ESF 2: COMMUNICATIONS

Transcription

1 ESF 2: COMMUNICATIONS Emergency Support Function #2 Communication addresses regional communications and back up communications systems, amateur radio capabilities, communications between jurisdictions, interoperability among response agencies from different jurisdictions, telecommunications and information technology resources, as well as regional emergency warning and notification capabilities. Coordinating Agencies Cooperating Agencies MARC Public Safety Communications Board/Incident Commander (IC)/Emergency Management Agencies (EMAs) Regional Interoperability Committee Public Safety Answering Points (PSAPs)/9-1-1 Dispatch Centers Terrorism Early Warning (TEW) Group Mid-America Regional Council Emergency Rescue Committee (MARCER) Emergency Medical Coordinating Centers (EMCCs) Fire and Police Departments Transportation, Public Works and Parks Departments All Other Local Government Departments and Agencies Assigned Communications Primary and Support Responsibilities in Local Emergency Operations Plans (EOPs) 2-1

2 State and Federal Agencies Missouri State Emergency Management Agency (SEMA) The Adjutant General s Department, Kansas Division of Emergency Management (KDEM) Missouri and Kansas State Interoperability Executive Committees (SIECs) Missouri and Kansas Highway Patrol (MHP and KHP) Missouri and Kansas Departments of Transportation (MDOT and KDOT) Department of Homeland Security (DHS)/National Protection and Programs (NPP)/Cyber Security and Communications (CSC)/National Communications System (NCS) Federal Emergency Management Agency (FEMA) Department of Defense (DOD) Federal Communications Commission (FCC) NGOs Amateur Radio Operators Volunteer and Community Organizations Hospitals and other Private Sector Entities (e.g. Communications Providers) Agency roles are described in Section VI Organization & Assignment of Responsibilities 2-2

3 TABLE OF CONTENTS KANSAS CITY METROPOLITAN AREA I. PURPOSE... 4 GENERAL PURPOSE... 4 ESF #2 - COMMUNICATIONS PURPOSE... 4 II. SCOPE... 5 III. SITUATION OVERVIEW... 6 IV. PLANNING ASSUMPTIONS V. CONCEPT OF OPERATIONS GENERAL COORDINATION ACTIVITIES ESF #2 - SPECIFIC COORDINATION ACTIVITIES TRAINING AND EXERCISES VI. ORGANIZATION AND ASSIGNMENT OF RESPONSIBILITIES GENERAL COORDINATING AGENCY MARC PUBLIC SAFETY COMMUNICATIONS BOARD COORDINATING AGENCIES: IC AND LOCAL EMAS COOPERATING AGENCIES AND NGOS ALL AGENCIES (COORDINATING AND COOPERATING) VII. ATTACHMENTS ATTACHMENT A. REGIONAL COORDINATION GUIDE SUMMARY ATTACHMENT B. FIRST HOUR CHECKLIST ATTACHMENT C. COMMUNICATIONS-RELATED ACRONYMS ATTACHMENT D. WARNING AND NOTIFICATION COMPLIANCE NOTE: CPG-101 version 2 indicates the following for all "support annexes" and documents: "for consistency, the recommended structure for all annexes is the same as that of the basic plan." (page 3-15 of CPG-101 vs. 2). In order to eliminate unnecessary redundancy, the ESFs include only those sections that have direct application and relevance to each respective support function. Sections that are not included in each of the ESFs (e.g. Introductory Materials; Admin, Finance, and Logistics; and Plan Development and Maintenance) are addressed in the Base Guide section of the Regional Coordination Guide. 2-3

4 General Purpose I. PURPOSE 1. The goal of all regional coordination activities conducted in the Kansas City metropolitan region is to ensure jurisdictions have the ability to: a. Exchange and/or Clarify Information b. Develop and Disseminate Common Messages c. Share Available Resources and Assist Impacted Jurisdictions d. Develop a Regional Common Operating Picture e. Participate in the Coordination of Multi-Jurisdictional Actions f. Participate in the Facilitation and Discussions Pertaining to the Prioritization of Resources and Services within the Region 2. The (RCG), including ESF #2, is intended to facilitate the sharing of information and resources among jurisdictions, as well as promote a coordinated regional approach to accomplishing emergency activities. 3. For more information on general regional coordination activities, see the RCG Base Guide and the summary of regional coordination activities included as Attachment A. ESF #2 - Communications Purpose 1. ESF #2 is designed to describe and discuss the following: a. Regional communications and back up communication capabilities b. Communications interoperability among response agencies from different jurisdictions c. Communications between jurisdictions d. Amateur radio capabilities e. Telecommunications and information technology (Web-based) communications resources f. Regional emergency warning and notification capabilities g. Cyber Attacks and Security 2-4

5 2. ESF #2 is designed to complement and support the communications plans and procedures already in place in the region. The information provided in ESF #2 is intended to increase awareness and provide information to agencies and organizations regarding the communications plans, systems, resources and capabilities available in the region. These systems, plans and available communications are described under Situation Overview. II. SCOPE The activities described in ESF #2 addresses regional communications and back up communications systems, amateur radio capabilities, communications between jurisdictions, interoperability among response agencies from different jurisdictions, telecommunications and information technology resources, as well as regional emergency warning and notification capabilities. 1. ESF #2 is one component of the RCG, which consists of a Base Guide and fifteen (15) ESFs developed for use by all of the jurisdictions, agencies and organizations in the nine (9) county, bi-state metropolitan area as described in the Base Guide. To the extent possible, information contained in the RCG Base Guide and other ESFs will be referenced and not repeated in ESF #2. 2. ESF #2 addresses all-hazards and emergency scenarios with the potential to require some degree of regional coordination, as described in the RCG Base Guide and summarized in Attachment A. 3. ESF #2 is intended to support, but never supersede, the functional annexes of local Emergency Operations Plans (EOPs), and other plans and protocols maintained by both public and private agencies and organizations involved in the execution of ESF #2-related activities. 4. The communications capabilities described in ESF #2 provide resources and mechanisms (i.e. sirens) to warn residents of emergencies/disasters. The public information activities are described in ESF #15 (Emergency Public Information). 5. As stated earlier, ESF #2 will include references and describe as appropriate, the many communications plans, procedures, protocols, etc., maintained by various agencies and organizations in the region. ESF #2 is intended to complement these plans and describe how to access and coordinate with these resources and systems. Its purpose is not to provide operational guidance regarding communications procedures and protocols. 6. Regional warning and notification capabilities and guidelines are addressed separately as Attachment D to this ESF. 7. For the convenience of the reader, a list of communications-specific terms is included as Attachment C. A complete list of terms and acronyms may be found as an Attachment to the RCG Base Guide. 8. ESF #2 will address or reference, where appropriate, the following Core Capabilities and desired outcomes associated with ESF #2 related activities. It incorporates the region's 2012 Threat and Hazard 2-5

6 Identification and Risk Assessment (THIRA). The THIRA, which builds off the 2010 Regional Capabilities Assessment, re-evaluated the region's threats, hazards, and capabilities against the Core Capabilities outlined in the National Preparedness Goals. The Regional THIRA expands on existing local and multi-state Hazard Identification and Risk Assessments (HIRAs) and other risk methodologies by broadening the factors considered in the process, incorporating the whole community throughout the entire process and by accounting for important community-specific factors. Copies of both the 2010 Regional Capabilities Assessment Report and THIRA may be obtained from MARC. Table 1: ESF 2 Core Capabilities CORE CAPABILITY ESF #2 COMMUNICATIONS ACTIONS REGIONAL PLANS AND ESFs Operational Communications 2012 KC THIRA Desired Outcomes, as applicable: Ensure the capacity to communicate with both the emergency response community and the affected populations and establish interoperable voice and data communications within the region. Regional TICP Ensure the capacity for timely interoperable voice and data communications in support of security, situational awareness, and operations by any and all means available between all affected communities, agencies and response entities as dictated by the incident. Coordinate re-establishment of communications infrastructure within the affected areas to support ongoing life-sustaining activities; provide basic human needs, including the needs of individuals with disabilities and others with access and functional needs; and transition to recovery. ESF 3 Public Works and Engineering III. SITUATION OVERVIEW 1. Overview a. Communications is a support function for all other emergency capabilities. Effective and efficient communications are necessary to allow response agencies and organizations to have all the information they need to appropriately respond to an emergency event. 2-6

7 b. Effective emergency response requires coordination, communication and the sharing of vital information among numerous agencies and organizations. This ability to communicate among all those involved in an event can be one of the most challenging tasks for emergency responders. c. Communications interoperability is the ability of multiple entities to interact by transmitting understandable and meaningful thoughts, messages, or information while using similar or dissimilar communications systems. When communications systems are interoperable, responding agencies from different disciplines and different jurisdictions have the ability to effectively communicate emergency information. Communications interoperability makes it possible for all emergency response agencies to work together throughout an emergency incident. d. Redundancy in communications systems is necessary to prevent a single point of failure from compromising communications capabilities. Reliable and resilient emergency communications systems are essential for emergency personnel to effectively respond to and recover from an emergency event. Providing and maintaining these reliable communications capabilities is an integral part of local Continuity of Operations (COOP) Plans maintained by the jurisdictions in the region. e. Effective and efficient communications during emergencies requires both interoperable and redundant systems and methods. The systems and methods used to assist emergency response personnel in achieving both redundant and interoperable emergency communications vary throughout the region, but consist primarily of wireless voice (radio), voice and data wire line and wireless telecommunications, and Internet (voice/data). These systems are described in the following section. f. Jurisdictions face a variety of challenges in achieving communications interoperability including the potential failure of communications equipment and human factors such as inadequate planning or training. To address these challenges, regional stakeholder groups have been established and plans developed to assist in identifying solutions to improve the region s ability to ensure interoperable and reliable communications capabilities are in place. g. These stakeholder groups and the interoperable and reliable communications plans, mechanisms and methods used by the emergency response agencies and organizations in the region are described in the following section. 2. Local Communications Plans and Systems a. Local EOPs include Communications Annexes describing the communications and warning capabilities in their communities. These Communications Annexes describe the types of communications capabilities available in each jurisdiction, when they are used and by what agencies and organizations. b. Emergency responders rely primarily on radio (VHF, UHF, 700 and 800 MHz), which are used routinely by emergency services agencies (e.g., fire, law enforcement, Emergency Medical Services, etc.) to communicate. Emergency communications may also be conducted using landline telephones, cellular phones, the Internet and amateur radio. c. Communications may be initiated via a Public Safety Answering Point (PSAP), a call center with trained telecommunicators responsible for answering calls made to an emergency telephone number for police, firefighting, and ambulance services and dispatching emergency services. All of the PSAPs in the region are capable of caller location for landline calls and approximate location 2-7

8 for mobile phone calls. Some also offer emergency alerting services, where outgoing voice messages may be sent at one time to many phone numbers, or as text messages to pagers and/or s. d. There are 42 (forty-two) local PSAPs operated by emergency services agencies in the nine-county, bi-state region. All have phone equipment that is part of the regional system. PSAPs are also equipped with the jurisdictions emergency dispatch systems and Computer Aided Dispatch (CAD) where available. PSAPs in the region are identified in the Tactical Interoperable Communications Plan (TICP). e. Auxiliary communications for emergency events may be provided by members of the Metropolitan Emergency Communications Council (MECC) whose members include amateur radio groups, volunteer organizations and private sector entities with auxiliary communications capabilities. MECC members provide a valuable mutual aid resource for the local jurisdictions in the region. For more information, see Regional Communications Stakeholders. 3. Regional Communications Plans and Systems a. Tactical Interoperable Communications Plan (TICP): The Tactical Interoperable Communications Plan (TICP) developed for the MARC region is designed to document the interoperable communications systems and resources available in the region; identify who controls these resources; and document what operational procedures, protocols or rules of use exist for the activation and deactivation of these interoperable communications resources. Development of the TICP was a requirement for the Urban Area Security Initiative (UASI) program and each Urban Area Working Group was tasked by the Department of Homeland Security (DHS) to complete a TICP. MARC s Public Safety Communications Board approved an initial TICP in 2005 and the TICP will be reviewed and updated as needed. An important component of the regional TICP is training the personnel who will be using the communications systems and resources. The region has developed a plan to train public safety personnel on how to access and use new regional interoperability assets, and training is currently underway. Personnel identified as primary Points of Contact (POCs) for their agencies become familiar with the TICP through a train-the-trainer course. They learn to use a Web-based tool that can track public safety/first responder radio equipment and infrastructure information and provide a virtual map of the agencies, radio systems, towers, dispatches, gateways and radio caches in use in the urban area. The curriculum also identifies operational responsibilities for key positions such as Regional Communications Coordinators (COMC) and Communications Unit Leaders (COML). b. Regional Area Multi Band Integrated System (RAMBIS): A system developed to enhance and expand current interoperability methods by allowing interconnection of various shared channels throughout the region. RAMBIS is a 10-site simulcast system and includes the three major radio frequency bands used by public safety (UHF, VHF and 800 MHz), providing first responders with an immediate resource for communicating with other agencies on a common channel. For more information on RAMBIS see Phase III includes a regional voice radio known as the Metropolitan Area Regional Radio System (MARRS). For more information on MARRS see c. MARCER Radio System: The Mid-America Regional Council Emergency Rescue Committee (MARCER) is the forum for emergency medical services planning and coordination in the Kansas City metropolitan region. MARCER coordinates training of area emergency medical services 2-8

9 personnel and operates the regional ambulance to hospital radio system. The MARCER radio system serves over twenty four (24) hospitals and forty (40) EMS agencies in the bi-state region. d. EMResource: EMResource is a Web-based program providing real-time information on hospital emergency department status, hospital patient capacity, availability of staffed beds and available specialized treatment capabilities. The system links all acute care hospitals and many EMS agencies in Region A. It is the region s primary method of communicating hospital status and capabilities and coordinating patient routing. EMResource utilizes Emergency Medical Coordinating Centers (EMCCs) throughout the region to coordinate information, and the states may also use the system to conduct bed polling in statewide events. For more detailed information on the EMResource and its use, see the EMResource Protocols and Policies Manual. e. Hospital Emergency Administrative Radio (HEAR): The Hospital Emergency Administrative Radio (HEAR) system links all acute care hospitals and many area EMS agencies on a single channel radio system. The HEAR system serves as a backup to the EMResource system in the event of a Mass Casualty Incident (MCI) or other major health and medical emergency. The HEAR system is operated from a primary control hospital in the region and when a HEAR alert has been issued; the primary control hospital will contact the other hospitals in the region and collect bed and patient treatment capability information. f. Healthcare Notification System (HNS): The Healthcare Notification System (HNS) provides health and medical agencies in the region with the ability to notify their personnel of emergency events via landline, cell phone and/or text message. The system is supported by a local server for use in localized events and Web-based server capable of region-wide notifications. g. Health Alert Network (HAN): Notification of a biological event may come through one of the two Health Alert Networks (HANs) serving the area. The Kansas City, Missouri Health Department (by contract with DHSS) serves as the regional HAN hub for the Missouri side of the metropolitan area and the Kansas Department of Health and the Environment (KDHE) HAN serves the Kansas side. h. Metropolitan Emergency Radio System (MERS): Used by the National Weather Service (NWS), Emergency Management Agencies and other emergency response agencies in the metro region to exchange severe weather information and to help improve communications between agencies and jurisdictions. MERS members are included in monthly tests of the system and MERS is used on a regular basis during severe weather events. Although MERS has traditionally been used as a communications method for severe weather events, it may be used to exchange information regarding any type of emergency event. i. WebEOC: WebEOC allows jurisdictions to communicate information regarding emergency events in real time via the Internet. In addition to local WebEOC capabilities, regional WebEOC Boards have been developed to assist jurisdictions in the region in maintaining regional communications and coordination for more information on the use of the WebEOC regional boards, see ESF #5 Information and Planning. j. The Homeland Security Information Network (HSIN) is an additional tool available to federal, state, local, tribal, territorial, private sector, and international partners engaged in the homeland security mission to share "sensitive but unclassified" information. Some features of HSIN include: Document sharing Secure 2-9

10 Threaded discussion posts Secure webinar capability Secure instant messaging The Kansas City Regional Homeland Security Coordinating Committee maintains its own HSIN site available to emergency services organizations and agencies within the Kansas City metro. Access to the site can be requested by contacting MARC Emergency Services staff. 4. Regional Communications Stakeholders a. Public Safety Communications Board: This board consists of agency administrators and elected officials from local governments throughout the region and is primarily responsible for executive level policy guidance and oversight for the regional and interoperable communications systems. The overriding purpose of the board is to ensure these systems are a high quality; reliable method of interoperable communications available to all regional public safety personnel. It is the responsibility of the board to ensure that the and regional communications systems meet the needs of and are financed equitably among participants. The board is charged with administering the Inter-local Cooperation Agreement, monitoring and auditing expenditures for and public safety communication services, approving the annual budget for and public safety communications systems, monitoring technical operation of the regional systems to include the network design and performance, selective routing and database management, and ensuring the effective operation of the Regional System. b. Public Safety Communications Users Committee: This committee is a sub-committee of the Public Safety Communications Board and is primarily composed of individuals responsible for the day-to-day operations of the various Public Safety Answering Points (PSAPs). This committee makes recommendations to the Public Safety Communications Board on all matters such as budget, annual work plan, cost sharing, etc. Membership classifications for this committee are set by the Answering Point Agreement, which is part of the Inter-local Agreement. Each answering point has one official (voting) member to the committee representing that PSAP. All PSAP personnel are encouraged to attend and participate in committee activities. c. Regional Interoperability Committee: This committee is responsible for the planning and implementation of regional interoperable communications systems, and developing recommended operational procedures to be incorporated into the TICP. The Interoperability Committee is responsible for recruiting and training qualified personnel to serve as Regional Communications Coordinators (COMC) to support interoperability. This committee provides oversight for implementation of the Regional Interoperability Communications Training Plan and is responsible for developing recommendations to ensure the TICP is exercised, evaluated and modified, as needed. Additional information on the regional stakeholder groups listed above and their roles, responsibilities and missions is available on the MARC Website at d. Metropolitan Emergency Communications Council (MECC): A group established to promote cooperation and coordination among amateur radio groups (e.g., ARES and RACES), volunteer organizations (e.g., Community Emergency Response Teams [CERT]) and private sector entities with auxiliary communications capabilities. The MECC members may be available to assist both government entities and not-for-profit organizations with a need to utilize auxiliary communications during emergencies. The MECC serves as a mutual aid resource for the region and may assist affected jurisdictions in identifying and utilizing available communications 2-10

11 capabilities. A list of current members and their contact information is maintained by the MECC Chair and may be obtained by local agencies with a need for this information by contacting the MECC Chair (see Regional Resource Annex). e. Kansas City Regional Terrorism Early Warning (TEW) Group: The Kansas City Regional Terrorism Early Warning Group brings local, state and federal law enforcement officials together with public and private organizations to detect, deter and respond to terrorist threats in the Greater Kansas City community. The TEW's Interagency Analysis Center collects information from a variety of sources. This data is evaluated and analyzed in an effort to identify potential trends or patterns of terrorist or criminal operations within the region. Efforts are currently ongoing to enhance cyber security protection and prevention. 5. Regional Interoperability Capabilities and Resources Emergency responders in the region have access to the following interoperable communications equipment: a. Mobile Command Vehicles: The region has acquired two (2) regional mobile command vehicles with radio interoperability capabilities. Several local agencies within the region have similar vehicles. Each mobile command vehicle provides regional public safety agencies with the physical capabilities needed to effectively operate under the Incident Command System at a large-scale incident. b. Communications Trailers: There are three (3) communications trailers available in the region that may be deployed to manage interoperable communications during major incidents. The trailers provide reliable radio links and are equipped with a radio gateway providing direct connectivity between overlapping public safety agency radio systems operating in different frequency bands (VHF, UHF and 800 MHz). c. Exercise Control Trailer: The region maintains an exercise control trailer that carries a cache of portable radios and accessories. The trailer has 63 hand-held portable radios, a supply of spare batteries, chargers, microphones, headsets and other accessories, a portable repeater and a highgain antenna. The exercise control trailer ensures seamless radio operations when deployed to exercises and these assets may also be used to support emergency incidents. Note: Additional information on the resources listed above, as well as other specialized resources and personnel available in the region, is included in the Regional Resource Annex and in the TICP. d. In addition to these regional assets, there are four (4) primary categories of interoperable communications equipment maintained by local public safety and emergency response agencies and available to support emergency incidents in the region as follows: - Swap Radios: Allow all responders to use a common, compatible set of radios to communicate during an emergency incident. Caches of swap radios are maintained by three (3) agencies in the region with smaller quantities maintained by several other agencies. Additional information on the locations and methods for deployment of swap radios and swap radio caches is included in the TICP. 2-11

12 - Shared Channels: Are common frequencies or channels established and programmed into radios to provide interoperable communications among agencies. There are several specific shared interoperable communications frequencies used in the region, including the Hospital Emergency Administrative Radio System (HEAR), Fire Mutual Aid, Law Enforcement Mutual Aid, the Metropolitan Emergency Radio System (MERS) and others. These shared channels are listed and described in the TICP. - Gateways: Are systems providing a connection between two or more radio networks allowing users on one network to communicate with users on another network. For example, users on an ultra-high frequency (UHF) channel may be connected to users on a very-high frequency (VHF) channel allowing them to communicate during an event. This is accomplished by connecting two or more radio channels with a gateway device, such as Voice-over Internet Protocol (VoIP) interconnection or a console patch. Using a gateway system, a dispatch operator may select the appropriate channels to be connected, and multiple interconnect sessions involving distinct groups may be established by the dispatch operator. Gateway systems are normally used in regions with overlapping coverage of participating radio systems (e.g., the Kansas City metro area). Specific gateway systems available for use in the region are listed and described in the TICP. - Shared Systems: Is a single radio system infrastructure designed to provide service to most or all public safety agencies in a region. There are several shared systems maintained by agencies and organizations in the metro region. These shared systems are listed and detailed in the TICP. In addition, as described earlier, the region has implemented a Regional Area Multi-Band Integrated System (RAMBIS) designed to enhance and expand current interoperability methods by allowing the interconnection of various shared channels throughout the region. RAMBIS includes the three major frequency bands used by public safety (UHF, VHF, and 800 MHz) and serves as the first responders primary choice to provide an immediate resource for communicating with all other agencies. 6. State and Federal Interoperability Capabilities and Resources a. State communications interoperability equipment and resources are in place through various state agencies (e.g., KHP, MHP, MODOT, KDOT, etc.) and may be available to provide some communications support for local and regional communications activities; however, it is recognized these resources will not be immediately available and may be in use elsewhere. Local EMAs and EOCs (when activated) will assist in requesting state and federal resources by ensuring appropriate coordination with SEMA and KDEM. b. SAFECOM is a communications program of the Department of Homeland Security (DHS). SAFECOM provides research, development, testing and evaluation, guidance, tools, and templates on interoperable communications-related issues to local, tribal, state, and federal emergency response agencies. As an emergency responder-driven program, SAFECOM is working with existing federal communications initiatives and key emergency response stakeholders to address the need to develop better technologies and processes for the multi-jurisdictional and crossdisciplinary coordination of existing systems and future networks. SAFECOM harnesses diverse federal resources in service of the emergency response community. For more information, see the SAFECOM Website at: c. The federal government maintains the National Emergency Communications Plan (NECP), a strategic plan that sets goals and identifies key national priorities to enhance governance, planning, technology, training and exercises, and disaster communications capabilities. The NECP provides 2-12

13 recommendations, including milestones, to help emergency response providers and relevant government officials make measurable improvements in emergency communications. The NECP may be found in its entirety at the following link: d. In addition, the National Communications System (NCS), part of the Department of Homeland Security (DHS), maintains several systems potentially available to assist with communications during a major emergency, such as Wireless Priority Service (WPS), Government Emergency Telecommunications Service (GETS), Shared Resources High Frequency Radio Program and the Telecommunications Service Priority (TSP) program. Information on these communications systems is available at: 7. Notification and Warning Systems Information on the regional warning and notification systems and procedures used in the region is included in Attachment D. IV. PLANNING ASSUMPTIONS 1. In addition to the overarching coordination principles included in the RCG Base Guide, the following assumptions apply specifically to ESF #2: a. Emergency events will likely require both communications operability within individual agencies, as well as communications interoperability between all responding agencies and organizations. b. The Incident Commander will determine the timing and extent of the public notification and, with advice from other officials, recommend the proper protective actions. c. The first responder community encourages the regular, daily use of the communications systems and protocols described in ESF #2 to increase user familiarity, and enhance expertise in using these systems and protocols. d. Reliable and resilient communications systems for public safety and emergency services agencies are in place. e. Critical infrastructure protective actions have been implemented to ensure communications systems remain operable. f. Except in a catastrophic event, at least some existing communications systems will likely survive and remain functional, and trained communications personnel will be available and able to respond to the incident. g. Amateur radio operators will likely be available to assist during an emergency situation and will be integral in supporting disaster operations. 2-13

14 h. The communications protocols and procedures developed and endorsed by the agencies and jurisdictions in the region will be used during emergency events. i. Regardless of how well developed a warning system is, some citizens will ignore, not hear or not understand warnings of impending disasters broadcast over radio, television or outdoor warning sirens. j. Mutual aid agreements and agreements of understanding regarding communications and warning operations should be maintained. k. Resources and equipment from outside the region will be deployed with trained operators. l. Protective measures have been taken to protect communications equipment from lightning, wind and other hazards. (Protection measures include shielding equipment and attaching surge protectors.) m. Local jurisdictions have worked with their utilities providers and the federal Telecommunications Service Priority (TSP) program to establish priority of service restoration for telephone equipment in PSAPs, EOCs and in other essential facilities. n. These local networks, by necessity, must form the basis for an emergency communications system. In addition, telephones will be utilized as long as those systems are in operation. If needed and available, amateur radio and citizen's band networks may be used to augment the existing communications capability. o. Appropriate coordination with private communications providers (e.g., AT&T, Sprint, etc.) serving the jurisdictions in the region has occurred before the event, and communications will be maintained with these providers as needed during and after the event. p. Multiple emergency events may occur simultaneously or one event may trigger another (e.g., a winter storm may cause utility outages and hamper transportation routes). The occurrence of multiple or cascading hazards may affect the availability of communications resources and personnel to support the event. q. In major events, state and federal resources may be available to assist the jurisdictions in the region in augmenting communications capabilities, but their availability may not be immediate. r. The jurisdictions in the region should be prepared to manage the event without state and federal communications resources for the Golden seventy-two (72) hours. 2-14

15 V. CONCEPT OF OPERATIONS General Coordination Activities KANSAS CITY METROPOLITAN AREA 1. The coordination of incident communications will be conducted per NIMS guidance by the Incident Commander (IC). If local communications resources responding to the event are inadequate, assistance will be requested from other unaffected or less affected jurisdictions in the region. 2. When activated, local EOCs will provide support for incident operations as requested. EOCs will work to coordinate information among other local departments, agencies and public officials as needed in support of the communications function. 3. The type and extent of regional coordination activities initiated and maintained by EOCs will depend on the capabilities of the jurisdictions involved and the scope of the incident. When needed, local EMAs in the region may initiate and maintain regional coordination by using WebEOC, an online EOC information management tool. Other technology, such as teleconferencing, s, facsimile, etc. may be used to help ensure regional coordination is accomplished. 4. As needed, the IC (through the COML once assigned) will maintain communications with the EOC to ensure the EOC is available to support field operations by requesting additional resources if needed. In the event of a major incident, an inventory of available communications and interoperable communications capabilities available in the region may be coordinated by the EOC(s) in the affected jurisdiction(s) at the request of the IC/UC. 5. The need for additional communications capabilities from outside the region will be based on the extent to which the jurisdictions in the region are involved and what available communications resources are in use. If communications capabilities within the region are inadequate, local EOCs will forward a specific request for the needed resources to their respective state EOCs as described under Local Actions. ESF #2 - Specific Coordination Activities 1. Local Actions a. During emergency operations, all responding departments and agencies will initially use their existing equipment for communicating with field operations and will request additional communications resources as needed to support the event per agency protocols in accordance with ICS and NIMS. b. While the day-to-day communications capabilities of responding agencies may be diminished during an emergency incident, they may be augmented by communications resources from other agencies that are not normally in use. Smaller emergencies are normally managed using locally available resources with no need for regionally available communications assets as shown in Figure

16 c. Communications resources may be expanded during emergency situations by augmenting telephone, satellite, and cellular services and utilizing amateur radio communication networks. Amateur radio capabilities are described under Amateur Radio Operations. Figure 1: Incident Is Managed Locally No Regional Resources Required d. Outside communications resources used to support emergency operations will remain under the direct control of the agency maintaining the resources, but will be assigned by the IC (or the Communications Coordinator [COMC]) for more information, see Regional Actions. e. Local EOC communications with their respective state EOCs will be accomplished through landline telephone links, cellular phones, radio contact, , WebEOC or other Internet database systems. Local procedures for communicating with the state and the declaration of local, state and federal emergencies is described in ESF #5 Information and Planning and the RCG Base Guide. f. In addition to the actions described in this section, Attachment B provides a First Hour Checklist of communications-related actions for consideration. 2. Regional Actions a. Use of the Incident Command System (ICS) compliant with the National Incident Management System (NIMS) will be required to utilize any regional communications interoperability resources. b. All interoperable communications will be conducted using plain language (i.e., radio codes, acronyms, and abbreviations will be avoided) to lessen the possibility of confusion between agencies. c. All responding agencies and organizations will identify themselves during radio communications with Department Name, Unit Type and Unit Number. Once a Unit has been assigned a task by command, it should identify itself using this assigned task (e.g., Triage Team #1 to Triage Sector). d. The IC or their designee (usually the Communications Unit Leader [COML]) will determine when a situation exists that requires use of a regional interoperable communications resource. 2-16

17 e. The requesting agency will follow internal agency procedures to contact a regional Communications Coordinator (COMC) and relay pertinent information regarding the event. COMCs are a major component of the TICP and public safety personnel serving in this role must demonstrate core competencies adopted by MARC s Public Safety Communications Board for more information, see the TICP. f. The COMC is available to serve as a resource to the IC and COML and fulfill specific duties and responsibilities as outlined in the TICP the COMC may be requested through the Johnson County Communications Center (CCC). These responsibilities include the authority to coordinate and assign multijurisdictional communications interoperability assets. g. In most cases, the local Communications Center will be tasked by the IC/COML to initiate contact with the COMC. When the EOC(s) is activated, responding departments and agencies should maintain ongoing communications with their local EOC and if needed, the IC/COML may request the EOC to initiate the COMC function to support the communications needs of the incident. h. The IC should ensure close coordination is maintained with local EOC(s). EOC(s) will establish methods of maintaining communications with their local Communications Center(s) to ensure communications resources are being properly utilized and tracked. Additionally, local EOCs (counties and cities in Missouri and counties in Kansas) will coordinate with their respective state emergency management agency (i.e., KDEM and SEMA) to request state and/or federal communications resources as illustrated in Figure 2. i. If an agency activates a regional interoperability resource under its control (i.e., a resource maintained by that agency), the COMC should be notified and provided with information regarding the resource activated. If the agency is requesting interoperability resources outside its control, the following information should be provided to the COMC at the time of the request: Requesting agency On-scene agencies requiring interoperability Reason for the request Type of event and expected duration Requesting agency or servicing dispatch contact information j. The COMC is authorized to request interoperability resources on behalf of the requesting agency and will be responsible for determining what regional interoperability resources are available and identifying the specific resource. k. The COMC will then deploy the appropriate resource. For example, if a radio cache or mobile gateway is activated, the COMC will contact the Radio Cache Manager or Gateway Manager to deploy the appropriate resource. l. If a resource is identified as a regional interoperability resource, the responsible agency (i.e., the agency maintaining the resource) will deploy the resource at the request of the COMC, unless the resource is already in use or other constraints prevent the responsible agency from deploying the resource. m. If the needed resource has been identified as a local interoperability resource, the COMC can still request use of the resource, but the specific procedures of the responsible agency will be followed to authorize use of the resource. 2-17

18 n. The COMC will coordinate the deployment by providing the contact information for the interoperability resource to the IC or COML. Figure 2: Regional Communications Support Required Area Command Potentially Established 2-18

19 o. Problems experienced when requesting interoperability resources may be reported by any dispatch center involved or by the Incident Command staff to the COMC. The COMC will be responsible for ensuring effective resolution of problems existing with interoperability resources. p. More specific information regarding the availability and deployment of interoperable communications resources in the region including Swap Radios, Shared Channels, Gateways and Shared Radio Systems is included in the TICP. q. Responding agencies will return to normal operations per NIMS guidance, agency protocols, and the TICP. When regional communications resources are used, after action comments will be provided to the Regional Interoperability Committee and as appropriate, integrated into the overall incident report. 3. Amateur Radio Operations a. Amateur radio operators are a valuable resource with the ability to augment communications during emergency incidents in the region. b. As described under Situation, members of the Metropolitan Emergency Communications Council (MECC) have auxiliary communications capabilities potentially available to support emergency operations in the region. c. When needed, the COML or COMC will request assistance from amateur radio operators to support or augment incident communications by contacting the MECC. Contact information for the MECC is included in the Regional Resource Annex. d. Depending on the event and local EOC activation status, the COML/COMC will work with the EOC to identify and deploy amateur radio operators and equipment to support the event. When needed, an amateur radio liaison may operate from the EOC. e. Once established, the Logistics Section may be tasked with obtaining amateur radio support for the event. As appropriate, the COMC will assist the COML (or the Logistics Section) with these efforts as requested and when needed. f. If the EOC is activated, but amateur radio resources are requested directly by the COML/COMC or Logistics Section, they will keep the EOC informed of the status of amateur radio resource requests and deployments. g. The Automatic Position Reporting System (APRS) previously, the Automatic Packet Reporting System may be used during emergencies to share live data on a network in real time. APRS is capable of providing real time tactical communications and a display system for emergencies and public service applications. APRS may be used for both stationary and portable emergency messaging and tracking. For more information, see the following Web site: h. In addition to their communications capabilities during incidents, many amateur radio operators serve as weather spotters during imminent severe weather events (for more information, see Attachment D Warning and Notification). 2-19

20 Training and Exercises 1. Training and exercises are essential to ensuring the success of communications activities and are an integral component of regional preparedness. 2. The Regional Homeland Security Coordinating Committee (RHSCC) Training and Exercise Subcommittee is responsible for coordinating training and exercises in the region. All training and exercises supported by the RHSCC Training and Exercise Subcommittee follow the principles of NIMS including training for the COMC and COML positions. 3. In cooperation with MARC, the Training and Exercise Subcommittee will work closely with the RHSCC Subcommittees and other organizations representing the emergency services disciplines in the region to identify individuals and agencies in need of training to support the communications function. 4. In addition to training, exercises should be conducted to build awareness, practice roles and test the validity and performance of the communications function. Departments and agencies with communications responsibilities should participate in these exercises to test the knowledge, skills and abilities necessary to support the communications function. Testing the TICP and its supporting procedures should be included in all regional exercises. 5. The results of exercises may require modifications or enhancements to ESF #2. Exercises may also identify the need for additional training to support the activities described in ESF #2. 6. The Homeland Security Exercise and Evaluation Program (HSEEP) is intended to provide a uniform methodology for designing, developing, conducting and evaluating exercises, and all regional exercises will be conducted in accordance with the guidance provided in the HSEEP. 7. Following exercises, attention should be given to developing After Action Reports and Improvement Plans (AAR/IPs) identifying future planning, training and exercise needs to support the communications function. VI. ORGANIZATION AND ASSIGNMENT OF RESPONSIBILITIES General 1. The roles and responsibilities of government local agencies are formally assigned and defined in EOPs and their supporting guidelines, as well as in the plans maintained by volunteer agencies and the private sector. 2. In addition, public safety and emergency services agencies maintain internal communications protocols, guidelines and procedures for emergencies, including communications among responding agencies and with the local EOC. 2-20

21 3. The responsibilities described below are not meant to be all inclusive, but rather to complement the responsibilities assigned in local plans and reinforce the activities described in ESF #2. 4. Coordinating Agency roles and responsibilities for ESF #2 has been assigned based on the activities performed that parallel the day-to-day activities of that agency. For example, interoperable communications plans and capabilities developed prior to the event are primarily facilitated by the MARC Public Safety Communications Board, while communications functions in the response phase of the event are managed by IC and the local EMA(s) in the affected jurisdiction(s). 5. Although the MARC Public Safety Communications Board serves a vital role in preparedness activities and may also assist in recovery, it does not have a role in response and serves only as a policy group. Coordinating Agency MARC Public Safety Communications Board The MARC Public Safety Communications Board will: 1. Work to ensure interoperable communications plans and systems are in place to support emergency incidents in the region. 2. Work with local departments and agencies to acquire and implement interoperable communications solutions (e.g., equipment and trained personnel. 3. Work with the RHSCC Training and Exercise Subcommittee to ensure interoperable communications training and exercise opportunities are available. Coordinating Agencies: IC and local EMAs The Incident Commander (IC) will: 1. Coordinate all incident communications activities through the implementation of ICS and NIMS. 2. Maintain contact with local EMAs and EOCs regarding communications resources, capabilities and requirements. The Incident Commander is responsible for field communications and local Emergency Management Agencies are responsible for working to ensure regional coordination activities are accomplished, as well as maintaining communications with local and state agencies who may be needed to support the event. Emergency Management Agencies (EMAs) will: 1. Work to provide communications resources and support to the IC as requested. 2. Work to ensure the exchange of information between jurisdictions and regional coordination by accomplishing the following: 2-21

22 a. Include up-to-date information regarding communications resources, capabilities and needs in the WebEOC regional boards. b. Maintain ongoing communications with other jurisdictions (e.g., conference calls, group s or meetings, when needed) to help ensure regional coordination. c. Initiate communications with other jurisdictions regarding the need for and availability of communications resources and when needed, considering the potential pooling of local resources to meet regional needs. d. When appropriate, work to ensure consistent and useful emergency public information is released regarding communications activities. e. Provide information to state and federal agencies regarding the need for additional communications resources. f. Coordinate the activities of the Cooperating Agencies to ensure regional issues are considered and ensuring the Cooperating Agencies provide information as needed for the regional WebEOC boards. g. Work to ensure equipment and personnel information is appropriately entered into the regional resource database and accessible to the appropriate regional stakeholders. h. Work with MARC to help ensure volunteer agencies and organizations have access to the regional resource database and appropriate training on using the system. Cooperating Agencies and NGOs As needed, the Cooperating Agencies will provide resources, personnel and special expertise to support ESF #2 activities. Cooperating Agencies are tasked with working to ensure regional coordination by accomplishing the following activities: 1. Providing information regarding available and needed resources for the regional WebEOC boards. 2. Communicating with the Cooperating Agencies in other jurisdictions regarding the availability of resources. 3. Considering the potential pooling of local resources to meet a regionally identified need. 4. As needed, participating in regional coordination activities, such as conference calls and meetings. All Agencies (Coordinating and Cooperating) All Coordinating and Cooperating Agencies, as well as NGOs and state and federal agencies as appropriate will work to accomplish the following in support of communications activities: 1. Include regional coordination activities in their standard operating procedures, guidelines and/or checklists. 2-22

23 2. When requested and if available, deploy representatives to local EOCs to provide technical assistance and assist with communications activities as needed. 3. Provide ongoing status reports regarding the communications resources needed and available as requested by local EOCs. 4. Maintain up-to-date rosters for notifying personnel and 24-hour staffing capabilities. 5. Perform emergency communications tasks as requested by local EMAs and EOCs. 6. Work to ensure training is available and completed as appropriate in ICS/NIMS, the use of WebEOC and available regional resource databases. 7. Participate in local and regional emergency exercises to the extent possible. 8. Work to ensure recordkeeping procedures are in place to accurately track resources and personnel. VII. ATTACHMENTS A. Summary B. First Hour Checklist for Regional Emergencies Communications C. Communications-Specific Terms and Acronyms D. Warning and Notification Regional Resource Annex The following ESF 2 related items are maintained in the Regional Resource Annex. Metropolitan Emergency Communications Council (MECC) Contacts Mobile Command Vehicles Communications Trailers Exercise Control Trailer 2-23

24 Attachment A. Summary Overview The RCG provides an overall framework for regional coordination activities and may be initiated and maintained when there is a need for the jurisdictions in the metro area to provide common messages, and share information and resources. The protocols described in the RCG are intended to assist participating jurisdictions, agencies and organizations (whether government, volunteer or private sector) in augmenting their emergency resources and maximizing their emergency capabilities. The RCG is not intended to be an operational document. Operational emergency activities are coordinated through local Emergency Operations Centers (EOCs) and described in local Emergency Operations Plans (EOPs), standard operating guides, and the operating procedures maintained by local emergency response agencies. The RCG is flexible and scalable and was developed for use during any type or size of incident or event. Use of the principles and actions described in the RCG will be determined by the incident or event and the needs of the involved jurisdictions, agencies and organizations. Furthermore, the RCG is applicable for both planned events (i.e. MLB All-Star Game), which are scheduled nonemergency activities; and incidents (i.e. natural and manmade hazards), which are occurrences that require a response to protect life and property. Because events can sometimes turn into incidents, and because regional coordination may be needed in both instances, the application and use of these terms and their meaning throughout the RCG may be interchangeable and are not necessarily mutually exclusive. Local participation in the activities described in the RCG is voluntary. Therefore, the RCG represents a voluntary agreement among participating organizations, and as such, no participating organization has control or authority over another participating organization except where stated elsewhere in federal, state or local laws. Key Concepts & Organizations Some disaster events may overwhelm the resources of a single jurisdiction or impact multiple jurisdictions within the region, necessitating assistance from regional partners or collective decision-making to meet the needs of the situation. The (RCG) was developed to document and outline these protocols for regional action in order to maximize the sharing and coordination of information and resources and to improve the surveillance, early detection and mitigation of hazards and threats. These regional protocols can be best understood to comprise a Regional Coordination System (RCS). The RCS is a comprehensive concept to describe the mechanisms for how planning and response occur on a regional level, and to ensure the efforts of jurisdictions impacted or potentially impacted by a disaster are appropriately inter-connected and complementary, rather than duplicative. It reinforces interoperability among area jurisdictions and organizations, and makes response efforts more efficient and effective by coordinating available resources, services, and aid. 2-24

25 Furthermore, another foundational component of the RCS is the Regional Incident Coordination Group (RICG). This group is meant to be adaptable and scalable to any incident/event, and will serve as the primary coordinating body during a significant disaster event necessitating regional coordination. The nature of the incident/event and corresponding and evolving response and recovery needs will largely determine which participants will make up the RICG at any given time during the incident/event. KEY CONCEPTS Resources: Resources are defined as personnel, vehicles, established teams, equipment, supplies and facilities available for assignment. Impacted Jurisdiction(s): The area defined as the Impacted Jurisdiction encompasses the jurisdiction and all the political subdivisions located within that jurisdiction, including special districts. The Impacted Jurisdiction is the jurisdiction that has or will be adversely impacted by an incident/event. Assisting Jurisdiction(s) and/or Disciplines: The Assisting Jurisdiction and/or discipline(s) provides timely emergency resources, services, and manpower to the Impacted Jurisdiction(s) -- and in some cases, the Host Jurisdiction -- in accordance to the provisions set forth by the RCS. Host Jurisdiction(s) and/or Facility: In situations where evacuation and/or mass care operations are necessary, the Host Jurisdiction serves as the jurisdiction that receives and shelters residents and animals coming from the Impacted Jurisdiction(s), and provides mass care and other needs as appropriate. Regional Incident Coordination Group (RICG): This group is meant to be adaptable and scalable to the incident/event. The nature of the incident/event and corresponding and evolving response and recovery needs will largely determine which participants will make up the RICG at any given time during the incident/event. Specifically, the RICG may be comprised of those designated representatives from the Impacted and Assisting/Host jurisdictions' key leadership, emergency management, first responder disciplines (i.e. Law Enforcement, Fire, EMS, SAR, HAZMAT), public health/medical, other regional disciplines, nongovernmental organizations, and ESF representatives (i.e. Transportation, Mass Care, Communications, Public Works, etc.). Other groups and organizations may be included, depending on the type and scale of the incident. Activation & Initiating Regional Coordination Although the criteria for initiating regional coordination are subjective, the Regional Coordination System (RCS) encourages a proactive approach to enhance regional vigilance/surveillance, information sharing, and, if necessary, a coordinated approach to incident/event management. Activation procedures may vary depending on the nature of the incident/event. The activation of the RCS, as the Regional Coordination Levels below indicate, are only meant to provide possible courses of action that can easily be adapted to the situation. 2-25

26 Pre-Planned Events For pre planned events, the decision to utilize components of the RCS will vary. However, because the RCS is scalable and flexible, the Region can utilize the RCS as long as it is not in conflict with existing laws and/or agreements between all of the involved parties. The RCS may be activated: When planning for large or high profile public gatherings that affect multiple jurisdictions. When similar past events have required multi agency coordination within the Region. Notice and No-Notice Incidents (Hazards and Threats) The RCS may be activated: When an impacted local jurisdiction s chief executive OR designee initiates the activation of the RCS. During a Level 1, 2, or 3 Regional incident/event. (i.e. When there is the possibility or reality that more than one jurisdiction could become involved in the incident response and recovery) When the incident could expand rapidly and involve cascading events. Implementing Regional Coordination: Regional Coordination Levels The type, scope and nature of the incident/event will dictate when it has regional significance and when regional coordination activities are initiated. Regional coordination within the RCS can be understood to occur across three levels. The levels are meant to illustrate how regional coordination activities should increase in operational function and complexity as the magnitude or severity of incidents increases. The levels are not meant to be concrete with distinct transition points from Level 1 to Level 2 to Level 3, but rather are defined by planning considerations to generally describe how regional coordination needs and activities differ with the scale of an incident. The figure below provides a summary of key actions for each level. For specific information and detail, see RCG: Base Guide. 2-26

27 (Note: For specific actions for each level, see RCG: Base Guide.) 2-27