City of Atlantic Beach MUNICIPAL COMPREHENSIVE EMERGENCY MANAGEMENT PLAN MCEMP

Transcription

1 City of Atlantic Beach MUNICIPAL COMPREHENSIVE EMERGENCY MANAGEMENT PLAN MCEMP Updated Prepared by the Atlantic Beach Police Department

2 TABLE OF CONTENTS Page LETTER FROM THE CITY MANAGER 4 MCEMP DISTRIBUTION LIST 4 MCEMP BASIC PLAN 5 I. INTRODUCTION 5 A. Purpose 7 B. Scope 7 C. Methodology 8 II. SITUATION 8 A. Hazard Analysis 9-11 B. Geographic/Demographic/Economic Information 11 C. Emergency Management Support facilities (O&M Facility/Duval County Duval County EOC) III. CONCEPT OF OPERATIONS 14 A. Organization B. Responsibilities 18 C. Preparedness Activities/Assistance 19 D. Activation and Authorization 20 E. Incident Management System (NIMS) F. Response G. Communications 27 H. Mutual Aid Agreements 27 I. Memorandums of Understanding/Contracts 28 IV. RECOVERY ACTIVITIES 29 A. Introduction 29 B. Responsibilities 29 1

3 C. Short-Term Recovery Functions 30 D. Damage Assessment Activities E. Debris Management 34 F. Disaster Assistance G. After Action Report 35 V. MITIGATION ACTIVITIES 35 A. Introduction 35 B. Responsibilities 35 C. Mitigation Programs/Activities 36 VI. FINANCIAL MANAGEMENT 37 A. Introduction 37 B. Responsibilities 37 VII. REFERENCES AND AUTHORITIES 38 A. State of Florida Requirements B. Policies 38 C. Authorities 38 ANNEX I. COMMUNICATIONS 39 A. Introduction 39 B. Communications System C. General Operations D. Other Communication Resources 45 ANNEX II. MASS CARE 47 A. Introduction 47 B. Responsibilities 47 C. General Operations (Evacuation, Shelters, Special Needs, & PODs) ANNEX III. DEBRIS MANAGEMENT 50 A. Introduction 50 2

4 B. Responsibilities C. General Debris Operating Strategy D. Debris Operations Check List E. City Debris Zones/ Map 64 ANNEX IV. RESOURCE MANAGEMENT 65 A. Introduction 65 B. Responsibilities 66 C. Resources, Demobilization, Reimbursement, and Documentation ANNEX V. POST-DISASTER REDEVELOPMENT PLAN A. Introduction 69 B. Overview of Expected Problems C. Local Plans Integration D. Atlantic Beach s Vulnerability/Hazard Analysis E. Responsibilities 82 F. Post Disaster Recovery and Re-Development Goals and Issues G. Long-term Redevelopment Components and Milestones 89 APPENDIX I. HURRICANES & SEVERE WEATHER A. Introduction 90 B. General Information C. Responsibilities D. Preparedness Activities E. Response Activities F. Recovery Activities G. Mitigation Activities 111 H. Search and Rescue/Assessment/Debris Map 111 I. Duval County Evacuation Map based on Cat Storm 112 APPENDIX II. HAZARDOUS MATERIALS A. Introduction 113 B. General Information 113 3

5 C. Responsibilities 114 D. Preparedness Activities E. Response Activities F. Recovery Activities G. Documentation/Reimbursement 120 APPENDIX III. TERRORISM A. Introduction 121 B. General Information/Threat levels C. Responsibilities D. Preparedness Activities 127 E. Response Activities F. Recovery Activities 130 APPENDIX IV. DISEASE/PANDEMIC INFLUENZA A. Introduction 131 B. General Information 131 C. Responsibilities 131 D. Preparedness 132 APPENDIX V. CITY CO-OP POD (Points of Dispensing) A. Introduction 133 B. General Information 133 C. Responsibilities 134 D. Preparedness 135 APPENDIX VI. FORMS Incident Action Plan 138 Rapid Damage Assessment 139 Search/Rescue 140 Daily Activity Field Worksheet 141 Initial Damage Assessment Housing Building Field Sheet Initial Damage Assessment-Public Assistance

6 Cost Tracking Worksheets Incident Resource Tracking Sheet 153 Debris Management Sample ICS Structure for Major Hurricane 156 APPENDIX VII. CONTINUNITY OF OPERATIONS PLAN/COG LETTER FROM THE CITY MANAGER Our citizens rely on government to respond with needed assistance whenever a local disaster strikes. The role of each city department and each employee is to assist the city in minimizing the impact of a disaster. This plan outlines the framework, management, guidelines, and resources to ensure the preparedness, response, recovery, and mitigation is ready in the event we face a significant emergency in Atlantic Beach. It is my hope that we will never have to use this emergency management plan, but as history has proven, disasters can occur at any time. I charge each city employee and department to be prepared, to periodically review this plan, and to take this responsibility seriously. I have every confidence that, if needed, each one of you will respond as true professional and as a city we will do the best we can for our citizens. Nelson Van Liere, City Manager MCEMP DISTRIBUTION LIST (35) City Manager Mayor City Clerk Police Chief Public Works Director & Public Utilities Director Purchasing Planning and Development Director 5

7 Building Official Parks and Recreation Lifeguard Captain Finance Director IT Director Human Resources Director Duval County Emergency Management Director Note: The (MCEMP) can be found on the City s Intrenet site. BASIC PLAN MUNICIPAL COMPREHENSIVE EMERGENCY MANAGEMENT PLAN For The City of Atlantic Beach, Florida I. INTRODUCTION The City of Atlantic Beach is vulnerable to a variety of hazards that may threaten our population, businesses, and environment. This (MCEMP) establishes the framework, guidelines, management structure and identifies resources available to ensure the City of Atlantic Beach is prepared to deal with these hazards and emergencies. The emergency management structure in Florida is guided by Florida Statute Chapter 252 which utilizes an organizational structure with four levels of intervention (local, county, state, and federal). The lowest level of government (in this case the city) shall have the initial responsibility for disaster response and relief, attempting to mitigate the hazard. Requests for assistance from the next level of government will be made when the magnitude of the disaster exceeds local resources. An emergency plan examines potential emergencies and disasters based on the risks posed by likely hazards, develops and implements programs aimed toward reducing the impact of these events on a community, prepares for risks that cannot be 6

8 eliminated, prescribes the actions required to deal with the consequences, and incorporates the National Incident Management System (NIMS) in managing and mitigating the emergency. The MCEMP for Atlantic Beach is an all hazard plan that is intended to conform with Duval County s Comprehensive Emergency Management Plan, the State of Florida s Emergency Response Plans, and the National Response Framework. This plan emphasizes action within the four phases of the Emergency Management cycle: Preparedness, Response, Recovery, and Mitigation. The MCEMP is divided into the Basic Plan with five annexes including Communications, Mass Care, Debris Management, Resource Management, and Post-Disaster Redevelopment. There are six appendices with additional guidelines for Hurricanes and Severe Weather, Hazardous Materials, Terrorism, Pandemic Influenza and City CO-OP PODS. There is also a Forms section and a section addressing a Continuity of Operations Plan for relocating and re-establishing city government. The following describes each section. The Basic Plan outlines the general purpose, scope and methodology of the MCEMP, provides a hazard analysis of potential risks as well as provides geographic, demographic, and economic information related to the community. The plan also outlines the concept of operations including preparedness activities, responsibilities, organization and incident management structures, response, communications, resource management, recovery functions and both pre/post mitigation activities. In addition, the plan covers financial responsibilities, references and authorities. Annex I. Communications- This annex outlines the communication systems that are used by the City of Atlantic Beach on a daily basis and during a disaster. This communication system includes the 800 MHz radio system used for normal radio communications, back-up systems, alternate methods for communications, and methods to alert the public. Included are also procedures for radio use, potential problem areas, and other agencies that may be used for communication support during a disaster. Annex II. Mass Care - This annex addresses a number of issues and responsibilities that may need to be addressed and implemented prior to, during, and post disaster such as; communications, evacuation, sheltering, special needs, food, water, first aid and welfare information, and other mass care assistance. Annex III. Debris Management- This annex outlines the various aspects of debris management and focuses on how to adequately manage debris removal following a disaster as well as basic requirements for reimbursement. 7

9 Annex IV. Resource Management- This annex provides guidelines for coordination and overseeing the application of resources during an incident. Annex V. Post-Disaster Recovery and Redevelopment Plan- This annex provides a guide for the transition from response to long term recovery. It includes effective disaster assistance to impacted businesses and individuals; housing concerns; reconstruction activities; land use; and mitigation initiatives. Appendix I. Hurricane and Severe Weather- This appendix outlines general hurricane and associated severe weather, their potential for damage, and guidelines for city government to effectively manage an incident. Included are general operating guidelines from a preparedness phase through the recovery phase. Appendix II. Hazardous Materials- This appendix identifies types of hazardous materials and outlines basic guidelines and available resources used in managing an incident. Appendix III. Terrorism- This appendix defines terrorism, identifies the different types and methods of terrorism used, defines the alert levels, and identifies methods for handling these types of incidents. In many cases these types of incidents will be managed as a hazardous material incident, however many local and federal agencies will become involved. Appendix IV. Pandemic Influenza- This appendix identifies a pandemic epidemic and outlines the general guidelines and resources needed in mitigation. Appendix V. Forms- This section contains various forms that may be used during a disaster including an incident action plan, rapid damage assessment, search/rescue, habitability and home/business losses, public assistance, cost summary worksheets, debris management, and incident resource tracking sheet. Appendix VI. Continuity of Operations for City Government (COOP/COG)- This section address the issues and responsibilities required if city hall and the services provided by our local government need to be relocated to an alternate site. The MCEMP is both a planning and an operations-based document that provides guidance for all aspects of emergency management including preparedness, mitigation functions, evacuation procedures, emergency response activities, public 8

10 information, resource management, mutual aid, damage assessment, and recovery operations. The MCEMP is an all hazard plan. A. Purpose The MCEMP for Atlantic Beach establishes a framework for an effective system of comprehensive emergency operations and management for the purpose of: Reducing the loss of life, injury, property damage and loss from natural or man-made emergencies. Preparing for prompt and efficient response activities to protect lives and property impacted by emergencies. Responding to emergencies with the effective use of all relevant plans and appropriate resources. Providing for the rapid and orderly implementation of recovery operations. Assisting in awareness, education, prevention, and mitigation of emergencies. B. Scope The MCEMP establishes the basic policies and strategies for a comprehensive all-hazard program for the City of Atlantic Beach that works in conjunction with local resources, the Duval County CEMP, and the State of Florida Comprehensive Emergency Management Plan. 1. The following are the priorities of the MCEMP. Protection of citizens. Preservation and protection of property. Providing for the needs of survivors. Preserving or restoring government. Restoring essential services. Providing public information. 2. The plan is applicable to minor, major, or catastrophic disasters. It is flexible and expandable depending on the emergency. Any part or section of the plan may be used separately if required by the situation. 3. The plan establishes the procedures to coordinate with local, regional, state, and federal emergency management agencies, organizations, and programs. 4. The plan utilizes the National Incident Management System (NIMS) that provides for a standardized incident management system for managing emergencies that is flexible enough to apply to all phases of an incident regardless of the size, location, or complexity. 5. The plan brings local, county, state, and federal resources together in a unified approach to disaster management. 9

11 6. The plan establishes an effective format for emergency management by identifying the hazards within the city, determining the vulnerability to various types of hazards, and addressing the hazards so appropriate preparedness, mitigation, and planning steps can be made. 7. This plan addresses the four phases of emergency management. Preparedness- Preparedness is any action taken in advance of an emergency to develop, support, and enhance the operational capabilities and to facilitate an effective and efficient response and recovery to an emergency situation. Community hazards and needs should be identified and addressed prior to an emergency. Preparedness includes plans, preparations, and training of personnel and citizens prior to an event in an effort to save lives and property. Response- Response is any action taken immediately before, during, or after an emergency to reduce casualties, save lives, minimize damage to property, and enhance the effectiveness and speed of recovery. The response phase includes conducting emergency operations by takings action to reduce the hazard to acceptable levels (or eliminate it entirely), and to coordinate resources in managing the emergency. Recovery- Short-term recovery is any action taken to return vital functions and critical infrastructure to a minimum operating standard. Long-term recovery includes restoring life to a normal or improved state. Activities are initiated to assess damages, needs, and available resources and coordinate relief efforts. Included is the rebuilding of communities and the restoration of services so that individuals, businesses, and government can function on their own, return to normal life, and mitigation against future hazards. Mitigation- Mitigation is any activity or action taken to eliminate or reduce the degree of long-term risk to human life and property from natural, technological, and human-caused hazards or disasters. This phase involves identifying preventative and/or corrective measures to reduce injury or loss of life and property damage from disasters. This phase should be considered before a disaster occurs and coordinated with the Local Mitigation Strategy. C. Methodology 1. This comprehensive all hazard plan was developed in conjunction with the Duval County Comprehensive Emergency Management Plan (CEMP), the State of Florida Comprehensive Emergency Plan, the National Response Framework, the Department of Homeland Security, the National Incident Management System (NIMS), and the City of Atlantic Beach policies and operational guidelines. 2. The Atlantic Beach Police Chief is the Emergency Management Coordinator and is responsible for maintaining this plan. 3. All City departments are to have plans that support the MCEMP. 10

12 4. Each department is responsible to ensure that all employees are familiar with the contents and responsibilities of this plan. 5. Suggestions for changes to the plan by departments must be submitted to the Police Chief and approved by the City Manager. 6. An electronic copy of this MCEMP is available on the City of Atlantic Beach s Internet site. A MCEMP distribution list can be found in the front of this document. II. SITUATION This section of the MCEMP analyzes the hazard potential, geographic characteristics, economic profiles, and demographics of the City of Atlantic Beach, Florida. A. Hazards Analysis This section outlines the man-made and natural hazards that the city of Atlantic Beach is vulnerable to. 1. Hurricanes/Severe Weather: As a general hazard, hurricanes (tropical cyclones) and related weather have historically caused extensive damage in the State of Florida from wind, flooding, storm surge, and tornadoes. A hurricane (winds in excess of 74 MPH) or tropical storm (winds in excess 39 MPH) usually has a regional impact affecting thousands of lives and causing considerable damage to homes, businesses, property, utilities and infrastructure, and a significant economic impact on communities and their residents. A large amount of resources, time, and financial support are required to evacuate, stabilize, and restore an area after a major storm. The following are weather related hazards that may be related to a hurricane, tropical storm, or other weather related hazards: Wind- Wind ranks second behind storm surge, among the lethal components of a hurricane s destructive force, yet affects far more people due to the regional impact. High winds will impact inland as well as coastal areas causing problems; such as structural failure, damage from windblown debris, transportation and evacuation issues, and other related problems. Hurricane force winds are those in excess of 74 MPH with gusts possible to over 200 MPH. Gale force winds can extend up to 200 miles on the front side of a storm. Plans must be made for hazards from fallen trees, blocked roadways, power outages, debris, and citizen welfare living in structures (mobile homes) not suitable or rated for strong winds. Flooding- Flooding may be due to thunderstorms passing through the area dropping a considerable amount of rain or related to heavy rains from a slow moving tropical storm or hurricane. Several areas in the city may be prone to flash flooding due to low land elevations and close proximity to the ocean. During tropical storms and hurricanes, the area from 3 rd Street to the Atlantic Ocean is prone to flooding due to heavy surf conditions and storm surge. Substantial portions of the barrier island that constitutes the beaches communities is in a flood zone and may need to 11

13 be evacuated before a hurricane, due to the flood hazards. Nationally, flash floods are the number one cause of weather related deaths. Storm Surge- Storm surge is considered the most destructive of the forces related to hurricanes and could present a major hazard in NE Florida coastal communities from the force and associated flooding. Storm surge is the result of wind driven water impacting the continental shelf and building up large waves of water reaching heights up to15-20 feet as it reaches the coast. Severe damage to any structure in the path can be expected as well as extensive beach erosion. Storm surge will also have an effect on the Intracoastal Waterway and adjoining property, backing up tidal waters and resulting in extremely high tides and possible flooding. Tornadoes- Tornadoes are described as violent rotating columns of air ( MPH) extending from a thunderstorm to the ground. This type of phenomenon will be associated with a thunderstorm or may form during a hurricane. On an average, 800 tornadoes are reported annually in the U.S. Tornadoes can occur anywhere and at any time of the year. While the width of most tornadoes is relatively small (less than 200 feet) violent storms may develop winds to 300 MPH with a diameter of 1 ½ miles. Warning measures for a tornado are limited with hazards related to destructive winds, flying debris, and limited shelters. Lightning- Lightning is the most dangerous and frequently encountered weather hazard. It is the second most frequent weather hazard killer in the U.S. 2. Hazardous Material Incidents: Persons in Atlantic Beach may be vulnerable to a variety of hazardous and combustible materials in the event of a spill or release from storage facilities or by air, water, or land transportation. Within the city limits there are several public and private facilities that store and use hazardous materials. There are LPG sales/storage facilities, numerous fuel stations with underground fuel storage, as well as chlorine and other chemicals used for water purifications within the city. Transport vehicles containing thousands of gallons of both LPG and fuels may be transporting or off-loading hazardous materials in the city at any given time. With close proximity to a military base and direct access to the Atlantic Ocean and Intracoastal Waterway, there is a considerable amount of marine vessels and aircraft that could create a hazard to the city in the event of a spill, crash, or other accident. 3. Freezing/Ice Storms: Although rare these storms producing freezing temperatures and precipitation can cause significant damage due to power outages, disruption of transportation, debris, and property damage due to frozen pipes. 4. Utility/Critical Infrastructure Disruption: The disruption of electricity, water, or sewer for any extended period of time can have a major impact on the services provided to the citizens. These outages may occur at any time but are usually associated with weather related problems, fires, or other man-made accidents. 12

14 Power outages could impact communications, electronics, and water and sewer systems, however most critical city functions are backed up by generator power in the event of power failure. 5. Fires/Explosions: Major fires or explosions impacting facilities, hazardous materials, transport vehicles, and involving large numbers of people or casualties will create a hazard for the city. 6. Terrorism: Terrorism is the unlawful use or threatened use of force or violence by a group or individual committed to intimidating or coercing a government, citizen population, in furtherance of a political or social objective. The real or threat of destruction from a terrorist may utilize a variety of methods to reap chaos. Methods may include dispersion of noxious or harmful chemical substances, attacking or exploding nuclear facilities or radioactive devices, spreading biological agents, or detonating explosive devices such as a pipe or car bomb or IED. Targets may be equipment, vehicles, citizens, public activities, special events, infrastructure, emergency workers, or a host of others. While the City of Atlantic Beach is not a high hazard risk, the hazard potential that exists in any community is here. The highest risk to the city is cyber terrorism, which can disrupt and damage the city s computer system. 7. Earthquake/Tsunamis: Although the city is not located over a major fault line, the potential could exist for an earthquake and associated structural damage to the city. Earthquakes, landslides, or other seismic activity could also cause a tsunami, which is a giant wave affecting the coast line. Tsunamis normally affect the Pacific rim region but could impact our coastline. 8. Civil Disorder: Riots, looting, mass vandalism, and fires may be caused by a variety of social factors. Civil disorders have a high potential for injuries/death and property damage and require a large amount of resources to manage. 9. Disease/Pandemic Outbreak: Disease or the spread of an known/unknown virus such as influenza or the Bird Flu either caused by an act of terrorism or natural causes could cause a hazard to the general public and government operations. 10. Special Events: Special events held in the city, due to the high public profile and large crowds, have a high potential for injury/death from accidents, property damage, civil disorder, transportation issues, and a potential site for terrorist activities. These events require a large number of resources and proactive prevention methods. B. Geographic/Demographic/Economic Information 13

15 The City of Atlantic Beach is located in NE Florida on a barrier island in the southeast corner of Duval County. The City is bounded on the east by the Atlantic Ocean and on the west by the Intracoastal Waterway. Directly to the south of Atlantic Beach is the City of Neptune Beach. To the north is the City of Jacksonville and very near our northern most border is Naval Station Mayport. The city covers slightly more than 3.5 square miles. About 13,368 people live in Atlantic Beach with additional seasonal and weekend population consistent with an oceanfront city. The city is largely a residential community with commercial ranging from neighborhood services to light industrial. There is a strong commercial/entertainment district in close proximity to the beach and City Hall as well as the Police and Fire Department Headquarters building. 50% of the land use is residential, with 56% single family, 40% multi-family, and 4% mobile homes. There are light commercial business scattered throughout the city, several large shopping centers, assisted living and nursing homes. Access to the city from the west is across the Intracoastal Waterway via Atlantic Blvd. Access from the north would be via the Wonderwood Expressway or A1A / St. Johns River Ferry, from the south access is via A1A (3 rd Street). Elevation in the city is varied but generally ranges from 8-20 feet, except for the property to the west facing the Intracoastal Waterway. The elevation for this property generally ranges 5-6 feet. The elevation figures are based on the MSL (mean sea level), which is an average sea level deducting for tidal fluctuations. Atlantic Beach is in an evacuation area for Category 1-5 hurricanes. Normal evacuation routes from the beach utilize JTB, Beach Blvd. and Atlantic Blvd. to the west and A1A to the north and south. The majority of residents are between the ages of 25-64, with a median age of C. Emergency Management Support Facilities 1. City Commission Chambers- Is generally used as the local Incident Command Post when a large incident is being managed, such as a hurricane. City Water Plant # 3 located at 902 Assisi Lane, Atlantic Beach may be used as a back-up location for city Incident Command if necessary. 1. Law Enforcement Services and 911 Call Center- Police Headquarters houses all Police operations and the 911 call center for the city of Atlantic Beach and is located at 850 Seminole Road. If needed back up communications 14

16 facilities and 911 call center operations can be run from the City of Jacksonville Fire Rescue Headquarters, Back Up Communications Center (BUCC) located at 515 North Julia St, Jacksonville FL. 2. Atlantic Beach Police Station / Jacksonville Fire Rescue Located at 850 Seminole Road Atlantic Beach 3. Atlantic Beach City Hall 800 Seminole Road, Atlantic Beach 4. Duval County Emergency Operations Center- Duval County EOC 4 th Floor 515 N. Julia St. Jacksonville, Florida 5. State of Florida Emergency Operations Center 2555 Shumand Oak Boulevard, Tallahassee, Florida 7. Baptist Medical Center Beaches th Ave South, Jacksonville Beach, FL 8. Beach Complex Located at the City of Jacksonville Beach O&M Facility, 1460 Shetter Avenue, or a site east of the Intracoastal as decided on by the beach cities. 9. Point of Distribution (POD) Sites Atlantic Boulevard, 725 Atlantic Blvd parking lot Mayport Rd 2301 Mayport Rd. Atlantic Beach III. CONCEPT OF OPERATIONS A. Organization 15

17 The city operates under a non-partisan Commissioner-Manager form of government. The City has a five-member Commission whose members are elected by the residents of Atlantic Beach under a staggered term system that ensures a degree of experience on the Commission at all times. The Mayor/Commissioner serves a two-year term and votes with the other Commissioners on all matters brought before the City Commission. The other Commissioners serve four-year terms. The City Commission appoints a City Manager who serves as the chief administrative officer for the City and who is responsible for enforcing the ordinances and resolutions enacted by the City Commission, overseeing the operations of all City departments and preparing the annual budget for approval by the City Commission. Florida s Government in the Sunshine law and citizen boards and committees, staffed by volunteers appointed by the City Commission, ensure honest and open government. The day to day management structure and line of authority of the City of Atlantic Beach is illustrated by the following organizational chart. Included are organizational charts that are guides to use during a disaster or response phase as well during recovery operations. Command structures follow the National Incident Management System (NIMS). During disaster situations, the City of Atlantic Beach will coordinate emergency management activities locally or if needed with Duval County (Co/Jax) EOC. During a catastrophic disaster or time of an evacuation of the beaches, a Beaches Complex will be established to coordinate all beach cities with Duval County (Duval County EOC). CITY OF ATLANTIC BEACH ORGANIZATIONAL CHART 16

18 Incident Commander Public Information Officer Operations Logistics Planning Finance Police Public Works Utilities Communications Building Personnel Tracking Treatment Purchasing Conveyance 17

19 EMERGENCY OPERATIONS ORGANIZATIONAL CHART (Sample Response/Recovery Local) 18

20 State EOC City Manager Co/Jax EOC Unified Command Beach Complex -JIC/PIO -LIAISON -SAFETY Mayor/City Commission Communication Operations (Optional) Planning (Optional) Logistics Finance/ Administration/ IT Staging Ops/log -Action Plan -Sit Report -Resource allocation -Supplies, Food -Facilities -Equipment -Fuel, Maint. - Staging - Support -Record keeping -Procurement -Documentation - Financial - IT Damage Assessment Law Enforcement COJ Fire/Rescue Public Works (Infra structure) Utilities (Water & Sewer) Human Services Group/Div. -Traffic -Crowd/ Control -Evacuation -Re-entry -Search (assist) -Deceased/Id -Animal Service - Emg. Response Groups/Div -Search/Rescue -EMS (triage, treatment, transport) -Primary Assessment - Radio - Communication - Emg. Response Groups/Div -Streets --Debris Mgmt. Storm water Fleet Maint. Groups/Div - Water - Waste Water -Distribution/ Collection 19 -Health - Red Cross (Sheltering, Temp Housing) - Salvation Army

21 EMERGENCY OPERATIONS ORGANIZATIONAL CHART (Sample Response/Recovery for major disaster w/beach Complex) 20

22 State EOC Co/Jax Area Command EOC Co/Jax Operations Beach Complex Unified Command JIC EOC/com Liaison Executive Group Mayor/Jax Logistics Base/ Staging optional City Council Note : The Beach Complex will located at: Plan A-JB command center or Plan B- a pre-agreed site. City Manager Safety PIO Jax Beach Logistics Finance Support Staging Human Services Operations (optional) Planning Mayport Naval Damage Assessment Law Enforcement Atlantic Beach Mayport Medical Fire/Rescue Neptune Beach Beaches Energy Public Works Note: Each beach city will be responsible for their own command and response/recovery activities, however all resources and overall plans will be coordinated through the Beach Complex to CO/Jax EOC. The Beach Complex will be staffed by a representative from each beach city and a may staff liaison from Mayport Naval base. The Beach Complex serves as a unified command. At times the three City Managers or designee will meet and discuss plans, request resources, etc. The complex may have a staging area and a logistic/communication liaison. 21

23 1. Levels of Activation/Assistance a. Atlantic Beach does not utilize a full time EOC or emergency management staff, but will staff a local command post for minor disasters at or near the site. For a large disaster or potential incident, the City Commission Chambers can be staffed with an ICS structure and assistance may be requested from the City of Jacksonville as needed. For a catastrophic incident such as a hurricane, Duval County will fully staff their EOC and establish an Area Command. The county will be divided into four complexes with a Beach Complex being established (cities east of the Intracoastal). Each beach city will have a representative at that Complex for decision making and coordinating activities and resource requests. The Beach Complex will be located in a separate area at the City of Jacksonville Beach O & M facility or an alternate site agreed upon by each city if the O & M facility is unusable. Each beach city (Atlantic, Neptune, and Jacksonville Beach) will be responsible for their own city s response/recovery functions although all resource requests and overall plans will be coordinated through the Beaches Complex to Duval County Duval County Operations at the EOC. In some cases, due to the potential for a disaster, activation of a local operations post and the ICS structure may precede the actual event. In the event that an evacuation of all the beaches is called for, the Beach Complex will be established. At other times it may be at the request of the EOC. b. Under Florida Statutes Chapter 252, each county is to operate an emergency management agency for the purpose of coordinating disaster relief. There are three levels of activation by the County and State Emergency Management agencies, depending on the situation. Level 1 - Full Scale Activation -In a full scale activation, all primary and support agencies under the plan are notified. The Emergency Operations Center will be fully staffed and all Emergency Support Functions (ESF) at the state level are activated. Level 2 - Partial Activation - This is a limited agency activation. Primary or lead Emergency Support Functions and staffing are notified and activated. Level 3 - Monitoring Activation - Level 3 is typically a "monitoring" phase. Notification will be made to those agencies and Emergency Support Functions who would need to take action as part of their everyday responsibilities. c. Upon exhausting of resources at the County level, requests will be made to the Florida Division of Emergency Management (DEM) through the County. The State Emergency Operations Center (SEOC) will be activated and staffed by emergency response teams to support local operations. The state has a 24 hour State Warning Point with 22

24 a single point to disseminate information. The Governor may declare a state of disaster and direct state resources to the area. d. When local and state resources are determined to be inadequate, the Governor will request assistance from the Federal Government. When the President of the United States declares an emergency or disaster, the Federal Response is activated enabling FEMA to coordinate the efforts of Federal agencies to assist State and local governments. 2. Support Functions/Command Structure at Duval County EOC Functional groupings called (ESF) have been phased out of the Emergency Operations Centers (EOC) at the County level however the State will still utilize these functional groups. Duval County EOC will function utilizing a NIMS Area Command. Support efforts/equipment/supplies needed outside the realm of local government resources will be requested through Duval County EOC. For catastrophic disasters or the potential, the county will be divided into four complexes with one complex encompassing the beaches communities. If the Beach Complex is established, it will function as a limited Unified Command with each beach community staffing a position; however each city will operate as an independent command structure. A central staging area will be established for Duval County at a site such as Cecil field with each complex having a staging area established for fuel, food, equipment, staffing, supplies, and other needs. Other resources may be sent directly by the Beach Complex to the requesting city. Resources/information for each of the beach cities will be coordinated by a liaison using the management system Web-EOC through the Beach Complex. All requests to Duval County EOC will be coordinated through the Beach Complex to the Operations section. B. Responsibilities 1. The Police Chief is the Emergency Management Coordinator for the City and is responsible for preparedness activities, establishing the local command center and assisting with directing emergency operations during a disaster, coordinating information with Duval County EOC, and assisting with recovery and mitigation activities. Department Directors and critical staff are responsible for preparedness activities and providing support functions during response and recovery operations, as well as mitigation activities. 2. The City Manager is the Executive Officer for the City of Atlantic Beach with responsibility over all operations during the preparedness, response, recovery and mitigation periods. While dependent on state laws, the City Manager has the ability to establish curfews, direct evacuations, authorize spending, and coordinate with the local health authority to order a quarantine if needed. In addition to providing leadership and setting objectives for the City of Atlantic Beach, the City Manager provides a key role at the Beach Complex in coordinating overall activities with the other two cities. 23

25 3. During emergency operations, a Unified Command at Jax Beach will be established to develop action plans and direct operations with the division/department taking the lead role. For area wide operations, a Beaches Complex (Unified Command with other beach cities) will be established, to coordinate activities with each city and Duval County EOC. Each beach city will operate their own command structure. 4. The Mayor of Atlantic Beach will serve as the liaison with the Duval County Executive Group as a member of the Security Emergency Preparedness Planning Council (SEPPC) and representative for the City. The Mayor may declare a local disaster. City Commission members will be kept informed of events. 5. The Mayor of Jacksonville is the director of the Executive/Policy Group of the Duval County EOC and has the authority to establish policies that direct County operations. Upon the declaration of a state of disaster by the Executive Officer (Mayor of Jacksonville), the Duval County EOC becomes fully operational and activates the City of Jacksonville s CEMP or other disaster Plans. All county-wide operations will be coordinated through the EOC. 6. When resources are exhausted at a county level, requests will be made to the State Division of Emergency Management (DEM). Based on evaluated damage and resources, the Governor may declare a state of emergency, directing state resources. When local and state resources are exhausted, the Governor may request assistance through FEMA requiring a Presidential declaration. C. Preparedness Activities Preparedness is any action taken in advance of an emergency to develop, support, and enhance the operational capabilities and to facilitate an effective and efficient response and recovery to an emergency situation. Community hazards and needs should be identified and addressed prior to an emergency. Preparedness includes plans, preparations, and training of personnel and citizens prior to an event in an effort to save lives and property. 1. General a. The City Manager will assist in coordinating overall preparedness plans for the city. b. The Police Chief is responsible for the development and maintenance of the MCEMP (Municipal Comprehensive Emergency Management Plan). c. The City Clerks department is responsible for preservation of records/documents for the continuation of government functions in the event of a disaster. d. Finance is responsible for procuring critical supplies in advance of impending incidents. e. Each department director or his designee is responsible for preparedness activities for his/her department. f. Persons or facilities with special needs during a disaster should be pre-registered with Duval County EOC. 2. Public Awareness 24

26 Public and employee education regarding disasters is disseminated in a variety of methods. These include but are not limited to the following: a. Brochures, electronic media and web links related to hurricane planning and emergency preparedness are offered in public buildings or on the City web site. b. Information disseminated thorough local media outlets.. c. Information given out through promotions and programs offered by City departments. d. Information offered through Duval County Emergency Preparedness Division such as Evacuation Routes, Disaster Preparedness Guide, Re-Entry Program, and others. e. Information during a disaster such as evacuation routes, time frames, shelters, Disaster Recovery services, FEMA assistance, etc., is communicated by Duval County EOC through the news media. Atlantic Beach is located in Zone 1or A under new guidelines, which requires an evacuation of the general population of the City for a Category 1 or greater storm. Evacuation routes to the west from the beach include JTB, Beach Blvd., Atlantic Blvd., and Wonderwood Expressway. f. Telephone messages through the 911 Dispatch Center using First Call. g. Information will be disseminated to the public prior to and during recovery phases of a disaster through media information, city web site or using First Call. 3. Training A variety of training is available and completed annually to assist personnel in the event of a disaster. Annual employee training on hurricane preparedness. Departmental Review of Emergency Operations Plan. Individual employee FEMA training by departments. Seminars and on-line FEMA courses on hurricane preparedness, debris management, recovery operations, WMD, Incident Command, and Haz-mat. NIMS training for emergency response and management personnel. D. Activation/Authorization This MCEMP should be initiated during situations that require a response beyond the scope of normal emergency operations. Consider this plan to be in effect based on the following: 1. On the order of the Mayor or representative, in accordance with the City Charter and the City s Comprehensive Emergency Management Ordinance. 2. When the County Executive (Mayor) has proclaimed a state of emergency in Jacksonville/Duval County. 3. At the direction of the City Manager (City Executive Officer) or his representative in response to a major emergency. 25

27 4. When the Governor has proclaimed a state of emergency in an area that includes Duval County. 5. By a presidential declaration of a national disaster or emergency. 6. Automatically on the proclamation of a state of war, the receipt of an attack warning or the observation of a nuclear detonation. 7. Portions of this plan may be activated on a smaller scale, at the direction of the incident commander, for an emergency involving multiple departments or agencies. 8. Emergency Proclamations City State of Emergency- The Mayor, City Commission, or the City Manager may proclaim a local state of emergency in Atlantic Beach as outlined above in III.D. Activation / Authorization. A local state of emergency is proclaimed when a disaster or possible disaster threatens people and property in Atlantic Beach. A Command Post (CP) or local Incident Command will be activated whenever a local emergency is proclaimed. The proclamation of a local emergency provides legal authority to: 1. Request, if needed, that the County Executive (Mayor) declare a state of emergency. 2. Issue orders and regulations to protect life and property, including curfew orders. 3. Request mutual aid from other cities and the county. 4. Require the emergency services of any local official or city worker. 5. Requisition necessary personnel and materials from city departments. 6. Obtain vital supplies and equipment and, if required immediately, to commandeer the same for public use. 7. Impose penalties for violations of lawful orders. 8. The duration of each state of emergency declared locally shall be limited to 7 days; it may be extended, in 72- hour increments. County State of Emergency. The Mayor of Jacksonville, as County Executive, may proclaim a state of emergency when disaster conditions occur that impact the entire county. A county state of emergency may also be declared at the request of a city in the county. The County Executive (Mayor) must declare a state of emergency and activate the EOC in order to request assistance from the Governor. Florida State of Emergency 26

28 At the request of a County Executive, the Governor may declare a state of emergency. The Governor may also declare a state of emergency when local authorities are not able to cope with a disaster. Whenever the Governor declares a state of emergency: 1. Mutual aid may be provided by jurisdictions throughout the state. 2. The Governor can exercise all vested police powers in the disaster area and issue/enforce orders as necessary. 3. The Governor may suspend certain state regulations. 4. The Governor may commandeer private property. E. Incident Management System (NIMS) No single agency can handle every emergency or disaster alone. As a result of the Homeland Security Presidential Directive-5, the National Incident Management System (NIMS) was developed to provide a comprehensive all risk national approach to incident management that is applicable to all jurisdictions and crosses functional disciplines regardless of the cause, size or complexity of the incident. The ICS system used on a local level must have the ability to expand its structure and organization to incorporate assistance and resources at the local, county, state, and federal level. The flexibility applies to all phases of incident management including preparedness, response, recovery and mitigation. NIMS incident management structure is based on the Incident Command System (ICS), which defines the operating structure and management components throughout an incident, the Multi-agency Coordinating System, which includes the management components and organizational structure of supporting entities, and the Public Information System, which includes the process and systems for communication of information to the public. 1. Incident Command System (ICS)- ICS is a combination of facilities, equipment, personnel, procedures, and communications operating within a common organized structure for incident management. The ICS system is used to organize field level operations for a broad spectrum of emergencies for small to complex situations and both natural and manmade disasters. The ICS system has a number of components working together that interactively provide the basis for effective operations, which include: Common Terminology Modular Organization Management by Objectives Reliance on an Incident Action Plan Manageable span of control (5-7 units) Pre-designated Incident Mobilization Center Locations and Facilities Comprehensive Resource Management 27

29 Integrated Communications Establishment and transfer of Command Chain of Command and Unity of Command Unified Command Accountability of Resources and Personnel Information and Intelligence Management 2. ICS Command Single Command- Within a jurisdiction where an incident occurs, where there is no overlap of authority, a single incident commander will manage the incident. Unified Command- Within a single or multiple jurisdiction, where multiple departments/agencies have major responsibility, management of the incident is shared between departments/agencies. In these situations, the department/agency with the most responsibility takes the lead with the other department/agencies assuming a support role or function. Area Command- Established to oversee the management of multiple incidents that are being managed by an ICS organization or of large incidents that cross jurisdictional boundaries. Complex- Established during a major incident to coordinate activities within an Area Command. A Beach Complex (unified command) may be established to coordinate the three beach cities during a major disaster as part of Duval County EOC s command structure. Multi-agency Coordination System- These include Emergency Operations Centers and specialized multiagency coordinating groups that assist in coordinating resources, information, and policy issues. 4. Span of Control - Span of Control is the number of units one supervisor can manage. The normal span of control is 3-7 units. If the span of control gets too large, this is the reason to expand the ICS system and add levels. An ICS system normally begins small and grows as an incident escalates, except where a large scale emergency develops rapidly. 5. General ICS Structure a. The ICS system has five functional areas; Command (either a single Incident Commander (IC) or a Unified Command (UC)) and the General Staff; Operations, Logistics, Planning, and Finance/Administration. A sixth area, (Intelligence) may be added. Large scale incidents usually require that general staff functions are staffed. Each section has the ability to expand to meet the demands of the situation. Command- The Incident Commander (IC) or Unified Command (UC) is the individual or joint individuals 28

30 responsible for the overall incident. Command must be staffed on all incidents. The IC/UC is responsible for all on scene management. If functions are not staffed, the IC is responsible for that responsibility or function. The IC is responsible for developing an incident action plan (for specific time frames) reflecting the objectives and strategies, which may need to be changed as the incident progresses. For small incidents, the plan need not be written. Large scale incidents need a written plan reflecting the priorities, objectives, and needs of all agencies. The IC will base the decision to expand or contract the ICS organization based on three incident priorities: 1. Life Safety- The first priority of the IC/UC is the safety of the emergency workers and the public. 2. Incident stability- The IC/UC is responsible for determining strategy that will minimize the effect the incident has on the surroundings and to maximize the response effort while using resources effectively. 3. Property conservation- The IC/UC is responsible for minimizing the damage to property while achieving the incident objectives. Operations- The operations section, when staffed, is responsible for managing the tactical operations which include all activities toward reducing the immediate hazard, establishing control, and restoring normal operations. Agencies or departments within this section may include Law Enforcement, Fire Department, Public Works, Electric, Human Services, or functional areas such as Hazardous Materials, EMS, Fire, Rescue, etc. Planning- The planning section, when staffed, is responsible for collecting, evaluating, and disseminating information about the incident and assisting the IC/UC in developing the incident action plan. It is also used to forecast needs for personnel and equipment needs. Logistics- Logistics, when staffed, is responsible for providing all support to the incident which may include food, facilities, transportation, supplies, equipment, maintenance, fuel, etc. Finance/Administration- The Finance/Administration section is staffed when needed and is responsible for cost analysis and other financial responsibilities. Restoring the IT system is the responsibility of the IT Department. Information/Intelligence- If staffed provides analysis and sharing of information and intelligence during an incident. Information may involve national security or may include operational information such as risk assessment. b. Command Staff- The Command Staff is composed of the IC and his immediate staff, which may include an Information Officer, Safety Officer, and Liaison Officer. If the positions are not staffed they are the responsibility of the IC. 29

31 c. Tactical Operations-Incident operations can be managed in a variety of ways such as geographically (divisions) or functionally (groups) depending on the size and type of incident, agencies involved, objectives, and strategies. The organization will be built with additional levels added as the span of control is exceeded. Functional areas may include Fire, Rescue, Law Enforcement, Public Works, Utilities, EMS, etc. Tasks may be done by single assigned persons or multiple units. d. Other Functions- Other functional areas such as communication, resource management (staging) etc. may be assigned by the IC/UC to manage functional areas of responsibilities. F. Response Response is any action taken immediately before, during, or after an emergency to reduce casualties, save lives, minimize damage to property, and enhance the effectiveness and speed of recovery. The response phase includes conducting emergency operations by takings action to reduce the hazard to acceptable levels (or eliminate it entirely), and to coordinate resources in managing the emergency. The response or emergency phase will include activities immediately before, during, and immediately following a disaster. Disaster response should begin as soon as a disaster threatens and should consist of the following areas: 1. Prior to the emergency, preparation for the event will be planned for and actions taken to minimize the event. This will include preparing all city buildings, personnel, records, infrastructure, utilities, equipment and apparatus. 2. Alert or communicate the hazard to the general public. 3. Evacuation of the general population or getting people out of the danger area when required. 4. Establish an incident management system (ICS) and site to manage equipment, resources, and tasks for the event. This will be located at a stationary command post and may include the addition of a complex. The structure of the ICS system will be determined by the size of the disaster. 5. Coordinate with the county EOC or outside agencies for resources. 6. When possible take early measures to ensure facilities, equipment, records are secured and protected. 7. Ensure safety of workers. 8. Mobilizing and positioning equipment and resources. 9. Providing essential services such as fire suppression, search and rescue, EMS, security and other law enforcement activities, and other emergency services. 10. Restoring critical infrastructure such as electricity, water, and sewer. 11. Local responders, government agencies, and private organizations work in a coordinated effort to ensure that actions 30

32 are taken to protect life and property. 12. Emergency Response Emergency response will usually include Police/Law Enforcement, Fire/Rescue, EMS, but may include Public Works, Public Utilities, other city staff members or outside resources such as the American Red Cross, Salvation Army, National Guard, U.S. Coast Guard, and others. Generally, emergency response will progress from local, county, state, and federal involvement, based on the severity, scope, and resources available. The County, State, and the Federal government are prepared to supplement the efforts of the City when it becomes evident that local resources are unable to cope with the effects of a disaster. During emergency operations, local resources will first be requested using mutual aid agreements. Additional requests for resources will be made through Duval County EOC to the State EOC. Additional Emergency resources are available through the SERP (State Emergency Response Plan). 31

33 (Sample Response Phase) ICS Organization Chart Note: See ICS chart for a large scale disaster such as a hurricane on page 156. G. Communications Communications is critical in order to adequately manage an emergency or disaster. This involves emergency crews, local EOC, mutual aid units, as well as relaying information to the public. In many cases during a disaster normal communications avenues fail early. Atlantic Beach uses the First Coast Radio system, 800 MHz system as a primary means of radio communications with several back-up methods in place in the event of communications failure. The City of Atlantic Beach will coordinate with the Duval County EOC for news briefs and public information announcements. For additional information related to the City of Atlantic Beach communication system and disaster communications activities during a disaster see Annex I Communications. H. Mutual Aid Agreements The State Emergency Management Act, Chapter 252, Florida Statutes, authorizes the State and its political subdivisions to develop and enter into mutual aid agreements for emergency aid and assistance. The Chief of Emergency Preparedness Division at the Duval County EOC acts as the contact and coordination point for all statewide mutual aid assistance with all requests made through that office. The Emergency Management Coordinator for the City of Atlantic Beach (Police Chief) will coordinate with Duval County EOC for assistance from outside the immediate area and additional resources or supplies. State agencies will provide resources to local governments through the State Wide Mutual Agreement. 1. The Atlantic Beach Police Department has mutual aid agreements with the following jurisdictions that may be used, if available. Jacksonville Beach PD Neptune Beach PD Jacksonville Sheriff s Office Duval County School Board 2. Atlantic Beach has a Mutual Aid Agreement through Florida s Water/Wastewater Agency Reponses Network (FlaWARN) to assist with water and wastewater related issues. I. This item left intentionally blank 32

34 IV. RECOVERY ACTIVITIES A. Introduction Once the principal threat from a disaster has passed and the primary concern of protecting citizens from harm has been addressed, it is critical to ensure the speedy yet orderly recovery of the community. There is not a clear cut transition from the Response or Emergent Phase to the Recovery Phase. Recovery is broken down into two phases. Once the initial services have been restored, the process of long-term recovery and redevelopment will begin. Short-Term Recovery: Short-term recovery is a transition from the command and control, coordination, and resources phase to a more deliberative process of restoring service delivery, utilities, infrastructure repair, and initial debris management. This phase may last from weeks after the disaster to months based on the disaster. Long-Term Recovery: The recovery and redevelopment phase begins as short term recovery efforts are completed and will include efforts to reconstruct and enhance the built environment as well as recover the economy, environment, and social system. Long-term recovery and redevelopment plans will be consistent with the City s Comprehensive Plan, and the Post Disaster Redevelopment Plan within the, Duval County s PDRP and any other applicable codes or statutes. Issues related to long-term recovery and redevelopment will be covered in Annex V. B. Responsibilities for Short Term Recovery The City of Atlantic Beach will be the lead agency in the early stages of recovery operations for the city. The City will coordinate recovery activities with Duval County EOC, the Florida Division of Emergency Management, and FEMA for assistance. As soon as possible, efforts should be made to bring together federal, state, county and local government officials, and the American Red Cross and Salvation Army to coordinate assistance and support work. 1. The City Manager as IC will be responsible for initially coordinating all City of Atlantic Beach recovery activities. 2. The Police Department is responsible for maintaining security and in restoring law enforcement operations during recovery activities. 3. Public Works will be responsible for debris management and infrastructure repair such as water and sewer. 4. Jacksonville Electric Authority (JEA) will be responsible for restoration of electric services. 5. The Building Department will be responsible for damage assessment and code enforcement issues as well as coordinating post-disaster mitigation (LMS) and long-term recovery activities. 33

35 6. The Finance Department will be responsible for documentation, financial responsibilities, and coordinating all FEMA Public Assistance grants and reimbursements. 7. The Public Works department will be responsible for maintenance and repairs of city facilities. C. Short-Term Recovery Functions Recovery functions include short term operations such as clearing roads, damage assessment, debris removal, infrastructure repair, as well as short term disaster assistance to government, businesses, and citizens, from the County, State, and Federal Government. Once the early stage of recovery has brought the community back to a safe and operational level of functioning, long-term recovery can begin. Long-term recovery may take several months or as long as several years because it is not only revitalizing homes, but also businesses, public infrastructure, and the community s economy and quality of life. Assistance from FEMA may be available in the form of grants and government loans for public and individual assistance. Short term recovery will focus on: Damage assessment to determine the need for supplemental State, Federal and other forms of outside assistance. Impact assessment to determine scope of support needed. Implement PODs to distribute emergency food, water, clothing, medical supplies or other critical commodities. Restoration of utilities. Re-establishment of essential government operations. Restoration of transportation routes. Debris removal and clean-up operations. Building safety inspections. Abatement and demolition of hazardous structures. Short term housing. Community outreach regarding available assistance. 1. Documentation/Reports a. Good documentation must be kept by all departments to adequately provide/document the necessary preventative measures taken, resources and equipment used during/after an event, and damage assessment/recovery information, The information will be compiled and used to inform the City of Atlantic Beach officials, Duval County EOC, the State of Florida, FEMA, and the local media of the services provided, the cost incurred by the city in providing services, and recovery needed from a declared disaster. 34

36 b. Good documentation and assessment will assist in streamlining the recovery process and increase the potential for FEMA reimbursements. Preliminary Damage Assessments (PDAs) are used to verify if a disaster exceeds the response capabilities of the State and local governments and if supplemental Federal assistance is needed. If the event is not a declared Presidential disaster, assistance from the FHWA may be available. c. The Rapid Damage Assessment is a quick assessment completed by the assigned crews after a disaster to determine life safety issues and the extent of damage that is useful in determining priorities for search/rescue, debris management, infrastructure repair needed, communications and damage to City facilities. 2. Preliminary Damage Assessment - Documents the impact and magnitude of the disaster on individuals, families, businesses, and public property. The Planning and Development Director will develop and coordinate a Damage Assessment Team to assess public and individual damages. This will be used to determine if there is enough damage to declare a local disaster and to document damage for reimbursement. This assessment combines the information from the Initial Damage to Businesses and Housing losses, and damage to public facilities. A summary report of damages to all public facilities and property, an individual summary of all damaged residential property, and a report of all damaged business will be developed as soon after the disaster as possible and forwarded to the Police Chief (Emergency Management Coordinator) and Finance Officer. 3. Request For Initial Damage Assessment for Public Assistance - An initial assessment report will be requested by Duval County and the State within several days after a disaster in order to estimate the city/county cost that resulted from the preparation, overtime and additional equipment required, damages, and estimated cost during the recovery phase after a disaster. It is used to determine if there is enough damage in the city/county to be a declared disaster area. Each department will submit information related to the impact from the storm on their department as soon as possible to the Finance Officer and Police Chief to aid in completing the Initial Damage Assessment-Request for Public Assistance. Information required includes: Category A (debris removal). Category B (protective measures including overtime costs). Category C (damage to roads, signs, and bridges). Category D (water control). Category E (building and equipment). Category F (public utilities). Category G (parks and recreation). 35

37 Other information related to population, city budget information, assessment team members, incident periods. In addition, city insurance information is required to determine the impact to the city s budget. (See Damage Assessment: Public Assistance below). 4. Request for Public Assistance (RFP) Form- A RFP form will be completed by the Finance Officer and sent to the State Division of Emergency Management (DEM) if a disaster declaration has been enacted or the potential exists and public assistance for Atlantic Beach is requested. Reimbursement funding comes from FEMA through the DEM once approved. 5. Project Worksheets- As a result of a declared disaster, preparation of project worksheets for the disaster will be supervised by the Finance Officer with assistance from department directors and the designated FEMA Public Assistance Coordinator. Projects will be considered either small or large as determined by a dollar amount specified by FEMA for the year. a. The Finance Officer will develop project worksheets from cost associated with debris removal, emergency protective measures (overtime, equipment, preventive measures, rental equipment, etc.), and permanent work repairs needed. These may include roads, bridges, water/sewer, buildings and equipment, utilities, and parks and recreational facilities. b. Reimbursable expenditures will usually be Category A & B but may include Category C-G as identified by the disaster declaration. These project worksheets will identify and document expenditures by the city for potential FEMA Public Assistance Program reimbursements. D. Damage Assessment Activities The damage assessment process is essential in determining what happened, what the effects are, which areas were hardest hit, what situations must be given priority and what types of assistance are needed (e.g., local, state, or federal). In the aftermath of a disaster, both public and private non-profit and individual damage assessments must be performed, because of the corresponding types of federal/state assistance available. Each type of assessment is designed to quantify the eligible amounts of damages a community incurred. Rapid Damage Assessment- This is a quick initial assessment completed by the initial crews/teams immediately after an incident in determining life safety issues, significant damage, power, water and sewer operability, facilities, and location of a command post. This is a rapid assessment by zones if possible. Information will be relayed to the command post (unified command) to assist in determining the initial Incident Action Plan. Damage Assessment Team- A damage assessment team will be assembled by the Building and Zoning Director after a disaster to assess the damage to the city. A member from Parks & Recreation, Public Works, Building and 36

38 Zoning, etc. may be on the assessment team or may be requested to evaluate their particular city facility or area for damages. This assessment will include an initial habitability/damage assessment for homes and private business and an assessment of city property and facilities, parks and recreation areas, streets, street signs, beach/walkovers, etc. a. This assessment will be conducted after the rapid damage assessment is conducted by the initial crews. b. For catastrophic damages, a tag system should be used to identify those structures that are habitable (Green), those that need some work but are habitable (Yellow), and those non-habitable (Red). Reporting- A summarized report of all damages and estimated cost will be forwarded to the Police Chief (Emergency Management Coordinator) and the Finance Officer by the Damage Assessment Teams. This information will be compiled and forwarded to the County/State to determine if a disaster can be declared and for what categories. Public Assistance- Public Assistance may be requested to assist with cost associated with debris removal and emergency protective measures. Public damages can include any damage incurred by a structure or facility which is owned by a public or private non-profit entity. Departments will use FEMA Public Assistance criteria when providing information to the Finance Department and Police Chief. To be eligible for reimbursement, the damages must fall in one of the following seven basic categories: 1. Category A: Debris Clearance- Includes all storm induced debris on public roads, including the rightof-way, federal public waterways, public and private property when undertaken by local government. Costs should also capture debris removal for Federal Aid roads. Cat A can also cover the cost of demolition of public structures if those structures were made unsafe by the disaster. 2. Category B: Emergency Protective Measures- Includes the cost of providing appropriate emergency measures designed to protect life, safety, property, and health (i.e., barricades, sand bags, safety personnel). 3. Category C: Road System- Addresses damages to non-federal roads, bridges, streets, culverts, and traffic control devices. 4. Category D: Water Control Facilities- Includes cost to repair or replace dikes, dams, drainage channels, irrigation works, and levees. 5. Category E: Buildings and Equipment- Eligible damages include costs to repair public buildings and equipment, supplies/inventories that were damaged and transportation systems such as public transit systems. 6. Category F: Public Utility Systems- Assistance is available for damaged water systems, landfills, sanitary sewerage systems, storm drainage systems, and light/power facilities. 37

39 7. Category G: Other- Includes park and recreational facilities, or any other public facility damages that does not reasonably fit in one of the previous six categories. Categories for Individual Assistance-The purpose of individual damage assessment is to determine the extent and dollar amount to individuals and private businesses that have been impacted by a disaster. Persons needing assistance from FEMA are required to register for grant opportunities and other assistance. The two basic categories of eligible individual damage include: 1. Damage to Homes- A person whose residence is damaged due to a disaster may qualify for various forms of assistance. Assessors will estimate the degree of damage to the home, evaluate the victim's insurance coverage, estimate the victim's income, and determine the habitability and type of the victim's home. 2. Damage to Businesses- Privately owned businesses that were damaged or destroyed can qualify for individual assistance programs. Similar procedures are used to quantify damages, as well as determine the impact those damages will have on the community. Loss of a business may result in lost jobs, income, etc., to the individual owner and employees. E. Debris Management Debris Management is an important part in the Recovery Phase. Following a major natural disaster, emphasis will focus on rapid removal of debris from public rights-of-way to allow emergency personnel and critical personnel back to the city. Included also in debris management may be demolition, sand removal, disaster recovery services, reimbursement assistance, etc. While the majority of debris removal may be the result of a hurricane or severe weather, it may also result from man-made disasters. Debris may be localized and may be taken care of by local resources or wide spread and necessitate a debris management contractor. The Public Works Department will be responsible for coordinating debris management. For further information see the Annex III on Debris Management. F. Disaster Assistance (FEMA) 1. Request for Public Assistance- As a result of a Presidential declared disaster, FEMA may provide assistance to public entities for damages and costs (Category A-G) associated with a disaster. a. After the damage assessment is completed, the report will be forwarded to Duval County EOC. A Request for Public Assistance will be completed by the Finance Officer and City Manager and will be sent to the State. FEMA will send a Disaster Relief Funding Agreement and assign a number for each declared disaster. ( 38

40 b. At some point, a candidate briefing and kick-off meeting will be scheduled in Jacksonville/Duval County (Duval County EOC) to discuss the process. A FEMA representative will be assigned and sent to the city to review damages, documentation, and assist with project worksheets. c. FEMA will assist in writing the project worksheets, however having the information and project worksheets already completed may expedite the process. d. The Finance Officer will send out FEMA forms to all departments requesting information to assist in the documentation/ reimbursement process. e. A FEMA coordinator will meet and assist the City in developing the project worksheets. 2. Request for Individual Assistance- As a result of a Presidential declared disaster, FEMA may provide assistance to individual citizens and businesses for hurricane/disaster damages. Citizens must call FEMA to register at There are a wide variety of assistance programs that are provided for the individual. a. Low interest loans to individuals and businesses for refinancing, repair, rehabilitation, or replacement of damaged property (real and personal). b. Individuals unemployed as a result of a major disaster, and not covered by regular state or private unemployment insurance programs, will be eligible for unemployment benefit. c. Low interest disaster loans are made available to farmers, ranchers and agricultural operators for physical or production losses. d. Temporary housing or housing assistance may be authorized. e. Special grants for medical expenses, transportation costs, home repairs, protective measures, and funeral expenses. f. Disaster recovery centers established for food coupons, legal assistance, and counseling. G. After Action Report A preliminary After Action Report will be completed by the Police Chief (Emergency Management Coordinator) as soon as possible after any major disaster in which multiple departments were involved and forwarded to the City Manager in order to brief the City Commission and provide accurate information to the media. Lessons learned and corrective actions will also be pointed out and addressed by City staff. Based on the magnitude of the event, a final After Action Report may be developed. 39

41 Included in the report will be actions the city took in preparation, when/if the City EOC was set up, the number and types of responses, personnel activated, highlights of each department s activities during the event/disaster, and the initial damage report. This damage assessment is preliminary at this point, but should give a rough estimate of the amount of damage to the city. Pictures/addresses of damaged areas will be included in the report. Each department should forward the initial information related to their department to the Police Chief, to be included in the After Action Report. V. MITIGATION ACTIVITIES A. Introduction Mitigation includes those activities, policies, or programs developed and adopted that will reduce, eliminate, or alleviate damage caused by disasters. Proper and coordinated planning is a prerequisite to effective hazard mitigation. The purpose of the mitigation programs is intended to reduce loss of life and property due to natural disasters and to enable mitigation measures to be implemented during the immediate recovery from a disaster or to prevent future hazards. Eligible activities for this program may include: Property acquisition or relocation. Structural and non-structural retrofitting (e.g., elevation, storm shutters and hurricane clips). Minor structural hazard control protection (e.g., culverts, floodgates, retention basins). Localized flood control projects that are designed to protect critical facilities and are not part of a larger flood control system. Protection of utilities and seismic protection. B. Responsibilities Mitigation activities will be the responsibility of each department, however activities should be coordinated with Finance Officer and LMS Coordinator with Planning and Development for the City. C. Mitigation Programs/Activities The Federal Government, through FEMA, makes available several types of hazard mitigation grants to help or eliminate risk to people and property from natural hazards and their effects. Hazard mitigation projects may include disaster repairs and updates related to the immediate declared disaster (usually filed under the 406 Public Assistance program) or long term improvements and mitigation related to the County s Local Mitigation Strategy (filed under 404 HMGP). Jacksonville/Duval 40

42 County has adopted a LMS strategy that assesses hazards and prioritizes activities, with Emergency Preparedness taking the lead role. 406 Hazard Mitigation Grants are implemented by FEMA through the Public Assistance Program in conjunction with a Public Assistance Work Project and are disaster repairs and upgrades that are above and beyond the work required to return the facility to its pre-disaster design. These are related to a disaster and are not required to be in the Local Mitigation Strategy. 404 Hazard Mitigation Grants (HMGP) are a separate program operated by FEMA through the State Hazard Mitigation Grant Program. Program funds are capped at a percentage of total disaster funds spent in the State in a given year. In addition, although the applicant submits a Notice of Intent (NOI) to the Florida DCA, project funding comes through the county. Projects submitted on the NOI must also be included in the Duval County Local Mitigation Strategy (LMS) to be eligible. Pre-Disaster Mitigation (PDM) is similar to the other mitigation grants although this program s projects compete on a national basis. The PDM program will provide funding for pre-disaster mitigation planning and implementation of cost-effective projects prior to a disaster. It is applied to through Duval County Emergency Management. Flood Mitigation Assistance (FMA) is a partnership assistance program to eliminate or reduce the long- term risk of repeatedly flooded structures insured under the National Flood Insurance Program (NFIP). The State coordinating agency is the Florida Division of Emergency Management. VI. FINANCIAL MANAGEMENT A. Introduction Financial management after a disaster will present a challenge for a local government. Responsibilities will not only include providing the immediate financial support for equipment, supplies, and staffing, prior to and during a disaster, but will also include identifying costs, documentation, and reimbursement activities with the State and Federal Government. Additional responsibilities include ensuring that all documentation, records, and financial information that is needed by the city has been backed-up and is available for use. A disaster may require that all records, hardware, and information required to run the city may have to be moved and activities conducted from a remote source for a period of time. B. Responsibilities 1. The Finance Department is responsible for the following activities: Ensure all key information and financial activities are backed up on computer system. 41

43 Ensure that all current financial obligations are met. Ensure all supporting financial documentation, vendors, contracts, invoices, and other required information and files are maintained. Provide for financial support of city personnel, equipment, supplies, and material required during disaster and recovery activities. Provide for financial responsibilities for outside contractors used for activities such as debris removal. Provide for the documentation of all costs associated with staffing, equipment, apparatus, and other activities during disaster activities. Ensure damage reports and reimbursement requirements are completed and turned into the State and FEMA. Ensure annual training/familiarization for employees is conducted related to financial management during a disaster. 2. The Information Technology Department is responsible for the following: Ensuring that all City files and systems have a back up copy made. Ensure that IT can provide the computer capabilities for the Finance Department to restore the system and provide for the financial responsibilities of the City. Provide IT support to the command staff during the disaster. Restore the local government IT services. VII. REFRENCES AND AUTHORITIES A. State of Florida Requirements- Chapter 252, Florida Statutes (State Emergency Management Act) mandates the development of the Florida Comprehensive Emergency Management Plan. Each County is required to establish an Emergency Management Agency for coordinating disaster relief efforts in their county and develop a Comprehensive Emergency Management Plan (CEMP). The s (MCEMP) developed by the City of Atlantic Beach should conform to all of the standards and requirements applicable to the Duval County CEMP and the State CEMP Plan. 1. The City of Atlantic Beach MCEMP should be reviewed by the Duval County Emergency Management Department periodically to determine compliance. B. Policies 1. The (MCEMP) shall include guidance for post-disaster recovery operations and hazard mitigation programs that could eliminate or reduce future loss. 42

44 2. The Executive Officer (City Manager) will oversee recovery operations. 2. Recovery operations may include but are not limited to the issuance of emergency building permits, coordination with State and Federal officials, mitigation options in the replacement of damaged or destroyed public facilities or infrastructure, etc. 3. Immediate repair and clean-up needed to protect the public health and safety shall receive the first priority. These may include repairs to potable water, wastewater, restoration of power/electricity, debris removal, stabilization or removal of dangerous structures, and other hazards. 4. The City will participate in and prioritize mitigation efforts using the Duval County Local Mitigation Strategy (LMS). 5. Structures which suffer damage in excess of 50% of their current assessed value, will have to meet all current building and code requirements. 6. Each City Department will have Standard Operating Guidelines or procedures that support the MCEMP. C. Authorities The following provide authority for conducting disaster emergency operations: 1. Code of Ordinances for the City of Atlantic Beach, Florida Part II; Chapter 2; Article VIII Emergency Management. 2. Code of Ordinances, City of Jacksonville Chapter 674, Disaster Preparedness. 3. Chapter 252, Florida Statutes, Emergency Management. 4. Chapter (7)(I), Florida Statues and Rule 9J-5.012(3)(b)(8) Florida Administrative Code, Post-Disaster Redevelopment Plan. 6. Section (6)(e), F.S., as amended by s 21, Ch Federal Civil Defense Act of Public Law , "Robert T. Stafford Disaster Relief Act of 1988". 9. Public Law , "Disaster Relief Act of 1974" and 49 Code of Federal Regulations (CFR), SARA Title III 29 CFR. 11. Title 18, U.S. Code of Federal Regulations, Part I (WMD). 12. Presidential Decision Directive 39 and 62, Presidential Directive 5, and the new Presidential Directive for National Preparedness PPD-8. ANNEX I. COMMUNICATIONS A. Introduction 43

45 Effective response to an emergency depends on reliable communications. In an emergency, communications systems may be damaged or overloaded. Having multiple means of communication will help to assure effective response and safety to citizens and city employees. Emergency communications serve three purposes: To direct the response of City forces. To alert and instruct the public. To coordinate with the County/State/Fed government. In a major emergency, it is important to maintain communications between the local EOC, the City Manager, and Duval County EOC. Once approved by the Incident Commander (IC) all requests for resources outside our MOUs, contracts and local aid agreements should be made through Duval County EOC. B. Communications Systems The following City communications systems are available. FCIC/NCIC Telecommunications- This system uses dedicated data lines to provide electronic connection to local, state and national law enforcement agencies. 911 Communications is equipped with a station on this system. Disaster Warning Net- This network provides communications by both radio and telephone. The Police Communications Center is equipped to operate on this system. The Police Department Mobile Incident Command (MIC) vehicle is equipped to operate on the radio portion of this system as are all police radios which operate on the First Coast Radio system. The telephone component uses dedicated telephone lines with group call capability. Police Radio System- All Police Department radios operate on a 48 channel 800 MHz trunked radio system for daily operations as well as emergency response. The system operates on a digital frequency using repeaters operated on The First Coast Radio System. Satellite and wireless communications- Key city personnel will have a satellite phone issued to them for use during/after a disaster. This satellite phone system will be used in the event that convention and cellular telephone systems are in operable. The Incident Commander will determine which personnel are issued these phones. The police department has a portable Track-star satellite system available with both telephone and internet capabilities for use during disasters. Telephone/Cell Phone- Regular commercial and cellular telephone services, including fax messages and two way radio communications may be used for emergency communications. First-call is a web-based telephone communication system available to alert the public of important or critical emergency information. Intra-net Services- Communications to outside agencies and the public may be available through the internet either through our network, air-card, or satellite services. The use of text messages may also be an effective method of communications when cellular connectivity is limited. Messenger Service- If all electronic communications fail, messages are to be relayed by messenger. 44

46 1. Potential Problems Weak Links- Radio and telephone systems use a combination of overhead and underground telephone lines, microwave and satellite links, antenna towers and other subsystems for operation. The failure of one link may disable the entire system. After an intense storm, the ARES radio system or satellite system may be the only usable electronic communications. The City will require support from the First Coast Radio system, AT&T, Duval County 911 and cell phone providers to restore regular communications. Power Failure- Loss of electrical power service, failure of emergency generators or inability to recharge batteries may cause the failure of radio and telephone services. Overloading- The high volume of messages that result from an emergency may make good communications difficult or impossible. By experience, telephone communications maybe quickly overwhelmed in large emergency situations. Radio communications may be overloaded by poor procedures, confusion or the volume of transmissions. Severe Weather- The radio and telephone systems are expected to survive a Category 1 or 2 hurricanes with only minor damage. Cell phones are expected to fail early. As a means of incoming emergency communications the NOAA radio alert system may be available. C. General Operations 1. Disaster Communications 24-hour Warning Point- The 911 Communication Center serves as the twenty four hour warning point for our City. Communication Officers provide several essential disaster services including: a. Notifies other City departments of alerts and warnings. b. Notifies the Duval County EOC of disaster emergencies in progress in our city and request aid as directed by the IC. c. Monitors tower lights and notifies the FAA of outages. d. The Police Chief monitors hurricane activity and keeps staff informed. 2. Departmental Communications- Each department is to maintain its telephones and radios so as to be ready to respond to an emergency at any time. Department directors are to establish departmental policies regarding emergency and disaster communications consistent with the MCEMP. 45

47 3. Emergency Contact List- Each Department Director is to maintain an up-to-date emergency contact list with Police Communications. This list is to include the Department Director and Division personnel who are authorized to initiate/respond to emergency operations their department may be requested to assist with. 4. Public Warning System In general, public warning messages and instructions should be issued by the Duval County EOC. This is especially important during hurricane warnings and similar wide area emergencies where control of public messages is required to avoid confusion. During emergencies where the Duval County EOC is activated, public messages should be supported and repeated as necessary through the city s public information system. The First Call Alert System may be used to alert citizens of emergency conditions.. Integrated Public Alert System (IPAWS)- IPAWS is the new national public alerting system established by Presidential Directive which uses all available communication pathways to alert and warn the American people of authenticated alert information. Alerts and warning messages can be issued from any level of government (Federal, State, territorial, tribal, and local) before, during, and after any hazard impacting public safety and wellbeing. Avenues will include the Emergency Alert System (EAS), Commercial Mobile Alert System or cellular phones (CMAS), NOAA Weather and the National Weather Service, the Internet, and existing warning systems and can be localized to specific areas. Emergency Alerting System (EAS)- This is a nationwide alerting system to broadcast warnings, information, and instructions to the general public. Locally, the emergency alert system is activated through the County EOC. IPAWS is a Federal initiative to alert the public utilizing wireless means. Emergency Alert Radio System (EARS)- This is a local radio warning system used to alert the media to emergencies. This system is activated through the Jacksonville Sheriff's Office. National Oceanographic and Atmospheric Administration (NOAA) Weather Radio- The local NOAA weather office operates a radio station continuously broadcasting weather information. This radio system has an alert feature for hurricane, tornado and other weather warning information. The local media monitor this system and rebroadcast weather warnings to the general public. Press Conferences- The County Executive (Mayor of Jacksonville), the Governor or other appropriate official may give instructions to the general public and emergency responders by press conferences or press releases broadcast on commercial radio and television. First Call Alert System- A web-based telephone communication system used to alert the public of important or critical emergency information. 46

48 Neighborhood Warning- In some emergency situations it may be necessary to conduct a door-to-door notification process. Any city resources may be utilized for this work. Special care is to be taken to notify any hospital, nursing home, schools, hotels, and similar high life hazard occupancies as appropriate. Cable Emergency Alert System- Gives the city the ability to alert citizens of emergency messages using Cable TV. COAB Web Site Links to information resources will be available here. 5. Incident Command Post/EOC Communications a. The City EOC is equipped to operate on the following communications systems, with the assistance of the Police Departments Communication Division. Disaster Warning Net First Coast Radio System Internet/wireless Commercial telephone, including fax. Cellular telephone. Satellite phones and internet. b. A Mobile Incident Command (MIC) vehicle operated by the Police Department is designated as a mobile command post. This vehicle is equipped to operate on communications systems that include: First Coast Radio System Wireless Cellular data connection (laptop computer air-card) Satellite telephone and internet via the Trac-star system. 6. Atlantic Beach 800MHz Digital Radio Communications a. The City radio system includes control equipment located in the Police Department, repeaters and antenna systems, and field mobile and portable radio equipment which are all maintained through a contract for services with the First Coast Radio system (City of Jacksonville). b. Police radios operate on a forty-eight channel trunked digital/analogue radio system... All police radios will utilize some encrypted channels for security. c. Key personnel with other city Departments are issued Radios which are programmed to access "talk groups" to meet that departments needs as deemed appropriate by the Chief of Police. Police radios should be programmed to communicate with other beaches police agencies, Jacksonville Sheriff s Office and the Duval County EOC radio network for Mutual Aid coordination. e. The range for the radio system generally is countywide. 47

49 f. The City will use Mutual Aid radio channels designated to the Duval County EOC communicate Mutual Aid operations. g. The Police Chief is responsible for maintaining the contract which provides operation of the radio system. h. The City of Jacksonville s First Coast Radio system staff manages necessary engineering, service, preventative maintenance and other support. i. Department Directors are to designate a Radio Communications Coordinator responsible for the following: Assignment and tracking of radio equipment. Oversight of department radio procedures. Training of department staff. Identification of problems in need of improvement. j. Each department using this system will have channel(s) (talk groups) designated specifically to their operations. Radios assigned outside of the Police Department will not have access to encrypted channels unless specifically approved by the Chief of Police. All Radios should have a common talk group(s) to be used as an administrative channel. 9. General Radio Operating Procedures a. Messages are to be short. b. If possible, do not use 10-codes or signals. Clear text is easy to understand and does not require special training. c. Messages are to be addressed from sender to receiver. Messages are acknowledged by a brief restatement of the message. d. Department Directors, other than the Police Department and Lifeguards are to assign radio identification numbers using the below prefixes. Public Works Works-01, Works-02, etc. Water Department Water-01, Water-02, etc. Public Utilities Utilities-01, Utilities 02, etc. Parks and Recreation Parks-01, Parks-02, etc. e. When a larger ICS is activated and a particular Section, Branch etc. is designated such as Operations or Planning, personnel using the radio communication network in the capacity of that Section/Branch etc will prefix their radio identification number with the name of their Section/Branch etc. f. In a disaster emergency, the radio ID of the Incident Commander will be "ATLANTIC BEACH COMMAND". In a localized emergency "3rd STREET COMMAND", "BEACH FRONT COMMAND" or similar designation is to be used. 48

50 g. If radio communications interoperability is needed outside of the First Coast Radio System (FCRS) a technician may be contacted to establish a radio link outside of our radio system. 10. Radio Problems a. Busy Signals. A constant low pitched tone indicates that all channels are busy. RELEASE THE MIC BUTTON until the signal stops. In a Portable radio, two short high pitched tones, indicates that the radio battery is low. b. Out-of-Range Signal: A continuous, low pitched tone indicates that the radio is too far away from the repeaters or the repeaters are off the air. c. Fail-soft Signal: A faint beep every 10 seconds indicates that the trunking feature has failed. Talk groups are not available. All department radios are to change to. Partial Failure: Is indicated by the fail-soft signal. Users are to limit radio messages until the system is repaired or radio traffic has slowed down. Multiple personnel keying up their radio at the same time may cause a fail-soft signal. d. Total Failure: Is indicated by the out-of-range signal. All radio users are to switch to channel or the assigned channels on C-flight. This may be done by cell phone. Limit radio messages to essential information and emergency traffic. e. Back-up Failure: Is indicated by the out-of-range signal on. Use a telephone/cell phone for communications. f. Radio Service Calls: Requests for repair service are to be forwarded to the First Coast Radio System. Communications officers are to notify the On-duty police supervisor immediately; Communications Supervisor and or IC as appropriate. 11. Evacuation of Police/911 Communications Center/Alternate Communications If the Police/911 Communications Center is evacuated due to a hurricane or disaster, personnel and operations will be relocated to the Duval County EOC (JFRD Communications Center) or alternate location as determined by the Police Chief. While the Atlantic Beach Police Communications Center is inoperable, assistance may be requested from the Jacksonville Sheriff s Office Communications Division to handle 911, telephone, and radio dispatch traffic for the police department. The Police Services Division Commander or their designee should coordinate this Mutual Aid with the appropriate Jacksonville Sheriff s Office Communications supervisor. Atlantic Beach Police Emergency Communication Operators (ECO s) relocating to the JFRD Communications Center should be assigned a location in the Back-up Communications Center (BUCC) from which to operate. 49

51 If the 911 system is inoperable for other reasons, incoming 911 calls will be transferred automatically or at our request to by Jacksonville to one of the other beach communication locations. ECO s from the assisting agency that receives our 911 calls will dispatch those calls over a common radio frequency or coordinate with an ABPD Police or Communications supervisor to arrange the handling of 911 and general calls for service. D. Other Communication Resources 1. Satellite and Wireless Communications Police and key city personnel have satellite phones for use during/after a disaster as designated by the IC. Satellite phones or antennas must have a clear view of the (southern) sky and are not effective during a storm or when used in a vehicle without special equipment. Satellite phones are normally only used during a catastrophic loss of normal communications. These satellite phones are stored in the police department. Duval County EOC has supplied each beach city with a Star-trac satellite system providing analogue telephone lines and Wi-Fi connectivity. The Trac-star is a portable system that is stored at the Police Department and backup power generation is available at the Police Department Headquarters and in the MIC.. 2. Amateur Radio Emergency Services (ARES) The Amateur Radio Service is composed of HAM radio operators who have volunteered their capabilities and equipment to provide supplementary communication in time of public need. ARES may be available through the Duval County EOC. 3. State Emergency Response Plan (SERP) Communications Through SERP, a communications trailer/mac with portable radios may be available to re-establish local communication using VHF and 800 MHz systems. Requests for Communications support should routed through the Duval County EOC. 5. Web-EOC This is a web based communication/management system used by most county Emergency Operations Centers for the coordination of information, critical tasks, resource management, etc. The Beach Complex will use this system to coordinate information and requests for resources to Duval County EOC. Web-EOC may be monitored by assigned personnel in the Atlantic Beach Incident Command Center during a disaster or event. ANNEX II. MASS CARE A. Introduction Mass care involves a number of issues and responsibilities that may need to be addressed and implemented prior to, during, and post disaster such as communications, evacuation, sheltering, special needs, food, water, first aid and welfare information, and 50

52 other mass care assistance. These needs may be the result of a natural disaster such as a hurricane, terrorism, hazardous materials crisis, or other large scale event. Disaster assistance is expected to be coordinated through "one stop" disaster applications centers, staffed by representatives of all agencies, both public and private that provide assistance. B. Responsibilities Responsibilities for mass care are a coordinated effort between local government, County, State, and other Federal agencies such as the American Red Cross. Responsibilities for coordinating mass care during and after a disaster will be the Incident Commander or his assigned command staff. C. General Operations 1. Communications a. Notification and information concerning a disaster or potential disaster to the public will usually be communicated from the Duval County EOC utilizing the local media, unless the emergency is localized. b. Localized notification and information of a disaster may use the reverse 911 system available through the Atlantic Beach Police Communications Center or by using the Cable Emergency Alert System. c. Department Directors will communicate with City personnel through or by telephone contact. d. Persons with special needs are urged to register with the Duval County EOC in order to receive specialized services for notification and transportation. 2. Evacuation a. General Population- Atlantic Beach is in a Category A/B evacuation zone, requiring evacuation of the entire civilian population in the event of hurricane force winds, storm surge or rainfall flooding dangers. Low lying areas and mobile homes may be requested to evacuate early based on wind or flooding expectations. There are no hurricane shelters at the beach. For hurricane projections of marginal impact or landfall, the City will be evacuated based on predicted damage and life safety issues. General population evacuation orders and instructions will be issued through the local media by the Duval County Mayor in concert with the Executive Group (SEPPC) which the Beaches Mayors are a part of.. General evacuation efforts will be coordinated with Duval County EOC and the other beach cities. Evacuation orders are mandatory, however people who refuse will not be forced to evacuate. The hospitals, nursing homes, HUD, hotels, senior citizens residences, and other similar occupancies are to have specific plans in place for evacuation. The U.S. Navy at Mayport can be expected to start evacuation earlier than the civilian community. 51

53 All citizens will be instructed to seek shelter inland. If possible seek shelter with friends and family. Shelters will be available through the American Red Cross (ARC) and staffed by volunteers. Information concerning the type of shelter (special needs), locations, and instructions will be available from Duval County EOC via the media, on the internet at the coj.net site, and on electronic bill-boards. City Re-entry tags have been made available to citizens, however additional tags may be issued at the Police Department or city hall prior to an event. Persons needing transportation to the ARC shelters should be directed to the pick-up points designated by the Duval County EOC. JTA busses will be available at these locations for transportation to the ARC shelters. If necessary, city personnel may assist in transportation to the pick-up sites. b. Special Needs- Persons with special needs at shelter locations and or transportation needs should register ahead of time with Duval County EOC on line at coj.net, by telephone at , or by mailing via a special needs or transportation form available through the City of Jacksonville (630-CITY). An annual list of those who have registered for Special Needs/Transportation in Atlantic Beach will be kept by the City of Jacksonville Fire Rescue Department. c. Localized Evacuation- For evacuation due to a localized disaster in the City of Atlantic Beach, instructions will be given to those persons and families affected and temporary sheltering may be provided by the American Red Cross at local hotels. 3. Shelters- If a general population evacuation occurs, the Duval County EOC, Health Department, and the American Red Cross will assess/coordinate the sheltering and special needs requirements including staffing, transportation, and sheltering. The bulk of mass care during sheltering and post disaster assistance will come from the American Red Cross and other volunteer organizations. Shelters will be identified by Duval County EOC prior to the evacuation. Special needs shelters will be opened for those with special needs and should be identified prior to citizens traveling to a shelter location. There are several pet friendly shelters in Jacksonville and should be identified prior to citizens traveling to a shelter location. Long term sheltering needs will require the assistance from a variety of sources including FEMA, but in most cases the majority of people needing long term assistance should seek other means such as their local insurance before seeking Federal assistance. 4. Distribution Sites- Points of Distribution (PODS) will be available for the purpose of receiving and distributing bulk emergency relief supplies to our citizens such as food, water, ice and tarps within the first hours. These distribution 52

54 sites are drive through sites capable of handling a large number of people quickly. The POD sites and the number of sites activated will be coordinated with the Bulk Distribution Branch and COJ/EOC. State contractors will deliver the needed equipment and supplies for each site with the National Guard or local city employees staffing the site/or sites for the first 72 hours. 24 hour security will be provided by ABPD and/or JSO. After the first 72 hours, each beach community will be responsible for coordinating the staffing of the PODs. Based on the level of disaster and needed resources, additional personnel to staff the distribution sites can be requested through the Beach Complex to COJ/EOC Bulk Distribution Branch. The State of Florida has established three model types of PODs based on number of persons/vehicles served per day. A Type-3 POD serving approximately 5,000 people/140 vehicles per day are planned to serve several locations in the beaches area. POD Site Managers will be established at each distribution site operating to coordinate operations, planning, and documentation (required POD forms). All coordination for PODs should be done through the Beach Complex if established. The decision to close POD sites and began demobilization will be coordinated with the Bulk Distribution Branch of the EOC. There are identified POD sites in the Beaches area, reference COJ Bulk Distribution ICP for locations and additional details. 53

55 POD Type III Layout LP LP LP 54

56 5. Comfort Stations- Comfort stations may be established by volunteer organizations several days after an incident to assists citizens with household supplies or other needs. They will be coordinated by law enforcement. All Comfort stations should be coordinated through the Duval Co. EOC and the City of Atlantic Beach IC. ANNEX III. DEBRIS MANAGEMENT a. Introduction Debris Management is an important part in the Response/Recovery Phase. Following a major natural or man-made disaster, emphasis will focus on rapid removal of debris from public rights-of-way to allow emergency and critical personnel access followed by efforts to reduce potential threats to health, safety, and welfare of impacted citizens and city infrastructure. Included also in debris management may be demolition, sand removal, disaster recovery services, reimbursement assistance, etc. While the majority of debris removal may be the result of a hurricane or severe weather, it may also result from other man-made disasters. In the past 15 years, the costs associated with debris removal have averaged 15% of all disaster related cost nationally. Debris management will follow the guidelines and policies as established in the City s MCEMP and FEMA guidelines. Mission: To facilitate and coordinate the removal, collection, and disposal of debris following a disaster, to mitigate against any potential threat to the health, safety, and welfare of the impacted citizens and business owners, and to expedite recovery efforts in the impacted area, and address the immediate threat of significant damage to improved public or private property. Purpose: 1. To provide organization structure, guidance, and standardized procedures for clearance, removable, and disposal of debris after a large scale debris-producing event. 2. To establish the most efficient and cost effective methods to resolve disaster debris removal and disposal issues. 3. To expedite debris response efforts that will provide visible signs of recovery designed to mitigate the threat to health, safety, and welfare of city residents. 4. To develop coordination and partnerships with outside agencies to assist with debris removal and cleanup activities. Concept of Operations: The City of Atlantic Beach will use a debris management contractor and sub-contractors to coordinate the clearance, collection, reduction, and disposal needs following a disaster. ABPW (Atlantic Beach Public Works department) personnel will oversee the overall debris management operations in Atlantic Beach to ensure that all requirements are being met, coordination with other agencies is occurring, and the appropriate documentation requirements are met. Due to the close proximity with a large metropolitan city, it is necessary to have a pre-event debris management contractor in place prior to an event to ensure adequate resources are available. Situation: Natural and man-made disasters precipitate a variety of debris that includes but is not limited to such things as trees, building and construction material, sand, gravel, vehicles, personal property, etc. Being the City of Atlantic 55

57 Beach is located on a barrier island, it is probable that the greatest risk and damage from debris will be from wind and water resulting from an Atlantic basin hurricane and associated tornadoes. Issues: The quantity and type of debris from any particular disaster is a function of the location, kind of event, as well as the magnitude, duration, and intensity. The quantity, type, location, and area over which debris is dispersed directly impacts the type of collection and disposal methods used, the associated cost incurred, and the speed at which the problem can be addressed. Coordination: Atlantic Beach Public Works Department (ABPW) will coordinate with the debris management contractor, the City of Jacksonville, FDOT, and other State and Federal agencies during response and recovery operations to ensure requirements are met, plans are followed, and temporary or permanent debris disposal sites are identified and coordinated. Debris Management Contractor: The City of Atlantic Beach contracted with XXXXXX Inc., a debris management contractor who is based in XXXXXX Florida for disaster recovery services for XXXX years with a XXXXX single year extension clause. XXXXXX Inc. was selected in XXXX based on experience, recommendations of work performed by other entities, resources available, and other factors. XXXXX Inc. also has capabilities to assist with other storm related issues. Legal Responsibilities: Section 403 and 407 of the Stafford Act and Title 44 CFR sections and 225 provide criteria for determining eligibility of debris activities and supplemental assistance from FEMA for debris related activities. Under the City of Atlantic Beach Code of Ordinances, Part II, Chapter 2, Article VII, Civil Division 2 Comprehensive Emergency Management Plan, the authorities of the city related to debris removal during a declared disaster. B. Responsibilities The Atlantic Beach Public Works Department (ABPW) with assistance from the Police Chief (Emergency Management Coordinator) will be responsible for developing and coordinating the Debris Management Plan within the MCEMP and ensuring the plan is kept up to date. Annual training and a review of the Debris Management Plan and other sections of the MCEMP for Public Works as well as other City personnel will occur to ensure that prior to an event; personnel understand their responsibilities and duties. During a large scale event, debris management will be the responsibility of; and assigned to; the Atlantic Beach Public Works Department, a division operating in the City ICS system. Duval County is divided into four areas with the City of Atlantic Beach utilizing a unified command structure as part of the Beach Complex. The complex operates as a multi-agency coordinating group including Neptune Beach and Jacksonville Beach. The City of Atlantic Beach utilizes a separate debris contractor from any of the surrounding cities. Specific responsibilities include: Emergency Management Coordinator (Police Chief) 56

58 The Emergency Management Coordinator is responsible for staffing the Incident Command Center and establishing a unified command to manage the overall incident. Responsible to conduct annual review of the CEMP and to ensure debris training for PW personnel is completed. Responsible for SITREP (situation report) for the entire city including debris. Unified Command The Incident Commander or Unified Command and the designated safety officer as well as the PW supervisor overseeing debris operations, is responsible for ensuring the safety of all personnel operating within the Debris Management section. They will ensure safe practices are followed, proper equipment is used, and safety measures are in place to protect the workers and environment. As soon as possible after an event, damage assessment teams (Building/Public Works) will conduct a quick initial assessment of all of the zones to determine the damage, which includes an estimate of debris. Ensure needed supplies are provided to PW division including Debris management staff. Responsible for overall safety issues. Assist with public information related to debris management issues. Atlantic Beach Public Works (ABPW) ABPW administration will be responsible for staffing all assigned positions in the ICS system related to debris management. They will also be responsible for supplies, funding, equipment, and documentation. ABPW will coordinate and oversee all debris management operations and activities prior to and following a disaster. Maps and drawings will be available to assist in coordinating activities and an IAP developed related to debris management for the event. In addition to ABPW staff members within the ICS system, a debris manager, debris monitor, and tower monitors will be provided to coordinate activities, oversee operations and documentation of debris, load tickets and other information during the process. Additional contract monitors may be needed. A Notice to Proceed and Scope of Services will be developed by ABPW with the debris contractor, prior to activities, outlining the debris plan, disposal sites, associated cost, schedule, documentation, and other issues. ABPW crews will conduct an estimate based on the initial damage assessment to determine the location, type, and amount of debris generated from the incident. ABPW will identify debris plans and potential TDSRS (temporary debris storage and reduction site) for a minor, medium, and catastrophic debris event as needed. They will also identify and address any air quality issues, environmental permits required, and land variances needed related to a TDSRS located in Atlantic Beach. 57

59 Procedures and training will be conducted by ABPW and implemented for debris monitoring personnel, locations, inspections stations and the use of load tickets. TDSRS sites will be identified and removal/chipping/recycling activities developed and coordinated as required by ABPW based on the event. ABPW and the debris manager will develop a traffic plan for debris removal routes and TDSRS sites. ABPW assigned debris manager is responsible for estimating the quantities and type of debris, and all required documentation related to the debris management program. This includes personnel, units, equipment, costs, etc. At the end of each IAP period an activity sheet and situational report will be turned into Command and the Finance Officer. ABPW monitors, assigned to debris management, are responsible for monitoring loading, loads, safety at the sites, and documentation requirements. ABPW and the debris manager will coordinate debris activities with Jacksonville s Public Works Division and Solid Waste Management. ABPW will assist the PIO officer for the incident in developing public information related to debris operations, schedules, and pick-up within the city limits. These may be in the form of press releases, flyers, information on the city web site, or by use of a city information line. Responsible for emergency debris response crews. ABPW Debris Management Staffing: a. Debris Manager (PW staff)- Oversees the debris operation including TDSRS and documentation/permit requirements. The debris manager coordinates with contractor, crews, and other outside agencies b. Debris Monitors (Streets Division.)- Monitors contractors, schedules, zones, and load documentation. c. Emergency Debris Crews (Streets Division.)- responds to emergency debris removal issues. d. Tower Monitors (Water Plant Division)- Oversees the loads/tickets. e. Contractor Debris Crews- Responsible for loading, transporting and sorting debris based on the agreed upon services provided. Debris Contractor Responsible to assist ABPW in developing a Notice to Proceed and Scope of Services. The Debris Contractor is responsible, under the ABPW Division Debris Manager, for coordinating all sub-contractors activities related to removal, loading, transportation, and or reduction/disposal of debris. Responsibility to provide equipment and supplies to debris sub-contractors. 58

60 Finance Officer Event costs and project worksheets will be kept and coordinated by the Finance Officer. The Finance Officer will complete the Public Assistance Initial Damage Assessment form identifying the estimated amount of debris and other information and forward to Duval County EOC to assist with determining a declaration of disaster. Assist ABPW with FEMA (Public Assistance) reimbursements for debris management. Planning and Development The Planning and Development Department will assist ABPW (debris section) in identifying hazardous areas related to flooding and wind damage and in developing mitigation programs to reduce their potential future impact. City of Jacksonville The City of Jacksonville (Duval County) will be responsible for providing temporary TDSRS or permanent landfills that are available for the City of Atlantic Beach to utilize for debris sites, if the City of Atlantic Beach s sites are not functional. This will be coordinated with the debris contractor and the City of Jacksonville PW Department as well as the Solid Waste Division. C. Debris Management Operational Plan Strategies 1. Operational Plan: Debris management will fall under ABPW. The operational plan for debris management for the city will be based on the IAP developed for each event and will follow the NIMS ICS organizational structure. The debris plan is one objective of the overall strategy of the city to mitigate the emergency, although it may be the most costly. As soon as possible after the incident, the initial damage assessment teams will evaluate and assist the debris manager in estimating the type and amount of debris generated. An IAP with specific goals will be developed for specific time period. The MCEMP outlines responsibilities for each division and specific groups such as debris management to ensure that response and recovery phase is efficient, coordinated, provides adequate communications (cell phones, satellite phones, 800 MHZ radio, and mutual aid frequencies), safety standards are met, equipment and resources are provided, financial impacts are planned for, food, water, sleeping, sanitary needs, medical attention, and medical needs of workers are met. ICS Structure for Debris Management AB Unified Command Safety Public Works Streets Division Water Plant Div. Tower Monitors Emergency. Debris Removal Debris Monitors 59

61 Debris Mgmt. Manager Debris Contractors 2. Contractual and Cooperative Agreements: Pre-event communication should be made by ABPW to ensure the debris management contractor is aware of the potential impact and has made contact with sub-contractors to pre-stage if needed. ABPW staff should determine the type and method of contracting needed Communication should also be made with other local and state agencies as needed. a. Determine the type of contract to use: Time and materials- Should be limited to a maximum of 70 hours and only after State and local equipment has been committed. The contract should state the price for equipment only applies while operating and the hourly rate includes the operator, fuel, maintenance and repair. No number of hours is guaranteed and it can be terminated by the City at its convenience. Lump sum- The price of the work is fixed unless there is a change in the scope of work to be performed. Lump sum contracts will be calculated on the area or pass method. This contract should only be used when the scope is clearly defined and areas of work specifically quantified. Unit price- This method is based on weights (tons) or volume (cubic yards) and is used when the scope of work is difficult to define and use estimated quantities. It is the most accurate method. Loads and trucks must be measured and monitored. This method requires load tickets identifying the truck, contract number, contractors name, date, time, departed site, and estimated volume. b. Develop a Notice to Proceed agreement with the debris management contractor outlining the scope of services to perform, cost, payment method, etc. c. Coordinate the use of any of the city TDSRS, recycling, reduction and permanent land sites within the City of Jacksonville. 3. Determine Debris Collection/Removal Priorities: Based on the type of event, priorities will be developed for the clearance, collection, reduction, transportation, recycling, and disposal of debris. The debris collection/removal process will be coordinated and orderly to protect public safety. The following are the general debris priorities that will normally be followed but should be broken down in the Response and Recovery phases. (See Debris Zone map below) a. Key roadways necessary to get emergency equipment and crews into the impacted areas in the City of Atlantic Beach. b. Key major roadways such as Atlantic Blvd., A1A/Mayport Rd., Wonderwood Expy. 60

62 c. emergency services response will take priority of road clearing collection/removal when necessary to protect public safety. d. The police station, fire station, PW/utilities facilities, and city facilities. Routes to support Search/Rescue activities. e. Roadways and curbside in debris zones (see zone map) for residential and businesses as determined by the IAP. f. Other designated areas. 4. Determine Debris Type or Classification: To facilitate debris management, debris will be segregated by type. Debris removed will consist of two broad categories (clean woody debris and construction/demolition debris). Most common hurricane generated debris will consist of 30% clean woody material and 70% C&D. Of the 70% C&D, it is estimated 42% is burnable but requires sorting, 5% soil, 15% metal, and 38% landfill material. This plan envisions all C&D goes to a permanent landfill in Jacksonville. a. Debris Classifications: Burnable Materials: Is classified into two types (vegetative and C&D), however Jacksonville anticipated only vegetative debris will be burned and then only at Cecil Field. Burnable Debris: Includes, but is not limited to, damaged and disturbed trees, bushes and shrubs; broken and severed tree limbs; and bushes. Burnable debris consists predominately of trees and vegetation. It does not include garbage or construction and demolition material debris. Burnable Construction Debris: This debris consists of non-creosote structural timber, untreated wood products, and other materials designated by ABPW. Non-burnable Debris: Non-burnable construction and demolition debris includes but is not limited to creosote timber, plastic, glass, rubber and metal products, sheet rock, roofing shingles, carpet, tires, and other material. Garbage will be considered non-burnable. Stumps: Stumps will be considered tree remnants exceeding 24 inches in diameter; but no taller than 18 inches above grade, to include the stump ball. Only stumps considered hazardous are eligible. Ineligible Debris: Ineligible debris should be left in place and includes but not limited to chemicals, petroleum products, paint, asbestos, and power transformers. Hazardous or Toxic Waste: Any material classified hazardous or toxic should be reported to ABPW (Debris Manager) and Jacksonville Solid Waste Division. This material should be segregated from the remaining debris in such a way to allow the remaining debris to be loaded and transported. Standing broken, damaged, or downed utility poles should be reported to JEA. Safety procedures should be observed and due caution exercised when working around debris and any situation that poses a health or safety risk to workers on site or the general population should be promptly reported to the supervisor. 61

63 b. Estimating Debris Quantity: The formula for estimating debris quantities is: Q=H(C)(V)(B)(S). H (Household) = Population/3 (# in household) C (Category of storm) = Factor (See table below) V (Vegetation Multiplier) = Factor (See table below) B (Commercial Density Multiplier) = Factor (See table below) S (Precipitation Multiplier) = Factor (see table below) Hurricane Category Value of C Multiplier 1 2CY 2 8CY 3 26CY 4 50CY 5 80CY Vegetative Cover Value of V Multiplier Light 1.1 Medium 1.3 Heavy 1.5 Commercial Density Value of B Multiplier Light 1.0 Medium 1.2 Heavy 1.3 Precipitation Value of S Multiplier None to Light 1.0 Medium to Heavy 1.3 Once the amount of debris has been estimated, the City may provide a TDSRS (temporary storage and reduction site) in Atlantic Beach, transport the debris to a temporary site in Jacksonville or transport the debris to a final dump site. The following method may be used to determine the size needed for temporary storage. The debris pile should be stacked to a height of no more than 10 feet. 60% usage of the land area should be devoted to roads, safety buffers, burn pits, household hazardous waste, etc. 62

64 10 foot stack height = 3.33 yards. 1 acre = 4,840 square yards (sy). Total volume per acre = 4,840 sy/acre x 3.33 y = 16,133cy/ac 5. Debris Disposal and Reduction: Three methods of disposal of debris are burning, recycling, and grinding/chipping. a. Grinding/chipping- Grinding and chipping may be used as a method for reduction. This process reduces the volume on a 4 to 1 ratio. b. Recycling: Recycling reduces mixed debris volume before it is hauled to a landfill. While there may be an economic value, the downside may be the potential environmental impact for the recycling operation. Recycling should be considered early on in the removal and disposal operation. Suitable materials may include the following: Metals: Most metals either ferrous or non-ferrous are suitable for recycling. Metals can be separated using an electromagnet. White goods are major household appliances that may be recycled, however in most cases these will be transported to a permanent site or landfill in Jacksonville. Soils: Cleanup operations often pickup large amount of soil. Large amounts of soil can be recycled if the material is put through some type of screen or shaker device. Monitoring of the soil may be necessary to ensure it is not contaminated with chemicals. Wood: Wood material can be either ground or chipped into mulch. Construction materials: Concrete block and other building materials may be ground and used for other purposes, although most will be transported to a permanent landfill. c. Controlled Burning- This is an effective method for reducing clean woody debris in rural areas. Burning reduces the volume by 95%. Reduction by burning will normally not be conducted in Atlantic Beach. 6. Debris Management Sites: (temporary debris storage, reduction, and final disposal sites TDSRS) TDSRS Atlantic Beach: State pre-approval for use as waste site. a. Small event-. b. Medium Event-. TDSRS Jacksonville: a. Large Event- Transport vegetative debris to closest TDSDS in Jacksonville such as Craig Field Airport off Atlantic Blvd (21 acres). Permanent Landfills in Jacksonville: a.. b.. 63

65 7. Monitoring: Monitoring debris removal and management should follow FEMA guidelines. A ABPW representative (Debris Manager) will oversee all operations. An elevated inspection station should be established with proper records kept (load tickets, unit number, weight, amount) of all debris picked up/deposited and transported. ABPW (Streets Division) Monitors will be at the loading sites as well as personnel at the tower on site and at the temporary storage and reduction site to determine the quantity of material being hauled, type, to maintain proper documentation. The monitor will fill out the necessary information (load ticket) for each load. (See load ticket). 8. Site Remediation/Closure: During the debris removal process and after the material has been removed from the site, environmental monitoring will need to be done before closing the temporary site. Restoration to its original condition should be attempted. Constant monitoring of air quality, random soil samples, as well as water samples should be taken. The site should be checked for volatile organic compounds and fuel spills. At close-out, final testing of soil, water, and air quality should be conducted and compared with the original conditions. All ash should be removed and any remediation actions taken. 9. Debris Removal Responsibilities: The City, their designee, or contractor, will be responsible for removing and disposing of any wide spread debris, generated during a disaster on public land, public or private roadways, or roadways in gated communities that is determined to be a public threat to health or safety as determined by the City Manager. During emergencies and disasters, Article VII; The City s Civil Emergency Ordinance, allows certain designated emergency powers for a variety of issues including the right of access to private roads and easements and/or gated communities related to debris removal for the purpose to alleviate immediate threats to public health and safety. In addition, the ordinance provides to indemnify and hold harmless the city, their employees, agents and contractors for damages of any type by obtaining a right-of-entry permit and agreement from private and gated communities prior to any debris removal. The City is not responsible for removing debris from private or commercial property unless it is in the public right-ofway. However, the City may remove the debris if the removal is required to lessen an immediate threat to life, public health and safety. The determination will be made by the City Manager and Mayor on a case by case basis. 64

66 A City of Atlantic Beach hold harmless agreement will be utilized for removing disaster generated debris from private property or gated communities. Legal authority for condemnation and nuisance abatement for private and commercial property, if required, will be enforced by the Planning and Development Department and is based on the Florida Building Code and International Property Code as adopted by City Ordinance. For private property, debris removal will normally be the responsibility of the owner and insurance company. However, during major disasters, enormous quantities of debris over a widespread area may create an immediate threat to the public. FEMA may fund debris removal from private property in a designated area if it is determined to be in the public interest pursuant to 44CFR This is done on a case by case basis. Commercial property is generally not eligible. Written approval from the FCO (Federal Coordinating Officer) is required for FEMA funding for private property based on the following. - A written request to the Federal Coordinating Officer should be made by the City of Atlantic Beach requesting reimbursement prior to commencement of debris operations. - The request should include the determination of a threat to life, public health, or safety: or an immediate threat to property determination; or the basis for the determination of debris removal will expedite economic recovery of the community-at-large. - The request should include legal responsibilities of the city at the time of the disaster to enter private property and all legal processes and permissions have been satisfied. This will also include the condemnation and nuisance abatement process. - The City s responsibility to take action for an immediate threat to life, public health, and safety is independent of any expectation for FEMA reimbursement for debris removal on private property. In addition the request indemnifies federal employees, agents, and contractors from claims arising from debris removal. Long term recovery operations will provide information to private and business owners as to any assistance they may qualify for under the FEMA Individual Assistance program. This may include abandoned vehicle or vessels if they create a hazard. 10. FEMA Public Assistance (Category A)- Includes all storm induced debris on public roads, including the rights-of-way, public waterways, other public property, and private property when undertaken by local government forces.. Cat-A will also cover the cost of demolition of public structures if they were made unsafe by the disaster. 11. Documentation- Documentation meeting local, County, State, Federal, and FEMA guidelines will be necessary to coordinate and record activities as well as eligibility for Federal reimbursement. Debris removal and clean-up is eligible for 65

67 reimbursement under the Public Assistance Program from FEMA if a Presidential Disaster is declared. If not a declared disaster, FHWA Emergency Relief may be available for the first push and pick-up. Documentation will be kept of all equipment used, personnel, debris sub-contractors used, load tickets, and other related information. A financial tracking system for city personnel and equipment will be kept by the Finance Officer for each division, however it is the responsibility of ABPW (Debris Management staff) will track all debris related costs. The ABPW Department (Debris Manager) will monitor daily activities of personnel, equipment, and turn the report into the Finance Officer. The Debris Monitors are responsible for completing a load ticket or electronic ticket for all loads (See below). In addition to other city financial responsibilities, the Finance Department is responsible to meet financial obligations to the contractor. * Example of a Load Ticket 12. Public Information Plan: Information should be released to the public related to debris management operations. Once the debris plan is completed, information will be passed on to the public through the PIO or designated member through the media, flyers, city web page, or designated City information number. Information should include the following: Pick up schedule and number of times will pick-up. Route or zones. What debris is eligible? What type of material and should it be separated. How long will it take? Questions related to debris pick-up by contractor or private disposal. 66

68 Where to call for more information. 13. Debris Management Phases: Planning/Preparedness - These activities ensure issues related to debris management are addressed prior to an event. They include items such as: a. Pre-event contracts with Debris Management Contractor. b. Reviewing/updating the MCEMP and Debris Management Annex. c. Ensuring mutual aid agreements are current. d. Identifying mitigation efforts e. Identifying potential storage sites. f. Identifying critical routes, updating maps and zones. g. Conducting training and developing a large scale hurricane and debris exercise. h. Identifying and coordinating with appropriate regulatory agencies. i. Develop any new right of entry and hold harmless agreement for private property, indemnifying the city from potential claims. j. Identifying and developing pre-scripted public information announcements. Response- Includes activities immediate post storm. a. In many cases, prior contact with the debris contractor is not possible, however in the event of a potential hurricane impact, contact should be made with the Debris Management Contractor to begin planning for the deployment of services. b. Activate debris management activities and determine a debris strategy including a list of priorities. c. The first 72 hours following the return of key personnel and initial assessment, debris removal by the contractor will focus on clearing key roadways and infrastructure for emergency personnel and equipment. This time frame may be 100% reimbursable from FEMA. Based on damage, this phase may not include any pick-up of debris. In some cases, access roads to areas outside of the city will need to be cleared to allow JEA Services to begin restoring power. d. A transition will be made from the push or clearing phase to the pick-up phase. After the initial phase of opening up key roadways, a schedule should be established and communicated to the public for curb/street pick-up of debris. A schedule will need to be developed to determine the number of times that contractor will pick up debris. Debris picked up and transported to the local holding site will be segregated and burned/chopped and/or transported to a permanent disposal site. Private communities, will require a Right of Entry Permit and Hold Harmless Agreement prior to removal activities. 67

69 e. A local area used for the temporary debris reduction and collection of debris should be identified and established. This site should be easily assessable, screened for unapproved waste, and ensured that an elevated inspection station is established and debris monitored. Temporary debris collection and reduction sites should be readily accessible and on public property when feasible. Based on the event, the site may be located in Atlantic Beach or another determined close proximity location in the City of Jacksonville. f. Ensure all environmental permits are obtained. g. Documentation of all associated costs should begin. h. Address any legal, environmental, or health issues relating to the debris removal process. i. Establish a Incident Safety Officer to ensure that safety issues are addressed related to debris management and the overall incident. Supervisors assigned to debris management should ensure proper safety procedures are used at the loading sites, at the TDSRS site, and other related areas. - Proper clothing, foot wear, and eye protection should be worn to prevent accidents. - Proper safety polices as required by city and state requirements should be followed. - Workers should use caution while using heavy equipment, around downed power lines, or other hazards. - The safety officer and supervisor assigned will be available to address incident safety issues and should be contacted if any situation that poses a health or safety risk to workers on site or the general population. j. Keep the public informed of the debris strategy including times, routes, debris separation, etc. Recovery- Is a transition phase where the city continues to collect, store, reduce, and dispose of debris generated form an event in a cost-effective and environmentally responsible manner. a. Continue to document costs. b. Close our temporary debris storage sites by implementing the necessary site restoration actions. c. Perform the necessary audits, complete applications and forms and submit claim to FEMA for reimbursement. Mitigation- Mitigation are those efforts that are done prior to an incident that might help prevent or minimize future damage and may include the following issues that might impact debris. a. Regulate development in flood prone areas. b. Ensure drainage is adequate. c. Utilize building codes to improve construction methods. 68

70 d. Inform the public of methods of debris mitigation. D. Debris Operations Check List Prior to the storm contact the Debris Contractor. 1 week pre-storm, put Debris Contractor on Stand-by. Develop/negotiate scope, cost, and Notice to Proceed Agreement. Establish debris manager and review all procedures and documentation. Assign monitors, tower monitors, and emergency debris crews and ensure they understand their responsibilities. Review and provide documentation of personnel, equipment, loads, and utilize required forms on a daily basis. Complete daily SITREP (situation report) on progress. Assess the initial amount, type of debris, and a cost estimate for debris removal and provide to IC and Finance Officer. Coordinate with Jacksonville Public Works on debris issues. Develop strategies and plan for the debris project: Estimate amount and type of debris. Determine TDSRS sites. Develop traffic control plan for routes and TDSRS sites. Develop pick-up strategy/schedule using zones map. Ensure all environmental permits are obtained. Determine method of disposing: burning, mulching, dump or recycling of debris. Determine final destination of debris (landfill). Tower location and procedures. Address Separation of material. Monitors. Measurements of trucks. Load Tickets. Loads (how to measure). Communication with debris manager, site and tower monitors, and emergency debris response crews. Contact and coordination of debris procedures with FEMA representative. Develop priorities and develop plan to clear roadways and areas during the initial Push Phase. May require assistance to clear roadways for JEA personnel to restore power outside of the City of Atlantic Beach. Ensure all loading is done mechanically. Ensure all loads are monitored at the site and at the tower. 69

71 Ensure the load tickets and tower records match daily. If debris at a gated community is included, ensure Rights-of-Entry and Hold Harmless Agreement is obtained. Notify the public of the debris pick up schedule (number of passes) and other related information. Use PIO assigned. Determine what roadways are Federal roadways and coordinate debris removal if necessary with FDOT. Critique daily and after the event. Ensure all daily documentation is completed. Coordinate with local, County, State, and FEMA representatives. Document all correspondence concerning the project. E. City Debris Zones/Map The City of Atlantic Beach will set up debris zones on the City map that will correspond with search/rescue and assessment zones. The exact plan for the initial push will follow the general priorities as listed in the plan, however the plan may need adjusted based on the incident and related damage. *REPLACE US NATIONAL GRID MAP BELOW ANNEX IV. RESOURCE MANAGEMENT A. Introduction Resource Management involves planning, coordinating and overseeing the application of resources such as tools, equipment, facilities, personnel, processes, and systems that provide the incident commander (IC) or unified command (UC) with timely and appropriate resources to adequately manage an event or disaster. It provides a uniform method for identifying, acquiring, allocating, and tracking resources and ensures effective mobilization and demobilization of resources. B. Responsibilities In most major emergencies or disaster incidents, a logistics officer or section will be staffed after establishing a command post. Logistics will be responsible for coordinating the resource needs of the incident, managing/ordering resources, and resource documentation. This section will coordinate with Operations and Planning section (if staffed) and the IC/UC. Financial needs, payment methods, and requests and documentation will be coordinated with the Finance section. A local staging area will be established to deploy and coordinate local resources. Documentation of resources in/out of the local staging area will be documented by Logistics and the staging officer, if assigned. 70

72 During incidents where a Beach Complex has been established, all requests for outside resources (except prior contractual/aid agreements ie., Debris Management, FMEA- electric association) from any of the three beach cities will be coordinated through the Beach Complex (Unified Command) to Duval County EOC. The Beach Complex may be located at a pre-determined site. A staging area for all Duval County resources will be established at Cecil Field, except for agencies having prior contracts/mous. If MOUs have been established, contractors will proceed directly to the assigned location/city. A staging area may be established at or near the Beach Complex or resources may be directed from the main staging area (Cecil Field) to a specific area at one of the beach cities (ie. send 1,000 gallons of fuel to Jax Beach staging area, 500 gallons to Atlantic Beach and 500 gallons to the Neptune Beach staging areas). Resources ordered or coming through the Beach Complex will be documented using the Incident Resource Tracking Sheet. All requested resources by any of the beach cities should be routed through the Beach Complex to Duval County EOC. All personnel or resources reporting to or assigned to Atlantic Beach or another beach city during a disaster (where the area has been secured) must have some form of ID indicating who they are, purpose, and/or a state assigned resource number. Freelancing will not be permitted. All resources must be accounted for and assigned to Atlantic Beach for safety and tracking purposes. Points of distribution (PODs) will be established at the pre-determined sites (see COJ Bulk Distribution ICP) to distribute water, blue tarps, and other supplies. Items distributed will be for local residents to assist during mitigation. POD sites will usually be staffed by personnel from state-wide mutual aid. The POD sites may need local law enforcement assistance for security and crowd control. C. General Resource Information 1. Priorities: When additional resources are needed, the following priorities should be utilized when requesting resources: Local resources (within jurisdiction) Mutual aid with other agencies or cities Contracts with outside companies (ensure cost is agreed upon) Volunteers (must be coordinated through the command post) County resources through Duval County EOC State Resources (State Mutual Aid) through Duval County EOC Federal Resources through Duval County EOC Donations: Donations can be very effective, however they must be managed. Ensure that the public understands what specifically is needed and where it can be sent. 71

73 2. Resources: When requesting resources the following categories can be used as well as the specific type. Resources may also be grouped into a task force (group of resources with common communications and leader) or strike teams (specific combination of similar type and kind of resource). Personnel (type: fire, law enforcement, etc) Facilities (temporary, fixed, etc) Equipment (chain saws, heavy equipment, cranes, dozers, generators, etc) Vehicles (boats, ATV, helicopter, etc) Teams (USAR, medical) Supplies (food, water, ice, port-a-lets, fuel, clothing, etc) Special 3. Ordering and Requesting Resources: Resource needs should be evaluated and decisions made based on immediate and future needs. While some resources may be obtained locally, much of the on-going needs will have to be requested through Duval County EOC. Typically, most outside resource requests will not be available the first 72 hours, unless previously staged in close proximity. The first priority of logistics will be to establish a staging area, provide supplies, re-establish an emergency support facility (command post and staging area), and to provide shelter and support for the initial rescue workers. Other key priorities will be to re-establish communications. During the daily planning meeting with the command staff, Logistics should be reviewing and making plans for needed personnel, food, shelter, fuel, special equipment, communications, etc. Cecil Field will be a staging area for logistics in Duval County during a large scale incident. A staging area for Atlantic Beach should be established. Work schedules should also be developed by each division or department and coordinated with the Logistics section to assist in determining personnel needs. A list of vendors, equipment suppliers, important phone numbers, etc., should be kept and updated annually in a resource manual for departmental resource needs. The Logistics section, as soon as the section is staffed, should develop additional resources information, even if it is prior to the event. Small Incident- Small incidents that do not require a large scale evacuation can usually be handled by using local mutual aid agreements and resources purchased locally. During a small incident, all of the IC staff positions may not be initiated and instructions on purchasing will be made by the IC/UC to the person assigned as logistics support. Large Scale Incident- For large scale incidents, requests for resources not obtained locally, will be requested by the Logistics section to Duval County EOC Operations. If a Beach Complex has been established, all requests will be made through the Beach Complex to Duval County EOC operations section. All three beach cities will coordinate resources through the Beach Complex to Duval County EOC Operations. 72

74 4. Communications: The key to successful operation of the various resources is operable communications. This is between the command posts, complexes, EOC, vendors, contractors, and rescue personnel and workers. A network of phone numbers, radio channels, and satellite phone numbers should be established and maintained by the command post for distribution to the command staff. Until the Atlantic Beach 911 Communication system is re-established, the 911 emergency system will be coordinated through the Jacksonville 911 Communication Center. Interoperability with other agencies and departments or mutual aid assistance should be established as soon as possible. 5. Typing Personnel and Equipment: In order to effectively manage mutual aid, resource typing was developed to provide information needed to request and receive resources during an emergency or disaster. Resources are classified by Category which refers to function and Kind, to include teams, personnel, equipment, and supplies. Information about level of capability is referred to as Type, which is a measure of minimum capabilities to perform the function. Type I implies a higher capability than Type II. See the State of Florida Emergency Response Plan (SERP) for typing needs. There are eight groups identified in the National Incident Management System (NIMS). Animal Health Emergency Management Resources EMS Health and Medical Fire and Rescue Law Enforcement Public Works Search/Rescue 6. Demobilization: Demobilization involves the release of resources that are no longer required for the support of an event. This may occur during an incident/event or after it is over. 1. General Information No resources will be demobilized until authorized by the section commander and the IC/UC. All demobilized personnel will be transported to the assigned staging area and checked out. Supervisors will be briefed prior to demobilization on current issues. All equipment/apparatus will be accounted for and turned into the staging officer. Release of outside resources will be coordinated with the logistic officer at the command post, the Beach Complex, and Duval County EOC. Crews from other regions will be grouped for demobilization if possible. 73

75 All resources will meet work/rest requirements as determined by the logistic officer, based on their previous activity, prior to being released. The staging officer will document the date and time units are released on the Incident Resource Tracking Sheet and advise Logistics. For a large scale incident, a separate demobilization tracking sheet should be developed and maintained by the Beach Complex and the Logistics section in Atlantic Beach. 6. Documentation: All resources that are utilized in an incident/event whether Atlantic Beach resources or those requested/received should be accounted for and documented. This will be the responsibility of each department as well the Logistic and the Finance section. Atlantic Beach personnel and equipment used during an incident will be recorded on the Cost Tracking Worksheets. These are worksheets and information sent out by the Finance Department for each department to document and track expenses related to an event. (Includes: Force Account Labor Summary, Equipment Summary, FEMA Equipment Rates, Materials Summary, Rented Equipment Summary, and Contract Work Summary). All resources ordered or coming through the Beach Complex and/or Atlantic Beach will be documented using the Incident Resource Tracking Sheet. All outside resources requested by the beach cities should be coordinated and routed through the Beach Complex to Duval County EOC. 8. Reimbursement: It is critical that good documentation is done during an incident in order for FEMA reimbursement. The initial damage assessment is conducted to assist in getting the event a declared disaster as well as documenting the damages during an event. If possible, digital pictures will assist in the process. The Finance Officer, with assistance from each department head, is responsible for providing the necessary documentation and completing the necessary FEMA paperwork. ANNEX V. POST-DISASTER RECOVERY AND REDEVELOPMENT PLAN A. Introduction Like all cities in Florida, Atlantic Beach is not immune from disasters. Over the past few years, major flooding, tornadoes, wind damage, and tropical storms have destroyed neighborhoods, businesses, public infrastructure, and caused major beach erosion throughout Florida. Once the immediate threat from a disaster has passed and the primary effort of protecting citizens from harm has been addressed, it is critical to ensure the rapid yet orderly recovery of the community. There may not be a clear cut transition from the Response or the Emergent phase to the Recovery phase. Recovery is usually broken down into two phases, short and long term. Once the initial services have been restored, the process of long-term recovery and redevelopment will begin. The Post- Disaster Recovery and Redevelopment Plan is a guide for the transition from response to long term recovery; effective disaster 74

76 assistance to impacted businesses and individuals, housing concerns, reconstruction activities, land use and mitigation initiatives. Due to the identified vulnerabilities of a coastal community such as Atlantic Beach, the primary focus is toward recovery from wind, flooding, and storm surge resulting from tropical storms or hurricanes. Long-term recovery and redevelopment plans will be consistent with the City s Comprehensive Plan, Local Mitigation Strategy (LMS), other areas of the Municipal Comprehensive Emergency Management Plan (MCEMP), Duval County s Post Disaster Re-development Plan, and any other applicable codes or statutes. 75

77 Short-Term Recovery: Short-term recovery is a transition from the command and control, coordination, and resources phase to a more deliberative process of restoring service delivery, utilities, infrastructure repair, and initial debris management. This phase may last from weeks after the disaster to months, based on the disaster. Long-Term Recovery: The long-term recovery and redevelopment phase begins as short term recovery efforts are completed and will include efforts to reconstruct and enhance the built environment as well as recover the economy, environment, and social system. This can be an opportunity for the City to build back with more resiliency, to fix past mistakes, and to move forward with planned community improvements. B. Overview of Expected Problems (excerpts from FEMA; Recovery From Disaster, the Local Governments Role ) The problem of recovery in the aftermath of a major disaster can be the most difficult to manage and coordinate in any phase of emergency management. A large number of agencies, public and private, participate in the recovery process. To help understand the environment that the recovery process must operate under, an overview of expected problems is presented below: Population- Generally most of the impacted population will handle the disaster and can work through the difficulties and bureaucratic systems, however about 10% will have significant problems needing major assistance. The aged, infirmed, economically challenged, young age group, families surviving on two incomes, low-income renters, and others may require significant help to survive through the recovery period. The response and recovery effort can also bring with it an army of workers from distant states. Often the community is ill-equipped to accommodate this work force, even on a temporary basis, and social displacement, if not outright hostilities, can result from these stresses. Government can be overwhelmed with administrative requirements and struggle with inspections, certification, permits, and providing enforcement of standards during this period. Schools- They care for, educate, and can provide counseling services to the students and faculty who often do not understand the dynamics of change and impact on their families. Schools often underestimate the significant role they play in most communities. Schools serve as shelters, sources of community gatherings for people with common interests, social and community sources of information impacting everyone. Schools are often the only place to rally people resources when needed. Disasters magnify the role of schools not only as shelters, but as focal points where a community can mobilize for the common good and as a means of restoring normalcy to the community. Facilities- Public, private, and private nonprofit facilities that are damaged or destroyed are visible and the operational loss to the community or businesses is immediately felt. Repair, reconstruction, and cost are major priorities. Insurance 76

78 settlements for private and government buildings and facilities are often very complex and involved. Insurance companies desire to hold down costs while the insured want all costs covered up front and everything new. Many insurance policies pay the lender or assignee, not the owner directly and, after settlement, there is a matter of contracting for the repairs. Often nonresident landlords may even abandon their property without cleaning up the debris and local government must undertake the clearing and disposition at great legal expense. It is rare to find anyone prior to the disaster who has any experience in dealing with these tasks. The element of greed will cause some to save money by cutting corners and, on the opposite side, the supply and demand for goods and services may dramatically increase costs. Regulations- Federal regulations impact the rebuilding of communities; e.g. the Uniform Relocation Assistance and Real Property Acquisition Policies Act, Bacon-Davis Act, Copeland Act, and Contract Work Hours and Safety Standard Act, Flood Disaster Protection Act, National Environmental Policy Act, Coastal Zone Management Act, Clean Air Act, Safe Drinking Water Act, Endangered Species Act, Wild and Scenic River Act, National Historic Preservation Act, Archaeological and Historic Preservation Act, Lead Paint Poisoning Prevention Act, SARA Title III, OSHA, HAZMAT, and the Single Audit Act. Add to these the State and County requirements and one begins to understand why it takes so long to complete reconstruction. Costs- Nothing can be built for what it cost 10 years ago. Billion dollar disasters are routine. All major rebuilding and repairs must consider special needs, new zoning laws, new code standards, new space standards, etc. So, in addition to higher costs for labor and materials, increased standards will modify the construction requirements. This results in the need for careful analysis and planning before contracts and funding arrangements can be developed. It also places a premium on the ability of the owner of the damaged facilities to design, procure, or contract the desired services. Cultural concerns, such as archaeological preservation needs, often uncovered for the first time by the disaster, require time-consuming processes and increased costs. Economy- An urgent need is to provide for the sustainment of the economy within a region or community. Many factors impact the actions required. National, state, and local economies have many variables that can make this seem like an impossible task. During disaster recovery operations, government and construction employment will post increases, while basic private sector industries and small business will decline. The reality of this situation is that these disaster recovery increases are generally temporary, and a gap between unemployment benefits and improvement in the economy to permit an increase in jobs will result. Most of the time, state and local government will show an increase in welfare and serious unmet needs. Victims will normally deplete most available savings and seek assistance from other family members, especially in living expenses and housing. The final reality is that families could find themselves homeless. Declines in family income can occur even if the head of the household has a job. Other family members may themselves be unemployed or second and third part-time jobs may be lost. 77

79 Significant realignments in business often occur after a disaster, which may or may not impact the job market. The recovery period always creates new demands for skills not normally available in the disaster area and retraining becomes a priority. Subsequent Emergencies- The focus of disaster response and recovery operations is on people and property. Many other emergencies occur that need to be dealt with some years after the major disaster has impacted the area. Ecological shifts in habitat can cause significant damage to rare or endangered species, flora, and fauna. These are often difficult to detect and anticipate until it is too late to mitigate. Private and public lands are involved with legal complexities. Flooding will impact streams and beaches. Vast amounts of debris washed into the ocean from inland sources are later washed by the ocean currents back on to the beach, sometimes many miles from their point of entry. Pollution from choked streams and heavily polluted shorelines are health hazards to our citizens and visitors. Beach and shoreline erosion, reef damaged by surf and debris, usually initially very visible, gradually accommodate the shock. Wind damage can produce large amounts of debris. This fuel loading becomes a serious fire concern. Often debris will plug drainage systems, further contributing to the flooding problems that exist. Debris Clean Up- Another concern is how to deal with millions of tons of debris that are generated by a disaster. Not only is this a major concern for public health agencies, but the Environmental Protection Agency has strict rules on the handling of solid waste and hazardous materials. There are new concerns on recycling and reuse of materials that are generated by the debris from major disasters, which can equal 50 years of debris in a few hours. Handling of solid wastes and debris is a serious and expensive problem. Disposal of hazardous materials, building materials, green waste, and enormous amounts of metal is of great concern and requires difficult land use decisions. Costly construction of new landfills may be required and the importance of recycling recoverable materials becomes paramount. Restoration of Utilities- Providing safe drinking water, restoring sewage treatment facilities and restoring power are paramount issues that assist in a speedy recovery but can cause major health problems until repaired. Finance/Taxes- How to pay for the response and recovery costs is a significant concern for all levels of government. The vast majority of costs are paid for by insurance. Governments, already burdened by the soaring costs, now must find the money to pay for the disaster relief. The economy s rapid recovery is most important. All government disaster relief is funded by taxes, whether at the Federal, State, or local level. The City must have funds in reserve and the process in place to address the financial burdens of recovery. Mitigation- Mitigating hazards and lowering risks require tough decisions and choices. Land values reflect the choice to live in highly desirable areas and the cost of mitigating the hazards present in these areas are often paid for in part by the investor, but what about the low-income who cannot afford the more expensive homes and settle in low-cost areas? Low income individuals and families will have the most difficult experience in dealing with a catastrophic loss. Economic Recovery- Many problems can be avoided depending on how quickly economic recovery begins after a disaster. Certainly unemployment insurance, business insurance, etc., help, but they are a temporary substitute for good 78

80 paying jobs and viable lifestyles. Most individuals would take reasonable care of themselves and their families given the opportunity to earn an adequate income during the recovery process. Placing families on unemployment, disaster assistance, etc., has a tendency to reduce the available work force for recovery operations. Recovery demands teamwork, cooperation, and action from all levels of government and the private sector. The National Disaster Recovery Framework (NDRF) is a guide designed to ensure coordination and recovery planning at all levels of government before a disaster, and defines how we will work together, following a disaster, to best meet the needs of states, local and tribal governments and communities and individuals in their recoveries. Recovery Support Functions: The National Disaster Recovery Framework introduces six recovery support functions that are led by designated federal coordinating agencies. Recovery Support Functions (RSFs) comprise the structure for key functional areas of assistance. Their purpose is to support local governments by facilitating problem solving, improving access to resources and coordination among state and federal agencies. The Recovery Support Functions and designated federal coordinating agencies include, Community Planning, Economic, Health and Social services, Housing, Infrastructure Systems, and Natural and Cultural Resources. C. Local Plans Integration The purpose of the Post-Disaster Recovery and Redevelopment Plan, which is a part of the City of Atlantic Beach s MCEMP (Annex V) is to guide the recovery and re-development decision making process following a disaster in a manner to promote rapid recovery while maintaining consistency with the local Comprehensive Plan, MCEMP, Land Development Regulations, Duval County s LMS and PDRP. Atlantic Beach Comprehensive Plan: Future Land Use Element - The Future Land Use element of the Atlantic Beach Comprehensive Plan provides the plan for the future growth and redevelopment of the city, in terms of both location and intensity. Since Atlantic Beach is a substantially built-out community, future development will largely be reflective of existing patterns. All future development and redevelopment must be consistent with the adopted Future Land Use Map and with adopted Future Land Use goals, objectives and policies. Coastal Management Element As a coastal community, Atlantic Beach is required by State statutes to include a Coastal Management element in its comprehensive plan. This element identifies and analyses the coastal resources within and adjacent to the city. It also addresses development within the coastal area, restricting development where appropriate for 79

81 conservation of coastal resources, protecting residents in the coastal area from storm hazards, and limiting expenditures in coastal areas subject to destruction in natural disasters such as major hurricanes. The Coastal High Hazard Area, or CHHA, is also defined in this element. It is defined as those areas within the City that lie below the elevation of the category 1 storm surge line, as determined by a Sea, Lake, and Overland Surges from Hurricanes (SLOSH) model. The delineation of the CHHA for Atlantic Beach is also shown on the Future Land Use Map, and is associated with both the city s Atlantic and Intracoastal Waterway (ICW) shorelines. The Future Land Use Map proposes predominantly conservation, recreation, and open space uses where hazards are considered the greatest. Areas immediately adjacent are generally designated in accordance with their present uses. No areas are proposed to be used for, or converted to, a higher density or intensity of use than is now allowed. Following a major storm event or disaster, reconstruction will be required to meet all appropriate regulations for building within the CHHA, including flood hazard area and coastal zone construction codes. Atlantic Beach Land Development Regulations: The City s Land Development Code (LDC) is adopted to implement the Comprehensive Plan. It is also adopted to provide standards that encourage the most appropriate use of land, water, and natural resources in the city through orderly growth and development. The LDC will have direct implications for redevelopment activities on private property, following a major hurricane or other disaster. Nonconforming buildings that are damaged beyond a certain percentage of their fair market value, regardless of the cause of damage, may not be rebuilt except in conformance with current LDC standards. This standard is generally consistent with the City s adopted Building Code standards and with State coastal zone regulations regarding substantial improvements or re-construction. The LDC also contains standards relative to future development and redevelopment in or proximate to Conservation-Protected designated areas, which include the beach and a majority of the City s floodplain areas along the Intracoastal Waterway. These standards are in place to limit and prevent development in these high hazard areas, as well as to preserve the function of this vital natural ecosystem. Duval County Local Mitigation Strategy (LMS): The Local Mitigation Strategy is the major component of a state-wide permanent process of community-based hazard mitigation planning. COJ/Duval County has adopted a Local Mitigation Strategy (LMS) which the City of Atlantic Beach participates in that defines what must be done to minimize and avoid the impact from future disasters in Duval County. The heart of the strategy is the Hazard Identification and Vulnerability Assessment, which identifies all types of potential hazards, defines the vulnerabilities, and estimates the risks. Mitigation initiatives are then developed for both the public 80

82 and the private sector to minimize the vulnerabilities threatening Duval County. The LMS supports the recovery plans for the county. Guiding principals include the following: 1. Reduce and prevent future loss by reducing future losses by reducing the risk to people and property. 2. Emphasize both pre-, post-disaster efforts for decreasing the vulnerability of existing and new construction. 3. Emphasize prevention of repetitive losses. 4. Strengthen and utilize land use guidelines, zoning codes, development controls, and incentives to protect vulnerable properties. 5. Protect business and industry by reducing their economic vulnerabilities and increasing their recovery capabilities. 6. Promote personal awareness and responsibility with an emphasis on education and training for property owners, families, and individuals. Duval County Post-Disaster Redevelopment Plan (PDRP) Duval County Duval County has developed a Post Disaster Redevelopment Plan (PDRP) for Duval County. The PDRP establishes the guidelines and framework for an effective response and timely restoration of essential services following a disaster or catastrophic event. The PDRP will emphasize business resumption and economic redevelopment, temporary housing, repair, and reconstruction, infrastructure restoration and mitigation, short-term recovery that effects long-term redevelopment, sustainable land use, environment restoration, and financial considerations as well as other long-term recovery issues. It is an umbrella plan that unites community planning and emergency management planning efforts utilizing community stakeholders. A vulnerability assessment is included to address the various hazards facing the community as well as identifying the existing and needed capacities for recovery and redevelopment. The Recovery Task Force for Duval County, chaired by the mayor, will guide the overall recovery/re-development effort. A Recovery Branch will be established at Duval County EOC to transition from response to recovery. The goal is to provide capabilities necessary to assist the communities affected by an incident recover; including rebuilding infrastructure; providing interim housing; restoring health, social, and community services; promoting economic development; and restoring natural and cultural resources. Co/Jax/Duval County Recovery Plan: The Consolidated City of Jacksonville/Duval County Recovery Plan establishes the procedural framework for an effective response and timely restoration of essential services following a disaster or catastrophic event. Recovery initiatives are 81

83 activities that take place during and after the disaster response phase of emergency management. Recovery involves meeting both the short-term and long-term needs of the community. Duval County Short Term Recovery Operations: These will generally include all agencies and jurisdictions involved in the disaster response and are typically coordinated from the EOC. These activities will start during the response phase of the emergency and generally span out about ninety days from the disaster. This may often include temporary responses to the disaster until more permanent and planned out initiatives can be implemented. Short term recovery coordination will focus on: Detailed damage assessment to determine the need for supplemental State, federal and other forms of outside assistance. Impact assessment to determine scope of support needed. Implement POD to distribute emergency food, water, clothing, medical supplies or other critical commodities. Utility restoration through prioritization. Expanded social, medical and mental health services to deal with the immediate crisis. Re-establishment of essential government operations. Restoration of transportation routes. Debris removal and clean-up operations. Building safety inspections and abatement and demolition of hazardous structures. Short term housing. Community outreach regarding available assistance. Duval County Long-term Recovery Operations: Long term recovery is the process of re-establishing community services and rebuilding the community to pre-disaster or improved standards. Long term recovery may last from days or longer, depending on the severity of the disaster. Coordination will focus on: Appraisals and assessments of damage. Relaxing protective actions and coordinating access and re-entry to evacuated areas. Restoring essential public facilities and services. Coordinating federal disaster assistance with special emphasis on the provision of emergency and temporary housing. Coordinating the identification, procurement, and distribution of emergency resources and materials. Coordinating volunteer organizations. 82

84 Coordinating the dissemination of disaster relief information and instructions to the public. Identifying post-disaster hazard mitigation strategies and activities. Coordinating delivery of long-term social and health services. Improving land use planning and implementation. D. Atlantic Beach Vulnerability/Hazard Analysis There is a list of hazards identified in the MCEMP where the City of Atlantic Beach may be vulnerable, wind, flooding, tornadoes, and storm surge resulting from a hurricane or tropical storm are the most probable and will create the greatest postdisaster recovery challenges to the City. This vulnerability analysis focuses on hurricanes, which are the most probable hazard. Hurricanes are a natural yet dangerous hazard in which the Northeast Florida Region must be prepared. With winds of mph and a storm surge which can exceed 20 feet, these hazards represent a serious threat to the safety of residents and visitors and economic health of this metropolitan region. An analysis of hurricane activity since the 1920s demonstrates that hurricane activity appears to be cyclical and after a period of relative inactivity since the early 1960s, the state of Florida and Northeast Florida are in an active period. The five major hazards produced by a hurricane are storm surge, high winds, tornadoes, rainfall and the potential for related hazardous material issues. Storm surge- Storm surge is the abnormal rise in water level caused by the wind and pressure forces of a hurricane or tropical storm. Storm surge produces most of the flood damage and drowning associated with storms that make landfall or that closely approach the coastline. Surge height depends strongly on the specifics of a given storm including, forward 83

85 speed, angle of approach, intensity or maximum wind speed, storm size, storm shape, and landfall location. Studies have concluded that while a fully-engineered multi-story structure could withstand the storm surge of a major storm, without protection on the windows and other cladding, occupants within any structure would be at serious risk. Storm surge is considered the most dangerous hazard from hurricanes, as nine out of ten hurricane-related deaths are caused by drowning. High winds- Wind can have a devastating effect on persons outside, in mobile homes, in unsound, substandard structures or in structures with unprotected windows or glass exposures. Hurricane force winds can easily destroy poorly constructed buildings and mobile homes. Debris such as signs, roofing material, and small items left outside become flying missiles in hurricanes. Extensive damage to trees, towers, water and underground utility lines (from uprooted trees), and fallen poles cause considerable disruption. Based on the Saffir-Simpson Hurricane Wind Scale, hurricane-force winds range from sustained winds of 74 mph to more than 155 mph. The intensity of a land falling hurricane is expressed in terms of categories that relate wind speeds and potential damage. High-rise buildings are also vulnerable to hurricane-force winds, particularly at the higher levels since wind speed tends to increase with height. Rainfall- Rain associated with hurricanes varies with hurricane size, forward speed and other meteorological factors. The rainfall varies from 6-12 inches on average, with higher amounts common. Tropical Storm Fay in 2008 produced over seven inches of rainfall in Atlantic Beach with significant amounts recorded in Duval County which lead to a Presidential Declared Disaster. Areas at risk can be seen in the 100 year flood map. Tropical storm Debbie in 2012 dumped over 21 inches of rain in NE Florida over a three day period. Freshwater flooding- Over the past 20 years freshwater flooding has become the leading cause of death related to hurricanes. Hurricane Katrina tragically illustrated the danger of storm surge flooding in Louisiana and Mississippi. Freshwater flooding associated with a hurricane may also inundate potential evacuation routes and prevent persons from evacuating areas vulnerable to storm surge. Certain areas of the city are also susceptible to flooding during heavy rains. Tornadoes- Tornadoes spawned by a hurricane add to a storm's destructive power. Tornadoes are most likely to occur in the right-front quadrant of the hurricane. However, they are also often found elsewhere embedded in the rain bands, well away from the center of the hurricane. Studies have shown that more than half of the land falling hurricanes produce at least one tornado. Hurricane Buelah (1967) spawned 141 tornadoes, according to one study. Several tornadoes were reported in the Duval County area during Tropical Storm Fay in 2008 and much of the structural damage in Atlantic Beach during the 2004 storms were related to wind. Hazardous Materials- Facilities which generate or store quantities of potentially hazardous materials include propane storage facilities, natural gas pipeline terminals, fuel storage facilities, all pose a potential threat in a hurricane. The City of Atlantic Beach has a small natural gas transportation line within the city (TEKO) and a Tier II Bulk propane storage facility. 84

86 This analysis uses data obtained from the 2010 NE Florida Regional Evacuation Study using NOAA storm surge model SLOSH (Sea, Lake and Overland Surge from Hurricane) to develop surge heights over land relative to specific basins such as Jacksonville. Storms are modeled at high tide, which is now referenced to North American Vertical Datum of 1988 (NAVD88) to determine inundation depth of surge flooding at a particular location. The Duval County Evacuation Zones are based on the 2010 data. The SLOSH model is used to develop data for various combinations of hurricane strength, wind speed, and direction of movement. The SLOSH model is the basis for the "hazard analysis" of the Northeast Florida Regional Evacuation Study and is used in this hazard analysis. MEOWS (maximum envelopes of water) references maximum surge for a given storm and track. MOM (maximum of the MEOWS) reference the maximum surge expected at a given location regardless of the track or direction. 85

87 Atlantic Beach Selected Points of Reference (Volume VIII: Storm Tide Atlas) These reference points were selected as key facilities for critical emergency operations. The elevation is based on digital elevation data provided by LIDAR, however elevations at some sites may vary. The table provides the storm tide value from the SLOSH value and the depth of inundation (storm tide minus the ground elevation) at the site. Florida Division of Emergency Management; Storm Tide Atlas Volume VII-4 Northeast Florida Statewide Regional Evacuation Studies Program Map Name ID 4 Atlantic Beach City Hall 7 Atlantic Blvd. & Seminole Rd 14 East End of Atlantic Blvd & Intrercoastal 65 Atlantic Blvd at Intercostal 17 Atlantic Blvd at Queens Harbor 11 East End of Wonderwood Bridge Elev C1 C2 C3 C4 C5 C1 C2 C3 C4 C5 Ft. Dpth Dpth Dpth Dpth Dpth Surge Surge Surge Surge Surge Mayport Dpth refers to the depth of inundation at the site (storm surge values minus ground elevation). 5 Surge refers to the storm surge value from the SLOSH Model. Storm Tide Limits for (Maximum Storm Surge for Cat 1-5) Source: Regional Evacuation Study-Northeast Region

88 The following charts depict the storm surge for a Cat 3 hurricane approaching Atlantic Beach at15 MPH from the southeast. This model SLOSH program uses NGVD29 as opposed to the newer NAVD88. These charts depict the MEOWs (maximum envelope of water) for a Cat-3 storm moving at 13 MPH moving to the NW. Storm Tide Storm Tide Above Grid Cell 87

89 Duval County FEMA FIRM Flood Plain (Map IVC-3) 88

90 Past Tropical Cyclone History in Northeast Florida A hurricanes is a natural yet very dangerous phenomenon and one for which the Northeast Florida Region must always be prepared. Winds from mph and a storm surge which can exceed 20 feet in the Northeast Florida region, hurricanes represent a serious threat to the safety of residents, visitors and economic health of this metropolitan region. To date, Hurricane Dora is the only hurricane to make landfall in the Jacksonville/Duval County area since record keeping began in Dora made landfall just after midnight on September 10, 1964, near St. Augustine as a Cat 2 storm with winds of 110 MPH at landfall. Because of the slow movement of Dora, wind and flooding were major hazards as some areas bore the brunt of the storm for several hours and in some places up to a day. Seas were 10 feet above normal. There was a lot of wind damage in coastal areas north of Daytona Beach and the worst damage could be found between St. Augustine and the Georgia border. Atlantic Beach received over seven inches of rainfall with the highest recorded amount in Mayo Florida (23.7 ). Power for Jacksonville and surrounding area was lost and was only restored after six days of outages. While Dora caused no deaths in the Jacksonville area, buildings and structures throughout North Florida were severely damaged or lost. Bulkheads were destroyed and 43 homes were lost in the Jacksonville beaches, with 20 swept to sea. In her trail, Dora left damages totaling more than $280 million (close to $2 billion in today's dollars). This dramatic photo below shows oceanfront houses destroyed or lost to the sea in Atlantic Beach from Hurricane Dora. From 2000 to the present Florida has seen more than 58 storms that have affected the State. Storms in Florida over that period have resulted in over $64 billion in damages. From 1851 to 2007, 48 hurricanes have passed within 100 miles of the Jacksonville/Duval County area. Hurricanes Charley, Frances, Ivan, and Jeanne in 2004 produced tropical force winds and rain in the area which had an impact on Atlantic Beach and Duval County with flooding, power outages, damaged homes and businesses, and significant debris. In 2008 Tropical Storm Fay lingered off the coast and moved slowly over the area producing tremendous rainfall and flooding. According to a report from the Florida Office of Insurance Regulation Market Research Unit, insurance payments resulting from Tropical Storm Fay in Duval County totaled $24,834,188. In 2012, Tropical Storms Beryl and Debbie impacted NE Florida and Atlantic Beach. Tropical Storm Debbie dumped over 21 inches of rain in a three day period. Atlantic Beach s Hurricane Vulnerability Summary Storm surge and wind emanating from a Cat 1 or 2 hurricane can destroy or heavily damage beachfront homes and commercial establishments, piers, boardwalks, dunes and beaches. Storm surge from a Cat 3 or higher storm is expected to cause massive 89

91 destruction on the barrier island including Atlantic Beach. Based on the current Duval County Hurricane Evacuation Zone Map most of Atlantic Beach is included in the evacuation zone for a category 2 hurricane and higher. Oceanfront property is considered in a category 1 evacuation zone. Atlantic Beach residents and businesses should consider that they are in a high wind/surge hazard area due to the nature of living on a small barrier island and therefore are susceptible to wind, flooding, and storm surge from a hurricane. Entrance back to the beaches post-storm may be difficult for rescue personnel due to the low elevation and impact from flooding and storm surge along the Intracoastal Waterway via Atlantic Blvd or the Wonderwood Expy. Significant impact from storm surge will occur from the oceanfront to A1A on the east and along the Intracoastal Waterway to the west. While the age and construction methods of all of the buildings in Atlantic Beach are unknown, a wide span in building codes and construction types have been used. Newer building codes related to hurricanes came after Hurricane Andrew in 1992 and wind code requirements are ever changing. Many of the newer housing units fall under the more stringent codes and are more likely to survive a lower category hurricane. It can be assumed, given data from the recent storm surge models and past experience with other hurricanes in Florida, that heavy rains, flooding, high storm surge, tornadoes, and damaging winds could occur with any hurricane and would have a significant impact on Atlantic Beach. If the city took a major hit from a strong Atlantic basin hurricane, the damage would be catastrophic and the recovery process would be extremely long and costly. E. Responsibilities The organizational structure and responsibilities for the response and recovery phase will slowly transition from emergency operations, as identified in the NIMS approved organizational charts, to a scaled back structure involving recovery and redevelopment. The City Manager will lead the recovery process with the City s Planning and Development Department taking a lead role in the long-term recovery and redevelopment coordination. A Recovery Coordinator or team may be established by the City Manager to coordinate recovery activities including the repair/replacement of infrastructure, facilities and coordination with the community. Residential and commercial recovery for local residents and commercial properties will be assisted by the Recovery team and/or by the Planning and Development liaison. Governmental recovery assistance will be coordinated by the City s Emergency Management coordinator and the Finance Officer. Each beach city will be responsible for their own recovery activities; however coordination and communication between the beach cities and Duval County should be maintained. 90

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93 City Manager Sample Organizational Chart: Beach Complex Co/Jax EOC Recovery Branch Incident Commander Public Information Officer Operations City Manager or Designee Logistics Planning Finance Police Public Works Utilities Communications Building Personnel Tracking Treatment Purchasing Conveyance F. Post-Disaster Recovery and Redevelopment Goals and Issues: The City will strive to manage the recovery and redevelopment to aid in rapid recovery while using all opportunities to redevelop the city in a more sustainable manner. 1. Land Use and Community Development- After a disaster, the most basic foundation of a community recovery plan is the timely provision of temporary housing and the rapid repair and reconstruction of permanent housing. 92

94 Streamline the redevelopment process- Temporary provisions by the City could include altering the zoning or building permitting process to assist citizens and businesses with recovery. A triaged system for permitting could be established based on the amount of damage /or location so that light to moderate damage can quickly proceed while severe damaged property may consider options of rebuilding or relocating. Implement standards for the modifications, repair, or rebuilding of damaged property- The City should develop build-back standards requiring the use of current building codes based on the amount of damage to the structure or property. The 50% rule may be implemented which would require property damage in excess of 50% would be required to meet current building and zoning codes. Cities/Counties that participate in the National Flood Insurance Program are subject to additional regulations when rebuilding in flood hazard areas. If damage exceeds 50% of the market value of a structure, the structure must be brought into current floodplain compliance. Expediting post-disaster repair permitting, inspection, and licensing of contractors without compromising quality is critical in order to speed up the rebuilding and repair process. Assist with temporary housing issues- The City does not have a plan for temporary or interim housing for residents on the east side of the Intracoastal. Coordination with the City of Jacksonville s Recovery Branch and Housing Coordinator would be necessary to assist with the temporary relocation and interim housing for Atlantic Beach residents. After the initial damage assessment has been made by the City of Atlantic Beach, a better understanding of the damage and number of residents that may need interim housing and possible options using direct or indirect methods can be developed. Interim housing on private property, as long as it is safe and feasible, may be an option in Atlantic Beach for a short period of time while residents rebuild or repair property. Individual assistance for interim housing, repairs, and or rebuilding may be available from FEMA, SBA, or other avenues. Reducing the future vulnerability of private and public property to disasters by developing mitigation strategies- Implement policies for the rebuilding and/or limiting redevelopment in areas of repeated damage or in high hazard areas. A Federally declared event will be eligible for various mitigation funding opportunities. These resources can be used to incorporate mitigation practices into redevelopment. Identifying mitigation projects including hardening, elevating, or relocating facilities and infrastructure in advance and including them in the LMS may save taxpayers money and make the facilities or infrastructure more resilient in the future. Public outreach on mitigation techniques will assist citizens and businesses to take extra steps and utilize mitigation efforts in the rebuilding process. Environmental restoration- Environmental restoration is a key component in restoring the quality of life at the beach. a. The beach and dunes restoration and marsh and vegetation serve not only as natural barriers, but also impacts the economic stability of the area. Beach and dune systems provide natural protection from coastal flooding, particularly on barrier islands. 93

95 Dune and beach restoration may be eligible for funding using FEMA s Public Assistance Program following a major disaster. b. Hazardous materials contamination from wind, storm surge, and flooding can be caused by spills, leaks, or discharge of toxic chemicals into the environment. c. Other hazards may arise from wastewater treatment facilities, fuel, and other run-off materials. These environmental hazards can damage the wetlands, soil, waterways, and habitats as well as be a health hazard. Restoration of cultural resources- The history and culture of Atlantic Beach is rich in terms of its beach, restaurants, commercial establishments, golf course, art and parks, which host many community events and festivals. Mitigation efforts should be considered with all of these to ensure future generations can enjoy our history and culture. 2. Economic Redevelopment- The City will work in partnership with local businesses, the Chamber of Commerce, and other agencies and groups to restore and enhance the local economy and consider and develop any new economic opportunities that may arise as a result of the disaster. Assistance to local businesses and employers- Business interruptions and failures from a disaster can cause significant damage to the local economy in terms of lost productivity, wages, and employment. As a small residential community, the majority of local businesses are small retail and service orientated businesses which offer a wide variety of local jobs to support the economy. US Department of Labor Statistics consistently report that 50-70% of businesses either never re-open or fail shortly after a major disaster. This can be attributed to extent of damage, timing of the reopening, or a lack of financial reserves. The City must partner with local business and employers and outside agencies to assist in the redevelopment process. Restoration of the economic base- Limited funds, time, and materials are going to make the redevelopment of the damaged areas of the city difficult. Targeted sustainable redevelopment areas may provide the most immediate and cost effective immediate opportunities for redevelopment. The City should focus on immediately re-establishing key critical City facilities and services and prioritizing the immediate infrastructure repair and replacement to those targeted areas. These targeted areas might include centers of economic activity and critical facilities such as the schools and hospital, areas not in the flood plain and/or least vulnerable to storm surge, areas that have the majority of facilities or structures meeting current Florida Building Codes, or areas that have been assessed and can be repaired or restored rapidly. While tourism is not the major economic force in Atlantic Beach, hotel and daily visitors do support local business especially during festivals and during the warmer months. The redevelopment plan must be communicated to the public and the community must be advised as soon as Atlantic Beach is open for business. Retaining existing businesses is a high priority following a disaster. While a disaster may be devastating to some, it can present renewed opportunities for some businesses that may have been struggling prior to the event. 94

96 Companies involved in building such as architects, contractors, and development companies may actually thrive after a disaster, however supplies may be limited. 3. Long-Term Infrastructure and Public Facility Repair/replacement- Restoration of infrastructure and critical public facilities is a prerequisite for recovery. Decisions about infrastructure restoration will influence private development decisions. The City should take advantage of the opportunity offered following a disaster to upgrade, mitigate, or even relocate infrastructure and critical public facilities. Long-term debris management- The City has a FEMA-approved Debris Management Plan within the MCEMP that addresses all aspects of debris management from the initial push of debris to clean-up and restoration. This area falls under FEMA Public Assistance Cat. A. Rebuilding and replacement of utilities, roads, and public facilities- The City s infrastructure is made up of a number of different systems and structures including transportation, potable water, sewer, and storm water systems, power and natural gas distribution, and public facilities including police, fire, parks and recreation facilities. a. Transportation: Repair and/or reconstruction of roadways will be prioritized beginning with major thoroughfares. Coordination with the FDOT and other agencies will be critical. This area falls under FEMA Public Assistance Cat. C. b. Water, sewer, and storm water: A high priority in getting redevelopment started is to initially restore potable water and sewer. In cases of severe damage in high hazard areas, relocation of existing facilities and systems should be considered. These systems fall under FEMA Public Assistance Cat. F. c. Power, natural gas, and telecommunications: Various vendors such as JEA supply all of the service needs for Atlantic Beach with the exception of water and waste water service which are provided by the city. Restoration of power will be restored to critical least damaged areas first. Collectively these systems fall under FEMA Public Assistance Cat. F. d. Public facilities and parks: Some City facilities have recently been upgraded and hardened however, several of the City facilities such as City Hall, the Police / Fire Station are near high hazard flood areas and could sustain significant damage from major storm surge. Consideration may be given to rebuild these facilities in a more resilient location. While parks and recreation facilities are not typically a high priority for recovery, they are important for regaining the quality of life aspect of the community as a part of long-term development. These facilities may be used initially for staging or debris management. These facilities fall under FEMA Public Assistance Cat. G. 95

97 4. Communication With Residents, Businesses, and Other Agencies- Establishing strong lines of communication between the City, business owners and residents is essential to the recovery process. It is important to convey a positive message to the community following a disaster of their value to the community. The City of Atlantic Beach will work to ensure that there is open communication between governmental and city officials, partnering agencies, and the public with regard to post-disaster redevelopment. A Public Information Officer may be assigned by the City Manager as a liaison with other agencies, businesses, and the public to assist with disseminating recovery information and plans, including available Federal assistance. Coordination and communication of recovery strategies and assistance- Dissemination of information on recovery strategies is the responsibility of the City Manager as it relates to local government and citizens. The City s Recovery team and/or Planning and Development Department will assist and take the lead role in the recovery and redevelopment coordination/liaison and communication with businesses and residents. A Recovery Team or Coordinator will be assigned by the City Manager to oversee and coordinate city infrastructure and facility recovery activities. a. Determine the infrastructure and structural repair needs of all City departments and facilities and incorporate into the recovery strategy. b. Ensure all decisions are consistent with the Post-Disaster Redevelopment Plan and the City s Comprehensive plan. c. Planning and Development Department will act as the central repository for information concerning long-term recovery. d. Communication with residents and businesses will be available through press releases and the City s web-site, providing information on the status of long- term recovery efforts in the city. e. Communication with the public will include mitigation efforts by the City during the repair and re-building efforts whenever possible. f. Coordinate with the Florida Department of Emergency Management and FEMA regarding long-term recovery issues as well as financial assistance opportunities. g. Assist residents with locating interim housing or other options and guidance with FEMA or other disaster assistance. 5. Post-Disaster Financing and Recovery of Disaster Related Costs- Having plans to finance the redevelopment activities are crucial for local government. After a disaster there may be many sources for State and federal aid, however these may not meet all of the City s needs. To successfully navigate through the financing process, local government officials must 96

98 understand how their revenue streams may be impacted, what funding options exist, and what financial strategies should be implemented. The City s Finance Department will be the lead department in assisting the City Manager in determining revenue assessments, damage assessments to City facilities and infrastructure, cost for long term recovery efforts, and available grants and other revenue sources available. Pre-disaster financing strategies: a. Evaluate local government revenues in conjunction with vulnerabilities to determine potential loss of revenue. b. Identify core services to be provided post-disaster and the potential financial impact. c. Research applicable hazard mitigation grant programs, financial reserves, and other post-disaster revenue sources. Post-disaster financing strategies: a. Utilize the damage assessment and other information to determine the impact of the disaster on revenue sources and the cost of long term recovery. b. Seek financial assistance from recovery programs such as FEMA s Public Assistance, Hazard Mitigation Program, Community Block Grants, and Community Disaster Loan Programs, and other revenue sources. c. Explore non-essential cost-cutting actions to prioritize budget allocations to redevelopment activities and essential services. G. Long-Term Redevelopment Components and Milestones There are three main components of the long-term redevelopment period: 1. Reconstruction- The long-term process of rebuilding a community s destroyed or damaged housing, commercial and industrial facilities, public facilities, and infrastructure to the pre-disaster level and standards. 2. Holistic Long-term Recovery- The recovery of the economy and quality of life factors within the community, including employment, social networks, cultural events, environmental quality, and education and recreational opportunities. 3. Community Enhancement- The process of going beyond restoring all aspects of the community to normal functions by creating improved conditions. Community enhancement is characterized by activities such as implementing hazard mitigation projects, strengthening building codes, changing land use, and zoning designations, improving transportation corridors, building more affordable housing, and developing new economic opportunities. Milestones that show the successful completion of long term re-development include: Infrastructure has been restored to pre-disaster levels. Removal of interim housing and replacement with new/rebuilt housing. Economic indicators indicate unemployment has stabilized. 70% of business have re-opened and stayed open for at least three months. 97

99 The need for disaster assistance has been reduced to near pre-disaster levels. APPENDIX 1. HURRICANES & RELATED SEVERE WEATHER A. Introduction Hurricanes are devastating powerhouses of wind, rain, and storm surge that impact a considerable area. With fierce winds in excess of 74 miles per hour revolving counter-clockwise around a low atmospheric pressure eye, hurricanes whip up seas and tides to dangerous levels. In addition, hurricanes inundate low-lying areas with relentless rainfall. This combination of weather will cause severe flooding and wind damage to coastal and inland regions. In addition, tornadoes are commonly associated when storms move inland. The Atlantic hurricane season is defined as June 1 st - November 30 th, however storms may occur outside these time frames. The City of Atlantic Beach is vulnerable from tropical or hurricane force winds and tornadoes associated with a hurricane as well as flooding and storm surge. B. General Information A hurricane is a type of tropical cyclone, which is a generic term for a low pressure system that generally forms in the tropics. The cyclone is accompanied by thunderstorms and, in the Northern Hemisphere, a counterclockwise circulation of winds near the earth's surface. Tropical cyclones are classified as follows: Tropical Depression An organized system of clouds and thunderstorms with a defined surface circulation and maximum sustained winds* of 38 mph (33 knt**) or less. Tropical Storm An organized system of strong thunderstorms with a defined surface circulation and maximum sustained winds of mph (34-63 knt). Hurricane An intense tropical weather system of strong thunderstorms with a well-defined surface circulation and maximum sustained winds of 74 mph (64 knot) or higher. Hurricanes are categorized according to the strength of their winds. A Category 1 storm has the lowest wind * Sustained winds A 1-minute average wind measured at about 33 ft (10 meters) above the surface. ** 1 knot (knt.) = 1 nautical mile per hour or 1.15 statute miles per hour. speeds, while a Category 5 hurricane has the strongest. These are relative terms, because lower category storms can sometimes inflict greater damage than higher category storms, depending on where they strike and the particular hazards they bring. In fact, tropical storms can also produce significant damage and loss of life, mainly due to flooding. 1. Wind- Hurricane winds are defined as those more than 74 mph and hurricane gusts can reach more than 200 mph as far out as 20 to 30 miles from the eye. Winds move in a counterclockwise direction with the greatest winds usually on the right 98

100 front quadrant. Gale or tropical force winds (39-73 mph) of the hurricane can extend 200 miles or more on the front-side of the storm and trail hundreds of miles on the back-side. Threats from hurricane force winds are flying debris, structural collapse, and the potential formation of tornadoes. 70% of all land-falling hurricanes spawn tornadoes. The effects of the wind on a structure are not linear (1-1 relationship), but increases by the square. An increase of 10 MPH creates a significant increase in force. 2. Storm Surge- Storm surge is a large dome or mound of water created by the force of the wind blowing across the water, the low atmospheric pressure in or near the eye, and the slope of the continental shelf. Surge heights peak as the hurricane reaches shallow water, wind is at a maximum, and the storm makes landfall. Tidal levels also have a significant impact on the amount and level of the storm surge. Maximum storm surge usually occurs to the right front quadrant area of the storm, near the point of maximum winds, with the greatest flooding impact from storm surge north of the eye. Storm surge may raise the ocean feet or more above main sea level at the coastline, causing severe coastal and inland flooding in addition to damage from coastal wave action. Drowning from storm surge and flooding is the leading cause of hurricane related deaths. Elevations at the beach vary from 4-20 feet above sea level. Storm surge is no longer tied to a Cat 1-5 storm which reflects wind. Recent storms have indicated this is unreliable for example Hurricane Charlie was a Cat 4 but only 9-10 ft surge. Water eight above the ground is a better indicator of storm surge. Reliable factors include the position of landfall related to the storm, the size of the storm and the terrain and depth of the adjoining water. 3. Rain/Flooding- Heavy rains accompanying a hurricane and tropical storm contribute significantly to flooding throughout affected regions. Typical hurricanes produce 6-12 inches of rainfall to the affected area which often come in bands. Slow moving storms (<10 MPH) are difficult to predict and may produce heavy rains and flooding problems in coastal and inland areas. The speed/ intensity of the storm will have an influence on the amount of rainfall and flooding. 4. Intensity/Damage- Hurricanes expend considerable energy when contacting the shoreline and coastal regions and usually begin to dissipate as they move inland. Tropical force winds usually subside within 12-hours, however recent studies indicate some areas, such as marshlands, do not dissipate the storm as soon. Hurricanes vary in size, intensity, and speed. The Saffir-Simpson scale breaks hurricanes into categories based on sustained wind speeds. Category 1: MPH, Category 2: MPH, Category 3: MPH, Category 4: MPH, Category 5: greater than 157 MPH. 99

101 Category 1 and 2 Hurricanes: Usually pose minor damage to stable structures, but can do major damage to mobile homes, vegetation, and piers. Flooding will occur in some coastal areas and low lying areas. Category 3 Hurricanes: May cause some structural damage to small residences and utility buildings, but mobile homes are destroyed. Flooding near the coast destroys structures with floating debris. Low areas may be flooded inland 8 or more miles. Category 4 and 5 Hurricanes: These storms are the most deadly and destructive. Both can create complete roof failure and building collapse of residences and industrial buildings. Major damage occurs in the lower floors of structures along the shoreline, and massive beach erosion is caused by the storm surge. Flooding of 15 feet or more may occur along the shoreline and up to 10 miles inland. 5. Alert Notification Tropical Storm Watch: An announcement that tropical storm conditions (sustained winds of 39 to 73 mph) are possible within the specified coastal area within 48 hours. Tropical Storm Warning: An announcement that tropical storm conditions (sustained winds of 39 to 73 mph) are expected somewhere within the specified coastal area within 36 hours. Hurricane Watch: An announcement that hurricane conditions (sustained winds of 74 mph or higher) are possible within the specified coastal area. Because hurricane preparedness activities become difficult once winds reach tropical storm force, the hurricane watch is issued 48 hours in advance of the anticipated onset of tropical-storm-force winds. Hurricane Warning: An announcement that hurricane conditions (sustained winds of 74 mph or higher) are expected within the specified coastal area. Because hurricane preparedness activities become difficult once winds reach tropical storm force, the hurricane warning is issued 36 hours in advance of the anticipated onset of tropicalstorm-force winds. C. Responsibilities Each city department is responsible for a wide variety of activities for each phase of an emergency (Preparedness, Response, Recovery, and Mitigation). General duties and specific responsibilities required of each department will utilize a checklist. Response recovery objectives and responsibilities will be determined by the unified command. Specific information may be found in other areas of the MCEMP. 1. Emergency Response- Outside activities by emergency workers will be limited when sustained winds reach 45 MPH or as determined by the IC and Department Director to ensure safety of personnel. 2. Staffed Facilities- 100

102 a. The city will establish a command post (Unified Command) for any severe tropical storm or hurricane and coordinate operations. b. For a Category 1 or 2 storm or tropical force winds impacting the community, critical personnel will staff the Police Headquarters, SCADA, Information Technologies and the 911 Communications Center. The decision to staff key functions or evacuate all city personnel will need to be made prior to the on-set of tropical force winds. c. If an evacuation is called for, the Beach Complex will be established and staffed by personnel from each of the beach cities. The City of Jacksonville Beach generally hosts the Beaches Complex at their O&M facility If that is unavailable, the complex will be located at a location as determined by the representatives from all three beach cities. In addition, a staging area for requested resources may be established at Jax Beach or an alternate site. 3. Bridges- The decision to close bridge traffic at the ICW will be a coordinated effort between local law enforcement agencies, JSO, and the county traffic management group through the Beach Complex. Bridge traffic will be stopped from crossing when sustained winds reach sustained 39 MPH for 1 minute as measured at the top of a respective bridge). Officers should seek shelter when tropical force winds are recorded at the base of a bridge. 4. Evacuation- General Population Evacuation In the event that an evacuation of the beaches area is called for by the Mayor of Jacksonville, (usually a Cat 1 hurricane or greater), the Beach Complex would be activated to assist each beach city and area command post to coordinate evacuation plans. It is estimated that it will take from hours to evacuate beach communities. Duval County Evacuation Zones are Level A-E. a. Evacuation orders and instructions shall be issued by the Duval County Mayor as the Duval County executive, in concert with the SEPPC Council (executive group) and coordinated through the Beach Complex. All public instructions will be issued from the Duval County EOC and broadcast by the radio and TV media. b. The U.S. Navy at Mayport can be expected to begin evacuation earlier than the civilian community and can be a predictor of our own evacuation. c. All citizens are to be instructed to seek shelter well inland. Sheltering with family and friends or in a hotel/motel will provide the most comfort. d. Persons who wish to go to an ARC public shelter are to be referred to official announcements on radio and TV for shelter locations and instructions. General instructions for hurricane evacuation are also available in the telephone book. e. There are no public hurricane shelters at the beaches. Persons who need transportation to an ARC public shelter are to be directed to evacuation centers as established by the Duval County Emergency Management Team. f. Public transportation will be available at these sites to transport people to ARC public shelters. 101

103 g. For expected landfall by a category 1-5 hurricane, the entire civilian population of Atlantic Beach may be evacuated. h. For hurricane projections of marginal landfall, the City of Atlantic Beach will be evacuated based on predicted damage and life safety issues. i. Evacuation determination and efforts will be coordinated with the Duval County EOC. Evacuation orders are mandatory, however persons who refuse to evacuate will not be forced to leave. j. Hospitals, nursing care centers, HUD, senior citizens residences, hotels and similar occupancies are to have specific evacuation plans. Evacuation Traffic Plan Atlantic Beach Police Department, Neptune Beach, and Jacksonville Beach Police Departments will be responsible for facilitating the smooth flow of traffic within their respective jurisdictions, although it will be coordinated through the Beach Complex and Duval County EOC. a. Requests for additional traffic personnel will be made to the unified command (Duval Co./EOC) from the Beach Complex. b. The Duval County Traffic Management Group will coordinate with the Beach Complex as well as other law enforcement agencies assisting with traffic management. c. All personnel (regardless of their agency) assigned to work traffic should operate on a common radio frequency. This frequency will be coordinated through the Beach Complex. d. Law enforcement or fire rescue officer/crews assigned to any of the beach cities will operate under the command/control of the police chief / appropriate JFRD authority within the jurisdiction they are assigned. e. Officers will be positioned at the major intersections. f. Officers will be assigned on the east side of the bridges. g. Tow trucks will be stationed at the bridges but may be moved as needed to facilitate traffic problems. h. All vehicles will be able to leave the beach at the route of their choice. If the need arises, law enforcement may redirect traffic. i. It is estimated that an evacuation may take hours to complete. City Government Evacuation a. The IC or City Manager shall order all city workers to take shelter or evacuate prior to dangerous hurricane conditions. If the situation allows, the IC may release non-essential city workers from duty if adequate time is available for them to reach shelter. 102

104 b. Outside operations with sustained winds above 45 MPH will be limited, except as determined by the IC, Department Director, or City Manager. c. City government shall evacuate to a suitable shelter west of the ICW The Kernan Trails Elementary School will be opened as an American Red Cross (ARC) Shelter upon a hurricane warning. The Atlantic Beach Police Department will act as Shelter Managers at this site through an existing MOU with the ARC. Limited police/fire units may be sheltered at a predetermined location or at the Police Headquarters during Category 1 or 2 storms. The decision to evacuate key law enforcement and emergency personnel and where to locate will be coordinated by the beach cities through the Beach Complex. d. Each beach city will re-locate during an evacuation to separate sites west of the Intracoastal, but should maintain communication contact through the Beach Complex. e. If members of Jacksonville Sheriff s office or other agencies choose to evacuate with Atlantic Beach personnel, they may do so but should take with them a 3-day supply of food, water, clothing, etc. f. City vehicles/equipment taken to the COAB shelter shall park in a location which allows quick unobstructed egress to the roadway as soon after the storm as possible. Accountability of personnel and equipment during shelter operations shall be maintained by each department. 1. Critical equipment may be kept in the vehicles if adequate protection is available, otherwise equipment should be moved to a safe location within the shelter. 2. Personal supplies should be taken with all personnel who evacuate. 3. Storm shelter is available only in specified areas of the school. 4. After hurricane force winds have subsided, personnel will be advised who and when they are to convoy back to the beach. 5. Search and Rescue (SAR) and Damage Assessment teams should be the first to reenter the area and evaluate safe routs back into the city and safe locations to set up an Incident Command post. 5. The Beach Complex should be re-established as soon it is safe to do so. Evacuation of 911 Communications Center- If the 911 Communications Center is evacuated due to a hurricane or other disaster, most Communication Dispatch personnel will evacuate to the city designated shelter. Upon coordination with the Duval County EOC, FRRD, Duval County 911 and JSO Communications Division Several Communications Dispatch personnel will be relocated to the JFR Headquarters Building Back Up Communications Center (BUCC) or alternate location as coordinated by the Police Chief with calls for service directed to that location. 911 calls and radio dispatch of Police units will originate from that location until time that communication services can be restored in the city. See Communications Annex for details. 103

105 Duval County Evacuation Zones D. Preparedness Activities Preparedness is any action taken in advance of an emergency to plan, develop, support, and enhance the operational capabilities and to facilitate an effective and efficient response and recovery to an emergency situation. 104

106 1. All City Departments - Review and complete all activities in the following Hurricane Preparedness Checklist by April 30 th of each year and forward a letter to the Police Chief (Emergency Management Coordinator) when all items have been completed. The MCEMP basic plan, City Hurricane Plan and Specific Annexes such as Debris Management, Communications, etc. have been reviewed by department personnel. Department hurricane plan/guidelines, job duties, and responsibilities specific for each department have been reviewed with all department personnel. Any updates to the MCEMP or department guidelines have been forwarded to the Police Chief (EMC). All special hurricane emergency arrangements or agreements/contracts with outside agencies or suppliers have been confirmed. Ensure that a stockpile of emergency supplies and equipment for all City facilities and for each department are adequately supplied. All department radios have been checked and are functioning properly. All departments have checked and confirmed that all emergency phone numbers/contact lists are accurate. All city personnel should have personal plans for hurricane emergency dependent care and property protection. All Department Directors and critical personnel participate in the annual hurricane exercise. 2. Police Department (Responsible for Emergency Management coordination) Each year by May 1 st, a review of the MCEMP and specifically the Hurricane Appendices will be completed and updates made. During April/May of each year a hurricane preparedness class is offered to all city workers. In May/June of each year a hurricane exercise will be conducted with department directors and critical city staff. Annually, prior to hurricane season, information related to hurricane preparedness will be made available to the general public. 3. Utility Billing Department Prior to March 1 st, all customers have been alerted (notice in the utility bill) to the procedure to register for special needs and/or evacuation assistance with Duval County EOC and advised where to obtain Beach Re- Entry passes. 4. Property Management D. Ensure that maintenance/service agreements are up to date on all city facility and portable generators. 105

107 5. Personal Hurricane Preparedness The welfare of the general population requires that city workers be on the job during a hurricane emergency. It is important that city workers protect their personal property and families so that they can perform essential duties with peace of mind. The City recognizes the responsibility of city workers to their families. All city workers are required to make personal plans for dependent care prior to a hurricane emergency. Dependents should be sheltered well inland, away from flood prone areas and in sturdy buildings. Mobile homes should be evacuated. Although some families may be able to remain at home, many will need to relocate to better shelter. Sheltering with family, friends or in a hotel/motel will provide the most comfort. Several families may wish to shelter together for mutual support. All dependents should be prepared to live without assistance for up to three days (72 hours). For those that need Red Cross sheltering, shelters will be opened on the west side of the Intracoastal. There will be other shelters throughout Jacksonville/Duval County. No unaccompanied dependent children should be sent to a public shelter. All minor children of city workers should be in the care of a responsible adult. Pets are only allowed in a limited number of public shelters with specific requirements. Each city worker with a family pet should make special plans for them prior to a hurricane emergency. City workers are encouraged to stockpile the following supplies: a. Portable radio, flashlight, batteries. b. First aid supplies. c. Medicines and baby supplies. d. Bottled water (1 gallon per person/ per day x 3 days = 3 gallons). e. Materials to secure home (shutters, tape, etc.). f. Fire extinguisher. g. Eating utensils, can opener, etc. h. Bedding. i. Extra clothes. j. Tools. k. Pail with cover (for waste). l. Extra money. These supplies can be used if city workers dependents remain at home or relocate to a shelter. Remember, shelters may lose electricity, water, etc., due to the hurricane. 106

108 A hurricane watch means that a hurricane may threaten our area in the next 48 hours. When a hurricane watch is declared, city workers should: a. Monitor radio and TV weather reports. b. Check supplies. c. Store food and water. d. Fill vehicles fuel tanks. e. Secure boats, lawn furniture, etc. f. Fill prescriptions. g. Make pet arrangements. h. Confirm dependent care arrangements. A hurricane warning means that a hurricane is expected to strike within 36 hours. When a hurricane warning is declared, city workers should: a. Secure their home. b. Turn off utilities. c. Secure pets. d. Evacuate dependents if necessary (take along hurricane supplies). e. Critical workers need to report to work. E. Response Activities (pre-storm) Response activities are actions taken immediately before, during, or after an emergency to reduce casualties, save lives, minimize damage to property, and enhance the effectiveness and speed of recovery. The response phase includes conducting emergency operations by taking action to reduce the hazard to acceptable levels (or eliminate it entirely), and to coordinate resources in managing the emergency. Activities related to the threat of possible tropical or hurricane force winds will be done several days ahead of any Hurricane Watch activities if it is evident that the City may be impacted. The City Manager will determine at what point Response operations begin and the emergency operations command post is operational. This will usually be prior to the Hurricane Watch issued for the area (72 hours prior). During hurricane force winds, most operations will cease and time will be spent coordinating and planning activities once the hurricane/gale force winds have subsided. 1. All Departments In the event of a hurricane impacting our area, Department Directors will meet with the City Manager and staff for updates and projections of a potential storm, to plan preventative measures, coordinate the securing of facilities and equipment, and to keep employees informed. 107

109 Police will coordinate initial ICP activities (evacuation) with the other two beach cities. (Establish Beach Complex) Establish a command post and activate ICS structure. Contact agencies concerning MOUs and coordinate activities. Each department will review the MCEMP with personnel and begin preparations including each department s individual plan and personal plans in the event of an impact. All departments and critical personnel will review their department hurricane guidelines and ensure that their facilities, equipment, personnel, and records are prepared. At the direction of the City Manager, each department will secure their facility by applying shutters to the windows, checking supplies, and check that the generators are working and fuel is topped off. Each department should box up necessary records, back-up necessary computer files, prepare computers and laptops, plan for additional forms if needed, and prepare for transport if an evacuation is called for. Each department should secure and take protective measures for equipment at their facility. Keep employees informed of the status of the storm. All critical city personnel will be contacted and advised when they would be required to report for duty. Ensure all personnel have supplies (food, water, clothing, etc.) so that they can be self sustained for 72 hours. All city workers should prepare for dependent care and make plans for securing their own residence. All departments will maintain maximum fuel levels in vehicles and equipment. Ensure all loose equipment in and around facilities is secured. Ensure the city has supplies to sustain the first 72 hours of emergency operations. 2. Executive Group The City Manager will assist in coordinating all response activities and keep the City Commission informed of all activities related to the possible storm and associated impact. The City Manager will also coordinate activities with the other two beach cities, if a Beach Complex is to be activated. The City Manager will alert and keep the City Commission briefed on the status of the storm, city preparedness, and other information. Meetings will be held by the City Manager with Department Directors and critical staff personnel to coordinate response activities. The City Commission will be invited to attend the briefings. The Mayor or his/her representative, as a member of the (Executive group) SEPPC, and/or the Police Chief will attend meetings with Jacksonville Officials and coordinate activities with Duval County EOC. The Mayor or Mayor Pro-tem accompanied by a fire or police department supervisor may be at the Duval County EOC during a Hurricane Warning to oversee SEPPC and response activities. 108

110 3. Police Department (Responsible for Emergency Management activities) Keep the City Manager and all Department Directors informed of all storm updates and information from Duval County EOC. Make contact with JFRD and JSO Communication to prepare for communications issues. Contact the ARC to make preparations in the event of an evacuation and the ARC Shelter is activated. Ensure all emergency contact numbers are accurate and operable. If an evacuation of Zone 1 (Cat-1 storm, hurricane force winds affecting the Beaches) is called for by the Mayor of Jacksonville, coordinate evacuation activities with JSO Evacuation ICP. Set up the local command post and coordinate city emergency response activities. If a catastrophic event is forecast or evacuation is planned, assign personnel to the Beaches Complex. Ensure re-entry passes are available for citizens, businesses, and city workers. Ensure that all City personnel who may be required to evacuate to the city shelter facility have directions. Personnel are alerted of call-back and staffing requirements. Coordinate emergency response activities. Coordinate information and activities with Duval County EOC. Ensure that vehicle maintenance and service personnel and supplies are available. Ensure the Mobile Incident Command (MIC) vehicle and satellite communication equipment is in working order and on stand-by for deployment. Advise Life Guards of personnel needs and projected activation. Distribute Re-Entry passes. 4. Finance and Purchasing Ensure that rental trucks are reserved for evacuation of equipment and records. Ensure that all boxes and supplies for the hurricane and evacuation are procured and available. Ensure all contracts/purchase orders are up to date. Ensure all city fuel tanks are kept full. Set up contacts/contractor for potential supplies. Ensure a 72 hour supply of goods, equipment, and supplies are available and ready for transport. These include the following: a. Food: for 150 workers x 3 meals a day x 3 days (MRE s) = 1,350 meals 109

111 b. Water: 2 gallons per day x 3 days = 900 gal./7,200 bottles. c. Fuel: 2,000 gallons diesel and 2,000 gallons regular d. Extra equipment: 1. Batteries 2. Chain saw blades 3. Tools 4. Medical supplies e. Extra generators: For maintenance, battery charging, f. lights, running equipment/pumps, etc. g. Temporary shelters (available buildings, portable, or tents). h. Service area for tire and equipment repairs, batteries, etc. i. Portable sanitation facilities (16 port-a-lets). 5. Public Works a. Public Utilities Division Obtain additional portable pumps and generators for lift stations. Should ensure facilities/generators are ready. Fill elevated storage tanks. Increase chlorination levels.. b. Streets Division Pick up garbage cans and other material on beach/right-of-ways that may cause flying debris hazards. Assist with securing shutters on city facilities. 6. Police Department Coordinated emergency response activities. 911 Communications Center responsible for alerting the City of special weather information. Responsible for security of the City. Responsible for securing traffic on bridges. Maintain open roadways and traffic. Coordinate evacuation of the beaches when declared and coordinate with other beach cities and other agencies. 110

112 Control of civil unrest. Responsible for coordinating Re-entry procedures. Life Guards Ensure that beaches are posted with warning signs and equipment is secured. IRBs are ready if needed. 7. Building and Planning Ensure all construction sites/contractors have secured their equipment and facilities. Prepare and box all records/documents/plans for possible evacuation. Prepare for damage assessment responsibilities. 8. Parks/Recreation Department a. Assist with installing shutters and other duties in preparation for a hurricane. Ensure facilities are shuttered, and all loose equipment, facilities, and apparatus is secured. 9. Human Resources Ensure payroll continuity during emergency operations. 10. Utility Billing Assist in distributing Re-Entry passes and special needs info. 11. City Clerk Ensure required records are secured electronically or manually. Ensure local disaster declaration is prepared. E. Recovery Activities (post-storm short term) Short-term recovery is any action taken to return vital functions and critical infrastructure to a minimum operating standard. Activities are initiated to assess damages, needs, and available resources and coordinate relief efforts. The ICS system will be used to manage/coordinate all short term recovery activities. For a large scale disaster or evacuation, a Beaches Complex will be established. The Beach Complex is 1 of the 4 divisions that Duval County is divided into to coordinate activities with Duval County Area Command. Each beach city will manage their own response/recovery activities however, each will coordinate all outside activities through the Beach Complex (unified command) to Duval County 111

113 EOC. Operational time periods, usually 12 hours, should be addressed by each city and the Beach Complex (Unified Command) to develop objectives and an incident action plan (IAP) for the next time period. Post-disaster long term recovery will follow the Post Disaster Recovery and Re-development guide in Annex V. Initial Post Hurricane Rapid Damage Assessment As soon as the winds diminish to a safe level a team of Atlantic Beach Police, Public Works, and Building Department personnel will return from the evacuation site or the Command post to conduct a preliminary assessment. At this time the perimeter should be secured and command assumed. This assessment should include: Determine if there is a need for Search and Rescue (SAR) Operations Check roadways and bridges for safe passage. Determine level of flooding and damage. Determine damage of city facilities and alternate command post. Check for communications availability. Check for power, water, and sewer damage/outages Communicate information with Evacuation Center. Sample Incident Action Plan for first 12 hours: Re-Establish a command post Develop the first 12 hour action plan and assign personnel. Make assignments following ICS guidelines and needs. Re-establish communications (radio, IT, sat phones) Set up security perimeter. Do an initial damage assessment. (use zone map) Begin Search/rescue efforts. (use zone map) Begin debris removal from major streets/roadways. Begin efforts to restore water, sewer, and power. Establish local staging area for resources (for workers): Food, fuel, water, shelter, sanitation, and maintenance. The city should not expect assistance for the first hours. Establish a medical triage/treatment/transport area. Send a staff officer to coordinate Beach Complex. 112

114 1. General ICS Responsibilities/duties (sample) The following are basic responsibilities for each position in the ICS structure. Some areas will not be staffed while others may have additional assistance. Beach Complex: Unified Command The command structure will include a representative from each of the beach cities. Located at a site (Jacksonville Beach O&M facility or alternate site). Will establish communications with Duval County EOC Operations and the three beach command posts. Will coordinate plans, information, activities, and resource needs for the three beach communities with Duval County EOC Operations. Will coordinate Base/staging area for all beach cities resources. Will coordinate logistical support with Duval County EOC Operations. Response for a demobilization plan. Operations Will oversee the operations of the three beach communities and report progress, as well as resource needs to the UC. Logistics Will oversee the logistics of the three beach communities and report to the UC. Will advise the UC of needs. Responsible for documentation of resources. Base/Staging Will oversee the resource as they are deployed to the base/staging area. (Units are either in service or out) Responsible for documentation of available resources and advising the UC of what is available. May be at the Beach Complex or other location. Planning Responsible for looking at the current status and the future needs for resources of the three beach cities and keeping the UC advised. Helps the UC determine an action plan. Joint Information Center/PIO Coordinates information from beach cities to Duval County EOC. A. Atlantic Beach ICS Structure (sample): 113

115 City Manager Responsible for coordinating/overseeing all City of Atlantic Beach response/recovery activities and restoring essential functions. The C.M. will establish the overall objectives for the City and assist with coordinating the Unified Command at the Beach Complex. IC or Unified Command A single IC has one individual responsible while a unified command involves multi jurisdiction/agency or multiple departments within an agency. UC allows a coordinated effort in determining objectives with one agency/dept. taking the lead role with the others assuming supportive roles. Establishes a command post. Establishes priorities and objectives. Establishes the level of the organization needed and monitors the operation and effectiveness of the operation. Responsible for overall safety. Coordinates the activities of the general/command staff. Approves the incident action plans (IAP) and approves the use of or demobilization of resources. Coordinate activities/resource needs with Beach Complex to Duval County EOC. Develops action plans for specific time periods (example: 12 hours). Command Staff (if not staffed, the responsibility of the IC) 1. Safety Monitors incident operations and advises the IC of all matters including emergency responders. 2. PIO Establish an information area and method for the media and public to release information (ie; radio, TV, or web site). Establish a staffed phone number for public information. Coordinate public info through Duval County EOC. 3. Liaison If staffed, coordinates activities and issues with outside resources. Operations (If not staffed the responsibility of the IC) This section is responsible for managing all tactical operations. 114

116 Supervises the operations portion of the IAP. Approves and requests all resources to function and demobilization of personnel and equipment. Responsible for safety of personnel and their operation. Request additional units from staging or the IC. Gives periodic briefings and updates to the IC. Planning (If not staffed the responsibility of the IC) Collects information and develops plans to assist the IC in mitigating the incident. Advises command of needs. Determines the need for specialized services. Plan for the needs of personnel, resources, and equipment. Looks at the future of the incident at what the needs will be and assists in developing the Incident Action Plan. Logistics (Support, facility management, employee services, communications, & staging) Provides all incident support needs for responders. These include, fuel, facilities, supplies, equipment maintenance, food services, water, medical, etc. a. Develop communications so workers can contact families. b. Develop 12 hour work schedule for workers. c. Establish a maintenance area for equipment, apparatus tire repair, and other minor repairs. d. Food and facility for preparation to feed workers. e. Water. f. Establish Fuel supplies. g. Ice k. Sanitation supplies (port-a-lets). l. Generators. m. Establish sleeping facilities (trailers, tents, buildings, etc). Assigns a staging officer; responsible for setting up a staging area for equipment, food services, fuel, maintenance, supplies, and tracking resources. Within this group is the IT division and is responsible for re-establishing the IT network system and assisting with IT issues. Assign communications responsible for re-establishing radio/ communications or alternate system. Provides information to IC for the Incident Action Plan. 115

117 Requests additional resources as needed. Finance Manages financial aspects of the incident. Ensures compensation and claims. Responsible for documentation of personnel and equipment. May assist with payroll. Works with FEMA for reimbursement. Branch/Divisions/Groups under Operations (if staffed) Damage Assessment- Responsible for conducting an area damage assessment and reporting to the UC. Law Enforcement- Will establish several groups under law enforcement branch such as traffic, animal control, 911 communication, patrol, and services. Public Works- Will establish several groups under PW including water, sewer, streets, and debris management. Human Services- Will assist in developing PODs, address health issues, employee needs, and may include the Red Cross, Salvation Army, and Health Dept. B. Responsibilities assigned to a specific staff position or group Although assignments may be made by a functional group such as law enforcement, departments and members may be responsible for other ICS functional/task areas or assigned a command staff level position responsible for an area such as Logistics. The City Manager is responsible for coordinating all City of Atlantic Beach recovery activities and restoring essential functions. He will assist the unified command in establishing overall objectives. He will staff the Unified Command at the Beach Complex and coordinate with the other beach cities. The Police Department is responsible for maintaining security, coordinating re-entry, traffic, animal control, coordinating activities with other outside agencies, and restoring law enforcement operations. Assistance with S/R may be necessary. The Police Chief will be part of the City s Unified Command. Public Works will be responsible for debris management and coordinating efforts with the debris management coordinator. The Public Works director will be part of the City s Unified Command. Public Works departments will be responsible for infrastructure repair such as water, sewer, and streets. 116

118 The Building and Planning Department will be responsible for damage assessment and code enforcement issues as well as coordinating post-disaster mitigation activities (LMS). The Finance Department will be responsible for financial responsibilities including recording costs associated with the event and coordinating all FEMA Public Assistance grants and reimbursements. The IT Department will restore the communication network and assist with IT issues under the Logistics section. The Human Resource Department will coordinate insurance needs for public facilities, equipment and information for damage reimbursement reporting. In addition HR will assist with coordinating human services needs under the Logistic Section. Purchasing will be responsible for logistical support including repairs of city facilities, apparatus, and equipment, coordinating equipment needs, fuel, food, etc. under the Logistics Section. Parks and Recreation will assist with the damage assessment of public facilities, assist with staging, and other areas as requested. The City Clerk s office will assist in re-establishing city records and ensuring declarations are completed. C. General Objectives (sample ICS objectives) Ensure command is established and a stationary command post is identified. Re-establish a command post if an evacuation occurred. Assign a Liaison to the Beach Complex if needed. Direct operations using the Incident Command System. This may be at the O & M facility or at another suitable location. Establish a unified command. Begin to develop an action plan for the first 12 hours and then for additional time periods as needed and coordinate with the Beach Complex or Duval County EOC. Do a preliminary damage assessment of casualties and property and begin Search/Rescue activities. Use the zone map and begin a building-by-building search of all structures that are safe to enter, beginning with the area most heavily damaged. Mark/date each house (see marking system) identifying that a search has been completed and the number of victims. Once all damaged structures have been completed do a secondary search of all affected structures. Establish communications. Re-establish radio/phone communications with Beach Complex and Duval County EOC and re-establish a communications liaison. Set up security (perimeter) for the City, initially allowing only critical persons and equipment into the City until the area is determined safe. 117

119 Debris should be cleared on major roadways to allow emergency vehicles and workers access. A debris transfer site, monitoring station, permits, personnel and equipment, and schedules for debris should be established removal (see Debris Management Appendix). Set up a staging area for all incoming equipment and supplies as well as a medical staging area for triage, treatment, and care of the injured. Each utility/public works department or division should assess critical infrastructure/functions and begin the process to restore the critical functions and areas first. Begin resource management of personnel, supplies, and services needed for the workers and operations which will include food, water, shelter, fuel, sanitation means, equipment and vehicle maintenance, communications, and a host of other resources. Atlantic Beach employees should be prepared to be self sufficient for a minimum of 72 hours until additional assistance is available from the Duval County EOC. Coordinate health related activities with the County Health Department. After the initial preliminary assessment has been completed begin a damage assessment (PDA) for homes/businesses and Public damage assessment. Send a report to Duval County EOC. Structures will need to be evaluated for safety and structural stability. Tag buildings for livability if possible using the red (not livable), green (livable), and yellow (livable but needs attention) system. Establish a fleet maintenance program to care for apparatus, equipment, tire repair, and service needs. Call for mutual aid as needed to assist with rescue, security, and other functions. Request State mutual aid resources through Duval County EOC. Coordinate workers/resources using 12 hour on/off schedule. Provide city workers time to care for their own families, property, and needs. Once the hazards have been managed, coordinate the re-entry process. with Duval County EOC, St Johns Country, and other beach communities (see the Re-entry Program). Manage traffic issues. Establish Points of Distributions (POD) for essential citizen s supplies. Restore essential government functions such as Information Technology, records/city Clerk, Building and Planning, finance, and other functions. Establish a fixed or portable site to carry on city business. Keep the elected officials informed of the event and recovery efforts. Post information on web sites and provide updated information to residents via the local media, staffed telephones, and the city s web site. Coordinate relief/recovery efforts with County, State, and Federal Agencies (FEMA). Ensure all preparedness, response, and recovery activities are well documented for possible reimbursement from FEMA. 118

120 D. Re-entry Program (If an evacuation occurs) As soon as reasonable after the storm passes, an assessment of the beach cities will be made and relayed to the Atlantic Beach command post and Beach Complex. Depending on the level of damage, hazards, and other factors, a decision will be made to allow re-entry to the beaches. When each beach city and the Beach Complex is ready for reentry, coordination will be made through the Beach Complex with Duval County EOC in Jacksonville to make the public notification. Each beach city will coordinated the re-entry effort through the Beach Complex and their local law enforcement. Emergency workers (Police, Fire, Rescue, Utility/PW) City will be the first to be permitted back to the beach following a hurricane, followed by City Officials and other key personnel. Their function will be to evaluate the damage, re-establish emergency services, secure the area, establish a command post, and begin to restore the infrastructure. Re-entry will occur in phases based on health and safety issues and damage assessment. The Atlantic Beach Police Department, JSO and Neptune Beach Police Department will be stationed at key access points, in conjunction with the Duval County Traffic Management Plan (Re-entry). Re-entry will not be permitted until a survey has determined it is safe and will only be for the purpose of securing property from further weather damage and illegal entry. Phase 1 re-entry will be residents, essential staff of critical municipal agencies, hospitals and skilled nursing facilities, property managers and protection agents. Phase 2 re-entry will be All those listed in Phase 1 and essential employees of health care and community service agencies, essential employees of the banks, repair workers, and disaster response teams. Persons returning to the beach will have a re-entry pass or will be issued a pass at one of the check-points, which is supervised by a law enforcement officer. If city employees or critical service personnel (such as hospital personnel) don t have a pass, upon showing an ID, should be allowed access back to the city. Re-entry passes, located in the front window of vehicles, will identify citizens, business owners, and other officials and allow them the opportunity to assess damages and begin to make preparations for clean-up prior to the beaches being opened up to the general public. There may be limits on the number of persons from any one business, owner/tenant, property manager, or property agent in the storm damaged area. Curfews may be enforced to limit the duration of the re-entry period. E. Search/Rescue Marking System 119

121 Search/Rescue crews will utilize a uniform marking system (red/orange spray paint near the main entrance) to identify structures that have been searched. Crews will usually begin in the most damaged area utilizing the zone map. If needed, GPS coordinates are available to identify each zone (see zone map). During the initial search, an approximate 12 inch diagonal stripe will be marked near the front entrance. After exiting the building an X will be made with the date/time placed in the upper middle section of the stripe and the number of victims in the lower middle section. Identify hazards or use a NS for not safe to enter due to potential building collapse or unsafe structure on the right with the crew on the left side. USAR teams may be available to search those structures. Use the Search/Rescue forms to document areas searched. Example: date/time crew Hazards or (NS) * victims Multiple floors use box *Use small x if L= Live F= Floors no victims D= Dead Q= Quadrants Utilize whatever resources and equipment are available to make a rescue if it can be completed safely. G. Mitigation Activities Mitigation includes those activities, policies, or programs developed and adopted pre-incident that will reduce, eliminate, or alleviate damage caused by disasters. Proper and coordinated planning is a prerequisite to effective hazard mitigation. The purpose of the Mitigation Programs are intended to reduce the loss of life and property due to natural disasters, to enable mitigation measures to be implemented during the immediate recovery from a disaster, and/or to prevent future hazards. Mitigation activities will be the responsibility of each department; however activities should be coordinated with the Planning and Development department, Finance Officer and County LMS Coordinator. For additional information related to Mitigation, see general section under Mitigation. Eligible activities for this program may include: 1. Property acquisition or relocation. 2. Structural and non-structural retrofitting (e.g., elevation, storm shutters and hurricane clips). 3. Minor structural hazard control protection (e.g., culverts, floodgates, retention basins). 4. Localized flood control projects that are designed to protect critical facilities and are not part of a larger flood control system. 5. Protection of utilities and seismic protection. 120

122 H. Search and Rescue/Assessment/Debris Zone Map This map will establish zones so that initial search/rescue crews, debris management crews, and damage assessment teams can identify locations. Each zone will have a GPS coordinate, elevation, and the National Grid System identified. I. Duval County Evacuation Zones 121

123 APPENDIX II. HAZARDOUS MATERIALS A. Introduction Hazardous materials are chemical substances, which if released or misused can pose a threat to the environment or health. These chemicals are used in industry, agriculture, medicine, research, and consumer goods. Hazardous Materials come in numerous forms such as explosives, flammable and combustible substances, oxidizers and organic peroxides, poisons, radioactive materials, and other substances. B. General Information Many products containing hazardous materials are routinely used and are also shipped daily on highways, railroads, waterways, and pipelines. Hazardous materials incidents may include responses involving fires, spills, transportation accidents, chemical reactions, explosions, WMD situations, and confined space atmospheres. 1. Department of Transportation (DOT) as Haz-mat categories: Class 1 Explosives. Class 2 Flammable Gasses. Class 3 Flammable Liquids. Class 4 Flammable Solids. Class 5 Oxidizers and Organic Peroxides. Class 6 Toxic Materials and Infectious Substances Class 7 Radioactive Substances. Class 8 Corrosive Materials. Class 9 Miscellaneous Dangerous Goods. 2. Levels of Service- The City has one level of training for a response to hazardous material situations at city facilities. Additional resources and Haz-mat Teams from the Jacksonville Fire & Rescue, Mayport Naval Base Fire Department, as well as a military Haz-mat Response Team are available to assist when conditions exist beyond our capability. The US Coast Guard will also assist with spills on coastal waterways. Goals are to identify the material, control and containment, evacuation and/or rescue of injured people, decontamination of personnel and equipment, documentation, and restoration of the scene. Awareness Level: These persons have minimal training related to hazardous material but may have training 122

124 related to specific chemicals at their facility. Awareness level personnel should be trained to identify and recognize a hazard, evacuate the immediate area, and call for assistance. C. Responsibilities The Jacksonville Fire Rescue Department will be responsibilities for managing hazardous material types of incidents. They will establish command and will utilize the NIMS ICS system and establish a command post to manage resources and coordinate the event. A unified command system may be established for large scale incidents with the fire department taking the lead role. The Incident Commander or Unified Command has overall control of the operations. The IC/UC is responsible for all public and personnel life safety issues as well as the development of the action plan to mitigate the situation. The Police Department is responsible for securing the perimeter, managing crowd control, assisting in evacuation measures, and assisting in law enforcement activities as needed. If City personnel are involved in a spill or leak at their facility, they should evacuate the area and stay at a safe distance until the material has been identified, hazards assessed, and corrective actions taken Other City departments such as Public Works may be called to assist with functions such as diking material, shutting off utilities, etc. The Coast Guard will be called to assist with hazardous materials spills or leaks in the Intracoastal Waterway or ocean. The following are prioritized operations: 1. Isolation 4. Containment 2. Identification 5. Stabilization 3. Evaluate 6. Decontamination Haz-mat Team- Regional or local Haz-mat teams may be utilized to assist with larger scale incidents. Their priorities and responsibilities will be the same as for a small incident including site control, safety, research, entry teams, and decontamination. The Florida National Guard has a Civil Support Team (CST) that is designed to support local Incident Command and local emergency responders with hazardous materials or WMD situations. State Emergency Response Team (SERT)- The SERT is composed of representatives of state and local agencies that coordinate assets for Terrorist/WMD incidents. These types of incidents that impact Florida can quickly exceed the response and recovery capabilities of local jurisdictions. During the response phase of such events, the SERT, located at the State Emergency Operations Center (SEOC), coordinate the deployment of state resources, personnel, interstate mutual aid, and federal resources to support local agencies. 123

125 B. Preparedness Activities 1. An annual training (Public Utilities, and Police) should be coordinated with outside agencies as applicable. 2. Classes and information for city employees are available related to hazardous materials. 3. Mutual training should be conducted with Haz-mat responders from other departments on an annual basis. E. Response Activities (Operations) The response phase or operations includes conducting emergency operations by takings action to reduce the hazard to acceptable levels (or eliminate it entirely), and to coordinate resources in managing the emergency. 1. The initial response of fire and police units will depend on the information received and appropriate response based on the level type. 2. As a minimum a single unit will be dispatched to perform a risk assessment identifying the type of hazard, material involved, resources needed, and possible mitigation and control efforts needed. A single unit should be able to mitigate small combustible/flammable liquid spills less than 5 gallons or other minor types of incidents with a minimal degree of hazard (leaking fuel tank or container, leaking 20lb or less LPG tank, leaking fluids such as antifreeze, oil, etc). If additional resources are needed command should be established and additional operational functions initiated. 3. Command will be established and direct all operations using the NIMS ICS system. 4. The ERG Guide will be used by the initial emergency workers as a basis to determine initial health hazards, protective equipment necessary, fire hazards and control measures, isolation/evacuation distances, and other factors for known or unknown hazardous material/substances. 5. The following classification system is used by the State of Florida Emergency Response Commission regarding the categorizing and reporting of hazardous materials incidents. Level I: (Minor) A spill, release or potential release of a known hazardous substance with minor injuries possible. A spill or potential release of less than 55 gallons of a substance. In general the material is not radioactive, water reactive, or hyperbolic. Unlikely that it will spread, and/or area involved is less than 300 sq. ft. Corrosive spills less than 10 gallons. 100 lb or less LP tank leak. Level II: (Moderate) A spill, release or potential release of known or unknown hazardous substance with no deaths although injuries may 124

126 be severe. A spill or potential release of known or unknown substances that are toxic, reactive, Flammable, radioactive, corrosive, or biological in nature that exceeds the criteria for a minor incident. Release may not be controlled without special resources. Evacuation will be confined to a designated area that local resources can achieve. Extended sheltering is not required. Level III: (Severe) A spill, release or potential release of a hazardous substance with an associated fire, explosion, or a toxic/corrosive cloud with injuries or deaths possible. A substance capable of producing toxic/corrosive gas cloud, highly reactive or unstable, may produce significant flammable vapors, or is radioactive or a chemical/biological pathogen. Involves large amounts of hazardous material or a limited amount of a very dangerous substance. Extensive environmental contamination is possible. Presents immediate danger to public and personnel. Evacuation of large numbers of the populace or extending over a large area impacting the community. Level IV (Major): A spill or release of a hazardous substance that has resulted in a serious fire, explosion, or environmental contamination over an extended area. A known or unknown hazardous substance that can be highly toxic, very reactive, or unstable, flammable or explosive, or etiological agents that are extremely pathogenic. 6. Operational Guidelines- Generally an 8-step operations process is used to manage any Haz-mat incident. The key areas include: Isolate the area and deny entry of all personnel until the material has been identified. Identify the material and advise personnel of hazards. Evaluate hazards and risks utilizing information collected. Choose protective equipment necessary to operate in the hot/warm zones. Coordinate information/resources with the IC. Control/confine material by developing offensive or defensive tactics. Decontaminate exposed personnel, victims, and civilians. Isolate equipment for further decontamination. Debrief/Document/Critique personnel involved. 125

127 a. Isolation/Control Zones- Control zones are to be identified and established by the first arriving unit utilizing the ERG. Detection equipment is to be utilized to establish and/or monitor the control zones if available. Access into hot/warm zones is to be controlled and access denied except for response personnel in an appropriate level of personnel protection. Hot Zone - The danger area surrounding the hazard is determined by the ERG recommendations. The Hot zone is only to be entered by Teams (minimum 2 personnel) in appropriate PPE with a back-up team standing by. All personnel entering this area are to be briefed on goals, hazards, and decontamination procedures prior to entry. A Backup Team is not needed if an immediate rescue is being performed or if the incident is a combustible/flammable liquid spill less than 5 gallons or another minor type of incident with a minimal degree of hazard such as; leaking vehicle fuel tank or gas can, leaking 20lb or less LPG tank, or other leaking vehicle fluids. Included may be an area to stage personnel contaminated until decontamination occurs. Warm Zone- For decontamination and standby rescue operations. The Warm Zone shall be the location of the entry and exit corridors. Cold Zone - No hazards, a clean area for command, staging, and other emergency service functions as well as media, agency liaison, etc. b. Product Identification- Identification of the material involved should be determined as soon as possible to assist in determining the hazards to personnel, the public, and the environment. Occupancy location, container type (rail cars, transport vehicles, and intermodal), placards and labels, papers (bill of lading, dangerous cargo manifest, consist/waybill, and air bill), MSDS sheets, and information from the driver or fixed facility representative, are resources for determining the material involved. c. Personnel Protective Equipment Persons responding to a Haz-mat incident must be protected from the hazard by protective equipment. The minimum protective equipment utilized by personnel should be that which is appropriate for the chemicals known to be involved or used at a given facility. The following are the four levels of protective equipment established by OSHA, EPA, and NIOSH: Level A- Highest level of protection against vapors, gases, mists, and particles. Level A protection is a total encapsulating suit including SCBA. Requires training above the first responder level. Level B- Requires a garment including SCBA that provides protection against splashes from a hazardous chemical. Wrist, ankles, face-piece and hood, and waist are secured to prevent entry of splashed material. 126

128 Special boots and gloves may be needed depending on the material involved. Taped bunker gear at the wrists and boots, with an SCBA, would fall under this level. Level C-The same type of garment used for Level B is used for Level C with the exception that it allows for the use of respiratory protection other than SCBA. This respiratory protection allows for the use of various types of air-purifying respirators where the specific material is known and measured. Level D- Provides for non-respiratory protection and minimal skin protection. d. Evacuation/Shelter in Place- A decision will be made by the IC on how to protect persons involved in the immediate area of a hazardous incident. Persons may need to be evacuated to a safe location or it may be determined it is safer to shelter them in place. Evacuation should be conducted for people in potentially imminent danger of fire, explosion, radiation or a long term release of a gas or volatile liquid. Sheltering in place is an option utilized when evacuation would cause people to be exposed to a hazardous atmosphere or a situation exists where evacuation cannot be accomplished. e. Decontamination- The Safety Officer or a designated person by the Haz-mat Group officer is responsible to ensure that decontamination is conducted. This person should be trained to the Operations level. If a Safety Officer is not available, the IC or Haz-mat Group officer shall assign an officer to this position. Decontamination procedures are required to assure that any potentially harmful substances on equipment or personnel is confined within a controlled zone and other persons/equipment are not cross contaminated. Persons leaving the Hot Zone are assumed to be contaminated. 1. The decon area should be established before committing personnel to the Hot Zone. 2. Utilize MSDS information to determine proper decontamination procedures. 3. Decontamination procedures are to be performed in the Warm Zone adjacent to the entry point into the Hot Zone. 4. Prior to transport to a medical facility, persons contaminated should be decontaminated as much as possible and medical personnel/facilities receiving patients notified of the hazards. 5. All personnel performing decon are to be in appropriate PPE. 6. After decontamination of equipment and uniforms are completed, they are to be safely cleaned or sent to a vendor capable of cleaning or disposing of the equipment. Decontamination Options: 1. Rapid/emergency decon is a rapid 3-step method (flush-strip-flush) utilizing freshwater hoselines or other appropriate appliances available. This is to be established until a more in depth decon station can be established. 2. Additional decon procedures may need to be completed by the JFRD if they are called to the scene. 127

129 f. Document/Critique- A debriefing and critique should be held after the incident with all departments/personnel involved to discuss problems and corrective actions needed. It is important to document all activities, equipment used, and personnel for reimbursement. 7. Response Overview a. Local Emergency Communications Center: Records information. Dispatches first responders. Relays information to first responders prior to their arrival on scene. Makes notifications as required. 2. First Responders: Make initial assessments use ERG manual. Establish an Incident Command system (following NIMS). Determine hazardous materials level of incident. Identify the material if possible and set up zones (hot, warm, cold). Perform any obvious rescues as incident permits. Begin decontamination of victims and rescue personnel. Establish security perimeter. Determine needs for additional assistance. Begin triage and treatment of victims. Begin Evacuation efforts. Either shelter in place or evacuate. Attempt containment of material. 3. The Incident Commander (IC) or Unified Command (UC): Establish a command post or local EOC and set up an ICS system. Notifies medical facilities, Duval County EOC and other local organizations, as outlined in the Comprehensive Emergency Management Plan (MCEMP). Requests local or regional hazardous materials teams. Coordinate activities with Duval County EOC. Coordinates resources. Seek state of emergency. Provides information to Public Information Officer (PIO). Coordinates with local and state EOC and federal agencies as required. 128

130 Requests state and federal assistance, as necessary, through the Duval County EOC. F. Recovery Short-term recovery is any action taken to return vital functions and critical infrastructure to a minimum operating standard. Long-term recovery includes restoring life to a normal or improved state. Activities are initiated to assess damages, needs, and available resources and coordinate relief efforts. Recovery activities for a hazardous material incident will vary based on the material, exposure, and magnitude of damage. Follow general MCEMP guidelines for all disaster recovery operations. 1. Clean-up is generally the responsibility of the person or company responsible for the spill. The Fire Department or Hazmat teams may assist with clean up of small spills, not complicated by high risk or solid waste disposal restrictions. 2. Residents are to be referred to the Duval County Household Hazardous Waste Program for disposal (office , facility ). Business persons are to be referred to a hazardous waste contractor for clean-up services or to the Duval County Household Hazardous Waste Program for small quantity disposal. 3. Absorbent clay or pads contaminated by less than ten (10) gallons of petroleum product may be air dried and discarded with solid waste. 4. The IC or UC is responsible for cost recovery of equipment, supplies, or overtime related to the incident and coordinate initial recovery operations. 5. The Jacksonville/Duval County Environmental Quality Division and Florida Department of Environmental Protection are to be called to oversee large spill cleanup. 6. The Building and Planning Department will be responsible for damage assessment for large scale incidents. 7. Public Works will be responsible for any debris removal or infrastructure repair. 8. The Human Resource Department will be involved in Insurance information and claims for City buildings and equipment. 9. The Finance Officer will assist with reimbursement activities. 10. Notification Requirements a. Petroleum spills on land, less than ten (10) gallons or spills from household consumer container do not require notification. b. Illegal dumping or incidents resulting in serious injury or death; Notify - Police Dept., FWC, and State Warning Point ( or ). c. Spills of ten (10) or more gallons of petroleum. City of Jacksonville/Duval County Environmental Quality Division ( ). d. Spills of 25 gallons or more of petroleum or any commercial spill. DCRS and State Warning Point ( ). e. Any spill on or threatening waterways. FWC ( ), U.S. Coast Guard/National Response Center ( ), and State Warning Point. 129

131 f. Radiation Emergencies. Bureau of Radiation Control ( ) and State Warning Point. G. Documentation/Reimbursements While personnel and on-duty resources are publicly funded, the city may seek reimbursement from the responsible party for additional services required related to hazardous material response as defined in city code and Federal hazmat guidelines 1. All extra costs related to a hazardous material spill or release should be documented. 2. If a disaster is declared, documentation related to the incident following FEMA guidelines should be followed. 3. Foam, absorbent material, and other expendable supplies used during an incident may be handled by the responsible party or their insurance company. 4. Overtime costs, fees for special services, contractors, security, damaged equipment, extra apparatus, mutual aid charges, and other eligible charges are to be billed to the responsible party through the Finance Department. 5. If the responsible party is not identified or does not cooperate, assistance is to be requested from the City of Jacksonville/Duval County regulatory and Environmental Services department and the Florida Department of Environmental Protection (EPA). 6. If all recovery efforts are unsuccessful, reimbursement should be pursued through grants from the U.S. Environmental Protection Agency or FEMA. APPENDIX III. TERRORISM A. Introduction Terrorism is not a new phenomenon. Events such as the 9/11 World Trade Center attacks, the bombing of the New York City World Trade Center, Murrah Federal Building in Oklahoma City, Khonar Towers in Saudi Arabia, the Sarin release in the Tokyo Subway, the bombing of U.S embassies in Kenya and Tanzania, or the bombing of the USS Cole, all serve to highlight the potential or actual devastation that terrorists acts can do. Terrorism is defined as the use of violence, threats, intimidation, or information manipulation for revenge, politics, support of a cause, or the furthering of a criminal enterprise. In the present we find ourselves confronted with the expanding threat of mass casualty terrorism by the utilization of weapons of mass destruction or effect. Terrorists may use a variety of methods such as explosive devices, the spread of biological toxins or disease spreading microorganisms, toxic chemicals, nuclear weapons or the use of radioactive materials, and cyber-terrorism (unauthorized entry into computerized systems causing damage). Terrorism is a threat that now looms for civilians, emergency responders, and local governments. B. General Information The successful response and management of terrorist incidents requires a well planned integrated and coordinated response from local government, neighboring jurisdictions, the private sector, state and federal agencies. 130

132 The Homeland Security Act of 2002 transferred the Office for Domestic Preparedness (ODP) and its National State Homeland Security Strategy (SHHS) from the Department of Justice, to the new Department of Homeland Security (DHS). ODP has designed its program to address the delta between the usual all-hazards approach used in the emergency response and recovery of a natural disaster, and the unique requirements associated with a terrorist attack. Under the State Homeland Security Grant Program (SHSGP) Florida has conducted their risk and needs assessment as well as, developed a Statewide Domestic Preparedness Strategy. The State of Florida domestic security initiatives include the development of 7 Regional Domestic Security Task Forces (RDSTF), led by a Florida Department of Law Enforcement (FDLE) Regional Director and the local sheriff. These task forces are multi-disciplinary (not law-enforcement specific), and in conjunction with the State Division of Emergency Preparedness provide the oversight and coordination of Statewide Domestic Security Preparedness and Response Initiatives. The RDSTF is designed to support local response as well as to serve as a model for local response. 1. National Terrorism Advisory System-The National Terrorism Advisory System, or NTAS, replaces the color-coded Homeland Security Advisory System (HSAS). This new system will more effectively communicate information about terrorist threats by providing timely, detailed information to the public, government agencies, first responders, airports and other transportation hubs, and the private sector. I. NTAS Alerts Imminent Threat Alert- Warns of a credible, specific, and impending terrorist threat against the United States. Elevated Threat Alert- Warns of a credible terrorist threat against the United States. After reviewing the available information, the Secretary of Homeland Security will decide, in coordination with other Federal entities, whether an NTAS Alert should be issued. NTAS Alerts will only be issued when credible information is available. NTAS Alerts will be issued through state, local and tribal partners, the news media and directly to the public via the following channels: These alerts will include a clear statement that there is an imminent threat or elevated threat. Using available information, the alerts will provide a concise summary of the potential threat, information about actions being taken to ensure public safety, and recommended steps that individuals, communities, businesses and governments can take to help prevent, mitigate or respond to the threat. 131

133 The NTAS Alerts will be based on the nature of the threat: in some cases, alerts will be sent directly to law enforcement or affected areas of the private sector, while in others, alerts will be issued more broadly to the American people through both official and media channels. Sunset Provision- An individual threat alert is issued for a specific time period and then automatically expires. It may be extended if new information becomes available or the threat evolves. There will not be a constant NTAS Alert or blanket warning that there is an overarching threat. If threat information changes for an alert, the Secretary of Homeland Security may announce an updated NTAS Alert. All changes, including the announcement that cancels an NTAS Alert, will be distributed the same way as the original alert. General City Threats Imminent Threat Locally An announcement will be made to all Departments Directors and the City Manager of the threat level and potential for terrorist activities in the City or local area. All city infrastructure including city facilities (City Hall, Fire Stations, Police Department, Public Works, Water Plant, Parks and Recreation, utilities sites etc.) will be secured allowing only limited access. A physical check will be done of all infrastructure, facilities, and utility sites looking for any type of devices present or suspicious activities. Continue to assess vulnerable or key areas advising all personnel to be alert to and report any suspicious activities. Evaluation to restrict, limit, or recommend canceling a special event. Staff and department meetings assessing the threat and security areas. Staff additional resources (police/fire) as needed. Continued monitoring of threat/activities and coordinate with Duval County EOC. Document all increased police activities for possible reimbursement. Elevated Threat Locally Unless an elevated threat is credible and directed at the City of Atlantic Beach or the regional area, no local announcements will usually be made. An announcement may be made to Departments Directors and the City Manager by the Police Chief of the elevated threat level. If creditable, the city will assess vulnerable or key areas advising all personnel to be alert to and report suspicious activities. If a credible threat exists, any special events will be evaluated to ensure that adequate emergency service personnel are available to provide security and protection. If a credible threat exists, city personnel should be alert to suspicious activities, devices present or threats and report them immediately. 132

134 2. Hazard Types/Identification (Weapons of Mass Destruction- WMD) While a hazard may be a single immediate event such as a personal-borne device, car bomb or other explosion, other hazards such as biological or chemical agents may take days to be noticed and will only be recognized through a high number of casualties at local medical facilities. A chemical or biological agent has the potential for greater consequences and challenges for responders as well as the potential for mass casualties. Responding fire/rescue and/or law enforcement agencies will usually make preliminary identification of the existence of a possible WMD agent or device. Biological Terrorism -Biological weapons may expose people to bacteria, viruses, or toxins as fine airborne particles. Anthrax, Plague, Smallpox, Viral Hemorrhagic Fever, and Botulism are examples of biological agents. Biological agents are infectious through one of the following areas depending upon the particular agent; inhalation, ingestion, absorption, and/or contact with mucus membranes. Incubation periods of infectious diseases may range from several hours to a few weeks depending on the exposure and pathogen. The initial response to such a biological attack on civilians is likely to be made by the public health community rather than by the military or primary responders. Any plan to mitigate an incident involving a biological hazard should be based on relevant infectious disease or biological safety recommendations by the Centers for Disease Control and Prevention (CDC) and other expert bodies including emergency public health officials. The need for decontamination and for treatment of all first responders and the public with antibiotics or other medications should be decided in consultation with local public health authorities. Chemical Terrorism- A chemical attack is the deliberate release of a toxic gas, liquid, or solid that can poison people or the environment. Signs of chemical agent release may be watery or burning eyes, twitching, choking, or breathing difficulty. Chemical agents may include nerve agents, blister agents, blood agents, choking agents, and riot control agents such as pepper spray. The release of poisonous chemicals, like phosgene or lewisite, hydrogen cyanide, chlorine, or pesticides can cause mass casualties within an exposed population. The determination of whether the agent used is an infectious agent or a chemical toxin is difficult in the early stages of investigation. Most chemical attacks will be localized, and the effects will be evident within minutes. Chemical agent attacks will require immediate reaction from primary responders, fire/rescue, law enforcement, and emergency room staff. Nuclear Terrorism- A nuclear blast is an explosion with intense heat and light, a pressure wave, and widespread radioactive material. Dirty bombs are the use of a common explosive device to spread radioactive material. Radiological hazards come in the form of Alpha, Beta, and Gamma Rays. Normal hazardous materials procedures are to be followed with emphasis placed on time, distance, and shielding. Limiting exposure is a key factor. 133

135 Explosives/Improvised Explosive Device (IED) - Explosive or improvised devices are the most common and easily obtained method used by terrorists to cause property damage, loss of life, and widespread panic. Explosive compounds used in the improvised devices may include ANFO, TNT, TATP, HMTD, or any of the more recent liquid peroxide explosives. Any explosion requires fuel, a rapid oxidizer, and some type of actuation device or detonator. Most explosives are very unstable and sensitive to movement or electrical activity. Explosive devices may be staged, person-borne, vehicle-borne, or delivered through other mechanisms. Explosive devices may be triggered remotely by an electronic device, mechanically, infra-red or magnetic triggers, pressure sensitive bars, or trip wires. Improvised explosives devices can assume a variety of shapes, sizes, types, and forms (solids, powders, paste or slurry mix, or liquids) utilizing containers such as backpacks, vehicles, or other common objects. Explosive and/or improvised devices can be constructed and can be placed or delivered in any number of ways. Most recent terrorist explosive devices use common material that is readily available and easily purchased undetected. These improvised devices are capable of causing mass casualties through explosion and/or incineration with massive structural and fire damage. This incident type has the potential for large loss of life and disruption to the city s infrastructure. First responders should be cautious of any explosive looking device or explosive/reactive chemicals and stay alert to the potential for a secondary explosive device planted in an evacuation routes. Any unexplained explosion should be assumed to be potential terrorist activity with a radiological or toxic release of hazardous materials considered until ruled out. Cyber Terrorism- Society is increasingly relying on new information technologies and the Internet to conduct business, manage industrial activities, engage in personal communications, and perform scientific research. While these technologies allow for enormous gains in efficiency, productivity, and communications, they also create new vulnerabilities to those who would do harm. The same interconnectivity that allows us to transmit information around the globe at the click of a mouse or push of a button also creates unprecedented opportunities for criminals, terrorists, and hostile foreign nation-states who might seek to steal money or proprietary data, invade private records, conduct industrial espionage, cause a vital infrastructure to cease operations, or engage in Information Warfare. 3. The following areas are identified as possible terrorist targets based upon their vulnerability, proximity to large population areas, community/public visibility, and/or political significance. Atlantic Beach Police Department will identify potential targets and 134

136 vulnerabilities within their jurisdictions. The triggers to elevate law enforcement protection of an identified vulnerability are dependent on identifying threats and the understanding of how terrorists select potential targets. Traffic patterns and highways Trucking and transport activity Waterways Bridges Government facilities Recreational facilities Special events Beaches Facilities storing hazardous or explosive materials or gas. Power or transfer stations Water and Waste Water facilities Schools/libraries C. Responsibilities 1. Local The Police Department will be responsible for initially managing terrorism incidents. Because this is a Federal crime scene, outside agencies such as the FBI will be directly involved. A Unified Command System following NIMS standards will be used. A command post or local EOC will be established to manage resources and coordinate the event. The Unified Command (IC/UC) has overall control of all local operations. The IC is responsible for all public and personnel life safety issues as well as the development of an action plan to mitigate the situation. A Joint Information Center (JIC) may be necessary to coordinate information among all agencies and the media. The Police Department is responsible for securing the perimeter, managing crowd control, assisting in evacuation measures, traffic control, law enforcement activities, and for the initial crime scene investigation. Additional assistance related to law enforcement activities will utilize the FBI and/or other federal agencies. The Jacksonville Fire/Rescue Department is responsible for the initial monitoring, identification, search/rescue if possible, fire suppression, decontamination, and immediate treatment of patients or casualties. Assistance in securing, removing, advanced decontamination, and disposing of the material or substance will utilize regional or Federal Haz-mat teams. Regional Haz-mat teams such as Jacksonville Fire and Rescue, Mayport Naval Base Fire Department, or St. Johns County Fire & Rescue will be utilized to assist with larger scale incidents. Their priorities and responsibilities will be the same as for a small incident including site control, safety, research, entry teams, and decontamination. 135

137 If an explosive device is involved, JSO or other bomb trained personnel will be responsible for disarming or disposing of the device. If City personnel are involved in a spill, leak, or unknown substance or device at their facility, they should evacuate the area and stay at a safe distance until the material/device has been identified, hazards assessed, and corrective actions taken. Other City departments such as Public Works or Public Utilities may be called to assist with functions. The Coast Guard will be called to assist with hazardous materials spills or leaks in the Intracoastal Waterway or ocean. For situations where biological or other health hazards are involved, the Bio Watch, the Duval County Health Department, the health community, and other agencies will be involved. Ensure all personnel are in the appropriate level of personal protective equipment. Follow guidelines as established for hazardous materials incidents including hot, warm, and cold zones. 2. Support Resources a. BioWatch This is an early detection and response program used in Duval County for bio-aerosol release or biological attack. It includes sampling, notification, and a response phase and utilizes a supportive committee made up of a variety of local resources in assisting and directing mitigation activities. b. State Emergency Response Team (SERT) The SERT is composed of representatives of state and local agencies that coordinate assets for Terrorist/WMD incidents. These types of incidents that impact Florida can quickly exceed the response and recovery capabilities of local jurisdictions. During the response phase of such events, the SERT, located at the State Emergency Operations Center (SEOC), coordinate the deployment of state resources, personnel, interstate mutual aid, and federal resources to support local agencies. c. 44th Civil Support Team (CST) The Florida National Guard has a Weapons of Mass Destruction (WMD) Civil Support Team (CST) that is designed to support local Incident Command and local emergency responders as well as provide mutual support to other WMD CST elements. The WMD CST is a National Guard unit specifically designed for domestic security support. The CST is normally under state control and may be employed and as a state asset without DOD authorization. The WMD CST is neither designed nor intended to replace functions carried out under the Incident Command nor to replace those functions performed by the emergency first responder community. d. DEP Environmental Terrorism Response Team (ERT) The ERT is a special team consisting of DEP environmental investigators, emergency responders and uniformed officers along with representation from DOH, DOT, DACS, and the U.S. EPA Investigation Division. The Team is available to support incident 136

138 commanders with hazardous materials and industrial chemicals. Local ERT personnel can be on scene within three hours and the full team deployed within twelve hours of notification. e. Local and State Laboratories Department of Health, Department of Agriculture and Consumer Services, State Fire Marshal and the Department of Environmental Protection maintain labs available to conduct a wide range of analysis functions. Each has a certain expertise available to support local operations. D. Preparedness Activities Threat levels and terrorist activities are constantly being monitored by the Atlantic Beach Police Department as well as all law enforcement agencies. Information related to terrorist activities will be shared among agencies. Annual terrorism training is offered and a terrorism exercise is conducted periodically at by Duval County and the state of Florida. The Police Department and local law enforcement agencies maintain a communication network advising of threat levels and activity in the area. E. Response Activities The approach to any potentially hazardous condition including biological hazards, explosives, chemical, and nuclear or radiological devices must be made with a plan that includes an assessment of hazard and exposure potential, respiratory protection needs, entry conditions, exit routes, sheltering/evacuation, and decontamination strategies. Personnel should always be alert to the potential for a secondary device. Areas contaminated which may not be initially obvious are food products, airborne substances, or contamination of the water supply. While many WMD situations are false, the response must be taken seriously. 1. Establish Threat Levels- Determination of an agency s activation will be based on the information surrounding the threat/event and the subsequent designation of one of four notification levels. The United States Government Interagency Domestic Terrorism Concept of Operations Plan (CONPLAN) established a range of threat levels determined by the FBI that serves to frame the nature and scope of the federal response. Each threat level provides for an escalating range of actions that will be implemented concurrently for crisis and consequence management. Specific actions will take place, which are synchronized to each threat level, ensuring that all agencies are operating jointly with consistently executed plans. These threat levels are described below: Minimal Threat- Received threats do not warrant actions beyond normal liaison notifications or placing assets or resources on a heightened alert. Potential Threat- Intelligence or an articulated threat indicates a potential for a terrorist incident. However, this threat has not yet been assessed as credible. 137

139 Credible Threat- A threat assessment indicates that the potential threat is credible, and confirms the involvement of a weapon of mass destruction in the developing terrorist incident. Intelligence will vary with each threat, and will impact the level of the response. At this threat level, the situation requires the tailoring of response actions to use resources needed to anticipate, prevent, and/or resolve the crisis. The threat increases in significance when the presence of an explosive device or weapon of mass destruction capable of causing a significant destructive event, prior to actual injury or loss, is confirmed or when intelligence and circumstances indicate a high probability that a device exists. WMD Incident- A weapons of mass destruction terrorism incident has occurred which requires an immediate process to identify, acquire, and plan the use of state and federal resources to augment the county s resources in response to limited or major consequences of a terrorist use or employment of a weapon of mass destruction. This incident may have resulted in mass casualties. The response is primarily directed toward public safety and welfare and the preservation of human life. 2. The following are issues that will require attention during a WMD event: Agent detection. Identification and isolation. Evacuation or shelter in place. Decontamination. Traffic control. Disposition of deceased. Hospital overload. Public fear. Public information. Notification of other agencies and resources. Safety and welfare of emergency workers. Evidence preservation and criminal prosecution. 3. When arriving on the scene of a potential terrorist agent the acronym AWARE can be used to protect first responders. Approach the scene from upwind/upgrade. Wear SCBA or appropriate personal protective clothing. Alert other first responders of potentially dangerous conditions. Restrict entry to the area. Evaluate victims. 138

140 4. General Response Overview a. Local Emergency Communications Center: Records information. Dispatches first responders. Relays information to first responders prior to their arrival on scene. Makes notifications as required. 2. First Responders: Gather as much information as possible from dispatch. Assess the scene for the presence of terrorism indicators. Make initial size-up and assess hazard/risks. Establish an Incident Command system (following NIMS). Determine if this is a potential weapon of mass destruction (WMD) incident or act of terrorism. Identifying safe staging areas for incoming resources. Ensure the use of personal protective equipment (PPE). Warn responders of potential secondary hazards/devices. Perform any obvious rescues as incident permits. Set up atmosphere monitoring if dictated. Set up hot, warm, and cold zones. Shelter in place or evacuation of area involved. Begin decontamination of victims and rescue personnel. Establish security perimeter. Isolate and deny entry. Determine needs for additional assistance. Begin triage, treatment, and transport of victims. Begin hazard agent identification. Begin evacuation efforts. Either shelter in place or evacuate. Attempt containment of material. Documentation of scene. 3. The Incident Commander (IC) or Unified Command (UC): Establish a command post or local EOC and set up an ICS system. 139

141 Notifies medical facilities, Duval County EOC and other local organizations, as outlined in the Municipal Comprehensive Emergency Management Plan (MCEMP). Requests notification of Federal Bureau of Investigations (FBI) field office. Coordinate activities with Duval County EOC. Coordinate resources, including specialized teams such as Haz-mat teams, USAR teams, and Bomb squads. Oversees operations for mitigation activities including areas such as security, fire suppression, rescue, evacuation, and decontamination. Seek declaration of a state of emergency. Provides information to Public Information Officer (PIO). Coordinates with local and state EOC and federal agencies as required. Requests state and federal assistance, as necessary, through the EOC. 4. Document/Critique: because it is a crime scene, document all activities. A debriefing should be conducted after an incident with all agencies involved to discuss problems and corrective actions needed. It is important to document all activities, equipment, and personnel involved. 5. FBI Special Agent-in-Charge (SAC): Supports local law enforcement. Determines WMD terrorist incident has occurred. Notifies Strategic Information and Operations Center (SIOC). Activates Joint Operations Center (JOC). F. Recovery Activities Short-term recovery is any action taken to return vital functions and critical infrastructure to a minimum operating standard. Longterm recovery includes restoring life to a normal or improved state. Activities are initiated to assess damages, needs, and available resources and coordinate relief efforts. Recovery activities for a terrorism incident will vary based on the material, exposure, and magnitude of damage. Follow general MCEMP guidelines for all disaster recovery operations. 1. The IC or UC will coordinate the initial recovery activities. 2. Building and Planning will be responsible for damage assessment for large scale incidents. 3. Public Works will be responsible for any debris removal, restoration of water and sewer, or infrastructure repair. 4. JEA will be responsible for restoring power. 5. The Human Resource Department will be involved in Insurance information and claims for City buildings and 140

142 equipment. 6. All involved city departments should have documented their involvement and will report these activities and equipment to the Finance Officer. He/she will coordinate between the city and FEMA with reimbursement activities. 7. Outside agencies such as Duval County EOC, County Health Department, FBI, State of Florida, FEMA, and other agencies may assist in recovery activities. APPENDIX IV. DISEASE/PANDEMIC INFLUENZA A. Introduction A pandemic is an infectious disease epidemic that affects people worldwide over an extensive geographical area. Approximately every 39 years an epidemic occurs which takes millions of lives worldwide. The Avian or bird flu is a recent example of the flu virus that continues to spread around the world. Between 2003 and 2005 there have been outbreaks in Cambodia, China, Indonesia, Japan, Laos, South Korea and countries in the Middle East. In a normal year 36,000 die in the U.S. from flu complications however 69,000 died in 1957 from the Asian flu. The unknowns with pandemic influenza are the timing, the severity, what drugs may work, and the lack of an effective vaccine. Historical problems that impacted the spread include rapid population mixing, overseas deployment, lack of communication, no early quarantines, and a weak public infrastructure. Imagine a pandemic today in which 1/3 rd of the population becomes ill with waves of outbreaks lasting months. A pandemic will affect every sector of our society including health care, transportation, work-place, schools, public safety, and more. There could be a widespread breakdown in municipal services and social order including a loss of public transportation, electricity, and food shortages. B. General Information Influenza (also called Flu) is a contagious respiratory illness caused by an influenza virus. It can be mild to severe and at times can lead to death. Flu viruses spread from person to person usually in respiratory droplets by touching an affected area or by coughing and sneezing. Older people, young children, and persons with health conditions are at a higher risk for serious flu complications. Person appearing healthy may infect others beginning the day before symptoms develop and up to 5 days after becoming sick. Complications may include bacterial pneumonia, dehydration, and worsening of chronic medical conditions. The best protection for the flu is to be vaccinated, however each year new strains or mutated viruses occur which may offer no protection from the vaccination. Key Assumptions: 1. There will be only a short window between when a virus is causing the disease and when it becomes widespread. 2. Vaccines won t be available for 6-9 months after the epidemic starts. Vaccinate personnel as soon as it is available. 141

143 3. You can assume once it starts that their will be little or no help from the state and federal government. 4. This will not be just a local issue, it will be a state and national problem that will continue for months. C. Responsibilities BioWatch will be responsible sampling, notification, and response in Duval County for bio-aerosol or biological attack. Notification will be made through the Duval County EOC. The CDC (Center for Disease Control) should maintain a national alertness to the potential for a pandemic outbreak in the U.S. The State of Florida Department of Health will assist Duval County Health Department with information and resources if available. The County Department of Health will be the lead agency in Duval County. They will be responsible along with doctors, hospitals, and clinics for surveillance and documentation of known cases. The County Department of Health will be responsible for distributing vaccine and keeping the public and governmental agencies aware of the current situation and hazards. The Human Resources Department in cooperation with the Duval County Health Department may set up a City CO-OP POD to dispense medications to city employees and their families. Duval County EOC will help coordinate mitigation activities. Local government (Atlantic Beach/Duval County) may have to take actions to reduce activities and potential spread by reducing group functions, closings school, and large public gatherings. Quarantine measures may have to be mandated to isolate the sick. Personnel who act as first responders will need to ensure that personal protective equipment is utilized (gloves, masks, etc). A stockpile of gloves, Heppa masks and handi-wipes will be maintained by each department for use by city workers assigned with public contact during a pandemic mitigation assignment. Law enforcement officers will be responsible for civil disorders. Much of the responsibility for prevention falls on the individual. Change social norms (personal hygiene), restrict travel, and recognize complications early. D. Preparedness The key to minimizing the epidemic is preparedness. Monitor the national and local levels for number of influenza cases. Educate the public on methods to reduce the risk and current status. Experts agree that the simplest way to stop the spread of any flu is good hygiene habits. If necessary isolate and restrict travel, meetings, group activities, etc. 142

144 Vaccinate early, beginning with emergency service workers and city employees. Points of Dispersing (POD); City CO-OP may be established to distribute medications to city employees and families in a short time period following a known hazard. Plan for large numbers of city workers not available. Plan for crowded medical facilities, limited vaccines, and increased civil disturbances. Plan for a reduction of fuel, food, and other supplies. Plan for an extended time frame. 143

145 APPENDIX V. FORMS These are the various forms that may be used during a disaster. Hard copies and/or computer forms and information will be provided during an incident as necessary. While FEMA forms are available, the city may utilize some of our own generated forms.. Incident Action Plan: The IC/Unified Command is responsible for developing an incident action plan (IAP), which reflects the objectives and key priorities which need to be addressed in a specific time frame. These objectives and priorities may change as the incident progresses and as tasks are completed and should be reflected in future IAPs. For small incidents, the plan need not be written. Large scale incidents need written plans reflecting the priorities, objectives, and needs of all agencies. Priorities and key objectivities in the IAP will be assigned to divisions and groups within the command structure to determine how to address the objective and to assign personnel and/or teams to complete the tasks. Rapid Damage Assessment: Completed by the initial crews/team in determining life safety issues, significant damage, power, water and sewer capabilities, facilities, and location of a command post. This rapid assessment is completed by zones and specific facilities. Information will be relayed to the command post (unified command) to assist in determining the initial Incident Action Plan. Search/Rescue : Completed by the search/rescue teams to document the areas/zones searched. Search/Rescue activities will usually begin in the area or zone most damaged. Information will be relayed to the command post at a minimum by the end of the incident action period. Daily Activity Field Worksheet : Accountability method used and completed by each ICS Division, for each IAP period, and turned into Logistics. The forms will then be forwarded to Finance for documentation purposes. The activity worksheet will keep track of personnel, equipment, and vehicles. Initial Damage Assessment Housing/Building Field Sheet : The normal form used by the Damage Assessment teams to determine the amount of damage to the city for residential and commercial property. The assessment will be conducted by zones and information forwarded to the Duval County EOC to determine declared disaster assistance. Included are guidelines for completing the assessment. 144

146 Initial Damage Assessment-Public Assistance : Completed by the Finance Officer after receiving information back on Public Assistance (Cat A-G) which includes information such as public building damage, debris estimates, public utilities, parks and recreation, total estimated damages, insurance, and other information to assist in determining the amount of loss and whether Duval County can declare a disaster for public assistance funding. Cost Tracking Worksheets : Completed by each department. These are worksheets and information sent out by the Finance Department for each department to document and track expenses related to an event. (Includes: Force Account Labor Summary, Equipment Summary, FEMA Equipment Rates, Materials Summary, Rented Equipment Summary, and Contract Work Summary).Incident Resource Tracking Sheet : Completed by persons assigned to Logistics at either the command post or Beach Complex. This tracking form is used to track and document resources that are requested from outside the city resources. It will be used if a Beach Complex is established to track resources requested of the Duval County EOC or by the Atlantic Beach Command Post for smaller incidents. Debris Management : Completed by the Public Works team assigned to debris management. These are examples of forms used by the Public Works Department to track and document debris management information. Sample ICS Command Structure for Major Hurricane : This a detailed ICS chart that the city will use for response/recovery operations after a major hurricane in which the Beach Complex has also be established. 145

147 Sample Forms: INCIDENT ACTION PLAN IAP #: Date: IC/Unified Command: Incident: Time frame: from to Key Priorities/Objectives Assigned to Division/Group Completed: Completed: Completed: Completed: 146

148 Completed: Completed: Completed: Completed: Completed: 147

149 ATLANTIC BEACH RAPID DAMAGE ASSESSMENT A rapid damage assessment is a quick snapshot of the damage to the city which is used in developing priorities and objectives in developing the initial Incident Action Plan. It is also used in planning resources and equipment needed to mitigate the disaster. The recon crews/teams will look at a variety of areas in each of the zones and locations. The rapid assessment is completed by the preliminary recon teams with the results reported back to the command post as soon as possible but hopefully within a 4 hour time frame. Utility/Facility teams will assess specific facilities and not by Zone. Date/Time: Zone or (Location): Damage Assessment Team 0- No damage 1- Minor 2- Moderate 3- Severe 4- Catastrophic Rapid Damage Assessment Scoring System (Rate from 0-4 in each of the key areas) Zones: Life Safety (victims) estimated # Notes: General Structural Damage Flooding Roadways Debris City Facilities : Notes: 148

150 O&M Fire Stations Parks & Rec. Police Station City Hall Infrastructure: Notes: Water Plant Water Distribution System Sewer Plant and substations Electrical Stations/service Communication: Notes: 800 MHz Radio system yes no Telephone available yes no Cell Phones available yes no Satellite system operational yes no Search/Rescue Instructions: Search and Rescue will usually be the first priority after the initial damage assessment is completed. Units will utilize the zone maps and begin operations in the most damaged area. Crews are to use these forms to document the areas checked. Use the marking system and spray paint to identify facilities checked, victims, hazards, and crew. If unable to search due to hazards or collapse potential identify by NS (not safe). The first slash is made when entering. The X is made upon exiting. Marking System Example: date/time crew hazards or NS * Use small x if no * Victims victims Multiple floor use box L=Live F=Floor D=Dead Q= Quadrant Zone: Address: 149

151 # of fatalities: Hazards: # of injured: Location of victims: Need USAR Team: Yes No Photo taken: Yes No Zone: Address: # of fatalities: Hazards: # of injured: Location of victims: Need USAR Team: Yes No Photo taken: Yes No Zone: Address: # of fatalities: Hazards: # of injured: Location of victims: Need USAR Team: Yes No Photo taken: Yes No 150

152 151 DAILY ACTIVITY FIELD WORKSHEET Dept/Div Date: IAP Period to ` Incident STAFFING Position Assignment Time Period City Employee/Outside Resource VEHICLES Use Assignment Mileage City Vehicle/Outside Resource

153 EQUIPMENT Use Assigned To Description City Equipment/Outside Resource 152

154 INITIAL DAMAGE ASSESSMENT WORKSHEET County AFFECTED (Habitable) MINOR (Uninhabitable) MAJOR (Uninhabitable) DESTROYED (Uninhabitable) LEVELED (Uninhabitable) Zone Structure Type Structure Type Structure Type Structure Type Structure Type Address Lat / SF M M BI S M M BI S M M BI S M M BI S M M BI Lon F H Z F F H Z F F H Z F F H Z F F H Z Inaccessible Flood Depth 1 st Floor 153

155 Initial Damage Assessment Housing and Business Field Sheet Guidelines: The damage assessment is conducted to quantify the number of privately owned dwellings and businesses damaged by the event and to provide an overview of the monetary amount of damage to primary structures. (This assessment is for housing and business occupancies only and is not a complete physical inventory of all properties.) Residential accessory structures, buildings, fences, and deferred maintenance are not to be included in the assessment. Structures that constitute a primary use for businesses should be assessed and categorized. i.e. Retaining walls / fences, accessory buildings / structures used in conjunction with and to conduct business from. There are four types of structures specified on the form; SF-single family, MF- Multiple Family, MH- Mobile Home, BIZ- Business. There are five degrees of damage listed on the form. 1. Leveled 2. Destroyed 3. Major 4. Minor 5. Affected Degrees of damage can be generally categorized as follows: Leveled- structure is uninhabitable, is 100% gone from its foundation and is a total loss. Destroyed- structure is uninhabitable; damaged beyond 50% of its estimated value and would constitute rebuilding. Major- structure is uninhabitable; damaged 10% to 50% of its estimated value will require repairs that will take more than 30 days to re-establish habitability. Minor- structure that is uninhabitable; damaged less than 10% of its estimated value and will require repairs that will take less than 30 days to re-establish habitability. Affected- structure that receives minimal damage and are habitable without repairs. Further specific information per category: Leveled structures: (100%) Place an X in the structure type box. These should be self evident and only require the correct address and if possible a note on value. Destroyed structures: (50%-100%) Place the percentage (%) in the structure type box. Roof of structure missing and walls suffer major shifting or distortion; flood water levels exceed 4 feet above first level finished floor. This structure is uninhabitable, damaged beyond 50% and not economically feasible to repair. 154

156 Major Damage: (10%-50%) Place the percentage (%) in the structure type box. Some collapsed walls, roof structure missing, utility system damage, roof covering gone and extensive water intrusion, tree damage; 2 ft to 4 ft of flood water above finished floor, standing flood water for more than 24 hrs. This structure is uninhabitable, damaged to less than 50% of its value, and can be repaired but will take longer than 30 days. Minor damage: (<10%) Place the percentage (%) in the structure type box. Some roof covering missing and some rain intrusion, smoke damage, many broken windows and doors, exterior wall damage; 2 inches to 2 ft of flood water, standing flood water for more than 24 hrs. This structure is uninhabitable; the damage is less than 10% of its value and can be repaired in less than 30 days. Affected structures: Place an X in the structure type box (*note). Some missing shingles, soffit, fascia, gutters, siding; may have cracked and or broken windows, minor system damaged such as A/C compressor, damaged appurtenances, entry way, attached porches, attached garages, less than 2 inches of flood water that clears in less than 24 hrs. This structure is habitable and does not require repairs to establish habitability. (*) Note: for damage in excess of $1, add an explanation note and a dollar value. In conducting the assessment there are many scenarios that will be encountered and varying degrees of damage within each category. It may be necessary to take pictures, write notes, etc. to fully categorize the damage. Be consistent, accurate; enlist testimony from the affected party, etc. Completed forms are to be returned to Building and Planning Department (Incident Command designee) where computation will be conducted. Summarized data is to be forwarded to the Police Chief (or Incident Command designee). Housing Values for Initial Damage Assessment per zone: N1 700K S1 Site Specific 150K 1 Million N2 300K S2 150K N3 500K S3 200K N4 300K S4 250K N5 350K S5 300K N6 300K S6 400K N7 300K S7 400K N8 300K S8 350K N9 300K S9 400K N10 300K S10 2 Million N11 300K S11 1 Million Oceanfront North Site specific 500K 1 Million Oceanfront South Site specific 500K 1 Million 155

157 *Note: Business structure values are to be assigned site specific per evaluator. 156

158 157

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160 Date Time Requested Time Receive d Time/Date Released INCIDENT RESOURCE TRACKING SHEET Type of Resource / Equip. # of Personnel /Equip. Trackin g # Description of Work Preformed Initials of Trackin g Officer 159

161 160