BOARD OF COUNTY COMMISSIONERS MEMORANDUM

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1 BOARD OF COUNTY COMMISSIONERS MEMORANDUM VIA ELECTRONIC DELIVERY To: Bryan Koon, Director, Florida Division of Emergency Management From: Vincent S. Long, County Administrator, Leon County Through: Kevin Peters, Director, Leon County Emergency Management Date: September 19, 2017 Subject: Leon County and City of Tallahassee Debris Removal Plans In response to the Governor s directive for all counties to submit detailed debris removal plans for Hurricane Irma, please accept the information provided below on behalf of Leon County. All information below is consistent with Leon County s Debris Management Plan, which has been reviewed by the Florida Division of Emergency Management and accepted by FEMA. Leon County s and the City of Tallahassee s Debris Management plans are attached to this memorandum and referenced below. On July 27, 2017, Leon County Public Works staff coordinated with the County s Debris Monitoring and Removal contractors to ensure that contractors resources and personnel would be available throughout the 2017 Atlantic Hurricane Season to meet local needs. This coordination was a direct result of recommendations contained in Leon County s Hurricane Hermine After-Action Report, which is included as Attachment #1 to this memorandum. In accordance with County Ordinance 10-18, on September 10, 2017 the County Administrator determined, prior to Hurricane Irma s impacts reaching Leon County, that the removal of disaster-generated debris accumulated within Leon County would be necessary in order to: remove or reduce threats to life, public health, and safety; eliminate immediate threats of significant damage to County property or facilities; or ensure economic recovery of the affected community to the benefit of the community at large. Upon making this determination, the County Administrator immediately implemented the County s Debris Management Plan, Leon County s Debris Management Plan is included as Attachment #2 to this memorandum, and a compliance letter from FEMA is included as Attachment #3. The City of Tallahassee s Abridged Debris Management Plan is included as Attachment #4. On September 10, 2017, as Hurricane Irma s impacts began entering our area, Leon County and City of Tallahassee Public Works crews began cut and toss operations (as weather permitted). To assist with and expedite road clearing operations, these crews

2 Vincent S. Long, County Administrator Leon County and City of Tallahassee Debris Removal Plans September 19, 2017 Page 2 of 2 were assisted by City of Tallahassee Electric and Talquin Electric personnel to deenergize power lines tangled in downed trees. This collaborative effort to clear roads as quickly as possible enabled electric utility crews and supporting mutual aid crews to expedite the restoration of electrical service throughout the County. After the peak weather impacts of the storm passed Leon County on the afternoon of September 11, 2017, crews continued cut and toss operations to clear local roadways. By the early hours of September 12, all County roads were open to traffic, and all but one road in the City of Tallahassee were open to traffic on the same date. The City cleared and reopened this final road by the morning of September 13. On September 11, 2017, Leon County contacted the Florida Department of Environmental Protection (FDEP) for authorization of two of the County s pre-approved Disaster Debris Management Sites to be used for temporary storage and processing of disaster debris. Authorization was received from FDEP on September 12, Pursuant to the County s Debris Management Plan, Leon County issued Notices to Proceed to the County s Debris Monitoring and Debris Removal Contractors on September 12, 2017 and September 13, 2017, respectively (included as Attachment #5 to this memorandum). These notices require the contractors to mobilize and commence debris removal operations within 72 hours. On September 12, 2017, through a variety of public information avenues including news releases, social media posts, emergency information websites, direct s, and other avenues, Leon County communicated its debris removal plans to the public. Debris removal operations are estimated to be complete by October 6, If additional information is required, please do not hesitate to contact us. cc: Herbert W.A. Thiele, County Attorney Alan Rosenzweig, Deputy County Administrator Tony Park, P.E., Public Works Director Rick Fernandez, Tallahassee City Manager Attachments: 1. Leon County Hurricane Hermine After-Action Report 2. Leon County Debris Management Plan 3. FEMA Compliance Letter for Leon County s Debris Management Plan 4. City of Tallahassee Abridged Debris Removal Plan 5. Notices to Proceed to Debris Monitoring and Removal Contractors

3 Attachment #1 Page 1 of 97 Hurricane Hermine After-Action Report Report and Recommendations to the Leon County Board of County Commissioners December 13, 2016

4 Table of Contents Attachment #1 Page 2 of 97 Executive Summary Introduction Background Report Methodology Organization of the Report Citizen Engagement and Community Feedback Structure of the Emergency Management Function in Leon County State of Florida Interlocal Agreement with the Leon County Sheriff s Office City of Tallahassee Incident Management Plan Role of the Leon County Emergency Operations Center Planning, Training, and Community Preparedness Efforts Emergency Plans and Protocols Comprehensive Emergency Management Plan Local Mitigation Strategy Post-Disaster Redevelopment Plan and Disaster Housing Strategy Debris Management Plan Training for Emergency Management Response Personnel Leon County Reserve Policy Community Preparedness Disaster Survival Guide Build Your Bucket Event Citizen Engagement Series: Public Safety: Preserving Life, Improving Health, and Promoting Safety City and Talquin Electric Tree Removal and Replacement Programs Additional Opportunities to Strengthen Community Resilience Overview of Hurricane Hermine and its Impacts Hermine s Path Declared States of Emergency Preparations at the Leon County Emergency Operations Center Sandbag Distribution Prior to the Storm Weather Impacts Associated with Hurricane Hermine School, University, and Government Office Closures...45

5 Table of Contents Attachment #1 Page 3 of Hurricane Hermine Preparedness, Response and Recovery Inside the Emergency Operations Center during Hurricane Hermine Statewide Mutual Aid Agreement and Resource Requests Information Technology Resources in the Leon County EOC Communications and Public Information Emergency Information Portal and GovDelivery Media Relations and Information...52 Social Media...54 Communication via Mobile Devices...55 FM Radio Communications...56 Elected Officials Role in Emergency Communications Volunteer Assistance Emergency Shelters Health Care Agencies and Facilities Emergency Medical Service Law Enforcement Consolidated Dispatch Agency Infrastructure Restoration Road Clearing Electrical Infrastructure Underground Utilities Food and Water Distribution Comfort Stations Permit Fee and Waivers and Relaxed Inspection Requirements Mosquito Control Debris Removal and Monitoring Initial Impact Damage Assessment County and City Navigation Teams FEMA Assistance Public Assistance Grant Program Individual and Households Program Assistance Business, Industry, and Economic Stabilization Retail Stores and Restaurants Gas Stations...84 Coordination with Local Hotels...85 Stabilization and Recovery Efforts...86

6 Table of Contents Attachment #1 Page 4 of Additional Opportunities and Recommendations Conclusion Appendices... 93

7 Hurricane Hermine After-Action Report Attachment #1 Page 5 of 97 Executive Summary This After-Action Report details the activities of Leon County and partner agencies in preparing for, responding to, and recovering from Hurricane Hermine, which was the most severe weather event to affect the community since Hurricane Kate in As is the case with any emergency event or disaster, Hurricane Hermine presented a unique set of challenges for residents and responders which requires careful examination for improvements and refinements. Hermine made landfall as a Category 1 hurricane and passed directly through Leon County, presenting wind gusts of over 60 mph and sustained tropical storm force winds lasting for six hours. The storm left hundreds of downed trees in its wake which damaged homes, blocked numerous roadways, and inflicted extensive damage to electrical infrastructure systems. Nearly 100,000 electric customers lost power due to Hermine, leaving families without basic services in the aftermath of the storm and frustrated by the pace of restoration, amid rumors of delays due to the refusal of additional resources available to assist with the recovery, and expectations related to the reliability of information in the age of social media. Response and recovery efforts associated with Hurricane Hermine occurred over an extended period of time and required the prolonged cooperation of numerous County and City departments, law enforcement agencies, and other community partners which tested the coordination and execution of resources and the effectiveness of established protocols. However, the implementation of clear plans, policies, and procedures, systematically updated to reflect continuous improvements over time and executed by well-trained professional staff, enabled Leon County and its partner agencies to respond quickly and effectively to meet citizens needs following the disaster. Additionally, these efforts benefitted immensely from the close coordination facilitated in Leon County s state-of-the-art Emergency Operations Center, which performed at a level commensurate with its design during its first extended activation involving fully-integrated multi-agency staffing over multiple operational periods. Every emergency exposes different vulnerabilities, tests a community s partnerships differently, and reveals opportunities for improvement in different ways. However, a common element of every emergency is that they all require responding agencies to learn from them so that we remain in a constant state of becoming more prepared for the next one. This principle is fundamental to the field of emergency management. According to the National Incident Management System, which was developed by the U.S. Department of Homeland Security and is universally regarded as the comprehensive national approach to incident management: Preparedness is essential for effective incident and emergency management and involves engaging in a continuous cycle of planning, organizing, training, equipping, exercising, evaluating, and taking corrective action to achieve and maintain readiness to respond to emergencies. The purpose of this After-Action Report is to build upon the strengths of Leon County Emergency Management and its partnerships with other responding agencies and to identify areas for continuous improvement to enhance our capacity during future incidents. This report reflects a holistic and comprehensive effort, which began even while the County was still in the recovery mode (as recommended by the Federal Emergency Management Agency), to extract every possible lesson learned so that improvements and refinements can be made in order to be better prepared in the future. Following Hurricane Hermine, Leon County Administration and Leon County Emergency Management compiled and analyzed information over a three-month period from five community listening sessions which gathered feedback from over 400 citizens, held eight debriefing meetings with personnel involved in response and recovery efforts, conducted follow-up interviews with key staff, and met with an organized group of local residents to examine their findings. Staff also reviewed numerous planning documents, policies, agreements, training logs, and other records for consistency with the actions taken Leon County, Florida - Hurricane Hermine After-Action Report Page 1

8 Hurricane Hermine After-Action Report Attachment #1 Page 6 of 97 during this emergency event. To assist with the evaluation of specific actions during Hermine and benchmark with industry best practices, the County engaged one of the premier emergency management consulting firms in the nation for its expert and objective guidance. In their review of this After-Action Report, the consulting firm noted that the report is among the most comprehensive, relevant and valuable assessments undertaken in recent history by any local or state entity in the nation. This extensive review led to the development of 110 findings and 80 recommendations to build upon the successful response efforts and refine the areas identified for improvement. The analysis, findings, and recommendations presented in this After-Action Report are vital for continuously improving Leon County s ability to respond and recover from future disasters. They include recommendations to further enhance the County s emergency plans and overall strategies for emergency management as well as recommendations addressing tactical, operational, technological, and procedural components of the County s response and recovery efforts. Among all of the findings presented in this After-Action Report, two major recommendations stand out as significant policy initiatives for consideration by the Board of County Commissioners. To continue strengthening the community s readiness and resilience to disasters of this nature, staff has included a recommendation to engage a disaster planning professional in partnership with the City of Tallahassee to evaluate the community s overall vulnerabilities, resiliency, and community expectations associated with a severe weather event. This proposed joint exercise would include a review of public infrastructure from buildings to electric facilities, determine if there is a need for a long-term investment plan to enhance the resiliency of public infrastructure, and evaluate existing tree protection and maintenance practices. The second major policy initiative recommended for Board consideration is to return the emergency management program under the County Commission on a year-round basis. Many of circumstances that supported the 1999 Interlocal Agreement shifting the day-to-day oversight of Leon County Emergency Management to the Sheriff, only to return under the Board in the event of a disaster, are no longer applicable today. In addition, most Florida counties (57 of 67) place the day-today responsibilities of emergency management under the Commission s purview, reporting to the County Administrator, as the emergency management field is a confluence of planning and administrative responsibilities with an emphasis on year-round training and intergovernmental coordination. These recommendations and major policy initiatives are the result of voluminous community input and careful examination of the County emergency management operations and responsibilities. Leon County Government wishes to acknowledge and thank the City of Tallahassee, partner agencies and their staff, local nonprofit service providers, the hundreds of citizens who attended community listening sessions, the Citizens for Responsible Spending Hurricane Hermine Best Practices Task Force, and all other individuals and groups that have shared their thoughts and provided suggestions for this report. Page 2 Leon County, Florida - Hurricane Hermine After-Action Report

9 Hurricane Hermine After-Action Report Attachment #1 Page 7 of 97 Summary of Findings and Recommendations: Finding #1: The community listening sessions held following Hurricane Hermine provided important opportunities to discuss response and ongoing recovery efforts and to learn from citizens about how Leon County Government and partnering response agencies can best meet the needs of the community during future disasters. Recommendation 1.1: Update the Leon County CEMP to provide for community listening sessions to be held following major emergency events, and encourage the City s joint participation in these sessions. Finding #2: As evidenced through the community listening sessions and the CRS Task Force report, perceptions and confusion linger regarding the command structure and who is in charge during an emergency. Finding #3: The confusion regarding the chain of command and reporting structures did not permeate within the EOC as the CEMP explicitly recognizes the LCEM Director as the lead executive in command of emergency operations and responsible for coordination with partner agencies. Finding #4: Despite any public confusion, the emergency activation and response to Hurricane Hermine represented the greatest level of intergovernmental and partner agency coordination to date, fostering decisive decision-making in a collaborative environment. Finding #5: The 911 Dispatch (CDA) and the Emergency Operations Center are no longer collocated with the Leon County Sheriff s Office out of necessity. They are now collocated in the Public Safety Complex, which is managed by the County, alongside other intergovernmental public safety resources. Recommendation 5.1: Direct staff to prepare an agenda item to return the emergency management function on a year-round basis under the Board of County Commissioners, reporting to the County Administrator. Finding #6: Florida Statutes authorizes and encourages municipalities to create municipal emergency management programs which shall be coordinated with the county emergency management agency and be consistent with a county s emergency plan. Finding #7: LCEM periodically reviews and provides feedback to the City on its Incident Management Plan. Finding #8: To effectuate the City s incident management objectives, the City employs an Emergency Preparedness Coordinator to serve as the City s central point of contact for emergency management coordination and planning. The City s Emergency Preparedness Coordinator is required to submit requests for state and federal assistance through LCEM during a declared state of emergency. Finding #9: Since the City maintains its own emergency management program, there is a need for ongoing coordination between the City s Emergency Preparedness staff and Leon County Emergency Management to ensure the greatest level of emergency management coordination and planning. Recommendation 9.1: The City s emergency management plan should be included as an annex to the County s CEMP. Finding #10: As the central command and control facility for the effective coordinating of disaster management, the County EOC fostered a collaborative environment for partner agencies focused on resolving challenges in the field. Finding #11: At the local level, the process of activating and coordinating resources between the County, City, and partner agencies has worked well with few exceptions. Leon County, Florida - Hurricane Hermine After-Action Report Page 3

10 Hurricane Hermine After-Action Report Attachment #1 Page 8 of 97 Finding #12: In its review of the County s response and recovery operations associated with Hurricane Hermine, DSI interviewed staff, reviewed the County s CEMP, and found that the County appropriately implemented Hermine operations consistent with the existing CEMP. Finding #13: The Leon County CEMP is due for an update in accordance with state requirements and as outlined in the CEMP. Hurricane Hermine was a valuable learning experience and provided several opportunities to continually enhance Leon County s emergency preparedness and ability to respond to and recover from disaster events. These opportunities are detailed throughout this report. Recommendation 13.1: Update the Leon County CEMP to incorporate the findings and recommendations identified in this report. Finding #14: The PDRP, developed in 2012, is updated on a five-year schedule and should be updated following any disaster event. The PDRP and the Disaster Housing Strategy should be updated to incorporate lessons learned from Hermine. Recommendation 14.1: Engage the Apalachee Regional Planning Council to initiate a comprehensive update of the PDRP and Disaster Housing Strategy, as appropriate, incorporating lessons learned from Hurricane Hermine. Finding #15: As a result of the Debris Management Plan, the removal of debris along private roads was seamlessly integrated into the recovery plans. However, uncertainty remains regarding FEMA s willingness to fully reimburse the County for these roads. Finding #16: In light of the three pre-approved temporary debris management sites as identified in the Debris Management Plan having already been inspected and approved by the Florida Department of Environmental Protection, the County was able to immediately accommodate the 200,000 cubic yards of debris gathered throughout the community. Finding #17: The need for a temporary debris removal site in the northeast was identified following Hurricane Hermine in order to enhance the debris collection process. Recommendation 17.1: Staff should explore establishing a permanent temporary debris removal site on the northeast side of town, and once identified, include this site in an updated Debris Management Plan. Finding #18: Many Leon County staff have received both general and position-specific NIMS training. As a result of turnover that naturally occurs in the workforce, however, there is a continual need to identify and provide emergency management training opportunities for County staff. Recommendation 18.1: Recommendation 18.2: Working with Leon County Human Resources, continue to identify NIMS training needs for new and existing County staff and provide training opportunities to meet these needs. Staff concurs with DSI s recommendation to undergo a self-assessment of the County s emergency management program through the Emergency Management Accreditation Program. Finding #19: Leon County s establishment of the Catastrophe Reserve Fund proved beneficial as protocols were established and funding was readily available to assist with local response and recovery efforts. Recommendation 19.1: Amend the Leon County CEMP to reflect Leon County s Catastrophe Reserve Fund and its allowable uses during emergency events. Page 4 Leon County, Florida - Hurricane Hermine After-Action Report

11 Hurricane Hermine After-Action Report Attachment #1 Page 9 of 97 Finding #20: The widespread distribution of the Disaster Survival Guide indicates substantial engagement and interest in personal preparedness. The number of printed guides distributed in 2016 declined slightly from the prior year; however, staff expects interest to increase in 2017 in light of Hurricane Hermine. Finding #21: Leon County s Build Your Bucket event has helped over 350 citizens to become better prepared for disasters in the two years since it was launched. Finding #22: Partnering with the Capital Medical Society for the May 2016 Citizen Engagement Series event on public safety was successful and provided an opportunity for local physicians to see how public safety services are provided in Leon County. Recommendation 22.1: Continue to pursue targeted partnerships with local civic organizations to build awareness and familiarity with Leon County s public safety services including emergency management. Finding #23: Leon County makes several efforts throughout the year to help citizens become better prepared for disasters. Because citizens systematically misjudge low-probability, high-impact events such as natural disasters, it is often difficult to get people engaged in disaster preparedness. However, the County s personal preparedness initiatives can potentially save lives and protect property and are worth every effort. Finding #24: Talquin Electric Cooperative and the City of Tallahassee both offer tree removal on private property at no cost to the property owner if, based on a professional assessment, a determination is made that the tree causes a threat to the utility s power lines. Both utilities provide replacement trees to the property owner free of charge. Recommendation 24.1: Work with Talquin Electric and City Utilities to further promote tree removal and replacement programs through the annual Disaster Survival Guide and other methods. Finding #25: Additional opportunities exist to assess our community s overall disaster vulnerability and resilience. Recommendation 25.1: Direct staff to prepare a future agenda item for the consideration of partnering with the City of Tallahassee in engaging a disaster planning professional to evaluate the community s overall vulnerabilities, resiliency, and community expectations. Finding #26: The timely issuance of state of emergency declarations was beneficial and provided the support needed to conduct important emergency response and recovery activities such as debris removal operations and the waiver of building permit fees for citizens. Finding #27: Despite the extended activation period, the EOC did not experience any shortages of County staff during the Hurricane Hermine operations, due in part to a modification to the County s Personnel Policy that maximizes staffing levels by designating County employees as EOC Essential during a Declared State of Local Emergency. This was a lesson learned from Tropical Storm Fay in Finding #28: During its first test since the construction of the new Public Safety Complex, the EOC facilitated an unprecedented level of interagency coordination. Finding #29: Establishing sandbag sites the day prior to Hurricane Hermine was beneficial and many citizens took advantage of this opportunity. Finding #30: 65% of the City s electric customers and 77% of Talquin s electric customers lost power, reflecting the severity of Hurricane Hermine. Leon County, Florida - Hurricane Hermine After-Action Report Page 5

12 Hurricane Hermine After-Action Report Attachment #1 Page 10 of 97 Finding #31: Closer coordination with state, university, and school partners regarding the timing of announcements related to closures and reopenings would help citizens to plan for returning to school and work. Recommendation 31.1: Work with Leon County Schools, higher education institutions, and state agencies to coordinate the timing of announcements related to facility closures and reopenings. Finding #32: Closer coordination with the EOC would have benefitted Leon County Schools with regard to debris removal needs for roads, sidewalks, and bus stops prior to reopening schools. Recommendation 32.1: In coordination with Leon County Schools, amend the County s Debris Management Plan to reflect needs for road, sidewalk, and bus stop clearance prior to reopening schools following a disaster. Coordinate with the City to similarly amend its debris management plan. Finding #33: The Leon County EOC performed exceptionally well during its first significant test. The EOC facilitated the close coordination of a massive amount of information and resources and was a primary factor contributing to the success of response and recovery operations. Finding #34: During Hurricane Hermine, electrical service to the Public Safety Complex was disrupted and the facility relied on generator power for 25 hours. The Public Safety Complex experienced no disruption of facilities or equipment during the incident. Finding #35: There were multiple instances of communications outside of the established protocols during Hurricane Hermine that provided contradictory information and led to unnecessary delays. County staff agrees with DSI s assessment that the County should work with the Florida Division of Emergency Management on the use of the SMAA and the submission of requests for assistance through EM Constellation. Recommendation 35.1: Recommendation 35.2: Review the pre-landfall requests with the State EOC and FDOT representatives to identify the state resources available to the community prior to an anticipated emergency. Review the mission status terms in the EM Constellation Standard Operating Procedures with FDEM and remedy the reasons for labeling denied mission requests as complete. Finding #36: The state s communication and responses through EM Constellation regarding pre-landfall mission requests were inconsistent and not in accordance with FDEM s EM Constellation Standard Operating Procedures. County staff agrees with DSI s assessment that the County should work with the Florida Division of Emergency Management on the use of the SMAA and the submission of requests for assistance through EM Constellation. Finding #37: The vastly improved GIS system provided important support during Hurricane Hermine, including mapping the locations of emergency shelters, Points of Distribution, and comfort stations; as well as assisting with the damage assessment process following the storm. Finding #38: The continued utilization of the joint Public Information function provided for consistent information and messaging through official County and City websites. Finding #39: As provided in the CEMP, Public Information staff in the EOC worked closely with local media partners throughout the incident to keep the media informed about the status and progress of response efforts. Page 6 Leon County, Florida - Hurricane Hermine After-Action Report

13 Hurricane Hermine After-Action Report Attachment #1 Page 11 of 97 Finding #40: Three press conferences were hosted during the incident involving County and City elected and appointed officials, providing consistent and unified information to the public and media partners. Recommendation 40.1: Amend the CEMP to reflect hosting a press conference prior to the landfall of any hurricane or tropical storm anticipated to affect Leon County to provide transparent and timely communications about both policy and tactics. Finding #41: Partner agencies have responsibilities to their constituencies and customers, which may represent geographic areas beyond Leon County, and conflict with efforts to provide unified, clear, and consistent information. Finding #42: City Electric and Talquin independently issued public information, advisories, and social media posts during the incident, which in some instances may not have been coordinated or consistent with official communications from the EOC. Recommendation 42.1: Ensure that all public information and communication efforts among response agencies are coordinated through the Joint Information Center in the EOC. Finding #43: Social media is a valuable tool for quickly alerting the public to sudden or rapidly developing emergency situations but must be closely monitored for inaccurate information posted and shared by other parties. Recommendation 43.1: All social media communications by government officials during emergencies should be consistent with, informed by, and refer back to the Emergency Information Portal. Finding #44: Social media has the ability to fill in the gap in communication during a disaster when wired communications or electricity fails by directly reaching residents. Finding #45: Many citizens relied on mobile devices for emergency communications during Hurricane Hermine and opportunities continue to be identified to strengthen the County s ability to communicate with the public via mobile devices. Recommendation 45.1: Recommendation 45.2: Evaluate opportunities to reconfigure existing mobile apps or implement a new mobile app for emergency management, preparedness, and disaster communications. Work with FDEM to leverage the use of AlertFlorida upon implementation by the State to provide mass notification in the event of future emergencies. Finding #46: Additional opportunities exist for the County to enhance its radio presence during emergencies. Recommendation 46.1: Recommendation 46.2: Recommendation 46.3: Recommendation 46.4: Recommendation 46.5: Work with local radio partners to increase awareness of the availability of emergency public information. Working with WFSU, evaluate opportunities for County and City Public Information Officers to provide live, on-air emergency information during future incidents. Designate WFSU as the definitive resource for emergency and public safety information on the radio and identify the personnel needed at the EOC to report this information. Re-examine and upgrade if necessary the existing telecommunications link with WFSU in the Public Safety Complex. Working with the City of Tallahassee, evaluate including the WFSU facility on the list of critical circuits for power restoration. Leon County, Florida - Hurricane Hermine After-Action Report Page 7

14 Hurricane Hermine After-Action Report Attachment #1 Page 12 of 97 Recommendation 46.6: Recommendation 46.7: Work with FSU to provide additional backup generator support to the WFSU broadcast facility. Explore providing video production support (satellite uplink, etc.) for media partners in the Public Safety Complex to broadcast briefings and community updates. Finding #47: County Commissioners were provided regular and comprehensive information on response and recovery efforts but additional information regarding opportunities for elected officials to participate as described above should be communicated with Commissioners as recovery efforts evolve. Recommendation 47.1: Designate a dedicated Commission Liaison(s) during future large-scale emergency events to provide a coordinated two-way communication link with elected officials and entities involved in response and recovery operations. Finding #48: Despite misinformation originating from the Governor s office, at no point during the Hurricane Hermine response and recovery efforts did Leon County refuse assistance from the State. The County made every effort to avail itself of the resources available from the State as well as community partners. Finding #49: The City of Tallahassee was steadfast and consistent in its position throughout the recovery that City Utilities would accept help from any person or organization that could accelerate the speed at which they could safely restore power to citizens. Finding #50: The Governor s communications relative to state and federal disaster declarations were effective and helped to secure resources needed to support response and recovery efforts. Finding #51: During community listening sessions following Hurricane Hermine, several citizens indicated that they were unaware of Big Bend and the services it provides. Recommendation 51.1: Explore opportunities to enhance promotion and awareness of Big Bend and its role during emergencies to reach more citizens and expand services to those in need. Finding #52: Through coordination at the Leon County EOC, emergency shelters were opened in a timely fashion prior to Hurricane Hermine. 231 citizens and an additional 27 special needs clients and their caregivers utilized the shelters that were established. Recommendation 52.1: Evaluate the capability of all emergency shelters to accommodate special needs shelterees in future updates to the CEMP. Finding #53: During Hurricane Hermine, staff observed a need to update the special needs registry questionnaire and enhance outreach to prospective registrants. Recommendation 53.1: Explore opportunities to further enhance outreach regarding the special needs registry and to refine the questionnaire. Finding #54: Based on a lesson learned from Tropical Storm Fay in 2008, Leon County Animal Control now has additional resources available to assist with pet-accessible sheltering operations. However, the Leon County CEMP, Annex 17 Animal Issues has not been updated since 2007 and does not reflect these additional resources. Recommendation 54.1: Update the Leon County CEMP, Annex 17 Animal Issues to reflect the availability of the mobile pet shelter and other resources that are available from community partners. Page 8 Leon County, Florida - Hurricane Hermine After-Action Report

15 Hurricane Hermine After-Action Report Attachment #1 Page 13 of 97 Finding #55: The restoration of electrical service to area health care facilities was prioritized, as discussed in Section of this report. Local health care facilities are required to have emergency plans that include procedures to transport residents, if necessary, due to the effects of extended power outages but chose to remain at their facilities. Administrators of health care facilities are primarily responsible for the implementation of their emergency plans, and assistance in implementing these plans is available from FDOH as specified in the Leon County CEMP. Recommendation 55.1: Coordinate with the Florida Department of Health in Leon County to identify training opportunities and technical assistance for local health care facilities in the development and implementation of emergency facility plans. Finding #56: Between calling special needs registrants, providing medical assistance at emergency shelters, and assisting with the assessment of health care facilities following Hurricane Hermine, Leon County EMS role in support of the Florida Department of Health continues to expand during emergency activations. Finding #57: Leon County EMS was able to meet service demands throughout Hurricane Hermine by pre-deploying ambulances in the field prior to the storm and utilizing a dynamic staffing model to accommodate an elevated level of demand. Finding #58: There were no reports of significant increases in crime or looting in the aftermath of Hurricane Hermine. Finding #59: Mission requests for law enforcement assistance issued through EM Constellation were implemented seamlessly. Finding #60: Road clearing assistance provided by law enforcement officers in the field immediately following Hurricane Hermine was useful and allowed County and City Public Works crews to focus efforts on clearing larger trees and major roadways. Recommendation 60.1: Recommendation 60.2: Update the Leon County CEMP, Annex 16 Law Enforcement and Security to reflect the availability of law enforcement officers to assist with initial road clearing operations in addition to their primary law enforcement roles. In this update, ensure that these officers are provided with the proper safety equipment, bottled water, and any other supplies needed to safety execute these responsibilities. Identify other County personnel who may be in the field during emergency response operations (e.g., Animal Control, Code Compliance, etc.) and ensure these personnel are provided with bottled water and critical emergency public information that they can share with citizens in the field, such as the location of comfort stations and Points of Distribution. Finding #61: No missed calls or system outages occurred at the Consolidated Dispatch Agency during Hurricane Hermine. Finding #62: Pre-deploying Public Works crews at strategic locations throughout the County allowed for a faster and more efficient utilization of resources and accelerated the pace of road clearing efforts following Hurricane Hermine. Finding #63: County, City, and Talquin staff have discussed and acknowledged the need to deploy Road Clearing Task Force crews during future emergency events. Recommendation 63.1: Update the Leon County CEMP to formalize Road Clearing Task Force crews consisting of Leon County Public Works, City of Tallahassee Electric, and Talquin Electric. Coordinate with the City to similarly update its emergency plans. Leon County, Florida - Hurricane Hermine After-Action Report Page 9

16 Hurricane Hermine After-Action Report Attachment #1 Page 14 of 97 Finding #64: Communications from the State EOC and Governor Scott regarding assistance with cut and toss operations were unclear and counterproductive to response and recovery efforts. Additionally, FDOT representatives should have contacted the Leon County EOC rather than City staff to communicate the availability of resources following the storm (more discussion is provided in Section of this report and Recommendation #34.1). Finding #65: While technical advancements have been made to detect and locate power outages since Hurricane Kate over 30 years ago, the physical task of repairing a line or replacing a pole remains a timeconsuming process. Finding #66: Following disasters involving extensive damage to electrical system infrastructure, repairs to major power transmission lines and substations are prioritized in order to expedite power restoration to the greatest number of customers. Finding #67: City of Tallahassee Utilities and Talquin Electric followed industry guidelines in the restoration of electrical service following Hurricane Hermine specifically, by restoring the critical transmission system first, followed by electrical substations, then the restoration of neighborhood-level circuits and sub-circuits. Finding #68: Following a major disaster, it is difficult to accurately predict how long electrical service may be out. This presents significant challenges to public information efforts, as citizens generally want to know how long the restoration process will take in order to make accommodations for food, lodging, and other needs. During Hurricane Hermine, EOC staff reported that callers to the Citizen Information Line appreciated having information about the locations at which utility personnel were working. The City and Talquin made this information available beginning Tuesday, September 6. Recommendation 68.1: Throughout an incident, work with City of Tallahassee Utilities and Talquin Electric to communicate the overall plan for utility restoration as well as general information regarding where utility crews are working to restore service each day. Finding #69: Following an internal after action review, City of Tallahassee Electric is exploring ways to improve reporting of power outages through its online mapping application, incorporating public input received during community listening sessions. Finding #70: The Leon County CEMP provides that the City of Tallahassee and Talquin Electric prioritize restoration of electrical power to vital community resources by coordinating with outside agencies and private entities as needed for the restoration of power. Both agencies maintain mutual aid agreements in order to repair or restore energy systems. Finding #71: During community listening sessions following Hurricane Hermine, several citizens observed a need to enhance driver awareness during emergency events regarding inoperable traffic signals. Many drivers were unaware that inoperable traffic signals should be treated as a 4-way stop. Recommendation 71.1: Include additional traffic safety information in pre- and post-disaster emergency communication efforts. Finding #72: The Leon County CEMP, Annex 3 Public Works and Engineering does not list Talquin Electric Cooperative as a support agency similar to the City of Tallahassee, although Talquin is listed elsewhere in the CEMP as an agency with primary responsibility for infrastructure restoration. The Recovery Annex of the CEMP and Annex 3 should be updated for consistency and to reflect the City of Tallahassee and Talquin Electric as the lead agencies for water and wastewater infrastructure restoration. Page 10 Leon County, Florida - Hurricane Hermine After-Action Report

17 Hurricane Hermine After-Action Report Attachment #1 Page 15 of 97 Recommendation 72.1: Update the Recovery Annex of the Leon County CEMP and Annex 3 Public Works and Engineering for consistency and to reflect the City of Tallahassee and Talquin Electric as the lead agencies for water and wastewater infrastructure restoration following a disaster. Finding #73: Not all wastewater pump stations are equipped with backup generators. Generators would help in reducing the incidence of sanitary sewer overflows during disasters. The Board of County Commissioners has established a legislative priority for the 2017 Legislative Session to seek hazard mitigation funding for this purpose in partnership with the City. Recommendation 73.1: Work with the City of Tallahassee to seek funding to install backup generators on pump stations. Finding #74: The State of Florida has proposed an administrative rule prescribing certain reporting requirements for pollution events such as sanitary sewer overflows. County and City emergency plans should be updated to reflect the new reporting requirements. Recommendation 74.1: Amend the CEMP to reflect new reporting requirements for pollution events as outlined in Proposed Rule Finding #75: The process for requesting mutual aid assistance for bottled water from the State EOC worked seamlessly. Bottled water was shipped immediately and delivered on time to the County staging area, allowing County personnel to quickly distribute the water to areas in need. Finding #76: During Hurricane Hermine, representatives from the Salvation Army and American Red Cross observed a need to identify a list of predetermined sites throughout Leon County that may be suitable for food service. The Leon County CEMP does not identify these locations. Recommendation 76.1: Amend the Leon County CEMP to provide for the identification of sites throughout the County that can serve as stationary food service locations. Finding #77: The Board of County Commissioners has established a legislative priority for the 2017 Legislative Session to seek funding to improve the disaster resilience of community centers and other facilities in Leon County that could serve as Points of Distribution or comfort stations. Recommendation 77.1: In support of the Board s 2017 State and Federal Legislative Priorities, seek funding to enhance the disaster resilience of facilities throughout the County that may serve logistical needs during emergency events. Finding #78: During Hurricane Hermine, many residents needed a location to recharge mobile devices. The County, City, and private sector partners were able to meet this need by opening libraries and community centers and deploying mobile charging stations. Finding #79: During community listening sessions following Hurricane Hermine, some citizens indicated that they were unaware of the availability of comfort stations despite efforts to promote them through a variety of communications avenues as described above. Citizens suggested creating greater awareness of comfort stations by deploying signage along major roadways. Recommendation 79.1: Recommendation 79.2: Deploy variable message boards on major roads directing citizens to comfort stations during future emergencies. Identify all Leon County Libraries as potential comfort stations for future emergencies. Leon County, Florida - Hurricane Hermine After-Action Report Page 11

18 Hurricane Hermine After-Action Report Attachment #1 Page 16 of 97 Finding #80: The joint decision made by the County and City to waive permit fees for storm-related repairs was effective and allowed citizens to immediately make emergency home repairs while permit offices were closed. Recommendation 80.1: Amend the Leon County CEMP to include the emergency waiver of building permit fees for disaster-related repairs. Finding #81: Leon County Public Works and the County s debris removal contractors ultimately collected over 200,000 cubic yards of debris associated with Hurricane Hermine. Finding #82: Debris removal efforts were communicated by an automated call system and regularly updated maps posted on the EIP. Recommendation 82.1: Although there were many communications efforts related to establishing debris removal expectations to the public, additional operational and communication improvements should be made to better identify the planned allocation of resources. Finding #83: As demonstrated by the initial impact damage assessments accepted by FEMA, Hurricane Hermine caused extensive damage to residential homes across Leon County. Finding #84: Initial Impact Damage assessment is a function traditionally facilitated by the American Red Cross. However, the County and City together deployed 40 personnel to assist with data collection during Hermine, and the Red Cross and LCEM provided just-in-time training on initial impact damage assessments. These teams were able to conduct a county-wide damage assessment in two days that successfully enabled Leon County to be eligible for FEMA Individual Assistance. Recommendation 84.1: Recommendation 84.2: Recommendation 84.3: Evaluate opportunities for Leon County to assume the lead role in conducting damage assessments in the future and amend the CEMP as appropriate. Identify and recruit personnel from County and City departments to staff initial impact damage assessment teams and provide training in the FEMA Damage Assessment criteria annually prior to hurricane season. Implement updated technology that will allow for field data collection that integrates with GIS technology. Finding #85: While the CEMP calls for the deployment of Community Recovery Centers (CRC) following a disaster, Leon County and the City of Tallahassee recognized the limited availability of trained volunteers across the region and decided to establish navigation teams to provide this service. Finding #86: While Leon County and the City of Tallahassee recognized the need to establish navigation teams following Hurricane Hermine to meet the needs of affected citizens, the Leon County CEMP provides for the establishment of a Community Recovery Center (CRC) following a disaster. Staff observed an opportunity to continue to enhance this resource for future emergency events. Recommendation 86.1: Recommendation 86.2: Direct staff to identify a community organization that can assist with navigating insurance claims as a member of COAD and as a participant at Community Recovery Center following a disaster. Amend COAD governing documents and the Leon County CEMP as appropriate. Pre-identify suitable sites that can serve as Community Recovery Centers, as well as logistical support needs and site layouts. Assign sworn law enforcement officers to direct facility security operations. Page 12 Leon County, Florida - Hurricane Hermine After-Action Report

19 Hurricane Hermine After-Action Report Attachment #1 Page 17 of 97 Finding #87: The utilization of an experienced consultant is vital to navigate the FEMA application and reimbursement process for expenses incurred as a result of Hurricane Hermine. Recommendation 87.1: Retain a consultant on an ongoing basis to assist with navigating the FEMA reimbursement process, similar to the County s contracts for emergency debris removal. Finding #88: Storm-related damage identified during County and City staff-led initial impact damage assessments and verified by FEMA s Joint Preliminary Damage Assessment Team supported the federal authorization of the Individual Household Assistance program in Leon County. Finding #89: State Emergency Support Function #18 gathers and provides information regarding the status of businesses that are open following a disaster. Public Information efforts immediately following Hurricane Hermine could have incorporated some of this information to assist citizens in locating stores that could provide disaster relief supplies. Finding #90: Hospital cafeterias were the restaurant of choice as some of the few venues serving cooked meals immediately following Hermine. Finding #91: State Emergency Support Function #12 is charged with gathering and providing information regarding fuel supplies and the status of gas stations that are open following a disaster. The State EOC did not have readily available information regarding the status of gas stations in Leon County and whether they had backup power for their fuel pumps. Recommendation 91.1: Given the authority provided in Florida Statutes, Leon County Emergency Management should collect and maintain information on gas stations that have backup power supplied to their fuel pumps. Finding #92: The Leon County CEMP is silent regarding the role of Tourism Development staff during emergencies. Staff observed an opportunity to assign Tourism Development staff to the EOC to staff the Hotel Hotline. Recommendation 92.1: Recommendation 92.2: Update the Leon County CEMP to reflect Tourism Development staff s role in coordinating hotel availability during emergencies including the Hotel Hotline. Transfer the Hotel Hotline to a desk at the EOC after hours and during closures to be staffed by Tourism Development and volunteers. Finding #93: While many hotels throughout the County lost power during Hurricane Hermine, many were able to remain operational as a result of advance planning either by installing backup generators or by making arrangements in advance to rent backup generators. Recommendation 93.1: Work with local hoteliers to raise awareness regarding the need for local hotels to remain operational during emergency events and provide technical assistance as appropriate. Finding #94: Many mutual aid agencies arrived in Leon County with hotel arrangements already in place in accordance with standing agreements they have with national hotel chains. This is an industry best practice and should be reflected in all County and City mutual aid agreements. Recommendation 94.1: Review the County s existing mutual aid agreements and ensure that all existing and future agreements provide for agencies to have agreements in place to guarantee hotel accommodations upon arrival. Leon County, Florida - Hurricane Hermine After-Action Report Page 13

20 Hurricane Hermine After-Action Report Attachment #1 Page 18 of 97 Finding #95: Although the CEMP provides for conference calls to be initiated when Apalachee Bay falls within the 5-day error cone, LCEM initiated conference calls on August 30 (two days before landfall). However, Hermine was still only a tropical depression at the time. Recommendation 95.1: Amend the CEMP to provide for conference calls to begin when the state of Florida (rather than Apalachee Bay) falls within the 5-day error cone. Finding #96: Utilizing a web-based conference call platform would allow for participating agencies to utilize graphics and images to help build a common operating picture among all organizations engaged in emergency response activities. Recommendation 96.1: Upgrade to a web-based conference call platform. Finding #97: During Hurricane Hermine, staff observed an opportunity to enhance the flexibility of the EOC layout by configuring each EOC computer to allow any County or City employee to access their network. Recommendation 97.1: Configure EOC workstation computers to allow both County and City staff to access their networks. Finding #98: During Hurricane Hermine, staff observed a potential opportunity to streamline response efforts by improving the work order management system utilized during emergencies. Recommendation 98.1: Convene a task force to evaluate the requirements of interfacing to various work order management systems during emergency events. Finding #99: Public Information staff must balance the need to keep the media informed about the progress of response activities while also addressing other areas of their responsibility, such as responding to citizen inquiries. This topic is addressed in the CEMP but should be refined. Recommendation 99.1: Clarify the CEMP to provide for the EOC Public Information Officer and the LCEM Director to establish a schedule for media briefings at the beginning of any extended incident and communicate this schedule with media partners. Finding #100: Media partners visiting the EOC requested to observe the activities of response personnel working in the EOC. Recommendation 100.1: To minimize disruptions to emergency response personnel and to maintain the security of the EOC, explore providing a video-only live feed of the EOC in the Media Room for visiting media partners to use. Finding #101: Many individuals served at the EOC throughout the duration of the activation. Additional training could enhance depth among the EOC support team, allowing the rotation of staff during an emergency activation. This would limit the burden on departments and agencies contributing staff to the EOC. Recommendation 101.1: Continue to provide training for staff from all participating agencies and include them in training and exercise plans. Finding #102: Incident Action Plans were not distributed to all staff in the EOC. Recommendation 102.1: Ensure the consistent distribution of Incident Action Plans to EOC staff during each operational period. Finding #103: Citizen Information Line staff and volunteers could benefit from more frequent situation reports from Public Information Staff in the EOC. Page 14 Leon County, Florida - Hurricane Hermine After-Action Report

21 Hurricane Hermine After-Action Report Attachment #1 Page 19 of 97 Recommendation 103.1: Amend the CEMP to designate Leon County Community and Media Relations as the lead entity responsible for providing situation reports to CIL staff. Finding #104: During Hurricane Hermine, Big Bend lost power to its main facility, requiring the agency to relocate to the Public Safety Complex. Recommendation 104.1: Amend the Tallahassee-Leon County Local Mitigation Strategy to designate the Big Bend facility as a critical facility and assist in seeking funding to install a backup generator. Finding #105: Future shelter operations should include a plan for registered sex offenders. Though no conflicts occurred during Hurricane Hermine, registered sex offenders require a separate shelter or must be segregated from the main shelter population. Recommendation 105.1: Work with the Leon County Sheriff s Office to resolve issues relative to registered sex offenders and emergency shelter operations. Finding #106: Staff from the Leon County Office of Intervention and Detention Alternatives (OIDA) observed a need to ensure that monitoring devices for clients with court-ordered GPS monitoring can operate continually in the event of extended power outages. Batteries on GPS monitoring devices must be charged daily, so in the event of an extended power outage, clients need to have a designated place to recharge their device s battery. Recommendation 106.1: Designate a location where OIDA clients can charge their GPS monitoring device battery during emergency events and update internal procedures to be able to communicate this location with clients. Finding #107: Staff observed a need during Hurricane Hermine to improve the process for gathering information from citizen reports made through the Consolidated Dispatch Agency, the Citizen Information Line, and Big Bend on road conditions and storm-related damage in order to best facilitate response and recovery efforts. Recommendation 107.1: Identify ways to collect additional details about downed trees, such as the diameter of the tree and whether it involves a power line, when receiving reports from the public. Finding #108: The layout of some temporary debris staging areas was restrictive and did not allow for easy access for equipment and staging of debris. Recommendation 108.1: Re-evaluate and identify debris staging areas throughout Leon County, ensuring that these sites are configured such that they can accommodate sufficient volume of debris and equipment. Finding #109: Staff observed an opportunity to further enhance the County s ability to assist citizens following a disaster through navigation teams and/or Community Resource Centers. Recommendation 109.1: Identify a community organization that can assist with navigating insurance claims as a member of the Community Organizations Active in Disaster (COAD) and as a participant at a Community Recovery Center or as part of a navigation team following a disaster. Amend COAD governing documents and the Leon County CEMP as appropriate. Recommendation 109.2: Pre-identify suitable sites that can serve as Community Recovery Centers, as well as logistical support needs and site layouts. Assign sworn law enforcement officers to direct facility security operations. Leon County, Florida - Hurricane Hermine After-Action Report Page 15

22 Hurricane Hermine After-Action Report Attachment #1 Page 20 of 97 Finding #110: Closer coordination with debris removal and monitoring contractors is needed to ensure that sufficient trucks, equipment, and staffing will be available to fully support future debris operations. Recommendation 110.1: Coordinate with debris removal contractors during pre-hurricane season kickoff meetings to identify equipment that will be needed to remove debris from private roads that are in poor condition. Recommendation 110.2: Re-evaluate the terms of debris removal and monitoring contracts to ensure that contractors resources and personnel will be available to meet local needs. Recommendation 110.3: During pre-hurricane season kickoff meetings each year, verify the debris monitoring contractor s proposed command center location to ensure adequate space is available to properly conduct monitoring operations. Recommendation 110.4: Conduct a tabletop exercise with debris removal and monitoring contractors during pre-hurricane season kickoff meetings. Recommendation 110.5: Designate a staff member to act as a project manager to oversee debris monitors and haulers. Page 16 Leon County, Florida - Hurricane Hermine After-Action Report

23 Section 1.0 Introduction Attachment #1 Page 21 of Introduction 1.1 Background During the early morning of September 2, 2016, Hurricane Hermine struck the coast of Florida just east of St. Marks on a path leading directly through Leon County. Hermine was the first hurricane to make landfall in Florida since Hurricane Wilma in 2005 and was the first hurricane to directly hit Apalachee Bay since Hurricane Alma in Hurricane Hermine made landfall as a Category 1 storm with sustained winds of up to 80 mph in coastal areas and wind gusts of over 60 mph and sustained tropical storm force winds lasting for a prolonged period of approximately six hours in Leon County. While initial forecasts for Hermine indicated the possibility of extremely heavy rainfall and significant storm surge, Leon County received only approximately 5 of rain associated with Hurricane Hermine. High winds from the storm caused hundreds of downed trees that blocked roadways, destroyed electrical infrastructure systems, and damaged hundreds of homes throughout Leon County. The storm caused widespread power outages affecting thousands of City of Tallahassee and Talquin Electric Cooperative customers. Nearly 100,000 electric customers lost power immediately following Hurricane Hermine, many of whom experienced extended outages for a period of several days following the storm. Leon County Emergency Management (LCEM) staff closely monitored Hurricane Hermine for 18 days as it approached Florida. Consistent with the provisions of the Leon County Comprehensive Emergency Management Plan (CEMP), LCEM began in the days prior to Hermine s landfall to make preparations for the storm, coordinate the activities of participating response agencies, and implement protective measures to safeguard the health and welfare of Leon County citizens. LCEM began conducting conference calls to coordinate information and response efforts with partner agencies on Tuesday, August 30 while Hermine was still classified as a tropical depression. LCEM activated the Leon County Emergency Operations Center (EOC) partially on August 31 and fully on September 1, In accordance with Florida Statutes and the County s CEMP, the Chairman of the Leon County Board of County Commissioners declared a Local State of Emergency on September 1, which allowed the County to take emergency measures to protect citizens in the conduct of short-term response and recovery efforts. Leon County worked with its partner agencies to establish emergency shelters, including special needs shelters and pet-accessible shelters, to ensure citizens safety during the height of the storm; activate agreements for mutual aid assistance; and pre-deploy Public Works crews and first responders throughout the County to begin response efforts as quickly as possible following the storm. Immediately after Hurricane Hermine had passed, Leon County Government and its partner agencies continued the systematic implementation of emergency plans and protocols in the conduct of short-term response activities. First response agencies such as Leon County EMS, the Leon County Sheriff s Office, and the Tallahassee Police and Fire Departments responded to calls for service immediately to address citizens critical health and life safety issues. Public Works crews dispatched from their strategic pre-deployment locations to clear roads and sidewalks of storm debris. Electric crews for the City of Tallahassee and Talquin Electric, with the assistance of hundreds of mutual aid personnel from other agencies, began the process of repairing the power grid and restoring electrical service to citizens. Public information staff worked around the clock in the EOC disseminating critical emergency information to keep citizens informed on the status and progress of the overall response. Leon County, Florida - Hurricane Hermine After-Action Report Page 17

24 Section 1.0 Introduction Attachment #1 Page 22 of 97 As the focus shifted from response to long-term recovery efforts, Leon County and partner agencies began the work of restoring the community to a normal state. For citizens experiencing extended power outages, County and City staff worked with community partners to distribute emergency food, bottled water, and hygiene supplies and established comfort stations for citizens to cool off and charge their mobile devices while crews worked to restore power. In following the Debris Management Plan, Leon County and the City of Tallahassee activated thirdparty debris removal contractors to haul storm debris from every road throughout the County. Public Works and Solid Waste crews staged, processed, and disposed of the debris. The County, City, and Red Cross teams canvassed the community and conducted initial damage assessments to support a potential request for federal assistance. The County and City jointly established navigator teams to help citizens get needed information about processing insurance claims and applying for disaster assistance. To further help citizens make storm-related repairs to their homes as quickly as possible, the County and City waived building permit and growth management fees and delayed inspection requirements for work performed by a licensed contractor. Throughout Hurricane Hermine, staff provided the Board with comprehensive updates during each phase of the event, including twice-daily s on the status and progress of emergency response and recovery efforts, a special meeting of the Board on September 6, and a status report agenda item presented to the Board at its regular meeting on September 13. After any emergency event, an After-Action Report is compiled to assess the plans, preparations, response, and recovery efforts associated with the emergency activation for Hurricane Hermine. This After-Action Report highlights the strengths of these efforts and identifies recommendations to further enhancement to strengthen the County s emergency management program in anticipation of future emergency incidents. 1.2 Report Methodology Leon County Emergency Management (LCEM) and Leon County Administration conducted a thorough evaluation of the specific actions taken during the activation of the Emergency Operations Center for Hurricane Hermine. This review examines the actions taken by LCEM and partner agencies for consistency with the County s CEMP, Debris Management Plan, and the National Incident Management System, all of which prescribe the basic strategies, objectives, operational goals, and actions to be taken throughout the various phases of emergency events including a hurricane. Understanding that each emergency poses a unique set of challenges, the After-Action Report is designed to identify how these plans, processes, and protocols were successfully applied during Hermine as well as any unanticipated deficiencies encountered by emergency managers that require specific improvement or action. Given the uncertainty and infrequency of disasters for emergency managers to validate their response strategies, FEMA encourages the compilation of after action reports within 120 days of the event to reflect upon operational effectiveness and implementation of needed system improvements for future emergencies. To assist with the evaluation of specific actions associated with the emergency activation for Hurricane Hermine, from emergency planning and training to response and recovery efforts at the operational level, the County Administrator engaged a credentialed emergency management and homeland security services consulting firm headquartered in Leon County to ensure that industry best practices are acknowledged and achieved in future response efforts. Disaster, Strategies & Ideas Group LLC (DSI) works with federal, state, Page 18 Leon County, Florida - Hurricane Hermine After-Action Report

25 Section 1.0 Introduction Attachment #1 Page 23 of 97 regional, and local government agencies to develop and review a wide array of preparedness plans. DSI s team of professionals furnished independent, specialized, and unfettered consulting advice for this report through their collective experience and expertise. Guided by the former Director of Emergency Management for both the State of Florida and North Carolina, the leadership team at DSI includes expert planners; training and exercise professionals; preparedness, response and recovery experts; auditors; public assistance consultants; individual assistance professionals; mitigation program managers; and, information technology experts. DSI s guidance and recommendations are incorporated throughout this the After-Action Report. As with any post-incident report of this significance, the County s After-Action Report is reflective of the collaboration and input of partner agencies to fully document the successful response strategies and potential remedies to encountered problems. Over a period of several weeks following Hurricane Hermine, staff followed FEMA s guidance on post-incident reports for identifying operational lessons learned by conducting a thorough review of state and local emergency management documents, procedural manuals, and analyzing feedback collected on the preparedness, response, and recovery efforts of Leon County and partner agencies. For this report, staff gathered input from emergency response professionals, participants, front line personnel activated during the incident, an independent citizen task force, members of the community through town hall listening sessions, and other community partners in the preparation of this report. In collaboration with the City of Tallahassee and the Leon County Sheriff s Office, five community listening sessions were held throughout the County and seven staff debriefing meetings were conducted with key personnel from County and City departments to elicit feedback on the hurricane response and recovery efforts. Over the course of a month, County and City staff actively participated in the Citizens for Responsible Spending Post-Hurricane Recovery Best Practices Task Force meetings as an information resource leading up to its recommendations to improve community preparedness and response to hurricanes. Staff also reviewed area media coverage, video content, and social media posts associated with Hurricane Hermine in an effort to gauge public perceptions and identify the root information sources (TV news, radio, blog, etc.). Upon analyzing the information collected and following up with key department personnel for further input, staff compiled an assessment of the County s emergency activation and response tactics to identify strengths, weaknesses, and specific recommendations for continued improvement. After conducting interviews with emergency managers and reviewing this report with County Administration, DSI provided insights and recommendations based on their professional expertise across the emergency management spectrum. It is important to note while the EOC serves as a central command and control facility for the effective coordination of disaster management functions, and pre- and post-storm operational decisions are determined by the LCEM Director, each partner agency maintains direct control of its field assets in order to make the tactical decisions necessary toward the fulfillment of incident management objectives. With DSI s command of emergency management responsibilities and response techniques, the findings and recommendations identified herein include well-executed response activities, opportunities to strengthen practices and protocols, and areas identified to improve future emergency operations based on the actions taken by LCEM, County departments, and other partner agencies activated in the EOC. Leon County, Florida - Hurricane Hermine After-Action Report Page 19

26 Section 1.0 Introduction Attachment #1 Page 24 of Organization of the Report This After-Action Report provides an extensive summary of Leon County s emergency operations prior to, during, and immediately following Hurricane Hermine. The report presents a series of specific findings and recommendations designed to highlight best practices that can be utilized during future emergency activations and to enhance Leon County s ability to protect life and property in the event of future large-scale emergencies. Specific findings and recommendations for improvement, as well as successful response strategies, are clearly identified throughout this assessment and summarized in the conclusion of the report (Section 6). In many cases, the findings and recommendations in this report are applicable beyond hurricane events and will enhance Leon County s overall preparedness to respond to various emergency incidents. The After-Action Report was developed and structured based on FEMA s guidance for compiling post-incident reports for identifying lessons learned. The report is organized as follows: Section 1: Introduction Provides background information about the plans, preparedness, response, and recovery efforts of Leon County and partner agencies during Hurricane Hermine; outlines the methodology and organization of this After-Action Report; and describes the structure of the emergency management function in Leon County. Section 2: Planning, Training, and Community Preparedness Efforts Details efforts taken by Leon County and community partners related to planning, training, mitigation efforts, and community preparedness initiatives. Section 3: Overview of Hurricane Hermine and its Impacts Describes Hurricane Hermine s development, path, and storm-related impacts to infrastructure systems and private property. Section 4: Hurricane Hermine Preparedness, Response and Recovery Provides summaries, assessments, findings, and recommendations on the emergency activation efforts including preparations immediately prior to the storm; actions and strategies undertaken to address the impacts (downed trees, road blockages, electrical outages, food and water distribution, comfort stations, etc.); and the long-term recovery efforts (debris removal, damage assessments, FEMA assistance and reimbursement, etc.) Section 5: Additional Opportunities and Recommendations Provides a compilation of additional observations, generally more technical and/or operational in nature, identified as a result of Hurricane Hermine along with recommendations for staff to address internally. Section 6: Conclusion Provides a conclusion of the After-Action Report including a list of the findings and recommendations identified in this assessment to improve future emergency operations. Section 7: Appendices Following the conclusion of the report, several appendices are included containing plans, documents, and other materials referenced throughout this report. Page 20 Leon County, Florida - Hurricane Hermine After-Action Report

27 Section 1.0 Introduction Attachment #1 Page 25 of Citizen Engagement and Community Feedback On September 7, 2016, Chairman Proctor, Mayor Gillum, and Sheriff Wood held a public meeting to discuss the ongoing response and recovery efforts related to Hurricane Hermine. In addition to each party supporting continued cooperation and coordination of efforts, the Chairman and Mayor expressed the need to host a series of jointly conducted community listening sessions throughout the City and unincorporated area of the County. The need to pinpoint the continually evolving needs of the community, along with the appropriate resources to address those needs, required engaging citizens directly so that County, City, and Sheriff s Office officials could hear first-hand about their evolving needs and to gain their fresh observations about how the hurricane impacted their homes, neighborhoods, and families. The Sheriff, County Administrator, City Manager, LCEM Director, and other key emergency support staff attended each of the five community listening sessions to provide the most up to date information, gather feedback, and provide citizens the opportunity to direct questions or concerns to any of the participants. These five listening sessions engaged over 400 citizens at locations throughout the community in the weeks following Hurricane Hermine: Monday, Sept. 19 Bethel AME, 501 W Orange Ave. Wednesday, Sept. 21 Woodville Community Center, 8000 Old Woodville Rd. Thursday, Sept. 22 Eastside Branch Library, 1583 Pedrick Rd. Monday, Sept. 26 Fire Station #4, 2899 W. Pensacola St. Tuesday, Sept. 27 St. Peter s Anglican Church, 4784 Thomasville Rd. The citizen engagement and community listening sessions provided important opportunities to discuss response and ongoing recovery efforts and to learn from citizens about how Leon County and partnering response agencies can best meet the needs of the community in future disaster events. Due to the nature of the storm and the feedback received from participants, there were several recurring themes identified through these listening sessions. Table 1 identifies several of the principal themes that emerged from the community listening sessions and the corresponding findings and sections of this report that provide a discussion of each theme. The rows highlighted in orange represent pre-storm planning and preparation activities. Table 1: Principal themes from the Hurricane Hermine community listening sessions Related Finding(s) & Theme: Recommendation(s): Report Section(s): Hazard mitigation related to electrical infrastructure, such as tree maintenance and underground electric Coordination and parity with the State and Leon County Schools regarding the announcement of office and school closures Need for enhanced personal and neighborhood-level disaster preparedness Finding #24 Recommendation #24.1 Findings #31, #32 Recommendations #31.1, #32.1 Findings #20, #21, #22, #23 Recommendation # Leon County, Florida - Hurricane Hermine After-Action Report Page 21

28 Section 1.0 Introduction Attachment #1 Page 26 of 97 Planning, training, exercises, and preparedness among emergency management response agencies Timing and process of power restoration including the utilization of mutual aid assistance and visibility of response efforts Methods and content of communications and emergency public information Finding #18 Recommendations #18.1, #18.2 Findings #64, #65, #66, #67, #68, #69, #70 Recommendations #67.1, #69.1, #70.1 Findings #37, #38, #39, #40, #41, #42, #43, #44, #45 Recommendations #39.1, #41.1, #42.1, #44.1, #44.2, #45.1, #45.2, #45.3, #45.4, #45.5, #45.6, # Availability of assistance for home repairs, tree removal, and social services Findings #23, #50, #79, #84, #85 Recommendations #23.1, #50.1, #79.1, #85.1, #85.2 Timing and process of debris removal efforts Findings #14, #15, #16, #80, #81 Recommendations #16.1, # In addition to community listening sessions, staff also participated in a series of meetings conducted by the Citizens for Responsible Spending Post-Hurricane Recovery Best Practices Task Force (CRS Task Force). This citizen group held several meetings following Hermine to discuss the community s preparedness and response, and to provide recommendations for continued improvement in the event of future hurricanes or severe storms. The Task Force issued its final report on October 24, 2016 which included 22 specific recommendations for the planning, response, and recovery phases of an emergency event (Appendix B). As part of its assessment of response and recovery efforts associated with Hurricane Hermine, the DSI Group also reviewed the CRS Task Force s report and recommended that the County factor its recommendations into its overall strategy for improvement. Table 2 identifies several of the principal themes and recommendations presented in CRS Task Force s report which shares many similarities to the feedback received through the community listening sessions. Table 2: Principal themes and recommendations of the CRS Post-Hurricane Recovery Best Practices Task Force Theme/Recommendation Related Finding(s) & Recommendation(s) Report Section(s) Disaster response training should occur regularly and at least at the onset of the annual hurricane season Work with local media outlets to regularly educate and advise citizens on basic storm preparation Finding #18 Recommendations #18.1, #18.2 Findings #19, #20, #21, #22 Recommendation # Page 22 Leon County, Florida - Hurricane Hermine After-Action Report

29 Section 1.0 Introduction Attachment #1 Page 27 of 97 County and City should jointly study hazard mitigation issues related to electrical infrastructure and tree maintenance In advance of a storm, staging areas and points of distribution should be established and communicated to the public. In advance of a storm, negotiate with FDOT for assistance in early removal of downed trees. Need for one trusted source of information to rely on for accurate and timely information. Must be careful not to share information that has not been approved and released by appropriate official. Emphasis on outgoing communications utilizing social media and mobile applications to keep the public informed of efforts including restoration priorities Provide real-time information on the status of local businesses such as grocery stores, gas stations, and hotel vacancies. Findings #23, #24 Recommendations #23.1, #24.1 Findings #37, #74, #75, #76, #77 Recommendations #75.1, #76.1 Findings #34, #35, #63 Recommendations #34.1, #34.2 Findings #37, #38, #39, #40, #41, #42, #45, #46 Recommendations #39.1, #41.1, #42.1, #45.1, #45.2, #45.3, #45.4, #45.5, #45.6, #45.7, #46.1 Findings #42, #43, #44 Recommendations #42.1, #44.1, #44.2 Findings #88, #89, #90, #91 Recommendations #90.1, #91.1, # Although many of the themes and recommendations identified in Table 1 and Table 2 affirm emergency management practices that are currently in place, some recommendations identify areas for improvements that are contemplated throughout this After-Action Report. For quick reference, these tables list the corresponding findings, recommendations, and sections of the report to review additional information relating to each theme and/or recommendation. Finding #1: The community listening sessions held following Hurricane Hermine provided important opportunities to discuss response and ongoing recovery efforts and to learn from citizens about how Leon County Government and partnering response agencies can best meet the needs of the community during future disasters. Recommendation 1.1: Update the Leon County CEMP to provide for community listening sessions to be held following major emergency events, and encourage the City s joint participation in these sessions. Lead Agencies: Leon County Emergency Management Support Agencies: Leon County Administration Leon County, Florida - Hurricane Hermine After-Action Report Page 23

30 Section 1.0 Introduction Attachment #1 Page 28 of Structure of the Emergency Management Function in Leon County Once Hurricane Hermine passed through the area leaving many residents without electricity, water, or clear passage to travel on the roadways, some residents were not aware of how, or whom, to report these issues. This confusion is understandable since there have been infrequent mass emergency events over the past 30 years dating back to Hurricane Kate. The general public was likely exposed to the preparation messages by multiple jurisdictions (State, County, City) just before the storm, followed by multiple response efforts shared on digital platforms relating to the restoration efforts (road clearing, utilities, comfort stations) by multiple jurisdictions. The CRS Task Force Report concurred that the chain of command and reporting structure at the EOC was unclear during the disaster. Aware of these concerns during the emergency Commission meeting on September 6, the Board directed the County Attorney s Office to prepare a memorandum regarding Leon County s emergency management powers and structure in a declared state of emergency (Appendix C). LCEM is one of only ten county emergency management programs in Florida to report to the Sheriff s Office on a day-to-day basis but transfers to the Board during a local state of emergency. While frustrated residents may have been unsure who to contact or who could best address their concerns, this confusion over the chain of command and reporting structures did not permeate among the staffing ranks within the EOC due to the existing protocols in place. To eliminate confusion during a disaster, the County s CEMP explicitly recognizes the LCEM Director as the lead executive in command of emergency operations and responsible for coordination with partner agencies. As a result, the activation and response to Hurricane Hermine represented the greatest level of intergovernmental and partner agency coordination to date and fostered decisive decision-making in a collaborative environment. In the first extended activation of the new County EOC, 30 separate agencies were represented during the Hermine incident with typical shifts involving over 120 personnel. An additional 35 citizen volunteers (non-employees) supplemented these efforts by staffing the Citizen Information Line, discussed in further detail in Section 4.3 of this report. This section of the report expounds on the emergency powers presented in the County Attorney s memorandum to provide clarity regarding the working roles and coordination between the State, County, and City during an emergency event. In addition, specific findings and recommendations are presented herein to enhance the operational effectiveness, coordination, perception relative to the structure of emergency management in Leon County State of Florida The Governor of Florida is responsible (statutorily and constitutionally) for meeting the needs of the state and its people in the event of emergencies and disasters. According to the State of Florida CEMP, the Governor may assume direct operational control over all or any part of the emergency management functions within the state once a state of emergency has been declared by executive order. The State CEMP calls for the State Coordinating Officer (SCO), generally the Director of the Florida Division of Emergency Management (FDEM), to be the authorized representative of the Governor charged with managing and coordinating state and local emergency response and recovery efforts. Page 24 Leon County, Florida - Hurricane Hermine After-Action Report

31 Section 1.0 Introduction Attachment #1 Page 29 of Interlocal Agreement with the Leon County Sheriff s Office As previously stated, LCEM is a division of the Leon County Sheriff s Office based on an Interlocal Agreement approved by the Board of County Commissioners in 1999 that transferred the day-to-day oversight of LCEM to the Sheriff. Pursuant to Section , Florida Statutes, the director of each county emergency management agency in Florida is appointed by the Board of County Commissioners or the chief administrative officer of the county; however, the statute also allows for a county constitutional officer (or an employee of a constitutional officer) to be appointed as the county emergency management director. Under the Sheriff, LCEM operates year-round out of the Leon County Emergency Operations Center (EOC) located within the state-of-the-art Public Safety Complex. At the time of the Interlocal Agreement with the Sheriff, there were several emergency functions physically collocated at the Leon County Sheriff s Office which supported the alignment of LCEM under the County Sheriff. These functions included the 911 dispatch system, the physical and hardened space housing LCEM, along with the electrical and information technology infrastructure to support these services in a time of emergency. Since that time, the Consolidated Dispatch Agency (CDA) was created as a standalone agency, which includes the Sheriff, and was placed in the new Public Safety Complex. The EOC, along with other intergovernmental public safety resources, have also relocated to the Public Safety Complex which is physically managed by the County. The emergency management field is a confluence of planning and administrative responsibilities with an emphasis on year-round training activities and intergovernmental and partner coordination. Law enforcement, much like utility restoration or debris clearing and removal, is just one of many vital support functions in the event of a disaster. Emergency management also involves the coordination of public works, communications, information technology and geographic information systems, volunteer services, services provided by partner organizations, emergency shelters, and many other critical functions, insofar as the Board may wish to consider returning this function back to the County Commission year-round. For the overwhelming majority of Florida counties (57 of 67), the day-to-day functions of emergency management are carried out as a department under a County Administrator and subject to the policies and procedures established by the Board of County Commissioners. Most of the remaining 10 counties are fiscally constrained and utilize their Sheriff's Office, including sworn law enforcement officers, due to limited resources. Should the Board wish to discontinue the existing LCEM reporting structure, the Interlocal Agreement with the Sheriff s Office requires a 60 day written notice of intent. Returning LCEM under the Board, reporting to the County Administrator, would more align the County s emergency management function with other Florida counties and help streamline year-round operational matters including staffing, training, and deployment opportunities. Finding #2: As evidenced through the community listening sessions and the CRS Task Force report, perceptions and confusion linger regarding the command structure and who is in charge during an emergency. Leon County, Florida - Hurricane Hermine After-Action Report Page 25

32 Section 1.0 Introduction Attachment #1 Page 30 of 97 Finding #3: The confusion regarding the chain of command and reporting structures did not permeate within the EOC as the CEMP explicitly recognizes the LCEM Director as the lead executive in command of emergency operations and responsible for coordination with partner agencies. Finding #4: Despite any public confusion, the emergency activation and response to Hurricane Hermine represented the greatest level of intergovernmental and partner agency coordination to date, fostering decisive decision-making in a collaborative environment. Finding #5: The 911 Dispatch (CDA) and the Emergency Operations Center are no longer collocated with the Leon County Sheriff s Office out of necessity. They are now collocated in the Public Safety Complex, which is managed by the County, alongside other intergovernmental public safety resources Recommendation 5.1: Direct staff to prepare an agenda item to return the emergency management function on a year-round basis under the Board of County Commissioners, reporting to the County Administrator. Lead Agencies: Leon County Administration City of Tallahassee Incident Management Plan Section , Florida Statutes authorizes and encourages municipalities to create municipal emergency management programs. Such programs shall be coordinated with the county emergency management agency and be consistent with a county s emergency plan. In the event that a municipality does not have an emergency management program, it shall be governed by the county emergency management agency. The City of Tallahassee has an Emergency Management Program and adopted a plan, as contemplated in Section (2), as an all-hazard emergency guide based on the National Incident Management System. While the City s plan is consistent with the County s CEMP, Rule 27P of the Florida Administrative Code enables the County to periodically review the City s plan to determine compliance with the established statutory criteria and existing CEMPs. In recent years, LCEM has reviewed and provided informal feedback to the City on its Incident Management Plan. In its review of the County s CEMP and this After-Action Report, DSI recommended that the City s Incident Management Plan be included as an annex to the County s CEMP. Leon County s CEMP calls for close intergovernmental coordination with the City given its role as a service provider and capacity to marshal resources, all of which were on display at the EOC during the Hermine activation. Like the County CEMP, the City s Incident Management Plan follows NIMS and the Incident Command System by defining the roles and responsibilities of City employees and related agencies during an emergency. It covers the sequence of events that should occur before, during, and after an emergency. Each City department is responsible for maintaining supplemental procedures based upon the City s Incident Management Plan. Consistent with the Leon County CEMP, the City Manager or his/her designee will mobilize City resources and personnel during an emergency to achieve overall incident management objectives identified by the County EOC. To effectuate its incident management objectives, the City created an Emergency Preparedness Coordinator (EPC) position in 1995 to serve as the City s central point of contact for emergency management coordination and planning. The City s EPC is a full- Page 26 Leon County, Florida - Hurricane Hermine After-Action Report

33 Section 1.0 Introduction Attachment #1 Page 31 of time emergency management professional with relevant experience in both municipal and county government. The office of the EPC is located at Fire Station #3 on South Monroe Street, requiring coordination and planning between the City and LCEM to take place via telephone calls, s, or meetings. During Hermine, the City s EPC served in the County EOC throughout the activation to assist LCEM with situational awareness regarding the deployment of City resources and to coordinate resource requests through the County. In accordance with National Incident Management Systems (NIMS), as well as the State and County CEMPs, the City s EPC is required to coordinate its requests for state or federal assistance through LCEM during a declared state of emergency. This is referred to as centralized resource ordering and is the preferred method of resource management under NIMS because it creates a hierarchy for resource requests within government jurisdictions which serves as another recognition of LCEM s jurisdiction over the entire County during a disaster. Finding #6: Florida Statutes authorizes and encourages municipalities to create municipal emergency management programs which shall be coordinated with the county emergency management agency and be consistent with a county s emergency plan. Finding #7: LCEM periodically reviews and provides feedback to the City on its Incident Management Plan. Finding #8: To effectuate the City s incident management objectives, the City employs an Emergency Preparedness Coordinator to serve as the City s central point of contact for emergency management coordination and planning. The City s Emergency Preparedness Coordinator is required to submit requests for state and federal assistance through LCEM during a declared state of emergency. Finding #9: Since the City maintains its own emergency management program, there is a need for ongoing coordination between the City s Emergency Preparedness staff and Leon County Emergency Management to ensure the greatest level of emergency management coordination and planning. Recommendation 9.1: The City s emergency management plan should be included as an annex to the County s CEMP. Lead Agencies: Leon County Emergency Management Role of the Leon County Emergency Operations Center Hurricane Hermine was the first test for the new EOC since the construction of the Public Safety Complex, as it involved fully integrated County and City staff as well as other partner agency representatives in the EOC over multiple operational periods. This extended emergency activation required the prolonged cooperation of all of these entities and the systematic and timely execution of emergency plans, procedures, and protocols to meet the needs of the community during and after the storm. While this section of the After-Action Report provides discussion about the structure of the EOC, Section 4.1 provides much greater detail about how the EOC facilitated the massive coordination of information, personnel, supplies, equipment, and other resources required during Hurricane Hermine in the execution of established emergency plans and protocols. Leon County, Florida - Hurricane Hermine After-Action Report Page 27

34 Section 1.0 Introduction Attachment #1 Page 32 of 97 In anticipation of weather related emergencies, Leon County Administration works in conjunction with LCEM to monitor the severity of the threat and determine an appropriate course of action. Once a determination is made that there is an emergent threat, County Administration leads the efforts to secure the Chairperson s signature for a Declaration of a Local State of Emergency, coordinates resources across County departments, and directs the necessary personnel to the EOC. The LCEM Director ensures other critical organizations and agencies are prepared to activate and allocate staff resources to the EOC through the regular use of conference calls. A detailed discussion about preparations made in the EOC specifically during Hurricane Hermine is included in Section 3.3 of this report. Upon activation, the Leon County EOC serves as a central command and control facility for the effective coordination of disaster management functions during an emergency. The core functions of the EOC are to collect, gather and analyze data; make decisions that protect life and property; maintain continuity of government operations; and communicate critical operational information with all concerned agencies and individuals. The LCEM Director generally makes pre- and post-storm operational decisions rather than directly controlling field assets. Based on the operational decisions made at the EOC, each participating agency makes the tactical decisions necessary to direct its field assets toward the fulfillment of incident management objectives. For example, the LCEM Director may determine the need to open a storm shelter but does not have the authority to compel Red Cross employees to open and staff the shelter nor require the Tallahassee Police Department to post officers on site. Fortunately, participating agencies work together to collectively resolve challenges and rely on the guidance offered by the respective emergency plans. For the coordination of short-term and synchronized recovery activities, the LCEM Director serves as the recognized Coordinating Officer and point of contact for the community, participating local agencies, and the Florida Division of Emergency Management. Once the short-term recovery objectives have been met and long-term recovery begins, leadership transitions to the primary agency representatives (i.e. County Administration, City Administration, Talquin Electric Cooperative). The next section of this After-Action Report details the year-round planning, training, and measures taken under the existing policies and protocols that govern emergency management in Leon County. The information provided in the overview of Hurricane Hermine offers a scope of the emergency event including the size, strength, and path of the storm is critical to the context in which decisions are made by the EOC and participating agencies in preparation for the storm. Those operational decision points, response activities, and recovery efforts are detailed in Section 4 of the After-Action Report. Finding #10: As the central command and control facility for the effective coordinating of disaster management, the County EOC fostered a collaborative environment for partner agencies focused on resolving challenges in the field. Finding #11: At the local level, the process of activating and coordinating resources between the County, City, and partner agencies has worked well with few exceptions. Page 28 Leon County, Florida - Hurricane Hermine After-Action Report

35 Section 2.0 Attachment #1 Page 33 of 97 Planning, Training, and Community Preparedness Efforts 2.0 Planning, Training, and Community Preparedness Efforts Leon County Emergency Management (LCEM) works year-round to plan, train, and prepare for emergency events. LCEM coordinates with a variety of Leon County departments, City of Tallahassee agencies, and outside organizations throughout the year to prepare vital resources in the event of an emergency. This section of the Hurricane Hermine After-Action Report includes an assessment of the various emergency plans and strategies in place to ensure the community s readiness to respond to disasters. 2.1 Emergency Plans and Protocols Leon County has adopted a variety of emergency plans and protocols that govern the activities of emergency response personnel following an incident. Together, these documents provide a strategic and consistent framework with regard to pre- and post-disaster actions to keep the community safe and well-informed during emergency events Comprehensive Emergency Management Plan Chapter 252, Florida Statutes requires all Florida counties to take precautionary steps to prepare for emergencies by developing an emergency management plan that is coordinated and consistent with the State of Florida Comprehensive Emergency Management Plan. The Leon County Comprehensive Emergency Management Plan (CEMP) was developed in accordance with Chapter 252. In its review of the County s CEMP, DSI found the CEMP to be consistent with FEMA Comprehensive Preparedness Guide 101, Developing and Maintaining Emergency Operations Plans. The CEMP is the guide by which Leon County prepares for, responds to, and recovers from emergency events including Hurricane Hermine. Each emergency event is unique and requires different types and degrees of response and recovery actions. Accordingly, the CEMP reflects an all-hazards approach that describes the basic strategies, assumptions, operational goals and objectives, and mechanisms by which the County will mobilize resources and conduct activities to guide and support emergency management efforts. The approach outlined in the CEMP applies to all phases of emergency management preparedness, response, recovery, and mitigation. DSI reports that the County appropriately implemented Hermine operations consistent with the existing CEMP. The Leon County CEMP follows the National Incident Management System (NIMS). On September 13, 2005, the Leon County Board of County Commissioners adopted NIMS as the standard for incident management in Leon County. Adoption of NIMS by state and local organizations is a condition for federal preparedness assistance through grants, contracts, and other activities. NIMS provides a consistent nationwide framework and approach to enable government at all levels, the private sector, and nongovernmental organizations to work together during emergencies, regardless of the incident s cause, size, location, or complexity. It provides a common system and vocabulary that facilitates communication among emergency management and response personnel within and across agencies and jurisdictions. Many personnel from Leon County, the City of Tallahassee, the Leon County Sheriff s Office, and partnering response agencies have received NIMS training, contributing to the efficiency and fluidity of operations within the Leon County EOC as described in Section 4.1 of this report. The Leon County CEMP is divided into three sections (Basic Plan, Recovery Annex, and Mitigation Annex). The Basic Plan section contains preparedness and response elements Leon County, Florida - Hurricane Hermine After-Action Report Page 29

36 Section 2.0 Attachment #1 Page 34 of 97 Planning, Training, and Community Preparedness Efforts Page including general information about hazards in our community, geography, demographics, continuity of operations, responsibilities, financial management, and specific references to standard operating guides, supporting plans, and County and State authority to implement the CEMP. The Recovery Annex provides directions and steps the County must take to recover from an event by: Implementing damage assessment processes Opening disaster recovery centers to assist residents Managing debris Keeping citizens informed through community relations Identifying unmet needs, and Providing emergency housing for citizens The Mitigation Annex contains the process for identifying mitigation projects, identifying sources of funding for projects, and providing mitigation education. This annex discusses the Tallahassee-Leon County Local Mitigation Strategy, discussed in further detail in Section below. The Leon County CEMP is included for reference in Appendix D to this After-Action Report. The latest revision to the CEMP was approved by the Florida Division of Emergency Management in 2012 and is required to be updated again before However, in order to best utilize the opportunity to incorporate lessons learned and best practices identified during Hurricane Hermine, LCEM has requested an extension from the Florida Division of Emergency Management (FDEM) in order to incorporate the feedback and recommendations contained in this After-Action Report. FDEM subsequently approved an extension until February 2017 to update the Leon County CEMP. Finding #12: In its review of the County s response and recovery operations associated with Hurricane Hermine, DSI interviewed staff, reviewed the County s CEMP, and found that the County appropriately implemented Hermine operations consistent with the existing CEMP. Finding #13: The Leon County CEMP is due for an update in accordance with state requirements and as outlined in the CEMP. Hurricane Hermine was a valuable learning experience and provided several opportunities to continually enhance Leon County s emergency preparedness and ability to respond to and recover from disaster events. These opportunities are detailed throughout this report. Recommendation 13.1: Update the Leon County CEMP to incorporate the findings and recommendations identified in this report. Lead Agencies: Leon County Emergency Management Local Mitigation Strategy Some of the damage caused by severe weather or other emergencies can be minimized or eliminated by mitigating the effects of these incidents to protect property and infrastructure. In the summer of 1998, the Florida Department of Community Affairs (DCA) provided funding to all Florida counties and municipalities to assist in preparing a comprehensive Local Mitigation Strategy (LMS) for each jurisdiction. The Tallahassee-Leon County LMS was first adopted in the fall of 2000 by the Leon County Board of County Commissioners and the Tallahassee City Commission and has been updated every five years since its adoption. The LMS is a joint product of the Leon County, Florida - Hurricane Hermine After-Action Report

37 Section 2.0 Attachment #1 Page 35 of 97 Planning, Training, and Community Preparedness Efforts participating local governments and represents a comprehensive set of goals, initiatives, programs, and capital projects intended to reduce risks for the citizens of both unincorporated and incorporated areas of Leon County. The LMS does so by: Identifying hazards to which the County is vulnerable, such as hurricanes, tornadoes, floods, fires, and hazardous materials releases; Determining where the community is most vulnerable to these hazards; Assessing the facilities and structures that are most vulnerable to hazards; Preparing a prioritized list of mitigation projects to take advantage of available funding; Identifying funding sources for the mitigation projects; and Making hazard awareness and education a community goal. Since its initial development, the LMS has been a critically important element of local planning efforts to reduce risk to Leon County citizens and their property from the effects of hazards. The LMS identifies specific strategies and initiatives to mitigate risks associated with disasters and emergency events. As an example, one initiative included in the LMS was the construction of a joint EOC. Efforts during Hurricane Hermine specifically were enhanced by the continued implementation and evolution of the LMS for example, the LMS provides for the development of an emergency notification system for all hazards (discussed in Section of this report), continuous identification of training opportunities for emergency responders (Section 2.2), and provision of community-based emergency shelters throughout the County (Section 4.4), among many other mitigation initiatives. Post-Disaster Redevelopment Plan and Disaster Housing Strategy Leon County, in collaboration with the City of Tallahassee, developed the Leon County Post-Disaster Redevelopment Plan (PDRP) in 2012 to provide a framework to guide decisions for intermediate and long-term recovery and mitigation after a major disaster. The PDRP is coordinated with the Leon County Comprehensive Emergency Management Plan, the Tallahassee-Leon County Mitigation Strategy, and other relevant planning documents. The Leon County Disaster Housing Strategy was developed in 2012 as part of the Post- Disaster Redevelopment Plan process. This document identifies roles and responsibilities of local government for interim housing as needed after a disaster and describes the roles of state and federal government for long-term housing assistance. This strategy details a framework for providing safe, sanitary, functional and accessible temporary housing options for displaced residents in order to expedite long-term community recovery. The scope of the PDRP and Disaster Housing Strategy is primarily concerned with incidents involving extensive long-term redevelopment efforts. During Hurricane Hermine, all short- and long-term community recovery needs were met through the implementation of the CEMP. As such, it was determined that there was no need during Hurricane Hermine to activate the PDRP and Disaster Housing Strategy. Notwithstanding this, these plans should be updated to incorporate lessons learned during Hermine. Finding #14: The PDRP, developed in 2012, is updated on a five-year schedule and should be updated following any disaster event. The PDRP and the Disaster Housing Strategy should be updated to incorporate lessons learned from Hermine. Leon County, Florida - Hurricane Hermine After-Action Report Page 31

38 Section 2.0 Attachment #1 Page 36 of 97 Planning, Training, and Community Preparedness Efforts Recommendation 14.1: Engage the Apalachee Regional Planning Council to initiate a comprehensive update of the PDRP and Disaster Housing Strategy, as appropriate, incorporating lessons learned from Hurricane Hermine. Lead Agencies: Leon County Emergency Management Support Agencies: Tallahassee-Leon County Planning Department Debris Management Plan Leon County maintains a Debris Management Plan that prescribes actions to be taken toward restoring public services and ensuring public health and safety following a disaster. The plan was developed in 2008 from lessons learned during severe weather events including Bonnie/Charley (2004), Frances (2004), Ivan (2004), Jeanne (2004), Dennis (2005), and Fay (2008), and was most recently updated in Consistent with Leon County Ordinance No regarding the removal and management of disastergenerated debris, the plan provides for the prioritization of roads to be cleared to allow access to critical facilities immediately following a storm, activation of debris collection and monitoring contractors, establishment of debris management sites, removal of debris along private roads, and public information efforts. The Debris Management Plan was accepted by FEMA on February 7, The clean up after Hermine required the activation of three of the eleven temporary debris management sites identified in the Debris Management Plan which prevented unnecessary delays in the recovery process. These temporary sites are strategically located in the east, southeast, and southwestern portions of the County. In addition, the need for a fourth temporary site in the northeast was identified to increase the collection efficiency by reducing the travel time for debris removal trucks. The County worked with the Phipps family to establish a temporary debris management site just off Orchard Pond Parkway. FEMA encourages state and local governments to take a proactive approach to coordinating and managing debris removal operations as part of their overall emergency management plan. FEMA offers a cost sharing program for debris removal for federally declared disaster areas. FEMA contributes 75% while the state and local government must contribute 12.5% each. The Sandy Recovery Improvement Act of 2013 authorized an Alternative Procedures Pilot Program for debris removal. This program provides for an increased federal cost share above the standard 75% based on an accelerated timeframe for debris removal. Additionally, the pilot program provides a one-time 2% increased cost-share incentive for counties that have a FEMA-accepted debris management plan with pre-qualified debris removal contractors in place before the start of the disaster. The 2% increase applies to debris removal operations performed within 90 days from the start of the incident period of a major disaster or emergency declaration. Since Leon County s Debris Management Plan was accepted by FEMA in 2014 with qualified contractors in place prior to Hurricane Hermine, the County is eligible to participate in the pilot program. Staff notified FEMA of the County s intent to participate in the Pilot Program on November 9, As a result, the federal cost share for Leon County s debris removal operations for Hermine will be as follows: Page 32 Leon County, Florida - Hurricane Hermine After-Action Report

39 Section 2.0 Attachment #1 Page 37 of 97 Planning, Training, and Community Preparedness Efforts Table 3: Federal cost share for debris removal under the Alternative Procedures Pilot Program, with additional 2% incentive due to the County s Debris Management Plan Timeframe Federal Cost Share (days from start of incident period) % % % % (unless FEMA approves a time extension) As described in Section 4.14 of this report regarding debris removal operations following Hurricane Hermine, all debris removal operations were concluded within the initial 90 days following the storm. Finding #15: As a result of the Debris Management Plan, the removal of debris along private roads was seamlessly integrated into the recovery plans. However, uncertainty remains regarding FEMA s willingness to fully reimburse the County for these roads. Finding #16: In light of the three pre-approved temporary debris management sites as identified in the Debris Management Plan having already been inspected and approved by the Florida Department of Environmental Protection, the County was able to immediately accommodate the 200,000 cubic yards of debris gathered throughout the community. Finding #17: The need for a temporary debris removal site in the northeast was identified following Hurricane Hermine in order to enhance the debris collection process. Recommendation 17.1: Staff should explore establishing a permanent temporary debris removal site on the northeast side of town, and once identified, include this site in an updated Debris Management Plan. Lead Agencies: Leon County Public Works 2.2 Training for Emergency Management Response Personnel The training and qualification of emergency management response personnel is critical to the successful implementation of the National Incident Management System (NIMS), which is the adopted standard for incident management in Leon County, as described above. According to FEMA, NIMS training is required under Homeland Security Presidential Directive (HSPD-5) to receive federal funding, contracts, grants, training, and reimbursement of disaster recovery costs. Under the NIMS training program, personnel must attend training based on their response role and the degree of incident complexity those personnel will likely face. Although each personnel role in an emergency response has different position-specific training requirements, each responder generally is required to take a core group of between two and seven training courses. Leon County staff across the entirety of the organization are thoroughly trained in their role as response personnel during emergencies. There is a continual need, common among all local governments, to identify and provide training opportunities for new staff members who join the organization. To meet this need, LCEM hosts a variety of training and exercise opportunities throughout the year, including workshops, seminars, mock EOC activation exercises, and drills. LCEM maintains a Multi-Year Training and Exercise Plan (MYTEP) that includes these activities. Leon County, Florida - Hurricane Hermine After-Action Report Page 33

40 Section 2.0 Attachment #1 Page 38 of 97 Planning, Training, and Community Preparedness Efforts The MYTEP serves as a roadmap to accomplishing emergency preparedness and training goals and enhancing community preparedness through a proposed schedule of training and exercises. Following is a list of these training and exercise activities hosted by LCEM since the new Public Safety Complex was completed in 2013 (this list does not include the specialized training required of staff within individual County departments and other agencies): Table 4: Recent training, exercise, and coordination activities hosted by Leon County Emergency Management Activity: Date: Hosted a coordination meeting with Leon County Office of Information 3/12/2014 Technology and Federal Bureau of Investigation Training: G-775 EOC Operations and Management Course 3/20/2014 Training: G-775 EOC Operations and Management Course 4/3/2014 Hosted the National Weather Service-Tallahassee Office's Regional Emergency 5/6/2014 Management Hurricane Training Day EOC Operations Integration Planning Meeting with City of Tallahassee 6/10/2014 Emergency Operations Center Full Activation Exercise 6/26/2014 Citizen Information Line Operator Training 6/30/2014 Citizen Information Line Operator Training 7/8/2014 Ebola Outbreak Briefing 10/10/2014 Leon County Citizen Engagement Series EOC Exercise 11/13/2014 Citizen Information Line Operator Training 3/31/2015 Hosted the Big Bend Health Care Coalition Regional Hurricane Exercise 4/22/2015 Citizen Information Line Operator Training 4/29/2015 Training: MGT-412 Sports and Special Event Evacuation Training and Exercise 5/5/2015 Citizen Information Line Operator Training 5/7/2015 EOC Operations Orientation Meeting 6/3/2015 Training: MGT-318 Public Information in an All-Hazards Incident 6/16/2015 Training: MGT-404 Sports and Special Events Incident Management 7/21/2015 EOC Emergency Support Functions Hurricane Table Top Exercise 2/19/2016 Training: L-926 All-Hazards ICS Planning Section Chief 4/4/2016 Hosted USFA All Hazards Incident Management Team Course 4/11/2016 Leon County Citizen Engagement Series EOC Exercise 5/17/2016 Leon County Sheriff s Office Special Operations Division hurricane planning 6/23/2016 meeting Training: G-202 Debris Management 6/29/2016 Training: FL-604 Procurement Disaster Assistance 6/30/2016 Citizen Information Line Operator Training 7/15/2016 Hosted a Zika response coordination meeting with the Florida Department of 8/12/2016 Health Citizen Information Line Operator Training 9/3/2016 Page 34 Leon County, Florida - Hurricane Hermine After-Action Report

41 Section 2.0 Attachment #1 Page 39 of 97 Planning, Training, and Community Preparedness Efforts Finding #18: Many Leon County staff have received both general and position-specific NIMS training. As a result of turnover that naturally occurs in the workforce, however, there is a continual need to identify and provide emergency management training opportunities for County staff. 2.3 Leon County Reserve Policy Recommendation 18.1: Working with Leon County Human Resources, continue to identify NIMS training needs for new and existing County staff and provide training opportunities to meet these needs. Lead Agencies: Leon County Emergency Management Support Agencies: Leon County Human Resources Recommendation 18.2: Staff concurs with DSI s recommendation to undergo a selfassessment of the County s emergency management program through the Emergency Management Accreditation Program. Lead Agencies: Leon County Emergency Management Support Agencies: Leon County Human Resources In response to the after-effects of Tropical Storm Fay in 2008, the Board approved the creation of the Catastrophe Reserve Fund (Policy No. 07-2, Reserves, included in Appendix E to this report). The fund was created to allow access to emergency funds needed in case of a declared local state of emergency. Policy 07-2 requires the County to maintain unrestricted emergency reserves between 3% and 8% of the General Fund/Fine and Forfeiture Fund budget, and to maintain the Catastrophe Reserve at 2%. For FY , the Catastrophe Reserve funding level was set at $2.7 million. The Catastrophe Reserve Fund allows cash flow for expenses related to the disaster. Funds can be used in support of staff overtime, equipment, contractual support (i.e. debris removal) and materials or supplies in the event of a natural disaster. In addition, funds may also be used to pay for solid waste, building permit, and growth management fees for eligible residents for the purpose of home restoration or reconstruction. During Hurricane Hermine, the Catastrophe Reserve Fund proved beneficial to recovery efforts, as it was a source of funding that allowed for the emergency waiver of building permit and growth management fees, as discussed in further detail in Section 4.12 of this report. Finding #19: Leon County s establishment of the Catastrophe Reserve Fund proved beneficial as protocols were established and funding was readily available to assist with local response and recovery efforts. Recommendation 19.1: Amend the Leon County CEMP to reflect Leon County s Catastrophe Reserve Fund and its allowable uses during emergency events. Lead Agencies: Leon County Emergency Management Support Agencies: Leon County Office of Financial Stewardship Leon County, Florida - Hurricane Hermine After-Action Report Page 35

42 Section 2.0 Attachment #1 Page 40 of 97 Planning, Training, and Community Preparedness Efforts 2.4 Community Preparedness A universal challenge for emergency managers is that citizens systematically misjudge lowprobability, high-impact events such as natural disasters. Because of this, it is inherently difficult to convince people to be prepared for an emergency; however, the value of personal preparedness cannot be overstated, and Leon County works throughout the year to help citizens to learn and become more prepared. According to the U.S. Department of Homeland Security, individuals, families, and households play an important role in a community s overall emergency preparedness and response to disasters. By reducing hazards in and around homes through efforts such as raising utilities above flood level or securing unanchored objects against the threat of high winds, individuals reduce potential emergency response requirements. The Department of Homeland Security also encourages individuals, families, and households to prepare emergency supply kits and emergency plans so they can take care of themselves and their neighbors until assistance arrives. Every community is exposed to some level of risk from hazards. Natural disasters cannot be avoided, but their potential effects can be effectively reduced through proper planning. Personal preparedness is the first and most effective intervention to reduce the impact of disasters. Leon County works throughout the year to provide opportunities for citizens to prepare for natural disasters. These opportunities are discussed in the following sections of this report Disaster Survival Guide Each year, Leon County partners with the Capital Area Chapter of the American Red Cross; the Apalachee Regional Planning Council; and Taylor, Jefferson, and Madison Counties to create an annual Disaster Survival Guide. The guide is presented each year at a major news conference at the beginning of hurricane season; in 2016, this press conference was held on June 1. The Disaster Survival Guide provides essential information, applicable on a regional basis, regarding natural disaster preparedness, evacuation tips, and extensive information about the impacts of hurricanes. The guide recommends that each household stock a two-week supply of food and water, based upon the timeframe for power restoration following Hurricane Kate in The Disaster Survival Guide is promoted in the Tallahassee Democrat, the Capital Outlook, weekly regional papers, and is available at the Red Cross office, libraries, the Leon County Courthouse, community centers, City facilities, and local businesses. Red Cross volunteers also distribute the Disaster Survival Guide at numerous community events and neighborhood meetings. Approximately 100,000 printed copies of the Disaster Survival Guide are distributed annually throughout the Big Bend region, which is also available for download from the Leon County website, as well as the Capital Area Chapter of the American Red Cross and emergency management websites. Leon County also maintains a website specifically focusing on community preparedness, During hurricane season, the hurricane-specific website is continually highlighted on Leon County s website to urge residents to prepare for the hurricane season. The 2016 Disaster Survival Guide is included in this report as Appendix F. Page 36 Leon County, Florida - Hurricane Hermine After-Action Report

43 Section 2.0 Attachment #1 Page 41 of 97 Planning, Training, and Community Preparedness Efforts Finding #20: The widespread distribution of the Disaster Survival Guide indicates substantial engagement and interest in personal preparedness. The number of printed guides distributed in 2016 declined slightly from the prior year; however, staff expects interest to increase in 2017 in light of Hurricane Hermine. Build Your Bucket Event Leon County launched the Build Your Bucket initiative in Every year at the beginning of the hurricane season, the Build Your Bucket event is held to highlight the importance of having a disaster plan and kit. This year s event was held on June 8, 2016 in coordination with 25 community partners including City of Tallahassee departments, community nonprofit service providers, and #HurricaneStrong, a national hurricane resilience initiative. Over 250 citizens participated in the 2016 Build Your Bucket event, more than double the number who participated in the 2015 event. At this event, citizens assemble their own disaster supply buckets while learning readiness tips on how to further prepare for a disaster. Buckets include critical starter supplies such as batteries, first aid kits, and flashlights. In addition, emergency first responders attend to answer questions and provide additional insight regarding emergency preparedness to citizens. Finding #21: Leon County s Build Your Bucket event has helped over 350 citizens to become better prepared for disasters in the two years since it was launched. Citizen Engagement Series: Public Safety: Preserving Life, Improving Health, and Promoting Safety Leon County has hosted two Citizen Engagement Series events in recent years focused on the topic of public safety. These sessions, titled Public Safety: Preserving Life, Improving Health, and Promoting Safety, were held at the Public Safety Complex in November 2014 and May 2016 and featured Leon County EMS, the Consolidated Dispatch Agency, and Leon County Emergency Management. The May 2016 Citizen Engagement Series event on the topic of public safety was conducted in partnership with the Capital Medical Society in order to provide an opportunity for local physicians to see how the County s public safety services are provided. Approximately 150 citizens have participated in the two Citizen Engagement Series events on public safety, and a third session is planned for spring These sessions highlighted the operations and services provided by Leon County to deliver high-quality public safety services to the community. The sessions included scenario-based exercises that demonstrate the operation and coordination of the Leon County EOC during activation. Finding #22: Partnering with the Capital Medical Society for the May 2016 Citizen Engagement Series event on public safety was successful and provided an opportunity for local physicians to see how public safety services are provided in Leon County. Recommendation 22.1: Continue to pursue targeted partnerships with local civic organizations to build awareness and familiarity with Leon County s public safety services including emergency management. Lead Agencies: Leon County Community and Media Relations Support Agencies: Leon County Emergency Management Leon County, Florida - Hurricane Hermine After-Action Report Page 37

44 Section 2.0 Attachment #1 Page 42 of 97 Planning, Training, and Community Preparedness Efforts Page Finding #23: Leon County makes several efforts throughout the year to help citizens become better prepared for disasters. Because citizens systematically misjudge low-probability, high-impact events such as natural disasters, it is often difficult to get people engaged in disaster preparedness. However, the County s personal preparedness initiatives can potentially save lives and protect property and are worth every effort. City and Talquin Electric Tree Removal and Replacement Programs During the September 13, 2016 meeting, the Board discussed ways to mitigate future tree-related damage to electrical infrastructure and requested that staff review any existing programs offered by the City and Talquin Electric Cooperative specifically related to the removal of trees from private property. Currently, both City Utilities and Talquin operate very similar tree removal and replacement programs on private property, as described below. The approaches used by Talquin and the City are also similar to several other utility providers across the State of Florida that have also implemented programs to facilitate the pruning, trimming or removal of trees on private property that could present a hazard to power lines. For the purpose of this discussion, it is important to distinguish between power lines and cable or phone lines maintained by communications providers. This was an issue identified by citizens during community listening sessions following Hurricane Hermine. Power and communications lines generally use the same poles, and the lower two lines are typically communications lines. In accordance with industry standards, communications providers and electric utility providers are responsible for clearing trees and limbs that are touching their respective lines. Limbs resting on a communications line generally do not disrupt service, although a limb resting on a power line has the potential to cause an outage. From time to time electricity providers receive customer reports of trees touching a communications line. In these instances the electricity provider will generally pass these reports along directly to the communications provider. City of Tallahassee: The City of Tallahassee maintains tree trimming and pruning guidelines for electric line clearance. The City utilizes its staff and contracted work crews to trim and prune trees away from electric lines. The City s entire electric grid is maintained on an 18-month cycle. In 2014, the City adopted a limited pilot program to address areas with a higher than normal level of tree-related power outages. Under the pilot program, the City increased the clearance between trees and distribution circuits from 4-6 to To date, two of the three geographic areas included in the pilot program have been completed. In the first six months following the completion of the first pilot area, outages lasting longer than one minute were reduced by 75%. In addition to the City s tree trimming and vegetation management program, City customers can also request that a tree be trimmed if it is threatening the power line. Any City Utilities customer can request that the City evaluate trees on private property for removal that may be of hazard to overhead power lines. The City s certified arborist, in consultation with the property owner, will make a determination on the potential impact to utility lines. If a determination is made that the tree needs to be removed, the City will pay for and perform the tree removal and grind stumps from trees removed by the City to six inches below the ground surface at no cost to the property owner. The Leon County, Florida - Hurricane Hermine After-Action Report

45 Section 2.0 Attachment #1 Page 43 of 97 Planning, Training, and Community Preparedness Efforts City offers to provide a seven-gallon tree to any property owner as a replacement for a tree that has been removed. The City does not maintain an active list of the number of trees removed on private property, but estimates that approximately 50 trees are removed each year. Talquin Electric Cooperative: Talquin Electric offers a program similar to the City to evaluate trees on private property that may be of hazard to overhead power lines. Upon determination by Talquin staff that a tree needs to be removed, Talquin will remove the tree at no cost to the property owner. Talquin has arranged for customers who have trees removed on their property to receive a voucher for a replacement from Tallahassee Nurseries. Approximately 140 tree vouchers have been submitted to Tallahassee Nurseries to date in Talquin Electric also conducts vegetation management activities. Talquin is recognized by the Arbor Day Foundation as a Tree Line USA utility for best management practices in utility arboriculture. Talquin is permitted by Leon County to perform the necessary trimming, pruning, or removal of trees to provide 15 feet of clearance on each side of a utility pole and to remove overhanging limbs no higher than 15 feet above primary wires. However, Talquin appraises each potential problem tree situation on a case-bycase basis, and may remove trees on private property that are farther than 15 feet away from the power lines, in consultation with the property owner, if they provide a potential hazard to lines and equipment. Prior to removing trees on private property or along roadways, staff from Leon County s Department of Development Support and Environmental Management (DSEM) will verify that the tree meets the standards for removal and that the property owner has signed an affidavit granting Talquin permission to remove the tree. Finding #24: Talquin Electric Cooperative and the City of Tallahassee both offer tree removal on private property at no cost to the property owner if, based on a professional assessment, a determination is made that the tree causes a threat to the utility s power lines. Both utilities provide replacement trees to the property owner free of charge. Recommendation 24.1: Work with Talquin Electric and City Utilities to further promote tree removal and replacement programs through the annual Disaster Survival Guide and other methods. Lead Agencies: Leon County Emergency Management Support Agencies: Leon County Community and Media Relations Additional Opportunities to Strengthen Community Resilience During community listening sessions hosted immediately following Hurricane Hermine, several citizens emphasized the importance of personal and neighborhood-level preparedness. Citizens identified a need to enhance community resilience in order to better withstand the effects of severe weather events through additional preparation at the household level preparing household emergency plans and gathering supplies prior to the storm and also highlighted a need to improve the resiliency of public infrastructure, including electrical infrastructure and public buildings that may be relied upon during response and recovery efforts. Citizens repeatedly stated that they wanted to know if there was a long-term investment plan to continually improve the resiliency of public infrastructure. Also, citizens wanted to know if priorities were established to address the most important needs of the community when public infrastructure is Leon County, Florida - Hurricane Hermine After-Action Report Page 39

46 Section 2.0 Attachment #1 Page 44 of 97 Planning, Training, and Community Preparedness Efforts compromised and which would be beneficial to expediting the recovery times for public infrastructure. Tree protection and preservation, including an evaluation of public policies related to tree protection, urban forestry practices, as well as tree trimming and management by residents on private property was also an area of significant interest, as discussed in Section above. During the September 7, 2016 meeting discussed in Section 1.4, the Chairman and Mayor discussed long-term disaster planning efforts for the County and City. This included jointly engaging a disaster planning professional to evaluate the community s overall vulnerabilities, resiliency, and community expectations. During the September 13, 2016 Board meeting, the Board discussed this concept and asked staff to provide more information about this issue after the presentation of the Hurricane Hermine After-Action Report. Since the Board meeting, County staff has held discussions with the City about this concept and the City has indicated that it is supportive of partnering to jointly conduct such a study. Finding #25: Additional opportunities exist to assess our community s overall disaster vulnerability and resilience. Recommendation 25.1: Direct staff to prepare a future agenda item for the consideration of partnering with the City of Tallahassee in engaging a disaster planning professional to evaluate the community s overall vulnerabilities, resiliency, and community expectations. Lead Agencies: Leon County Administration Support Agencies: Leon County Emergency Management Page 40 Leon County, Florida - Hurricane Hermine After-Action Report

47 Section 3.0 Overview of Hurricane Hermine and its Impacts Attachment #1 Page 45 of Overview of Hurricane Hermine and its Impacts Hurricane Hermine was the eighth named storm and the fourth hurricane of the 2016 Atlantic hurricane season. Hermine was the first hurricane to make landfall in Florida since Hurricane Wilma in 2005 and was the first hurricane to directly hit Apalachee Bay since Hurricane Alma in The following sections of this report discuss the path of Hurricane Hermine, its associated weather impacts, and damage caused by the storm within Leon County. 3.1 Hermine s Path Hurricane Hermine originated as a tropical wave off the coast of Cape Verde. Leon County Emergency Management (LCEM) began tracking the system on August 18 when the National Hurricane Center first designated it as Invest 99L. As the storm moved westward and into the Caribbean Sea, it began to develop a well-defined center of circulation and was designated Tropical Depression Nine on August 28 as it passed between Cuba and Key West, Florida. While sea surface temperatures were sufficiently warm for development, once a Tropical Depression, Hermine struggled to intensify due to westerly wind shear over the Gulf of Mexico. During this time, there was a wide spread in the track guidance for the storm. As Hermine began to turn to the north in the Gulf of Mexico, deep convection was able to form closer to the low pressure center, likely due to a decrease in storm-relative shear. As a result, the system strengthened into a Tropical Storm on the afternoon of Wednesday, August 31. While initially Hermine was slow to intensify, it quickly strengthened during the 24 hours prior to making landfall and was designated a Category 1 hurricane on Thursday, September 1. During this time, the mean sea level pressure dropped from 1000 mb at 1 PM August 31 to 988 mb at 2:55 PM on September 1. As Hurricane Hermine moved toward the coast during the evening of September 1, the satellite presentation of the storm became increasingly symmetrical and an eye became noticeable. Hurricane Hermine continued to track north-northeast toward the coast and made landfall early Friday morning, September 2, 2016 at 1:30 AM just east of St. Marks near the Wakulla-Jefferson County line. The National Hurricane Center began issuing tropical storm and hurricane watches with the 5 PM advisory on Tuesday, August 30 for portions of the Florida panhandle and Big Bend. Tropical storm warnings were issued for these areas with the 5 AM advisory on Wednesday, August 31. At the 11 PM EDT advisory on August 31, much of the Big Bend area that was under the Tropical Storm Warning and Hurricane Watch was upgraded to a Hurricane Warning. Hurricane forecasts issued by the National Hurricane Center are not exact. Each forecast track point contains a margin of error, which is particularly large at longer range. The three-day forecast has a 230-mile margin of error, extending to a 350-mile margin of error in the five-day forecast. Wind intensity forecasts also similarly include a margin of error, as much as 25 mph at in the five-day forecast. Rapid intensification of a tropical weather system, as occurred with Hurricane Hermine, is one area the National Hurricane Center has difficulty forecasting. The amount of uncertainty contained within a hurricane forecast underscores the importance of being prepared throughout hurricane season. Leon County, Florida - Hurricane Hermine After-Action Report Page 41

48 Section 3.0 Overview of Hurricane Hermine and its Impacts Attachment #1 Page 46 of Declared States of Emergency Governor Rick Scott issued a State of Emergency in anticipation of Tropical Depression #9 (which would later become Hurricane Hermine) on August 31, 2016 for 42 counties including Leon County. The Chairman of the Leon County Board of County Commissioners issued a Local State of Emergency for a seven-day period beginning on September 1. The Local State of Emergency was subsequently extended for additional seven-day periods on September 7 and September 14. Under a Local State of Emergency, pursuant to Section, Florida Statutes, procedures and formalities otherwise required of local governments are waived until such time that the declaration expires. This provides the County the authority to take emergency measures including, but not limited to, the use or distribution of any supplies, equipment, materials, and facilities assembled or arranged to be made available pursuant to the County s disaster emergency plans. The two extensions of the Local State of Emergency allowed for continued administration of debris removal operations, utilization of the County s Catastrophe Reserve funds, and an extended period of waived building permit fees (as described in greater detail in Section 4.12 of this report). Finding #26: The timely issuance of state of emergency declarations was beneficial and provided the support needed to conduct important emergency response and recovery activities such as debris removal operations and the waiver of building permit fees for citizens. 3.3 Preparations at the Leon County Emergency Operations Center As illustrated in the Leon County CEMP, Leon County Emergency Management (LCEM) uses conference calls to exchange information between County, City, and other emergency response partners before, during, and after emergency situations. Typically, LCEM initiates these conference calls when the Apalachee Bay falls within the National Hurricane Center s 5-day error cone of a tropical cyclone, holding one conference call per day. Once the Apalachee Bay falls within the National Hurricane Center s 3-day error cone, two calls are to be conducted daily. As the process of recovery takes over, the need for conference calls will cease. LCEM conducted 27 conference calls throughout the Hurricane Hermine incident, which were vital for the coordination of information and available resources. The first call was held on Tuesday, August 30 and the final call was held on September 12. Although Apalachee Bay was within the five-day error cone as early as August 28, LCEM deferred scheduling conference calls until August 30, as Hermine was still classified as a tropical depression at that time and remained so until it was upgraded to a tropical storm on August 31. The decision to activate the Leon County EOC was made on Wednesday, August 31 as the storm s forecast track and intensity became clearer. Based on the forecast track of Hermine along with the potential for strong winds and heavy rainfall, it was determined that the EOC would begin 24 hour activation at 7 AM on Thursday, September 1. The EOC was activated with full staffing for 111 consecutive hours. After the fourth day of activation, night shifts were staffed with partial activation staffing for the following two days. The following entities were represented in the Leon County EOC, illustrating the extent of coordination among local agencies involved in the response and recovery efforts: Page 42 Leon County, Florida - Hurricane Hermine After-Action Report

49 Section 3.0 Overview of Hurricane Hermine and its Impacts Attachment #1 Page 47 of 97 Leon County Emergency Management Leon County Administration Leon County Public Works Leon County Emergency Medical Services Leon County Animal Control Leon County Community and Media Relations Leon County Sheriff s Office Leon County Volunteer Services Leon County Office of Information Technology Tallahassee-Leon County GIS City of Tallahassee Administration City of Tallahassee Emergency Preparedness City of Tallahassee Communications City of Tallahassee Information and Technology City of Tallahassee Community Beautification & Waste Management City of Tallahassee Electric Utility City of Tallahassee Underground Utilities City of Tallahassee Parks, Recreation, and Neighborhood Affairs Tallahassee Police Department Tallahassee Fire Department Consolidated Dispatch Agency Florida Division of Emergency Management Florida Department of Health-Leon County Florida Department of Transportation Florida Fish and Wildlife Commission Florida Department of Law Enforcement Talquin Electric American Red Cross-Capital Area Chapter The Salvation Army Big Bend A lesson learned from Tropical Storm Fay in 2008 was the need to address a shortage of personnel during extended activation periods. At that time, staff identified some instances where staffing and volunteer levels were inadequate due to long shifts during the 24-hour EOC operations and extended recovery period. To address this issue, the Board approved a modification to the County s Personnel Policy that maximizes staffing levels by designating County employees as EOC Essential during a Declared State of Local Emergency. EOC Essential employees may be required to report to the EOC to assist in the County s disaster response efforts. As a result, despite the extended activation period, the EOC did not experience any staff shortages during the Hurricane Hermine operations. Many outside agency partners also participated in the activation over an extended period to facilitate coordination and input on their agency s policies, resource availability, and other incident-related activities. Finding #27: Despite the extended activation period, the EOC did not experience any shortages of County staff during the Hurricane Hermine operations, due in part to a modification to the County s Personnel Policy that maximizes staffing levels by designating County employees as EOC Essential during a Declared State of Local Emergency. This was a lesson learned from Tropical Storm Fay in Finding #28: During its first test since the construction of the new Public Safety Complex, the EOC facilitated an unprecedented level of interagency coordination. Leon County, Florida - Hurricane Hermine After-Action Report Page 43

50 Section 3.0 Overview of Hurricane Hermine and its Impacts Attachment #1 Page 48 of Sandbag Distribution Prior to the Storm Anticipating a heavy rainfall event, prior to Hurricane Hermine s landfall, Leon County and the City of Tallahassee established sandbag distribution sites at eight locations throughout the County. Staging for sandbag operations began on Wednesday, August 31 and staff replenished materials at several locations until weather conditions began to worsen on Thursday, September 1. Over 30,000 sandbags were distributed during this time more than the previous three years combined. Sandbag distribution sites were established at the following locations: J. Lee Vause Park Intersection of Ranchero Road and Oak Ridge Road Tekesta Park in Killearn Lakes Apalachee Regional Park James Messer Park Winthrop Park Lawrence-Gregory Community Center Jack L. McLean Community Center Finding #29: Establishing sandbag sites the day prior to Hurricane Hermine was beneficial and many citizens took advantage of this opportunity. 3.5 Weather Impacts Associated with Hurricane Hermine Hurricane Hermine made landfall with sustained coastal winds of up to 80 mph. In Leon County the storm brought wind gusts of over 60 mph and sustained tropical storm force winds which lasted for a prolonged period of approximately six hours. Staff at the EOC closely monitored weather stations throughout the County during the storm to ensure the safety of County and City first responders and Public Works personnel who continued working until weather conditions became too dangerous. The highest wind gust was recorded at FSU WeatherSTEM observation site at Doak Campbell Stadium, which recorded a wind gust of 64 mph. However, most weather observation stations in Leon County lost electrical power approximately two hours before the strongest weather arrived, which suggests the possibility that stronger gusts could have occurred. Initial rainfall forecasts called for 5-10 inches of rain in Leon County with isolated amounts of 15 inches or higher possible. Fortunately, these higher isolated amounts did not occur and Leon County ultimately only received approximately 5 of rainfall associated with Hurricane Hermine. High winds associated with Hurricane Hermine caused hundreds of downed trees that blocked roadways throughout Leon County. The storm caused widespread electrical outages affecting City of Tallahassee and Talquin Electric Cooperative customers. As a result of the damages sustained by Hurricane Hermine, the City s electric system experienced the loss of 50% of the high voltage transmission system, 33% loss of the City s electric substations, 75% of the electric distribution system and over 65% (or approximately 75,000) of the City s electric customers. This is the most significant damage that the City s electric system has experienced since Hurricane Kate. In addition, approximately 77% (or approximately 20,000) of Talquin customers in Leon County lost power. For many electric customers on private wells, loss of power also affected water availability as residential well pumps would not operate unless backup power was available. Power outages associated with Hermine affected not only residential customers, but also small businesses, health care facilities, schools, state agencies, infrastructure systems, and more. Page 44 Leon County, Florida - Hurricane Hermine After-Action Report

51 Section 3.0 Overview of Hurricane Hermine and its Impacts Attachment #1 Page 49 of 97 Some gas stations also lost power and did not have backup generators to operate fuel pumps. The storm also affected underground utility infrastructure throughout the County; all of the City of Tallahassee s production wells and wastewater pump stations lost power during the storm, as well as the City s electronic monitoring system. However, despite the significant impacts of power loss to underground utilities, however, the vast majority of City customers experienced no interruption of water or wastewater service. Power outages associated with Hurricane Hermine disabled over 200 traffic signals, or over 59% of all signals countywide. Several local cell towers lost power during the storm as well. Although cell towers are generally equipped with backup batteries, some towers lost their backup power as well as their main power. Hurricane Hermine presented significant challenges for short-term response operations. Section 4 of this report details the specific actions taken by Leon County and its partner agencies to overcome these challenges and effectuate a quick and thorough response. Finding #30: 65% of the City s electric customers and 77% of Talquin s electric customers lost power, reflecting the severity of Hurricane Hermine. 3.6 School, University, and Government Office Closures On Thursday, September 1, Leon County Community and Media Relations issued a news release informing the public that Leon County Government offices and libraries would close at 2 PM that afternoon, would remain closed the following day, and offered a reminder that the County would be closed on Monday, September 5 for the Labor Day holiday. The County s news release also reminded residents that residential waste collection routes will be delayed until further notice and to stay tuned over the weekend for further updates through the Emergency Information Portal and the County s social media platforms. The City issued a similar news release that mirrored the closure hours for Thursday and Friday due to the hurricane. Although local government offices were closed for the extended weekend, hundreds of essential employees were called upon to support the hurricane response and recovery efforts. This included the reopening of certain County facilities over the weekend such as the County s rural waste sites and a comfort station at the Downtown Library, which are both described in greater detail in Section 4 of this report. Historically, the County Administrator, City Manager, and Leon County Schools Superintendent would coordinate school and office closures via conference call prior to anticipated severe weather events. Prior to Hurricane Hermine, Leon County Schools announced on August 31 that schools would be closed on Thursday, September 1 and Friday, September 2. FAMU and TCC closed all day September 1 and 2 but FSU remained open until noon on September 1. Like FSU, state offices closed at noon on Thursday for the remainder of the holiday weekend. The State of Florida CEMP provides that each state agency is required to maintain a Continuity of Operations Plan (COOP). After a state of emergency is declared by the Governor, state office closures are determined on an agency by agency basis according to the departments individual COOP. Most State of Florida offices reopened Tuesday, September 6 following the Labor Day holiday, although some state offices temporarily relocated workers to other state buildings until power was restored. Similarly, most County and City offices and facilities reopened the same day. However, area schools remained closed on Tuesday in light of the widespread power outages. Leon County Schools, FSU, FAMU, and TCC reopened to students on Wednesday, September 7. Public Works staff received notification at approximately 3 p.m. on Tuesday, September 6 from Leon County Schools of their intent to reopen on Wednesday, September 7 and that certain Leon County, Florida - Hurricane Hermine After-Action Report Page 45

52 Section 3.0 Overview of Hurricane Hermine and its Impacts Attachment #1 Page 50 of 97 roads and sidewalks needed to be cleared to accommodate school buses, bus stops, and students who walk to school. Public Works debris removal operations following a disaster are guided by the County s Debris Management Plan, which prioritizes the clearance of arterial roadways first, followed by collector roads, then local roads. Leon County Schools identified that Public Works cut and toss operations had left debris on sidewalks in the vicinity of several schools, and also that low-hanging telecommunications cables remained along some bus routes. To accommodate the last-minute request from Leon County Schools, County and City Public Works staff worked into the night on September 6 to clear sidewalks of debris and clear lowhanging wires from bus routes prior to the schools reopening the following day. In future emergencies, more advance notice would allow Public Works to better coordinate staffing and equipment to meet these needs. Staff identified the need for closer communication with Leon County Schools related to their needs prior to reopening schools. During community listening sessions following Hurricane Hermine, several residents reported a perceived lack of coordination and parity with regard to the closure of government offices. More specifically, people with children found it difficult to return to work on Tuesday (the State of Florida, Leon County, and the City of Tallahassee all reopened on Tuesday) while schools and daycares remained closed and power was not fully restored across the City. Finding #31: Closer coordination with state, university, and school partners regarding the timing of announcements related to closures and reopenings would help citizens to plan for returning to school and work. Recommendation 31.1: Work with Leon County Schools, higher education institutions, and state agencies to coordinate the timing of announcements related to facility closures and reopenings. Lead Agencies: Leon County Emergency Management Finding #32: Closer coordination with the EOC would have benefitted Leon County Schools with regard to debris removal needs for roads, sidewalks, and bus stops prior to reopening schools. Recommendation 32.1: In coordination with Leon County Schools, amend the County s Debris Management Plan to reflect needs for road, sidewalk, and bus stop clearance prior to reopening schools following a disaster. Coordinate with the City to similarly amend its debris management plan. Lead Agencies: Leon County Public Works Support Agencies: Leon County Emergency Management Page 46 Leon County, Florida - Hurricane Hermine After-Action Report

53 Section 4.0 Attachment #1 Page 51 of 97 Hurricane Hermine Preparedness, Response and Recovery 4.0 Hurricane Hermine Preparedness, Response and Recovery Section 4 of this After-Action Report highlights the preparation, response and recovery efforts associated with Hurricane Hermine. This includes the actions taken in advance of the storm, immediate response efforts focused on protecting life and preventing further damage to infrastructure systems and property following an emergency event, and the stages of recovery operations in returning the community and the County organization to a normal state of affairs. 4.1 Inside the Emergency Operations Center during Hurricane Hermine As described previously in this report, the Leon County Emergency Operations Center (EOC) serves as a central command and control facility for the effective coordination of disaster management functions at a strategic level during an emergency. Located in the state-of-the-art Public Safety Complex (PSC) which opened in July 2013, the new EOC allows for the full integration of staff and representatives from Leon County, the City of Tallahassee, the Leon County Sheriff s Office, and a variety of partner agencies during an emergency activation. During its assessment of the County s response and recovery operations during Hurricane Hermine, DSI toured the PSC, reviewed communications systems and floor plans at the EOC, and found the building to be a state of the art facility with significant resources available for all aspects of homeland security and emergency management. Prior to the construction of the PSC, the City of Tallahassee conducted its emergency operations independently and typically assigned a City liaison to the EOC. Integrating County and City staff in the new EOC allows for much greater coordination and information flow among all agencies and departments during an incident. Hurricane Hermine was the first test for the new EOC, as it involved fully integrated County and City staff as well as other partner agency representatives in the EOC over multiple operational periods. This extended emergency activation required the prolonged cooperation of all of these entities and the systematic and timely execution of emergency plans, procedures, and protocols to meet the needs of the community during and after the storm. As indicated in Section 3.3 of this report, 30 separate agencies were represented in the EOC during the Hermine incident with typical shifts involving 80 to 100 personnel in the EOC during the majority of the activation. 35 additional non-staff citizen volunteers supplemented these efforts by staffing the Citizen Information Line, discussed in further detail in Section 4.3 of this report. In all, the Leon County Emergency Operations Center facilitated the massive coordination of information, personnel, supplies, equipment, and other resources required during Hurricane Hermine in the execution of established emergency plans and protocols. Finding #33: The Leon County EOC performed exceptionally well during its first significant test. The EOC facilitated the close coordination of a massive amount of information and resources and was a primary factor contributing to the success of response and recovery operations. Finding #34: During Hurricane Hermine, electrical service to the Public Safety Complex was disrupted and the facility relied on generator power for 25 hours. The Public Safety Complex experienced no disruption of facilities or equipment during the incident. Leon County, Florida - Hurricane Hermine After-Action Report Page 47

54 Section 4.0 Attachment #1 Page 52 of 97 Hurricane Hermine Preparedness, Response and Recovery Statewide Mutual Aid Agreement and Resource Requests Leon County and the City of Tallahassee requested state support through the Statewide Mutual Aid Agreement (SMAA), which enables local governments to coordinate the sharing of resources for emergency aid and assistance before, during, or after a major or catastrophic disaster. The Leon County Board of County Commissioners approved entering into the SMAA in 1995 and approved an updated version of the agreement in Under the agreement, mission requests must come through the EOC and be submitted by the County s Emergency Management Director to the State. To facilitate these missions, the state developed and utilizes EM Constellation, a web-based information management platform. As described earlier in this report, only counties can submit mission requests at the local level and staff has attached all 28 requests associated with Hurricane Hermine that were made through the County EOC (Appendix G). The EM Constellation platform is the state's official mission tasking and tracking system as well as a conduit for sharing information with state and local responders during activations. It allows county, state, federal and mutual aid entities to use the same operating environment when responding to and recovering from an emergency. To illustrate the formal communication taking place between the state and local emergency management personnel, Appendix G captures all of the requests made through the County EOC and offers additional context in the After Action Report County Staff Comments column to the far right in preparation of this report for valueadded insight on the request, response, and final resolution. Many of the 28 mission requests are referenced throughout this report with regard to response and recovery efforts by Leon County and partner agencies associated with Hurricane Hermine. However, staff experienced and identified several concerns with some of the pre-landfall requests denied by the state. Of the 28 mission requests submitted to the state by Leon County through EM Constellation, 10 of those requests were placed in advance of Hermine s landfall. Some of the pre-landfall requests were to address immediate and urgent needs such as delivering additional oxygen containers to the special needs shelter (Mission Request #73), to relocating an evacuee from the special needs shelter to a more appropriate healthcare facility (Mission Request #52), and were successfully carried out, in part, with the assistance of local resources. The potential for flooding and extended power outages were a concern identified throughout the activation and conference calls hosted by the EOC. Unfortunately, several of the County s pre-landfall mission requests were denied by the state in the areas of transportation and public works. In anticipation of a direct hit from Hermine, LCEM placed three mission requests of the Florida Department of Transportation through EM Constellation that were denied by the state. Further, these denied requests demonstrate a lack of clear and consistent communication between the state and local governments: A request (Mission Request #57) for 20,000 sandbags to support sandbag distribution sites was placed for Leon County and the City of Tallahassee to the State EOC. The resource was identified as available by the FDOT office in Midway. However, FDOT staff in the State EOC denied the request. Page 48 Leon County, Florida - Hurricane Hermine After-Action Report

55 Section 4.0 Attachment #1 Page 53 of 97 Hurricane Hermine Preparedness, Response and Recovery A request (Mission Request #51) for 30 generators to power traffic signals was placed on behalf of the City of Tallahassee. The resource was identified as available by the local FDOT office in Midway. However, FDOT staff in the State EOC denied the request. A request (Mission Request #53) for assistance with road debris clearance on Federal Highway Administration (FHWA) roads but was denied by FDOT staff in the State EOC. An FDOT representative at the State EOC called to advise that FDOT contractors could assist with cut and toss operations after Leon County exhausted all of its staff and contractual resources. The County and the City had taken precautions for flooding by establishing eight staging location sites for sandbag distribution as early as Wednesday, August 31. Residents heeded the hurricane warnings and shared the concerns for flooding as over 30,000 sandbags were quickly distributed to residents across the eight locations. The denial of this mission request, despite the available capacity to provide the sandbags according to the Midway office, left County and City residents vulnerable to potential flooding associated with a direct hit from Hurricane Hermine. Fortunately, the rain totals were much less than expected and flooding was minimal. The initial request for 30 generators was made pursuant to procedures outlined in the City of Tallahassee s Traffic Engineering Emergency Plan and consistent with City staff s understanding of how FDOT would respond to a direct impact from a hurricane. This was an attempt by the City to identify areas of need and to provide notice to the state in advance of the hurricane for the prepositioning of resources. The FDOT District 3 Traffic Operations office subsequently confirmed this understanding. As a result of the initial denial, an additional request for 50 generators (Mission Request #112) was approved after Hermine made landfall for traffic signals that are managed by the City of Tallahassee Regional Traffic Management Center. Subsequent to the initial denial of the County s request for road clearing cut and toss assistance (Mission #53), the FDOT Secretary directly contacted the City of Tallahassee the next day and advised that FDOT resources would be made available to assist with cut and toss operations on City-maintained roadways. At that time, the City sought the LCEM Director to submit a mission request (Mission #115) for this assistance along City roadways. The following day on September 3, Leon County Public Works re-requested FDOT resources (Mission Request #164) to assist with cut and toss operations upon learning that FDOT resources were available. This second request was approved, 41 hours after the storm had passed through Leon County. In each case, these pre-landfall mission requests were marked as complete and followed up by a phone call denying the request. According to the EM Constellation Standard Operating Procedure published by FDEM, the mission status term complete signifies that the mission needs have been satisfied or sufficiently mitigated. If the state were to automatically deny these resource requests prior to landfall until the actual impacts of the storm were known, the State EOC could have placed the requests on hold and addressed them immediately after the storm. This would have lessened the confusion about the status of the requests and saved the time taken to re-request the resources previously identified by the County EOC. Leon County, Florida - Hurricane Hermine After-Action Report Page 49

56 Section 4.0 Attachment #1 Page 54 of 97 Hurricane Hermine Preparedness, Response and Recovery Another concern was the direct, yet contradictory, phone communication taking place between the State EOC and the County EOC as well as the emergency support function personnel at the state and local levels (i.e. FDOT at the state and County Public Works or City Management at the local level). The established relationships and open communications between these parties are vital in their day-to-day duties and may offer benefits during a time of emergency. The problem that repeatedly came to the forefront during Hurricane Hermine was that the information relayed by phone or through these personal relationships was contrary to subsequent conversations and the correspondence through EM Constellation. A prime example of this issue was the City s request for generators (Mission Request #51) after being informed by the FDOT office in Midway that there were generators available for use, only to be notified by FDOT representatives in the State EOC that the generators would not be available until all of the City s resources were exhausted following the storm. This theme of communicating outside of the established protocols led to unnecessary delays and frustration. In its assessment of this After-Action Report, DSI recommended that the County work with the Florida Division of Emergency Management on the use of the SMAA and the submission of requests for assistance through EM Constellation. Staff agrees with this assessment. Finding #35: There were multiple instances of communications outside of the established protocols during Hurricane Hermine that provided contradictory information and led to unnecessary delays. County staff agrees with DSI s assessment that the County should work with the Florida Division of Emergency Management on the use of the SMAA and the submission of requests for assistance through EM Constellation Recommendation 35.1: Review the pre-landfall requests with the State EOC and FDOT representatives to identify the state resources available to the community prior to an anticipated emergency. Lead Agencies: Leon County Emergency Management Recommendation 35.2: Review the mission status terms in the EM Constellation Standard Operating Procedures with FDEM and remedy the reasons for labeling denied mission requests as complete. Lead Agencies: Leon County Emergency Management Finding #36: The state s communication and responses through EM Constellation regarding pre-landfall mission requests were inconsistent and not in accordance with FDEM s EM Constellation Standard Operating Procedures. Information Technology Resources in the Leon County EOC The Leon County CEMP, Annex 5 Information and Planning describes the coordination of overall information and planning activities in the EOC during emergency events. The mission of Information and Planning is to collect, analyze, and disseminate information about an actual disaster or potential disaster situation and to coordinate the overall activities of all responders in providing assistance to the affected area. The Leon County Office of Information and Technology assists these efforts by providing Geographic Information Systems (GIS) support, computer and network equipment support, and general IT support during EOC activations. During Hurricane Hermine, the Office of Information and Technology assigned staff from Management Information Systems (MIS) and Tallahassee-Leon County GIS to provide Page 50 Leon County, Florida - Hurricane Hermine After-Action Report

57 Section 4.0 Attachment #1 Page 55 of 97 Hurricane Hermine Preparedness, Response and Recovery support to the EOC. GIS assisted with mapping the locations of downed trees and power lines during response efforts and also supported emergency communications efforts by mapping the location of emergency shelters, Points of Distribution, and comfort stations, which were posted on the County s Emergency Information Portal. Leon County also developed and deployed a web portal for citizens to self-report damage, which assisted in directing damage assessment teams deployed in the field. Tallahassee- Leon County GIS provided the support for mapping and compiling the assessments required to both assist the field teams and to prepare the information for submission to FEMA. Finding #37: The vastly improved GIS system provided important support during Hurricane Hermine, including mapping the locations of emergency shelters, Points of Distribution, and comfort stations; as well as assisting with the damage assessment process following the storm. 4.2 Communications and Public Information Emergency-related public information efforts are guided by the Leon County CEMP, Appendix 14 Public Information, which provides guidelines for disseminating and managing information for the public before, during and after emergencies. During Hurricane Hermine, a joint Public Information function was established between Leon County Community and Media Relations and City of Tallahassee Communications to coordinate emergency communication efforts. This decision was made as a result of lessons learned from Tropical Storm Colin in June 2016 which passed to the southeast of Leon County and brought heavy rainfall and moderately strong winds to the area. The joint Public Information function established at that time was critically important and provided for both the County and City to coordinate communications regarding response efforts. This section of the After-Action Report addresses the efforts taken by Public Information personnel at the EOC to communicate critical emergency-related information with the public Emergency Information Portal and GovDelivery Leon County s Emergency Information Portal (EIP) is a website utilized by the Public Information Officer during emergency events to provide critical information to the public. According to FEMA guidelines, the dissemination of information from one centralized portal is a key to ensuring clear, timely, and accurate information which is accessible to the entire affected population. Even in the age of social media, the source of this information should be the centralized portal. Notwithstanding the tremendous potential benefits of social media (discussed in further detail in Section 4.2.3), when information is disseminated disparately, unofficially and/or inconsistently, it exacerbates the spread of rumor, speculation and misinformation which can complicate emergency response efforts. Leon County s EIP serves as this central portal of vetted, accurate information. During Hurricane Hermine, the EIP was utilized to provide information on the status of available shelters, sandbag locations, road closures, local office and schools closings, health advisories, and volunteer information. The interface for the Public Information Officer (PIO) allows for quick posting of information in real time. The City of Tallahassee maintains its own emergency information page on the City website. However, as a result of establishing a joint Public Information function with the City (as described above), the Leon County, Florida - Hurricane Hermine After-Action Report Page 51

58 Section 4.0 Attachment #1 Page 56 of 97 Hurricane Hermine Preparedness, Response and Recovery Page County and City websites coordinated to provide identical emergency information on both webpages. A potential improvement identified by staff through the Hurricane Hermine experience is to establish a common back-end module for County and City emergency information that could populate both the County EIP as well as the City s emergency information webpage. This would eliminate the need for both County and City staff to post the same information on two websites. Leon County also utilizes GovDelivery, a digital communications platform used to communicate with citizens who register to receive information from the County. GovDelivery allows Public Information staff to communicate via , text message, and RSS feed, as well as via Facebook and Twitter. During Hurricane Hermine, EOC Public Information staff utilized GovDelivery to send emergency-related information such as sandbags and National Weather Service warnings to subscribers. The availability of notification services such as these was a top priority identified by the Citizens for Responsible Spending Post-Hurricane Recovery Best Practices Task Force for greater utilization by Leon County residents. City of Tallahassee Utilities and Talquin Electric Cooperative both maintain online maps allowing the public to view the status of electrical outages during an emergency. Web links to these maps are provided on the County s Emergency Information Portal. During community listening sessions following Hurricane Hermine, several citizens highlighted issues related to the purpose and accuracy of the City s outage map. As indicated in Section 4.9.2, City staff is in the process of identifying additional information from its electrical outage management system that can be communicated with the public during future emergencies. Finding #38: The continued utilization of the joint Public Information function provided for consistent information and messaging through official County and City websites. Media Relations and Information During an emergency, Public Information staff work around the clock in the EOC to communicate critical information to the public about the status of the emergency, measures taken by response personnel to manage the emergency, and the progress of response and recovery efforts. As indicated above, a joint Public Information function between County and City staff was established for Hurricane Hermine. Leon County and City of Tallahassee staff jointly issued 25 media advisories and releases prior to, during, and after Hurricane Hermine. Additionally, Public Information staff facilitated three press conferences with local elected and appointed officials, which provided consistent and unified information about the progress of response efforts to the public and media partners. Leon County Government and the City of Tallahassee are not the only agencies activated in the County EOC with public information personnel and responsibilities. Other partner agencies engage in media and customer relations, which leaves the opportunity for information to be shared with the public before it is shared with the partners in the EOC. For example, Talquin Electric has a responsibility to its customers to provide service restoration updates and related information in the aftermath of a storm. As emergency managers awaited Talquin s internal damage assessment of its electrical grid Leon County, Florida - Hurricane Hermine After-Action Report

59 Section 4.0 Attachment #1 Page 57 of 97 Hurricane Hermine Preparedness, Response and Recovery in unincorporated Leon County once the storm passed, the LCEM Director was made aware of a Twitter post by Talquin Electric indicating that it expected power restoration efforts to take up to two weeks: Staff subsequently learned that the social media post originated from Talquin s main office, not by the representative in the EOC, and that the estimated restoration time was to set expectations for Talquin s overall regional footprint. Soon after, Talquin assured the EOC that the damage in unincorporated Leon County would be repaired much quicker than the regional estimate. Approximately seven hours later, Talquin issued another social media post indicating that it expected power to be restored to 90% of its customers within three to four days. Power outages and associated response efforts are described in further detail in Section of this report. Finding #39: As provided in the CEMP, Public Information staff in the EOC worked closely with local media partners throughout the incident to keep the media informed about the status and progress of response efforts. Finding #40: Three press conferences were hosted during the incident involving County and City elected and appointed officials, providing consistent and unified information to the public and media partners. Recommendation 40.1: Amend the CEMP to reflect hosting a press conference prior to the landfall of any hurricane or tropical storm anticipated to affect Leon County to provide transparent and timely communications about both policy and tactics. Lead Agencies: Leon County Community & Media Relations Support Agencies: City of Tallahassee Communications, Leon County Emergency Management Finding #41: Partner agencies have responsibilities to their constituencies and customers, which may represent geographic areas beyond Leon County, and conflict with efforts to provide unified, clear, and consistent information. Finding #42: City Electric and Talquin independently issued public information, advisories, and social media posts during the incident, which in some instances may not have been coordinated or consistent with official communications from the EOC. Recommendation 42.1: Ensure that all public information and communication efforts among response agencies are coordinated through the Joint Information Center in the EOC. Lead Agencies: Leon County Community & Media Relations Support Agencies: City of Tallahassee Communications, Leon County Emergency Management Leon County, Florida - Hurricane Hermine After-Action Report Page 53

60 Section 4.0 Attachment #1 Page 58 of 97 Hurricane Hermine Preparedness, Response and Recovery Social Media Hurricane Hermine was the first hurricane to hit Florida since the advent and widespread use of social media. In the time since Hurricane Wilma hit Florida in 2005, social media has become a key part of our modern lifestyle, providing immediate access to a wide variety of information sources and connectivity to other people within one s network. As such, social media provides new opportunities to reach citizens during emergency events to quickly provide critical information to a vast audience. During Hurricane Hermine, Public Information staff in the EOC utilized social media, among other communications tools, to keep citizens informed and safe. The County s outreach remained consistent, averaging one social media post per hour throughout the EOC activation. In total, Leon County provided 59 social media Facebook updates before, during, and after the event which received 16,715 likes, comments or shares. The County s Facebook posts reached 305,123 people and increased likes by 1,280 since the storm. In addition, The County s Twitter account issued 82 tweets reaching over 330,000 people, which were shared over 400 times. The outreach provided through social media granted County officials to promptly respond to citizen s concerns, questions, and feedback. Leon County provided immediate responses to citizen s outreach, responding to each inquiry in less than 18 minutes. DSI s assessment was complimentary of Leon County s efforts to provide emergency public information to citizens via social media. Although utilizing social media granted the County the opportunity to promptly broadcast information, address citizen inquiries, and enhance staff s responsiveness, it also created a new set of challenges related to disaster response and recovery efforts. During an emergency, EOC staff seeks to provide a unified repository of information that is consistent, credible, and valid. This resource is the Emergency Information Portal. Communications using social media and all other tools always direct citizens to refer to the EIP for timely and vetted emergency information. Social media communications by government officials outside the EOC should also be informed by and refer back to the EIP. This is a critically important component of emergency communication efforts. Social media allows citizens to share information with one another, which creates opportunities for misinformation and confusion. Because social media communications can instantly reach a virtually unlimited number of followers and subscribers, misinformation can also spread rapidly via social media. For example, after opening the Main Library as a comfort station following Hurricane Hermine, staff observed social media posts indicating that all County libraries were open as comfort stations. While social networks can be self-correcting when it comes to misinformation, active intervention by emergency managers to dispel rumors and reassert correct information to the public through social networks is resource intensive. In the area of social media, DSI s assessment recommends that the County more actively engage in monitoring unofficial sources of information during future emergency events. Finding #43: Social media is a valuable tool for quickly alerting the public to sudden or rapidly developing emergency situations but must be closely monitored for inaccurate information posted and shared by other parties. Page 54 Leon County, Florida - Hurricane Hermine After-Action Report

61 Section 4.0 Attachment #1 Page 59 of 97 Hurricane Hermine Preparedness, Response and Recovery Recommendation 43.1: All social media communications by government officials during emergencies should be consistent with, informed by, and refer back to the Emergency Information Portal. Lead Agencies: Leon County Community & Media Relations Support Agencies: City of Tallahassee Communications, Leon County Emergency Management Finding #44: Social media has the ability to fill in the gap in communication during a disaster when wired communications or electricity fails by directly reaching residents. Communication via Mobile Devices During and after Hurricane Hermine, citizens were able to utilize mobile devices to access emergency information via the County s Emergency Information Portal, the City s emergency information webpage, and other sources. Despite power outages, several options were available for citizens to keep their mobile devices charged using car chargers, auxiliary batteries, charging their phones at work or other locations with power, or by visiting resources made available during the emergency response such as the Main Library comfort station and community centers. Some emergency management agencies across the United States have leveraged mobile technology to develop mobile apps during disasters to communicate emergency-related public information, such as evacuation routes, shelter locations, points of distribution, and other information. Apps may also be configured to receive reports of downed trees, power lines, and other service requests. During Hurricane Hermine, citizens use of the County s Citizens Connect app and the City s DigiTally app spiked considerably; however, these apps do not capture all the information needed for emergency response efforts. In mid-2016, the Florida Division of Emergency Management (FDEM) entered into a contract with the mass notification company Everbridge Inc. to develop and implement a new mass notification system called AlertFlorida. When implemented, this system will provide the ability to issue statewide emergency alerts and notifications to Florida residents, businesses and visitors, including via mobile devices. Citizens will be able to self-register for notifications, and the system will also provide for the ability to send notifications to listings in the White Pages, Yellow Pages, and also send wireless emergency alerts directly to mobile devices. LCEM staff are in preliminary discussions with FDEM regarding the potential for implementation of this system at the local level. Finding #45: Many citizens relied on mobile devices for emergency communications during Hurricane Hermine and opportunities continue to be identified to strengthen the County s ability to communicate with the public via mobile devices. Recommendation 45.1: Evaluate opportunities to reconfigure existing mobile apps or implement a new mobile app for emergency management, preparedness, and disaster communications. Lead Agencies: Leon County Office of Information and Technology, City of Tallahassee Technology & Innovations, Leon County Sheriff s Office Information Technology Section Support Agencies: Leon County Community & Media Relations, City of Tallahassee Communications, Leon County Emergency Management Leon County, Florida - Hurricane Hermine After-Action Report Page 55

62 Section 4.0 Attachment #1 Page 60 of 97 Hurricane Hermine Preparedness, Response and Recovery Page Recommendation 45.2: Work with FDEM to leverage the use of AlertFlorida upon implementation by the State to provide mass notification in the event of future emergencies. Lead Agencies: Leon County Emergency Management Support Agencies: Leon County Office of Information and Technology, Leon County Community & Media Relations FM Radio Communications The Leon County CEMP, Appendix 14 Public Information provides for personnel at the EOC to utilize a variety of communications media, including FM radio, to disseminate critical information to the public during an emergency. To facilitate this, Leon County maintains a telecommunications link with WFSU-88.9 FM which allows LCEM to broadcast live over that frequency from the Public Safety Complex. However, during Hurricane Hermine, the WFSU studio lost electrical power and its backup generator also failed on Friday, September 2. Although the WFSU facility lost power, Leon County was still able to provide timely and frequent emergency information to the public via radio through an existing relationship with Red Hills Radio (99.9 FM, FM, FM, and FM). EOC Public Information staff began issuing public safety announcements immediately following the storm on Friday, September 2 on the Red Hills Radio stations to advertise the Main Library comfort station (discussed in further detail below) and water distribution sites. Additionally, on the morning following Hurricane Hermine s landfall, The Morning Show with Preston Scott on FM took live phone calls and broadcast information about the impact of the storm, which helped to provide awareness to citizens about blocked roads and inoperable traffic signals. During community listening sessions following Hurricane Hermine, several citizens stated that even more radio presence during emergencies would be beneficial to provide timely and accurate emergency information. County and City Public Information staff have already begun conversations with WFSU to provide a great radio presence during future disasters. An opportunity also exists to partner with private radio stations during emergencies, as they can also assist with emergency information by simply reading information posted on the Emergency Information Portal over the air. Finding #46: Additional opportunities exist for the County to enhance its radio presence during emergencies. Recommendation 46.1: Work with local radio partners to increase awareness of the availability of emergency public information. Lead Agencies: Leon County Community & Media Relations Support Agencies: Leon County Emergency Management Recommendation 46.2: Working with WFSU, evaluate opportunities for County and City Public Information Officers to provide live, on-air emergency information during future incidents. Lead Agencies: Leon County Community & Media Relations Support Agencies: Leon County Emergency Management, City of Tallahassee Communications Recommendation 46.3: Designate WFSU as the definitive resource for emergency and public safety information on the radio and identify the personnel needed at the EOC to report this information. Lead Agencies: Leon County Community & Media Relations Support Agencies: Leon County Emergency Management Leon County, Florida - Hurricane Hermine After-Action Report

63 Section 4.0 Attachment #1 Page 61 of 97 Hurricane Hermine Preparedness, Response and Recovery Recommendation 46.4: Re-examine and upgrade if necessary the existing telecommunications link with WFSU in the Public Safety Complex. Lead Agencies: Leon County Office of Information and Technology Support Agencies: Leon County Community & Media Relations Recommendation 46.5: Working with the City of Tallahassee, evaluate including the WFSU facility on the list of critical circuits for power restoration. Lead Agencies: Leon County Emergency Management, City of Tallahassee Utilities Support Agencies: Leon County Community & Media Relations Recommendation 46.6: Work with FSU to provide additional backup generator support to the WFSU broadcast facility. Lead Agencies: Leon County Emergency Management Support Agencies: Leon County Community & Media Relations Recommendation 46.7: Explore providing video production support (satellite uplink, etc.) for media partners in the Public Safety Complex to broadcast briefings and community updates. Lead Agencies: Leon County Community & Media Relations Support Agencies: Leon County Office of Information and Technology, Leon County Emergency Management Elected Officials Role in Emergency Communications Elected officials play an important role in emergency management. Aside from the state and local declarations authorized by the Governor and the Chairman of the Board of County Commissioners, respectively, elected officials establish the parameters and policies that are needed to facilitate effective emergency management and disaster recovery operations. In addition, elected officials are often a familiar face that can offer a sense of calm for citizens anticipating the storm or for those who have suffered through a disaster. Local Elected Officials: During the Hurricane Hermine activation, the County Administrator provided 21 comprehensive updates to Commissioners with timely, accurate, and consistent information regarding preparation, response, and recovery efforts and to assist Commissioners in responding to constituent inquiries. The information provided was consistent with information posted to the Emergency Information Portal (EIP) and encouraged Commissioners to refer citizens to the EIP as the central source of vetted, accurate public information. During Hurricane Hermine, Commissioners provided suggestions to further enhance communications between the EOC and Commissioners by designating a dedicated Commission Liaison during future large-scale emergency events. This would ensure that Commissioners have the most up-to-date information regarding response and recovery efforts at all times. Understandably, Commissioners want to be fully responsive to citizen inquiries in a time of emergency. Local elected officials are encouraged to participate fully in the response to an emergency and there are several ways to maximize the effectiveness of local elected officials participation. First, response efforts can leverage the breadth of elected officials personal networks, particularly through social media, to help Leon County, Florida - Hurricane Hermine After-Action Report Page 57

64 Section 4.0 Attachment #1 Page 62 of 97 Hurricane Hermine Preparedness, Response and Recovery disseminate emergency public information. As discussed above and throughout this report, and as extensively provided through various FEMA guidelines, elected officials sharing of emergency information should always be consistent with, informed by, and refer back to the official source of emergency information in Leon County case, the Emergency Information Portal. Second, based on feedback from elected officials during the recovery, staff will put in place opportunities for local elected officials to participate in response and recovery efforts at comfort stations and at Points of Distribution for food and water. This allows elected officials to interact directly with citizens in their district, answer questions about the response and recovery process, and provide information about the Emergency Information Portal to citizens. The presence of elected officials at these locations also helps to reinforce the visibility of local response and recovery efforts. Finding #47: County Commissioners were provided regular and comprehensive information on response and recovery efforts but additional information regarding opportunities for elected officials to participate as described above should be communicated with Commissioners as recovery efforts evolve. Recommendation 47.1: Designate a dedicated Commission Liaison(s) during future large-scale emergency events to provide a coordinated twoway communication link with elected officials and entities involved in response and recovery operations. Lead Agencies: Leon County Administration Communication Efforts in Relation to Actions by the Governor during Hermine: As provided in the Leon County CEMP, and in accordance with FEMA guidelines, coordination of County, City, state, and federal resources occurs through the EOC. This document thoroughly details many instances in which the coordination of resources from Leon County and City of Tallahassee departments, local nonprofit agencies, and state and federal partners worked extremely well in meeting the post-disaster needs of the community following Hurricane Hermine. In particular, later sections of this report detail the effective communications with the State EOC through EM Constellation to procure bottled water and other resources from the State Logistics Response Center, and separately, to ascertain the status of retail stores immediately following the storm to ensure that citizens were able to replenish food and emergency supplies. However, while communications and coordination between the Leon County EOC and the State EOC were effective in most instances, the Governor made public comments during Hurricane Hermine suggesting that the City was refusing aid and intentionally prolonging recovery efforts. The Governor s actions fueled speculation and the spread of inaccurate misinformation that the City was refusing additional assistance to aid in response and recovery efforts, which added challenges to emergency communications efforts in an already challenging environment. As discussed in great detail in Section of this report, the City not only had mutual aid agreements in place and had activated those agreements prior to Hurricane Hermine, the City was steadfast and consistent in its position throughout the recovery that City Utilities would accept help from any person or organization that could accelerate the speed at which they could safely restore power to citizens. As indicated in several sections throughout this report, and as provided in various emergency management guidelines from FEMA as well as the Florida Division of Emergency Management, the clear, accurate, consistent Page 58 Leon County, Florida - Hurricane Hermine After-Action Report

65 Section 4.0 Attachment #1 Page 63 of 97 Hurricane Hermine Preparedness, Response and Recovery communication of information to the public is of the highest importance during emergency events. This is not only to provide the public with critical information, but to mitigate the rumor, inaccuracy, and speculation that commonly occurs in emergency situations. In contrast to the discussion above, the Governor s communications relative to state and federal disaster declarations were effective and helped to secure resources needed to support response and recovery efforts. As referenced elsewhere in this document, the Governor issued a timely declaration of a state of emergency on August 31 and requested the President to declare a major disaster at the federal level. This was an important step in securing assistance from FEMA following the storm. 4.3 Volunteer Assistance Finding #48: Despite misinformation originating from the Governor s office, at no point during the Hurricane Hermine response and recovery efforts did Leon County refuse assistance from the State. The County made every effort to avail itself of the resources available from the State as well as community partners. Finding #49: The City of Tallahassee was steadfast and consistent in its position throughout the recovery that City Utilities would accept help from any person or organization that could accelerate the speed at which they could safely restore power to citizens. Finding #50: The Governor s communications relative to state and federal disaster declarations were effective and helped to secure resources needed to support response and recovery efforts. During emergency events, VolunteerLEON takes a lead role with respect to volunteer coordination and donated goods. This includes the overall management, coordination and prioritization of volunteer support and distribution of donated resources to meet the needs of impacted areas following a disaster. The Leon County CEMP provides for the establishment of a Citizen Information Line (CIL), which is a 13-station phone bank established in a dedicated space at the EOC, utilized to receive a large volume of citizen inquiries during an emergency. Leon County s Director of Volunteer Services recruits, trains, and supervises both citizens and County employees to staff the CIL. Following Tropical Storm Fay in 2008, staff identified a shortage of personnel to staff the Citizen Information Line. Since that time, over 200 County staff have been trained to operate the CIL during emergencies. During Hurricane Hermine, the CIL operated for 111 hours with the assistance of AmeriCorps volunteers and City and County staff, who responded to 1,800 calls to the CIL throughout the incident. The CIL was deactivated on Tuesday, September 6 and the lead role transitioned to Big Bend to handle citizen inquiries Big Bend lost power to its main facility immediately following Hurricane Hermine. Although the agency stocks backup batteries for their phones, the backup batteries only last for 12 to 18 hours. However, with the support of Leon County Emergency Management, VolunteerLEON, and the Leon County Office of Information and Technology, Big Bend moved its operations and transferred its phone lines to the Public Safety Complex on Friday afternoon, September 2 and was back online the same evening. The CIL continued to handle citizen inquiries during this time. Leon County, Florida - Hurricane Hermine After-Action Report Page 59

66 Section 4.0 Attachment #1 Page 64 of 97 Hurricane Hermine Preparedness, Response and Recovery In 2007, VolunteerLEON partnered with LCEM and the City of Tallahassee s Emergency Preparedness Division to form the Big Bend Community Organizations Active in Disaster (COAD) coalition to improve volunteer coordination during emergency situations. COAD is an association of local, regional, and national humanitarian organizations with operations in the Big Bend region. In accordance with the Leon County CEMP, VolunteerLEON is responsible for activating COAD during emergency events. During Hurricane Hermine, COAD mobilized volunteer resources to ensure no needs went unmet. Services provided by COAD member agencies included food and water distribution, assistance with operating the Main Library comfort station, and assistance to residents with clearing fallen trees and debris from private properties. Although Big Bend was able to provide referrals assisting many County residents following Hurricane Hermine, several citizens during community listening sessions indicated that they were unaware of Big Bend and the services it provides. A finding and recommendation to this effect are included below. Finding #51: During community listening sessions following Hurricane Hermine, several citizens indicated that they were unaware of Big Bend and the services it provides. Recommendation 51.1: Explore opportunities to enhance promotion and awareness of Big Bend and its role during emergencies to reach more citizens and expand services to those in need. Lead Agencies: Leon County Community & Media Relations, City of Tallahassee Communications Support Agencies: Leon County Emergency Management 4.4 Emergency Shelters The Recovery Annex of the Leon County CEMP provides for emergency sheltering operations to accommodate citizens who are displaced as a result of an emergency event. During any type of disaster response, the CEMP designates the Capital Area Chapter of the Red Cross (Red Cross) as the lead agency for opening and managing shelters and evacuees. The general population shelter is staffed by the Red Cross, the Special Needs Shelter is staffed by the Florida Department of Health in Leon County, and pet accessible shelters are staffed by the Big Bend Disaster Animal Response Team (DART). During Hurricane Hermine, LCEM coordinated with the American Red Cross to open emergency shelters at Chiles High School, Florida High School, and Oak Ridge Elementary School. Overall, 231 citizens were served by these emergency shelters. Shelters were opened Thursday, September 1. Shelter operations at Chiles High School and Oak Ridge Elementary School deactivated on September 2 following the storm. Because Leon County Schools reopened on September 7, the Florida High shelter transitioned to Bethel AME Church on September 6. This shelter deactivated fully on September 8. In addition to the general population shelter, the Leon County CEMP provides for emergency sheltering operations to ensure care and attention for those with special medical needs. The Florida Department of Health in Leon County (FDOH) is the lead agency for the medical operation of the special needs shelter and the American Red Cross is responsible for the logistics and support operations of the shelter. This is supported by Section (2)(b), Florida Statutes, which designates FDOH as having the lead responsibility to staff special needs shelters and to recruit assistance from health care practitioners. Based on DSI s input concerning the Americans with Disabilities Act, staff will evaluate the capability of all emergency shelters to Page 60 Leon County, Florida - Hurricane Hermine After-Action Report

67 Section 4.0 Attachment #1 Page 65 of 97 Hurricane Hermine Preparedness, Response and Recovery accommodate special needs shelterees, a concept known as whole community sheltering, in future updates to the CEMP. In accordance with Section , Florida Statutes, and as outlined in the CEMP, LCEM maintains a special needs registry in order to plan for the needs of persons with physical, mental, cognitive, or sensory disabilities who will need assistance with evacuation and sheltering during emergencies. Citizens can register online through the Florida Division of Emergency Management website or by using a paper form provided by Leon County Emergency Management. LCEM promotes the special needs registry as part of its public awareness and outreach program. Prior to Hurricane Hermine s arrival, Leon County EMS worked with Leon County Emergency Management and FDOH to contact individuals on the special needs registry to identify those who needed shelter accommodations. A special needs shelter was established at Florida High School during Hurricane Hermine, which opened on Thursday, September 1 and served 27 clients, including special needs individuals and their caregivers. FDOH organized 25 personnel to staff the special needs shelter during Hurricane Hermine. Transportation services to the shelter were provided by Star Metro, and in cases where the individual could not be safely moved in that manner, Leon County EMS provided the transportation of the patient. In addition to the special needs shelterees included in the registry, a number of elderly and medically needy patients who were not listed on any special needs lists or registries sought special needs shelter services. Leon County Animal Control deployed resources to the shelters at Chiles High School at Florida High to make these locations pet-accessible. Animal Control staff coordinated with the Tallahassee-Leon County Animal Service Center (TLCASC) for pet food and supplies and with the Big Bend Disaster Animal Response Team (DART) for kennels and additional staffing. Resources deployed for pet-accessible shelter accommodations were purchased by Leon County as a lesson learned after Tropical Storm Fay in Finding #52: Through coordination at the Leon County EOC, emergency shelters were opened in a timely fashion prior to Hurricane Hermine. 231 citizens and an additional 27 special needs clients and their caregivers utilized the shelters that were established. Recommendation 52.1: Evaluate the capability of all emergency shelters to accommodate special needs shelterees in future updates to the CEMP. Finding #53: During Hurricane Hermine, staff observed a need to update the special needs registry questionnaire and enhance outreach to prospective registrants. Recommendation 53.1: Explore opportunities to further enhance outreach regarding the special needs registry and to refine the questionnaire. Lead Agencies: Leon County Emergency Management Support Agencies: Leon County Emergency Medical Services Finding #54: Based on a lesson learned from Tropical Storm Fay in 2008, Leon County Animal Control now has additional resources available to assist with pet-accessible sheltering operations. However, the Leon County CEMP, Annex 17 Animal Issues has not been updated since 2007 and does not reflect these additional resources. Recommendation 54.1: Update the Leon County CEMP, Annex 17 Animal Issues to reflect the availability of the mobile pet shelter and other resources that are available from community partners. Lead Agencies: Leon County Emergency Management Support Agencies: Leon County Animal Control Leon County, Florida - Hurricane Hermine After-Action Report Page 61

68 Section 4.0 Attachment #1 Page 66 of 97 Hurricane Hermine Preparedness, Response and Recovery 4.5 Health Care Agencies and Facilities Following Hurricane Hermine, several local health care facilities experienced the loss of electrical power. Section , Florida Statutes requires certain licensed health care facilities including hospitals, surgical centers, nursing homes, assisted living facilities, and others are required to prepare Comprehensive Emergency Management Plans for their facilities. County emergency management agencies are statutorily responsible for reviewing these plans (however, for some other facilities, such as home health agencies, hospices, and others, County Health Departments review emergency plans). The Agency for Health Care Administration (AHCA) has developed compliance criteria which county emergency management agencies must use to review facilities CEMPs. There are 41 licensed health care facilities in Leon County which must submit a CEMP to Leon County Emergency Management for an annual review. In 2015, 35 facilities submitted their plans to Leon County Emergency Management (LCEM) for review. For those facilities that do not submit their plans for review, LCEM notifies AHCA, who has enforcement authority to ensure the facility s plans are reviewed. Among other protocols, AHCA s compliance criteria require facilities CEMPs to describe the procedures to ensure the following needs are supplied: Food, water, and sleeping arrangements Emergency power Transportation 72-hour supply of all essential supplies Additionally, facilities must make provisions for 24-hour staffing on a continuous basis until the emergency has abated and must also describe the policies, roles, responsibilities and procedures for the evacuation of residents from the facility if needed. When disasters occur, health care agencies and facility administrators are charged with the responsibility to care for their clients and residents by executing the provisions of their CEMP. During Hurricane Hermine, the need became apparent to clarify the responsibility of these providers for the patients and residents under their care. The Leon County CEMP establishes the roles and responsibilities of response agencies as well as health care facilities in the County. Specifically, Annex 8 Health and Medical Services provides that, with respect to medical facilities, Leon County Emergency Management: will provide notification, information, updates, and the coordination of evacuation assistance to medical facilities (hospitals, nursing homes, assisted living facilities, and other residential facilities) in event of a disaster. There will be representatives from the Leon County Health Department in the Leon County Emergency Operations Center (EOC) to coordinate with liaisons from hospitals, nursing homes, and assisted living facilities. Annex 8 provides further that residential health care facilities are responsible to develop and implement comprehensive disaster plans which include evacuation procedures and to establish a facility liaison with FDOH at the County EOC to coordinate and assist with the implementation of facility disaster plans. FDOH is the lead agency designated in the CEMP for the implementation of emergency health and medical activities. No local health care facilities evacuated residents during Hurricane Hermine. One administrator of a local health care facility made the following remark published in a local news article, indicating that it was not necessary to evacuate the facility s residents: Page 62 Leon County, Florida - Hurricane Hermine After-Action Report

69 Section 4.0 Attachment #1 Page 67 of 97 Hurricane Hermine Preparedness, Response and Recovery You don t just load them up and take them somewhere in Tallahassee. Where would we put them? That would have overloaded the system. And it really didn t make sense to drive them to Gainesville or anything and bring in massive buses. However, the same facility administrator contacted local elected officials and the Leon County Emergency Management Director with complaints regarding the pace of power restoration efforts. Complaints made to the Emergency Management Director were not made as a matter of medical necessity for patients, but rather as a matter of comfort for the facility s residents. As indicated above, these facilities have emergency plans that describe how the facilities will care for their residents during this type of event. If facility administrators require assistance with the implementation of these emergency plans, FDOH is the lead agency responsible for providing this assistance as indicated in the Leon County CEMP. Finding #55: The restoration of electrical service to area health care facilities was prioritized, as discussed in Section of this report. Local health care facilities are required to have emergency plans that include procedures to transport residents, if necessary, due to the effects of extended power outages but chose to remain at their facilities. Administrators of health care facilities are primarily responsible for the implementation of their emergency plans, and assistance in implementing these plans is available from FDOH as specified in the Leon County CEMP. Recommendation 55.1: Coordinate with the Florida Department of Health in Leon County to identify training opportunities and technical assistance for local health care facilities in the development and implementation of emergency facility plans. Lead Agencies: Leon County Emergency Management 4.6 Emergency Medical Service On Wednesday, August 31, Leon County EMS initiated its Emergency Operations Plan for tropical system impacts and issued a situational report advising staff to take protective measures at home by activating their personal emergency plan and to be prepared for possible full staff recall and the likelihood of extra shift assignments. As previously mentioned, EMS administrative staff was assigned to the EOC on August 31 to provide assistance to LCEM and the FDOH in Leon County by contacting individuals on the special needs registry, coordinate the movement of special needs patients, and help setup medical equipment at the special needs shelter. EMS also identified strategic ambulance staging locations and areas of last refuge throughout the County for staff deployed on ambulances. Alternate response plans were finalized based on these locations which included County facilities, schools, fire stations and hospital facilities. EMS handled over 900 requests for service from the time Hermine began impacting the County through Tuesday morning. Friday morning, September 2 was the peak operational period for EMS. Requests for service during this time were 60% higher than typical call volumes. Staffing levels were increased from Thursday, September 1 through Tuesday, September 6 at levels consistent with the demand for service. Additional ambulances and personnel were deployed at varying levels from the evening of Thursday, September 1 through Tuesday morning, September 6. A third crew member was placed on most ambulances Thursday evening through Friday morning in case crews needed to move patients with potentially no ambulance backup for a prolonged period of time. In a larger-scale event, EMS would have requested the deployment of one or more Ambulance Strike Teams through the Florida Division of Emergency Management. An Ambulance Strike Team consists of five equipped and staffed ambulances and a team leader. Leon County, Florida - Hurricane Hermine After-Action Report Page 63

70 Section 4.0 Attachment #1 Page 68 of 97 Hurricane Hermine Preparedness, Response and Recovery Ambulance Strike Teams are deployed through the state s emergency management system, in coordination with the FDOH, and are sent from non-impacted jurisdictions. Leon County EMS maintained constant communication with hospital partners through the incident. All three hospital emergency departments remained operational and capable of accepting patients throughout the event. There was no loss of medical service capability at any facility. In the EOC, EMS provided support to the FDOH with the coordination of needs at nursing homes, assisted living facilities and citizens with special medical needs. Following the storm, EMS assisted citizens in evacuating buildings where elevators were not operational, refreshed oxygen cylinders, coordinated services with their medical supply provider, and assisted citizens who were without power until they were able to make arrangements with their durable medical supply provider. EMS also assisted with the assessment of medical facilities and nursing homes ability to sustain services on generator power, as described in Section 4.5 above. Finding #56: Between calling special needs registrants, providing medical assistance at emergency shelters, and assisting with the assessment of health care facilities following Hurricane Hermine, Leon County EMS role in support of the Florida Department of Health continues to expand during emergency activations. Finding #57: Leon County EMS was able to meet service demands throughout Hurricane Hermine by pre-deploying ambulances in the field prior to the storm and utilizing a dynamic staffing model to accommodate an elevated level of demand. 4.7 Law Enforcement Local law enforcement agencies played a crucial role in efforts to prepare, respond to, and recover from Hurricane Hermine. Leon County Sheriff s Office (LCSO) and Tallahassee Police Department (TPD) representatives worked together in the EOC to address law enforcement and public safety needs during the incident. Prior to the storm s arrival, LCSO prepared the County Jail by switching to backup generator power in the event of power loss. LCSO and TPD both activated Alpha/Bravo shifts in preparation for the storm, which are consecutive 12-hour shifts that provide for continuous around-the-clock staffing. LCSO and TPD both staffed extra patrols immediately following Hurricane Hermine. Also, because search and rescue operations are sometimes needed following a disaster, the Leon County CEMP provides for some law enforcement officers from both agencies to be supplied with chainsaws during emergency event. While no search and rescue operations were necessary following Hurricane Hermine, these law enforcement officers were able to assist in road clearing efforts following the storm in addition to their primary law enforcement roles. Law enforcement officers also assisted in relaying information back to the EOC regarding areas experiencing extended power outages and significant amounts of storm-related debris. Because of local law enforcement agencies enhanced presence in areas with extended power outages, the decision was made in the Leon County EOC to coordinate resources with the Salvation Army and Red Cross to assist with the distribution of food to these areas. On Friday, September 2, the Leon County Sheriff s Office initiated a mission request through the Leon County EOC for 20 state law enforcement officers (Mission Request #134). These officers were requested to provide nighttime security for area businesses that were experiencing extended power outages. Overall, there were no reports of significant increases in crime or looting in the aftermath of Hurricane Hermine. Page 64 Leon County, Florida - Hurricane Hermine After-Action Report

71 Section 4.0 Attachment #1 Page 69 of 97 Hurricane Hermine Preparedness, Response and Recovery Finding #58: There were no reports of significant increases in crime or looting in the aftermath of Hurricane Hermine. Finding #59: Mission requests for law enforcement assistance issued through EM Constellation were implemented seamlessly. Finding #60: Road clearing assistance provided by law enforcement officers in the field immediately following Hurricane Hermine was useful and allowed County and City Public Works crews to focus efforts on clearing larger trees and major roadways. Recommendation 60.1: Update the Leon County CEMP, Annex 16 Law Enforcement and Security to reflect the availability of law enforcement officers to assist with initial road clearing operations in addition to their primary law enforcement roles. In this update, ensure that these officers are provided with the proper safety equipment, bottled water, and any other supplies needed to safety execute these responsibilities. Lead Agencies: Leon County Sheriff s Office Support Agencies: Leon County Emergency Management Recommendation 60.2: Identify other County personnel who may be in the field during emergency response operations (e.g., Animal Control, Code Compliance, etc.) and ensure these personnel are provided with bottled water and critical emergency public information that they can share with citizens in the field, such as the location of comfort stations and Points of Distribution. Lead Agencies: Leon County Administration Support Agencies: Leon County Emergency Management 4.8 Consolidated Dispatch Agency During Hurricane Hermine, the Consolidated Dispatch Agency (CDA) was represented in the EOC from the point of activation until Monday, September 5, The CDA increased staffing levels on September 1 and September 2 to accommodate the expected elevated call volume associated with the storm. From September 1 to September 5, the CDA fielded over 10,500 calls, and on September 2 alone the CDA experienced an increase of approximately 340% over normal call volume. The Hurricane Hermine event was the first time the Computer Aided Dispatch (CAD) system was subjected to such a massive workload. During Hurricane Hermine, a team of six personnel were relocated to the CDA's backup center via law enforcement escort in the event operations had to be diminished or ceased at the Public Safety Complex. The backup center is located on the second floor of the Leon County Sheriff s Office Jail Facility on Appleyard Drive. However, there were no reported incidents with the performance of the CAD system, which functioned properly throughout the hurricane. During Hurricane Hermine, CDA staff observed a need to improve the process for gathering information on road conditions and storm-related damage. Public Works crews required certain information regarding roads that were reported as blocked, such as which entity has maintenance jurisdiction over the road (County, City, or State), basic details regarding the size of the tree blocking the roadway, and whether the tree is tangled in power lines. Finding #61: No missed calls or system outages occurred at the Consolidated Dispatch Agency during Hurricane Hermine. Leon County, Florida - Hurricane Hermine After-Action Report Page 65

72 Section 4.0 Attachment #1 Page 70 of 97 Hurricane Hermine Preparedness, Response and Recovery 4.9 Infrastructure Restoration Road Clearing Leon County and City of Tallahassee Public Works began the process of clearing debris from roadways in the early evening hours of Thursday, September 1 due to severe weather prior to Hurricane Hermine s landfall. The County and City had activated Alpha/Bravo shifts prior to the storm, consisting of seven crews working twelve-hour shifts as well as administrative support staff. County crews were pre-deployed to six previously-selected hardened school locations (Fort Braden, Woodville, Montford, Chaires, Canopy Oaks and Chiles) as well as one crew stationed at the Public Works facility. Public Works crews continued clearing debris prior to the storm until approximately 11:00 PM when they were pulled back to the deployment locations due to the arrival of tropical storm-force winds. At approximately 4:00 AM on Friday, September 2, when winds fell below tropical storm force, County and City crews were moved back out to resume clearing operations. Public Works efforts were supported by contractors for debris monitoring and removal. These contractors were utilized for the cut and toss operation to facilitate faster openings of blocked roads, and later in the debris removal phase of the response. Cut and toss involves cutting and/or pushing debris off of the roadway sufficiently to allow safe vehicular traffic on all travel lanes. County and City crews continued Alpha/Bravo shift operations on September 2, assisted by contracted cut and toss crews as well as Leon County Jail inmate crews. Overall, Leon County responded to approximately 400 downed trees resulting in eight collector roads and 130 local roads being closed due to tree blockages. City crews responded to another 800 downed trees and 90 road closures. All County roads were open to traffic by Sunday, September 4. In severe weather incidents prior to Hurricane Hermine, the standard practice had been for the City and Talquin to deploy Electric Utility staff with County Public Works crews to clear roads by assisting with discharging power lines wrapped around downed trees. During Hurricane Hermine, however, the City and Talquin anticipated significant damage to their infrastructure as a result of the storm s direct path through the County and initially reserved their staff to make immediate repairs. This caused some delays with respect to road clearing efforts as Public Works crews were unable to quickly remove trees that were wrapped in power lines. By the afternoon of Saturday, September 3, however, Leon County Public Works did receive regular assistance from both the City Electric Utility and Talquin. In post-storm debriefing meetings, County staff acknowledged the City s and Talquin s priorities to maintain and restore their infrastructure. In the future, however, staff will need to coordinate to ensure support from Utilities personnel from the beginning of the incident. City and Talquin staff are aware of the County s concerns and have expressed an interest in working to ensure that future road clearing efforts are not delayed. On Thursday, September 1 prior to Hurricane Hermine s landfall, Leon County Public Works issued a request through EM Constellation for Florida Department of Transportation (FDOT) assistance with cut and toss road debris clearance on federal-aid roadways (Mission #53). During past emergency events, FDOT routinely provided this assistance. However, during Hurricane Hermine, the FDOT representative at the State EOC contacted Leon County Emergency Management and declined the initial mission Page 66 Leon County, Florida - Hurricane Hermine After-Action Report

73 Section 4.0 Attachment #1 Page 71 of 97 Hurricane Hermine Preparedness, Response and Recovery request, advising that FDOT would provide contractors to assist with cut and toss operations only after local resources had been exhausted. The mission request was marked as Complete in EM Constellation, rather than Declined. On September 2 following Hermine s landfall, the FDOT Secretary contacted the City of Tallahassee directly and advised that FDOT resources would be made available to assist with cut and toss operations on City-maintained roadways. This, like other communications involving the State described in Section 4.2.6, was outside of the typical protocol that would normally be expected by local emergency management staff. The City initiated this request (Mission #115) in coordination with the Leon County EOC on September 2. Subsequently, on September 3 Leon County Public Works re-requested FDOT resources to assist with cut and toss operations upon learning that FDOT resources were made available to the City (Mission #164). This second request was approved, 41 hours after the storm had passed through Leon County. On September 4, Governor Scott issued a press release suggesting incorrectly that the County and City had declined further cut and toss assistance from FDOT. Later that evening, the Governor s office retracted the Governor s statement, indicating that it was based on a misunderstanding between the County and City. As indicated earlier in this report, at no point during the Hurricane Hermine incident did Leon County refuse assistance from the State. Finding #62: Pre-deploying Public Works crews at strategic locations throughout the County allowed for a faster and more efficient utilization of resources and accelerated the pace of road clearing efforts following Hurricane Hermine. Finding #63: County, City, and Talquin staff have discussed and acknowledged the need to deploy Road Clearing Task Force crews during future emergency events. Recommendation 63.1: Update the Leon County CEMP to formalize Road Clearing Task Force crews consisting of Leon County Public Works, City of Tallahassee Electric, and Talquin Electric. Coordinate with the City to similarly update its emergency plans. Lead Agencies: Leon County Emergency Management Support Agencies: Leon County Public Works Finding #64: Communications from the State EOC and Governor Scott regarding assistance with cut and toss operations were unclear and counterproductive to response and recovery efforts. Additionally, FDOT representatives should have contacted the Leon County EOC rather than City staff to communicate the availability of resources following the storm (more discussion is provided in Section of this report and Recommendation #34.1). Electrical Infrastructure Pursuant to the Leon County CEMP and as outlined elsewhere in this report, the Leon County Director of Emergency Management is responsible for the overall coordination of response efforts to emergency events. Leon County departments, City of Tallahassee departments, volunteer agencies, and other community partners convene at the Leon County EOC to communicate and coordinate their individual action plans to respond to, recover from, and mitigate the effects of emergencies. In doing so, each participating agency involved in a response will follow their own policies and procedures in order to achieve the overall incident management objectives established at the County EOC. In addition, the City of Tallahassee maintains its own Incident Management Plan that Leon County, Florida - Hurricane Hermine After-Action Report Page 67

74 Section 4.0 Attachment #1 Page 72 of 97 Hurricane Hermine Preparedness, Response and Recovery details the actions and procedures the City will follow in response to an emergency. As indicated in Section of this report, the City s Incident Management Plan is consistent with and supports the Leon County CEMP. As provided in the Leon County CEMP as well as the City of Tallahassee Incident Management Plan, City of Tallahassee Utilities and Talquin Electric are the lead agencies for power restoration activities following a disaster. On the morning of Friday, September 2 immediately following Hurricane Hermine, City of Tallahassee Utilities personnel partnered with the Leon County Sheriff s Office Aviation Bureau to conduct an aerial survey of the power transmission system. As a result of the damages sustained by Hurricane Hermine, the City s electric system experienced the loss of 50% of the high voltage transmission system, 33% loss of the City s electric substations, 75% of the electric distribution system and over 65% (or approximately 75,000) of the City s electric customers. This is the most significant damage that the City s electric system has experienced since Hurricane Kate. In addition, approximately 20,000 Talquin customers in Leon County lost power. The same day, the City of Tallahassee estimated that it could take up to a week to restore power to 90% of its customers. This information was communicated during a press conference conducted at the EOC and communicated by EOC Public Information staff through a news release. Talquin Electric estimated 90% restoration to occur within three to four days. City and Talquin restoration activities after Hurricane Hermine followed industrystandard electric utility restoration priorities, which are also outlined in the Leon County CEMP restoration of the critical transmission system, followed by substation restoration, then the restoration of circuits and sub-circuits. The restoration of these major components of electric infrastructure systems must be conducted first, as these components carry power from substations down to neighborhood-level circuits and ultimately individual connections. Following the restoration of major transmission lines, pursuant to the CEMP, the focus shifts to restoring critical circuits that serve facilities such as hospitals; answering points; potable water, waste water transmission and treatment systems; and other related facilities in support of the health and safety of the affected population. Utility crews then focus on restoring customers, working from the largest outages to smallest outages. By Wednesday, September 7 (five days following the storm), electrical service was restored to approximately 90% of City customers and nearly all Talquin customers in Leon County, significantly ahead of the estimated schedule that both agencies communicated to the public. Nearly all City customers were restored by Friday, September 9 (one week after the storm) with remaining outages generally associated with damage to customers service lines that connect an individual meter to the pole. City of Tallahassee Utilities and Talquin Electric both participate in mutual aid agreements to facilitate the emergency procurement of resources such as equipment, supplies, and labor as needed during disaster events. Consistent with the Electric Utility and industry practices, mutual aid was sought for a number of other utilities within and outside of Florida to provide the needed additional support to restore the electric system. The amount and type of mutual aid utilized is a function of what can safely be utilized during the restoration process. Talquin Electric utilized resources from 11 other electric cooperatives through mutual aid and three contract companies to restore power following Hurricane Hermine. Page 68 Leon County, Florida - Hurricane Hermine After-Action Report

75 Section 4.0 Attachment #1 Page 73 of 97 Hurricane Hermine Preparedness, Response and Recovery Throughout the incident, the City was steadfast and consistent in its position that it utilized as much mutual aid as was possible to safely, effectively, and quickly restore power. A total of 198 mutual aid line crews and staff from nine utilities assisted with restoration efforts. Following are the agencies that contributed this support: Lakeland Electric Jacksonville Electric Authority (JEA) Kissimmee Utility Authority Beaches Energy City of Bartow, Florida Orlando Utilities Commission Keys Energy Gulf Power Lafayette Utilities System (Lafayette, Louisiana) Mutual aid crews arrived in Leon County by mid-day on Friday, September 2 following the storm and assisted with the process of restoring electrical service until Sunday, September 11. The City s vegetation management contractors also provided additional support during restoration efforts. In total, the City more than tripled its field workforce during the restoration efforts. In addition to this mutual aid support, the entire City of Tallahassee Electric Utility staff was placed in emergency operation mode to provide the necessary logistical and administrative activities needed to support field restoration efforts. Power restoration was conducted safely by City, Talquin, and mutual aid crews and no accidents occurred in Leon County during Hurricane Hermine response and recovery efforts. The Florida Department of Transportation also provided mutual aid support for the City s traffic signals by providing, installing, and maintaining portable generators to allow the traffic operations team to quickly restore the traffic signal system in a quick manner. Electrical service was disrupted for over 200 traffic signals throughout Leon County following Hurricane Hermine, or nearly 60% of signals countywide. Portable generators were deployed to bring as many traffic signals back online as possible immediately following the storm, prioritizing major intersections with the most expected traffic. As power was gradually restored, generators were redeployed to other intersections as needed. All traffic signals were restored to main power by Wednesday, September 7. Following the restoration activities, City of Tallahassee Electric conducted an internal after action review to identify what went well and what actions could be taken to enhance the response and restoration efforts in future events. A number of operational and tactical issues were identified which will be addressed in the annual update of City of Tallahassee Electric s emergency plans. A handful of these issues are more global in nature; these issues and actions are provided below for the purpose of highlighting the City s internal actions to continually enhance the emergency power restoration process: 1. Critical circuit listing update: During the course of the restoration efforts, Electric Utility staff observed a need to re-evaluate the classification of utility customers and update the listing of critical circuits for priority restoration. The City is developing an expanded Leon County, Florida - Hurricane Hermine After-Action Report Page 69

76 Section 4.0 Attachment #1 Page 74 of 97 Hurricane Hermine Preparedness, Response and Recovery circuit listing of all of the various customer classes that were identified during the storm restoration so that a review of the circuit priority can be conducted. 2. Situational awareness for utility customers: During and after the restoration process, citizens shared comments and suggestions related to reporting on the status of electric system damage and restoration, including the online outage map. The City is working to determine what additional information can be mined from its outage management system as well as from daily operational reports to enhance this information for sharing with the public. This issue is also discussed in Section in the context of emergency communication efforts. 3. Transmission switching/clearance guidelines: Prior to conducting repairs to the City s transmission and distribution system, certain switching and safety clearances must be performed to ensure employee and customer safety. City Electric has reviewed and created an updated protocol for transmission system clearance and switching that should provide for the same level of safety and regulatory compliance yet yield a faster isolation of the transmission system to allow for work to begin. 4. Rapid Response Teams : City Electric utilized engineering staff to perform a review of the damage to the City s electric infrastructure and provide technical support to field crews. This support work is being reviewed and updated to provide for enhanced communications with the EOC and the City s electric customers and to enhance future restoration efforts. One of the electrical restoration challenges that arose following Hermine was utility customers being directed to the alternative provider to resolve their power outages. These customers reside along the edges of the service territories for City Utilities and Talquin Electric for which both providers have facilities that extend into the other s area. As a result, some County residents have a Talquin meter box that receives power through the City s utility lines and vice-versa. Residents would naturally contact the provider of the meter box to report power outages, as that would also be the monthly billing agent, but the provider would redirect those customers since they are not responsible for the downed utility lines delivering power to the homes. Affecting approximately 2,600 total residents, this matter had previously been identified by both the City and Talquin which already have acquisition plans in place to alleviate the problem. By 2019, the City anticipates full acquisition of the Talquin utility lines within the City s territory. Until that time, both electric providers are committed to resolving reports of outages in these limited areas through direct provider communication rather than redirecting the customer to the alternative provider. Finding #65: While technical advancements have been made to detect and locate power outages since Hurricane Kate over 30 years ago, the physical task of repairing a line or replacing a pole remains a time-consuming process. Finding #66: Following disasters involving extensive damage to electrical system infrastructure, repairs to major power transmission lines and substations are prioritized in order to expedite power restoration to the greatest number of customers. Page 70 Leon County, Florida - Hurricane Hermine After-Action Report

77 Section 4.0 Attachment #1 Page 75 of 97 Hurricane Hermine Preparedness, Response and Recovery Finding #67: City of Tallahassee Utilities and Talquin Electric followed industry guidelines in the restoration of electrical service following Hurricane Hermine specifically, by restoring the critical transmission system first, followed by electrical substations, then the restoration of neighborhood-level circuits and sub-circuits Finding #68: Following a major disaster, it is difficult to accurately predict how long electrical service may be out. This presents significant challenges to public information efforts, as citizens generally want to know how long the restoration process will take in order to make accommodations for food, lodging, and other needs. During Hurricane Hermine, EOC staff reported that callers to the Citizen Information Line appreciated having information about the locations at which utility personnel were working. The City and Talquin made this information available beginning Tuesday, September 6. Recommendation 68.1: Throughout an incident, work with City of Tallahassee Utilities and Talquin Electric to communicate the overall plan for utility restoration as well as general information regarding where utility crews are working to restore service each day. Lead Agencies: Leon County Community & Media Relations, City of Tallahassee Communications, City of Tallahassee Electric, Talquin Electric Support Agencies: Leon County Emergency Management Finding #69: Following an internal after action review, City of Tallahassee Electric is exploring ways to improve reporting of power outages through its online mapping application, incorporating public input received during community listening sessions. Finding #70: The Leon County CEMP provides that the City of Tallahassee and Talquin Electric prioritize restoration of electrical power to vital community resources by coordinating with outside agencies and private entities as needed for the restoration of power. Both agencies maintain mutual aid agreements in order to repair or restore energy systems. Finding #71: During community listening sessions following Hurricane Hermine, several citizens observed a need to enhance driver awareness during emergency events regarding inoperable traffic signals. Many drivers were unaware that inoperable traffic signals should be treated as a 4-way stop. Recommendation 71.1: Include additional traffic safety information in pre- and postdisaster emergency communication efforts. Lead Agencies: Leon County Community and Media Relations, City of Tallahassee Communications Support Agencies: Leon County Emergency Management Underground Utilities During Hurricane Hermine, the City of Tallahassee lost electrical power to all of its water production wells and all of its wastewater pump stations. The City activated mutual aid assistance for underground utilities from six other agencies prior to the storm. Mutual aid crews arrived on Friday, September 2 and assisted with water and wastewater system repairs until Monday, September of the City s major pump stations have backup generators and smaller stations are outfitted to be powered by portable generators. Leon County, Florida - Hurricane Hermine After-Action Report Page 71

78 Section 4.0 Attachment #1 Page 76 of 97 Hurricane Hermine Preparedness, Response and Recovery The City experienced 21 sanitary sewer overflows associated with power loss its pump stations. 15 of these spills were reported to be minor (under 100 gallons). Each of the spills was reported to the Florida Department of Environmental Protection (FDEP) in accordance with Chapter , Florida Administrative Code. FDEP is the agency responsible for the overall policy, permitting, compliance, and enforcement of wastewater programs in Florida. The City of Tallahassee s wastewater treatment facilities and infrastructure systems are permitted by FDEP. Since the City s production wells for potable water are fitted with backup generators, water supply was not interrupted with the exception of some minor disruptions to the distribution system due to uprooted trees. In addition to impacts caused to Leon County, Hurricane Hermine also significantly impacted the Tampa Bay area. Several wastewater spills associated with Hermine were reported by the cities of Tampa, Clearwater, and St. Petersburg; Pinellas County; Sarasota County; and other affected utility operations. Following Hurricane Hermine, the Governor and FDEP issued an emergency rule regarding public notice associated with wastewater spills and other incidents of pollution. The emergency rule was issued in response to sewage spills in the Tampa Bay as well as a sinkhole that opened at a central Florida phosphate plant, both of which involved the discharge of millions of gallons of contaminated wastewater where the public was not notified until well after the fact. To address the issue, the Governor and FDEP have proposed a rule that would require immediate notice to the Department, local governments and the media after a pollution incident is discovered. Emergency Rule 62ER16-1 went into effect September 27, 2016 for 90 days. FDEP also issued Proposed Rule , which is identical to the emergency rule but is going through the normal rulemaking process to make the rule permanent. As of the drafting of this report, the proposed permanent rule is still in the rulemaking process. Finding #72: The Leon County CEMP, Annex 3 Public Works and Engineering does not list Talquin Electric Cooperative as a support agency similar to the City of Tallahassee, although Talquin is listed elsewhere in the CEMP as an agency with primary responsibility for infrastructure restoration. The Recovery Annex of the CEMP and Annex 3 should be updated for consistency and to reflect the City of Tallahassee and Talquin Electric as the lead agencies for water and wastewater infrastructure restoration. Recommendation 72.1: Update the Recovery Annex of the Leon County CEMP and Annex 3 Public Works and Engineering for consistency and to reflect the City of Tallahassee and Talquin Electric as the lead agencies for water and wastewater infrastructure restoration following a disaster. Lead Agencies: Leon County Emergency Management Finding #73: Not all wastewater pump stations are equipped with backup generators. Generators would help in reducing the incidence of sanitary sewer overflows during disasters. The Board of County Commissioners has established a legislative priority for the 2017 Legislative Session to seek hazard mitigation funding for this purpose in partnership with the City. Recommendation 73.1: Work with the City of Tallahassee to seek funding to install backup generators on pump stations. Lead Agencies: Leon County Administration Support Agencies: Leon County Public Works Page 72 Leon County, Florida - Hurricane Hermine After-Action Report

79 Section 4.0 Attachment #1 Page 77 of 97 Hurricane Hermine Preparedness, Response and Recovery Finding #74: The State of Florida has proposed an administrative rule prescribing certain reporting requirements for pollution events such as sanitary sewer overflows. County and City emergency plans should be updated to reflect the new reporting requirements Food and Water Distribution Recommendation 74.1: Amend the CEMP to reflect new reporting requirements for pollution events as outlined in Proposed Rule Lead Agencies: Leon County Emergency Management Support Agencies: Leon County Public Works Due to extended power outages following Hurricane Hermine, many residents in rural areas were without water as electric well pumps could not operate. To address this need, immediately following the storm, Leon County Facilities Management and Parks staff began to assess County properties for any reports of damage in order to determine which facilities could be used for Points of Distribution and comfort stations (discussed in the following section). No major damage was reported at any County property. The decision was made to establish Points of Distribution on Saturday, September 3 at five locations in outlying areas of the County for bottled water and personal hygiene supplies: Lake Jackson Library Ft. Braden Community Center Woodville Library Chaires Community Center Miccosukee Community Center Leon County placed an order at 6:11 p.m. on September 2 through EM Constellation for two trucks of bottled water (Mission #120). The order was approved by the State EOC and an expected delivery timeframe was communicated to the County EOC. Trucks were dispatched from the State Logistics Response Center in Orlando, arriving overnight within the expected delivery timeframe at the County s staging area, which was established at the Fleet Management facility on Blair Stone Road. Hygiene supplies were also ordered on September 2 and four additional truckloads of water were ordered on September 3 (Missions #122 and #137). Staff from the Leon County Solid Waste Division, Fleet Management, and Facilities unloaded and staged the bottled water and hygiene supplies upon arrival and loaded the water onto smaller trucks for deployment to the Points of Distribution. This process serves as an example of how the resource request process and communications between the County EOC and State EOC should occur, in contrast with the resource requests issued for assistance with road debris clearance outlined in Section earlier. Points of Distribution operated 12 p.m. to 6 p.m. from Saturday, September 3 through Monday, September 5. The Woodville location remained open Tuesday, September 6 due to continued demand. The City of Tallahassee also distributed bottled water at Jack McLean Community Center. Approximately 180,000 bottles of water were distributed by the County and City during Hurricane Hermine. Also, on September 3, the Director of the Florida Division of Emergency Management notified the County EOC of the potential availability of mobile battery charging stations from Duracell and AT&T. These resources were secured by the State EOC and deployed to locations in Leon County including the Woodville location, which was staged at the J. Lewis Hall, Sr. Woodville Park and helped residents to keep their mobile devices charged. Leon County, Florida - Hurricane Hermine After-Action Report Page 73

80 Section 4.0 Attachment #1 Page 78 of 97 Hurricane Hermine Preparedness, Response and Recovery Food service was also necessary as extended power outages caused many citizens perishable food to spoil. The Salvation Army and the American Red Cross Capital Area Florida Chapter provided meal service from September 3 to September 9. The Salvation Army deployed food canteens at the Lake Jackson Library, Ft. Braden Community Center, Chaires Community Center, and Woodville Community Center/Woodville IGA store as well as several roving units to neighborhoods with extended power outages. The Red Cross also deployed mobile food distribution trucks to locations with extended power outages. The City of Tallahassee utilized StarMetro to assist with transportation from affected areas on the south side of Tallahassee to a meal service location at Jack McLean Park. In total, the Salvation Army served over 14,000 meals and the Red Cross served over 6,500 meals and 23,000 snacks. During community listening sessions following Hurricane Hermine, citizens inquired as to why Leon County Emergency Management did not provide ice as a part of the response effort. Ice is generally not considered an essential life-saving commodity, except in certain circumstances involving keeping medications cool, and the state typically does not grant requests for ice when stores are open that can provide it. By way of example, a request from Madison County Memorial Hospital for dry ice during Hermine in order to cool vaccines was denied. Most grocery stores and big box stores in Leon County were open shortly following Hurricane Hermine. Finding #75: The process for requesting mutual aid assistance for bottled water from the State EOC worked seamlessly. Bottled water was shipped immediately and delivered on time to the County staging area, allowing County personnel to quickly distribute the water to areas in need. Finding #76: During Hurricane Hermine, representatives from the Salvation Army and American Red Cross observed a need to identify a list of predetermined sites throughout Leon County that may be suitable for food service. The Leon County CEMP does not identify these locations. Recommendation 76.1: Amend the Leon County CEMP to provide for the identification of sites throughout the County that can serve as stationary food service locations. Lead Agencies: Leon County Emergency Management Support Agencies: Tallahassee-Leon County Planning Department Finding #77: The Board of County Commissioners has established a legislative priority for the 2017 Legislative Session to seek funding to improve the disaster resilience of community centers and other facilities in Leon County that could serve as Points of Distribution or comfort stations. Recommendation 77.1: In support of the Board s 2017 State and Federal Legislative Priorities, seek funding to enhance the disaster resilience of facilities throughout the County that may serve logistical needs during emergency events. Lead Agencies: Leon County Emergency Management Support Agencies: Leon County Facilities Management Finding #78: During Hurricane Hermine, many residents needed a location to recharge mobile devices. The County, City, and private sector partners were able to meet this need by opening libraries and community centers and deploying mobile charging stations. Page 74 Leon County, Florida - Hurricane Hermine After-Action Report

81 Section 4.0 Attachment #1 Page 79 of 97 Hurricane Hermine Preparedness, Response and Recovery 4.11 Comfort Stations In addition to points of distribution, the Leon County CEMP provides for the establishment of comfort stations to help residents cool off, hydrate and to receive information from area nonprofit agencies. Leon County opened a comfort station at the Main Library with assistance from the American Red Cross from Saturday, September 3 to Wednesday, September 7. Over 5,000 citizens visited the comfort station during this time. Branch libraries were also opened to the public as power was restored. Additionally, the City of Tallahassee opened Jack McLean Community Center, Sue McCollum Community Center, and Palmer Munroe Teen Center as comfort stations. Information about comfort stations was announced during press conferences and was disseminated by EOC Public Information staff through news releases, social media posts, the County s Emergency Information Portal, and the City s emergency information webpage. Citizens reported to Library staff that they appreciated having a place to go with air conditioning, restrooms, drinking fountains and charging stations where they could stay as long as they liked. Citizens also enjoyed being around other people and utilized library resources such as books, magazines, computers, and the board games that Library staff made available. People stayed at the comfort station after their devices were charged, and many came back each day. For future emergencies, each Library facility could operate as a comfort station as long as the facility has electric service. During community listening sessions following Hurricane Hermine, some citizens reported that phone calls made to the Library to inquire about the status of the comfort station were unanswered. The Library functioned exclusively as a comfort station from September 3 through September 7 and suspended its normal operations. Accordingly, the efforts of Library staff were focused on the operation of the comfort station and providing relief to citizens. The Library s phone lines were sent to a voice recording during this time, which provided an announcement to callers that the Library was open as a comfort station. Finding #79: During community listening sessions following Hurricane Hermine, some citizens indicated that they were unaware of the availability of comfort stations despite efforts to promote them through a variety of communications avenues as described above. Citizens suggested creating greater awareness of comfort stations by deploying signage along major roadways. Recommendation 79.1: Deploy variable message boards on major roads directing citizens to comfort stations during future emergencies. Lead Agencies: Leon County Emergency Management Support Agencies: Leon County Community & Media Relations, Leon County Public Works Recommendation 79.2: Identify all Leon County Libraries as potential comfort stations for future emergencies. Lead Agencies: Leon County Emergency Management Support Agencies: Leon County Libraries 4.12 Permit Fee and Waivers and Relaxed Inspection Requirements To help the community rebuild after Hurricane Hermine, Leon County and the City of Tallahassee made a joint decision on Monday, September 5 to waive growth management and building permit fees for storm-related repairs, as well as permit fees to remove storm-damaged trees, as long as the work was completed by either the homeowner or a licensed contractor. Fees were also waived retroactively for completed projects associated with damage from Leon County, Florida - Hurricane Hermine After-Action Report Page 75

82 Section 4.0 Attachment #1 Page 80 of 97 Hurricane Hermine Preparedness, Response and Recovery Hurricane Hermine. Additionally, in order to expedite power restoration, electrical service was allowed to be reconnected by a licensed electrical contractor with final inspections conducted at a later date. The timing of the County and City decision was important, as it occurred on a holiday weekend when permit offices were closed. This allowed citizens to begin making emergency repairs immediately without having to worry about securing permits in advance. As indicated in Section 2.3 above, Leon County maintains a Catastrophe Reserve Fund to allow access to emergency funds during a declared local state of emergency. The Catastrophe reserve Fund can be used in support of staff overtime, equipment, contractual support (i.e. debris removal) and materials/supplies in the event of a natural disaster. In addition, funds may also be used to pay for solid waste and building/growth fees for eligible residents for the purpose of home restoration/construction. Leon County s Catastrophe Reserve Fund was utilized to reimburse the building fund for fees waived in support of the restoration effort. At the time this report was prepared, fees have been waived or refunded for 82 County building permits totaling nearly $15,000 in fees, although staff is still receiving additional requests generally associated with after-the-fact permits and delays associated with insurance related issues. Finding #80: The joint decision made by the County and City to waive permit fees for storm-related repairs was effective and allowed citizens to immediately make emergency home repairs while permit offices were closed Mosquito Control Recommendation 80.1: Amend the Leon County CEMP to include the emergency waiver of building permit fees for disaster-related repairs. Lead Agencies: Leon County Emergency Management Support Agencies: Leon County Development Support and Environmental Management, Office of Financial Stewardship Because Hurricane Hermine did not cause significant flooding issues, Leon County Mosquito Control was able to resume normal operations on Monday, September 5. At that time, Mosquito Control began focusing fog truck spraying in historically problematic areas such as Killearn Lakes, the Lake Jackson area, Chaires area, Woodville, and Ft. Braden. Costs associated with enhanced mosquito control efforts following Hurricane Hermine were generally minor; however, these costs may be reimbursable by FEMA under the Public Assistance Program. Staff has initiated the process to seek reimbursement for these costs (Mission #294). Further discussion regarding FEMA assistance in other areas is provided in Section 4.17 below Debris Removal and Monitoring Since 2012, Leon County and the City of Tallahassee have utilized joint contracts for debris removal and debris removal monitoring services to provide additional resources to County and City Public Works road crews when removing large volumes of disaster-generated debris. These contracts demonstrate exemplary coordination and communication between the two local governments to ensure that enough personnel are made available in a cost-effective manner and that all work is done in compliance with FEMA reimbursement standards. In fact, DSI s assessment found the County s debris clearance and removal practices to be well-organized, well-publicized, and generally outstanding. Crowder-Gulf, having been activated on September 3 by both jurisdictions for cut and toss assistance to clear roadways, were subsequently engaged on September 5 to begin debris removal the following week on September 12. DRC Emergency Services was activated on Page 76 Leon County, Florida - Hurricane Hermine After-Action Report

83 Section 4.0 Attachment #1 Page 81 of 97 Hurricane Hermine Preparedness, Response and Recovery September 20 and began removing debris on September 21. Debris removal operations occurred in two passes throughout the County with the goal to remove all debris from all public and private roads and rights-of-way in the County, including within City limits. In a coordinated effort with Crowder Gulf, Waste Pro began assisting with the removal of smaller debris piles and bulky items during the second pass, which ultimately allowed them to return to their normal pickup schedule. An automated call system was utilized to make residents aware that emergency debris removal services had been activated, inform citizens of what to expect and direct them to the EIP for additional details, and welcome questions by sharing contact information by phone. Several types of debris were collected following the storm, including vegetative material, building materials, furniture, appliances, household hazardous waste, and other items. Also, as part of the debris removal process, debris contractors removed "leaners and hangers," which are trees and limbs that have not completely fallen but are within the right-of-way. Leon County Public Works and the County s debris removal contractors ultimately collected over 200,000 cubic yards of debris associated with Hurricane Hermine. Simultaneous to the debris removal activation, the County and City also activated their debris removal monitoring service vendor, Witt-O Briens Response Management, Inc. The status of debris operations was communicated by Public Information staff at the EOC using maps posted to both the County s Emergency Information Portal and the City s emergency information webpage along with a three-day planned work schedule describing the location where debris removal personnel were working. Finding #81: Leon County Public Works and the County s debris removal contractors ultimately collected over 200,000 cubic yards of debris associated with Hurricane Hermine. Finding #82: Debris removal efforts were communicated by an automated call system and regularly updated maps posted on the EIP. Recommendation 82.1: Although there were many communications efforts related to establishing debris removal expectations to the public, additional operational and communication improvements should be made to better identify the planned allocation of resources. Lead Agencies: Leon County Community and Media Relations Support Agencies: Leon County Public Works 4.15 Initial Impact Damage Assessment Hurricane Hermine resulted in extensive damage throughout the community. The results from the initial impact damage assessments were as follows: Destroyed properties: 45 Properties with Major Damage: 187 Properties with Minor Damage: 259 Affected properties: 238 Immediately following Hurricane Hermine, LCEM and the Capital Area Chapter of the American Red Cross began collecting information on damaged homes. The Red Cross, a volunteer organization stretched thin servicing a region-wide emergency, was assisted by the County and City which provided 40 personnel over the course of two days to assist with the county-wide damage assessment process by ensuring the greatest degree of coverage to collect information on damaged properties. Leon County, Florida - Hurricane Hermine After-Action Report Page 77

84 Section 4.0 Attachment #1 Page 82 of 97 Hurricane Hermine Preparedness, Response and Recovery Leon County also developed and deployed a web portal for citizens to self-report damage which assisted in directing the teams deployed in the field. Tallahassee-Leon County GIS provided the support for mapping and compiling the assessments required to both assist the field teams and to prepare the information for submission to FEMA. The data collected from the initial impact damage assessments was submitted to FDEM so that the state could request a Preliminary Damage Assessment for Individual Assistance. These efforts successfully enabled Leon County residents to apply for FEMA Individual Assistance programs. Finding #83: As demonstrated by the initial impact damage assessments accepted by FEMA, Hurricane Hermine caused extensive damage to residential homes across Leon County. Finding #84: Initial Impact Damage assessment is a function traditionally facilitated by the American Red Cross. However, the County and City together deployed 40 personnel to assist with data collection during Hermine, and the Red Cross and LCEM provided justin-time training on initial impact damage assessments. These teams were able to conduct a county-wide damage assessment in two days that successfully enabled Leon County to be eligible for FEMA Individual Assistance. Recommendation 84.1: Evaluate opportunities for Leon County to assume the lead role in conducting damage assessments in the future and amend the CEMP as appropriate. Lead Agencies: Leon County Administration Support Agencies: Leon County Emergency Management Recommendation 84.2: Identify and recruit personnel from County and City departments to staff initial impact damage assessment teams and provide training in the FEMA Damage Assessment criteria annually prior to hurricane season. Lead Agencies: Leon County Administration, Tallahassee City Manager s Office Support Agencies: Support: Leon County Emergency Management Recommendation 84.3: Implement updated technology that will allow for field data collection that integrates with GIS technology. Lead Agencies: Leon County Office of Information and Technology Support Agencies: Leon County Emergency Management 4.16 County and City Navigation Teams Following Hurricane Hermine, Leon County partnered with the City of Tallahassee to establish navigation teams to assist citizens with questions and information regarding the recovery. Navigation teams provided general information to citizens on recovery processes such as filing insurance claims, resources to assist with emergency needs and recovery efforts, permit fee waivers, and other general information. While the CEMP provides for the deployment of a Community Recovery Center (CRC) following a disaster with VolunteerLEON as the lead agency based on a lesson learned from Tropical Storm Fay, the availability of trained volunteers and parent organizations were limited due to the regional impact of the hurricane. The navigation teams provided a similar community resource to provide immediate and thorough relief to citizens impacted by the disaster while Leon County and community partners worked to restore services and critical infrastructure. Navigation teams were staged at the North Florida Fairgrounds and at the Frenchtown Renaissance Center from September 9 to September 11, Additionally, a telephone hotline and specialized address (StormRecovery@leoncountyfl.gov) were established and Page 78 Leon County, Florida - Hurricane Hermine After-Action Report

85 Section 4.0 Attachment #1 Page 83 of 97 Hurricane Hermine Preparedness, Response and Recovery monitored following the closing of the navigation centers. Most customers at the navigation centers were elderly, disabled, and/or fixed income citizens. Most customers questions were focused on food assistance, tree removal assistance, transportation, and property damage/insurance claims. Overall, the navigation teams were well-received by citizens, many of whom expressed feeling better about their situation after talking with navigation team members. Finding #85: While the CEMP calls for the deployment of Community Recovery Centers (CRC) following a disaster, Leon County and the City of Tallahassee recognized the limited availability of trained volunteers across the region and decided to establish navigation teams to provide this service. Finding #86: While Leon County and the City of Tallahassee recognized the need to establish navigation teams following Hurricane Hermine to meet the needs of affected citizens, the Leon County CEMP provides for the establishment of a Community Recovery Center (CRC) following a disaster. Staff observed an opportunity to continue to enhance this resource for future emergency events FEMA Assistance Recommendation 86.1: Direct staff to identify a community organization that can assist with navigating insurance claims as a member of COAD and as a participant at Community Recovery Center following a disaster. Amend COAD governing documents and the Leon County CEMP as appropriate. Lead Agencies: VolunteerLEON Support Agencies: Leon County Emergency Management Recommendation 86.2: Pre-identify suitable sites that can serve as Community Recovery Centers, as well as logistical support needs and site layouts. Assign sworn law enforcement officers to direct facility security operations. Lead Agencies: Leon County Emergency Management Support Agencies: VolunteerLEON, Leon County Facilities Management, City of Tallahassee Environmental Services & Facilities, Leon County Sheriff s Office In advance of the Hurricane, Governor Scott declared a State of Emergency for 42 counties, including Leon County, on August 31, Based on the damage assessments by local officials throughout the state, Governor Scott requested a Presidential Disaster Declaration for Hurricane Hermine on September 20, The next day County staff met with the Tallahasseebased DSI Group, which manages the FEMA Public Assistance Program on behalf of the state and was consulted in the preparation of the After-Action Report, to outline the next steps of the federal assistance process and to reflect on the Hurricane Hermine response and recovery efforts. On September 28, 2016, President Obama declared a disaster for the State of Florida, including Leon County, authorizing the Public Assistance Grant Program Public Assistance Grant Program The FEMA Public Assistance Grant Program is authorized through the Robert T. Stafford Disaster Relief and Emergency Assistance Act to assist state, tribal, and local governments, and certain private non-profit entities, severely affected by a disaster. To be eligible for the FEMA Public Assistance Grant Program declaration by the President of the United States which is provided in the form of federal reimbursement of eligible disaster expenses, a state must reach a damage cost threshold ($1.41 per capita), and individual counties must reach a county-specific damage cost threshold ($3.57 per Leon County, Florida - Hurricane Hermine After-Action Report Page 79

86 Section 4.0 Attachment #1 Page 84 of 97 Hurricane Hermine Preparedness, Response and Recovery capita). The 2016 threshold for the State of Florida is $26,509,847 and Leon County s threshold is $983,489. On September 9, 2016, the Joint Preliminary Damage Assessment Team consisting of personnel from FEMA and the Florida Division of Emergency Management verified damage reported by Leon County Government, the City of Tallahassee and eligible private non-profit organizations. The Joint Preliminary Damage Assessment Team estimated $8,771,036 in government and non-profit damage and response costs in Leon County due to Hurricane Hermine. This cost was used as part of the State of Florida s request for a Presidential Disaster Declaration. The statewide damage estimate for Hurricane Hermine was approximately $45.5 million. On October 10, 2016, an applicant briefing for government and eligible non-profits was held at the Public Safety Complex for Public Assistance Grant funding. The Florida Division of Emergency Management facilitated the briefing by reviewing program eligibility, application procedures, administrative requirements, and funding limits. Applicants typically have 30 days following a declaration or area designation to request Public Assistance; however the deadline to submit for Hurricane Hermine was extended until November 11, Leon County submitted its request for Public Assistance on October 28, On November 9, 2016, a FEMA Public Assistance Coordinator assigned to help establish the partnership among FEMA, the state, and each applicant, conducted a kickoff meeting with Leon County Government to review specific project formulation and documentation, funding options, and special considerations that may affect funding. At the kickoff meeting, Leon County submitted an application to participate in the FEMA pilot program for the reimbursement of expenses associated with Hurricane Hermine. The County is utilizing the services of Wheeler EMC, Inc. to assist with the development or project worksheets and collection of FEMA-compliant documentation to ensure the maximum reimbursement of disaster costs through the FEMA Public Assistance Program. Finding #87: The utilization of an experienced consultant is vital to navigate the FEMA application and reimbursement process for expenses incurred as a result of Hurricane Hermine. Recommendation 87.1: Retain a consultant on an ongoing basis to assist with navigating the FEMA reimbursement process, similar to the County s contracts for emergency debris removal. Lead Agencies: VolunteerLEON Support Agencies: Leon County Emergency Management Individual and Households Program Assistance FEMA s Individuals and Households Program (IHP) provides up to $33,000 per household for necessary housing-related expenses and critical needs that cannot be met through other means. For a state or county to be eligible for FEMA IHP assistance, a damage assessment must be completed. Following Hurricane Hermine, LCEM and the Red Cross began collecting information on damaged homes as outlined in the County CEMP. As described in Section 4.15 above, Leon County s initial damage assessment results found 45 homes destroyed, 187 homes with major damage, 259 homes with minor damage, and another 238 homes affected by Hermine. Page 80 Leon County, Florida - Hurricane Hermine After-Action Report

87 Section 4.0 Attachment #1 Page 85 of 97 Hurricane Hermine Preparedness, Response and Recovery For the FEMA IHP to be considered under the declaration, a variety of pertinent factors are considered for a given incident such as: The amount and type of damages The impact of damages on affected individuals, the state, and local governments The available resources of the state and local governments, and other disaster relief organizations The extent and type of insurance in effect to cover losses Assistance available from other federal programs and sources Imminent threats to public health and safety Recent disaster history in the state Hazard mitigation measures taken by the state or local governments, especially implementation of measures required as a result of previous major disaster declarations Due to the widespread impact of Hermine, the resources available from the Red Cross to conduct initial impact damage assessments were stretched thin. On September 8 and 9, personnel from Leon County Government and the City of Tallahassee were called upon to complete initial impact damage assessments. An additional 40 County and City personnel were assembled and received just-in-time damage assessment training from the Red Cross before conducting initial damage assessments. Given the sudden participation and brief training for County and City employees to conduct damage assessments, it was determined to err on the side of caution by documenting all damaged properties regardless of potential FEMA eligibility. Residents that suffered damage to their homes are not eligible for assistance if FEMA determines that the owner has the financial capacity to independently restore the home on their own or if the damage is covered by insurance. Upon completion of site visits and damage assessments, these small teams summarized the data collected and submitted it to the FDEM to request a Preliminary Damage Assessment for FEMA IHP assistance. A Joint Preliminary Damage Assessment was conducted on September 13 and 14, 2016 consisting of personnel from FEMA, the Small Business Administration, the Florida Division of Emergency Management, and LCEM. FEMA s Joint Preliminary Damage Assessment Team leader commended Leon County for collecting damage information from the public through an online reporting portal (described earlier in Section 4.15) and providing the Team with color coded zone maps which offered quick damage designations and simplified route planning to assess damaged properties. Based on their findings from the 149 locations, the Joint Preliminary Damage Assessment Team believed it had identified enough information to include in the state s request for a Presidential Disaster Declaration. The ratio of destroyed properties and properties with major damage reported in our initial impact damage assessment was consistent with the ratio found in the 149 locations visited in the field validation. It is important to note that the damage identified by FEMA s Joint Preliminary Damage Assessment Team only reflected a sample of the actual damage throughout the County because its calculations are limited to the damage costs of eligible properties. As a result, the President s September 28 Disaster Declaration for the state did authorize the FEMA IHP in Leon County. Leon County, Florida - Hurricane Hermine After-Action Report Page 81

88 Section 4.0 Attachment #1 Page 86 of 97 Hurricane Hermine Preparedness, Response and Recovery The FEMA IHP consists of two program elements, Housing Needs Assistance and Other Needs Assistance for individuals. Housing support may include financial assistance for homeowners or renters in need of temporary housing solutions, reimbursement of lodging expenses, damage repair costs for a primary residence, and the replacement of a destroyed primary residence. According to the Tallahassee Democrat, Leon County residents received $434,000 through this program as of November 21. Other Needs Assistance offers a wide variety of reimbursements for expenses incurred on critical needs caused by the disaster such as child care, medical and dental care, funeral and burial costs, and moving or storage expenses related to the disaster. This program also provides financial support for damages to essential items required for the home, school, or job such as the primary heat source, cleaning equipment (vacuum, dehumidifier, etc.), primary vehicle, and other necessary expenses or critical needs as determined by FEMA. While some housing assistance and reimbursement funds are available through these FEMA programs, most disaster assistance from the federal government is in the form of loans by the U.S. Small Business Administration (SBA). Home Disaster Loans through the SBA were made available to Leon County homeowners or renters for repairing or replacing destroyed real estate up to $200,000 and personal property up to $40,000. Unlike the FEMA assistance, these low-interest loans are available regardless of an applicant s ability to replace a roof out of pocket and may be used to replace personal property beyond the FEMA s critical needs limitations (primary vehicle, health care, and child care expenses, etc.). Business and Economic Injury Disaster Loans through the SBA are described in greater detail Section of this report. To aid citizens with registration for assistance programs, FEMA activated two outreach programs to facilitate registration by the November 28, 2016 deadline, Disaster Survivor Assistance and Disaster Recovery Centers. The Disaster Survivor Assistance Program Teams arrived on October 2, 2016 and made contact with storm victims at their homes and at community events. Disaster Survivor Assistance Program Teams visited all of the addresses previously identified by local officials offering guidance on how to access and navigate FEMA disaster assistance programs. A Disaster Recovery Center is a readily accessible facility where survivors may go for information about FEMA programs or other disaster assistance needs or questions related to their circumstance. The Disaster Recovery Center for Leon County was established in the large program rooms at the LeRoy Collins Main Library and operated between October 11, 2016 and October 27, Representatives from the Florida Division of Emergency Management, the Federal Emergency Management Agency, U.S. Small Business Administration (SBA), volunteer groups, and other agencies helped storm victims apply for federal disaster assistance and provide information on low-interest disaster loans for homeowners, renters, and businesses. FEMA notified the LCEM Director that it was evaluating whether to open a separate Disaster Recovery Center for business needs. Upon notification through the LCEM Director, County Administration and the joint Office of Economic Vitality reached out to Page 82 Leon County, Florida - Hurricane Hermine After-Action Report

89 Section 4.0 Attachment #1 Page 87 of 97 Hurricane Hermine Preparedness, Response and Recovery partner organizations capable and willing to host a more modest Disaster Recovery Center for business needs, such as the Greater Tallahassee Chamber of Commerce and DOMI Station, but FEMA ultimately made a determination to focus its area resources on residential needs. Finding #88: Storm-related damage identified during County and City staff-led initial impact damage assessments and verified by FEMA s Joint Preliminary Damage Assessment Team supported the federal authorization of the Individual Household Assistance program in Leon County Business, Industry, and Economic Stabilization The State s responsibilities for managing the resources available from the private sector, either through donation or compensation, to aid the recovery of the private sector is assisted by private sector partners represented in the State EOC by various business groups and associations such as the Florida Chamber of Commerce, the Florida Retail Federation, the Florida Petroleum Council, Visit Florida, etc. After a disaster occurs, the State s CEMP (ESF #18) calls for an economic assessment of impacted communities so that pertinent and timely information can be provided to the private sector on the recovery process. These responsibilities range from gathering information on retail establishments open for business to coordinating with the petroleum industry (ESF #12) to monitor the supply of transportation fuels. Although not identified in the County CEMP, Leon County and FDEM also share information relating to the hotel availability in support of hosting evacuees and staging response and recovery contractors. Included in this section are examples of positive and timely exchanges of information as well as areas identified for the County to take on additional responsibilities to enhance future response efforts. The section concludes with information on recovery assistance programs specific to businesses and commercial properties Retail Stores and Restaurants On the afternoon following the Hurricane s passing, LCEM submitted two mission requests (#103 and #108) seeking the status, capabilities, and plans for retailers and gas stations in Leon County. The State EOC quickly responded to Mission Request #103 with a list of grocery stores and big box retailers that were open for business. At that time, all Publix grocery stores were open on generator power and area Walmart stores were awaiting the arrival of their generators by semi-truck. The first area Walmart store, as well as area home improvement stores, opened later that afternoon on September 2. The afternoon reopening of these large retailers was important to restore a level of normalcy in the community and provide access to critical supplies following the storm. As expected, many local restaurants remained closed following the storm until power was restored and food inventory was inspected and/or replaced. Residents quickly flocked to local retailers to stock up on natural gas to cook on their barbeques. One anecdotal observation or finding in the two days following the Hurricane was the number of people that sought freshly cooked meals at the area hospitals. Capital Regional Medical Center, Tallahassee Memorial Hospital, and the Tallahassee Memorial Emergency Center-Northeast, each experienced extremely high volumes of customer traffic in their cafeterias because their generator systems allowed them to continue operations without interruption. Leon County, Florida - Hurricane Hermine After-Action Report Page 83

90 Section 4.0 Attachment #1 Page 88 of 97 Hurricane Hermine Preparedness, Response and Recovery Finding #89: State Emergency Support Function #18 gathers and provides information regarding the status of businesses that are open following a disaster. Public Information efforts immediately following Hurricane Hermine could have incorporated some of this information to assist citizens in locating stores that could provide disaster relief supplies. Finding #90: Hospital cafeterias were the restaurant of choice as some of the few venues serving cooked meals immediately following Hermine. Gas Stations Mission Request (#108) by the County requested a fuel status report (ESF #12 in the State CEMP) due to the widespread power outages and reports of closed gas stations. Based on the State CEMP, ESF #12, FDEM has the primary responsibility to monitor and coordinate with the private sector suppliers of energy and transportation fuels such as propane, fuel oil, diesel fuel, and gasoline to ensure that adequate supplies are available and deliverable for normal community functioning. The State did not provide this information in a timely fashion as staff later learned that their method for determining fuel availability was to call all gas stations in Leon County. This lack of reporting capability by the State had not previously been relayed to County emergency managers by the State. Sec , F.S. requires gas stations of a certain size or within a certain proximity to established evacuation routes to maintain backup power for fuel pumps. This state law was enacted following the hurricane seasons, during which gas stations had adequate fuel supply but lacked the electric power to pump fuel for consumer purchase. During Hurricane Hermine, staff learned that the State EOC did not have readily available information regarding the status of gas stations in Leon County and whether they had backup power for their fuel pumps. Florida Statutes authorizes the State and local emergency management directors to directly collect and maintain information on these facilities. Finding #91: State Emergency Support Function #12 is charged with gathering and providing information regarding fuel supplies and the status of gas stations that are open following a disaster. The State EOC did not have readily available information regarding the status of gas stations in Leon County and whether they had backup power for their fuel pumps. Recommendation 91.1: Given the authority provided in Florida Statutes, Leon County Emergency Management should collect and maintain information on gas stations that have backup power supplied to their fuel pumps. Lead Agencies: Leon County Emergency Management Support Agencies: Tallahassee-Leon County Geographic Information Systems Page 84 Leon County, Florida - Hurricane Hermine After-Action Report

91 Section 4.0 Attachment #1 Page 89 of 97 Hurricane Hermine Preparedness, Response and Recovery Coordination with Local Hotels The Leon County Division of Tourism Development is called upon during a hurricane for a variety of support including finding hotel rooms for residents who may have experienced damage to their home, out-of-town responders (electricians, contractors, EMTs, etc.) assisting with restoration and recovery efforts, and neighbors evacuating from nearby coastal communities. For the latter, Tourism embraces its role as a host for coastal evacuees and communicates with hoteliers to share up-to-date information on evacuation orders, road and bridge closings, power outages, and when it is safe to return to those areas. As Hurricane Hermine approached the Big Bend area, Leon County Tourism posted special weather alerts on VisitTallahassee.com, surveyed hoteliers to gauge inventory and identify any special rate offers, updated its website to reflect properties with room availability, and activated the Hotel Hotline (606-BEDS [2337]) to speak directly with Tourism staff during regular business hours. Approximately 50% of lodging properties (25 hotels) were responsive to the survey and staff reached out to tourism industry partners daily to provide assessment reports throughout the emergency activation. As Tourism gathered this information daily, status reports were shared with the County EOC and upon request to Visit Florida. After the storm had passed on Friday, September 2, fewer than 10 hotels had power and all were sold out and turning guests away. Unfortunately, many hotels in Leon County did not have alternate power sources and were forced to close since they could not accommodate guest needs and experienced inoperable phone and computer systems. Some of the properties that remained operational were downtown hotels that experienced minimal interruption of electrical service. However, several other properties throughout the County remained operational because they were equipped with backup generators. One large hotelier just outside of downtown relied on its permanent generator to accommodate guests while two properties near the I- 10/Capital Circle interchange made preparations to rent generators in advance of the storm. For the remainder of the weekend through Monday, September 5, Tourism staff acted as a conduit surveying local attractions and lodging properties as power was restored to determine their status of operations. Staff also informed hotel properties of the comfort station established at the Main Library and continually updated its website regarding area lodging and attractions with a focus on the number of visitors expected to arrive just a few days later for the FSU home football game on Saturday, September 10. A credit to the mutual aid agreements already in place, many contractors arrived as power was restored with previously arranged hotel accommodations. It has long been a best practice of the response and recovery industry to have agreements in place with national hotel brands to ensure that employees have a place to stay even in a high demand period. That being said, Tourism was called upon in several instances to help place smaller groups of contractors throughout the week. In fact, Tourism assisted approximately 15 contractors with rooms in Wakulla County because they were forced to relocate due to the arrival of guests for the FSU football game on September 10. In the wake of the storm, there were reports of hotels charging two to three times the normal room rate. According to a Tallahassee Democrat article published on October 4, Leon County, Florida - Hurricane Hermine After-Action Report Page 85

92 Section 4.0 Attachment #1 Page 90 of 97 Hurricane Hermine Preparedness, Response and Recovery 2016, there were 57 complaints of price gouging in Leon County associated with Hurricane Hermine. According to the Florida Attorney General's Office, no formal actions have been taken against area hoteliers at the time of this writing. Finding #92: The Leon County CEMP is silent regarding the role of Tourism Development staff during emergencies. Staff observed an opportunity to assign Tourism Development staff to the EOC to staff the Hotel Hotline. Recommendation 92.1: Update the Leon County CEMP to reflect Tourism Development staff s role in coordinating hotel availability during emergencies including the Hotel Hotline. Lead Agencies: Leon County Emergency Management Support Agencies: Leon County Division of Tourism Development Recommendation 92.2: Transfer the Hotel Hotline to a desk at the EOC after hours and during closures to be staffed by Tourism Development and volunteers. Lead Agencies: Leon County Division of Tourism Development Support Agencies: Leon County Emergency Management, Leon County Office of Information and Technology Finding #93: While many hotels throughout the County lost power during Hurricane Hermine, many were able to remain operational as a result of advance planning either by installing backup generators or by making arrangements in advance to rent backup generators. Recommendation 93.1: Work with local hoteliers to raise awareness regarding the need for local hotels to remain operational during emergency events and provide technical assistance as appropriate. Lead Agencies: Leon County Emergency Management Support Agencies: Leon County Division of Tourism Development Finding #94: Many mutual aid agencies arrived in Leon County with hotel arrangements already in place in accordance with standing agreements they have with national hotel chains. This is an industry best practice and should be reflected in all County and City mutual aid agreements. Recommendation 94.1: Review the County s existing mutual aid agreements and ensure that all existing and future agreements provide for agencies to have agreements in place to guarantee hotel accommodations upon arrival. Lead Agencies: Leon County Emergency Management Support Agencies: Leon County Purchasing Division Stabilization and Recovery Efforts Although FEMA decided against opening a Disaster Recovery Center for business assistance, there were a number of organic and coordinated initiatives in support of entrepreneurs. As some businesses remained without power following the Labor Day holiday weekend, The Tallahassee-Leon County Office of Economic Vitality coordinated with local establishments such as Domi Station, The Pod, and the Institute for Nonprofit Innovation and Excellence which graciously opened their doors by offering free work space, coffee, and Wi-Fi in an air conditioned environment. On September 6, Governor Scott activated Florida s Small Business Emergency Bridge Loan Program and allocated up to $10 million to support small businesses impacted by Page 86 Leon County, Florida - Hurricane Hermine After-Action Report

93 Section 4.0 Attachment #1 Page 91 of 97 Hurricane Hermine Preparedness, Response and Recovery the Hurricane. These short-term bridge loans were designed to provide interest-free financial assistance in a timely fashion for small businesses that experienced physical or economic damage as a result of Hurricane Hermine. The Florida Small Business Emergency Bridge Loan Program is offered through the Florida Department of Economic Opportunity and administered locally by the Florida Agricultural and Mechanical University s Small Business Development Center (FAMU SBDC). The FAMU SBDC assembled a panel of five local lenders, and chaired by the Office of Economic Vitality, to rapidly review bridge loan applications. Owners of small businesses with two to 100 employees were eligible to apply for up to $25,000 by October 31. Through this program, the panel approved 12 applications submitted by local businesses for a total of $224,500 in emergency bridge loans. On September 29, the day after the Presidential Disaster Declaration, the U.S. Small Business Administration (SBA) announced the availability of Disaster Loans to assist small businesses, non-profits, homeowners, and renters affected by Hurricane Hermine. This federal program offered greater capital through three types of low-interest disaster loans; Business Physical Disaster Loans, Economic Injury Disaster Loans, and Home Disaster Loans. Eligible Business Physical Disaster Loans loan applicants could borrow up to $2 million to repair or replace damaged or destroyed real estate, machinery, and equipment, inventory, and other business assets. Applicants could also be eligible for an additional 20% on their loan for mitigation improvements to protect property from future damage caused by a similar disaster. The Economic Injury Disaster Loans could provide up to $2 million to alleviate economic injury, less insurance coverage, and help meet working capital needs caused by the disaster. The application window for physical property damage, as well as the home loans through the SBA previously discussed in Section , recently closed on November 28 but the deadline to submit an economic injury application is June 28, According to the Tallahassee Democrat, nearly $8.2 million in SBA loans had been approved for Leon County residents and business owners as of November 20, Leon County, Florida - Hurricane Hermine After-Action Report Page 87

94 Section 5.0 Additional Opportunities and Recommendations Attachment #1 Page 92 of Additional Opportunities and Recommendations Following is a compilation of additional observations during Hurricane Hermine along with recommendations for staff to address internally. These observations are generally associated with more technical and/or operational details than the remainder of this report, but are presented in Table 5 below in the interest of providing a complete and thorough examination of every aspect of Leon County s preparedness and capacity for response and recovery. Further, the County engaged DSI, a professional emergency management consulting group, to review the findings contained in the After-Action Report and offer objective findings and recommendations, which are found throughout this report. Table 5: Additional observations and recommendations associated with Hurricane Hermine Findings/Observations: Recommendations: Lead Agency: Finding #95: Although the CEMP provides for conference calls to be initiated when Apalachee Bay falls within the 5-day error cone, LCEM initiated conference calls on August 30 (two days before landfall). However, Hermine was still only a tropical depression at the time. Amend the CEMP to provide for conference calls to begin when the state of Florida (rather than Apalachee Bay) falls within the 5-day error cone. Leon County Emergency Management Finding #96: Utilizing a web-based conference call platform would allow for participating agencies to utilize graphics and images to help build a common operating picture among all organizations engaged in emergency response activities. Upgrade to a web-based conference call platform. Leon County Sheriff s Office Information Technology Section Finding #97: During Hurricane Hermine, staff observed an opportunity to enhance the flexibility of the EOC layout by configuring each EOC computer to allow any County or City employee to access their network. Configure EOC workstation computers to allow both County and City staff to access their networks. Leon County Sheriff s Office Information Technology Section Finding #98: During Hurricane Hermine, staff observed a potential opportunity to streamline response efforts by improving the work order management system utilized during emergencies. Convene a task force to evaluate the requirements of interfacing to various work order management systems during emergency events. Leon County Office of Information and Technology Page 88 Leon County, Florida - Hurricane Hermine After-Action Report

95 Section 5.0 Additional Opportunities and Recommendations Attachment #1 Page 93 of 97 Findings/Observations: Recommendations: Lead Agency: Finding #99: Public Information staff must balance the need to keep the media informed about the progress of response activities while also addressing other areas of their responsibility, such as responding to citizen inquiries. This topic is addressed in the CEMP but should be refined. Clarify the CEMP to provide for the EOC Public Information Officer and the LCEM Director to establish a schedule for media briefings at the beginning of any extended incident and communicate this schedule with media partners. Leon County Community and Media Relations Finding #100: Media partners visiting the EOC requested to observe the activities of response personnel working in the EOC. Finding #101: Many individuals served at the EOC throughout the duration of the activation. Additional training could enhance depth among the EOC support team, allowing the rotation of staff during an emergency activation. This would limit the burden on departments and agencies contributing staff to the EOC. Finding #102: Incident Action Plans were not distributed to all staff in the EOC. Finding #103: Citizen Information Line staff and volunteers could benefit from more frequent situation reports from Public Information Staff in the EOC. Finding #104: During Hurricane Hermine, Big Bend lost power to its main facility, requiring the agency to relocate to the Public Safety Complex. To minimize disruptions to emergency response personnel and to maintain the security of the EOC, explore providing a video-only live feed of the EOC in the Media Room for visiting media partners to use. Continue to provide training for staff from all participating agencies and include them in training and exercise plans. Ensure the consistent distribution of Incident Action Plans to EOC staff during each operational period. Amend the CEMP to designate Leon County Community and Media Relations as the lead entity responsible for providing situation reports to CIL staff. Amend the Tallahassee-Leon County Local Mitigation Strategy to designate the Big Bend facility as a critical facility and assist in seeking funding to install a backup generator. Leon County Office of Information and Technology Leon County Emergency Management Leon County Emergency Management Leon County Emergency Management Leon County Emergency Management Leon County, Florida - Hurricane Hermine After-Action Report Page 89

96 Section 5.0 Additional Opportunities and Recommendations Attachment #1 Page 94 of 97 Findings/Observations: Recommendations: Lead Agency: Finding #105: Future shelter operations should include a plan for registered sex offenders. Though no conflicts occurred during Hurricane Hermine, registered sex offenders require a separate shelter or must be segregated from the main shelter population. Finding #106: Staff from the Leon County Office of Intervention and Detention Alternatives (OIDA) observed a need to ensure that monitoring devices for clients with courtordered GPS monitoring can operate continually in the event of extended power outages. Batteries on GPS monitoring devices must be charged daily, so in the event of an extended power outage, clients need to have a designated place to recharge their device s battery. Finding #107: Staff observed a need during Hurricane Hermine to improve the process for gathering information from citizen reports made through the Consolidated Dispatch Agency, the Citizen Information Line, and Big Bend on road conditions and storm-related damage in order to best facilitate response and recovery efforts. Finding #108: The layout of some temporary debris staging areas was restrictive and did not allow for easy access for equipment and staging of debris. Finding #109: Staff observed an opportunity to further enhance the County s ability to assist citizens following a disaster through navigation teams and/or Community Resource Centers. Work with the Leon County Sheriff s Office to resolve issues relative to registered sex offenders and emergency shelter operations. Designate a location where OIDA clients can charge their GPS monitoring device battery during emergency events and update internal procedures to be able to communicate this location with clients. Identify ways to collect additional details about downed trees, such as the diameter of the tree and whether it involves a power line, when receiving reports from the public. Re-evaluate and identify debris staging areas throughout Leon County, ensuring that these sites are configured such that they can accommodate sufficient volume of debris and equipment. Identify a community organization that can assist with navigating insurance claims as a member of the Community Organizations Active in Disaster (COAD) and as a participant at a Community Recovery Center or as part of a navigation team following a disaster. Amend COAD governing documents and the Leon County CEMP as appropriate. Leon County Emergency Management Leon County Office of Intervention and Detention Alternatives Leon County Emergency Management Leon County Public Works VolunteerLEON Page 90 Leon County, Florida - Hurricane Hermine After-Action Report

97 Section 5.0 Additional Opportunities and Recommendations Attachment #1 Page 95 of 97 Findings/Observations: Recommendations: Lead Agency: Finding #110: Closer coordination with debris removal and monitoring contractors is needed to ensure that sufficient trucks, equipment, and staffing will be available to fully support future debris operations. Pre-identify suitable sites that can serve as Community Recovery Centers, as well as logistical support needs and site layouts. Assign sworn law enforcement officers to direct facility security operations. Coordinate with debris removal contractors during prehurricane season kickoff meetings to identify equipment that will be needed to remove debris from private roads that are in poor condition. Re-evaluate the terms of debris removal and monitoring contracts to ensure that contractors resources and personnel will be available to meet local needs. During pre-hurricane season kickoff meetings each year, verify the debris monitoring contractor s proposed command center location to ensure adequate space is available to properly conduct monitoring operations. Conduct a tabletop exercise with debris removal and monitoring contractors during pre-hurricane season kickoff meetings. Designate a staff member to act as a project manager to oversee debris monitors and haulers. Leon County Emergency Management Leon County Public Works Leon County Public Works Leon County Public Works Leon County Public Works Leon County Public Works Leon County, Florida - Hurricane Hermine After-Action Report Page 91

98 Section 6.0 Conclusion Attachment #1 Page 96 of Conclusion Hurricane Hermine was the most severe weather event to affect Leon County since Hurricane Kate in Damage caused by the storm left many thousands of citizens without electricity for several days, frustrated by the pace of restoration, amid rumors of delays due to the refusal of additional resources available to assist with the recovery, and people s expectations related to the reliability of available information in the age of social media. Although these challenges presented a significant test of Leon County s plans, training, partnerships, and response capabilities during Hurricane Hermine, Leon County coordinated large-scale response and recovery activities involving a variety of partnering response agencies to quickly and effectively meet citizens needs following the disaster. While the impacts of Hurricane Hermine were severe, Leon County recognizes that it must continue to enhance its plans and capabilities to prepare for even larger, more severe disasters. The strengths and recommendations for continuous improvement contained in this After-Action Report will help to further enhance Leon County s preparedness for future emergency events. In reviewing all aspects of Leon County plans, preparations, response, and recovery efforts from Hurricane Hermine, staff has identified the 110 findings and 80 recommendations presented in this report. In recognition of the importance of these findings, Leon County has already begun to address a number of the recommendations for improvement. For example, Leon County has adopted a list of state and federal legislative priorities for 2017 that includes seeking funding to enhance the disaster resilience of critical facilities throughout the County in partnership with the City of Tallahassee. Additionally, County, City, and Talquin Electric staff have already begun the process of refining protocols to establish Road Clearing Task Force crews during future incidents to further expedite the restoration of critical transportation networks. Together with the specific recommendations for revisions to the County s Comprehensive Emergency Management Plan, these actions demonstrate Leon County s commitment to learning lessons from every emergency event, developing solutions to identified issues, and following through on their implementation in the interest of better serving citizens. Based on the Board s direction, staff will bring back future agenda items as needed to implement the recommendations contained in this After-Action Report. In addition, staff will provide a status report to the Board on the implementation of these findings and recommendations prior to the start of the 2017 hurricane season. Page 92 Leon County, Florida - Hurricane Hermine After-Action Report

99 Section 7.0 Appendices Attachment #1 Page 97 of Appendices Appendix A: Appendix B: Appendix C: Appendix D: Appendix E: Appendix F: Appendix G: List of Acronyms Citizens for Responsible Spending Post-Hurricane Recovery Best Practices Task Force Final Report County Attorney Memorandum Regarding Emergency Management Powers Leon County CEMP Leon County Board Policy No. 07-2, Reserves 2016 Disaster Survival Guide for the Capital Area EM Constellation Mission Requests Leon County, Florida - Hurricane Hermine After-Action Report Page 93

100 Page 1 of 277 Leon County Debris Management Plan Updated: December 2013 People Focused. Performance Driven.

101 Page 2 of 277 TABLE OF CONTENTS I - Staff Roles & Responsibilities 1 II - Situation and Assumptions 5 III - Debris Collection Plan 6 IV Debris Management Sites 10 V Contracted Services 12 VI Private Property Demolition & Debris Removal 15 VII Public Information Plan 17 Appendix A: Leon County Ordinance Appendix B: Leon County Purchasing Policy 31 Appendix C: Heavy Equipment & Personnel Staging Areas 91 Appendix D: Pre-Qualified Debris Contractors 93 Appendix E: FDEP Pre-Authorization of Debris Staging Areas 95 Appendix F: Leon County Waste Disposal Guidelines 137 Appendix G: Debris Removal and Disposal Services Contract 140 Appendix H: Debris Monitoring Services 219 Appendix I: Legal Condemnation Documents 258 Appendix J: Inspection Documents 260 Appendix K: Sample News Releases 264

102 Attachment #2 Page 3 of 277 I. Staff Roles and Responsibilities A. Staffing Organizational Chart Chairman of the County Commission/ County Administration Director of Public Works & Community Development Director of Emergency Management (EOC) Under the Leon County Sheriff s Office Assistant to the Public Works & Community Development Director Director of Operations Director of Solid Waste Debris Clearance Teams & Debris Monitoring Teams Debris Disposal Teams & Debris Monitoring Teams Contractors included) B. Roles and Responsibilities 1. County Administrator As set forth in County Ordinance (Appendix A) adopted by the Board of County Commissioners (BOCC) on July 13, 2010, the County Administrator will determine after a major disaster or catastrophic disaster if the removal of disastergenerated debris accumulated within the County is necessary in order to: remove or reduce threats to life, public health, and safety; eliminate immediate threats of significant damage to County property or facilities; or ensure economic recovery of the affected community to the benefit of the community-at-large. Upon making such determination, the County Administrator shall inform the Chairman of the BOCC and shall immediately implement the Debris Management Plan. 2. Staffing Assignments and Duties Each Department Director and Contractor is responsible to provide adequate staffing and make assignments to accomplish the projects and priorities established by the Emergency Operations Center (EOC) and the Chairman of the County Commission. In addition, those assignments and duties shall be assigned, as much as possible, within the framework and structure of the National Incident Management System (NIMS). 3. Administration The Department of Public Works maintains Emergency Call Lists for administrative support for the Divisions of Administration and Operations as part of its Leon County Public Works Emergency Desk Manual. Included in that list are prioritized contacts for the Purchasing and Solid Waste Divisions which are not a part of the Department of Public Works. All other Divisions within the Department of Public Works (i.e. Fleet and

103 Page 4 of 277 Engineering) must provide their own administrative support. This is accomplished by determining essential v. non-essential staff through the Continuity of Operations Plan (COOP), pre-planned assistance from other County Departments/Divisions, and/or their own emergency plans as included in the Leon County Public Works Emergency Desk Manual previously referenced. 4. Finance The Assistant to the Public Works & Community Development Director, in conjunction with Division Directors and the Debris Monitoring firm, shall ensure all documentation policies and procedures are being followed throughout pre-storm preparation, emergency response measures, and recovery efforts for purposes of reimbursement from the Federal Emergency Management Agency (FEMA). The Clerk of the Court is responsible for all financial transactions including employee payroll and payment of contractors. 5. Contracting and Procurement Procedures - Through the Request for Proposal (RFP) process, Leon County, in conjunction with the City of Tallahassee, awards pre-event contracts to debris removal agencies and a single debris monitoring firm. This process is predicated on a five-year cycle. Per direction from the BOCC, more than one debris removal company is to receive a bid award. This is to ensure that the County can adequately respond to debris removal regardless of the severity of the storm. Only one firm, however, shall be awarded a debris monitoring contract to ensure the overall integrity and cohesiveness of the monitoring process. With regard to other procurement activities, the Division of Purchasing shall act in accordance with Policy No (Appendix B). 6. Legal All contracts, right of entry agreements and condemnations will be reviewed by the County Attorney s Office utilizing normal procedures. 7. Operations a. The Public Works Division of Operations has established eight staging areas that will be staffed prior to the arrival of tropical force winds (Appendix C). The following Divisions/agencies will be stationed with each Operations (road-clearing) crew at the eight locations: Tallahassee Fire Department, Leon County Emergency Medical Services (EMS ambulance), a Sheriff s Deputy, and a representative from Talquin Electric. Prior to the arrival of sustained, tropical force winds, crews will respond to downed trees and power lines to ensure roadways remain passable for as long as possible. Once sustained tropical force winds arrive, crews will relocate to pre-determined hardened, school facilities to wait until the storm passes. Once it is deemed safe to return to the streets, crews will begin cut and toss activities, road clearing, and debris hauling. b. When under imminent threat of a hurricane, the Public Works Director, or his designee, will be in contact with the debris removal provider(s) and the debris monitor to issue Notices to Proceed and to designate staging locations for clearing crews (Appendix D).

104 Page 5 of 277 c. The Florida Department of Transportation (FDOT) will pre-position contractors and, based upon an annual written request from the Leon County Public Works Director, will be responsible for clearing all Federal Highway Administration (FHWA) roadways. Furthermore, FDOT will handle the full length of roadways that have both FHWA and non-federal aid sections. d. The Division of Solid Waste will be responsible for contacting the City of Tallahassee Solid Waste and Waste Pro to coordinate a post-event plan for residential and commercial solid waste collection. In addition, staff will begin working with the debris removal provider(s) and the debris monitor to coordinate systems for tracking incoming debris data and set-up of the Temporary Debris Storage and Reduction Sites (TDSRs). These locations are pre-determined in conjunction with the City of Tallahassee and have received pre-authorization from the Florida Department of Environmental Protection (FDEP) (Appendix E). In addition, Solid Waste staff will assist the Director of Community and Media Relations and the debris monitoring contractor in educating the public regarding proper separation of waste streams pre-hurricane season and post-storm event (Appendix F). e. The Division of Engineering will provide support to the Division of Operations, the Division of Solid Waste, and the contractors, as necessary. Specifically, Engineering staff may be called upon to assist in clarification of right-of-way designations, right of entry agreements, condemnations, and any permit applications that may become necessary. C. Emergency Communications Plan 1. Public Works Employees - Complete employee rosters are maintained by the Director of each Public Works Division. These rosters are updated annually just prior to the start of hurricane season. In addition, a Public Works Employee Hotline has been established for the sole purpose of hurricane updates and communications. This number is imprinted on the back of the Leon County Public Works identification card. Each Public Works employee is issued an identification card for the purpose of proving their affiliation with the County should they need to cross restricted areas to report back to work. Finally, before leaving the job site when a storm is approaching, employees are placed in Alpha/Bravo shifts and are provided information on when to report back to work should telephone lines become inaccessible. 2. Contractors All contractors are required to provide multiple contact methods and are also instructed to call the Director of Public Works or his designee upon the imminent threat of a hurricane. Contact methods are recorded in each Director s Leon County Public Works Emergency Desk Manual. D. Health and Safety Plan and Procedures Leon County has an established Safety Manual through the Risk Management Division that provides health and safety standards for the performance of assigned duties. The manual is intended to provide employees a fundamental understanding of basic safety requirements so they will be able to recognize potential problems that should be corrected or referred to the

105 Page 6 of 277 appropriate authorities for investigation and corrective action. The essential elements of the manual include: management s commitment and involvement; the establishment and operation of the Safety Committee; provisions for health and safety training; loss control management; first aid procedures; accident reporting and investigations; record keeping of injuries; and work place safety rules, policies, and procedures. All health and safety requirements within the County are consistent with the standards promulgated under the Occupational Safety and Health Act (OSHA). The following personal protective items are either standard issue or made available for employees within the Department of Public Works: Gloves Protective Footwear (Safety boots) Lumbar (back) Supports (on a case by case basis) Eye Protection/Goggles Hard hats Ear protection (for chainsaw operation) Chainsaw safety chaps FDOT Maintenance of Traffic Safety Equipment (i.e. reflective vests, work zone safety signs, etc.) Other protective gear as deemed essential In addition, in accordance with the debris removal and debris monitoring agreements and the RFP specifications, Contractors shall have at least one Safety Officer on duty at all times to ensure that all work zones conform to FDOT/MOT Standards and all worksites/conditions conform to applicable Federal, State and local safety standards. E. Training Schedule Chainsaw training (periodically) Electrical utility safety training (periodically) CSX railroad crossing training (periodically) CPR and first aid training (periodically) Hurricane preparation training (annually) Hazardous Waste identification and handling training (semi-annually) Lift truck operations (on an as needed basis)

106 Page 7 of 277 II. Situation and Assumptions A. Design Disaster Event With assistance from the Tallahassee/Leon County Geographic Information Systems, a disaster event was created and modeled through HAZUS for Categories 1-3. For purposes of modeling, the path utilized three different scenarios. Actual storm data was provided by the National Weather Service in Tallahassee. The scenarios are as follows: Category 1: a path similar to Hurricane Kate Category 1_2: Slow Rainer with a point of entry at St. Marks Category 3: a path similar to Hurricane Kate 10.7 Debris The Results Debris command allows you to view and map building and tree debris results by census tract. For probabilistic scenarios, the drop-down box allows you to select one of seven sample return period events (e.g., 10-year return period event, 20-year return period event, etc.). The Eligible Tree Debris columns provide estimates of the weight and volume of downed trees that would likely be collected and disposed at public expense. As discussed in Chapter 12 of the HAZUS-MH Hurricane Model Technical Manual, the eligible tree debris estimates produced by the Hurricane Model tend to underestimate reported volumes of debris brought to landfills for a number of events that have occurred over the past several years. This indicates that there may be other sources of vegetative and non-vegetative debris that are not currently being modeled in HAZUS. For landfill estimation purposes, it is recommended that HAZUS debris volume estimate be treated as an approximate lower bound. Based on actual reported debris volumes, it is recommended that the HAZUS results be multiplied by three to obtain an approximate upper bound estimate. It is also important to note that the Hurricane Model assumes a bulking factor of 10 cubic yards per ton of tree debris. If the debris is chipped prior to transport or disposal, a bulking factor of 4 is recommended. Thus, for chipped debris, the eligible tree debris volume should be multiplied by 0.4 Source HAZUS MR2 User Manual Volume I, Page 169, FEMA Department of Homeland Security

107 Page 8 of 277 B. Forecasted Debris 1. Forecasted Types: Brick/Wood, Concrete/Steel, Eligible Tree Volume, and Other Tree Debris. All values are in tons. Category 1 Category 1_2 Category 3 Bounds Lower Upper Lower Upper Lower Upper Brick/Wood 19,881 59,643 97, , , ,054 Concrete/Steel ,067 2,750 8,250 Eligible Tree 52, , , , , ,596 Debris Other Tree Debris 253, , ,341 2,191,023 1,059,990 3,179,970 III. Debris Collection Plan A. Priorities In accordance with County Ordinance No (see Appendix A), in removing disastergenerated debris from County-owned property and County rights-of-way, the highest priority shall initially be given to responding to immediate threats to life, public health, and safety; eliminating immediate threat of significant damage to County property or facilities; and pushing or removing disaster-generated debris from the County rights-ofway to permit safe passage. The County will determine the exact priorities for any given storm response and recovery once an assessment has been made with regard to the most severe-hit areas. In general, however, the following clearing priorities are established: 1. Roads leading to critical response facilities: Since all hospitals are within the City limits, road clearing for those facilities are covered under the City s plan. Access to critical response facilities for which the County would be concerned specifically relates to Volunteer Fire Departments. Those facilities are located on the following roads: Centerville Rd. Chaires Cross Rd. Oak Ridge Rd. State Road 20 (this would be coordinated with FDOT) Tower Rd. 2. Water barns located on the following roads which would also be considered critical facilities:

108 Page 9 of 277 Heatherwood Dr. Smith Creek Rd. Williams Rd. The other facility receiving high priority would be the Leon County Transfer Station. Roads in that area would include: Aenon Church Rd. Barrineau Rd. Geddie Rd. 3. Arterial roadways (primarily FHWA roads to be coordinated with FDOT) 4. Collector roads The County will focus on highly populated areas along collector roads with lower populated areas being lower on the list. A general priority list is as follows: Miccosukee Rd. Baum Rd. Capitola Rd. McCracken Rd. Ox Bottom Rd. Lakeshore Dr. Proctor Rd. Roberts Rd. Natural Bridge Old Plank Rd. T.S. Green Old Centerville Rd. County Road 59 (Veterans Memorial Hwy.) Old Magnolia Cromartie Rd. Sunny Hill Lake Iamonia Landing Coe Landing Williams Landing Silver Lake Helen Guard Station 5. Public subdivisions and rights-of-way 6. FHWA (being handled by FDOT, County would only step in if collection was not occurring fast enough) B. Response Operations 1. Public Works Employees As previously referenced, the Division of Operations crews will stage in eight areas throughout the County to effectuate the fastest response possible (see Appendix C). Staging has been strategically planned so that crews can work from the main Public Works facility and from outlying, rural County arterial roadways. Crews will be placed on 12-hour Alpha/Bravo shifts, and administrative staff/management follows suit locating themselves at the Emergency Operations Center (911 Easterwood Drive) and the main Public Works Complex (2280 Miccosukee Road).

109 Page 10 of 277 In addition, the Director of Public Works or his designee will issue a Notice to Proceed to both the Debris Removal contractor(s) and the Debris Monitoring contractor. 2. Contractors Contractors shall begin pre-storm preparations and response planning once the Notice to Proceed has been issued. In preparation for an imminent hurricane strike, as per the RFP specifications, the Contractor may be asked to stage outside the strike area. As per the Agreements and through the RFP specifications, the Contractor will be responsible for determining the method and manner of debris removal and lawful disposal of operations. C. Recovery Operations 1. Estimating staff, procedures and assignments, the Director of Public Works and Community Development will meet with Division Directors for Engineering, Operations, Parks & Recreation, and Solid Waste as well as the Assistant to the Public Works and Community Development Director, Assistant Director of Operations and the program Supervisor for Mosquito Control. At that juncture, specific staff assignments for recovery efforts and operations will be determined. Each Director will also be responsible for determining the amount of staff required to successfully continue and complete recovery operations in a timely manner. In most recover efforts, staff assignments will be as follows: Debris Removal on FHWA Roads and Coordination with the FDOT Director of Engineering Repairs along FHWA Roads Director of Engineering Liaisons for overall FEMA Coordination and Reporting Assistant to the Public Works and Community Development Director and the Director of Operations County Debris Removal Operations Director of Operations, Right-of-Way Supervisor and Director of Solid Waste Management Assessment and Repair of Stormwater Facilities Director of Operations and the Supervisor for Stormwater and Mosquito Control Assessments and Repairs for Parks & Recreation Facilities Director of Parks and Recreation

110 Page 11 of 277 Flooding and Pumping Operations Assistant Director of Operations Mosquito Control Supervisor of Stormwater and Mosquito Control Private Property Emergency Access: Director of Operations and Assistant Director of Operations Pumping Operations: Assistant Director of Operations and the Stormwater Engineer 2. Collection Method: The Contractor will be responsible for determining the method and manner of debris removal and lawful disposal operations. Disposal of debris will be at the County s pre-approved temporary debris management sites or at the County s Solid Waste Management facilities. Both methods of Curbside Collection and Collection Centers will be utilized. Collection Centers will be those locations that already serve as the Rural Waste Collection Centers (listed below in the next section). 3. Collecting Hazardous Waste and White Goods: Household Hazardous Waste (HHW) refers to hazardous products and materials that are used and disposed of by residential, rather than commercial or industrial consumers. HHW includes some paints, stains, varnishes, solvents, pesticides, and other products or materials containing volatile chemicals that catch fire, react, or explode under certain circumstances, or that are corrosive or toxic. Pre-event Mitigation - Leon County has regular monthly Hazardous Waste Round-ups at the Public Works Operations Center building. In addition, the main Solid Waste Management Facility located at 7550 Apalachee Parkway operates a full-time Hazardous Waste Collection Center which is free for Leon County households. Businesses incur nominal fees depending on the material disposed. Post-event Collection - HHW encountered by the debris removal Contractor during curbside collection is to be set aside. HHW disposal will be the responsibility of the resident. Designated drop-off sites for HHW will include the main Solid Waste Management facility and the Rural Waste Service Centers (RWSC). The addresses of the locations are as follows: Solid Waste Management Facility: 7550 Apalachee Parkway Woodville RWSC: 549 Henry Jones Road Fort Braden RWSC: 2485 East Joe Thomas Road Miccosukee RWSC: Miccosukee Road

111 Page 12 of 277 White goods are defined as discarded household appliances such as refrigerators, freezers, air conditioners, heat pumps, ovens, ranges, washing machines, clothes dryers, and water heaters. Many white goods contain ozonedepleting refrigerants, mercury, or compressor oils. The Clean Air Act prohibits the release of refrigerants into the atmosphere, and requires that certified technicians extract refrigerants from white goods before they are disposed of or recycled. Regarding white goods, the Agreements with the debris removal vendors all enumerate that the contractor(s) may expect to encounter white goods available for disposal. The Contractor is responsible for disposing of all white goods encountered in accordance with applicable Federal, State and local laws. 4. Monitoring staff and assignments: Division directors or their designee(s) will monitor the work of County employees. All Contractors will be responsible for monitoring their staff and ensuring assignments are being completed in a timely manner, in accordance with the contract with the County, State and Federal rules and regulations, and within the reimbursement guidelines of FEMA. The Debris Monitoring contractor will also be responsible for overseeing the operations of the debris removal contractor. Finally, as a checks and balance County staff (Directors of Operations and Solid Waste Management) will be responsible for meeting daily with the contractors to ensure work remains on task and within guidelines. IV. Debris Management Sites A. Site Management The Debris Management Team consisting of the Debris Removal Contractor, the Debris Monitoring Contractor, the County s Director of Solid Waste Management, Director of Operations, and representatives from the City (if its contracts are activated) will determine the minimum number of sites required for each storm event. Preparation, maintenance and operation of these TDSRS facilities are entirely the Contractor s responsibility. The Contractor will also be responsible for a TDSRS Debris Removal and Operations Plan and Environmental Protection Plan that must address site setup, pre-use activities, post-use activities and operational activities. The plans should also include pre and post video and other checklists to assure proper management of the site(s). Once the debris management site(s) have been selected, the Contractor shall provide a site management plan that addresses the following: access to site; site preparation (clearing, erosion control, and grading); traffic control procedures; safety; segregation of debris; locations of ash disposal area,

112 Page 13 of 277 hazardous material containment area, contractor work area, and the inspection tower; locations of incineration operations, grinding operation, and burning operations; location of existing structures or sensitive areas requiring protection; and the restoration of the site. B. Locations 1. Permits: In accordance with the executed contract with the Debris Monitoring firm (Section Q.3. of the RFP) the contractor shall be responsible for obtaining any necessary permits. 2. Locations: The following locations were identified jointly between Leon County and the City of Tallahassee and have been pre-authorized by the Florida Department of Environmental Protection as temporary staging areas for both vegetative and C & D hurricane generated debris. For a complete description, see Appendix E. a. F.A. Ash Pit (W. W. Kelly Rd) b. Eisenhower St. c. Tyson Rd. d. Tom Brown Park (1125 Easterwood Dr.) e. Woodville Recreation Field f. Capital Cir. SW/Sand Pit g North Meridian Road h. Powerhouse i. Leon County Solid Waste Facility (7550 Apalachee Pkwy.) j Jackson Bluff Rd. k. Messer Park (2803 Jackson Bluff Rd.) 3. Site Layouts: Site layouts will be the responsibility of the Debris Removal contractor after consulting with the Debris Monitoring contractor and the County s Director of Operations and Director of Solid Waste Management. 4. Site Preparation: Preparation, maintenance and operation of TDSRS facilities are entirely the Contractor s responsibility (Section 2.2, RFP No ER-RC). 5. Volume Reduction Methods: All debris shall be processed in accordance with local, State and Federal law standards, and regulations. Processing shall include, but is not limited to, reduction by tub or horizontal grinding and/or incineration when approved by the County. Prior to reduction, all debris shall be segregated between vegetative debris,

113 Page 14 of 277 V. Contracted Services construction and demolition debris, recyclable debris, white goods, and hazardous waste. 6. Recycling: Recycling efforts are on-going throughout the year with or without storm activity. Educational materials produced by County staff, endorse, explain, and encourage recycling efforts. In addition, the importance of proper waste stream separation, after a storm event, is communicated to the public through press releases, the website, and educational materials. With regard to vegetative recycling of storm debris, the County has historically provided free mulch to the public with clean vegetative material that has been ground. Additional recycling efforts would be explored should the volume of vegetative debris of a given storm exceed that which could be utilized by Leon County residents. 7. Environmental Monitoring Program The Environmental Monitoring Program will be the responsibility of the Debris Removal contractor with oversight by the Debris Monitoring contractor. An Environmental Protection Plan shall be prepared and issued by the Debris Removal contractor. 8. Site Closure The Debris Removal contractor will be responsible for site closure. Site reclamation shall be accomplished in accordance with all Federal, State, and local laws, standards and regulations. In closing a site, the Contractor shall remove all eligible debris and leave the site from which the debris was removed in a clean and neat condition. Fill dirt and grading may be required to achieve the desired conditions. Determination of when a site is in a clean and neat condition will be at the reasonable judgment of the County. A. Emergency Contracting/Procurement Procedures Emergency purchases are authorized under the Purchasing, Minority, Women, and Small Business Enterprise Policy, Policy No. 96-1, Section The Section includes direction with regard to: authorization during normal business hours, authorization outside of normal business hours, required documentation and approval, and mutual aid agreements. The policy is included as Appendix B. B. Debris Operations to be outsourced On April 10, 2012, Agenda Request #5, the Leon County Board of County Commissioners authorized the County Administrator to execute agreements for disaster-related debris removal services with the successful bidders, under the same terms and conditions as the City of Tallahassee. On August 23, 2011,

114 Page 15 of 277 Agenda Request #15, the Board authorized the County Administrator to execute an agreement for disaster debris removal monitoring services. As a result of Board authorization and in accordance with Leon County s Purchasing policies, the following firms were selected through the RFP process to provide the County with Debris Removal and Debris Monitoring Services: DEBRIS REMOVAL AND DISPOSAL SERVICES Crowder-Gulf (Primary Vendor) DRC Emergency Services, LLC Byrd Brothers Emergency Services, LLC DISASTER DEBRIS REMOVAL MONITORING SERVICES O Brien s Response Management A detailed list of these firms, their contact information, the date of Board authorization, the contract number, and the length of the Agreements are provided in Appendix D. C. General Contract Provisions Debris Removal Contractors: When a major disaster occurs or is imminent, Leon County will contact the firms(s) holding Debris Removal and Disposal contracts to advise them of the County s intent to activate the contract. Debris removal will generally be limited to debris in, upon, or brought to public streets and roads, right-of-ways, municipal properties and facilities, and/or other public sites. Exceptions, however, may occur depending on the event and if Board Direction is given. Reimbursements for any such exceptions would not be anticipated, unless all conditions of FEMA Disaster Assistance Policy DAP could be met. Furthermore, a Right-of- Entry form would need to be executed. The County Attorney s Office and the Debris Monitor would assist with the execution of such documents. The contractor shall be responsible for determining the method and manner of debris removal and lawful disposal operations. Disposal of debris will be at the County s or the contractor s approved temporary debris management sites or landfill site. The contractor will be responsible for the lawful disposal of all debris and debris-reduction by-products generated at all debris management sites with the exception of Household Hazardous Waste (HHW). Per section 2.0 of the RFP, the Statement of Work, Debris Removal may include the following: emergency road clearance, debris removal from public property, debris removal from private property, white goods, hazardous tree stumps, and fill dirt. Per section 2.2 of the RFP, Debris Processing may include Temporary Debris Staging and Reduction Sites (TDSRS), TDSRS Debris Removal Operations Plans

115 Page 16 of 277 and Environmental Protection Plans, and debris disposal. The entire contract is provided as (Appendix G). Debris Monitoring Contractor: The disaster monitoring contract is necessary to support the debris removal from public rights-of-way and public property, monitor the reduction and disposal sites, as well as mobile monitoring and debris verification services to ensure debris management plans and contracts are effectively and efficiently implemented. In accordance with Section III (C), (D), and (E) of the RFP, the contractor shall provide load site monitoring services, debris reduction/disposal site monitoring services, and roving debris monitoring services. The function of the Load Site Monitors will be to issue debris load tickets for debris cleared and removed. The function of the Reduction/Disposal Site Monitors will be to complete the load tickets and estimate the volumes that have been transported to the reduction/disposal site for processing, storage, and disposal. The function of the Roving Debris Monitor will be to verify that only eligible debris is being removed from designated public rights-of-way and public property within assigned debris pickup zones in Leon County. In rare cases, debris monitoring on the removal of material from private property/right of entry work may also be required of the contractor. The entire contract is provided as (Appendix H). D. Qualification Requirements Debris Removal Contractors: Within the RFP process vendors were evaluated based on the following criteria: Past Performance, Experience and Ability, Understanding of Project Requirements, Approach and Method, and Minority Business Enterprise Participation. In addition, once the short-listed firms completed their oral presentations, their cost/fee proposals were also evaluated. Debris Monitoring Contractor: Within the RFP process vendors were evaluated based on the following criteria: Approach and Method, Previous debris monitoring experience, mobilization time frame, pricing, and local preference. Included in the Approach response, contractors were asked to specifically address pre-event planning; operational planning; operations; recordation; project preparation; and other FEMA requirements and record keeping. With regard to Methodology, contractors were asked to describe how they would work with two or more Debris Removal Contractors, how they intended to deal with the tracking of debris inside and outside the City Limits, and how they would differentiate debris loads in terms of multiple contractors and multiple local government agencies. The most qualified vendor, O Brien s Response Management, was selected and the Agreement was approved on August 23, E. Solicitation of Contractors Debris Removal RFP: On behalf of the City of Tallahassee and Leon County, the City s Purchasing Division issued the RFP for Debris Removal Services in November Ten proposals were submitted and reviewed by a joint

116 Page 17 of 277 City/County selection committee. The committee was comprised of four representatives from Leon County (including Public Works Divisions of Operations, Administration, and Parks & Recreation and the Division of Solid Waste), and four representatives from the City of Tallahassee. The top five firms were invited to make presentations, and three firms were eventually awarded contracts. Debris Monitoring RFP: On behalf of Leon County and the City of Tallahassee, the bid was advertised locally by Leon County Purchasing, and 416 vendors were notified through the automated vendor system. Fourteen vendors requested bid packages and four bids were received. The bids were evaluated by a joint City/County selection committee, and O Brien s Response Management was awarded the bid. VI. Private Property Demolition and Debris Removal The authority for County work forces to enter upon a private road for debris removal is provided in Section (5)(d), Florida Statutes (2009), and shall in no way be deemed to be a trespass. Such removal of disaster-generated debris from private roads shall be performed only upon the satisfaction of each of the following conditions (See Appendix A): The disaster-generated debris removal plan has been implemented. A determination has been made by a designated member of the County work forces that such removal is necessary to eliminate immediate threats to life, public health, and safety or to ensure economic recovery of the affected community to the benefit of the community-at large; provided, however, that the highest priority shall initially be given to immediate threats to life, public health, and safety. Any disaster-generated debris removed from a private property has been placed in the private road in accordance with requirements set forth in County Ordinance No Debris removal will generally be limited to debris in, upon, or brought to public streets and roads, right-of-ways, municipal properties and facilities, and/or other public sites. Exceptions, however, may occur depending on the event and if Board Direction is given. Reimbursements for any such exceptions would not be anticipated, unless all conditions of FEMA Disaster Assistance Policy DAP could be met. The following are documents necessary for reimbursement. The County Attorney s Office and the Debris Monitor would assist with the execution of such documents. Right of Entry: A right-of-entry signed by the property owner should include a hold harmless agreement and indemnification applicable to the project s scope-ofwork. FEMA s Office of Chief Counsel (OCC) should review the right-of-entry form and the language of the hold harmless agreement and indemnification. The right-of-entry form may also include space for the private property owner s insurance information (policy number) for verification purposes, if applicable.

117 Page 18 of 277 Photos are strongly encouraged to show the condition of the property prior to the beginning of the work. Generally, pictures are used to confirm the address and identified scope-of-work on the property. A PPDR Assessment is a property-specific assessment which establishes the scope of eligible work. This may be a map which serves as a guide indicating the location of the eligible items of work that present an immediate threat relative to improved property or ingress and egress routes. These maps may incorporate symbols and a legend to identify structures, property lines, and eligible items of work. This assessment may also be a work order or may be covered in the rightof-entry form, as long as the scope of work can be clearly identified. (Permission from the Federal Coordinating Officer is required before conducting a PPDR.) Documentation of Environmental and Historic Review. Debris removal work from private property must satisfy compliance review requirements as established by 44 CFR Parts 9 and 10 and all other applicable Federal environmental and historic preservation requirements. A. Condemnation Criteria and Procedures 1. Legal documentation (Appendix I) 2. Demolition permitting will be obtained, when necessary, in consultation with the County s Department of Development Support and Environmental Management s (DSEM) Building Plans Review and Inspections Divisions as well as the County Attorney s Office. Demolition permits are required for the following: Single family dwellings Permits are required when the building envelope (exterior walls) are being removed or altered. Single Family Accessory Buildings: Permits are required for the removal of accessory buildings (storage sheds, detached garages and carports, etc.). Manufactured/Mobile Homes Permits are required when the structure is being demolished on site. Commercial Buildings All demolition work performed including interior alterations require permits. Demolitions will occur when a property has been condemned and not remediated within the time frames outlined in the condemnation notice. 3. Inspections (Appendix J) B. Mobile Home Park Procedures Such procedures will be coordinated, when necessary, in consultation with the County s Code Enforcement and Building Inspection Divisions as well as the County Attorney s Office. C. Navigation Hazard Removal Procedures Such procedures are not applicable in Leon County. Leon County, however, might serve in support capacity for its neighboring, coastal counties (i.e. Wakulla

118 Page 19 of 277 and Franklin) with regard to navigation hazard removal procedures. In such a case the established removal procedures of the host County would be followed. VII. Public Information Plan A. Community & Media Relations The Director of Community & Media Relations (CMR) reports directly to the County Administrator. Pre-Season Preparations - The Community & Media Relations Office works in conjunction with the Emergency Operations Center (EOC) and the Capitol Area Chapter of the American Red Cross to prepare and distribute the annual Hurricane Survival Guide. This guide is distributed through local newspapers, government facility sites such as the County s public libraries and the Courthouse, community outreach meetings, the Leon County website, and an abbreviated version is placed in the telephone directory. In addition, the Leon County website offers a tool for helping residents decide whether to stay or leave as a storm approaches. The web address is In addition to the Hurricane Survival Guide and the Have a Hurricane Plan website, during the season the County provides citizens information regarding post-storm separation of waste stream through the local newspapers, the County s website and/or through billings from the County s waste collection provider. In-Season Responsibilities - During storm events and when the EOC is activated, a representative from the CMR office is present. CMR works closely with the Leon County Sheriff s Office to update the Emergency Information Portal which provides information on sandbag availability, road closures, evacuations, government offices and school closures, shelters, etc. In addition, CMR, through the County Administrator, keeps the Chairman and other Board members apprised of the current situation as needed. B. Pre-scripted information Due to the relative frequency of dealing with tropical depressions, tropical storms, and potential hurricane threats, CMR has previous-issued press releases to draw upon for a variety of situations (Appendix K). As storms approach, there are generally five major topics that are included in press releases. Those topics are: Closings (pertaining to government facilities and services), Evacuations, Shelter Information, Sandbag Locations, and Road Closures. C. Distribution Plans Distribution plans for a variety of hurricane-related information include utilizing the following outlets: Leon County Emergency Information Portal ( The Tallahassee Democrat (newspaper)

119 Page 20 of 277 The Capitol Outlook (newspaper) Television and Radio stations County facilities (libraries, the Courthouse, Community Centers, etc.) Volunteer Reception Center (which is activated post-storm) Emergency Operations Center Leon County website ( Have a Hurricane Plan website ( Waste Collection Contractor billings Variable Message Boards

120 Page 21 of 277 Supporting Documents County Ordinance (Debris Removal) City of Tallahassee RFP No ER-RC (Debris Removal and Disposal Services) Leon County RFP No. BC (Disaster Debris Removal Monitoring Services) Leon County Public Works Emergency Desk Manual Leon County Continuity of Operations Plan (COOP) Leon County Comprehensive Emergency Management Plan (CEMP) Leon County Board of County Commissioners Safety Manual Leon County Purchasing Policy Policy No. 96-1

121 Page 22 of 277 Appendix A Leon County Ordinance (Debris Removal)

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132 Page 33 of 277 Appendix B Leon County Division of Purchasing Policy No. 96-1

133 Page 34 of Title: Board of County Commissioners Leon County, Florida Policy No Date Adopted: February 12, 2013 Effective Date: February 12, 2013 Reference: Purchasing and Minority, Women and Small Business Enterprise Policy Chapter 274, Florida Statutes Policy Superseded: Policy No. 96-1, APurchasing adopted January 16, 1996; revised November 25, 1997; revised February 24, 1998; revised March 22, 2005; revised December 13, 2005; revised June 13, 2006; revised February 26, 2009; revised October 27, 2009; revised February 9, 2010; revised March 23, 2010; revised October 12, 2010; revised June 14, 2011; revised August 23, 2011; revised November 8, 2011; revised February 14, 2012; revised March 13, 2012; It shall be the policy of the Board of County Commissioners of Leon County, Florida, that Policy No. 96-1, APurchasing and Minority, Women and Small Business Enterprise revised by the Board of County Commissioners on March 13, 2012, be superseded and a revised policy is hereby adopted in its place, to wit: Page 1 of 59

134 Page 35 of BOARD OF COUNTY COMMISSIONERS LEON COUNTY Purchasing and Minority, Women and Small Business Enterprise Policy Page 2 of 59

135 Page 36 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 LEON COUNTY BOARD OF COUNTY COMMISSIONERS Purchasing and Minority, Women and Small Business Enterprise Policy TABLE OF CONTENTS Section 1 Purpose... 8 Section 2 Application of Policy... 8 A... Contracts... 8 B... Activities... 8 C... Exemptions from the Purchasing Policy... 8 Section 3 Definitions Section 4 Authority of Purchasing Director Section 5 Purchasing Categories; Threshold Amounts Petty Cash/Reimbursements Field Purchase Orders Small Purchases Warehouse Operations Blanket Purchase Orders Field Quotes Purchasing Quotes Informal Bids Competitive Sealed Bidding A. Conditions for Use B. Invitation to Bid C. Public Notice D. Bid Opening E. Bid Acceptance and Evaluation F. Bid Agenda Item G. Correction or Withdrawal of Bids; Cancellation of Awards H. Multi-Step Sealed Bidding I. Award J. Cancellation of Invitations for Bids or Requests for Proposals K. Disqualification of vendors L. No bids received M. Local Preference Competitive Sealed Proposals Page 3 of 59

136 Page 37 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy Professional Architectural, Engineering, Landscape Architectural, and Land Surveying Services A. Purpose B. Public Announcement C. Selection Committee Membership and Evaluation D. Negotiation Staff Other Competitive Sealed Proposals A. Conditions for Use B. Consultant's Competitive Negotiation Act C. Board Approval D. Public Notice E. Evaluation Factors F. Proposal Cancellation or Postponement G. Revisions and Discussions with Responsible Offerors H. Award I. Local Preference Sole Source Purchases A. Sole Source Certification B. Additional Purchases from Certified Sole Source Emergency Purchases A. Authorization During Normal Business Hours B. Authorization Outside of Normal Business Hours C. Documentation and Approval D. Mutual Aide Agreements Cooperative Purchasing A. State Contract B. Federal Supply Service C. Other Public Procurement Units Protesting Intended Decisions and Procurement Awards A. Right to Protest B. Filing a Protest C. General Provisions D. Protest of Intended Decisions E. Protest of Procurement Awards: Special master Proceedings Contract Claims A. Authority to Settle Contract Controversies Remedies for Solicitation or Awards in Violation of Law A. Prior to Bid Opening or Closing Date for Receipt of Proposals B. Prior to Award C. After Award Owner Direct Purchases in Public Works Contracts Page 4 of 59

137 Page 38 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy Employment Eligibility and Verification A. Purpose B. Employment Eligibility Verification C. Establishment of Administrative Procedures Section 6.0 Contract Administration Contract Provisions A. Standard Contract Clauses and Their Modification B. Contract Clauses Price Adjustments A. Methods of Price Adjustment B. Cost or Pricing Data Required Change Orders/Contract Amendments A. Change Orders B. Contract Amendments Assignments of Contracts Right to Inspect Plant Section 7.0 Rights of Board of County Commissioners Section 8.0 County Procurement Records A. Procurement Files B. Retention of Procurement Records Section 9.0 Specifications Maximum Practicable Competition Use of Brand Name or Equivalent Specifications A. Use B. Designation of Several Brand Names C. Required Characteristics D. Nonrestrictive Use of Brand Name or Equivalent Specifications E. Determination of Equivalents F. Specifications of Equivalents Required for Bid Submittal Brand Name Specifications A. Use of Brand Name Specifications B. Competition Section 10.0 Ethics in Public Contracting Criminal Penalties Employee Conflict of Interest A. Participation B. Blind Trust Page 5 of 59

138 Page 39 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy Contemporaneous Employment Prohibited Use of Confidential Information Waivers from Contemporaneous Employment Prohibition and Other Conflicts of Interest Gratuities and Kickbacks Sanctions A. Employee Sanctions B. Non-Employee Sanctions Recovery of Value Transferred or Received in Breach of Ethical Standards A. General Provisions B. Recovery of Kickbacks by the County Section 11 Federal Policy Notice Patents A. Notice to Contractor B. Notice by Contractor Notice of Federal Public Policy Requirements A. Applicability B. Notice Section 12 Insurance Requirements A. Minimum Requirements B. Certificates of Insurance C. Cancellation Clause D. Change of Insurance Requirements Section 13 Bonds and Deposits Types of Bonds and Deposits A. Combination Payment and Performance Bond B. Performance Bond C. Payment and Material Bond D. Warranty Bond E. Guaranty of Good Faith Deposit (Bid Deposit) F. Irrevocable Letter of Credit G. Retention of Payments Amount of Bond or Deposit A. Amount of Bond B. Exceptions to Amount of Bond Page 6 of 59

139 Page 40 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy Processing of Bonds and Deposits A. Responsibility for Securing Bonds B. Licensure of Bonding Company C. Review of Bonds by County Attorney D. Failure to Provide Required Bond E. Filing of Bonds F. Deposits G. Plans and Specifications Deposits Section 14 Payment to Vendors A. Local Government Prompt Payment Act B. Purchasing Director Payment Dispute Resolution A. Purpose B. Definitions C. Filing a Dispute D. General Provisions E. Payment Dispute Resolution Proceeding Process Section 15 Authorization to Debar or Suspend Vendor(s) A. Suspension B. Debarment C. Causes for Debarment D. Notice of Decision Appeal of Decision to Debar or Suspend Section 16 Minority, Women and Small Business Enterprise Participation Program A. Purpose B. Definitions C. Administrative Authority, Powers and Duties D. MWBE Citizens Advisory Committee E. Aspirational Targets F. Special Consideration for MBEs, WBEs, and SBEs G. Setting and Meeting Aspirational Targets H. Responsibilities of Persons Seeking Participation as a MBE, WBE, or SBE Contractor or Subcontractor I. Contract Management J. Certification Criteria K. Certification and Recertification Process L. Decertification and Right of Appeal M. Small Business Enterprise N. Outreach O. Severability Clause 57 Section 17 Procurement for Community Development Block Grant Housing Program A. Purpose B. Procurement for the Community Development Block Grant Housing Program Page 7 of 59

140 Page 41 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 Section 1 PURPOSE This policy is adopted to promote the following purposes: A. To simplify, clarify, and modernize the procurement practices used by the Leon County Board of County Commissioners. B. To promote the continued development of professional and equitable procurement policies and practices. C. To promote public confidence in the purchasing procedures followed by Leon County. D. To ensure the fair and equitable treatment of all persons who deal with the procurement system of Leon County. E. To encourage the growth of small and minority businesses through the promotion of an atmosphere conducive to the development and maintenance of small and minority business participation in the County's procurement system. F. To maximize economy in Leon County procurement activities and to maximize to the fullest extent practicable the purchasing value of public funds of Leon County. G. To provide safeguards for the maintenance of a procurement system of quality and integrity in Leon County. Section 2 APPLICATION OF POLICY A. Contracts: This policy shall apply to contracts/agreements solicited or entered into after the effective date of this policy or subsequent amendments or revisions, unless the parties agree to its application to a contract solicited or entered into prior to the effective date. B. Activities: This policy shall apply to the purchase/procurement of all materials, supplies, services, construction and equipment except as herein specifically exempted. C. Exemptions from the Purchasing Policy. The following exemptions do not preclude the County from utilizing competitive procurement practices where possible. The following types of purchasing activities shall be exempt from the purchasing policy except as noted: 1. All heavy equipment repairs shall be exempted from the competitive sealed bid requirements. The Fleet Management Director or designee shall solicit and evaluate quotations and make a recommendation for award. The Purchasing Director shall review the quotations and the recommendation for award and award of the bid shall be made by the appropriate authority as provided in Section All purchases of services from a utility whose rates are determined and controlled by the Public Service Commission or other governmental authority, including but not limited to electricity, water, sewer, telephone, and cable television services. 3. All supplies, materials, equipment, or services purchased at a price established in any of the authorized forms of state contracts of the State of Florida Department of Management Services, Division of Purchasing; or under the terms and conditions of a cooperative purchasing agreement or term contract by other governmental units. 4. All supplies, and materials, equipment, construction, or services purchased from another unit of government not otherwise limited or prohibited by law. Page 8 of 59

141 Page 42 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy Service/Maintenance Contracts: Continuing service and/or maintenance contracts that are initially awarded by the Board as a part of product acquisition/installation to a vendor who is the manufacturer, developer, or who is the authorized service agent thereof and for which funds are annually appropriated in the budget are exempt from further competitive requirements of this policy. Examples are software/hardware maintenance, building systems maintenance, security systems, etc.) 6. Real property, real estate brokerage, options of title or abstracts of title for real property, title insurance for real property, and other related costs of acquisition, rental, or sale of real property. 7. All purchases of used equipment having a value of $20,000 or less; however, each such purchase shall be supported by one equipment appraisal report from the vendor. 8. All purchases of used equipment having a value greater than $20,000 and less than $100,000; however, each such purchase shall be supported by two independent equipment appraisal reports. 9. Library Media and Materials. The purchase of library books, education and/or personnel texts, textbooks, printed instructional materials, reference books, periodicals, databases, indexes, prerecorded library media materials, e.g. audio and video cassettes, film strips, films, sound recordings, computer software, etc, and printed library cards that are to be a part of the library collection are exempt. 10. Grants (Direct Payment) by the County and social services (e.g. burials, reimbursable emergency assistance payments to approved social service agencies, down payment assistance, temporary housing relocation expenses and indigent medical and tubercular care patient services). 11. Advertisements (except Delinquent Tax Notices). 12. Training Media and Services. When such materials or services are available only from the producer, publisher, owner of the copyright or patent, educational institution or training service provider, which developed the training program, the purchase, is exempt from competitive requirements. Approval thresholds in Section 5.0 shall apply. 13. Software. Upgrades, software modification services by the copyright holder, and related software enhancements to installed software purchased through competitive means are exempt. The purchase of new software packages or systems shall follow the thresholds and procedures of the policy to ensure competitive selection. 14. Corporate and media sponsorship agreements up to the formal bid threshold in Section Licensed health professionals, e.g., Doctors, Nurses, Veterinarians who provide service directly to patients. 16. Training and educational courses, contracts between the County and governmental entities or nonprofit corporations, memberships, publications, meeting rooms, and hotels when any of the procurements listed previously are below the formal bid threshold in Section Lectures by individuals. 18. Artistic services, works of art for public places, and art design and conservation services. 19. Continuing education events or programs. 20. Services of legal counsel authorized by the Office of the County Attorney, including, but not limited to, expert witnesses, conflict counsel, and other services required by the Office of the County Attorney. 21. Travel arrangements and expenses. (Reference Travel Policy) Page 9 of 59

142 Page 43 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 Section 3 DEFINITIONS A. The following terms defined in this section shall have the meanings set forth below whenever they appear in this policy: 1. "Addendum" is a written document used to expand or more fully explain the terms of a bid instrument (Invitation to Bid or Request for Proposals). An addendum is not to be confused with a contract "amendment." 2. "Agreement" means all types of Leon County agreements, regardless of what they may be called, for the purchase or disposal of supplies, services, materials, equipment, or construction. 3. "Blanket Purchase Order" means a purchase order issued to a vendor for an amount not to exceed the face value of the purchase order. A blanket purchase order is for the procurement of commodities or services no single item of which shall exceed the threshold for small purchases unless the appropriate method of procurement was used to generate the Blanket Purchase Order. 4. "Board" means the Board of County Commissioners of Leon County, Florida. 5. "Brand Name or Equivalent Specification" means a specification limited to one or more items by manufacturers' names or catalogue numbers to describe the standard of quality, performance, and other salient characteristics needed to meet the County requirements, and which provides for the submission of equivalent products. 6. "Business" means any corporation, partnership, individual, sole proprietorship, joint stock company, joint venture, or any other private legal entity. 7. "Change Order" means a written order amending the scope of, or correcting errors, omissions, or discrepancies in a contract or purchase order. 8. "Commodity" means a product that the County may contract for or purchase for the use and benefit of the County. A specific item, it is different from the rendering of time and effort by a provider. 9. "Competitive Sealed Bidding" (Invitation for Bid) means a written solicitation for sealed competitive bids used for the procurement of a commodity, group of commodities, or services valued more than the threshold for this category. The invitation for bids is used when the County is capable of specifically defining the scope of work for which a contractual service is required or when the County is capable of establishing precise specifications defining the actual commodity or group of commodities required. 10. "Confirming Order" means a purchase order restating the same terms originally placed orally or in writing other than a purchase order. 11. "Construction" means the process of building, attaining, repairing, improving, or demolishing any public structure or building, or other public improvement of any kind to any public real property. It does not include routine operation, routine repair, or routine maintenance of existing structures, buildings, or real property. 12. "Contract" means all types of Leon County agreements, regardless of what they may be called, for the purchase or disposal of supplies, services, materials, equipment, or construction and which name the terms and obligations of the business transaction. 13. "Contract amendment or modification" means any written alteration in specifications, delivery point, rate of delivery, period of performance, price, quantity, or other provisions of any contract accomplished by mutual action of the parties to the contract. Page 10 of 59

143 Page 44 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy "Contractor" means any person having a contract with Leon County (not to include employment contracts). 15. "Contractual Services" means the rendering by a contractor of its time and effort rather than the furnishing of specific commodities. The term applies only to those services rendered by individuals and firms who are independent contractors, and such services may include, but are not limited to, evaluations; consultations; maintenance; accounting; security; management systems; management consulting; educational training programs; research and development studies or reports on the findings of consultants engaged there under; and professional, technical, and social services. 16. "Contractual Services Contract" is a contract for a contractor's time and effort rather than the furnishing of specific commodities. Satisfactory completion of the service and/or a specified period of time or date completes such contract. 17. "Cooperative Purchasing" is procurement conducted by, or on behalf of, more than one public procurement unit. 18. "Cost Analysis" is the evaluation of cost data for the purpose of arriving at costs actually incurred or estimates of costs to be incurred, prices to be paid, and costs to be reimbursed. 19. "Data" means recorded information, regardless of form or characteristic. 20. "Definite Quantity Contract" is a contract whereby the contractor(s) agrees to furnish a specific quantity of an item or items at a specified price and time to specified locations. Delivery by the vendor and acceptance of the specific quantity by the County completes such contract. 21. "Designee" means a duly authorized representative of a person holding a superior position. 22. "Emergency" means when there exists a threat to public health, welfare, or safety; natural or unnatural, unexpected events; accidents; or loss to the County under emergency conditions which shall be considered to mean those situations where the operation of a department or division would be seriously impaired if immediate action were not taken. 23. "Emergency Purchase" is a purchase necessitated by a sudden unexpected turn of events (e.g., acts of God, riots, fires, floods, accidents or any circumstances or cause beyond the control of the agency in the normal conduct of its business) where the delay incident to competitive bidding would be detrimental to the interests of the County. 24. "Employee" means an individual drawing a salary from Leon County, whether elected or nonelected. For the purposes of this policy, it also means that any non-compensated individual performing personal services for Leon County is to be governed by these rules. 25. "Established Catalog Price" is the price included in a catalog, price list, schedule, or other form that: a. is regularly maintained by a manufacturer or contractor; b. is either published or otherwise available for inspection by customers; and c. states prices at which sales are currently or were last made to a significant number of any category of buyers or those buyers constituting the general buying public for the supplies or services involved. 26. "Field Purchase Order" means the procurement of commodities or services through the issuance of a purchase order by a department or division head under procedures established by the Purchasing Division and with a value within the thresholds set for this category. Field Purchase orders do not require quotes, bids, or public notice prior to issuance. 27. "Field Quotes" is the procurement procedure used by the operating department or divisions to purchase commodities or contractual services with a value within the threshold amounts set for this category and are conducted by the department or division. Page 11 of 59

144 Page 45 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy "f.o.b. or FOB (free on board)" is a term used in conjunction with an identified physical location to determine the responsibility and basis for payment of freight charges, and the point at which title for the shipment passes from seller to buyer. Commonly used deliveries are: a) FOB Destination. A shipment to be delivered to a destination designated by the buyer and the point at which buyer accepts title. b) FOB Shipping Point (Origin). A shipment is to be delivered to the buyer with passage of title, on board the indicated conveyance or carrier at the contractor's designated facility. 29. "Gratuity" is a payment, loan, subscription, advance, deposit of money, service, or anything of more than nominal value, present or promised, inuring to the benefit of an employee, unless consideration of substantially equal or greater value is given by the employee. 30. "Informal Sealed Bid is a written solicitation method used by the County for securing prices and selecting a provider of commodities or services with a value within the threshold for this category 31. Intended Decision means a written notice that states the firm or firms to whom the County intends to award a contract resulting from a solicitation and which establishes the period in which a notice of intent to protest may be timely filed. The Intended Decision is posted on the County website and on the Public Notice board in the Purchasing Division. 32. Invitation for Bid (Competitive Sealed Bidding) means a written solicitation for sealed competitive bids used for the procurement of a commodity, group of commodities, or services valued more than the threshold for this category. The invitation for bids is used when the County is capable of specifically defining the scope of work for which a contractual service is required or when the County is capable of establishing precise specifications defining the actual commodity or group of commodities required. 33. AInvitation to Negotiate@ means a written solicitation that calls for responses to select one or more persons or business entities with which to commence negotiations for the procurement of commodities or contractual services. 34. "Joint Venture" means: a) a combination of contractors performing a specific job in which business enterprises participate and share a percentage of the net profit or loss; or b) a joint business association of a minority individual(s)/firm(s) as defined herein, and a nonminority individual(s)/firm(s) to carry out a single business enterprise for which purpose the individuals/firms combine their property, money, efforts, skills and/or knowledge. 35. Local Business means a business which: a) Has had a fixed office or distribution point located in and having a street address within Leon, Gadsden, Wakulla, or Jefferson County for at least six months immediately prior to the issuance of the request for competitive bids or request for proposals by the county; and b) Holds any business license required by Leon County, and, if applicable, the City of Tallahassee; and c) Is the principal offeror who is a single offeror; a business that is the prime contractor and not a subcontractor; or a partner or joint venturer submitting an offer in conjunction with other businesses. 36. "Manufacturer" means a person or firm engaged in the process of making, fabricating, constructing, forming, or assembling a product(s) from raw, unfinished, semi-finished, finished, or recycled materials through a direct contract/agreement on behalf of the general contractor. 37. "Option to Renew" means a contract clause that allows a party to reinstate the contract for an additional term. 38. "Person" means any business, individual, committee, club, other organization, or group of individuals. Page 12 of 59

145 Page 46 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy "Pre-Bid Conference" (or Pre-Proposal Conference) means a meeting held with prospective bidders prior to solicitation of or the date for receipt of bids or proposals, to recognize state of the art limits, technical aspects, specifications, and standards relative to the subject, and to elicit expertise and bidders' interest in submitting a bid or pursuing the task. 40. Procurement Award is an award of a contract for goods or services resulting from a solicitation through action by the Board of County Commissioners in a public meeting. 41. "Professional Services" means those services within the scope of the practice of architecture, professional engineering, landscape architecture, or registered land surveying, as defined by the State of Florida, or those performed by any architect, professional engineer, landscape architect, or registered land surveyor in connection with his professional employment or practice. 42. "Purchase Order" means that document used by Leon County to request that a contract be entered into for a specified need, and may include, but not be limited to, the technical description of the requested item, delivery schedule, transportation, criteria for evaluation, payment terms, and other specifications. 43. "Purchasing" means buying, procuring, renting, leasing, or otherwise acquiring any materials, supplies, services, construction, or equipment. It also includes all functions that pertain to the obtaining of any material, supplies, services, construction, and equipment, including description of specifications and requirements, selection and solicitation of resources, preparation, and award of contract. 44. "Purchasing Director" means the Leon County employee duly authorized to enter into and administer contracts and make written determinations with respect thereto under the terms of the purchasing policies of the Board of County Commissioners. 45. "Purchasing Quotes" is the procedure used to purchase commodities or contractual services wherein the Purchasing Director or Purchasing Agents obtain either written or oral quotations from two or more vendors for purchases within the threshold amounts set for this category. 46. "Recycled Content" means materials that have been recycled and are contained in the products or materials to be procured, including, but not limited to, paper, plastic, aluminum, glass, and composted materials. The term does not include internally generated scrap that is commonly used in industrial or manufacturing processes or waste or scrap purchased from another manufacturer who manufactures the same or a closely related product. 47. "Regulation" means a statement by the Board of County Commissioners having general or particular applicability and future effect, designed to implement, interpret, or prescribe law, policy, or practice. 48. Request for Information means a written or electronically posted request to vendors for information concerning commodities or contractual services. Responses to these requests are not offers and may not be accepted to form a binding contract. 49. "Request for Proposals" (RFP) means a written solicitation for sealed proposals with the title, date, and hour of public opening designated. The request for proposals may be used when the County is unable to specifically define the scope of work for which the commodity, group of commodities, or contractual service is required, and when the County is requesting that a qualified offeror propose a commodity, group of commodities, or contractual service to meet the specifications of the solicitation document. 50. ARequest for a Quote@ means a solicitation that calls for pricing information for purposes of competitively selecting and procuring commodities and contractual services from qualified or registered vendors. Page 13 of 59

146 Page 47 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy "Responsible bidder or offeror" means a person who has the capability, in all respects, to perform fully the contract requirements, and the integrity and reliability, which will assure good faith performance. 52. "Responsive bidder" means a person who has submitted a bid, which conforms in all material respects to the Invitation to Bid or the Request for Proposals. 53. "Services" means the furnishing of labor, time, or effort by a contractor, not involving the delivery of a specific end product other than those which is not defined as supplies and which are merely incidental to the required performance. This term shall not include employment agreements or collective bargaining agreements. 54. "Small Purchases" means the procurement of commodities or services with a value within the thresholds set for this category without the requirement of quotes, bids, or public notice under procedures established by the Purchasing Division. 55. "Sole (Single) Source Purchases" means the purchase of a commodity, service, equipment, or construction item(s) from one available practical source of supply. A Sole (single) Source may be declared such by the Board of County Commissioners for reasons acceptable to it. 56. "Specification" means any description of the physical or functional characteristics of the nature of a material, supply, service, construction, or equipment item. It may include a description of any requirement for inspection, testing, recycled, or degradable materials content, or preparing a material, supply, service, construction, or equipment item for delivery. 57. "Supplier" means a person or firm who engages in the selling of materials and supplies to contractors, subcontractors, and/or manufacturers for the purpose of constructing, repairing, altering, remodeling, adding to or subtracting from or improving any building, structure, or property through a direct contract/agreement on behalf of the general contractor. 58. ATangible Personal Property@ is defined as property which has an original acquisition cost of $750 or more; is not consumed in use and has a useful life of one year or more after initial acquisition; is not fixed in place and not an integral part of a structure or facility; and is not an integral part or component of another piece of equipment. 59. "Term Contract" means indefinite quantity contract whereby a contractor(s) agrees to furnish an item or items during a prescribed period of time (such as 3, 6, 9, 12 months or a specific date). The specified period of time or date completes such contract. 60. "Tie (Identical) Bid" is when two or more bids are equal with respect to price and it appears that the quality and service offered by the vendors are otherwise comparable. Section 4 AUTHORITY OF PURCHASING DIRECTOR A. The Purchasing Director shall serve as the central purchasing officer of Leon County. B. The Purchasing Director shall develop and administer operational procedures implementing this policy and for governing the internal functions of the Division of Purchasing. C. Except as otherwise specifically provided in this policy, the Purchasing Director, or his/her designee, shall, in accordance with regulations promulgated by the Board of County Commissioners: 1. Purchase or supervise the purchase of all supplies, services, materials, equipment, and construction services defined within the scope of this policy. 2. Operate a central warehouse for the purchasing, in bulk, of items that may be more economically bought and distributed than when purchased on an individual basis; and, to provide facilities for storage of critically needed supplies. 3. Administer the County Purchasing Card Program. 4. Administer the Property Control Program. Page 14 of 59

147 Page 48 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 D. Upon the prior approval of the County Administrator or designee, the Purchasing Director may delegate authority to designee(s) as allowed by law or rule. E. The Purchasing Director shall assist the Minority Business Enterprise Coordinator, implement, monitor, and enforce the County's Minority Business Enterprise program policy. Section 5 PURCHASING CATEGORIES; THRESHOLD AMOUNTS Table 1 Purchasing Process Thresholds Procurement Method Threshold Petty Cash/Reimbursement (Section 5.01) Not to exceed $100 Field Purchase Order (Section 5.02) $1 to $500 Small Purchase Procedures (Section 5.03) $1 to $1,000 Warehouse Operations (Section 5.031) $1 to $5,000 Blanket Purchase Orders (Section 5.04) Non-contractual Basis Contractual Basis not to exceed $5,000 not to exceed annual contract value Field Quotes (Section 5.05) $1,000 to $5,000 Purchasing Quotes (Section 5.06) $5, to $50,000 Bid - Informal Bid Process (Section 5.07) $50, to $100,000 Bid - Competitive Sealed Bids (Section 5.08) RFP - Competitive Sealed Proposals (Sections 5.09 and 5.091) $100, and above Purchasing Director Authorized to Release RFPs Expected to Result in Costs No Greater than $100,000; County Administrator Authorized to release all RFPs Table 2 - Contract Award and Signature Authority Thresholds Individual Threshold 1 Purchasing Director *Procurement Agreements up to $100,000 County Administrator *Procurement Agreements greater than $100,000 and no greater than $250,000 Board of County *Procurement Agreements greater than $250,000 Commissioners 1 Term contracts will be awarded based upon the value of the initial term of the contract. *All contracts will be in a form approved by the County Attorney s Office prior to execution. Section 5.01 PETTY CASH/REIMBURSEMENT A. Petty cash funds shall be established and administered under the financial policies of the Board. B. Purchases from any petty cash fund or the reimbursement for a purchase shall be governed by the following requirements: 1. No purchase of any single item from any petty cash fund or for reimbursement shall exceed the authorized dollar limit for petty cash/reimbursements in Section Reimbursement for employee travel expenses from a petty cash fund shall not be allowed, except for local parking or toll costs. 3. Funds contained within a petty cash fund shall not be expended for the payment of salaries. 4. Expenditures from a petty cash fund or personal funds shall be reimbursed, provided: a) They are supported by itemized vouchers, invoices, or receipts signed by the division or department head or designee. b) They qualify as a proper public purpose. c) They are expenses included within the approved annual budget of the division or Page 15 of 59

148 Page 49 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 department. Page 16 of 59

149 Page 50 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 Section 5.02 FIELD PURCHASE ORDERS A. Field purchase orders shall be used for purchase of small, sundry items, which cost not more than the threshold authorized for field purchase orders in Section 5. Field purchase orders shall be used for a single or aggregate purchase, but only for a single transaction. Employees are encouraged to seek out and utilize certified minority and women-owned business enterprises in these purchases. B. Field purchase orders shall not be combined to purchase any item, which costs more than the approved threshold limit and shall not be used in the manner of or in lieu of a blanket purchase order. C. Field purchase orders shall be issued and authorized only by department and division heads. Section 5.03 SMALL PURCHASES The purchase of commodities, equipment, and services, which cost less than the threshold authorized in Section 5, does not require solicitation of quotes or bids. Small purchases shall be authorized by Department or Division heads or their designees. Employees are encouraged to seek out and utilize certified minority and women-owned business enterprises in these purchases. Section WAREHOUSE OPERATIONS The purchase of commodities, materials, and equipment for warehouse inventory, which cost less than the threshold authorized in Section 5, does not require solicitation of quotes or bids. Use of economic indices, review of costs, market trends, and/or use of periodic quotations shall be used by staff to assure cost effective purchases. Warehouse employees are encouraged to seek out and utilize certified minority and womenowned business enterprises in these purchases Section 5.04 BLANKET PURCHASE ORDERS Blanket Purchase Orders of either type listed below shall not be used to purchase any tangible personal property item. Tangible personal property items shall be listed as individual line items on a purchase order. A. Non-contractual Basis - All purchases made with a non-contractual blanket purchase order shall follow the thresholds and requirements for competitive selection. No purchase order shall be issued for an amount greater than the limit established for a non-contractual blanket purchase order in Section 5 of this policy for the purchase of goods or services not under a contractual arrangement authorized under this purchasing policy or approved by the Board. B. Contractual Basis - No purchase order shall be issued for an amount greater than the limit established for a contractual blanket purchase order in Section 5 of this policy for the purchase of goods or services unless approved by the Board. Section 5.05 FIELD QUOTES The purchase of goods and services, which cost within the range authorized for field quotes in Section 5, shall require competitive quotations from three or more vendors. The quotations may be obtained by the Department/Divisions. Employees are encouraged to seek out and secure at least one of the three quotes from certified minority and women-owned business enterprises. The Purchasing Director shall review the quotations and make the award or require additional quotations prior to award. Page 17 of 59

150 Page 51 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 Section 5.06 PURCHASING QUOTES The purchase of goods and services, which cost within the range authorized for purchasing quotes in Section 5, shall require competitive quotations from three or more vendors. The quotations may be obtained by the operating department/division or the Purchasing Division and shall be reviewed and awarded by the Purchasing Director. Quotes must be on company letterhead, quote forms, or in a similar format with a date and signature of an authorized representative of the vendor. Employees are encouraged to seek out and secure at least one of the three quotes from certified minority and women-owned business enterprises. Section 5.07 INFORMAL BIDS For purchases within the cost range authorized for informal bids in Section 5, the Purchasing Director shall secure, whenever possible, a minimum of three written quotations, which shall be the result of written specifications transmitted by mail, by electronic format, or by facsimile. When such quotations are received by facsimile, the purchasing agent will immediately seal and label the quotations until the time set for opening bids. In those instances where the securing of three quotations is not practicable, the Purchasing Director shall provide written justification of such. The Purchasing Division shall seek out and encourage participation in the bid from certified minority and women-owned business enterprises, when available. The quotations shall be reviewed and a written recommendation of award shall be prepared for review and action. Section 5.08 COMPETITIVE SEALED BIDDING A. Conditions for Use. All contracts for purchases of a single item or aggregate for the proposed term of service in excess of the established base amount for competitive sealed bidding in Section 5 shall be awarded on the basis of sealed competitive bidding, except as provided in Section 5.09, Competitive Sealed Proposals. B. Invitation to Bid. An invitation to bid shall be issued and shall include specifications, all contractual terms and conditions, and the place, date, and time for opening or submittal. All interpretations or corrections shall be issued as addenda. The County shall not be responsible for oral clarifications or representations. 1. Alternate(s). Alternate bids will not be considered unless authorized by and defined in the invitation to bid or addenda thereto. 2. Approved Equivalents. The County reserves the right to determine acceptance of item(s) as an approved equivalent. Bids, which do not comply with, stated requirements for equivalents in the bid conditions are subject to rejection. The procedure for acceptance of equivalents shall be included in the invitation to bid or addenda thereto. 3. If less than two responsive bids, proposals, or replies for commodity or contractual services purchases are received, the Purchasing Director may negotiate on the best terms and conditions. The Purchasing Director shall document the reasons that such action is in the best interest of the County in lieu of resoliciting competitive sealed bids, proposals, or replies. The Purchasing Director shall report all such actions to the County Administrator or designee prior to final award of any contract resulting from the negotiations. C. Public Notice. 1. The solicitation of competitive bids or proposals for any County construction project that is projected to cost more than $200,000 shall be publicly advertised at least once in a newspaper of general circulation in the County at least 21 days prior to the established bid opening and at least 5 days prior to any scheduled pre-bid conference. The solicitation of competitive bids or proposals for any County construction project that is projected to cost more than $500,000 shall be publicly advertised at least once in a newspaper of general circulation in the County at least 30 days prior to the established bid opening and at least 5 days prior to any scheduled pre-bid conference. Bids or proposals shall be received and opened at the location, date, and time established in the bid or proposal advertisement. In cases of emergency, the procedures required in this section may be altered by the County in any manner that is reasonable under the emergency circumstances. Page 18 of 59

151 Page 52 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 The solicitation of competitive bids for work on roads shall be publicly advertised in a newspaper of general circulation in the county at least once each week for two consecutive weeks. 2. Changes to Public Notice. If the location, date, or time of the bid opening changes, written notice of the change shall be given in the form of an addendum, as soon as practicable after the change is made and posted on the Purchasing Division website 3. Each invitation to bid, request for proposals, request for qualifications, invitation to negotiate, or other procurement solicitation which is anticipated to include travel expenses by authorized persons as defined in the Leon County Travel Policy shall include the following notice: Consultant travel which is not covered within the scope of the consultant=s contract and which is billed separately to the County on a cost reimbursement basis must receive prior approval and will be reimbursed in accordance with the Leon County Travel Policy. Travel expenses shall be limited to those expenses necessarily incurred in the performance of a public purpose authorized by law to be performed by the Leon County Board of County Commissioners and must be within limitations described herein and in Ch , Florida Statutes. Consultants and contractors, traveling on a cost reimbursement basis, must have their travel authorized by the department head from whose budget the travel expenses will be paid and the County Administrator. D. Bid Opening. Bids shall be opened publicly. At least one representative from the Division of Purchasing shall open the bids in the presence of one or more witnesses at the time and place designated in the Invitation to Bid. The amount of each bid, and such other relevant information as may be deemed appropriate by the Purchasing Director, together with the name of each bidder, and all witnesses shall be recorded. The record (Tabulation Sheet) and each bid shall be open to public inspection as provided by law. E. Bid Acceptance and Evaluation. Bids shall be unconditionally accepted without alteration or correction, except as authorized in this Policy. Bids shall be evaluated based on the requirements set forth in the Invitation to Bid, which may include, but not be limited to criteria to determine acceptability such as: inspection, testing, quality, recycled or degradable materials content, workmanship, delivery, and suitability for a particular purpose and/or factors to determine a bidder=s level of responsibility such as references, work history, bonding capacity, licensure, certifications, etc. Those criteria that will affect the bid price and that are to be considered in evaluation for award shall be objectively measured, such as discounts, transportation costs, and total or life cycle costs. No criteria may be used in bid evaluation that is not set forth in the Invitation to Bid, in regulations, or in this policy. F. Bid Agenda Item. The Tabulation Sheet and other bid documents, as necessary, shall be presented to the appropriate department or division head for review and recommendation. The department or division head shall prepare the recommendation in the appropriate format to the awarding authority as prescribed in Section 5. G. Correction or Withdrawal of Bids; Cancellation of Awards. Correction or withdrawal of inadvertently erroneous bids, before or after award, or cancellation of awards or contracts based on such bid mistakes, shall be permitted where appropriate under the sole discretion of the County. Mistakes discovered before bid opening may be modified or withdrawn upon written notice received in the office designated in the Invitation for Bids prior to the time set for bid opening. After bid opening, corrections in bids shall be permitted only to the extent that the bidder can show by clear and convincing evidence that a mistake of a non-judgmental character was made, the nature of the mistake, and the bid price actually intended. After bid opening, no changes in bid price or other provisions of bids prejudicial to the interest of the County or fair competition shall be permitted. In lieu of bid correction, a low bidder alleging a material mistake of fact may be permitted to withdraw its bid if: 1. the mistake is clearly evident on the face of the bid document but the intended correct bid is not similarly evident; or 2. the bidder submits evidence that clearly and convincingly demonstrates that a mistake was made. All decisions to permit the correction or withdrawal of bids, or to cancel awards or contracts based on bid mistakes, shall be supported by a written determination made by the Purchasing Director and concurred with by the County Administrator. Page 19 of 59

152 Page 53 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 H. Multi-Step Sealed Bidding. 1. When it is considered impractical to initially prepare a purchase description to support an award based on price, an invitation for bids or request for proposals may be issued requesting the submission of unpriced offers to be followed by an invitation for bids limited to those bidders whose offers have been determined to be technically acceptable under the criteria set forth in the first solicitation. 2. A multi-step process utilizing pre-qualification of bidders or respondents may be used to ensure that the bidders/respondents have the appropriate licensure, capacity, qualifications, experience, staffing, equipment, bonding, insurance and similar project based criteria to successfully a perform a specific project or service. Those bidders/respondents determined qualified in the prequalification will then be eligible to participate in the invitation to bid or request for proposal process for the project or service. The Purchasing Director shall develop and administer operational procedures governing any such pre-qualification process. I. Award. The contract shall be awarded with reasonable promptness to the lowest responsible and responsive bidder whose bid meets the requirements and criteria set forth in the invitation to bid. The County reserves the right to waive any informality in bids and to make an award in whole or in part when either or both conditions are in the best interest of Leon County. The contract shall be awarded by purchase order or other written notice. Every procurement of contractual services shall be evidenced by a written agreement. 1. Notice of Intended Decision. The Intended Decision shall be posted on the County website and on the public notice board in the Purchasing Division. This written notice shall state the firm or firms to whom the County intends to award the contract resulting from the solicitation and establishes the 72 consecutive hour period in which a notice of intent to protest may be timely filed. 2. Notice of Right to Protest. Any bid award recommendation may be protested if the recommendation is alleged to be contrary to the County s rules or policies, the solicitation specifications, or law. The standard of proof for such proceedings shall be whether the action is clearly erroneous, contrary to competition, arbitrary or capricious. Such notice of intent of bid protest shall be delivered to the Purchasing Director within 72 consecutive hours after posting of the Notice of Intended Decision of Award (excluding Saturdays, Sundays, and County holidays). Protestor shall file thereafter a formal written bid challenge within 10 calendar days after the date in which the notice of intent of bid protest has been submitted. Failure to timely file a notice of intent of bid protest or failure to timely file a formal written bid protest with the proper bond shall constitute a waiver of all rights provided under the Leon County Purchasing Policy. J. Cancellation of Invitations for Bids. An invitation for bids or other solicitation may be canceled, or any or all bids may be rejected in whole or in part when it is in the best interests of the County, as determined by the Board. Notice of cancellation shall be provided to all planholders and posted on the County website. The notice shall identify the solicitation, explain the reason for cancellation, and, where appropriate, explain that an opportunity will be given to compete on any re-solicitation or any future procurement of similar items. K. Disqualification of Vendors. For any specific bid, vendors may be disqualified by the Purchasing Director for the following reasons: 1. Failure to materially perform according to contract provisions on prior contracts with the County. 2. Conviction in a court of law of any criminal offense in connection with the conduct of business. 3. Clear and convincing evidence of a violation of any federal or state anti-trust law based on the submission of bids or proposals, or the awarding of contracts. Page 20 of 59

153 Page 54 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy Clear and convincing evidence that the vendor has attempted to give a Board employee a gratuity of any kind for the purpose of influencing a recommendation or decision in connection with any part of the Board's purchasing activity. 5. Failure to execute a Public Entity Crimes Statement as required by Florida Statutes Chapter (3)(a). 6. Other reasons deemed appropriate by the Board of County Commissioners. L. If less than two responsive bids, proposals, or replies for commodity or contractual services purchases are received, or all bids received exceed the available budget identified for the commodity or contractual service, the Purchasing Director may negotiate on the best terms and conditions. The Purchasing Director shall document the reasons that such action is in the best interest of the County in lieu of resoliciting competitive sealed bids, proposals, or replies. The Purchasing Director shall report all such actions to the County Administrator or designee prior to final award of any contract resulting from the negotiations. Award will be made according to the award thresholds in Section 5. M. Local preference in bidding. 1. In purchasing of, or letting of contracts for procurement of, personal property, materials, contractual services, and construction of improvements to real property or existing structures for projects estimated not to exceed $250,000, in which pricing is the major consideration, the County may give a preference to Local Businesses in making such purchase or awarding such contract, as follows: a) Individuals or firms which have a home office located within Leon, Gadsden, Wakulla, or Jefferson County, and which meet all of the criteria for a Local Business as defined herein, shall be given a preference in the amount of five percent of the bid price. b) Individuals or firms which do not have a home office located within Leon, Gadsden, Wakulla, or Jefferson County, and which meet all of the criteria for a Local Business as defined herein, shall be given a preference in the amount of three percent of the bid price. c) The maximum cost differential shall not exceed $20, Total bid price shall include the base bid and all alternatives or options to the base bids, which are part of the bid and being recommended for award by the appropriate authority. 2. Preference in bidding for construction services estimated to exceed $250,000. a) Except where otherwise provided by federal or state law or other funding source restrictions, in the purchasing of, or letting of contracts for procurement of construction services for improvements to real property or existing structures, limited to projects estimated to exceed $250,000, the County may give preference to Local Businesses in the following manner: i. Under a competitive bid solicitation, when the lowest responsive and responsible bid is submitted by an individual or firm that is not a Local Business, then the local business that submitted the lowest responsive and responsible bid shall be offered the opportunity to perform the work at the lowest bid amount, if that Local Business s bid was not greater than 110 percent of the lowest responsive and responsible bid amount. ii. All contractual awards issued in accordance with the provisions of Section 5.08(M)(2)(a) shall contain aspirational trade contractor work targets, based on market and economic factors, of 85 percent as follows: The successful individuals or firms shall agree to engage not less than 85 percent of the dollar value of trade contractor work with Local Businesses, unless the successful individuals or firms prove to the County s satisfaction that the trade contractor work is not available locally within the Leon, Gadsden, Wakulla or Jefferson County area. The term trade contractor shall mean a subcontractor who contracts with the prime contractor and whose primary activity is performing specific activities (e.g., pouring concrete, masonry, site preparation, framing, carpentry, dry wall installation, electrical, plumbing, painting) in a construction project but is not responsible for the entire project. Page 21 of 59

154 Page 55 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 b) Section 5.08 (M)(2)(a) shall sunset and stand repealed on January 1, 2016 unless reviewed and saved from repeal through reenactment by the Board. 3. Certification. Any vendor claiming to be a Local Business shall so certify in writing to the purchasing division. The certification shall provide all necessary information to meet the requirements for a Local Business as defined herein. The purchasing agent shall not be required to verify the accuracy of any such certifications, and shall have the sole discretion to determine if a vendor meets the definition of a Local Business. 4. Waiver. The application of local preference to a particular purchase, contract, or category of contracts for which the County is the awarding authority may be waived upon written recommendation of the County Administrator and approval of the Board. The application of local preference to a particular purchase, contract, or category of contracts below the award authority of the Board may be waived upon written recommendation of the Director of Purchasing and approval of the County Administrator. (Reference Article IX, Section 2-400, Chapter 2 of the Code of Laws of Leon County, Florida) Section 5.09 Section COMPETITIVE SEALED PROPOSALS PROFESSIONAL ARCHITECTURAL, ENGINEERING, LANDSCAPE ARCHITECTURAL, AND LAND SURVEYING SERVICES A. Purpose. The purpose of this section, and the procedures established hereunder, is to ensure compliance with Section Florida Statutes, known as the Consultants Competitive Negotiation Act (CCNA). This act establishes parameters within which the County must select professional services from architects, engineers, landscape architects, surveyors, and mappers. The CCNA requires the County to select these services on a qualitative basis using prescribed criteria prior to any negotiations, which may consider the cost of such services. B. Public Announcement. It is the policy of the County to publicly announce all requirements for professional architectural, engineering, landscape architectural, land surveying, and mapping services, and to negotiate such contracts on the basis of demonstrated competence and qualifications at fair and reasonable prices. In the procurement of such services, the Purchasing Director may require firms to submit a statement of qualifications, performance data, and other information related to the performance of professional services. 1. Scope of Project Requirements. a) For specific projects, the County office requesting the professional services shall submit to the Purchasing Director written project requirements indicating the nature and scope of the professional services needed by the office, including but not limited to the following: 1) the general purpose of the service or study; 2) the objectives of the study or service; 3) estimated period of time needed for the service or the study; 4) the estimated cost of the service or study; 5) whether the proposed study or service would or would not duplicate any prior or existing study or service; and 6) the desired qualifications, listed in order of importance, applicable to the scope and nature of the services requested. b) For Continuing Supply Services, the County office requesting the professional services shall submit to the Purchasing Director written project requirements indicating the nature and scope of the professional services needed by the office, including but not limited to the following: 1) the general purpose of the service or study; 2) estimated period of time needed for the service or the study; Page 22 of 59

155 Page 56 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy ) the estimated cost of the service or study; 4) the desired qualifications, listed in order of importance, applicable to the scope and nature of the services requested. 2. Review of Project Requirements. The Purchasing Director or his/her designee shall review the scope of project requirements and prepare a draft request for proposals. The draft RFP shall be submitted to the requesting office for consideration and revision, as may be needed, prior to public distribution of the RFP. 3. Distribution of RFP. The Purchasing Director shall distribute the RFP in accord with standard procedures including publication of legal notice, and provide notification of the date and time when such proposals are due. Public notice shall be as provided in Section 5.08 (C). 4. If less than two responsive bids, proposals, or replies for commodity or contractual services purchases are received, the Purchasing Director may negotiate on the best terms and conditions. The Purchasing Director shall document the reasons that such action is in the best interest of the County in lieu of resoliciting competitive sealed bids, proposals, or replies. The Purchasing Director shall report all such actions to the County Administrator or designee prior to final award of any contract resulting from the negotiations. 5. Modification Prohibition. After the publicized submission time and date, any proposal received shall not be modified or allowed to be modified in any manner except for correction of clerical errors or other similar minor irregularities as may be allowed by the Selection Committee (defined in Section (B) at any point in the process prior to contract negotiations. 6. Reuse of Existing Plans. There shall be no public notice requirements or utilization of the selection process as provided in this section for projects in which the County is able to reuse existing plans from a prior project. However, public notice of any plans, which are intended to be reused at some future time, shall contain a statement that provides that the plans are subject to reuse. 7. Local preference in Requests for Proposals. a) In the purchasing of, or letting of contracts for procurement of, personal property, materials, contractual services, and construction of improvements to real property or existing structures for which a request for proposals is developed with evaluation criteria, a local preference of the total score may be assigned for a local preference, as follows: i. Individuals or firms which have a home office located within Leon, Gadsden, Wakulla, or Jefferson County, and which meet all of the criteria for a Local Business as defined herein, shall be given a preference in the amount of five percent. ii. Individuals or firms which do not have a home office located within Leon, Gadsden, Wakulla, or Jefferson County, and which meet all of the criteria for a Local Business as defined herein, shall be given a preference in the amount of three percent. b) Certification. Any vendor claiming to be a Local Business shall so certify in writing to the purchasing division. The certification shall provide all necessary information to meet the requirements for a Local Business as defined herein. The purchasing agent shall not be required to verify the accuracy of any such certifications, and shall have the sole discretion to determine if a vendor meets the definition of a Local Business. c) Waiver. The application of local preference to a particular purchase, contract, or category of contracts for which the County is the awarding authority may be waived upon written recommendation of the County Administrator and approval of the Board. The application of local preference to a particular purchase, contract, or category of contracts below the award authority of the Board may be waived upon written recommendation of the Director of Purchasing and approval of the County Administrator. (Reference Article IX, Section 2-400, Chapter 2 of the Code of Laws of Leon County, Florida) Page 23 of 59

156 Page 57 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy Exemptions. This section shall not apply to a professional service contract for a project where the basic construction cost is estimated by the agency to be less than the threshold amount provided in s , Florida Statutes, or for a planning or study activity when the fee for professional services is estimated by the agency to be less than the threshold amount provided in s , Florida Statutes, or in cases of valid public emergency so certified by the County Administrator. This section shall not apply to any requirement for professional services if a continuing contract is in effect and a determination is made to utilize the continuing contract to obtain such services. C. CCNA Evaluation Committee Membership. 1. Depending on the expected complexity and expense of the professional services to be contracted, the County Administrator, or his/her designee shall determine whether a three member or fivemember selection committee will best serve the needs of the County. 2. Membership of all Evaluation Committees shall be appointed by the County Administrator or his/her designee. 3. Public Meetings. In accordance with Florida Statute , all Evaluation Committee meetings subsequent to the opening of the solicitation are to be public meetings. The Chairperson shall be responsible to provide the Purchasing Division with all meeting information (date, time, location, and reason for meeting) no less than 96 hours in advance of any scheduled meeting, excluding holidays and weekends. The Purchasing Division will provide reasonable notice of all meetings, no less than 72 hours in advance of such scheduled meeting, excluding holidays and weekends, by posting a Notice of Evaluation Committee Meeting on the public notice bulletin board in the Division offices and on the Leon County website. The Purchasing Director shall develop and implement Evaluation Committee procedures to ensure compliance with public meeting requirements. 4. Contact with the CCNA Evaluation Committee. Members of the CCNA Evaluation Committee are prohibited from discussing a project with any professional or professional firm that may submit a proposal during the procurement process, except in formal committee meetings. The conduct of the business and discussions regarding the proposals before the CCNA Evaluation Committee must be done in the public meetings only. 5. Evaluation of Proposals. Only written responses of statements of qualifications, performance data, and other data received in the purchasing office by the publicized submission time and date shall be evaluated. a) The initial ranking of proposals is based upon the points given in the Weighted Scoring Sheet utilizing the Evaluation Criteria Matrix. The scores will be provided by the Purchasing and MWSBE Divisions for Local preference and MWBE participation, respectively. b) Shortlisting. The best-qualified respondents shall be based upon the CCNA Evaluation Committee's ability to differentiate qualifications applicable to the scope and nature of the services to be performed as indicated by the ratings on the Weighted Scoring Sheet. Typically, the top three rated firms, if there are at least three responsive respondents, will be considered as the shortlisted firms, unless the County Administrator, after input and discussion with the CCNA Evaluation Committee, approves adding additional firms to the shortlist. 6. Presentations/Interviews. The CCNA Evaluation Committee may choose to conduct formal presentations/interviews with shortlisted firms prior to final ranking. 7. Final Ranking. The CCNA Evaluation Committee shall utilize the Ordinal Process Rating System to rank the firms The respondents shall be listed in order of preference starting at the top of the list. The list of best-qualified persons shall be forwarded to the County Administrator or Board, as appropriate, for approval prior to beginning contract negotiations. Negotiation sequence shall be based on the order of preference. Page 24 of 59

157 Page 58 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 D. Negotiation Staff. Contract negotiations shall be conducted by the Purchasing Director or designee(s) or by a Negotiation Committee. 1. Negotiation Committee Membership. Membership of the three-member Negotiation Committee shall consist of: a) the Purchasing Director, or the designee of the Purchasing Director who shall chair the committee, b) the head of the primary using department or agency, or his/her designee, c) the County Attorney or designee. 2. Negotiation. The Negotiator(s) shall negotiate a contract with the firm considered to be the most qualified to provide the services at compensation and upon terms which the Negotiator(s) determines to be fair and reasonable to the County. In making this decision, the Negotiator(s) shall take into account the estimated value, the scope, the complexity, and the professional nature of the services to be rendered. Should the Negotiator(s) be unable to negotiate a satisfactory contract with the firm considered to be the most qualified, negotiations with that firm shall be formally terminated. The Negotiator(s) shall then undertake negotiations with the second most qualified firm. Failing accord with the second most qualified firm, the Negotiator(s) shall formally terminate negotiations, and shall then undertake negotiations with the third most qualified firm. Should the Negotiator(s) be unable to negotiate a satisfactory contract with any of the selected firms, the Selection Committee shall select additional firms in order of their competence and qualifications, and the Negotiator(s) shall continue negotiations in accordance with this Section until an agreement is reached or until a determination has been made not to contract for such services. 3. Continuing Contracts. Nothing in this section (5.091) shall be construed to prohibit continuing contracts for professional services between a firm and the County. Section OTHER COMPETITIVE SEALED PROPOSALS A. Conditions for Use. When the Director of Purchasing determines that the use of competitive sealed bidding is either not practical or not advantageous to the County, a contract may be entered into by the use of competitive sealed proposals. B. Consultant's Competitive Negotiation Act. Professional services within the scope of the practice of architecture, professional engineering, landscape architecture, or registered land surveying, as defined under the Consultant's Competitive Negotiation Act (Section , Florida Statutes), shall be secured under the provisions of Section C. Public Notice. Adequate public notice of the Request for Proposals shall be given in the same manner as provided in subsection 5.08C of this policy for competitive sealed bidding. D. Evaluation Factors. The Request for Proposals shall state the relative importance of criteria outlined in the scope of services, fee proposal, and other evaluation criteria. E. Proposal Cancellation or Postponement. The Director of Purchasing may, prior to a proposal opening, elect to cancel or postpone the date and/or time for proposal opening or submission. F. Revisions and Discussions with Responsible Offerors. Discussions may be conducted with responsible offerors who submit proposals determined to be qualified of being selected for award for the purpose of clarification to assure full understanding of, and responsiveness to, the solicitation requirements. Offerors shall be accorded fair and equal treatment with respect to any opportunity for discussion and revision of proposals, and such revisions may be permitted after submissions and prior to award for the purpose of obtaining the best and final offers. In conducting discussions, there shall be no disclosure of any information derived from proposals submitted by competing offerors. Page 25 of 59

158 Page 59 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 G. Award. Award shall be made to the responsive, responsible offeror whose proposal is determined in writing to be the most advantageous to Leon County, taking into consideration the evaluation factors set forth in the Request for Proposals. No other factors or criteria shall be used in the evaluation criteria that are not included in the Request for Proposal. H. Local preference in Other Competitive Sealed Proposals. In the purchasing of, or letting of contracts for procurement of, personal property, materials, contractual services, and construction of improvements to real property or existing structures for which a request for proposals is developed with evaluation criteria, a local preference of the total score may be assigned for a local preference, as follows: 1. Individuals or firms which have a home office located within Leon, Gadsden, Wakulla, or Jefferson County, and which meet all of the criteria for a Local Business as defined herein, shall be given a preference in the amount of five percent. 2. Individuals or firms which do not have a home office located within Leon, Gadsden, Wakulla, or Jefferson County, and which meet all of the criteria for a Local Business as defined herein, shall be given a preference in the amount of three percent. (Reference Article IX, Section 2-400, Chapter 2 of the Code of Laws of Leon County. Florida) I. If less than two responsive bids, proposals, or replies for commodity or contractual services purchases are received, the Purchasing Director may negotiate on the best terms and conditions. The Purchasing Director shall document the reasons that such action is in the best interest of the County in lieu of resoliciting competitive sealed bids, proposals, or replies. The Purchasing Director shall report all such actions to the County Administrator or designee prior to final award of any contract resulting from the negotiations. Section 5.10 SOLE SOURCE PURCHASES A. Sole Source Certification. A contract may be awarded, except as otherwise provided for under state law, for a supply, service, material, equipment or construction item(s) without competition when the Purchasing Director, with the concurrence of the County Administrator or designee, certifies in writing, after conducting a good faith review of available sources, that there is only one available source for the required material, supply, service, equipment, or construction item(s). Such awards will be made within the authorized procurement limits identified in Section 5.0. When a purchase exceeds the threshold amount for Board approval, the item will be placed on the agenda for Board approval and certification that the vendor has been determined to be a sole source. B. Additional Purchases from Certified Sole Source. The Purchasing Director shall be authorized, after initial sole source certification, to make additional purchases from a sole source vendor for not less than one year or until such time as contrary evidence is presented regarding sole source eligibility, whichever period is less. Section 5.11 EMERGENCY PURCHASES A. Authorization During Normal Business Hours. In the case of emergencies that require the immediate purchase of goods, equipment or services, the County Administrator, Purchasing Director, Group Director, or his designee shall be empowered to secure such goods or services without competitive bidding. In this event, all measures reasonably possible under the circumstances shall be taken to assure the maximum cost benefit to the County of the goods or services procured. B. Authorization Outside of Normal Business Hours. A department or division head, during non-business hours, is authorized to make purchases without competitive bids, when an emergency arises. C. Documentation and Approval. Documentation for emergency purchases pertaining to Section 5.11 (A) and (B) shall be submitted to the Purchasing Office on the standard requisition form with a detailed explanation, and support material attached, if applicable, within 10 workdays after the event occurred. Emergency purchases that exceed the competitive sealed bid threshold shall be ratified by the Board. Emergency purchases within the informal bid thresholds shall be approved by the County Administrator after-the-fact. Page 26 of 59

159 Page 60 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 D Mutual Aid Agreements. The County may enter into and utilize Mutual Aid Agreements as provided in Chapter 252, Florida Statutes in the event of emergency situations. The Purchasing Director shall be authorized to invoke the terms of the Mutual Aid Agreement. Section 5.12 COOPERATIVE PURCHASING A. State Contracts. The Purchasing Director is authorized to purchase goods or services for any dollar amount from authorized vendors listed on the respective state contracts (state term continuing supply contracts, SNAPS agreements [State Negotiated Agreement Price Schedules], agreements resulting from Invitations to Negotiate [ITN], or other such contracts authorized by statute for use by local governments) of the Florida Department of Management Services or other state agencies. Such purchases shall be made without competitive bids provided that funding has been appropriated and approved by the Board of County Commissioners in Department/Division accounts. B. Federal Supply Service. The Purchasing Director is authorized to purchase goods or services for any dollar amount from authorized vendors listed on the eligible Federal Supply Schedules issued by the Federal General Services Administration. Such purchases shall be made without competitive bids provided that funding has been appropriated and approved by the Board of County Commissioners in Department/Division accounts. C. Other Public Procurement Units. The Purchasing Director shall have the authority to join with other units of government in cooperative purchasing ventures when the best interest of the County would be served thereby, and the same is in accordance with the County and State law. The Purchasing Director shall appropriately document such cooperative purchasing arrangements. All Cooperative Purchasing conducted under this section shall be through contracts awarded through full and open competition, including use of source selection methods equivalent to those required by this policy. Each selection method shall clearly state the intention to include participation by other units of government as a requirement for use in cooperative purchasing. Section 5.13 PROTESTING INTENDED DECISIONS AND PROCUREMENT AWARDS A. Right to Protest. Any person, hereinafter referred to as Protestor, who submits a timely response to an invitation to bid, a request for proposals, an invitation to negotiate, a request for qualifications, a multistep sealed bid, or multi-step request for proposals under Sections 5.07, 5.08, 5.09, or of this Policy, and who is aggrieved with an Intended Decision of the County or a Procurement Award rendered by the Board of County Commissioners shall have the right to protest. Failure to protest an Intended Decision shall act as a bar to protest a subsequent Procurement Award that adopts the Intended Decision in all material respects. 1. Any Protestor wishing to protest an Intended Decision shall follow the procedures set forth in paragraphs B, C, and D of this Section. 2. Any Protestor wishing to protest a Procurement Award shall follow the procedures in paragraphs B, C, and E of this Section. B. Filing a Protest. A Protestor shall file with the County a notice of intent to protest in writing within 72 consecutive hours after the posting of the notice of Intended Decision or Procurement Award of the County. A formal written protest shall be filed within 10 calendar days after the date the notice of intent to protest has been filed. Failure to timely file a notice of intent to protest or failure to file a formal written protest shall constitute a waiver of the right to proceedings under this Section. A notice of intent to protest and the formal written protest are deemed filed with the County when it is received by the Purchasing Division. 1. The notice of intent to protest shall contain at a minimum: the name of the Protestor; the Protestor=s address and phone number; the name of the Protestor=s representative to whom notices may be sent; the name and bid number of the solicitation; and, a brief factual summary of the basis of the protest. Page 27 of 59

160 Page 61 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy The formal written protest shall: identify the Protestor and the solicitation involved; include a plain, clear statement of the grounds upon which the protest is based; refer to the statutes, laws, ordinances, or other legal authorities which the Protestor deems applicable to such grounds; and, specify the relief to which the Protestor deems himself entitled. 3. A formal written protest shall include the posting of a bond with the Purchasing Division at the time of filing the formal written protest, made payable to the Board of County Commissioners, Leon County, in an amount equal to one percent (1%) of the County's estimate of the total dollar amount of the contract or $5000, whichever is greater. If after completion of the bid protest process and any court proceedings, the County prevails, the County shall be entitled to recover all court costs provided under Florida law, but in no event attorney fees, which shall be included in the final order of judgment rendered by the court. Upon payment of such court costs by the Protestor, the bond shall be returned to him. After completion of the bid protest process and any court proceedings, if the Protestor prevails, the protestor shall be entitled to have his bond returned and he shall be entitled to recover from the County all court costs provided under Florida law, but in no event attorney fees, lost profits or bid preparation costs, which shall be included in the final order of judgment rendered by the court. In no case will the Protestor or Intervenor be entitled to any costs incurred with the solicitation, including bid preparation costs, lost profits, bid protest costs, and/or attorney's fees. 4. Timeliness of protest determinations. All determinations on the timeliness of notices of intent to protest and formal written protests will be made by the Purchasing Director. C. General Provisions 1. Intervenor. Any person, hereinafter referred to as Intervenor, who has submitted a timely response to the subject invitation to bid, request for proposals, invitation to negotiate, request for qualifications, or multi-step sealed bids, or multi-step requests for proposals, and who has a substantial interest in the Intended Decision or Procurement Award of the County, may be granted the right to intervene by order of the Chairperson of the Procurement Appeals Board or Special Master in response to a petition to intervene. A petition to intervene shall be filed within five calendar days of the filing of a formal written protest. Failure to timely file a petition to intervene shall constitute a waiver of all rights to intervene in the subject protest proceeding. Petitions to intervene will be considered by the Chairman of the Procurement Appeals Board, and any decision concerning a Petition to Intervene shall be made by the Chairman and shall be deemed final. 2. Time Limits. The time limits in which formal written protests shall be filed as provided herein may be altered by specific provisions in the invitation to bid, request for proposals, invitation to negotiate, request for qualifications, or multi-step sealed bids, or multi-step requests for proposals or upon the mutual written consent of the Protestor and the County. 3. Entitlement to Costs. In no case will the Protestor or Intervenor be entitled to any costs incurred with the invitation to bid, request for proposals, invitation to negotiate, request for qualifications, or multi-step sealed bids, or multi-step requests for proposals, including, but not limited to bid preparation costs, lost profits, bid protest costs, and/or attorney's fees. 4. After a formal written protest has been filed with the Purchasing Director, the Protestor may not discontinue such appeal without prejudice, except as authorized by the Procurement Appeals Board or Special Master. 5. Stay of Procurement During Protests. In the event of a timely protest under Section 5.13(B) herein, the Purchasing Director shall not proceed further with the solicitation or award of the contract until all administrative remedies have been exhausted or until the County Administrator makes a written determination that the award of a contract without delay is necessary to protect the substantial interests of the County. Page 28 of 59

161 Page 62 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 D. Protest of Intended Decisions. 1. Upon timely receipt of a notice of intent to protest an Intended Decision, the Purchasing Director shall provide the Protestor with acknowledgement of receipt and a copy of this Section. The Purchasing Director shall within one business day mail a copy of the notice of intent to protest to all persons who responded to an invitation to bid, a request for proposals, an invitation to negotiate, a request for qualifications, or multi-step sealed bids, or multi-step requests for proposals. 2. Upon timely receipt of a formal written protest of an Intended Decision, the Purchasing Director shall provide the Protestor with acknowledgement of receipt and will notify the Chairman of the Procurement Appeals Board. The Purchasing Director shall within one business day mail a copy of the formal written protest to all persons who responded to an invitation to bid, a request for proposals, an invitation to negotiate, a request for qualifications, or multi-step sealed bids, or multi-step requests for proposals. 3. Procurement Appeals Board. There is hereby established a Procurement Appeals Board to be composed of a chairperson and two members and two alternates. The chairperson, members, and alternates of the Procurement Appeals Board shall be appointed by the County Administrator. The term of office of the chairperson, members, and alternates of the Procurement Appeals Board shall be three years. For the initial appointments, the County Administrator shall appoint the chairperson for a term of three years, one member and one alternate for a term of two years, and one member and one alternate for a term of one year so that a term of office expires every year. Thereafter, their successors shall be appointed for terms of three years, or for the balance of any unexpired term, but members may continue to serve beyond their terms until their successors take office. Members may be reappointed for succeeding terms. a) The Purchasing Division is authorized to provide for the Procurement Appeals Board such administrative support as the Chairman requests in the hearing of formal written protests. b) Acting by two or more of its members, the Procurement Appeals Board shall issue a decision in writing or take other appropriate action on each formal written protest submitted. A copy of any decision shall be provided to all parties and the Purchasing Director. c) Procurement Appeals Board Proceeding Procedures i. The Procurement Appeals Board shall give reasonable notice to all substantially affected persons or businesses, including the Protestor, and any Intervenor. ii. iii. iv. At or prior to the protest proceeding, the Protestor and/or Intervenor, as the case may be, may submit any written or physical materials, objects, statements, affidavits, and arguments which he/she deems relevant to the issues raised. In the protest proceeding, the Protestor, and/or Intervenor, as the case may be, or his representative or counsel, may also make an oral presentation of his evidence and arguments. Further, only reasonable direct and crossexamination of witnesses shall be permitted, at the discretion of the Chairman of the Procurement Appeals Board. The members of the Procurement Appeals Board may make whatever inquiries they deem pertinent to a determination of the protest. The judicial rules of evidence shall not strictly apply; however, witnesses shall be sworn, and any testimony taken under oath and, the members of the Procurement Appeals Board shall base their decision on competent, substantial evidence. The protest proceeding shall be de novo. Any prior determinations by administrative officials shall not be final or conclusive. Page 29 of 59

162 Page 63 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 v. Within seven (7) working days of the conclusion of the protest proceeding, the Procurement Appeals Board shall render a decision. The Procurement Appeals Board decision shall be reduced to writing and provided to the Protestor and/or Intervenor, as the case may be, and the County. vi. Any party may arrange for the proceedings to be stenographically recorded and shall bear the expense of such recording. E. Protest of Procurement Awards; Special Master Proceedings. 1. Upon timely receipt of a notice of intent to protest a Procurement Award of the County, the Purchasing Director shall provide the Protestor with acknowledgement of receipt and a copy of the this Section. The Purchasing Director shall within one business day mail a copy of the notice of intent to protest to all persons who responded to an invitation to bid, a request for proposals, an invitation to negotiate, a request for qualifications, or multi-step sealed bids, or multi-step requests for proposals. 2. Upon timely receipt of a formal written protest of a Procurement Award of the County, the Purchasing Director shall provide the Protestor with acknowledgement of receipt and will notify the County Attorney of the protest. The Purchasing Director shall within one business day mail a copy of the formal written protest to all persons who responded to an invitation to bid, a request for proposals, an invitation to negotiate, a request for qualifications, or multistep sealed bids, or multi-step requests for proposals. 3. Appointment of a Special Master. The County Administrator shall appoint and retain a special master or shall contract with the Florida Division of Administrative Hearings for an administrative law judge to act as a special master to conduct evidentiary proceedings regarding formal written protests of Procurement Awards. Each special master shall be a licensed attorney with the Florida Bar who has practiced law in Florida for at least five years, and who has experience in procurement law, local governmental law, or administrative law. Each special master appointed and retained by the County shall serve at the pleasure of the County Administrator and shall be compensated at a rate or rates to be fixed by the County Administrator. The expense of each special master proceeding shall be borne equally by the Protestor and the County. 4. Ex parte communication. a) No county employee, elected official, or other person who is or may become a party to a proceeding before a special master may engage in an ex parte communication with the special master. However, the foregoing does not prohibit discussions between the special master and county staff that pertain solely to scheduling and other administrative matters unrelated to the merits of the hearing. b) If a person engages in an ex parte communication with the special master, the special master shall place on the record of the pending case all ex parte written communications received, all written responses to such communications, a memorandum stating the substance of all oral communications received, and all oral responses made, and shall advise all parties that such matters have been placed on the record. Any party desiring to rebut the ex parte communication shall be entitled to do so, but only if such party requests the opportunity for rebuttal within ten days after notice of such communication. If he or she deems it necessary due to the effect of an ex parte communication received by him, the special master may withdraw from the case. 5. Powers of special masters. The special masters who conduct hearings pursuant to this section shall have the powers of hearing officers enumerated in F.S (2)(f), as amended. Page 30 of 59

163 Page 64 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy Prehearing requirements. At least fourteen days prior to the date set for the hearing, the parties shall exchange a list of names and addresses of witnesses planned to testify at the hearing, and a list of exhibits planned to be introduced at the hearing, as well as produce the physical exhibits for inspection by the parties. Each party is entitled to depose witnesses scheduled to testify at the evidentiary hearing. 7. Hearings. a) All hearings shall be commenced within 45 days of the date of the filing of the formal written protest. Requests for continuance by any party, either before or during the hearing, may be considered upon good cause shown. b) All hearings shall be open to the public. c) The participants before the special master shall be the Protestor, the Protestor s witnesses, if any, county staff and witnesses, and any Intervenor. The participation of Intervenors shall be governed by the terms of the order issued by the special master in response to a petition to intervene. Intervention may only be permitted to any person, hereinafter referred to as Intervenor, who has submitted a timely response to the subject invitation to bid, request for proposals, an invitation to negotiate, a request for qualifications, or multi-step sealed bids, or multi-step requests for proposals, and who has a substantial interest in the Procurement Award. d) Testimony and evidence shall be limited to matters directly relating to the formal written protest. Irrelevant, immaterial, or unduly repetitious testimony or evidence may be excluded. e) All testimony shall be under oath. The order of presentation of testimony and evidence shall be as set forth by the special master. f) To the maximum extent practicable, the hearings shall be informal. All parties shall have the opportunity to respond, to present evidence and provide argument on all issues involved which are related to the formal written protest, and to conduct crossexamination and submit rebuttal evidence. During cross-examination of witnesses, questioning shall be confined as closely as possible to the scope of direct testimony and matters involving impeachment. The special master may call and question witnesses or request additional evidence as he or she deems necessary and appropriate. g) The special master shall render a final order on the formal written protest to the parties within ten days after the hearing concludes, unless the parties waive the time requirement. The final order shall contain written findings of fact and conclusions of law. Section 5.14 CONTRACT CLAIMS A. Authority to Settle Contract Controversies. This Section applies to controversies between the County and a contractor and which arise under, or by virtue of, a contract between them. This includes without limitation controversies based upon breach of contract, mistake, misrepresentation, or other cause for contract modification or rescission, where the contractor and County agree to utilize the provision of this section. 1. The Purchasing Director is authorized to settle any controversy arising out of the performance of a County contract, prior to the commencement of an action in a court of competent jurisdiction up to $10,000 in value. Page 31 of 59

164 Page 65 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 a) If such a controversy is not resolved by mutual agreement, the Purchasing Director shall promptly issue a decision in writing. A copy of the decision shall be mailed or otherwise be furnished to the contractor immediately. The decision shall: (1) State the reason for the action taken; and, (2) Inform the Contractor of its right to administrative review as provided in this section. b) If the Purchasing Director does not issue a written decision required in paragraph (a) of this subsection within 30 days after written request for a final decision, or within such longer period as may be agreed upon by the parties, then the contractor may proceed as if an adverse decision had been received. c) The decision of the Purchasing Director may be appealed to the Procurement Appeals Board by the protestor by filing a formal written appeal with the Purchasing Director within five calendar days of receipt of the Purchasing Director=s decision. 2. The Procurement Appeals Board is authorized to review any appeal of a decision on a contract controversy by the Purchasing Director or to hear any contract controversy in excess of $10, The Procurement Appeals Board shall promptly decide the contract or breach of contract controversy. The proceeding shall be de novo and shall follow the Proceeding Procedures contained in Section 5.13 (E)(3). Any prior determination by administrative officials shall not be final or conclusive. Section 5.15 REMEDIES FOR SOLICITATIONS OR AWARDS IN VIOLATION OF LAW A. Prior to Bid Opening or Closing Date for Receipt of Proposals. If prior to the bid opening or the closing date for receipt of proposals, the Purchasing Director, after consultation with the County Attorney, determines that a solicitation is in violation of federal, state, or local law or ordinance, then the solicitation shall be canceled or revised to comply with applicable law. B. Prior to Award. If after bid opening or the closing date for receipt of proposals, but prior to the award of contract, the Purchasing Director, after consultation with the County Attorney, determines that a solicitation or a proposed award of a contract is in violation of federal, state, or municipal law or ordinance, then the solicitation or proposed award shall be canceled. C. After Award. If, after award, the Purchasing Director, after consultation with the County Attorney, determines that a solicitation or award of a contract was in violation of applicable law or ordinance, then: 1. If the person awarded the contract has not acted fraudulently or in bad faith: a) the contract may be ratified and affirmed, provided it is determined that doing so is in the best interest of the County; or b) the contract may be terminated and the person awarded the contract shall be compensated for the actual costs reasonably incurred under the contract, plus a reasonable profit, prior to termination, but excluding attorney's fees; or 2. If the person awarded the contract has acted fraudulently or in bad faith, the contract may be declared null and void or voidable, if such action is in the best interests of the County. Section 5.16 OWNER DIRECT PURCHASES IN PUBLIC WORKS CONTRACTS It is the policy of Leon County, Florida that all owner direct purchases for supplies and materials for use in public works projects be made in accordance with section (6) Florida Statutes and rule 12A Florida Administrative Code, as they may be amended from time to time. The Purchasing Director shall establish administrative procedures, processes, and forms necessary for the implementation and administration of owner direct purchases for supplies and materials for use in public works projects. In addition, the Purchasing Division shall provide training for project managers and other fiscal staff involved in contracts that may utilize owner direct purchases. Page 32 of 59

165 Page 66 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 Section 5.17 EMPLOYMENT ELIGIBILITY AND VERIFICATION A. Federal statutes and executive orders require employers to abide by the immigration laws of the United States and to employ in the United States only individuals who are eligible to work in the United States. It is the policy of Leon County, Florida that unauthorized aliens shall not be employed nor utilized in the performance of contracted services for the County, in accordance with the Illegal Immigration Reform and Immigrant Responsibility Act of 1996, as amended (8 U.S.C. 1324a), and Subpart of the Federal Acquisition Register. B. Employment Eligibility Verification. 1. This section on employment eligibility verification ( E-Verify ) requirements shall apply to contractors and subcontractors performing contracted services for the County, where the contracted services are funded pursuant to federal grants, federal contracts, state grants, or state contracts. 2. Each Contractor and subcontractor, as defined in this section, shall agree to enroll and participate in the federal E-Verify Program for Employment Verification under the terms provided in the AMemorandum of Understanding@ governing the program. Contractor further agrees to provide to the County, within thirty days of the effective date of this contract/amendment/extension, documentation of such enrollment in the form of a copy of the E-Verify A>Edit Company Profile= screen@, which contains proof of enrollment in the E-Verify Program (this page can be accessed from the AEdit Company Profile@ link on the left navigation menu of the E-Verify employer=s homepage). 3. Contractor further agrees that it will require each subcontractor that performs work under this contract to enroll and participate in the E-Verify Program within sixty days of the effective date of this contract/amendment/extension or within sixty days of the effective date of the contract between the Contractor and the subcontractor, whichever is later. The Contractor shall obtain from the subcontractor(s) a copy of the AEdit Company Profile@ screen, indicating enrollment in the E-Verify Program and make such record(s) available to the Agency upon request. 4. Contractor will utilize the U.S. Department of Homeland Security=s E-Verify system to verify the employment eligibility of: (a) all persons employed during the term of the Agreement by Contractor to perform employment duties within Florida; and (b) all persons (including subcontractors) assigned by Contractor to perform work pursuant to the Agreement. a) Contractor must use E-Verify to initiate verification of employment eligibility for all persons employed during the term of the Agreement by Contractor to perform employment duties within Florida within three business days after the date of hire. b) Contractor must initiate verification of each person (including subcontractors) assigned by Contractor to perform work pursuant to the Agreement within 60 calendar days after the date of execution of this contract or within 30 days after assignment to perform work pursuant to the Agreement, whichever is later. 5. Contractor further agrees to maintain records of its participation and compliance with the provisions of the E-Verify program, including participation by its subcontractors as provided previously, and to make such records available to the County or other authorized state entity consistent with the terms of the Memorandum of Understanding. 6. Compliance with the terms of this Employment Eligibility Verification provision is made an express condition of this contract and the County may treat a failure to comply as a material breach of the contract. C. The Purchasing Director shall establish administrative procedures, processes, and forms necessary for the implementation and administration of this policy section. In addition, the Purchasing Division shall provide training for project managers and other staff involved in contracts that may utilize E-Verify requirements. Page 33 of 59

166 Page 67 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 Section 6 CONTRACT ADMINISTRATION The Purchasing Director or his designee shall serve as the chief contract administrator for the County. The Purchasing Director shall establish administrative procedures, processes, and tools necessary for the implementation and conduct of a comprehensive contract administration program. In addition, the Purchasing Division shall provide initial contract administration training for project managers and update training as deemed necessary. Section 6.1 CONTRACT PROVISIONS A. Standard Contract Clauses and Their Modification. The Purchasing Director, after consultation with the County Attorney, may establish standard contract clauses for use in County contracts. However, the Purchasing Director may, upon consultation with the County Attorney, vary any such standard contract clauses for any particular contract. B. Contract Clauses. All County contracts for supplies, services, and construction shall include provisions necessary to define the responsibilities and rights of the parties to the contract. The Purchasing Director, after consultation with the County Attorney, may propose provisions appropriate for supply, service, or construction contracts, addressing among others the following subjects: 1. the unilateral right of the County to order, in writing, changes in the work within the scope of the contract; 2. the unilateral right of the County to order, in writing, temporary stopping of the work or delaying performance that does not alter the scope of the contract; 3. variations occurring between estimated quantities or work in contract and actual quantities; 4. defective pricing; 5. time of performance and liquidated damages; 6. specified excuses for delay or nonperformance; 7. termination of the contract for default; 8. termination of the contract in whole or in part for the convenience of the County; 9. suspension of work on a construction project ordered by the County; 10. site conditions differing from those indicated in the contract, or ordinarily encountered, except that a differing site conditions clause need not be included in a contract: a) when the contract is negotiated; b) when the contractor provides the site or design; c) when the parties have otherwise agreed with respect to the risk of differing site conditions. 11. value engineering proposals. Section 6.2 PRICE ADJUSTMENTS A. Methods of Price Adjustment. Adjustments in price during the term of a contract shall be computed in one or more of the following ways upon approval by the Board: 1. by agreement on a fixed price adjustment before commencement of the pertinent performance or as soon thereafter as practicable; 2. by unit prices specified in the contract or subsequently agreed upon; 3. by the costs attributable to the events or situations under such clauses with adjustment of profit or fee, all as specified in the contract or subsequently agreed upon by the Board; Page 34 of 59

167 Page 68 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy in such other manner as the contracting parties may mutually agree; or 5. in the absence of agreement by the parties, by a unilateral determination by the County of the costs attributable to the events or situations under such clauses with adjustment of profit or fee as computed by the County, subject to the provisions of this section. B. Cost or Pricing Data Required. A contractor shall be required to submit cost or pricing data if any adjustment in contract price is subject to the provisions of this Section. Section 6.3 CHANGE ORDERS/CONTRACT AMENDMENTS A. Change Orders. Change Orders are written documentation reflecting changes made to stipulations, condition, or terms of the contract during the contract period whether the contract is a capital improvement or a consultant services contract. There are two types of change orders that may be made to these contracts. 1. Field Change Order. This change order is identified in the original approved contract as a contingency and is referred to as a field change order. It is customary in more complex contracts to include a contingency for changes to the original contract through Field Change Orders. For contracts of less than $1,000,000, a contingency may be included generally not to exceed 10% of the contract value, unless circumstances justify same. For contracts in excess of $1,000,000, a contingency shall be included, but shall generally not exceed 5% of the original contract value, unless circumstances justify same. When a contract is approved with such a contingency, the Project Manager with the concurrence of the respective Department Director or designee is authorized to approve one or more Change Orders up to the aggregate monetary value of the contingency. The contract must contain an approved contingency clause for this type of Field Change Order such as The contract price includes a 5% or 10% (whichever is applicable) contingency amount for change orders that may be authorized at the discretion of the County. Alternately, as a part of the project award recommendation, staff may propose an alternate amount for the level of pre-approved field Change Orders based upon the known complexity of the project; the certainty of unknown factors such as asbestos abatement or unknown conditions in rehabilitation; or other such factors for consideration by the Board. 2. Board Approved Change Order. Any Change Order, the cost of which exceeds the Field Change Order Threshold amount, or a Change Order which amends the scope of work or services in a significant manner, shall be considered by the Board. B. Contract Amendments. Contract amendments, other than change orders, which provide for the alteration of specifications, delivery point, time, payments, quantity, or similar provisions of a contract without changing the scope of the project, may be approved by an appropriate person based upon the dollar value of the amendment. The purchasing categories' thresholds designated in Sections 5 through 5.09 shall govern the appropriate level of approval. Section 6.4 ASSIGNMENTS OF CONTRACTS No agreement made pursuant to any section of this policy shall be assigned or sublet as a whole or in part without the written consent of the County nor shall the contractor assign any monies due or to become due to the contractor hereunder without the previous written consent of the County. Section 6.5 RIGHT TO INSPECT PLANT The County may, at its discretion, inspect the part of the plant or place of business of a contractor or any subcontractor, which is related to the performance of any contract awarded, or to be awarded, by Leon County. The right expressed herein shall be included in all contracts or subcontracts that involve the performance of any work or service involving Leon County. Page 35 of 59

168 Page 69 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 Section 7 RIGHTS OF BOARD OF COUNTY COMMISSIONERS Nothing in this Policy shall be deemed to abrogate, annul, or limit the right of the Board in accordance with Florida law and in the best interests of the County, to reject all bids/proposals received in response to a solicitation, to determine in its sole discretion the responsiveness and responsibility of any bidder/proposer, to approve and authorize or to enter into any contract it deems necessary and desirable for the public welfare, or to vary the requirements of the Policy in any instance when necessary and desirable for the public welfare. Section 8 COUNTY PROCUREMENT RECORDS A. Procurement Files. All determinations and other written records pertaining to the solicitation, award, or performance of a contract shall be maintained for the County in appropriate files by the Purchasing Director. B. Retention of Procurement Records. All procurement records shall be retained and disposed of by the County in accordance with records retention guidelines and schedules established by the State of Florida. Section 9 Section 9.1 SPECIFICATIONS MAXIMUM PRACTICABLE COMPETITION All specifications shall be drafted to promote overall economy and encourage competition in satisfying the County's needs and shall not be unduly restrictive. This policy applies to all specifications including, but not limited to, those prepared for the County by architects, engineers, designers, and draftsmen. Section 9.2 USE OF BRAND NAME OR EQUIVALENT SPECIFICATIONS A. Use. Brand name or equivalent specifications may be used when the Purchasing Director determines that: 1. no other design, performance, or qualified product list is available; 2. time does not permit the preparation of another form of purchase description, not including a brand name specification; 3. the nature of the product or the nature of the County requirements makes use of a brand name or equivalent specification suitable for the procurement; or 4. use of a brand name or equivalent specification is in the County's best interests. B. Designation of Several Brand Names. Brand name or equivalent specifications shall seek to designate three, or as many different brands as are practicable, as "or equivalent" references and shall further state that substantially equivalent products to those designated may be considered for award. C. Required Characteristics. Unless the purchasing agent determines that the essential characteristics of the brand names included in the specifications are commonly known in the industry or trade, brand name or equivalent specifications shall include a description of the particular design, functional, or performance characteristics required. D. Nonrestrictive Use of Brand Name or Equivalent Specifications. Where a brand name or equivalent specification is used in a solicitation, the solicitation shall contain explanatory language that the use of a brand name is for the purpose of describing the standard of quality, performance, and characteristics desired and is not intended to limit or restrict competition. E. Determination of Equivalents. Any prospective bidder may apply, in writing, for a pre-bid determination of equivalence by the Purchasing Director. If sufficient information is provided by the prospective bidder, the Purchasing Director may determine, in writing and prior to the bid opening time, that the proposed product would be equivalent to the brand name used in the solicitation. F. Specifications of Equivalents Required for Bid Submittal. Vendors proposing equivalent products shall include in their bid submittal the manufacturer's specifications for those products. Brand names and model numbers are used for identification and reference purposes only. Page 36 of 59

169 Page 70 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 Section 9.3 BRAND NAME SPECIFICATIONS A. Use of Brand Name Specifications. Since use of a brand name specification is restrictive of product competition, it may be used only when the Purchasing Director makes a determination that only the identified brand name item or items will satisfy the County's needs. B. Competition. The Purchasing Director shall seek to identify sources from which the designated brand name item or items can be obtained and shall solicit such sources to achieve whatever degree of price competition is practicable. If only one source can supply the requirement, the procurement shall be made under Section 5.10, Sole Source Purchases. Section 10 Section 10.1 ETHICS IN PUBLIC CONTRACTING CRIMINAL PENALTIES To the extent that violations of the ethical standards of conduct set forth in this Section constitute violations of the State Criminal Code they shall be punishable as provided therein. Such penalties shall be in addition to civil sanctions set forth in this part. Section 10.2 EMPLOYEE CONFLICT OF INTEREST A. Participation. It shall be unethical for any County employee to participate directly or indirectly in a procurement contract when the County employee knows that: 1. the County employee or any member of the County employee's immediate family (father, mother, brother, sister, child, grandparent, or grandchild of employee or spouse) has a financial interest pertaining to the procurement contract; or 2. any other person, business, or organization with whom the County employee or any member of a County employee's immediate family is negotiating or has an arrangement concerning prospective employment is involved in the procurement contract. B. Blind Trust. A County employee or any member of a County employee's immediate family who holds a financial interest in a disclosed blind trust shall not be deemed to have a conflict of interest with regard to matters pertaining to that financial interest. Section 10.3 CONTEMPORANEOUS EMPLOYMENT PROHIBITED It shall be unethical for any County employee who is participating directly or indirectly in the procurement process to become or to be, while such a County employee, the employee of any person contracting with the County. Section 10.4 USE OF CONFIDENTIAL INFORMATION It shall be unethical for any employee knowingly to use confidential information for actual or anticipated personal gain, or for the actual or anticipated personal gain of any other person. Section 10.5 WAIVERS FROM CONTEMPORANEOUS EMPLOYMENT PROHIBITION AND OTHER CONFLICTS OF INTEREST The County Administrator may grant a waiver from the employee conflict of interest provision or the contemporaneous employment provision upon making a written determination that: A. the contemporaneous employment or financial interest of the County employee has been publicly disclosed; B. the County employee will be able to perform his procurement functions without actual or apparent bias or favoritism; and C. the award will be in the best interest of the County. Page 37 of 59

170 Page 71 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 Section 10.6 GRATUITIES AND KICKBACKS A. Gratuities. It shall be unethical for any person to offer, give, or agree to give any County employee, or for any County employee to solicit, demand, accept, or agree to accept from another person, a gratuity or an offer of employment in connection with any decision, approval, disapproval, recommendation, or preparation of any part of a program requirement or a purchase request, influencing the content of any specification or procurement standard, rendering of advice, investigation, auditing, or performing in any other advisory capacity in any proceeding or application, request for ruling, determination, claim or controversy, or other particular matter, subcontract, or to any solicitation or proposal therefor. B. Kickbacks. It shall be unethical for any payment, gratuity, or offer of employment to be made by or on behalf of a subcontractor under a contract to the prime contractor or higher tier subcontractor or any person associated therewith, as an inducement for the award of a subcontract or order. C. Contract Clause. The prohibition against gratuities and kickbacks prescribed in this section shall be conspicuously set forth in every contract and solicitation therefore. Section 10.7 SANCTIONS A. Employee Sanctions. Upon violation of the ethical standards by an employee, the County Administrator, Purchasing Director, or other appropriate authority may: 1. impose one or more appropriate disciplinary actions as defined in the County Personnel Rules and Regulations, up to and including termination of employment; and, 2. may request investigation and prosecution. B. Non-employee Sanctions. The Board may impose any one or more of the following sanctions on a nonemployee for violation of the ethical standards: 1. written warnings; 2. termination of contracts; or 3. debarment or suspension as provided in Section 15. Section 10.8 RECOVERY OF VALUE TRANSFERRED OR RECEIVED IN BREACH OF ETHICAL STANDARDS A. General Provisions. The value of anything being transferred or received in breach of the ethical standards of this policy by a County employee or a non-employee may be recovered from both County employee and non-employee. B. Recovery of Kickbacks by the County. Upon a showing that a subcontractor made a kickback to a prime contractor or a higher tier subcontractor in connection with the award of a subcontract or order there under, it shall be conclusively presumed that the amount thereof was included in the price of the subcontract or order and ultimately borne by the County and will be recoverable hereunder from the recipient. In addition, that amount may also be recovered from the subcontractor making such kickback. Recovery from one offending party shall not preclude recovery from other offending parties. Section 11 FEDERAL POLICY NOTICE Page 38 of 59

171 Page 72 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 Section 11.1 PATENTS If a contract involving research and development, experimental, or demonstration work is being funded in whole or in part by assistance from a federal agency, then the contract shall include the following provisions. A. Notice to Contractor. The contract shall give notice to the contractor of the applicable grantor agency requirements and regulations concerning reporting of, and rights to, any discovery or invention arising out of the contract. B. Notice by Contractor. The contract shall require the contractor to include a similar provision in all subcontracts involving research and development, experimental, or demonstration work. Section 11.2 NOTICE OF FEDERAL PUBLIC POLICY REQUIREMENTS A. Applicability. If the contract is being funded in whole or in part by assistance from any federal agency, the contract is subject to one or more federal public policy requirements such as: 1. equal employment opportunity; 2. affirmative action; 3. fair labor standards; 4. energy conservation; 5. environmental protection; or 6. other similar socio-economic programs. B. Notice. The Purchasing Director shall include in the contract all appropriate provisions giving the contractor notice of these requirements. Where applicable, the Purchasing Director shall include in the contract provisions the requirement that the contractor give a similar notice to all of its subcontractors. Section 12 INSURANCE REQUIREMENTS A. Minimum Requirements. Contractor shall purchase and maintain such insurance as will protect it from claims under Workers' Compensation laws, disability benefit laws or other similar employee benefit plans; from claims or damages because of bodily injury, occupational sickness or disease or death of its employees and claims insured by usual personal injury liability coverage in amounts determined by the provisions of the Risk Management Policy. B. Certificates of Insurance. Certificates of Insurance acceptable to the County shall be filed with the Purchasing Division prior to the commencement of the work and periodically thereafter upon any renewals during the term of the contract. C. Change of Insurance Requirements. The Board of County Commissioners reserves the right to change the insurance requirements based on the project scope, or when determined in the best interest of the County. Section 13 BONDS AND DEPOSITS When any of the following bonds is (are) required, the bond(s) will be requested in the bid document. No work in connection with the fulfillment of a contract shall commence until the appropriate bond(s) is (are) accepted by the County. Page 39 of 59

172 Page 73 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 Section 13.1 TYPES OF BONDS AND DEPOSITS: A. Combination Payment and Performance Bond - This type of bond is required for repairs, renovations, new construction, and other public works costing in excess of $200,000. For projects less than that amount, it may be required at the discretion of the Purchasing Director with the approval of the County Administrator or his designee. When a payment and performance bond is required, the bond will be requested in the bid document. No work in connection with the fulfillment of a contract shall commence until the payment and performance bond is accepted by the County. B. Performance Bond - For a project of an estimated value less than $200,000, requirement of a performance bond will be at the discretion of the Purchasing Director with the approval of the County Administrator or his designee. For projects estimated to be $200,000 or more, such bond will be required to insure that a contract is carried out in accordance with the applicable specifications and at the agreed contract price. C. Payment and Material Bond - For a project of an estimated value less than $200,000, requirement of a payment and material bond will be at the discretion of the Purchasing Director with the approval of the County Administrator or his designee. For projects estimated to be $200,000 or more, such bond will be required to protect the County from suits for non-payment of debts, which might be incurred by a contractor's performance for the County. D. Warranty Bonds - At the discretion of the Purchasing Director, after consultation with user departments, a Warranty Bond may be required from a successful bidder to insure warranty provisions are fulfilled. E. Guaranty of Good Faith Deposit (Bid Deposit) - For projects estimated to be less than $200,000, requirement of a bid bond will be at the discretion of the Purchasing Director with the approval of the County Administrator or his designee. For purchases where it is determined by the Purchasing Director to be in the best interest of the County, and projects estimated to be $200,000 or more, bidders will be required to submit with their bid or proposal a guaranty of good faith deposit. When in the best interest of the County, it is recommended by the Purchasing Director and approved by the County Administrator or his designee, these requirements may be waived. 1. Return of Bond. Such deposit may not be withdrawn until a specified time after the proposals are opened and awards made. The deposit of the bond shall be retained by the Finance Officer of the Board until the Purchasing Director is satisfied that the Contractor's obligations have been satisfactorily completed. 2. Substitutes. In lieu of a surety bid bond, contractor may submit a certified check, cashier's check, or treasurer's check, on any national or state bank. Such deposits shall be in the same percentage amounts as the bond. Such deposits shall be retained by the Finance Officer of the Board until all provisions of the contract have been met. F. Irrevocable Letter of Credit. Upon approval of the Purchasing Director, a contractor may present an Irrevocable Letter of Credit from a national or state chartered bank in lieu of any of the foregoing bonds for the same face value as required for the bond. The letter of credit shall be for a period of time not less than three months beyond the scheduled completion date of the purchase of the contracted services or materials. G. Retention of Payments. The County may require the payment for a project, or a portion thereof, be withheld until the project has been completed as a method of protecting the County's interest. Retention may also be used in lieu of the above listed bonds. The solicitation documents shall specifically state if retention of any portion or all of the payment for the project is to be done. Section 13.2 AMOUNT OF BOND OR DEPOSIT A. Amount of Bond. Bonds or deposits, which may be required, shall normally be in the following amounts, except as provided in the following subsection B. 1. Performance Bond: 100% of contract price. 2. Payment Bond: 100% of contract price. Page 40 of 59

173 Page 74 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy Payment and Performance Bond: 100% of contract price. 4. Guaranty of Good Faith Deposit (Bid Deposit or Bond): The bid deposit will be 5% of the price bid by the vendor. B. Exceptions to Amount of Bond. Any of the previously listed bonds may be required at another amount recommended by the Purchasing Director and approved by the County Administrator or his designee when in the best interest of the County. Section 13.3 PROCESSING OF BONDS AND DEPOSITS: A. Responsibility for Securing Bonds. The contractor shall be responsible for securing the bond. Any costs may be included in the contract price. B. Licensure of Bonding Company. The company acting as surety for any bond issued shall be licensed to do business in the State of Florida. C. Review of Bonds by County Attorney. Surety bonds furnished will be reviewed by the County Attorney, who shall either accept or reject it for the Board. All surety bonds accepted shall be forwarded to the Finance Officer of the Board by the Purchasing Director to be filed in the official records of the Board. D. Failure to Provide Required Bond. In the event a contractor fails to provide an acceptable bond when required, within 10 days after notification, the County Attorney will be notified. Upon the recommendation of the County Attorney, the Board may declare the contract null and void, and retain in the account of Leon County any good faith deposits or guaranty which may have been submitted as liquidated damages under the terms of the solicitation. E. Filing of Bonds. Bonds, when accepted, shall be forwarded to the Finance Officer of the Board and shall be filed with the applicable contract documents. F. Deposits. Cash deposits (cashier's check, money orders, bank drafts, etc.) of all bidders shall be forwarded to the Finance Officer of the Board for deposit to the account of the Board of County Commissioners. Upon award of contract, the Purchasing Director or designee shall be responsible for approving the return of deposits to unsuccessful bidders. G. Plans and Specification Deposit/Fees. The Purchasing Director is authorized to assess reasonable deposits and/or fees, not to exceed the cost of reproduction, for plans and specifications issued as a part of invitations for bids or requests for proposals. Deposits of all bidders for plans and specifications shall be forwarded to the Finance Officer of the Board for deposit to the account of the Board of County Commissioners. Upon award of contract, the Purchasing Director or designee shall be responsible for approving the return of refundable deposits to unsuccessful bidders. Fees are to be deposited into the account from which applicable reproduction costs are paid. Section 14 PAYMENT TO VENDORS It is the policy of Leon County, Florida that payment for all purchases by the County be made in a timely manner in accordance with the provisions of the Local Government Prompt Payment Act, sections , Florida Statutes. The Purchasing Director, in conjunction with the Finance Director, shall establish administrative procedures, processes, and forms necessary for the implementation and administration of payments for all contracts under the requirements of the Local Government Prompt Pay Act. In addition, the Purchasing Division shall team with the Finance Department to provide accounts payable training for project managers and other fiscal staff involved in contracts and update training as deemed necessary. Page 41 of 59

174 Page 75 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 Section 14.1 PAYMENT DISPUTE RESOLUTION A. In the event a dispute occurs between a contractor/vendor, herein referred to as vendor, and the County concerning payment of a payment request for construction work or an invoice for goods and/or services, the vendor should first attempt to resolve the issue with the Project Manager. If the dispute cannot be resolved between the vendor and the Project Manager within two business days of the dispute first being raised, the vendor may file a formal payment dispute. Formal payment dispute resolution shall be finally determined by the County, under this procedure in accordance with Florida Statute (FS) B. Definitions. These definitions are specific to Section 14.1 of this policy. 1. Project Manager is the Leon County employee responsible for managing the contract and approving payment requests and invoices related to the payment dispute. 2. Contract Manager is the Leon County employee within the County Purchasing Division responsible for monitoring contracts. The Contract Manager serves as Chair of the Payment Dispute Resolution Committee. C. Filing a Dispute. Any vendor shall file with the Contract Manager in the County Purchasing Division a formal notice of payment dispute in writing within two (2) business days of the dispute first being raised. 1. The notice of payment dispute shall contain at a minimum: the name of the vendor; the vendor=s address and phone number; the name of the vendor=s representative to whom notices may be sent; the contract number associated with the payment dispute; and, a brief factual summary of the basis of the dispute. 2. Waiver. Failure to timely file a written payment dispute shall constitute a waiver of proceedings under this section. 3. Upon timely receipt of a formal payment dispute, the Contract Manager shall provide the vendor with acknowledgement of receipt, will notify the Payment Dispute Resolution Committee, and will coordinate with all parties to establish the date and time for a Payment Dispute Resolution Proceeding. D. General Provisions 1. Time Limits. Proceedings to resolve the dispute shall be commenced not later than 45 calendar days after the date on which the payment request or proper invoice (as specified in the contract document) was received by the County and shall be concluded by final decision of the County not later than 60 calendar days after the date on which the payment request or proper invoice was received by the County. 2. Protest. Dispute resolution procedures shall not be subject to chapter 120, and such procedures shall not constitute an administrative proceeding, which prohibits a court from deciding de novo any action arising out of the dispute. 3. Interest. If the dispute is resolved in favor of the County, then interest charges shall begin to accrue 15 calendar days after the County's final decision. If the dispute is resolved in favor of the vendor, then interest shall begin to accrue as of the original date the payment became due. 4. Any party may arrange for the proceedings to be stenographically recorded and shall bear the expense of such recording. E. Payment Dispute Resolution Proceeding Process 1. All formal payment disputes shall be presented to the Payment Dispute Resolution Committee. The committee shall be comprised of the Contract Manager, Purchasing Director, and appropriate Division Director for the County or their designees. Page 42 of 59

175 Page 76 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy Within three (3) business days of timely receipt of a formal notice of payment dispute, the Contract Manager shall schedule a proceeding before the Payment Dispute Resolution Committee to include all substantially affected persons or businesses, including the vendor and County project manager. Non-appearance by the vendor shall constitute a forfeiture of proceedings with prejudice. 3. At or prior to the dispute proceeding, the vendor and project manager, may submit any written or physical materials, objects, statements, affidavits, and arguments which he/she deems relevant to the payment dispute. 4. In the proceeding, the vendor and project manager, or his representative or counsel, may also make an oral presentation of his evidence and arguments. Further, only reasonable direct and cross-examination of witnesses shall be permitted, at the discretion of the Chairman of the Payment Dispute Resolution Committee. The members of the Payment Dispute Resolution Committee may make whatever inquiries they deem pertinent to a determination of the dispute. a) The judicial rules of evidence shall not strictly apply; however, witnesses shall be sworn, and any testimony taken under oath and, the members of the Payment Dispute Resolution Committee shall base their decision on competent, substantial evidence. The proceeding shall be de novo. Any prior determinations by administrative officials shall not be final or conclusive. b) Within three business days of the conclusion of the proceeding, the Payment Dispute Resolution Committee shall render a decision. The Payment Dispute Resolution Committee decision shall be reduced to writing and provided to the vendor and the County project manager. The decision of the Payment Dispute Resolution Committee shall be final and conclusive for all disputes valued less than $100,000. c) For those disputes valued above $100,000, the Payment Dispute Resolution Committee shall file a Recommended Agency Order for approval by the County Administrator or his designee. Section 15 AUTHORIZATION TO DEBAR OR SUSPEND VENDOR(S) A. Suspension. After consultation with the County Attorney, the Purchasing Director is authorized to suspend a person from consideration for award of contracts if there is probable cause to believe that the person has engaged in any activity, which might lead to debarment. The suspension shall be for a period not to exceed three (3) months, and the Purchasing Director shall immediately inform the Board and provide notice to the affected person. B. Debarment. After reasonable notice and a reasonable opportunity for the suspended person to be heard, the Board shall either disbar such person or terminate the suspension. The debarment should be for a period of not more than three (3) years. C. Causes for Debarment. The causes for debarment include: 1. entry of a plea of guilty, no contest, or nolo contendere to or conviction of a criminal offense as an incident to obtaining or attempting to obtain a public or private contract or subcontract, or in the performance of such contract or subcontract; 2. entry of a plea of guilty, no contest, or nolo contendere to or conviction under state or federal statutes of embezzlement, theft, forgery, bribery, falsification or destruction of records, receiving stolen property, or any other offense indicating a lack of business integrity or business honesty which currently, seriously, and directly affects responsibility as a County contractor; 3. entry of a plea of guilty, no contest, or nolo contendere to or conviction under state or federal antitrust statutes arising out of the submission of bids or proposals; Page 43 of 59

176 Page 77 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy violation of contract provisions, as set forth below, of a character which is regarded by the Board to be so serious as to justify debarment action: a) deliberate failure without good cause to perform in accordance with the specifications or within the time limit provided in the contract; or b) a recent record of failure to perform or of unsatisfactory performance in accordance with the terms of one or more contracts; provided that failure to perform or unsatisfactory performance caused by acts beyond the control of the contractor shall not be considered to be a basis for debarment; 5. having been adjudicated guilty of any violation by the Leon County Contractor's Licensing Board, or the State of Florida Construction Industry Licensing Board within the past twelve (12) month period at the time of bid submittal; 6. having been adjudicated guilty by the Leon County Code Enforcement Board of any violation of an environmental ordinance within the past six (6) month period at the time of bid submittal; and 7. any other cause the Purchasing Director or Board determines to be as serious and compelling as to affect responsibility as a County contractor, including debarment by another governmental entity. D. Notice of Decision. The Purchasing Director shall issue a written notice to the person of the decision to debar or suspend. The decision shall state the reasons for the action taken and inform the debarred or suspended person involved of his/her rights concerning judicial or administrative review. The written decision shall be mailed or otherwise furnished immediately to the debarred or suspended person. Section 15.1 APPEAL OF DECISION TO DEBAR OR SUSPEND The Board's decision to debar or suspend a person or business shall be final and conclusive, unless the debarred person commences a timely action in court in accordance with applicable law. Section 16 MINORITY, WOMEN AND SMALL BUSINESS ENTERPRISE PROGRAM A. Purpose. The purpose of the Minority and Women-Owned Business Enterprise and Small Business Enterprise (MWSBE) Program is to effectively communicate Leon County procurement and contracting opportunities, through enhanced business relationships, to end disparity and to increase participation opportunities for certified minority and women-owned business enterprises and small business enterprises in a competitive environment. B. Definitions. These definitions are specific to Section 16 of this policy. 1. Affiliate or Affiliation Shall mean when Eligible Owner either directly or indirectly controls or has the power to control the other; a third party or parties controls or has the power to control both; or other relationships between or among parties exist such that affiliation may be found. A business enterprise is an Affiliate of an Eligible Owner when the Eligible Owner has possession, direct or indirect of either: (i) the Ownership of or ability to direct the voting of as the case may be more than fifty percent (50%) of the equity interest, value or voting power of such business, or (ii) the power to direct or cause the direction of the management and policies of such business whether through the Ownership of voting securities by contract or otherwise. In determining whether a business is an Affiliate with another business or with an Owner, consideration shall be given to all appropriate factors including but not limited to common Ownership, common management, contractual relationship and shared facilities. 2. Applicant Shall mean a Person who has submitted a Certification Application to the MWSBE Division for Certification consideration. 3. Aspirational Targets Shall mean the percentage or dollar level targeted for the minimum level of MBE, WBE, or SBE participation for a particular procurement opportunity. Page 44 of 59

177 Page 78 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy Bidder Shall mean, unless otherwise stated, a party responding to an invitation for bid, or other form of a procurement opportunity. 5. Business Categories shall include and shall have the following meaning: a) Architecture & Engineering Shall mean architectural or engineering services provided by an appropriately licensed professional architect or engineer, or by a professional architectural or engineering firm, related to architectural or engineering services. i. Architecture - When provided by an appropriately licensed architect or architectural firm that employs appropriately licensed architects, "architecture" shall mean the rendering or offering to render services in connection with the design and construction of a structure or group of structures which have as their principal purpose human habitation or use, and the utilization of space within and surrounding such structures. These services include planning, providing preliminary study designs, drawings and specifications, job-site inspection, and administration of construction contracts. ii."engineering" Engineering shall include the term professional engineering and, when provided by an appropriately licensed professional engineer, licensed engineer, or an engineering firm that employs appropriately licensed professional or licensed engineers, engineering shall mean any service or creative work, the adequate performance of which requires engineering education, training, and experience in the application of special knowledge of the mathematical, physical, and engineering sciences to such services or creative work as consultation, investigation, evaluation, planning, and design of engineering works and systems, planning the use of land and water, teaching of the principles and methods of engineering design, engineering surveys, and the inspection of construction for the purpose of determining in general if the work is proceeding in compliance with drawings and specifications, any of which embraces such services or work, either public or private, in connection with any utilities, structures, buildings, machines, equipment, processes, work systems, projects, and industrial or consumer products or equipment of a mechanical, electrical, hydraulic, pneumatic, or thermal nature, insofar as they involve safeguarding life, health, or property; and includes such other professional services as may be necessary to the planning, progress, and completion of any engineering services. b) Construction Shall mean services that include the building, attaining, repairing, improving, or demolishing any public structure or building, or other public improvement of any kind to any public real property. It does not include routine operation, routine repair, or routine maintenance of existing buildings or facilities. c) Professional Services Shall mean any service provided by a person or firm that is of a professional nature, with special licensing, educational degrees, and unusual or highly specialized expertise. Examples include, but are not limited to Financial Services, Legal Services, Medical Services, and Advertising/Marketing Services. Professional Services does not include Architecture & Engineering, which is previously separately defined herein. d) Other Services Shall mean any service that is labor intensive and not professional or construction related. Examples include, but are not limited to maintenance services, janitorial services, lawn services, employment services, and printing services. e) Materials and Supplies/Purchases Shall mean the equipment and consumable items purchased in bulk, or deliverable products. Examples of such include, but are not limited to equipment and parts, chemicals, and paper products. 6. Certification Shall mean the verification that a business meets all of the eligibility criteria for participation in the MWSBE Program as a SBE and/or a MBE or WBE. 7. Certification Application Shall mean the forms and documents an Applicant must complete to be considered for Certification. Page 45 of 59

178 Page 79 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy Commercially Useful Function - Shall mean a business that: (a) is responsible for the execution of a distinct element of work or services; (b) carries out its obligation by actually performing, managing, or supervising the work involved; (c) performs work that is normal for its business, services and function; and (d) is not further Subcontracting a portion of the work that is greater than that expected to be subcontracted by normal industry practices. A Contractor, Subcontractor, Vendor or Supplier shall not be considered to perform a Commercially Useful Function if the Contractor s, Subcontractor s, Vendor s or Supplier s role is limited to that of an extra participant in a transaction, contract, or project through which funds are passed in order to obtain the appearance of MWSBE participation. 9. Contract - Shall include any agreement, regardless of what it may be called, between the County and a Person to provide or procure labor, materials, supplies, or services to, for, or on the behalf of the County. 10. Contractor - Shall mean any person, firm, or legal entity that has entered into a Contract with the County or any of its contracting agencies. 11. Control Shall mean the Applicant Owner(s) actually exercise control over the business operations, work, management, and policy. Indication of such control are set forth as follows: a) Applicant Owner(s) must demonstrate the ability to make unilateral and independent business decisions as needed to guide the future and destiny of the business, and their business must not be subject to any formal or informal restrictions that limit the customary discretion of such Applicant Owner(s). There can be no restrictions through corporate provisions, by-law provisions, contracts or any other formal or informal devices that prevent the Applicant Owner(s) from making any business decision of the firm without the cooperation or vote of another entity or Person that is not an Applicant Owner(s) or who would not be eligible for the MWSBE Program. b) The Applicant Owner(s) must control the day-to-day operations of the business in the critical area(s). Administrative responsibilities alone are not sufficient to prove control. The Applicant Owner(s) may delegate various areas of the management or daily operations of the business to persons, who would not qualify to be MWSBEs or who are not Applicant Owners, only if such delegation is typical in the industry for such business and such delegation is revocable. c) The Applicant Owner(s) must have an overall understanding of, and managerial and technical competence, experience and expertise, directly related to the business operations and work. 12. County - Shall mean Leon County, Florida 13. County Facilities Shall mean County buildings and other buildings and structures owned, leased, or used by the County or its contractors, assignees, lessees and licensees. 14. Front Shall mean a business that intentionally and/or falsely holds itself out as a business that is Controlled and Owned at least 51% by a Minority(ies), a Woman or Women, when in fact it is not. 15. Good Faith Committee Shall mean a standing committee whose purpose is to determine the validity of a Bidder s Good Faith Efforts to meet Aspirational Targets, as it relates to MWSBE participation for a procurement opportunity, when a Bidder with Subcontracting and/or Supplier opportunities fails to meet the Aspirational Targets, and the MWSBE Director has determined that the Bidder has not made Good Faith Efforts. Page 46 of 59

179 Page 80 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy Good Faith Efforts Shall mean efforts exercised by a Bidder in good faith to meet Aspirational Targets for MWSBE participation as a Subcontractor or Supplier, as may be relevant to the particular bid or RFP. The Bidder can demonstrate that it has made a Good Faith Effort by meeting the Aspirational Targets, or by demonstrating it has made reasonable efforts to do so, such as in person, written, telephone, electronic communication, contact with certified MWBE s, provisions of plans or specifications to MWBE s, or outreach efforts with MWBE s. 17. Independent Shall mean a business whose viability does not depend on its relationship with another firm. Recognition of an Applicant business as a separate entity for tax or corporate purposes is not necessarily sufficient to demonstrate that a business is independent. Considerations of such independence include: (i) relationships with other businesses in such areas as personnel, facilities, equipment, financial and/or bonding support, and other resources; (ii) whether present or recent family, or employer/employee relationships compromise the Applicant Owner(s) independence; and (iii) whether the Applicant Owner(s) exclusive or primary dealings with a prime contractor compromises the Applicant Owner(s) independence. 18. Joint Venture Shall mean a legal organization that takes the form of a short-term partnership in which the parties jointly undertake for a transaction, for which they combine their property, capital, efforts, skills, and knowledge. Generally, each party shall contribute assets and share risks. Joint Ventures can involve any type of business transaction and the parties involved can be individuals, groups of individuals, companies, or corporations. 19. Local Market Shall mean the geographical area consisting of the following Florida counties: Leon, Gadsden, Jefferson, and Wakulla. 20. Majority Ownership or Majority Owner Shall mean owning no less than 51% of a business enterprise. 21. Minority Business Enterprise (MBE) - Shall mean a business whose MBE Certification is recognized, current, and accepted by Leon County s MWSBE Program. 22. Minority Person or Minority - Shall mean an individual who is a citizen of the United States, or a lawfully admitted permanent resident, and who identifies himself or herself as being African, Hispanic, Asian, American Indian, Alaskan Native, and American Aleut descent. a) African American Which shall mean all persons having origins from Africa b) Hispanic American Which shall mean all persons having origins from a Hispanic country. c) Asian American Which shall mean all persons having origins in any of the original peoples of the Far East, Southeast Asia, the Indian Subcontinent, or the Pacific Islands. d) American Indian, Alaskan Native and American Aleut Which shall mean all persons having origins in any of the original people of North America 23. Minority, Women and Small Business Enterprise (MWSBE) Shall refer jointly to MBE, WBE and SBE, or any combination thereof. 24. MWSBE Director - Shall mean the Director of Leon County s MWSBE Division and manager of the MWSBE Program. 25. MWSBE Program Shall mean the programs and efforts set forth by Leon County under the provisions of this policy, either directly or through partners, to enhance participation in County procurements to achieve parity for MBEs, WBEs, and SBEs. 26. Owner or Ownership Shall mean the person(s) who own(s) a business. 27. Parity Shall mean the utilization of MBEs and WBEs for County Contracting and procurements in a share equal to the availability of MBEs and WBEs in the Local Market who are willing, able and available to perform the services and provide the goods being Contracted or procured. Page 47 of 59

180 Page 81 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy Participation Plan Shall mean the response provided by the Bidder as a part of their bid or proposal and which provides the detailed information in response to the Aspirational Targets contained in the invitation to bid or request for proposals. 29. Person or Party Shall mean one or more individuals, partnerships, associations, organizations, trade or professional associations, corporations, public corporations, cooperatives, legal representatives, trustees, trustees in bankruptcy and receivers, or any group of persons; it includes any owner, lessee, proprietor, manager, agent or employee, whether one or more individuals, and further includes any department, office, agency or instrumentality of the County. 30. Prime Contractor Shall mean a person or firm who is qualified and responsible for the entire project contracted, who may have one or more Subcontractors. 31. Purchasing or Procurement - Shall mean the buying, renting, leasing or otherwise obtaining or acquiring any goods, supplies, materials, equipment, or services. 32. Respondent The Person or Party who responds to a request for proposal or a request for qualification. 33. Small Business Enterprise (SBE) Shall mean a business whose SBE Certification is recognized, effective and accepted by Leon County s MWSBE Program. 34. Small Business Enterprise Program (SBE Program) Shall mean those components of the MWSBE Program that targets increased participation of SBEs in the County s procurements, including the coordination with other entities and agencies that assist small businesses through various means such as education and networking. 35. Subcontract - Shall mean any agreement, arrangement, or understanding, written or otherwise, between a Contractor and any Party (in which the parties do not stand in relationship of employer and employee) which assigns some of the obligations of the Contract: a) For the furnishing of supplies or services or for the use of real personal property; including lease arrangements which, in whole or in part, is/are utilized in the performance of one or more Contracts with the County; or b) Under which any portion of the Contractor/Vendor s obligation under one or more Contracts with the County is performed, undertaken, or assumed. 36. Subcontractor Shall mean any Party performing work for a Prime Contractor engaged by Leon County under a Contract with a Contractor. 37. Supplier - Shall mean a business that furnishes needed items to a Contractor, and (i) is either involved in the manufacture or distribution of the supplies or materials; or (ii) otherwise warehouses and ships the supplies. 38. Vendor Shall mean a business that sells goods or services. 39. Woman or Women - Shall mean an American woman who has not self-identified, within the definition of this Section, as a Minority Person or Minority. 40. Women Business Enterprise (WBE) - Shall mean a business whose WBE Certification is recognized, effective and accepted by Leon County s MWSBE Program. C. Administrative Authority, Powers and Duties 1. The provisions of the MWSBE Program shall be administered and enforced by the MWSBE Director. 2. The MWSBE Director s powers and duties include the following: a) Establish written procedures to implement the MWSBE Program, including the Certification of businesses as SBEs, MBEs and WBEs; Page 48 of 59

181 Page 82 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 b) Assess the Certification of applications for the MWSBE program, and coordinate Certifications with partner agencies; c) Maintain a database of MWSBEs and provide assistance to County departments and divisions in identifying MWSBEs for anticipated procurements; d) Provide information and assistance to MWSBEs to assist them with increasing their ability to compete effectively for the award of County solicitations for procurements; e) Apprise SBEs, MBEs and WBEs of opportunities for technical assistance and training; f) Identify and work to eliminate barriers that inhibit MWSBE participation in the County s procurement process; g) Establish realistic MBE and/or WBE Aspirational Targets for specific procurements; h) Establish realistic Aspirational Targets and identify procurement opportunities for competition among SBEs; i) Monitor the utilization of MWSBEs and the progress of the MWSBE Program to ensure that MWSBEs have opportunities to participate in the County s procurement of goods and services, and report on the progress of the MWSBE Program at least annually; j) Implement mechanisms and procedures for monitoring utilization of MWSBEs in accordance with Contract requirements; and, k) Perform outreach by networking with state and local governments, nonprofit organizations, professional and trade organizations and participate in conventions and seminars sponsored and widely attended by small, minority, and women business owners. 3. All Departments and Divisions under the jurisdiction of the Leon County Board of County Commissioners are responsible for assisting in the implementation of the MWSBE Program. D. MWSBE Citizens Advisory Committee The Board of County Commissioners may establish a MWSBE Citizens Advisory Committee (Committee) and appoint persons to serve on the Committee at the pleasure of the Board. The principle purpose of the Committee is to monitor progress of the MWSBE Program toward achieving program performance goals established by the Board. The Committee may be requested to provide MWSBE policy alternatives and/or review, and make recommendations seeking resolution of disputes regarding Certification. The size and membership of the Committee and its responsibilities shall be determined by the Board. The Committee shall be chaired by a chairperson nominated and elected by the members of the Committee. A quorum of the membership shall be required to conduct any meeting of the Committee. All meetings shall be noticed, open to the public and minutes of any such meeting shall be recorded. E. Aspirational Targets 1. The Aspirational Targets (Section 16, Table 1) were identified through the October 15, 2009 Disparity Study Update performed by MGT America and accepted by the Leon County Board of County Commissioners on October 27, Section 16, Table 1- Aspirational Targets Procurement Category Aspirational MBE Target Aspirational WBE Target Construction Prime Contractors 8% 5% Construction Subcontractors 17% 9% Architecture & Engineering 12% 14% Professional Services 7% 15% Other Services 10% 8% Materials and Supplies 1% 6% Page 49 of 59

182 Page 83 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy The Aspirational Targets for individual bids/rfps may be higher or lower than the participation levels identified in Section 16, Table 1, and should reflect realistic M/WBE availability for the particular project. 3. Aspirational Targets are considered to be the minimum level of MBE, WBE, and/or SBE participation expected for a particular procurement. Aspirational Targets are considered to be targets set to achieve participation levels commensurate with available businesses, and for which there are opportunities for exemptions based upon Good Faith Efforts. 4. Aspirational Targets shall be reasonable (with consideration given to Subcontracting opportunities and the availability of MBEs, WBEs, or SBEs in the Market Area, that are capable of performing the work). 5. Aspirational Targets may not be appropriate when Subcontracting is not reasonable or permitted. 6. In cases where it is not reasonable to set Aspirational Targets, the MWSBE Director may encourage MWSBE participation through Bidder s purchase of goods or services from MWSBEs, consistent with the Aspirational Targets, or provide for any combination thereof. 7. Aspirational Targets shall apply to all Bidders, including MBE, WBE, and SBE Bidders. 8. Only the dollars expended with certified MWSBE firms shall be considered toward satisfying the Aspirational Targets. 9. In an effort to meet Aspirational Targets, Departments and Divisions under the jurisdiction of the Board of County Commissioners shall cooperate with the MWSBE Division and make every reasonable effort, consistent with Board policy, to utilize MWSBEs when available. The MWSBE Director shall coordinate and promote the process by taking active steps to encourage full participation of Certified, capable, and competitive MBE, WBE, and SBE businesses and by keeping staff informed of MWSBE availabilities. 10. The MWSBE Director shall annually evaluate relevant expenditure and contracting data to determine the performance and progress of the MWSBE Program. F. Special Consideration for MBEs, WBEs and SBEs - For contracts of $100,000 or less, where there is a disparity of 1% or less between the total of the base bid and all recommended alternates of a 100% owned and operated MBE, WBE or SBE and the apparent lowest bid which is from a business that is not a MBE, WBE or SBE, and all other purchasing requirements have been met, the Contract may be awarded to the MBE, WBE or SBE to help achieve Aspirational Targets, where otherwise permissible. G. Setting and Meeting Aspirational Targets 1. Project Review and Setting Aspirational Targets - The MWSBE Director, a Purchasing representative and an appropriate division or department representative shall review each proposed project or bid to determine the potential for Subcontracting and for utilizing MWSBEs, considering the scope of work, available and capable MWSBEs to potentially perform the work, and opportunities for multiple bids. Such reviews may be held as a group, via , telephone, etc. Based upon these and other reasonable factors, the MWSBE Director or designee shall determine the recommended Aspirational Targets. a) If the recommended Aspirational Target is lower than the applicable participation level(s) identified in Section 16, Table 1: i. The MWSBE Director shall notify the County Administrator of the recommendation Aspirational Target and provide reasons for such recommendation. ii. The County Administrator shall then advise the Leon County Board of County Commissioners, typically through an to each Commissioner. Commissioners shall be given five (5) business days to ask the County Administrator to delay the issuance of the Bid/RFP and request an agenda item regarding the recommended Aspirational Target. Page 50 of 59

183 Page 84 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 iii. If no Commissioner requests an agenda item regarding the recommended Aspirational Target within the five-business day time period, the recommended Aspirational Target shall stand, and staff is authorized to release the Bid/RFP. b) The notification process previously outlined does not apply when the recommended Aspirational Target is equal to or greater than the applicable participation level(s) identified in Section 16, Table Notice to Potential Bidders - a) Language regarding the MWSBE Program policy and Aspirational Targets will be included into each bid and request for proposal package specifications to inform prospective Bidders of the requirement to make good faith efforts to utilize MWSBEs, as appropriate to the particular procurement. b) Plans and specifications will be made available to the MWSBE Director by the Purchasing Division or originating division for review by potential MWSBE Bidders. 3. Participation Plans (Submitting and Changing) - Bidders shall submit a Participation Plan when the procurement opportunity contains Aspirational Targets. Such Participation Plans shall identify the MBEs, WBEs and SBEs to be utilized, their percentage of utilization, and the Commercially Useful Functions they will be providing, consistent with the commodities or services for which they are Certified to provide. a) Unless otherwise approved by the Board, no Bidder that will be Subcontracting will be awarded a bid or proposal that contained Aspirational Targets until the Bidder has provided a Participation Plan detailing the utilization of MWSBEs (as applicable to the Aspirational Targets for the procurement); the Participation Plan has been analyzed by the MWSBE Director; such analysis is provided to the Board through an agenda item; and the proposed Contract is approved by the Board. 4. Good Faith Efforts required Proposing Prime Contractors (including Joint Ventures) to Meet Aspirational Targets a) Bidders responding as a Prime Contractor (including Joint Ventures) shall demonstrate that they made Good Faith Efforts to meet Aspirational Targets. b) All Bidders, including MBEs, WBEs, or SBEs, shall either meet the Aspirational Targets or demonstrate in their bid or RFP response the Good Faith Efforts they made, such as: i. Advertising for participation by MWSBEs in non-minority and minority publications within the Market Area, including a copy of the advertisement and proof of the date(s) it appeared or by sending correspondence, no less than ten (10) days prior to the submission deadline, to all MWSBEs referred to the Bidder by the MWSBE Division for the goods and services to be Subcontracted and/or Supplied. ii. Documentation indicating that the bidding Prime Contractor provided ample time for potential MBE, WBE and SBE Subcontractors to respond to bid opportunities, including a chart outlining the schedule/time frame used to obtain bids from MBE, WBE and SBE Vendors as applicable to the Aspirational Target. iii. Contacting MBEs, WBEs, and SBE Vendors who provide the services needed for the bid or proposal, including a list of all MWSBEs that were contacted and the method of contact. iv. Contacting the MWSBE Division for a listing of available MWSBEs who provide the services needed for the bid or proposal, including a list of those MWSBEs who were contacted regarding their participation. v. Document follow-up telephone calls with potential MWSBE Subcontractors encouraging their participation. vi. Allowing potential MWSBE Subcontractors to review bid specifications, blueprints and all other bid/rfp related items at no charge to the MWSBEs. Page 51 of 59

184 Page 85 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 vii. Contacting the MWSBE Division, no less than five (5) business days prior to the bid/rfp deadline, regarding problems they are having in reaching the Aspirational Targets. viii. Other documentation indicating their Good Faith Efforts to meet the aspirational targets. c) Prime Contractors will negotiate in good faith with interested MWSBEs, not rejecting a MWSBE as unqualified or unacceptable without sound business reasons based on a thorough investigation of their capabilities. The basis for rejecting any MWSBE deemed unqualified or unacceptable by the Prime Contractor shall be included in the Good Faith Effort documentation. The Prime Contractor shall not impose unrealistic conditions of performance on MWSBEs seeking subcontracting opportunities. 5. Good Faith Committee a) Should the MWSBE Director determine that a Bidder with Subcontracting and Supplier opportunities has not made Good Faith Efforts to meet the Aspirational Targets the MWSBE Director shall refer the matter to the Good Faith Committee. b) The Good Faith Committee shall include the County Administrator or designee, serving as Chair, the Purchasing Director or designee, the Chair of the MWSBE Citizens Advisory Committee or designee, and may include others appointed at the discretion of the County Administrator or the County Administrator's designee. c) The Good Faith Committee shall make a formal determination, based on a simple majority vote, as to whether the proposing Prime Contractor made Good Faith Efforts to reach the Aspirational Targets, with each member of the Good Faith Committee having an equal vote in making such determination. 6. The Participation Plan for a specific project and the Contractor s commitment to carry out the program shall become a part of the Contract. 7. Joint Ventures - To determine whether the Joint Venture is given credit as such for meeting Aspirational Targets: a) The Joint Venture shall demonstrate that at least one partner to the Joint Venture is a MBE, WBE or SBE, as applicable to the Aspirational Target, and that such partner is responsible for a clearly defined portion of the work to be performed, will be performing a Commercially Useful Function under the Contract, and shares in the Ownership, Control, management, responsibilities, risks, and profits of the Joint Venture. b) Such demonstration shall be verified by pertinent documents and sworn statements and may be reviewed by the MWSBE Division at the time a bid, proposal, or reply is submitted, or prior to the award of a bid, proposal or Contract. c) For the purpose of tentatively awarding credit towards a Bidder meeting Aspirational Targets, the MWSBE Division may consider a proposed partnership, that is not yet legally formed and which appears in all matters except legal formation as a joint venture. However, such partnership shall become a legal Joint Venture organization prior to entering into a Contract and failure to form such legal Joint Venture organization shall result in the loss of such proposed Contract. d) The MWSBE Division may award credit towards a Bidder meeting Aspirational Targets a portion of the total dollar amount of a proposed Contract equal to the percentage of the Ownership and Control held by the qualifying MBE, WBE, and SBE partners (as applicable to the Aspirational Targets) in the Contracting Joint Venture. H. Responsibilities of Persons Seeking Participation as a MBE, WBE or SBE Contractor or Subcontractor 1. Persons seeking to participate as a MBE, WBE or SBE Contractor or Subcontractor shall complete the MWSBE certification process managed by the Leon County MWSBE Director, or assure that they have Certification that is accepted by the MWSBE Division, for the scope of work for which they are proposing to perform. Page 52 of 59

185 Page 86 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy Persons seeking to participate as a MBE, WBE or SBE Contractor or Subcontractor shall attend prebid conferences to obtain information and technical assistance on projects and procedures in which they may be interested in bidding, or in which they may be interested in participating as a Subcontractor. I. Contract Management 1. Changing Subcontractors - A Prime Contractor who determines that an MWSBE named in their bid or proposal submittal is unavailable or cannot perform the work, shall request a change order to modify their Participation Plan. a) Such changes require the prior written concurrence of the MSWBE Division, which shall be based on reasonable considerations such as: i. The Prime Contractor has provided the MWBSE Division with documentation regarding the current MWSBE s poor work performance and measures the Prime Contractor has taken to improve the MWSBE s performance. ii. The Prime Contractor has worked with the MWSBE Division and County staff without success to improve the MWSBE s performance. b) The MWSBE Division shall consult with the Prime Contractor and the County's technical staff and project manager prior to approve or disapprove the Prime Contractor s proposed substitution. c) Prime Contractors who substitute Subcontracted MWSBEs without the prior written approval by the MWSBE Division may be subject to actions for breach of contract, and dollars spent with the unauthorized MWSBE may not be credited towards meeting the Aspirational Targets, with the Prime Contractor remaining responsible for meeting the Aspirational Targets provided for by the Contract. 2. Monitoring Contracted Utilization and Failure to Meet Contracted Utilization a) The MWSBE Division will monitor the level of MWSBE utilization by Prime Contractors. If a Contractor is having difficulties meeting the contractual MWSBE Aspirational Targets, the MWSBE Division will help the Contractor identify additional potential MWSBE sub-contractors and/or suppliers. b) If a Contractor's MWSBE participation falls below that provided for in their Contract, then the Contractor may be in breach of their contract. The MWSBE Division shall investigate whether it appears that a breach of contract has occurred. Upon a determination by the MWSBE Director that it appears a breach has occurred, the County Attorney s office will be contacted, and payments under the Contract may be immediately suspended. The County Attorney=s office shall be fully involved throughout this process. Based upon guidance from the County Attorney s office, the findings and determination of the MWSBE Director, in conjunction with the County Attorney s office, may be forwarded to the Good Faith Committee for a determination as to whether the Contractor made a Good Faith Effort to comply with the requirements of the Contract, or take other appropriate actions. 3. Suspension - Contractors found in breach of their Contract may be suspended from bidding on and/or participating in any future County contracts for up to three (3) years as provided in Section 15 of the Purchasing Policy. 4. Reporting Prime Contractors with MWSBE participation shall submit a monthly report, not less frequently than monthly, and in a form and manner prescribed by the MWSBE Division, which may include items, such as the invoices submitted to the County, payments received, and payments made to each MBE, WBE, and SBE as a part of each project. 5. Payments - Contracts and purchase orders shall contain the payment schedule. An MBE, WBE or SBE may seek expedited payment in case of hardship by notifying the MWSBE Director or Purchasing Director, and in such cases, the County may provide expedited payments when determined to be reasonably necessary, provided all work or services have been satisfactorily performed. Page 53 of 59

186 Page 87 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy On-Site Monitoring - The MWSBE Division may perform on-site monitoring of MWSBE utilization on County projects. Monitoring may consist of scheduled or unscheduled project site visits. This does not exclude Contract monitoring expected by other County staff responsible for the project in the performance of their regular duties. J. Certification Criteria For Certification as a MBE, WBE or SBE, the Applicant must meet all of the following Criteria as noted; businesses may be Certified as a: (1) MBE; (2) WBE; (3) SBE; (4) MBE/SBE; or (5) WBE/SBE: MBE, WBE and SBE Certification Eligibility Criteria Majority Owner(s) must be a Minority or Minorities who manage and Control the business. In the case of a publicly owned business, at least 51% of all classes of the stock, which is owned, shall be owned by one or more of such persons. Majority Owner(s) must be a Woman or Women who manage and Control the business. In the case of a publicly owned business, at least 51% of all classes of the stock, which is owned, shall be owned by one or more of such persons. Majority Ownership in the business shall not have been transferred to a woman or minority, except by descent or a bona fide sale within the previous 2 years. Majority Owner(s) must reside in Leon, Gadsden, Jefferson, or Wakulla County Florida. Majority Owner(s) must be a United States citizen or lawfully admitted permanent resident of the United States. Business must be legally structured either as a corporation, organized under the laws of Florida, or a partnership, sole proprietorship, limited liability, or any other business or professional entity as required by Florida law. Business must be Independent and not an Affiliate, Front, façade, broker, or Type of Certification (must meet ALL marked criteria) MBE WBE SBE X X X X X X X X X X X X X X X X pass through. Business must be a for-profit business concern. X X X Business must be currently located within the Market Area. X X X Business must have all licenses required by local, state, and federal law. X X X Business must currently be licensed and engaging in commercial transactions typical of the field, with customers in the Local Market Area other than state or government agencies, for each specialty area in which Certification is sought. Further, if a Supplier, business must be making sales regularly from goods maintained in stock. X X X Business must have expertise normally required by the industry for the field for which Certification is sought. X X X Business must have a net worth no more than $2 million. X X X Business must employ 50 or fewer full- or part-time employees, including leased employees. X X X Annual gross receipts on average, over the immediately preceding three (3) year period, shall not exceed: - For businesses performing Construction $2,000,000/year. - For businesses providing Other Services or Materials & Supplies - $2,000,000/year. - For businesses providing Professional Services $1,000,000/year. X X X Business must have been established for a period of one (1) calendar year prior to submitting its application for SBE certification. Business must have a record of satisfactory performance on no less than three (3) projects, in the business area for which it seeks certification, during the past 12 calendar months. X X Page 54 of 59

187 Page 88 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 K. Certification and Recertification Process 1. Application a. Persons seeking Certification shall complete a Certification Application, which provides the MWSBE Division with information regarding the name and address of the company and its owner(s), the gender/race of the Owner(s), a listing of the type of commodities/services it provides, the Vendor=s work/contract history and past earnings, and other relevant information necessary for the determination of Certification eligibility. b. Certification Application attachments, such as "Proof of Ownership" with the Applicant=s name listed on it, a copy of the applicant=s most recent pictured identification also indicating race and gender (if seeking MBE or WBE Certification), the most recent financial statements for the company, as well as the other required documents listed on the Certification Application, shall accompany the completed and notarized Certification Application. Copies of MWSBE Certifications(s) from other governmental agencies shall also be included, where applicable. 2. Application Evaluation Period The MWSBE Division shall review, evaluate, and make a determination as to whether an Applicant is certifiable within 30 days of receipt of a complete Certification Application, with all applicable attachments. 3. Certification Approvals - If the Applicant is deemed certifiable, they will be notified of their Certification approval in writing through a letter of Certification and a certificate, which indicates the expiration date of their certification. 4. Certification Denials - If an Applicant who has submitted a Certification Application is determined not certifiable based on information provided on the Certification Application, including attachments, or as a result of the MWBSE Division s investigation and research, the Certification Application will be denied. Submission of fraudulent information, by or on the behalf of the Applicant as part of the Certification process, is grounds for Certification denial. The Applicant will then be notified in writing of the denial of their Certification. Such official denial notification shall include notice to the Applicant of their right to appeal their denial and of the appeal process. 5. Appeals of Certification Denials - An Applicant may appeal their Certification denial by presenting written notice of their appeal to the MWSBE Director within 10 business days after the Applicant s receipt of the Certification denial. An appeal of a Certification denial will be heard by the MWSBE Citizen Advisory Committee. Upon receipt of the notice of appeal of a Certification denial, the MWSBE Director shall convene a meeting of the Committee to review the denial of the application for Certification. The Committee shall review all documentation prepared by the MWSBE Division or submitted by the Applicant prior to the time the committee convenes. The Committee shall not receive any new evidence, and may make whatever relevant inquiry necessary to render a decision on the appeal. The Committee shall review the relevant evidence submitted and determine whether or no the Application for MWSBE Certification meets the specific criteria provided in Policy The decision of the Committee shall be upon majority vote of the Committee and shall be based upon competent substantial evidence. Within five (5) business days of the decision of the Committee, the Chairman shall reduce to writing the decision of the Committee, which shall set forth a statement of the relevant facts and application of the Policy to the facts supporting the decision of the Committee. 6. Denied Application May Not Resubmit - Applicants whose request for Certification has been denied by the MWSBE Division shall not be eligible to submit a new Certification Application for six (6) months after the notice of Certification denial. 7. Certification Period - Unless otherwise provided, Certification is valid for two (2) years. Page 55 of 59

188 Page 89 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy Recertification a. MBEs, WBEs and SBEs are required to submit a Certification Application biannually for a review of and potential continuation of the Certification status. b. The MWSBE Division will send written notification to the Certified MBE, WBE, or SBE, no later than 60 days prior to the Certification expiration date, along with a Certification Application and instructions for completion and submission. c. Certification Applications submitted for recertification consideration shall be received by the MWSBE Division no later than the last effective date of the current Certification. Certification Applications submitted for recertification consideration received after expiration of the current Certification will not be considered, unless the reason for the delay is accepted and approved by the MWBE Division, at which time a one-time extension of their certification not to exceed 30 days may be granted. d. Procedures relevant to the review of the Certification Application, Certification Approvals, Certification Denials, Appeals of Certification Denials, and Certification Periods, provided for in this Section, shall be the same for the Applications for recertification as for the initial Certification Application. 9. Notification of Changes MBEs, WBEs, and SBEs shall notify the MWSBE Division of any changes in the Certified business, during the Certification period, which may impact the Certification (such as a change in Ownership or in the types of services and/or commodities being provided). If such changes occur during the Certification period, the business Certification status may be reevaluated. 10. Certification Reevaluation - The County reserves the right to reevaluate an MWSBE=s Certification at any time during the Certification period, and to rescind Certification if it is found that the business is not certifiable. 11. Certification From Other Agencies - The MWSBE Program may accept MBE, WBE and SBE Certifications from parties to THE MWBE INTER-LOCAL AGREEMENT (such parties currently include the City of Tallahassee and Leon County; however, such parties may change from time to time without notice or revision to this policy), and in accord with the Memorandum of Understanding with the Florida Office of Supplier Diversity. Further, the MWSBE Division reserves the right to review the Certification process and documentation utilized by an outside certifying agency; request clarification or additional information from the certified business; to delay acceptance of certification while it is being reviewed; and to deny certification any time during the Certification period. 12. The MWSBE Division may, based upon the provisions of this policy, determine to approve certifications that only apply to the County procurement process due to the difference in the policies between the County, City of Tallahassee, and the Florida Office of Supplier Diversity. L. Decertification and Right of Appeal 1. The MWSBE Program reserves the right to revoke Certification at any time such action is deemed reasonably necessary. Grounds for revocation of Certification include, but are not limited to, the following: a. Submission of fraudulent information, by or on the behalf of the Applicant for Certification or by or on the behalf of the MBE, WBE or SBE either as part of the Certification process or as part of a procurement or contract process. b. Failure to promptly report any change in Ownership or Control of the business. c. Failure to promptly report any name, address or telephone number changes of the business. d. Failure to respond to requests for information from the MWSBE Division. e. Fraudulent representation or participation on County projects or contracts, or breach of contract with the County. f. Revocation by a party to the MWBE INTERLOCAL AGREEMENT or the Memorandum of Understanding with the Florida Office of Supplier Diversity. 2. Any business having its Certification revoked by the MWSBE Division shall have the right to appeal such Certification revocation, following the same process as Appeals of Certification Denials. Page 56 of 59

189 Page 90 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 M. Small Business Enterprise (SBE) 1. SBE Orientation - The County shall conduct periodic meetings to educate SBEs about the program and about general matters relating to participating in County procurement opportunities. The MWSBE Division may require SBEs to attend periodic follow-up meetings, but no more than once every two (2) years. Failure to attend such meetings shall be grounds for decertification for such up to 12 months, as determined appropriate by the MWSBE Division. 2. SBE Graduation - A SBE shall graduate from the SBE Program and is no longer eligible for Certification as a SBE six (6) years after the date of award of the first procurement opportunity made through the SBE program and will no longer be eligible for certification as a SBE. Graduation of an SBE shall not effect the contribution made by the SBE toward satisfaction of an Aspirational Target if the work was identified in a bid or RFP proposed to be performed by the SBE prior to the date of SBE Graduation and the bid or RFP opening date occurred prior to the SBE Graduation date. 3. Reserving Procurement Opportunities for Exclusive Competition Among SBEs - Procurement opportunities may be reserved for exclusive competition among SBEs when: a. At least three (3) SBEs, with Certification in the relevant area, are available to compete for the procurement opportunity; b. Permissible by law; and, c. Such limited competition has been recommended by the appropriate authority as stipulated: Business Category Construction - Prime Contractor Professional Services Other Services Materials & Supplies 1 Criteria for Reserving Procurement Opportunities for Exclusive Competition Among SBEs Minimum Number of Available SBEs, Certified in Procurement Opportunity Area Estimated Procurement Value (Estimated Contract Cost) $100,000 or less Three (3) $50,000 or less Three (3) $25,000 or less Three (3) $25,000 or less Three (3) Authority that Recommends Reserving Procurement Opportunity for Exclusive Competition Among SBEs 1 Committee Concurrence (MWSBE Director, Purchasing Director and Project Director or Division Director responsible for the project/budgeted expense) 1 Committee Concurrence (MWSBE Director, Purchasing Director and Project Director or Division Director responsible for the project/budgeted expense) 1 Committee Concurrence (MWSBE Director, Purchasing Director and Project Director or Division Director responsible for the project/budgeted expense) 1 Committee Concurrence (MWSBE Director, Purchasing Director, Project Director or Division Director responsible for the project/budgeted expense) Committee Concurrence If consensus cannot be reached, the County Administrator or his/her designee shall make the final decision. Such agreement between the committee members can be gained via any reasonable means of communication, such as a face-to-meeting, over the phone or via . Documentation of such concurrence shall be retained with the procurement records. Page 57 of 59

190 Page 91 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy 96-1 N. Outreach A continuing effort of the County involves identifying SBEs, MBEs, and WBEs capable of providing goods and services and ensuring that staff, through business community interactions, are knowledgeable about and support the MWSBE Program. The MWSBE Division will network with state and local governments, nonprofit organizations, professional and trade organizations and participate in conventions and seminars sponsored and widely attended by small, minority, and women business owners. Staff coordination may include, but is not limited to: 1. Coordination with the user departments on increasing awareness of program policies, directives and program targets and objectives for County staff; 2. Development of an internal education program to promote the awareness of all staff about SBE and MBE, and WBE firms and the commitment to their full participation in its activities. 3. Determine prospective program participants as well as assist them in understanding regulations and the certification process. 4. Develop directories of certified minority, women-owned, and SBEs firms capable of providing services. 5. Assist program participants in understanding and meeting the County s contracting need. 6. Develop promotional campaigns, forums or seminars to inform the small, minority and womenowned business community of the County s needs and its commitment to involve such firms in its contracting activities, along with receiving feedback from the business community. 7. Target appropriate firms for participation in the County s contractor training effort; 8. Identify categories in which firms are underrepresented; 9. Develop special events to meet special needs or concerns including contracting trade fair open houses; 10. Coordinate events with other governmental entities and private and nonprofits organizations. O. Severability Clause Each separate provision of this program is deemed independent of all other provisions herein so that if any provision or provisions are declared invalid, all other provisions hereof shall remain valid and in full force and effect. (Section 16 Adopted September 10, 1991, deleted and replaced by separate policy January 16, 1996, reincorporated July 30, 2002, and replaced in its entirety June 13, 2006) Section 17 PROCUREMENT FOR COMMUNITY DEVELOPMENT BLOCK GRANT HOUSING PROGRAM A. It is the policy of the Board of County Commissioners to obtain commodities and services efficiently and effectively in free and open competition for the Community Development Block Grant Housing Program through the use of sound procurement practices. All County staff and other persons (subgrantees or contractors) with designated responsibility for the administration of CDBG award contracts are responsible for ensuring compliance with all applicable federal and state laws and regulations. These include but are not limited to OMB Circular A-102, Attachment O; 24 CFR Part 85 Section 85.36; s , Florida Statutes; s , Florida Statutes; Chapter 9B-43, Florida Administrative Code and the Purchasing Policy of the Leon County Board of County Commissioners B. The County Purchasing Policy shall govern the procurement of commodities and services for the Community Development Block Grant Housing Program except as provided in this section. 1. All procurement of commodities or services in excess of $500 shall require a written agreement embodying all provisions and conditions thereof. Page 58 of 59

191 Page 92 of 277 Purchasing and Minority, Women and Small Business Enterprise Policy Policy All procurement of commodities or services in excess of $500 and less than $2,500 may be entered only after informal competition based on offers or quotes from not less than three (3) vendors. 3. Publication of public notice for invitations to bid or requests for proposals and notification of the solicitation through distribution to potential bidders or offerors shall be required for all procurement in excess of $2,500. The time frames in section 5.08 of this policy shall apply for the required public notice. 4. Except as may otherwise be provided by law, procurement awards shall be made only on the basis of requirements and evaluation factors related to the price or quality of the commodities or services or to the ability of the prospective supplier or contractor to perform under the agreement. In evaluating the ability of a prospective contractor to perform, the County shall at a minimum consider the prospective contractor's record of past performance under CDBG grants. 5. Nothing herein shall limit the County to except from the requirement of competition commodities and services available only from a single source (Section 5.10, Sole Source Purchases) or procurement from another unit of government (Section 5.12, Cooperative Purchasing). Revised 2/12/2013 Page 59 of 59

192 Page 93 of 277 Appendix C Heavy Equipment & Personnel Staging Areas

193 Attachment #2 Page 94 of 277 LEON COUNTY Hurricane Equipment And Personnel Staging And Talquin Electric Operation Areas Map 2280 Miccosukee Road LEON COUNTY PUBLIC WORKS Ph: (850) Debris Removal Storage Site WCTV _ ^ lle R svi ma St # Canopy Oaks Elementary W Staging Area 5 Staging Area 6 Staging Area 7 Staging Area 8 Fire Station No. 14 _ ^ nn es se es t # _ # % 2 Ft Braden T4 W Tharpe St Transfer Station 4858 Gum Rd y Blountstown Hw º ¹ ta te W Pensacola St Orange A _ ^ E Tenn essee St ll R d Oak Ridge Elementary 10 # Pkw º ¹ y _ ^ US 27 S - Landfill º ¹ Capital Cir Sw! ( Personnel: Equipment: 1 - Team Leader 1 - Crew Chief 1 - Heavy Equipment Operator 2 - Maintenance Technicians 1 - Truck Driver 1 - P/U 1 - Crew Truck 1 - Dump Truck 1 - Excavator, Backhoe, or Endloader 1 - Bow Blade Chain Saw 1 - Straight Blade Chain Saw Various Handtools - Wind Meter - Chain - Bushaxe - Pitch Fork - Flashlight Total County Road Miles: mi. T.S.Force Relocation Site: Canopy Oaks Elementary School Personnel: Equipment: 1 - Team Leader 1 - Crew Chief 1 - Heavy Equipment Operator 2 - Maintenance Technicians 1 - Truck Driver 1 - P/U 1 - Crew Truck 1 - Dump Truck 1 - Excavator, Backhoe, or Endloader 1 - Bow Blade Chain Saw 1 - Straight Blade Chain Saw Various Handtools - Wind Meter - Chain - Bushaxe - Pitch Fork - Flashlight Total County Road Miles: mi TRANSFER STATION 4858 Gum Rd T.S. Force Relocation Site: Remains at Transfer Station Personnel: 1 - Team Leader 1 - Crew Chief 1 - Heavy Equipment Operator 2 - Maintenance Technicians 1 - Truck Driver Equipment: 1 - P/U 1 - Crew Truck 1 - Dump Truck 1 - Excavator, Backhoe, or Endloader 1 - Bow Blade Chain Saw 1 - Straight Blade Chain Saw Various Handtools - Wind Meter - Chain - Bushaxe - Pitch Fork - Flashlight Total County Road Miles: mi. Rd ille Wakulla Springs Rd Cr aw f tof f or dv T2 Tram Rd % 2 y T.S. Force Relocation Site: Ft. Braden School FIRE STATION No. 10 Tower Road Cu. Hw 0 FIRE STATION No. 14 Ft Braden m Chaires Elementary # ille T3 ha odv Wo Blo x Interstate 10 Dr Apa lach ee Orange Ave E i gh r in han Ma W Gaines St ve W Sp # Operations Center # Rd Capital Cir Ne Staging Area 4 Te cco MiI nt er s S Monroe St Staging Area 3 Capital Cir Nw Staging Area 2 ee k su Capital Cir Se Staging Area 1 Roberts Elementary N Meridian Rd e ro! ( Staging Areas # Tho on Talquin Operation Service Area Boundaries _ ^ M %# 2 N Talquin Operation Service Area Designation T5 d d Leon County Public Works Roads T Fire Station No. 11 #! ( Fire Station No. 10 r # º ¹ Major Roads emorial D _ ^ Veterans M Talquin Area Offices R F G Fire Station No. 15 ille 2 % Operation Facilities Moccasin Gap Rd er v (! Talquin Substations en t _ ^ Schools / T.S.(Tropical Storm) Force Relocation Site C # WCTV DATE: 05/09/2012 FILE: \\edbwin\udata\mcclenahan\hsep\hsep2011.mxd Legend º ¹ F G Fire Station No. 13 _ ^ Disclaimer This product has been compiled from the most accurate source data from Leon County. However, this product is for reference purposes only and is not to be construed as a legal document or survey instrument. Any reliance on the information contained herein is at the user's own risk. Leon County assumes no responsibility for any use of the information contained herein or any loss resulting therefrom. 5 Miles FIRE STATION No. 13 Woodville T.S.Force Relocation Site: Oak Ridge Elementary School Personnel: Equipment: 1 - Team Leader 1 - Crew Chief 1 - Heavy Equipment Operator 2 - Maintenance Technicians 1 - Truck Driver 1 - P/U 1 - Crew Truck 1 - Dump Truck 1 - Excavator, Backhoe, or Endloader 1 - Bow Blade Chain Saw 1 - Straight Blade Chain Saw Various Handtools - Wind Meter - Chain - Bushaxe - Pitch Fork - Flashlight Total County Road Miles: mi. OPERATIONS CENTER 2280 Miccosukee Rd T.S. Force Relocation Site: Remains at Operations Personnel: 1 - Team Leader 1 - Crew Chief 1 - Heavy Equipment Operator 2 - Maintenance Technicians 1 - Truck Driver Equipment: 1 - P/U 1 - Crew Truck 1 - Dump Truck 1 - Excavator, Backhoe, or Endloader 1 - Bow Blade Chain Saw 1 - Straight Blade Chain Saw Various Handtools - Wind Meter - Chain - Bushaxe - Pitch Fork - Flashlight Total County Road Miles: mi. FIRE STATION No. 15 Bannerman Rd Fire Station T.S. Force Relocation Site :Remains at No. 15 Personnel: 1 - Team Leader 1 - Crew Chief 1 - Heavy Equipment Operator 2 - Maintenance Technicians 1 - Truck Driver Equipment: 1 - P/U 1 - Crew Truck 1 - Dump Truck 1 - Excavator, Backhoe, or Endloader 1 - Bow Blade Chain Saw 1 - Straight Blade Chain Saw Various Handtools - Wind Meter - Chain - Bushaxe - Pitch Fork - Flashlight Total County Road Miles: mi. FIRE STATION No. 11 Centerville Road T.S. Force Relocation Site : Roberts Elementary School Personnel: Equipment: 1 - Team Leader 1 - Crew Chief 1 - Heavy Equipment Operator 2 - Maintenance Technicians 1 - Truck Driver 1 - P/U 1 - Crew Truck 1 - Dump Truck 1 - Excavator, Backhoe, or Endloader 1 - Bow Blade Chain Saw 1 - Straight Blade Chain Saw Various Handtools - Wind Meter - Chain - Bushaxe - Pitch Fork - Flashlight Total County Road Miles: mi. US 27 SOUTH Landfill T.S. Force Relocation Site : Chaires Elementary School Personnel: Equipment: 1 - Team Leader 1 - Crew Chief 1 - Heavy Equipment Operator 2 - Maintenance Technicians 1 - Truck Driver 1 - P/U 1 - Crew Truck 1 - Dump Truck 1 - Excavator, Backhoe, or Endloader 1 - Bow Blade Chain Saw 1 - Straight Blade Chain Saw Various Handtools - Wind Meter - Chain - Bushaxe - Pitch Fork - Flashlight Total County Road Miles: mi.

194 Page 95 of 277 Appendix D Pre-Qualified Debris Contractors

195 Page 96 of 277 List of Pre-Qualified Contractors DEBRIS REMOVAL AND DISPOSAL SERVICES Crowder-Gulf (Primary Vendor) 5435 Business Parkway Theodore, AL Board Authorization: April 10, 2012 Agenda Item #5 County Contract No Length of Agreement: April 11, 2012 April 10, 2017 DRC Emergency Services, LLC 740 Museum Drive Mobile, AL Board Authorization: April 10, 2012 Agenda Item #5 County Contract No Length of Agreement: April 11, 2012 April 10, 2017 Byrd Brothers Emergency Services, LLC 5164 Lamm Road Wilson, NC Board Authorization: April 10, 2012 Agenda Item #5 County Contract No Length of Agreement: April 11, 2012 April 10, 2017 DISASTER DEBRIS REMOVAL MONITORING SERVICES O Brien s Response Management, Inc 1882 Capital Circle NE Suite 205 Tallahassee, FL Bid Awarded: August 23, 2011, Agenda Item #15 County Contract No Length of Agreement: February 1, 2012 January 31, 2017

196 Page 97 of 277 Appendix E Florida Department of Environmental Protection Pre- Authorization of Hurricane Debris Staging Areas

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238 Page 139 of 277 Appendix F Leon County Waste Disposal Guidelines

239 Page 140 of 277 Frequently Asked Questions Q: Who will collect my storm debris? LEON COUNTY SOLID WASTE MANAGEMENT FACILITY A: The county will use a private contractor to collect storm debris placed at the curb. Other arrangements may be required for collecting storm debris from gated communities and private roads. Q: Why do I need to separate my yard trash and bulky waste? FOR MORE INFORMATION Leon County Solid Waste Management: Waste Management, Inc.: Waste Disposal Guidelines for Hurricane Season Separate yard trash and household garbage. A: State laws prohibit disposal of yard trash in a lined landfill. Separate to ensure waste is collected and complies with state laws regarding solid waste disposal. City of Tallahassee Utilities: Leon County Division of Emergency Management: American Red Cross (local): Help keep your neighborhood clean by following these guidelines for handling waste before, during and after hurricane season. By following the information in this guide, curbside waste will be handled more efficiently. Q: What do I do with Household Hazardous Waste (HHW)? A: Once roads are clear, take household hazardous waste to the Apalachee Collection Center at 7550 Apalachee Parkways or one of the Rural Waste Service Centers. Find all locations at SolidWaste/ruralsites.asp. Q: How can I help? A: Please be patient. Schedules may be disrupted. Public announcements will be issued regarding schedule changes. LEON COUNTY SOLID WASTE MANAGEMENT FACILITY Public Works Department Solid Waste Division 7550 Apalachee Parkway Tallahassee, FL (850) Sponsored by: Leon County Board of County Commissioners Leon County Division of Emergency Management Capital Area Chapter of the American Red Cross. (850)

240 MINIMIZE RISKS POSED BY A STORM BEFORE Hurricane Season Some preventive maintenance can be done that will go a long way toward protecting property and reducing waste generated during hurricane season if Leon County is hit by a storm. Cut back all trees and branches that contact buildings. Thin out foliage and trees so wind can flow through the branches, decreasing the chances of uprooting during heavy winds. Protect your property by trimming tree branches BEFORE a storm. Place tree trimmings at the curb following the normal rules for yard trash on your scheduled pickup day. (Brush is limited to MAX 6 ft. in length and 4 inches in diameter. Bag up leaves and grass or leave on lawn for grasscycling.) Clear your yard of any items that could become airborne and cause further damage, such as old lumber, lawn furniture, toys, etc. Place them at the curb on your regular bulky waste day for pick-up. DURING an active storm They have named a storm! Once the weather service has named a storm or identified the possibility that Leon County could be in the path, the following steps should be taken to minimize waste production. Do not place materials at the curb or bring waste to the landfill during a watch or warning period. Services may be suspended and facilities may close early to prepare for the storm. Do not cut down any trees or start major work. Do not begin construction projects that could produce debris. Once a watch or warning has been issued, do not trim vegetation of any kind. Mass cutting places a tremendous burden on the normal collection process and there is not enough equipment or manpower to collect the additional material before the storm makes landfall. Property and people can be put in harms way. Attachment #2 Page 141 of 277 AFTER the storm is over The storm is over. When are you going to pick up my refuse? Please be patient after the storm has passed. We will work hard to ensure everything is picked up in a timely manner. Depending on the severity of the storm, this may take more time than normal. Follow these simple steps after a storm: Separate your waste into the following categories: household garbage, recycling, appliances, bulky waste and yard trash. Leave 4-6 of space between piles. Secure all household garbage in your trash container. Any excess can be brought to a Rural Waste Center at no charge. Find locations at: ruralsites Do not place any debris near a fence, mailbox, driveway, power line equipment, poles, transformers, downed electrical wiring, water meters or storm drains. Leon County s FIRST priority is to open streets and remove debris from Rights-of-Way. Garbage Recycling Appliances Bulky Waste Yard Waste 4 to 6 feet 4 to 6 feet 4 to 6 feet 4 to 6 feet

241 Page 142 of 277 Appendix G Debris Removal and Disposal Services Contract

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320 Page 221 of 277 Appendix H Debris Monitoring Services Contract

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359 Page 260 of 277 Appendix I Legal Condemnation Documents

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365 Page 266 of 277 Appendix K Sample News Releases

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377 Attachment #3 Page 1 of 2

378 Attachment #3 Page 2 of 2

379 Attachment #4 Page 1 of 7 City of Tallahassee Community Beautification & Waste Management Abridged Debris Removal Plan This Abridged Debris Management Plan identifies the actions required by the City of Tallahassee, Florida, in response to a natural or man-made debris-generating event. It is designed to identify State and Federal agencies responsible for debris operations and merge internal resources to be utilized for debris removal operations when the contracted Debris Removal and Monitoring Contracts will not be activated. The General Manager of Community Beautification & Waste Management Services (CBWMS) recognizes the need for close coordination between the CBWMS, other City departments, State and Federal agencies identified in this plan. Therefore, debris operations will be directed and coordinated from a centralized Incident Command Post located at 2727 Municipal Way, Tallahassee, Florida 32304, or an alternate site as identified in the department s Continuity of Operations Plan, managed by an Incident Command Structure. The General Manager of CBWMS has designated the Operations Manager of Community Beautification as the City s Debris Removal Manager. The City s Debris Removal Manager will direct and coordinate Debris Clearing Operations (Phase I) and Debris Removal and Disposal Operations (Phase II) utilizing personnel and equipment from CBWMS, other departments and private contractors. The City and Leon County are jointly cooperating to ensure that a coordinated effort is expended by both agencies to affect a quick and complete debris management program including the pickup, hauling, reduction, separating, and disposal of generated debris within the City. The City s Debris Removal Manager will be responsible for coordinating all disaster debris operations with respect to the emergency clearance, and permanent removal and disposal of all debris deposited along or immediately adjacent to rights-of-way in consultation with other City departments. This approach will ensure a seamless and efficient cleanup operation. This Plan has been developed to provide the framework for City government and other entities to clear and remove debris generated during a public emergency within the City limits. This Plan unifies the efforts of public and private organizations for a comprehensive and effective approach to: Provide organizational structure, guidance, and standardized guidelines for the clearance, removal, and disposal of debris caused by a non-major debris-generating event. Coordination among the various City Departments that will have major roles in the recovery of the City when the Debris Removal and Monitoring contracts are not activated.

380 Attachment #4 Page 2 of 7 Establish the most efficient and cost-effective methods to resolve disaster debris removal and disposal issues. Implement and coordinate private sector debris removal and disposal contracts to maximize cleanup efficiencies. Oversee the monitoring and administration of the debris management plan. Expedite debris removal and disposal efforts that provide visible signs of recovery designed to mitigate the threat to the health, safety, and welfare of City residents and will result in the maximum amount of reimbursement from the State of Florida and the Federal Government should a Presidential Disaster be declared. Coordinate partnering relationships through communications and pre-planning with local, State, and Federal agencies that have debris management responsibilities. For planning purposes and for pre-positioning response assets, this plan assumes that the magnitude of the event does not exceed the capacities of The City of Tallahassee. Responsibilities The following is a list of responsibilities for the various agencies involved: 1. The Florida Department of Transportation (FDOT) has Cut & Toss (road clearance) responsibilities on all State Roads within the city limits. 2. The Florida Department of Transportation has debris removal and management responsibilities on all State Roads within the city limits. 3. The Florida Department of Transportation and the City of Tallahassee have entered into an agreement having FDOT be responsible for Cut & Toss activities on all Federal Highway Administration (FHWA) designated roads within the city limits. 4. The Florida Department of Transportation and the City of Tallahassee have entered into an agreement having FDOT be responsible for all debris removal and management activities on Federal Highway Administration (FHWA) designated roads within the city limits. 5. The City of Tallahassee is responsible for all residential streets within the city limits that are not part of the State highway system or Federal Highway Administration designated road system. 6. The City can participate in Cut & Toss activities on State and/or Federal Highway Administration designated roads in order to access residential roads, critical facilities, etc.

381 Attachment #4 Page 3 of 7 DEBRIS MANAGEMENT STAFF RESPONSIBILITIES Debris Response and Recovery Organizational Responsibilities One of the primary functions of this Plan is to clearly delineate a basic organization and assign specific responsibilities. During the conduct of debris operations, many issues will arise that are not specifically mentioned in this Plan. However, responsibilities are sufficiently defined so that unexpected issues can be assigned and resolved efficiently. This section of the Plan provides a listing of primary debris-related responsibilities, and debrisspecific assignments for tasks and issues that normally arise during debris operations. Debris Operation s Managers: The Operation Managers of Community Beautification and Waste Management Services will assume the role of the City s Debris Removal Manager or their designee as necessary at the time of the event. In the role as the Debris Removal Managers, responsibilities will include, but are not limited to, the following with respect to any and all debris management issues: Overall control of the Debris Management Plan. Provide a Liaison Officer to the City s Incident Command Structure (ICS) - Operation Section to coordinate debris removal requests and actions as required. Provide public information so that the Incident Commander may coordinate all media reports on debris operations. Provide personnel and equipment to assist in first push operations clearing major evacuation routes and providing access to critical facilities. Coordinate the various City departments, including Waste Management, Parks & Recreation, and Utilities in debris management efforts. Determine if a Notice to Proceed for contract work or provide Debris Management Contractors will be necessary. Receive regular updates from the department Debris Coordinators regarding cleanup progress and any problems encountered or expected. Provide yearly training and refresher training for all personnel assigned to debris management monitoring responsibilities. Provide personnel and equipment to the Preliminary Damage Inspection Team. In the role of Debris Removal Managers, the responsibilities of the department s Operations Manager include, but are not limited to, the following with respect to any, and all debris management activities:

382 Attachment #4 Page 4 of 7 Communicate timely information to the City s Area Command Operations Chief (General Manager, CBWMS and others as necessary) and staff regarding the status of the debris clearing, removal, and disposal operations. Assure that the City is represented at all meetings with other government and private agencies involved with the debris cleanup operation. Coordinate with appropriate City, State, and Federal agencies, including the Federal Emergency Management Agency (FEMA), and others as appropriate. One of the most important tasks of the Debris Removal Managers will be to insure the proper identification of load tickets be made so that the City of Tallahassee receives the maximum FEMA and State reimbursements. Implement a notification system to rapidly notify appropriate staff as to where and when to report for duty. This system must be kept up-to-date to ensure key staff can readily be reached. The notification system should be maintained in such a manner that notification can be made at any time. Debris Coordination: The Debris Removal Managers will be supported by a joint debris staff made up of personnel from the various City department s. The joint debris staff will constitute the daily operating element of the Incident Command Post/Community Beautification & Waste Management. The Debris Managers are responsible for daily operational control of the Incident Command Post/CB&WM staff. The Debris Coordinators will receive current information on the severity of the disaster from the Community Beautification and Waste Management representative located at the Area Command Center. All requests for debris removal or disposal from the Area Command Center staff will go through the Waste Management representative at the City s Area Command Center to the Debris Manager and/or Debris Coordinators. Requests for debris removal from public facilities and roadways will be reviewed and approved by the Debris Manager before being directed to the appropriate Incident Command Debris Coordinators (Community Beautification & Waste Management Services Coordinator, Parks and Recreation Coordinator and the Utilities Coordinator) to implement the request. The Debris Coordinators will appraise the extent of damage and resulting debris and issue directives to the appropriate City Department. The Debris Manager will ensure that all Contractor debris removal and disposal operations are properly monitored utilizing personnel assigned. The Waste Management Services Debris Coordinator will keep the Debris Removal Manager and Community Beautification & Waste Management Services staff informed of all ongoing debris management operations through, at a minimum, daily meetings and/or reports.

383 Attachment #4 Page 5 of 7 The Debris Coordinator will maintain a daily journal and file on all debris related documents and issues. The Debris Coordinators will: Maintain a listing of all available department equipment identified for possible debris clearing and disposal missions. Coordinate all debris assignments approved by the Debris Manager. Ensure that required logistical support is available, including cell phone, 800 MHz radios, transportation, etc. Ensure that the Debris Manager is kept informed of cleanup progress and any problems encountered or expected. Coordinate the removal of all debris within the City Limits. Coordinate the proper filing for reimbursement of debris costs including FHWA roads, private roads, etc. Provide information to the Incident Action Plan and the Situation Report. Collection Equipment/Personnel City s Storm Debris Clean-Up Crews Seven (7) Rear Steer Trucks with seven (7) operators Two (2) 33 cubic yard Boom Trucks with operators Eighteen (18) 33 cubic yard Trash Collection Trucks with operators Eight (3) Roll-Off Trucks with 30 or 40 cubic yard boxes and two (2) operators Four (4) Hooks Trucks One boom truck 53 cubic yard Two 18-yard debris trucks Two Grapple End loaders One 28-yard debris truck Additional department s equipment and rental equipment may be added as needed All collection operations will be at the direction of General Manager CBWM. Methods of Collection FDEP pre-approved storm debris staging areas will be established where needed (North, South, East, and West grids) or as designated by Leon County SWS. Trucks will make one pass through every grid section, per collection cycle.

384 Attachment #4 Page 6 of 7 Collection efforts will continue until it is determined that all storm-related debris has been removed. Regular yard and bulk-waste collection operations will continue post-storm. Loose storm debris will be collected separately from bagged yard-waste. The city s storm debris crews will pick up post-storm debris placed beside the street/curb on the roadways. Designated Landfill All debris collected by CBWM will be transferred to the designated Leon County landfill or recycling facility. During the collection process, proper FEMA records will be kept for processing. Debris Removal Plan (Records) Initiate Record Keeping Process Keep time sheets Maintain vehicle log used for the clean ups Document debris collection truck inspections and load tickets All procurement actions, invoices, and reimbursements mark documents as storm related. Photo and video logs of debris collection efforts All correspondence and meeting minutes Records kept in central location. Recovery Recovery will be implemented within two (2) to five (5) days following a minor debrisgenerating event, and will encompass the processes of debris removal and disposal. This delay is normal and allows time for affected citizens to return to their homes and begin the cleanup process. Debris must be brought to the rights-of-way or curb to be eligible for removal at public expense. The recovery process will be as follows: Debris removal from cut & toss activities: Utilize WebEOC request for down trees and blocked streets to determine where trees were cut and tossed to the side of the roadway. Merge Community Beautification and Underground Utilities Public Infrastructure (UUPI) staff to pick up debris from clearing roadways. Curbside debris removal: Scout the main arteries and neighborhoods within the City limits to access the damage and determine if the Debris Removal and Monitoring contracts should be activated. Send a letter to FEMA requesting permission to pick up debris on private roads and in gated communities. Speak with FDOT to determine timeframe for picking up debris on state roads within the City limits. Send a MOU to FDOT accordingly that will grant permission for the City to pick up debris from residential customers on state roads.

385 Attachment #4 Page 7 of 7 Combine internal resources and personnel from Community Beautification and UUPI. Place them under the leadership of the Waste Management Services Operations Manager. Pick up debris according to established bulk/yard waste schedules. Send information to Communications to communicate to the public by way of social media, blast, radio, newspaper the schedule of debris removal and encourage them to bring debris curbside for pickup. Place all operational staff on 12-hour shifts, and suspend all approved leave and advise all eligible clean up staff to prepare their families that they will need to be ready for work throughout the weekend. Restoration Plan First Pass on one half of the City (Red Week Customers) began on Wednesday, September 12, 2017 through Sunday, September 17, 2017 Completing the remaining half of the City (Blue Week) Monday, September 18, 2017 through Friday September 22 nd. Second pass starts Monday, September 25, 2017 through the Friday 29 th on the Red Week Customers. Finishing up the Blue Week customers on Monday, October 2, 2017 through October 6 th for the end of the second pass. Full restoration of the City will be completed by October 6, 2017.

386 Attachement #5 Page 1 of 2

387 Attachement #5 Page 2 of 2 Jon Hoyle, President September 12, 2017

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