PART II
THE EMERGENCY MANAGEMENT PLAN
STRUCTURE
The Emergency
Management Plan (EMP) is composed of three distinct sections: 1) the
Introduction, 2) the Basic Plan, and 3) the Emergency Support Functional
Annexes. They are described in the following pages.
INTRODUCTION
A.
Cover
Page - The cover page identifies the plan by name and provides the effective
date of the plan.
B.
Abstract
- The abstract provides a concise summary of the plan in terms of its
components and the purpose of those components.
C.
Table
of Contents - The Table of Contents lists the various sections of the plan
along with the page number on which they may be found. For the Introduction and
Basic Plan, all major headings are provided with relevant page numbers. For the
ESF annexes only the subfunctions are identified by
page--each ESF has its own Table of Contents.
D.
Record
of Changes - This is a form used to record the date of all changes made to the
plan since its original printing and includes provisions for the name/initials
of the person executing the change.
E.
Distribution
List - This is a list of all persons/agencies who receive a copy of the plan
along with the number(s) of the copy(ies).
F.
Foreword
- The Foreword describes the basic process used to develop the plan.
G.
Letter
of Agreement/Signatory Page(s) - This letter is a statement that the plan as
written represents the policy of the jurisdiction with respect to emergency
management and provides a place for the heads of all agencies tasked in the
plan to indicate their concurrence with the plan as a whole.
H.
Hazard
Identification - This section describes the various hazards that might affect
the jurisdiction and the extent to which they normally occur, as well as some
measure of the number of people that such an event typically affects in any
single occurrence. Maps depicting the extent of the jurisdiction's
vulnerability to a particular hazard may be included as well (i.e., a map
showing the location of all facilities that utilize hazardous materials). In
many cases, TEMA has developed maps showing the potential hazard's effects on a
statewide basis and these maps may be used in the local plan.
I.
Definitions/Acronyms
- In many places one acronym may mean one thing and in another place it may
mean someone totally different. This is the portion of the plan where
definitions specific to the plan are described as is the meaning of any unique
acronyms used by the jurisdiction.
J.
Authorities
and References - This section provides a source of authorities for the plan
(i.e., the laws or regulations that provide for certain actions delineated
within the document). This includes state and federal laws, local ordinances
and other administrative regulations that provide the basis for the assignment
of any task contained within the plan. A set of references is also provided.
References are any other document used to develop the local plan, including any
state and federal plans.
BASIC PLAN
Part II of the EMP is the Basic Plan. The Basic Plan is where the general
operating principles of the jurisdiction's emergency management system are
described. The Basic Plan provides the foundation upon which the remainder of
the plan rests. Generally speaking, the following sections are included within
a Basic Plan:
A.
Introduction
- The Introduction to the Basic Plan includes the Purpose and Scope statements.
The Purpose defines the reason(s) that the plan exists, whereas the Scope
statement describes the limitations of the plan.
B.
Situation
and Assumptions - A plan is developed to address a certain situation. The
situation statement(s) indicate the set of circumstances that the plan was
intended to address. For a plan to be valid it must be based on a valid set of
assumptions. The assumptions used as the basis for the plan are provided here.
A basic assumption about any emergency management plan is that the plan, by
virtue of its existence (or the process that created it) will improve the
jurisdiction's ability to respond to disasters and that the set of circumstance
that the plan was designed to address will continue to exist or become
exacerbated in the future.
C.
Concept
of Operations - The Concept of Operations section is where a summary of the
emergency management processes in the jurisdiction are described. A brief
description of the four phases of emergency management is often provided as are
statements indicating under what conditions the plan will be executed (or
implemented).
D.
Organization
and Responsibilities - This section delineates the roles and responsibilities
of all agencies tasked in the ESF annexes. The assignment of
responsibilities is usually done in two ways. First, each agency is identified
and has various responsibilities ascribed to it. This is followed by an delineation of each ESF subfunction
and the lead and support agencies assigned to each.
E.
Direction
and Control - This section describes the basic direction and control mechanism
for the jurisdiction's emergency management system. Normally, the
jurisdiction's CEO is responsible for the overall direction and control functions,
with the majority of these delegated to the emergency management director. If
the jurisdiction uses Emergency Services Coordinators (ESCs)
then their role is defined within this section. Also described are the lines of
succession for the CEO, the EMA Director, and the various department heads (or
a general statement that their line of succession will be specified in an SOP
or similar document). A brief description of the local jurisdiction's interface
with state and federal responders is provided, as is a description of the
various alert periods utilized by the jurisdiction and what types of activities
take place at those levels.
F.
Continuity
of Government - For any local jurisdiction to survive a major disaster there
must be provisions for the continuance of governmental functions. This includes
provision for alternate operating facilities, the
preservation of essential records and the movement of personnel,
equipment and supplies to structurally sound sites.
G.
Administration
and Logistics - This section is used to describe several things. A brief
description of the various Mutual Aid Agreements and Memoranda of Understanding
is provided, as is a brief description of the financial and records management
policies used by the various departmental agencies
and organizations during the disaster. A description of the plan update
procedure is also provided.
H.
Appendices
- There are normally several appendices attached to the Basic Plan, including:
1.
Responsibilities
and Assignments Matrix - This chart provides a graphical representation of each
agencies roles with respect to the
individual ESF subfunctions.
2.
Organizational
Chart - A chart showing the organization of the local EMA or response
organization is provided.
3.
EOC
Operations - This section provides a fairly detailed description of how the EOC
operates during disaster situations, including message flow, communications,
etc. A diagram of the EOC is also provided.
4.
Training
and Education - This section describes the training mechanisms utilized by the
local emergency response community. Training that is specific to a certain ESF
(i.e., EMT training for the
5.
Map
of the DFOs, POAs, and MCs
6.
Operational
Areas - A map showing the operational areas (as defined by the jurisdiction) is
attached.
7.
MOUs/Mutual Aid Agreements - Copies of major MOUs
and Mutual Aid Agreements can be attached if the jurisdiction is involved in
any.
THE EMERGENCY SUPPORT FUNCTIONAL ANNEXES
The third part of the EMP includes the various
functional annexes, known as Emergency Support Functions (ESFs).
There are 15 ESFs at the state/local level. The first
12 of these match the 12 used by the federal government. The additional 3 were
needed to address issues that have been identified by the state as warranting
their own individualized section and/or which were not addressed in the federal
plan. Each ESF may be divided into one or more subfunctions.
This is done because, although the ESF Group as a whole is responsible for a
major functional area, there are individualized sets of activities that pertain
to a specific set of circumstances within each group. For instance, ESF 3 is
the Infrastructure Group and, as a whole they are responsible for those
activities which involve major portions of infrastructure following a disaster
(i.e., Roads and Bridges, Water and Wastewater Systems, etc.). Taken together
they comprise the Infrastructure Group. However, the agencies responsible for
the removal of debris from the roadways would not be the same group responsible
for the repair and restoration of the jurisdiction's potable water and
wastewater systems.
A brief description of each of the ESFs and their
respective subfunctions is as follows. Keep in mind
that these are descriptions of the State ESFs and,
although the local ESFs' functions would be almost
identical, the state has responsibility to all of the state, whereas the
jurisdiction is concerned only with the local area.
A. ESF 1 - Transportation
1. Transportation Networking
The transportation function within the local emergency organization functions
primarily as a coordinating group. This group insures all roads and conduits
into and out of an affected area remain open, and that the traffic allowed into
those areas is coordinated in a manner that prevents bottlenecking and gridlock
which would prevent needed emergency assistance reaching those areas that need
it. The allocation of vehicles is a function of Resource Management and
is therefore described under the ESF 7 subfunction of
Resource Management.
B. ESF 2 - Communications
The local communications and warning functions are consolidated under the
heading of Communications, primarily because they are necessarily interrelated.
1. Communications Systems
The Communications Systems subfunction
is responsible for the development, maintenance, restoration, and utilization
of local communications assets during emergencies. This includes the radio
systems owned and operated by the county emergency management agency, local law
enforcement agencies, local fire departments,
2. Warning
The Warning subfunction is responsible for the
issuance of warning information regarding impending hazards, as well as the
maintenance of warning networks which might be used by the county in an
emergency (i.e., the conceptual networks--the actual networks themselves [e.g.,
radio equipment, etc.] are maintained by the Communications Systems subfunction). This includes the EBS, NOAA Weather Radio
system, cable override systems, siren warning systems, and other warning
systems in place throughout the county.
C. ESF 3 - Infrastructure
1. Building Inspection and Condemnation
This subfunction is responsible for the inspection of
buildings and structures following a disaster and, if necessary, condemning
them and insuring their destruction in a timely manner.
2. Route Clearance and Bridge Inspection
This subfunction is
responsible for insuring local roads and bridges remain viable following a
disaster. This includes the physical removal of debris on roadways, railroads,
airstrips, etc., critical for emergency vehicle passage, as well as the
inspection of local bridges to insure they may continue to be used and have not
suffered fatal damage as a result of a particular event.
3. Debris Removal
This subfunction handles problems arising from the
generation, accumulation, and disposal of debris following a disaster.
4. Water and Wastewater Systems
This subfunction is
responsible for the restoration of potable water and wastewater disposal
capabilities following a disaster.
D. ESF 4 - Firefighting
The detection and suppression of fires is the primary
purview of this group.
E. ESF 5 - Information and Planning
1. Disaster Intelligence
This subfunction is responsible for collecting
intelligence information surrounding the disaster. This includes items
such as the scope (extent) of the disaster, status of various systems (i.e.,
communications, transportation, utility, etc.), monitoring of resource status,
and other information. Disaster Intelligence develops reports concerning
the disaster, provides visual displays for the EOC during operations, prepares
SITREPS, develops short-range and long-range planning guidance for use in
addressing developing issues, and accesses technical expertise to assist with
evaluating the actual and/or potential effects of an event upon the population
and infrastructure of the county.
2. Public Information
This group is responsible for the provision of information (both general and
that which conveys emergency instructions to the public) concerning an actual
or impending disaster. The coordination of JIC activities, EBS activation, and
the distribution of emergency preparedness instructions through other means are
addressed through this venue.
3. Damage Assessment
This subfunction is responsible for the collection of
information concerning damages to structures and systems as a result of a
disaster, as well as the preparation of reports to be forwarded to the EMA
Director for use in requesting state and federal disaster assistance.
F. ESF 6 - Human Services
1. Shelter and Mass Care Operations
This subfunction coordinates
local sheltering and feeding activities, as well as caring for victims of a
disaster.
2. Disaster Victim Services
This subfunction provides assistance to victims in
locating relatives (and vice versa) through the Disaster Welfare Inquiry
system, the restoration of mail delivery, the use of amateur radio networks to
deliver essential and important communications, etc. Psychological health
services are also addressed within this subfunction.
G. ESF 7 - Resource Support
1. Logistics
This subfunction coordinates
the actual movement of resources into areas where a need (or needs) exists.
This includes the warehousing and tracking of resources, the packaging and
loading and subsequent transportation of resources to affected areas, and the
disposal of used and/or unused resources following a disaster.
2. Resource Management
This group is responsible for the acquisition of all
types of resources that are identified as "needed" following a
disaster. This group will make arrangements to purchase needed resources if it
is determined the local government does not have the resources itself to supply
a requirement in the field. The payment of debts and other encumbrances
generated as a result of the emergency is handled by this group as well.
3. Staging Areas
To prevent a rapid and overwhelming influx of
resources into affected areas, Staging Areas are utilized as temporary
marshaling sites for collecting and gradually directing emergency resources
into those areas. This group coordinates the activation and utilization of
local staging areas and marshaling points during emergency situations.
H. ESF 8 - Health and Medical Services
1. Emergency Medical Services
This subfunction coordinates
the provision of
2. Public Health
This group addresses the public health ramifications associated with a
particular emergency. This includes manning shelters, first aid/clinic
operations, restoring public health functions, defining the epidemiology of the
disaster (including the collection and maintenance of statistical data), the
administration of vaccinations and immunizations, the determination of
potential health effects associated with debris accumulation, pollution, hazmat
releases, etc.
3. Crisis Intervention Support (CIS)
This unit coordinates the provision of CIS to emergency workers who have worked
in the tense environment of a major disaster. This includes state and local
personnel.
I. ESF 9 - Search and Rescue
This group coordinates local search and rescue operations. This includes urban
search and rescue problems generated as the result of an earthquake or building
collapse, the search for persons who are lost in wooded or other environments,
the search for downed aircraft, the extrication of accident victims, etc. This
group also provides the interface with the federal Urban Search and Rescue
Teams.
J. ESF 10 - Environmental Response
1. Hazardous Materials
This subfunction is
responsible for coordinating the technical response to non-radioactive
hazardous materials incidents.
2. Radiological Materials
This group coordinates the technical response to actual or impending releases
of radiological materials, either as a result of an accident at a nuclear power
plant (i.e., the off-site problems) or processing facility, or through an accident
in some mode of transportation.
K. ESF 11 - Food
This group is responsible for securing food needed for the feeding of victims
and emergency workers in affected areas. Additionally, this group is also
responsible for assessment and protective action implementation associated with
potential harmful effects upon the local food supply as the result of a
disaster.
L. ESF 12 - Energy
This subfunction is concerned with the restoration of
the utility (electrical and gas) infrastructure following a disaster, as well
as the provision of temporary emergency power capabilities to critical
facilities until such time as a permanent restoration is accomplished.
M. ESF 13 - Law Enforcement
1. Traffic Control
This subfunction works closely with the ESF 1 group
to effect the orderly flow of traffic into, out of,
and around areas affected by a disaster.
2. Security/Crime Control
This subfunction addresses the provision of security
in disaster areas, as well as the actual policing functions normally associated
with law enforcement activities, including riot control, explosive ordinance
removal, counterterrorism, etc.
3. Institutions/Jails
This group is responsible for coordinating prisoner
recapture, the utilization of prisons and facilities following disasters, and
the moving of prisoners from damaged facilities to undamaged ones.
4. Evacuation/Movement
This group is responsible for coordinating evacuation efforts at the local
level.
N. ESF 14 - Donations/Volunteers
1. Donations
This group is responsible for managing the influx of donated goods into the
county following a disaster and provides the interface with the state/federal
National Donations Management System.
2. Volunteers
This group coordinates the use of persons and
organizations who volunteer their services following a disaster. This includes
medical and other emergency response personnel, public works crews, private
charitable groups, etc.
O. ESF 15 - Recovery
1. Assistance Programs
This subfunction is the mechanism through which state
and local government provides disaster relief assistance to victims in the
affected area(s), including the Individual and Family Grant program, the Small
Business Administration's loan programs, the administration of unemployment
compensation, and various other disaster relief programs available for both Presidentially-declared and non-Presidentially
declared disasters.
2. Recovery and Reconstruction
This subfunction addresses the long-term economic
impact of disasters upon local communities and assists the communities in
developing plans for reconstruction. Grant and low-interest loan programs are
identified and targeted for application by the
community. Significant attention is given to the mitigation of future
potential hazards when developing local recovery plans.
ESF
SUBFUNCTIONAL STRUCTURE
Each particular ESF Function/Subfunction has a
standardized structure. The sections in each are as follows:
A. Lead State Agency:
Each ESF function (or subfunction) has a designated
lead agency within state government. This agency is responsible for managing
the development of capabilities relative to the specific function described.
The lead agency is responsible for direction and control functions within the
group when the group is activated.
B. Support State Agencies:
Each ESF also has one or more support agencies within state or federal
governments (or the private sector). These agencies are tasked with providing
resource or logistical support to the operation of the ESF when activated. Each
agency functions as per its normal routine when the ESF group is not activated.
C. Introduction
1.
Purpose
- Each ESF is provided with a purpose statement that reflects the primary
reason that the ESF group exists.
2.
Scope
- The scope of each ESF is provided to reflect the range of activities in which
the ESF group may find itself tasked.
D. Policies
These are broad statements describing policies of the state emergency response
organization with respect to the functions and responsibilities assigned to a
particular ESF.
E. Situation and Assumptions
1.
Situation
- The situation statement basically explains why the ESF group exists and why
it is necessary to perform the functions assigned to the group.
2.
Planning
Assumptions - For any plan to be useful it must be based on an accurate set of
assumptions regarding the situations that it addresses. This section provides
the planning assumptions used in the development of the respective ESF.
F. Concept of
Operations
1.
General
- This section is used to describe, in general terms, what is expected to occur
and how the ESF group is expected to react to it.
2.
Organization
and Responsibilities - This section delineates the specific agencies with
assignments in the respective ESF and identifies their individual
responsibilities with respect to that particular ESF.
G. Mitigation and
Preparedness Activities
This section identifies critical tasks that needs to
be performed prior to the occurrence of a disaster. This includes mitigation
activities such as the development and institution of seismic codes,
incorporation of seismic design in road structures, etc. The preparatory tasks
include the development of plans and procedures for accomplishing tasks
ascribed to the agency in the Response and Recovery section immediately
following this section.
H. Response and Recovery Actions
This section identifies critical tasks that need to be
performed following the onset of a significant disaster. This section is by no
means intended to be comprehensive, but most tasks critical to the rapid
response of state and federal emergency relief groups have been assigned to one
or more agencies tasked in the particular ESF.
I. Training
A description of training relative to a particular ESF
is provided at the end of each section. Since training tends to be functionally
specific it is provided as an attachment to each ESF rather than having one
Training annex or similar document.
J. Appendices
Each ESF has one or more appendices attached to it. There are several types of
appendices: (1) Organizational Charts, (2) Documents describing specific
procedures or special operational guidelines, (3) Maps showing locations of
offices, district/regional boundaries, radio transmitter locations, etc., (4)
Flow charts detailing flow of critical information, and (5) Forms that are used
by the emergency response organization
GENERAL PLAN
REQUIREMENTS
The objective of TEMA's plans program for emergency
management is to establish uniform policies which will:
A.
Provide
a common basis upon which all plans can be fairly evaluated and rated
B.
Facilitate
preparation by standardizing format and contents
C.
Prescribe
minimum standards of acceptability
D.
Assure
plans are reviewed, updated, and maintained current
Terms and Definitions
Common definitions which pertain to the planning process are explained below.
1.
Basic
Plan - The initial part of a plan that forms the basic structure upon which
functional annexes, appendices, and other attachments can be built. It contains
statements relative to the situation, mission or purpose, execution or implementation,
supply, support, administration, and direction and control for the given set of
circumstances for which the plan was produced.
2.
Functional
Annexes - Attachments to the Basic Plan that describe the particular
responsibilities of a given emergency functional group.
3.
Concept
of Operations - A written statement of intent that tells how a plan will be
executed and by whom.
4.
Standard
Operating Procedures (SOP) - A set of instructions covering an operation which
can be followed time after time without loss of effectiveness.
5.
Direction
and Control - A term used to describe the element of an organization that
exercises control and/or coordination over the other components of the
organization.
Plan Preparation
A. Requirements
1.
Paragraph
2-5b(5) of FEMA's CPG 1-3
requires each emergency management organization participating in the Emergency
Management Assistance program to have an approved emergency operations plan.
2.
Plans
must be approved by the chief executive official of the agency and approved by
the TEMA Director or his authorized representative.
3.
State
law and the Tennessee Emergency Management Plan require local plans to be
compatible with the state emergency operations plan.
B. Hazard Analysis
1.
A
thorough analysis should be made to identify sources from which emergencies
have a potential to arise in each community. A good source of guidance on this
subject is FEMA's CPG 1-35, Capability and Hazard Identification
Program (CHIP) for Local Governments.
2.
Plans
to counteract the risk factors that have been identified in the analysis should
be developed and personnel and material resources trained and amassed to
counter the identified risks.
C. Standards and
Format for Plans
1.
All
plans will be prepared on 8 1/2" by 11" paper
2.
All
plans will have a cover page in addition to any binder
3.
All
pages will be punched to fit a standard 3-ring binder
4.
All
enclosures or tabs will be:
a.
Reduced
to 8 1/2" by 11" with sufficient space for holes,
b.
Capable
of being folded to 8 1/2" by 11" with sufficient space for holes,
or
c.
Placed,
folded, in an 8 1/2" by 11" envelope page with holes for binder.
5.
Standard
paragraphing, numbering, and lettering will be used. Major headings should be
designated by Roman numerals, followed in order by capital letters (A, B, C,
etc.), then Arabic numerals (1, 2, 3, etc.), then small letters (a, b, c,
etc.), then Arabic numerals and letters in parentheses ((1), (2), (3), and (a),
(b), (c), etc.). If further paragraphing is required, Arabic numerals and
letters (small) should be underlined.
Examples: I
- Roman numerals
A - Capital letters
1 - Arabic numerals
a - Small letters
(1) - Arabic numerals in parentheses
(a) - Arabic letters in parentheses
1 - Arabic numerals underlined
a - Arabic letters
underlined
6.
All
pages in a plan will be numbered. Roman numerals (i,
ii, iii, etc.) for pages in the Introduction, Arabic numerals (1, 2, etc.) for
pages in the Basic Plan, and the annex number followed by the individual page
number (i.e., ESF 1, page one would be ESF 1-1, page two would be ESF 1-2,
etc.) for the pages in the Emergency Support Functional annexes.
7.
All
plans will be dated on the page of transmittal.
8.
Signatures
and Authentication - Signatures of the responsible officials of all agencies
and organizations tasked in the plan should be provided on the signatory page
in the Introduction.
9.
The
first page of the plan must bear the title of the plan (i.e., "Anywhere
County Emergency Management Plan").
10.
Headings
for annexes, appendices, tabs, or enclosures will be centered as with the first
page of the Basic Plan.
11.
Appendices,
Tabs to appendices, and enclosures will be provided immediately following the
functional annex or other section to which they are relevant.
Contents
Each plan, at a
minimum, will bear the following contents:
1.
Part
1 - Introduction
(a) Abstract
(b) Table of Contents
(c) Letter of Agreement/Signatory Page(s)
(d) Record of Changes
(e) Distribution
(f) Foreword
(g) Hazard Identification with relevant maps
(h) Definition of Terms, Acronyms, etc.
(i) Authorities and References
2.
Part
2 - Basic Plan
(a) Introduction
(1) Purpose
(2) Scope
(b) Situation and Assumptions
(c) Concept of Operations
(d) Organization and Responsibilities
(e) Direction and Control
(f) Continuity of Government
(g) Administration and Logistics
(h) Training and Education
(i) Emergency Operations Center(s)
3.
Part
3 - Emergency Support Functional Annexes
(a) Each plan is required to have
ESF Annexes that parallel the state's, including the structural framework.
Each emergency
management plan will address all hazards that might affect the jurisdiction,
concentrating on those that pose the greatest risk.
Review and Analysis
The TEMA Director or his authorized representative is the final reviewing
authority for all local emergency management plans produced in the state of
Criteria
A plan's acceptability will be judged against the
following criteria:
1.
Does
it follow or approximate the criteria established within this document?
2.
Is
it neat, properly centered on a page, without strikeovers or misspelled words?
3.
Is
the meaning clear; does it describe the emergency management process for the
particular jurisdiction?
4.
Are
all facets of the problem, emergency, or disaster considered and addressed?
5.
Are
pages and attachments numbered correctly?
6.
Do
the pages follow the Table of Contents listing?
7.
Has
the document been signed and dated by those officials having taskings within the plan?
8.
Is
the plan compatible with the TEMP?
9.
Does
the plan follow commonly accepted emergency management planning principles?
Procedure
The following procedure will govern the submission of plans for review by TEMA.
1.
After
the plan has been reviewed and approved at the preparing office and the chief
executive of the approving body, two copies will be submitted to TEMA for final
review and approval.
2.
If
found satisfactory, one copy will be retained by TEMA and placed on file. The
second copy will be returned with a cover letter indicating that it has been
approved by TEMA.
3.
If
found unsatisfactory, the plans will be returned with a letter indicating the
deficiencies found by TEMA. Corrections must be made before resubmission.
Plans and Reviews
1.
Emergency
Management directors will be responsible for arranging a TEMA review of their
plans and correcting or updating them as required. Changes must be forwarded to
TEMA once finalized.
2.
Amendments
to existing plans will be submitted in two copies as required for initial
approval.