texas Highway Patrol (THP) coordinates traffic management, expediting the flow of evacuating vehicles to a safe area. The Disaster District Committee (DDC) Chair coordinates law enforcement assignments on evacuation routes, and determines requirements for additional law enforcement personnel to perform traffic management. When requested by the DDC, THP supports any requests to supplement personnel and assets in affected areas. THP provides operational status reports to the State Operations Center (SOC), which notifies responsible agencies that traffic management plans have been implemented. THP personnel can also perform security in areas being evacuated, providing travel assistance to stranded evacuees, and escort emergency vehicles transiting evacuation routes. The transportation infrastructure is a critical resource for evacuation. Route closures can slow traffic, endangering the safety of evacuees and animals. The Texas Department of Transportation (TxDOT) builds and maintains the highway system in Texas and establishes highway development plans for the state. TxDOT collects and analyzes traffic data, maps state highways, and determines routes and traffic capacities for future needs. During evacuations TxDOT can deploy barriers, signals and signage to maximize effective use of available routes by the public. In identified hazard areas, such as hurricane evacuation zones, local THP personnel work with TxDOT and local law enforcement agencies at the DDC level to develop comprehensive traffic management plans. The plans establish specific evacuation routes, identify areas for additional lane usage and designate routes for contra-flow lane reversal to increase traffic capacity. Local governments execute planned responsibilities to expedite the movement of traffic evacuating through their jurisdictions. THP, TxDOT and local law enforcement agencies manage traffic and monitor evacuation routes to identify areas affecting the flow of traffic. TxDOT deploys traffic signal controls to ensure the most efficient movement of traffic and conducts emergency highway repairs and debris clearance to allow evacuation and repopulation routes to remain open. Evacuation Comfort Stations TxDOT establishes and manages comfort stations along evacuation routes. During evacuations TxDOT can provide drinking water and packaged ice at these locations, and the SOC may coordinate with voluntary organizations to provide food for evacuees, service and assistive animals, and household pets. April 24, 2015 Evacuation and Population Protection Annex 25
TxDOT can also provide portable restrooms and portable hand washing stations to supplement existing restroom facilities. Oxygen bottle exchange for evacuees on oxygen therapy is coordinated by the SMOC, and local medical assistance may be available on site. Shelter information may also be made available to evacuees at comfort stations. 26 Evacuation and Population Protection Annex April 24, 2015
Strategy 6: Maximize Fuel Availability This section describes how the state coordinates with the commercial fuel industry to increase fuel availability for evacuating vehicles. Large-scale evacuations require the availability of fuel for evacuating vehicles and responders. The state coordinates with the private sector to maximize fuel for both. Commercial Refueling The state works with a group of private sector partners from the fuel industry to maximize commercial fuel availability during disasters. The commercial fuel coordination team includes representatives from the Texas Oil and Gas Association (TXOGA), Texas Food & Fuel Association (Tx Food & Fuel), refineries, supply terminals, distributors, retailers, pipelines, and third party common carriers. The team works to ensure that commercial filling stations in evacuating and sheltering communities and on evacuation routes are resupplied to meet potential increases in fuel demand for evacuating traffic and to assist the state in recovering the fuel network as quickly as possible following a disaster. The commercial fuel coordination team can facilitate non-traditional supply arrangements among carriers and retailers in order to meet fuel demand. The team also assesses the need for extra equipment to meet shortfalls, and may request waivers as needed. After an evacuation, the team continues operations to expedite fuel resupply. This includes activities to assist with restarting the commercial fueling network where needed, and may involve fuel production activities, transportation, and post-incident recovery of refineries. Temporary Fuel Locations The state fuel team performs a separate function from the commercial fuel coordination team, and can be activated to support the state with incremental fuel storage at identified Temporary Fuel Locations (TFL). TFLs may be established as needed at large forward staging areas and at designated locations along evacuation routes. TFLs provide refueling to government evacuation vehicles and responders through the deployment of fuel bladders or other temporary tankage. The Texas Division of Emergency Management (TDEM) works with Texas Military Forces (TXMF) to identify locations for TFLs. The Health and Human Services Commission (HHSC) can support TFLs with potable water, and the Department of State Health Services (DSHS) can support evacuees on oxygen therapy at TFLs with oxygen cylinder exchange. Portable restroom facilities for state-transported evacuees may also be provided. If needed, the state can provide law enforcement officers to provide escort and expedite the delivery of fuel. Fuel security issues can be conveyed to DPS by providers via the state fuel team. Emergency Fuel on Evacuation Routes Public messaging encourages evacuating motorists to fill their vehicles prior to evacuations whenever possible, as the majority of available fuel during an April 24, 2015 Evacuation and Population Protection Annex 27