Plan Activation and Disaster Declaration

Emergency incidents occur frequently, but rarely with the scope and complexity which would require the implementation of this Emergency Operations Plan. This plan is applicable in those cases where:

• The emergency cannot be effectively managed using routine Borough department policies and resources. Implementation is needed prior to declaring a local disaster emergency to access Borough emergency funding and expedite procurement of local response resources; or
• The emergency directly impacts or is likely to impact more than one jurisdiction or agency, and a coordinated response under a unified command is desirable or necessary and a local disaster emergency declaration is needed to implement the plan or portions of the plan; or
• The resources of the Borough and/or of the affected jurisdiction(s), including resources available through mutual aid agreements, are overwhelmed and a local disaster emergency is declared, under the terms and authority of AS 26.23.140.

It is always preferable to activate the plan TOO EARLY rather than TOO LATE. It is always easier to scale back a response than to ramp one up.

EOP and IMT Activation

Part 1 of this EOP, the Basic Plan, describes the NIMS incident complexity categorization system. Incidents range from Type 5, the least complex, to Type 1, the most complex. The incident complexity will determine:

• Level of activation of EOP and Borough IMT positions.
• Whether or not the EOC is activated.
• Whether or not the Borough declares a disaster.
• Need for outside resources and personnel to support the incident.

Type 5 and Type 4 incidents can usually be handled with department or agency standard operating procedures and resources, and would seldom require implementation of this EOP or activation of the Borough IMT or EOC.

Part or all of the Mat-Su Borough emergency operations system described in this plan will be activated during Type 3, Type 2, and Type 1 incidents.

• For Type 3 incidents, some Command and General Staff positions may be activated as needed, and certain sections of the EOP may be implemented. The Borough may or may not activate an Emergency Operations Center, depending upon the incident. The incident can be managed using resources and personnel from the borough and cooperating agencies.
• For Type 2 incidents, most or all of the Command and General Staff positions are filled and many of the functional units are needed and staffed. The EOP will be partially or fully implemented. The Borough EOC will be activated to support IMT activities. Resources and personnel from outside the Borough, including regional, state, or national resources, may be needed to effectively manage the incident.
• For Type 1 incidents, the full Mat-Su Borough IMT and EOC will be activated. The EOP will be implemented. National resources will be required to safely and effectively manage and operate the incident response.

Activation Procedures

The on-scene Incident Commander, Director of Emergency Services or the Borough Manager will determine whether the incident may require full or partial activation of the IMT and/or EOC, and implementation of this EOP. In the early phases of the incident, there may not be time to accurately assess the incident complexity level.

The Emergency Manager is responsible for activating the IMT and EOC as directed by the on-scene Incident Commander, Director of Emergency Services or Borough Manager. The Emergency Manager will ensure persons assigned to the Incident Management Team are contact by phone, radio, pager, or in person.

Disaster Declaration

A Mat-Su Borough local disaster emergency declaration is required to:

• access Borough emergency funding;
• expedite procurement of Borough response resources; and
• access, State, and Federal disaster assistance.

This plan is used for general large-scale emergency response and does not require a disaster declaration for implementation. However, the NRF does require local plan activation for disaster response. Requests for disaster assistance, damage assessment, and recovery assistance must be routed through the state Division of Homeland Security & Emergency Management.

Within the Matanuska-Susitna Borough, the Borough Manager has the authority to declare a disaster emergency. If the Borough Manager is unable to act due to absence or incapacity, the next person designated in the Borough line of succession will exercise local disaster emergency declaration authority (See Part 1, Basic Plan). The declaration of a local disaster emergency must:

• include a description of the situation and existing conditions;
• delineate the geographic boundaries;
• outline what special powers are being activated by the Borough;
• indicate borough resources and costs committed to date; and
• indicate date and time the Borough Emergency Operations Plan was activated.

Use the model declaration form found in Appendix A: Forms when the Borough is declaring a local disaster emergency for the purposes of: implementing the Emergency Operations Plan, accessing Borough funding, and expediting Borough response resource procurement.

For a disaster declaration with a request for state assistance, the Borough must also state that the scope of the emergency is beyond the capabilities of local resources, and contain a request to the Governor for state assistance. The State will determine whether federal assistance is required. Use the model declaration form found in Appendix A: Forms.

Roles of Borough Employees in EOC

When the Mat-Su Borough EOC is activated, Borough employees will transition from their regular job duties into their ICS role in the EOC. Assignment of Borough employees to ICS roles is discussed in Part 3, Annex C. Once assigned to the EOC, borough employees should use the NIMS ICS Position Descriptions and Checklists for their assigned role. These can be found in the Field Operations Guide which is available in the EOC.

Accurate incident status summaries are important to decision makers within the Incident Management Team (IMT) staff, as well as to assisting agencies and the public. A Situation Report shall be completed as soon as possible after the onset of an emergency, and shall be updated at least every 12 hours. The Situation Report shall be prepared by the Planning Section and distributed via phone, fax, e-mail, radio, hard copy, etc., to at least the following:

• Alaska Division of Homeland Security and Emergency Management
• Assisting federal and state agencies

The Public Information Officer may also distribute Situation Reports to the media, the public, assisting agencies, adjacent jurisdictions, and volunteer organizations at the direction of the Incident Commander.

If possible, Damage Assessment should begin immediately after the onset of a disaster, as preliminary damage assessment information may be crucial to obtaining outside assistance. For damage assessment procedures, refer to ANNEX K of this plan.

For Sample Disaster Declarations, the State of Alaska Situation Report, and the Incident Commander's Delegation of Authority Form, see APPENDIX A, Forms.

Operational Concepts

Emergency management operations in the Mat-Su Borough will follow the Incident Command System (ICS). ICS is a standardized on-scene emergency management construct specifically designed to provide for the adoption of an integrated organizational structure that reflects the complexity and demands of single or multiple incidents, without being hindered by jurisdictional boundaries. ICS is a management system designed to enable effective incident management by integrating a combination of facilities, equipment, personnel, procedures, and communications operating within a common organizational structure, designed to aid in the management of resources during incidents. It is used for all kinds of emergencies and is applicable to small as well as large and complex incidents. ICS is used by various jurisdictions and functional agencies, both public and private, to organize field-level incident management operations.

Within the Mat-Su Borough, personnel will form an Incident Management Team (IMT), which will organize under the principles of ICS. The level of training and experience of the IMT members, coupled with the identified formal response requirements and responsibilities of the IMT, are factors in determining the "type," or level, of IMT. Types I and II teams are national and Type III are State or regional.

The Emergency Operations Center (EOC) is the physical location at which the coordination of information and resources to support incident management (on-scene operations) activities normally takes place. An EOC may be a temporary facility or may be located in a more central or permanently established facility, perhaps at a higher level of organization within a jurisdiction. EOCs may be organized by major functional disciplines (e.g., fire, law enforcement, and medical services), by jurisdiction (e.g., Federal, State, regional, tribal, city, county), or some combination thereof.

Personnel assigned to the EOC must be trained and experienced with the Incident Command System (ICS) in order to effectively implement this plan. The Incident Command System is adaptable to meet the needs of small or very large incidents, as well as for multiple or concurrent incidents.

Factors that determine incident complexity include:

• Size
• Location
• Incident Duration
• Jurisdictions involved
• Political sensitivity
• Organizational complexity
• Resources-at-risk
• Relevant agency policies

The exact moment when an incident shifts from one level of complexity to the next is often a matter of perception. The jurisdictional head or designated representative in charge must assess the incident's complexity and assign qualified personnel as needed. All potential agencies and jurisdictions should jointly agree as to the methodology for determining situation complexity and personnel assignments well before a large incident requires it.

Incident Command System

The ICS format breaks incident management into five basic functions, as shown below.

ICS Structure

For small-scale incidents that can be managed wholly within the resources and capabilities of the community, the local Incident Management Team (IMT) may use the five basic ICS functions to organize incident management and emergency response functions.

The local IMT will form the initial incident command, and this organization may eventually be expanded to a full ICS organization. The expanded operation requires integrating regional emergency operations plans, Sub-area Contingency Plans, private facility emergency response, or oil discharge prevention and contingency plans requiring supplemental response and/or incident management resources from outside agencies or organizations.

In a regional disaster, local personnel from the IMT may be incorporated into a regional or private industry incident management team.

Common Responsibilities

All IMT personnel have the following common responsibilities:

Before an Incident Occurs:

• Ensure that dispatch has up-to-date contact information.
• Inform your immediate supervisor of any out-of-town travel.
• Acquire training to support IMT functions.
• Review and stay familiar with EOP contents.

During a Local Emergency:

• Take care of your family first. Once they are safe and secure, transition to your IMT role.
• Review position responsibilities and ICS checklists.
• Report to EOC or field unit, as directed.
• Perform all job duties as assigned.
• Maintain unit log.

After an Emergency Ends:

• Turn in all documentation to your immediate supervisor or to Documentation Unit.
• Participate in debriefs and after-action investigations.
• Make recommendations for changes/improvements to EOP or other incident management tools.

Refer to NIMS ICS checklists for position-specific assignments. Copies of these checklists are available at the Mat-Su Borough EOC.

This organization chart shows a typical ICS structure. The Mat-Su Borough may not have the need or the capacity to activate all positions for all incidents. A full ICS will typically be staffed for Type 1 incidents, at which point the Borough will likely be acting to support a state or federally-led response.

ICS Structure

Emergency Operations Center Staffing

Whenever possible, the duties and responsibilities assigned to an individual during an emergency response should be related to that person's day-to-day duties and responsibilities.

There are many qualified personnel within the Mat-Su Borough, local municipalities, non-governmental organizations, and the private sector who may assume roles in the EOC or the IMT, depending upon the type of incident. Assignment of personnel to specific ICS positions is an incident-specific process based on the type of incident, its location and severity, time of year, and other considerations. The Director of Emergency Services and/or the Incident Commander will assign personnel to roles in the EOC for each incident. The Department of Emergency Services maintains a roster of qualified personnel for each position.

EOC staffing should be managed using a rotating shift schedule and standardized relief procedures to ensure the following:

• Personnel assigned to the EOC should receive sufficient rest.
• Staffing levels should remain consistent and appropriate to incident needs.
• Adequate briefings should be held during shift changes so that no information is lost during shift changes.

The following guidelines apply to shift scheduling:

• Establish shift length and rotation schedules early in the response.
• Develop a shift change schedule.
• Hold full team shift change briefing for all incoming and outgoing personnel to summarize incident status and priorities.
• Identify back-up personnel for all activated positions.
• Notify personnel in advance that they are scheduled for upcoming shifts.
• Limit shift length to 12 hours, if possible.
• Ensure that rotating shifts overlap to facilitate in/out briefings. Thirty to sixty minutes in duration are typical but clarity should be stressed over brevity.
• Encourage IMT members to take breaks and rest as needed.
• Assign a designated "break room".

"Span of Control" refers to how many organizational elements may be directly managed by another person.

• Maintaining adequate span of control throughout the ICS Organization is very important.
• Span of control may vary from 3 to 7, and a ratio of one to five reporting elements is recommended. If the number of reporting elements falls outside of those ranges, expansion or consolidation of the organization may be necessary.
• There will be exceptions, for example in some applications of ICS; specially trained crews may utilize a larger span of control.

NIMS Training

The U.S. Department of Homeland Security published a five-year NIMS training plan (February 2008) that recommends core competencies and training requirements for emergency management personnel at local, regional, state, and federal levels. The following table summarizes the recommended training by IMT position for the Mat-Su Borough, based on the NIMS recommendations.

ICS training course information and links to online courses are available at http://www.fema.gov/emergency/nims/nims_training.shtm#2

For more information on the NIMS ICS system, refer to the Department of Homeland Security National Integration Center, NIMS Coordination. http://www.fema.gov/emergency/nims/

Annex D: Emergency Operations Center

Operational Concepts

The EOC is a facility designated for managing disaster emergencies. The Incident Management Team may use the EOC as their operations center to direct the overall incident response.

The EOC centralizes incident management and:

• Provides a central point where all incident relevant information is received and analyzed, priorities are determined, strategies are developed, and critical resources are assigned to tactical operations.
• Provides a central location for planning meetings, tactics development (if housing an IMT), shift and media briefings, press conferences, public information releases, and other information dissemination.
• Facilitates efficient and effective communications.
• Enhances coordination among agencies by co-locating agency representatives in the EOC, providing scheduled points of contact, and establishing effective communication lines to facilitate interaction.
• Provides continuity using round-the-clock staffing and a systematic means to brief members of the IMT through shift change briefings.

Overview of EOC Configuration

The layout of the EOC will be determined by several factors, including:

• Number of members of the Incident Management Team.
• Size, shape, and number of room(s) available for the EOC.
• Location of available communications systems equipment.
• Lessons learned from previous incidents.

The following general elements should be considered when designing the layout of the EOC:

• ICS functional sections (e.g., command, planning, logistics) should be positioned adjacent to displays that require posted information and their respective input.
• The Incident Commander should be located so that s/he can easily track the incident's status.
• Functional responsibilities should be co-located for easy interaction.

Facility Set-Up

The Mat-Su Borough Department of Emergency Services has primary responsibility for establishing an EOC to support a Borough emergency response.

EOC Setup Checklist

• Coordinate with the Emergency Manager, IC, and Facilities Unit to determine the facility to be used for EOC (ERC, Mobile Command Center, or other).
• Determine personnel support needs and coordinate staffing with Logistics Section.
• Obtain necessary equipment and supplies. Check that supplies are available and equipment is functioning..
• Work with Logistics Section to make plans for feeding/housing EOC staff, as necessary.
• Ensure that maintenance, communications, and support staff are available to support EOC operations.
• Oversee demobilizing EOC when incident ends.
• Restock used consumable supplies.
• Identify action items for improving EOC setup and operations.

EOC Facilities

The primary EOC for the Mat-Su Borough is Training Rooms 1 & 2 in the Central Mat-Su Public Safety Building located at 101 W. Swanson Avenue, Wasilla.

The alternate EOC for the Matanuska-Susitna Borough is at the Cottonwood Public Safety building, 680 N. Seward Meridian Hwy, Wasilla.

The EOC Needs:

• Accessibility: The EOC must be accessible and safe for 24-hour operations. It should be sufficiently distant from the incident, inspected and certified for occupancy after a seismic event, and completely self sustaining.
• Office Space: The EOC must have adequate space to support the activities of the IMT. To some extent, this is a function of the size of the IMT, the phase of the disaster emergency, and the jurisdictions and agencies involved. It is important to have adequate space to be able to co-locate functional areas (Plans, Logistics, etc.) and agencies that need to interact with each other, as well as provide for access to communication and display systems.
• Lighting: The EOC must have adequate lighting for staff to carry out their duties. An auxiliary power source is mandatory for the EOC, either permanently hardwired for the facility or having the ability to convert to an external power source in a minimum of time and disruption.
• Heating and/or Cooling: Similar to adequate lighting with the same needs for auxiliary power and/or auxiliary sources of heat.
• Security: The EOC must be easily secured against intrusion. Access to the EOC should be allowed only to authorized personnel and staff and posted as such.
• Communications Equipment: It is vital that the EOC have adequate communications equipment and that it is accessible to all personnel.
• Telephones: Multiple handsets, incoming and outgoing lines, and switchboards are required to handle the information flow of an incident. A minimum of at least six phone lines should be provided along with personal headsets to facilitate listening and multi-tasking.
• Fax Machines: For transmittal of hard copy information. At least two fax machines should be provided, one for outgoing one for incoming messages.
• Computers: Computer hardware with adequate data storage space, priority use, and support personnel for the management of incident information and data. Mechanical back-up systems such as resource locator systems and hand written display boards are strongly recommended. IMT members who use specific software, forms, or files should ensure that they are pre-loaded onto laptop computers or available on borough approved portable storage devices.
• Incident Radios: Each section should have access to incident radios.
• Amateur (Ham) Radios: A suitable area should be provided for the amateur (ham) radio operators. Required power sources, antennas, etc. must be supplied.
• Television Sets and Radios: Provide an adequate numbers of TV's and radios should be provided in the EOC to monitor press releases, news, and other media, for gathering incident information.
• Briefing Area(s): Provide an area separate from the main EOC operations area where shift briefings, strategy meetings, media briefings, and other activities will not adversely impact EOC operations.
• Food Service: The EOC staff must be fed. Provide an adequate area for providing, serving, and/or preparing foodstuffs for the EOC staff either inside or outside the EOC facility. At the very least, hot and cold beverages and snack food should be available at the EOC.
• Drinking Water: An adequate supply of drinking water should be on site, especially a back-up supply (e.g., bottled water) for use by personnel in the EOC.
• Toilets: Provide toilet facilities for the EOC staff. Consider portable facilities if building lifelines (water, sewer) are damaged or inoperable. Stock trashcan liners and five gallon buckets as "emergency" alternatives.
• Office Supplies: An adequate amount of office supplies and equipment such as tables and chairs to support the EOC staff need to be available. (See below.)
• Limit Noise Level: A relatively quiet work area is required for all functional areas to conduct business efficiently and effectively. All means should be taken to minimize noise disturbance in the EOC from equipment (e.g., generators, apparatus, and machinery), media briefings, and congregations of people.
• Avoid Crowding: Only those individuals required to perform IMT duties should be allowed in the EOC.

Use the EOC Supplies Checklist on the following page as a guide for setting up the EOC. Blanks may be checked to indicate the item has been completed and/or to list the number of items needed or obtained.

EOC SUPPLIES CHECKLIST

Infrastructure

• Auxiliary power
• Lighting
• Office Space
• Physical needs (coffee, smoking area, restrooms, food, water)

General Office and Communications Equipment

• Telephones
  • # of handsets ______
  • # of lines _________
  • switchboard
  • Fax machine
  • Copy Machine
• Multiple computer terminals with internet, email, resource tracking, and financial tracking capability
• TV's
• VCR
• Radios (ALMR, VHF, HAM)
• Extension cords
• Tables
• Chairs
• Electronic displays

Office Supplies and Miscellaneous

• Dry erase boards & markers
• Display boards
• Maps
• Map Pens (Vis a Vis) 8 colors
• Clear plastic Mylar
• Flip Chart easel
• Flipchart pads
• Large manila envelopes 12" x 16"
• Heavy duty staplers & staples
• Standard desk top staplers & staples
• Standard desk top staples
• Paper clips
• Staple puller
• Push pins
• 1" masking tape
• Writing pads
• Pencils
• Pens; black and red ink
• Assorted rubber bands
• Scotch Tape
• Standard file folders
• Erasers
• Post-it- pads, assorted sizes
• Legal size writing pads
• Legal size clipboards
• Three hole punch
• File folder labels
• 2" x 3" blank labels
• Telephone memo call pads
• Dictionary
• Erasable felt tip pens, assorted colors
• Paper
  • Printer/copier and fax paper
  • Letter & legal
  • Plotter paper
• Boxes for filing
• ICS and other forms
• Name tags
• ICS position vest

Annex E: Communications and Public Information

Operational Concepts

For the purposes of this EOP, the following terminology applies:

• Incident Communications applies to the equipment, designated frequencies, and procedures used by Incident Management Team members to communicate among the team, with on-scene incident personnel, and with other command centers.
• Public Information refers to the external communication process whereby information about the incident is disseminated to the public and the media.

Incident Communications

Incident communications may be the single most important element of a response, yet it is a common problem area. Effective emergency communications among on-scene responders, Incident Management Team staff, communication points, and the public is vital to the protection of life and property as well as efficient and effective incident management.

The method used to accomplish efficient and effective multi-jurisdictional incident management is a common communications plan with agreed-upon frequencies designated to various incident functions. This communications plan will tie together the tactical and support units of the various agencies and organizations and maintain communications discipline.

The EOC should include a designated communications center to serve as the central hub for all incident communications.

All incident communications should be limited to essential information.

Emergency Public Information

During a regional emergency that involves the activation of the Incident Management Team, the Mat-Su Borough Public Affairs Director (or designee) will act as the Public Information Officer (PIO) to coordinate the dissemination of information about the incident. The Public Information Officer is responsible for the formulation and release of information about the incident to the public, the news media and other appropriate agencies and organizations.

Emergency Public Information is communicated through one of more of the following systems:

• The local Emergency Alert System (EAS);
• Reverse 9-1-1 (through 9G Base and MATCOM);
• Local news media (radio and television);
• Mobile law enforcement and fire dept. public address systems; and
• Door to door contact.

Initial public warnings and emergency notifications are usually issued by the Director of Emergency Services or designee, but may be issued through the PIO if the position has been activated. Once the IMT has been activated and the EOC is up and running, public notification functions are assumed by the PIO.

Annex A contains information on the Alert and Warning Systems used in the Mat-Su Borough.

All IMT members should route external communications (public or media) through the Public Information Officer.

Communications Procedures

The communications unit of the Incident Management Team (IMT), which works as part of the Logistics Section in the ICS, is responsible for all communications planning at the incident. This will include incident-established radio networks, on-site telephone, public address, and off-incident telephone/microwave/radio systems.

The Incident Communications Plan should identify how each functional unit will communicate within the EOC, externally among IMT functions, field locations, and the EOC, and address other inter-agencies requirements. It is important to address Alaska Land Mobile Radio (ALMR) protocols, identify common communication channels, and manage multiple agency or response organizational requirements. A phone directory should also be developed, identifying the telephone numbers or extensions of all EOC and field IMT members.

An incident communications plan should be developed early in the response, to ensure that effective communications will occur among task forces, strike teams, unit leaders, and the Incident Commander/EOC. The Communications Unit Leader will develop the "Comms Plan" using ICS Form 205.

Radio Communications

Radio networks (NETS) for large incidents will normally be organized as follows:

The Incident Communications Plan is used to assign radio frequencies to one or more of these NETS, based on the type of incident and the communications assets and frequencies available (see list below).

Multi-Agency Response Communications

During a multi-agency response, initial communications between Incident Commanders will be conducted over the Borough Areawide Frequency (154.295). Incident commanders will then designate tactical frequencies and ensure that all responding units are notified of their use. Tactical frequencies may be established based on geographic area or by function, depending upon the specific incident needs.

For larger incidents, the Statewide Command and Control frequency (155.295) will be designated as the command frequency. Use will be limited to linking command and supervisory personnel down to and including division/group supervisors. IC's will determine when traffic on tactical channels exceeds the limits of effective communications and implement the use of the command frequency.

The Air-to-Ground frequency will be used as the primary frequency to talk with aircraft and coordinate air-to-ground radio traffic.

Alaska Land Mobile Radio (ALMR)

During a large incident or one where multiple jurisdictions are involved, the Alaska Land Mobile Radio (ALMR) system may be utilized to support incident communications. ALMR is a two-way radio system in use today by first responders and public safety officials in Alaska, and it provides for inter-operability among local, borough, state and federal responders during a local or large-scale emergency.

ALMR divides the state into five regions, corresponding to Alaska State Trooper detachment zones. The Mat-Su Borough is Zone B, and the ALMR system in the Mat-Su is governed by the Tactical Interoperable Communications Plan (TICP) - Zone B (Matanuska-Susitna Borough and Valdez). Within this zone, ALMR radios have designated frequencies and "talk routes" as described in the TICP. Channel 1 is the hailing channel for the Mat-Su/Valdez Region (Zone B).

At the time of publication, the Mat-Su Borough had initiated the process of acquiring ALMR radios for borough departments. Other entities within the Borough, such as the Alaska Railroad Corporation, also have ALMR capabilities. However, the Borough is still in the process of transitioning to full ALMR capability. In the meantime, it is important to ensure the maximum level of interoperability for incident communications.

The radio frequencies list in this Annex includes ALMR ICS frequency assignments for Zone B.

Mat-Su Borough Mobile Command Vehicle

The Mat-Su Borough Mobile Command Vehicle has integrated communication capabilities and equipment that may be of use during a local emergency or disaster. Communications components include:

• Cisco¬Æ IP Interoperability and Collaboration System (IPICS)
• DRS auto-acquiring 1.8 meter roof mounted satellite dish
• MTA umbilical to multiple fixed-location pedestals installed at MatSu Regional Medical Center, Alaska State Fair Grounds, and fire station 11-2 in Talkeetna
• Alaska Land Mobile Radio system
• HAM & Marine band radios

The IP Interoperability and Collaboration System (IPICS) provides comprehensive communications interoperability between push-to-talk (PTT) radio systems and devices such as mobile phones, IP phones, public switched telephone network (PSTN) phones, and PC clients. Dispatchers and incident commanders can manage operations from one or more locations using the Web-based Cisco IPICS Administration Console on-the-fly or via established policies.

Using an all-weather umbilical from the command vehicle, MTA will provide DSL connectivity to the vehicle for DTV, internet, land-line telephony and an ethernet interface for VPN back to Palmer 9-G-Base and Wasilla MatCom.

Amateur Radio Operators (HAM)

Alaska has an extensive network of amateur radio operators or HAMs. These radio operators for the most part, operate their personal radio equipment, as well as being qualified to operate other radio equipment. The capabilities include, but are not limited to HF and VHF, with both voice and hard copy transmissions. The amateur radio operators are organized into clubs that are an effective means of communication and should be utilized in the event of a major emergency. The Department of Emergency Services maintains contact information to activate the HAM radio operators in the region. There is a designated antenna installed at the main EOC for HAM radio use. A HAM operator could perform as communications unit leader in the EOC or an IMT.

Basic Radio Communications Checklist

Clear and accurate radio communication is critical to a successful response. The following general radio communications checklist has been developed for all response personnel.

• Obtain, review and follow the communications plan.
• Determine your primary and alternate communications channels.
• If you are assigned a radio, check it out and function test all channels.
• Obtain an extra battery and/or charger.
• Establish a communications schedule with your supervisor or dispatch.
• Establish a procedure for failed communications with your supervisor or dispatch.
• Establish a procedure for emergencies with your supervisor or dispatch.
• Use only assigned channels.
• Monitor your radio.
• Keep all communications to essential information
• Use the following system for phonetic alphabet spelling:

Information Procedures

During a regional emergency that involves the activation of the Incident Management Team, the Borough Public Affairs Director will assume the role of Public Information Officer (PIO) to coordinate the dissemination of information about the incident. The Public Information Officer is responsible for the formulation and release of information about the incident to the public, the news media and other appropriate agencies and organizations.

Public Information Flow The following flow of incident information should be observed whenever possible.

Information Flow

IMT members should route all public and media information through the PIO. Conversely, the PIO should be included in IMT briefings and should be provided with copies of Situation Reports and IAPs to facilitate information dissemination to the media ant the public.

An ongoing campaign of public outreach and education strives to keep residents and visitors aware of natural and man-made hazards present in the Mat-Su Borough. This is accomplished through collaboration between the Borough Department of Emergency Services staff and entities such as the LEPC and the Red Cross. Educational literature is made available at public events throughout the year. Formal outreach programs provide basic preparedness, mitigation, and response training to residents through the Citizen Corps programs of Community Emergency Response Teams (CERT) and Neighborhood Watch.

Part 3, Annex A of this plan describes the procedures for emergency alerts and public notification when an emergency occurs. The Public Information Officer will typically be involved in communicating emergency alert and evacuation notices. Once initial incident warnings and evacuation notifications are complete, the PIO's role becomes one of ongoing communication and information dissemination between the Borough EOC and the public.

A critical component of the Public Information Officer's role is to represent the EOC and the Incident Management Team to disaster victims, members of the public, and other concerned parties. A PIO or deputy should be present at all public meetings, and a member of the PIO staff should be assigned to key areas such as shelters, congregate care facilities, or other locations. By establishing a proactive presence in these areas, the PIO may ensure that accurate information is relayed to disaster victims and the public at large.

Joint Information Centers

The Public Information Officer may become a member of, or feed information to, a Joint Information Center (JIC) during very large incidents involving all government levels. A JIC is a central clearinghouse established by State and Federal agencies, and is designed to allow Public Information Officers from involved response and recovery agencies to coordinate information released to the media and the public. The JIC is usually established by the agency that has lead responsibility for an incident if applicable.

The JIC organizational structure is based on functions that generally must be performed whether a person is handling a routine emergency or managing communications for a major disaster response. Following are options for organizing a JIC for small, medium, and large incidents. Focus on functions for the small and medium incidents since as few as one person can carry out all the activities for a particular JIC function. However large incidents may require multiple staff to carry out functional roles to ensure efficient operations.

Satellite JICs may be needed to cover a very large incident or one affecting a very large area. Personnel assigned to a satellite JIC must always coordinate communications with the main JIC.

All media releases must process through the JIC if established. Daily briefings will be conducted, information provided to local and regional governments, and public information posted on the incident website. The PIO will monitor media messages and public rumors to ensure appropriate and effective public information releases.

Media Briefing Facilities

In the event of a major, protracted incident, it may be more convenient for the EOC and more efficient for the media for briefings to take place at a conference room or banquet facilities in a local hotel, where public information activities will not interfere with the conduct of the incident.

If possible, the public information staff may assist the media in such logistical support as finding hotel rooms, providing coffee and refreshments for early morning briefings, arranging for additional phones, etc.

Media briefings will typically take place in the EOC building in a room some distance away from the main EOC operations. It is important to maintain security procedures to ensure that media representatives do not interfere with EOC operations.

Media Access to the Scene

Media representatives may be allowed restricted access to the scene, depending on the nature and location of the incident and must be coordinated with on-scene personnel. This should be done only after considering the safety of media personnel, the impact on response, and the wishes and concerns of the victims. Media representatives who are allowed access to the scene must be accompanied by a member of the Public Information staff. All media representatives should sign a liability release before they visit the scene.

A media "pool" may be created, where media representatives select one camera crew to take footage for all members if it is not safe or practical to admit all media representatives to the scene. A "staged" photo opportunity to tape response vehicles or support activities may satisfy the media's need for video footage if controlled access is impractical.

Off-shift personnel should be provided uninterrupted rest in an area free from media access. It may be necessary to provide security to fire stations or other "home bases" for responders and allow them to disconnect telephones to ensure privacy and protect response personnel from unwanted media intrusion.

Victims and families should have access to public officials without having to face the media. Try to provide a secure entrance to briefing areas, or arrange a meeting/interview room away from the press.

The media may be allowed access to response personnel at the discretion of the Public Information Officer, the Operations Section Chief, and the Incident Commander, only if such an interview does not interfere with the response effort. City, Borough and agency personnel should not comment on the incident without first conferring with the PIO who has foreknowledge of the IC's concerns.

Media Guidelines

Consider the following guidelines before releasing information to the media.

• Provide accurate and consistent information. Release only those facts which can be confirmed. If little information is available, indicate this fact and schedule future briefings as information comes in.
• Release only approved, specific and verified information, such as:

  Nature and extent of emergency occurrence.

  Impacted or potentially affected areas of the community.

  Advice on emergency safety procedures (as applies).

  Mitigation activities being conducted by responders.

  Procedures for reporting emergency conditions to the EOC.

• Control rumors. Correct any inaccurate information published by the media.
• Do not release information that might hinder emergency response, prejudice the outcome of an investigation, or pose a further threat to public safety.
• Manage media access to the EOC to minimize disruption to IMT activities.
• Keep logs and, if possible, tape recordings of public information briefings, releases, interviews, and warnings.
• Work with the Borough webmaster to set up incident websites.

Rumor Control and Public Assistance

The Public Information Officer may establish a separate "Branch" to deal with providing emergency information to the public through the Emergency Alert System (EAS) and public information/rumor control lines. The main phone number at the Borough Department of Emergency Services administrative office is published in the phone book as "Disaster Assistance". Staff there must be kept supplied with accurate up-to-date incident information to reply to public inquiries. Additional public information numbers may be published via the media. This will result in fewer non-emergency calls to 911 and the EOC General Staff, will aid in information gathering, and will offer the public a means of getting valid information about the incident rather than potentially harmful rumors.

Requests for non-emergency assistance received by the public information staff should be routed to the appropriate IMT staff.

Agency staff and switchboard operators not directly involved in the emergency response must receive updated and accurate information about the incident. This information should include the phone numbers for public information's Rumor Control Lines. This allows accurate information transfer when the public attempts to directly contact city or borough agencies or departments seeking incident information.

Appendix A contains a copy of a release of liability form that may be used in an emergency.

Within the IMT, there are a number of communications channels and forms that link various positions and functional units. These communications channels differ from the radio communications links discussed in the context of on-scene operations and field units. However, IMT communications are equally important to ensure good information flow.

Incident Commander/Unified Command

• Responsible for initial incident briefing, command staff meetings.
• Authority to develop news releases as needed.
• Appoints PIO.
• Receives information from PIO regarding level of public interest, public information strategy, media coverage, etc.
• May participate in media briefings

Planning Section Chief

• Conducts planning meetings.
• Provides PIO with continuous incident situation status data and copy of IAP.
• Receives information from PIO regarding level of public interest, town meeting schedule, public information strategy, media coverage, etc.

Operations Section Chief

• Provides operations briefings and participates in IMT briefings.
• Provides PIO with continuous incident situation data and information regarding access to scene.
• Receives information from PIO regarding level of public interest, people requesting access to on-scene operations, town meeting schedule, public information strategy, media coverage, etc.

Safety Officer

• Participates in IMT briefings and Command Staff meetings.
• Coordinates with Operations Section Chief and PIO on JIC personnel, media, and distinguished visitors needing access to site.
• Provides PIO with briefings on site safety issues and requirements for visitors to scene/sites (i.e. personnel protective equipment, safety zones, etc.).
• Provides escorts for approved visitors to site, if necessary.
• Receives information from PIO regarding level of public interest, town meeting schedule, public information strategy, media coverage, etc.

Liaison Officer

• Participates in IMT briefings and Command Staff meetings.
• Provides PIO and JIC with contact information for agencies, organizations, and stakeholders with an interest in the incident.
• Coordinates with Safety Officer to provide escorts for approved visitors to site, if necessary.
• Receives information from PIO regarding level of public interest, town meeting schedule, public information strategy, media coverage, etc.

Logistics Section Chief

• Participates in IMT briefings and General Staff meetings.
• Coordinates allocation of space for PIO/JIC as needed.
• Assists with procurement for PIO operations, film processing, video dubbing and A/V support.
• Receives information from PIO regarding level of public interest, town meeting schedule, public information strategy, media coverage, etc.

Finance Section Chief

• Participates in IMT briefings and General Staff meetings.
• Coordinates purchase order numbers and accounting data.
• Receives information from PIO regarding level of public interest, town meeting schedule, public information strategy, media coverage, etc.

Response Personnel

• Participate in briefings.
• Coordinate with PIO regarding dissemination of information to the press/public. Do not speak to media or in public forums without consulting PIO.
• Relay to PIO information regarding public and media interest.
• Receives information from PIO regarding level of public interest, town meeting schedule, public information strategy, media coverage, etc.

Annex F: Resource Management

Operational Concepts

• Each household within the Borough is encouraged to develop family disaster and emergency communication plans and to maintain the essential supplies to be self-sufficient for at least seven, and up to 30, days.
• During an emergency, resources will be inventoried, prioritized and used in the most efficient manner possible, and will be applied to functions and areas of greatest need.
• Borough departments are expected to be able to sustain themselves during the first 72 hours of an emergency.
• Each agency is responsible for arranging the movement of its assets to locations where they are needed during emergencies and disasters. If the department does not have suitable transportation capabilities, it may request assistance through the EOC.
• Normal procurement procedures may be suspended during an emergency, although existing agreements and procedures should be used whenever feasible. The Procurement Officer should be involved as soon as possible and all costs traced based on project code assigned by Finance.
• The EOC may request additional resources from the Alaska Division of Homeland Security and Emergency Management after all available borough and local resources have been used.
• The Borough Manager may invoke temporary controls on local resources and establish priorities during an emergency. These may include fuel, food, shelter and other resources necessary for human needs. If this situation occurs, the Borough will endeavor to cooperate with the private sector and with the State in encouraging voluntary controls and to enforce mandatory controls when necessary.
• During an emergency, the Manager may suspend borough functions that do not contribute directly to response actions.
• Acquisitions and purchases dedicated to saving life or property during an emergency will be given priority.
• All incident resource requests should be routed through the Logistics Section in the EOC.
• Resource procurement is performed by the Procurement Unit which resides in the Finance Section.
• Field personnel have no purchasing or contracting authority.
• During an emergency, MSB department heads or their designated alternate may be assigned to the EOC.
• The Borough Purchasing Officer (Logistics Section Chief) has the authority under borough code (308150) to authorize and approve emergency expenditure. The Purchasing Officer also has emergency contracting authority that allows the Purchasing Officer to contract for goods and services outside of the normal procurement (competitive bid) process.
• Appendix A includes a copy of an emergency purchase order form. Copies of this form should be maintained in the EOC in case the normal electronic purchasing system software is not operable.
• Copies of the Borough's Chart of Accounts will be maintained by Finance Section personnel for use in an emergency, in case the normal electronic accounting system is not operable.
• Early and accurate documentation of costs and damage estimates are essential to the application for potential reimbursement from state or federal disaster assistance. All Borough departments will identify personnel to be responsible for documentation of disaster costs and will use existing administrative methods to keep accurate records separating disaster operational expenditures from regular expenditures.
• When high priority needs cannot be satisfied quickly through procurement and hiring, or when the cost begins to outweigh time as a consideration, an appeal can be made through the Public Information Branch for donations of goods or services in question.
• At the close of an incident, all loaned equipment will be returned to its owners.
• All state and federal assistance is coordinated through the Alaska Division of Homeland Security and Emergency Management (DHS&EM).

Resource Allocation Priorities

Members of the Mat-Su Borough IMT should always take into consideration the specific emergency conditions, incident needs, and resource constraints and allocate resources according to the following priorities:

• Life Protection
• Responders
• Populations at risk
• Public at large
• Incident stabilization
• Mobile response resource protection
• Impacted area's isolation
• Incident containment (if possible)
• Property conservation
• Public facility protection - essential to life safety or emergency response
• Environment protection - where degradation will adversely impact public safety
• Private property protection

Functional Responsibilities for Resource Management

Incident Commander

• Coordinates overall strategic disaster response during a major emergency or disaster.
• Coordinates with state and federal agencies to secure additional resources as needed.
• Coordinates mutual aid agreements with neighboring jurisdictions to cover resource shortfalls.
• Assigns a logistics section to facilitate resource acquisition and deployment.
• Coordinates dissemination of public information concerning resource needs.
• Ensures record of all supplies and equipment purchased to support an incident.

Logistics Section

• Maintains a list of resources typed according to NIMS.
• Establishes memorandums of understanding with potential suppliers and donors.
• Facilitates acquisition of all supplies, equipment, and services necessary in support of response efforts.

Finance/Procurement

• Receives data from EOC concerning resources obtained from private vendors and arranges for timely reimbursement.
• Procures resources, develops contracts, and documents costs.
• Negotiates and approves contracts for support of emergency actions.

Legal Officer

• Provides legal council associated with contracting and resource acquisition.

Purchasing and Contracting Authorization

When the EOC is activated, IMT personnel must work through the appropriate channels to request resources. Any goods or services purchased must be approved by the Logistics Section, through the Borough Purchasing Officer who has emergency contracting authority. Purchases that are made outside of this system may not be reimbursable and would therefore become the personal responsibility of the person/department making the purchase.

Borough code 308150 allows the Mat-Su Borough Procurement Officer to award a contract for supplies, services, professional services, or construction without competition, formal advertising, or formal procedure when the Borough Manager has declared an emergency.

Emergency procurement will utilize the existing requisition and ordering system which the Borough relies on for day-to-day purchasing, assuming that electric power and computers are available to support the incident. In the event that this system is unavailable, manual procurement procedures will be followed. Appendix A contains a blank purchase order form, which could be used in lieu of computer ordering systems.

Federal Reimbursement for Equipment Costs

ICS Resource Ordering Process

The Stafford Act includes provisions for how FEMA will reimburse municipalities, states, and private entities for equipment and labor used during an emergency response. 44 CFR 226.228 describes the general policies for determining allowable costs. In accordance with the federal regulations, the Department of Homeland Security publishes a reimbursable rate schedule for equipment in good working order. These rates are applicable to major disasters and emergencies declared by the president on or after August 2005.

The schedule is available at http://www.fema.gov/government/grant/pa/eqrates.shtm

The flow chart to the right summarizes the ICS resource ordering process. Since not all Logistics Section positions described in the flow chart may be activated in the Mat-Su IMT, some or all of those functions may be allocated to Section Chiefs or Unit Leaders.

During a major disaster emergency, large numbers of volunteers often converge at the scene or the EOC, eager to assist with the response. It is important to effectively incorporate these volunteers into response efforts without allowing them to interfere with the activities of emergency response personnel. The Borough Volunteer Coordinator (within the Department of Emergency Services) will be the designated Volunteer Manager in most incidents.

In most cases, volunteers will be referred to volunteer agencies that will be directly responsible for placing most volunteers in the field. Agencies like the American Red Cross and others will only use volunteers who have had that agency's specific training and are approved for use by that agency. This can create difficulties with the convergence of non-agency trained volunteers and their use in disaster operations in regard to insurance/liability/workman's compensation issues.

At this time, there is no city, borough, or state-provided umbrella for insurance/liability/workman's compensation coverage to use spontaneous volunteers in a disaster emergency. Effective screening, training, and supervision will help to limit liability when assigning volunteers.

Volunteer Organizations

Mat-Su Community Emergency Response Team (CERT)

CERT is a partnership between first responders and the communities they serve. CERT training prepares people to take care of themselves and others in a disaster situation. CERT volunteers can help with a variety of emergency response functions including:

• Public education and outreach,
• Basic triage and emergency medical support,
• Search and rescue support,
• Fire suppression support,
• Community healing programs,
• Sandbagging, directing traffic and other tasks.

Alaska Voluntary Organizations Active in Disaster (AKVOAD)

The AKVOAD organization is a forum that brings together agencies and organizations active in disaster response and management to facilitate cooperation and pre-planning. AKVOAD will coordinate services offered by voluntary agencies that respond to disasters in order to identify and facilitate response to unmet needs for individuals affected by a disaster or emergency.

Requests for AKVOAD activation are coordinated through the State through the Division of Homeland Security and Emergency Management (ADHS&EM). AKVOAD may set up its own ad hoc emergency operations center, or may send a liaison to the State Emergency Coordination Center (SECC).

Amateur Radio Emergency Services

Amateur Radio Emergency Services (ARES) organizations exist throughout the state and may be able to provide equipment and resources to enhance emergency communications capabilities between the EOC, congregate care facilities, incident sites, command posts, hospitals, and other critical locations. ARES will provide communication support to volunteer agencies as needed and may assist with warning and emergency information dissemination as directed by the Incident Commander Matanuska Amateur Radio Association (MARA) is the local amateur radio organization. They are activated through the Borough EOC.

American Red Cross of Alaska

The American Red Cross acts as the lead agency for sheltering operations and the services associated therein. The Red Cross also provides other disaster support services, such as a disaster welfare inquiry system to document the location and welfare of victims and displaced persons.

The Red Cross will assist with providing food services at congregate care facilities, the incident site, or other sites as able. The Red Cross can also provide basic first aid assistance at non-critical medical mass care sites or congregate care facilities. The Red Cross may also operate mobile assistance units, and may assign their own public information officials to help disseminate information.

The Red Cross can assist with referral of disaster victims to appropriate community resources or local, state, or federal agencies for additional assistance. During an aviation disaster, the Red Cross can activate its Air Incident Response Team to perform mental health and volunteer coordination functions.

Civil Air Patrol

Pilots and aircraft from the Civil Air Patrol (CAP) may be available to assist the Mat-Su Borough with aerial damage assessment or with transport of victims, equipment, or supplies. Activation of the CAP must follow a protocol that involves mission approval at both the state and national levels, with specific routing and paperwork required. The Borough requests assistance from CAP through ADHS&EM.

Salvation Army

The Salvation Army may coordinate with the American Red Cross to provide food services to disaster victims at congregate care facilities and evacuation centers and to emergency responders at the incident site and other locations as able. The Salvation Army may coordinate with the EOC Mental Health Unit to deliver mental health services and pastoral care services to disaster victims and emergency responders as able.

The Salvation Army can facilitate acquisition and distribution of donated personal items to meet the needs of individuals affected by the disaster, and can coordinate with the EOC to provide public information regarding donation collection points and recommended donations.

MAT+SAR

Mat-Su Search and Rescue is a volunteer backcountry wilderness search and rescue organization which utilize personally-owned ATV's and other equipment to respond to emergencies requiring rescue or search for victims. This resource is typically dispatched and managed by AST.

Donations Management

Donations can be monetary or in the form of goods and services, The Mat-Su Borough Legal and Finance Departments will determine whether the Borough may legally accept direct donations from private citizens or organizations during each incident. Donations management would normally be deferred to an organization such as the American Red Cross or the Salvation Army. These agencies can efficiently handle donations using pre-established policies and procedures.

Annex H: Public Health and MultiCausualty Incidents

Operational Concepts

Public Health Services includes those activities associated with lifesaving; transport, evacuation, and treatment of the injured; disposition of the dead; and disease control activities related to sanitation, preventing contamination of water and food supplies, etc., during response operations and recovery operations. Public Health focuses on health and medical problems under emergency conditions of varying scopes.

Public health concerns during a disaster emergency include identifying and controlling environmental health hazards, issuing health advisories to the public on emergency water supplies, waste disposal, disease vectors, food monitoring at mass care facilities, immunizations and disinfections. This is the responsibility of the State of Alaska Department of Health and Social Services, accessed by requesting their assistance through the Alaska Division of Homeland Security and Emergency Management...

Patient isolation during a contagious disease emergency has been identified as an issue of concern in the Mat-Su Borough, as most local hospital facilities are not properly outfitted to handle patient isolation without putting the entire hospital population at risk. Each hospital has made some plans to configure their facilities for mass isolation using temporary barriers. However, all decisions regarding patient routing and isolation should be made by the Incident Commander/Unified Command based on incident-specific concerns.

The Mat-Su Regional Medical Center has plans in place for managing mass casualty emergencies, and has identified through this planning surge capacities and plans for temporary morgues, etc. It is important to ensure that a hospital representative participates in the Borough IMT to ensure information flow between the hospital and the Borough.

Multi-Casualty Incidents

The following guidelines should be followed in mass casualty incidents:

Hospital and medical facilities should keep the Emergency Operations Center informed of their status. A hospital liaison should be assigned to the EOC.

When saturation is anticipated, hospitals/clinics should notify the Emergency Operations Center

If the Mat-Su Regional Medical Center (MSRMC) establishes a hospital command center, the Borough EOC should establish communication links with the hospital command center.

The Borough IMT should work with the Medical Center and other medical facilities to establish Alternate Care sites that could be used to treat the walking wounded in the case that medical facilities exceed their capacity due to mass casualties or to structural damage to the facilities.

The SECC should coordinate the distribution of patients among capable hospitals outside the impacted area and coordinate transport.

Nearest airport should arrange staging area for medivac; should be heated in cold weather.

The SECC should notify the Mat-Su Borough EOC when to begin transporting victims to airport staging areas, rather than to hospitals.

When the Mat-Su Borough exceeds all their resource capabilities, requests for additional resources are sent to the SECC. The SECC can request medical personnel or equipment from National Disaster Medical System in coordination with the State Department of Public Health.

Aircraft transporting victims out of the affected area can also be used to bring additional supplies in to the affected area.

The local response agency will establish the on-scene Incident Command Post using NIIMS ICS as appropriate.

• Shelters may not be used as alternate treatment sites.

Medically dependent persons cannot be accepted at shelters unless they are accompanied by capable medical personnel, supplies, and equipment.

Fatality Management

The Mat-Su Regional Medical Center typically manages fatalities in coordination with local funeral homes. The total capacity of funeral homes in the Mat-Su Borough is six (6) bodies. During a mass casualty incident where this capacity is exceeded and the Borough is isolated from Anchorage and other areas of the state, the Medical Center will rely on the Borough to establish temporary morgues until bodies can be retrieved by the state medical examiner.

During a mass casualty incident, makeshift morgues could be constructed at ice rinks, in refrigerated freight containers, or using ice available through local vendors. It is important that temporary morgues be set up at a reasonable distance from human shelters, in order to avoid any negative psychological impacts associated with viewing deceased patients. The Borough Department of Emergency Services has identified the Brett Ice Arena as a potential temporary morgue.

Body bags must be procured through the Alaska State Troopers or other sources. The State Medical Examiner is responsible for the collection, identification, and disposition of deceased persons and human tissue from a mass casualty incident. In addition, FEMA has the capability to provide Disaster Mortuary Operational Response Teams (DMORT) to respond to the scene of a mass casualty incident. Both the State Medical Examiner and FEMA DMORT can be accessed by contacting the Alaska Division of Homeland Security and Emergency Management and requesting assistance.

Care for Families of Victims

Special care should be taken to provide up-to-date information to friends and family of victims. Consideration should be given to keeping all such people in a central location where they can be protected from the press, and where information can be provided as it becomes available. These services will usually take place under the direction of other entities, such as the operator of the facility or the airline in the event of an air disaster. The Public Information Officer should expect calls from relatives, the press, and concerned citizens, and may be requested to assist in providing information to friends and families of victims.

Assign a member of the clergy, or a social worker, to each family, if possible.

The Alaska Department of Health and Social Services (DHSS)/Public Health Service has a local office in Wasilla. DHSS/Public Health's purpose is to assist local agencies in responding to and mitigating any type of public health event. DHSS may assign public health nurses to monitor epidemiological/public health hazards in shelters. These nurses may assist the shelter nurses in caring for shelter occupants. Other functions that DHSS may perform in a public health emergency include:

• Coordinating public health information with the EOC.
• Coordinating public health workers and nurses to assist with health-related services at mass casualty sites.
• Coordinating assistance for vulnerable populations as able.
• Assisting in the provision of any necessary pest control.
• Maintaining a database of medical assets and ensures its availability to the EOC.
• Analyzing public health impact of the incident and providing information to the EOC.
• Coordinating recommendations with the Policy Group regarding public health threats that may necessitate the deployment of the Strategic National Stockpile, Disaster Medical Assistance Teams, or Disaster Mortuary Teams.
• Providing a medical officer to order public health or medical interventions and guidance as needed.

Pandemic Flu Plan

See Annex L, MatSu Borough Pandemic Influenza Plan.

Mental Health

Most mass casualty impacts will have mental health impacts on victims, victims' families, responders, volunteers, and the community-at-large. It is important that the IMT consider the need to provide mental health support services to one or all of the aforementioned groups. Mental health services in the Borough are provided by:

• State mental health services are available through the State Division of Behavioral Health. This assistance can be requested through the State Emergency Coordination Center.
• Wasilla Police Department
• Alaska State Troopers
• Other agencies such as the American Red Cross, The Salvation Army, various religious clergy and private mental health professionals can provide personnel and counselors to aid in delivering mental health support to victims and families affected by a disaster emergency.

Critical incident stress treatment for responders is also available through the channels identified above.

Most city and community EOPs include some guidance on community-wide mental health and healing programs that may be implemented post-disaster through schools, community leaders, and other local channels.

Multi-casualty Branch Organization Chart

The following organization chart shows how a Multi-casualty Branch would be organized in a large-scale emergency. Within the Borough IMT, it may not be possible to fill every position, so one or more functions or groups may be combined.

Multi-casualty Branch Organization

Annex I: Oil Spills and Hazardous Materials Incidents

Operational Concepts

Oil and other hazmat spills are guided by additional documents. These plans and guidelines will be used together and in combination with this Emergency Operations Plan to guide spill response. This Emergency Operations Plan will be the primary guidance document only so long as an immediate public health risk exists.

• National Contingency Plan: An organizational structure that provides procedures for responding to discharges of oil and releases of hazardous substances where federal, state, and local agencies and private sector companies are involved. http://www.access.gpo.gov/nara/cfr/waisidx_99/40cfr300_99.html
• State of Alaska Unified Plan: Describes the strategy for a coordinated federal, state and local response to a discharge, or substantial threat of discharge of oil and/or a release of a hazardous substance from a vessel, offshore facility, or onshore facility operating within the boundaries of Alaska and its surrounding waters. http://www.akrrt.org/UnifiedPlan/index.shtml
• Subarea Contingency Plan: Describes the respective roles of the state, federal and local agency personnel and the Responsible Party in the Incident Command System (ICS) and contains mechanisms for ensuring that locally available personnel and equipment resources are effectively utilized during a spill response. The Cook Inlet Subarea Contingency Plan is located at: http://www.akrrt.org/CIplan/CookInletSCP.shtml
• Private Facility Oil Spill and Hazardous Materials Response Plans: State and federal regulations require that vessels, facilities, and pipelines that transport oil and hazmat, and oil and gas exploration and production operations develop plans that comply with minimum requirements for preventing and responding to oil spills at the facility. These plans will provide some guidance during a spill for which a Responsible Party is known. Certain potential spill sources are exempted from such planning requirements, in which case local, state and federal plans would provide the requisite guidance.
• Tactical Response Guides and Spill Cleanup Strategies:In Alaska, several different planning efforts involving the oil industry, federal and state agencies, local governments, and the public have created operations guides relating to the cleanup of oil spills and the protection of sensitive areas. These include:
  • Spill Tactics for Alaska Responders (STAR) Manual: Describes tactics and strategies that can be used to contain, recover, and remove spilled oil from on-water or on-land. Available through the Alaska Department of Environmental Conservation at http://www.dec.state.ak.us/spar/perp/star/
  • Geographic Response Strategies (GRS): Site-specific protection strategies for pre-identified environmentally sensitive areas. Available through the Alaska Department of Environmental Conservation at http://www.dec.state.ak.us/spar/perp/grs/home.htm
  • Oil spill containment and cleanup operations should only be performed by trained responders with the appropriate personal protective equipment and requisite hazardous materials certification.

Several other guidance documents are available to assist in managing an oil or hazardous substance release ICS organization including the Alaska Incident Management System (AIMS) Guide, the National Incident Management System (NIMS) Guide, as well as the U.S. Coast Guard's Field Operations Guide (FOG).

Functional Responsibilities

State Response Policy

State government has broad statutory authority to oversee spill response in order to protect the human and physical environment. Furthermore, the State is required to maintain an independent response capability for those incidents where the responsible party is unknown, requests assistance, or fails to respond adequately.

State law pre-designates the Alaska Department of Environmental Conservation as the State On-Scene Coordinator (SOSC) for all spill responses. The State uses an Incident Command System for spill response and also clarifies the roles of all parties involved to ensure a coordinated approach to spill containment, cleanup, assessment and restoration of damaged areas.

Alaska Department of Environmental Conservation has authority to assume control of containment and cleanup on behalf of the State when the State On-Scene Coordinator determines that the spiller is unknown, or is not performing adequately.

Response Organization

Due to the complex nature of oil and other hazmat spills, many different agencies with jurisdictional authority and statutorily mandated responsibilities will be involved. The response organization is essentially the same as for other incidents; however, if the spilled substance is unknown then there may be additional steps required in the early stages of the response to identify it and any necessary safety precautions.

The Unified Command structure for spill incidents includes:

• Federal On-Scene Coordinator (FOSC) from the U.S. Coast Guard (MSO/Anchorage Captain of the Port) or Environmental Protection Agency
• State On-Scene Coordinator (SOSC) from the Alaska Department of Environmental Conservation
• Local On-Scene Coordinator (LOSC)
• Local Emergency Services Director or designee
• Responsible Party On-Scene Coordinator (RPOSC) representing the spiller.

Oil Spill/Hazmat Release Organizational Chart (Unified Command)

Hazmat Incident Initial Response

Initial hazmat response resources are managed by the Incident Commander, who may also initially handle all Command and General Staff functions until additional personnel are activated. Once activated, the Hazardous Materials Group Supervisor will direct the primary response functions. The Hazmat Group Supervisor, who reports directly to the Operations Section Chief, is responsible for Entry, Site Access and Decontamination until personnel are assigned to these functions. All personnel and resources involved in the hazmat response will be supervised by one of the functional leaders or the Hazardous Materials Group Supervisor.

• The MatSu Borough EOC can request additional HAZMAT response resources from Anchorage through the Tri-Borough Agreement. State and Federal resources can be requested through the the State Emergency Coordination Center.

HAZMAT Response Resources

If a hazardous materials incident occurs in a fire service area, the fire chief will be the initial Incident Commander. If outside of a fire service area, the ranking Alaska State Trooper will be the initial Incident Commander. Command may be transferred upon activation of the Emergency Operations Center.

(3 to 15 Enforcement Units involved) Fire/Law Enforcement

At this level of hazmat response, the two Incident Commanders (Fire/Law Enforcement) have joined to establish a Unified Command. They have established a Hazardous Materials Group to manage all activities around the control zones and have organized law enforcement units into a task force to isolate the operational area. The IC has decided to establish a Planning Section, a Staging Area Manager, and a Safety Officer.

(3 to 15 Enforcement Units involved) Fire/Law Enforcement

At this level, the Unified Command/Incident Commander has activated most or all Command and General Staff positions and has established additional functional groups and a total of four branches in the Operations Section. Organization within Planning, Logistics, and Finance/Administration Sections will be the same as for other incidents.

(3 to 15 Enforcement Units involved) Fire/Law Enforcement

Site Control

Oil and other hazmat releases require enhanced control of the tactical operations and personnel/equipment mobilization to improve safety and reduce the probability of spreading contaminants.

The Hazmat Group will establish and oversee three zones surrounding the response:

The three functional positions within the Hazmat Group fall under the control of three leaders:

• Entry Leader: The Entry Leader supervises all personnel and tactics operating in the Hot Zone
• Site Access Control Leader: The Site Access Control Leader controls all movement of personnel and equipment between the control zones and has the responsibility for isolating the Hot and Warm Zone and ensuring that citizens and personnel use proper access routes.
• Decontamination Leader: The Decontamination (Decon) Leader ensures all rescue victims, personnel, and equipment are decontaminated before leaving the incident.

The Hazmat Group Supervisor manages these three functional responsibilities, including all tactical operations carried out in the Hot Zone. The following principles apply to all hazmat incidents:

• All rescue operations will come under the Hazmat Group Supervisor's direction. Other tactical objectives that occur outside of the hazmat control zones (i.e. evacuation) are not the responsibility of the Hazmat Group Supervisor. These other tactical objectives will be carried out through the normal channels within the IMT.
• In addition to the three primary functions, the Hazmat Group Supervisor may work with an Assistant Safety Officer, who must be Hazmat trained and present at the hazmat incident site.
• The Incident Safety Officer will have overall incident safety authority, with an Assistant Safety Officer working directly with the Hazmat Group Supervisor, as appropriate. The Group Supervisor may also supervise one or more Technical Specialists. Federal regulations require that a Safety Officer be appointed to all hazmat incidents.
• Tactical operations outside of the controlled zones, as well as many other hazmat incident functions will be managed by regular ICS positions. In most cases, Division/Group Supervisors will manage the array of tactical objectives such as evacuation, isolation, medical, traffic control, etc. Other needs will be met by activating Command and General Staff positions as appropriate and necessary.

The following pages contain hazmat incident organization diagrams, which demonstrate the range of functional positions that may be activated during a hazmat response. A relatively minor response may never progress beyond activation of an initial hazmat response organization, while a major hazardous materials incident may require a multi-branch incident organization. As with all emergencies, the Incident Commander, guided by the Unified Command, will be responsible for activating IMT positions during a hazardous materials incident response.

Special Considerations for Oil and Hazmat Spills

• Everyone who is not adequately trained and protected should stay upwind and out of low areas.
• Identify and understand the hazards before attempting to help others. Do not attempt to identify an unknown substance unless you have been trained in emergency response procedures. Assess the situation from a safe distance and only enter high risk areas if there is no imminent danger to life, and then only with proper equipment and enough trained personnel to enter the area and remain on standby for support.
• Avoid inhalation or contact with fumes, smoke, dust, and vapors - even if no hazardous materials are known to be involved. Do not assume spilled materials and their by-products are harmless. Many extremely toxic gases and vapors are colorless, odorless, tasteless and invisible.
• While waiting for response personnel to arrive, safely obtain and record information to help characterize the incident and shape the containment and cleanup plan. This may include a briefing from the spiller or Responsible Party, if present. Collect shipping documents or labels only if safe to do so. Relevant information includes:
  • Location of spilled material;
  • Date and time of spill;
  • Cause/source of discharge;
  • Type of material discharged;
  • Estimated quantity discharged;
  • Estimated quantity at risk of further spillage;
  • Readily detectable characteristics of material (e.g., color, smell, physical effects);
  • Numbers and species of both live and dead wildlife in and adjacent to the spill area;
  • Associated chemical hazards;
  • Nature, quantity, and location of other nearby hazards;
  • Name/address/telephone number/frequency/call signs of Responsible Party (owner/operator/agent);
  • Weather and sea conditions;
  • Whether significant amounts of material appear to be entering the atmosphere, waterways, storm drains, or soil;
  • Direction, height, color, and odor of any vapor clouds or plumes;
  • Location of affected or potentially affected environmentally sensitive areas, including archaeological and historic sites;
  • Location of affected or potentially affected population centers, economically sensitive areas, and recreation areas;
  • Names and addresses of individuals at the scene at the outset; and goals, strategies, and actions taken, and by whom, to contain the spill and prevent further spillage.

Annex J: Terrorism and Weapons of Mass Destruction

Operational Concepts

Crisis and Consequence Management

Presidential Decision Directive 39 (PDD-39), "United States Policy on Counterterrorism," directs that measures be taken to reduce the nation's vulnerability to terrorism, to deter and respond to terrorist acts, and to strengthen capabilities to prevent and manage the consequences of terrorist use of WMD. To support this goal, the Federal Emergency Management Agency (FEMA) developed the Terrorism Incident Annex (TIA) to the Federal Response Plan (FRP). The TIA distinguishes between crisis and consequence management as follows:

• Crisis management refers to measures to identify, acquire, and plan the use of resources needed to anticipate and/or resolve a threat or act of terrorism. The federal government has primary responsibility to prevent and respond to acts of terrorism; state and local governments provide assistance as required. Crisis management is predominantly a law enforcement responsibility. Based on the situation, a federal crisis management response may be supported by technical operations and by federal consequence management, which may operate concurrently.
• Consequence management includes measures to protect public health and safety, restore government services, and provide emergency relief to governments, businesses, and individuals affected by the consequences of terrorism. The local and state authorities have primary responsibility to respond to the consequences of terrorism; the federal government provides assistance as necessary.

Terrorism/WMD Response Procedures

Responses to and recovery from incidents that involve terrorist use of WMD will most likely involve a Unified Command structure, as described in Annex I (oil spills).

Crisis Management

During crisis management, the FBI field office responsible for the incident area will establish and operate a JOC. The JOC is generally composed of a Command Group, Operations Group, Support Group, and Consequence Management Group. Local and state agencies will be requested to provide support and liaison.

The Alaska Division of Homeland Security and Emergency Management (DHS&EM) will activate the State Emergency Coordination Center (SECC) as necessary to support local response and support activities. In order to support federal crisis management operations, DHS&EM will dispatch personnel to the Joint Operations Center (JOC) as requested.

Consequence management

When consequence management operations are implemented, DHS&EM will activate or continue 24-hour SECC operations and prepare to coordinate assistance as needed. DHS&EM will use the structures outlined in the state emergency management plans to coordinate support for local response through recovery operations.

As the terrorist incident progresses, FEMA will consult with the Governor's office and the White House. When directed, FEMA may use the authority of the Stafford Act to preposition federal consequence management assets or implement a federal consequence management response.

When consequence management operations begin, FEMA will begin to disengage from the JOC and form Joint Information Centers (JIC) in the field and Washington, DC. The JIC will be the media centers for the release of all information to the press. FEMA will use FRP structures such as regional operations centers, disaster field offices, federal coordinating offices, and so forth to coordinate federal support for state and local recovery operations.

Lead Agencies

DHS&EM and the Alaska State Troopers (AST) are the lead state agencies for terrorism/WMD response. FEMA and the FBI are the lead federal agencies. FEMA is the lead federal agency responsible for consequence management response to a terrorist incident involving the employment of WMD. The FBI is the lead federal agency responsible for crisis management response to a terrorist incident involving the employment of WMD.

Alaska Division of Homeland Security and Emergency Management (DHS&EM)

DHS&EM is the lead Alaska agency responsible for consequence management response to a terrorist incident involving the employment of WMD. In general, DHS&EM's key functions include:

• Acting as the primary state agency for information and planning. This includes activating the SECC, implementing the NIIMS ICS system for acquiring resources, maintaining a statewide emergency public information process, and implementing procedures for responding to media and official requests for information and access to the incident site or operations area.
• Coordinating emergency activities in the Governor's absence and other state-level activities such as damage assessment and reporting, donations management operations, and recovery assistance programs
• Maintaining communication, warning, and notification capabilities to provide various jurisdictions and agencies with relevant information concerning terrorist events or imminent threats and disseminating warnings or emergency information to the public
• Assessing the need for additional resources from outside the state and preparing proclamations, executive orders, and requests for emergency or major disaster declarations as necessary to make those resources available
• Performs incident future analysis and response planning
• Advising the Governor concerning activation of the Alaska National Guard (including the 103rd Civil Support Team) for emergency service
• Coordinating with DEC in providing HAZMAT support from the Statewide Hazmat Response Team to contain, confine, and control releases of hazardous material. HAZMAT will also:
• Perform initial estimates of the downwind hazard (DWH).
• Perform surveys and obtain samples to determine the nature and identity of the hazard.
• Advise the IC on appropriate protective actions and equipment.
• Monitor the incident area, the boundaries between zones, the downwind hazard (DWH) area, and the ICP for hazardous material.
• Requesting the US Coast Guard assistance for emergency service within their capabilities
• Operating the primary state warning point of the National Warning System

Alaska State Troopers (AST)

AST is the lead Alaska agency responsible for crisis management response to a terrorist incident involving the employment of WMD. In general, AST's key functions include:

• Serving as the primary state agency for law enforcement and criminal investigations This includes acting as the state's liaison to the FBI, cooperating with local law enforcement agencies to restrict and control incident site access, and implementing methods to maintain records of persons unaccounted for and presumed involved in the incident.
• Establishing liaison with local and state agencies to assist in traffic control, evacuation of threatened areas, providing security or escorts, and establishing and administering checkpoints to regulate transportation of donated goods
• In cooperation with local jurisdictions and DHS&EM (when necessary), disseminates alerts and warnings to residents.

Borough Role in Terrorism/WMD Preparedness and Response

Anti-terrorism preparedness and response are primarily state and federal functions. However, the Borough also has a role in terrorism and WMD incidents. This section describes the general functions that the Borough may fill to support local, state, and federal efforts to mitigate, prepare for, respond to, and recovery from a terrorist or WMD attack. Section 3 contains response action checklists for the Borough to follow in the event of a terrorist attack.

While a significant attack is considered unlikely in Mat-Su Borough, the consequences of a major incident could be catastrophic and would require a coordinated multi-jurisdictional law enforcement and emergency management response. An act of terrorism may include:

• kidnapping;
• hijacking;
• attack involving chemical, biological, radiological/nuclear or explosive weapons (CBRNE);
• cyber attack;
• assassination;
• extortion;
• intentional contamination of food sources, water, or air; and/or
• threats to commit such acts

Mitigation

The Borough can mitigate the potential occurrence or impacts of a terrorist incident as follows:

• Coordinate with state and local partners to identify potential targets and determine their vulnerability and impact if attacked.
• Regularly communicate with DHSEM, the FBI and other law enforcement agencies to monitor intelligence regarding potential terrorist groups and maintain profile information on groups suspected active in the local area.
• Establish appropriate security programs for public facilities that are potential targets and recommend such programs to private property owners.

Under most threat conditions, private business is responsible for protecting itself from terrorist attacks. Individual citizens and families can help prevent terrorist attacks by being observant in their communities, reporting suspicious activity, and being aware of federal threat levels.

Preparedness

The US Department of Homeland Security has developed a color-coded threat level system as a guideline to establish the existing local terrorism threat level. The borough mayor may choose whether to adopt the recommended threat level based on a credible local threat. As threat levels rise, the borough will establish appropriate increased readiness actions.

The Borough can prepare for a terrorism or WMD incident as follows:

• Arrange regular terrorism awareness training for law enforcement, fire service, public health workers, emergency responders, and emergency management staff.
• Establish mutual aid agreements to enhance response capabilities.
• Conduct drills and exercises to test plans, procedures, and training and encourage public and private partners to participate.
• Ensure Borough Continuity of Operations and Continuity of Government Plans are developed and exercised.

Response

A terrorism response may be triggered if any of the following events occur:

• Credible threat or incident involving CBRNE agents
• Incident of unknown origin that creates mass casualties within in a short period
• Incident where victims display signs or symptoms of a CBRNE event with an unknown or suspicious origin
• Sudden or repeated occurrences of any illness or disease not typically seen in a geographical area
• Incident or series of incidents that indicate cyber intrusions or cyber attacks

The Borough will immediately notify the Alaska Division of Homeland Security and Emergency Management upon identification of a specific threat or terrorist event. The Borough will manage local response to a terrorism or WMD incident as follows:

• When a credible threat exists, the Borough will activate its EOC to facilitate response and will invite the FBI and the Alaska Division of Homeland Security and Emergency Management to provide liaison personnel.
• The Borough will assist in the establishment of a joint field office to provide a central location for coordination of federal, state, and local agencies.
• Any chemical, biological, radiological, nuclear, or explosive event should be treated as a crime scene until authorities determine it is not a terrorist attack.
• During incidents where biological agents are suspected, coordinate as early as possible with veterinary professionals. Several biological agents are naturally occurring in wild or domesticated animals, and these animals can serve as vectors or reservoirs for these agents for continuous re-introduction to humans.
• If there is a local incident site, an incident command post will be established by first responders. Incident command will transition into a unified command as state and federal responders arrive to augment local response.
• If there is no local incident site, such as during incidents involving biological agents or cyber attacks, response activities will be directed and controlled from the EOC.
• A terrorist incident may be simultaneously a crime scene and a hazardous materials (Hazmat) site and may cross jurisdictional boundaries. The IMT will establish operating areas and formulate a plan of action that considers the needs of all jurisdictions and agencies.
• The National Fire Protection Agency (NFPA) promulgates standards (NFPA Standard 472) for responder competence for response to hazardous materials and weapons of mass destruction incidents. Any Borough personnel involved in a hazardous materials or WMD response should meet the most recent NFPA standards (as of publication of this plan, NFPA 472 dated 2008).
• A crime scene area may be established to protect evidence. Access may be restricted by state, federal, or local law enforcement personnel.
• A Hazmat area may include a portion of or the entire crime scene. Access may be restricted to response personnel equipped with personal protective equipment and using decontamination procedures.
• The incident area includes the crime scene, the Hazmat area, and areas used for incident support operation. Access may be controlled and egress restricted if quarantine is implemented.
• Borough personnel may be called upon by the Alaska Department of Health and Social Services to assist with isolation and quarantine and/or dispensation of mass prophylaxis or Strategic National Stockpile assets. All requirements of the Fair Labor Standards Act will apply and compensation will be in accordance with existing rules and bargaining agreements.
• Evacuation of an area or facility may be ordered because of a credible threat.
• Evacuation may be required from inside the perimeter of the scene to guard against further casualties from initial agent release, additional agents, or secondary devices.
• Long-term relocation may be ordered if an area is contaminated by a CBRNE agent.

Recovery

The Borough will manage local recovery from a terrorism or WMD incident as follows:

• Assist state and federal agencies with decontamination of local affected sites (see guidance later in this section).
• Identify and restrict access to all structurally unsafe buildings.
• Attempt to remediate and clean up any hazardous materials affecting local water, sewer, or drainage systems.
• Provide traffic control for the return of evacuees.
• Assist the Red Cross in arranging temporary housing for evacuees who cannot return to their homes.
• For areas that cannot be decontaminated and returned to normal use in the near term, the Borough will develop and implement appropriate access controls.
• Cooperate with state and federal agencies to investigate the cause of a terrorism incident.
• Conduct critical incident stress management for emergency responders.
• Debrief response personnel, prepare an incident report, and update plans and procedures based on lessons learned.
• Restore normal services as soon as practicable after a terrorism incident.

Roles and Responsibilities of Other Local, State and Federal Agencies

Alaska Department of Health and Social Services (Division of Public Health)

• Assumes the lead role for protecting public health during a bioterrorism incident.
• Monitor compliance with borough and local codes concerning environmental, public health, or safety issues.
• Advises the incident commander of decontamination protocols, symptoms, and recommended medical treatments related to CBRNE.
• Dispatches a medical officer to the site as necessary.
• Maintains medical surveillance for CBRNE signs and symptoms.
• Coordinates with the SECC to activate the Strategic National Stockpile.
• Acts as the lead agency for the dispensation of mass prophylaxis or inoculations, including Strategic National Stockpile assets when activated.
• Coordinates isolation and quarantine measures with appropriate state and local agencies.
• Coordinates dissemination of critical public health information.

Local Fire Department

• Acts as the lead agency and establishes an incident command post if first on scene.
• Conducts all fire suppression and rescue operations.
• Coordinates search and rescue operations as needed.
• Deploys EMS teams and implements mass casualty protocols as required.
• Deploys hazardous materials response teams and decontamination units as needed.
• Integrates all supporting EMS agencies into on scene medical operations.
• Identifies and restricts access to unsafe structures as able.
• Identifies requirements for debris clearance to expedite fire and rescue operations.
• Provides evacuation support as able.
• Provides regular training for hazardous materials mitigation and emergency response.
• In conjunction with Borough Emergency Management, track local inventories of hazardous materials and develops awareness programs for businesses that handle inventories of potential weapon-making materials.
• Coordinates with Health and Human Services to establish appropriate actions to protect the public when a CBRNE event has occurred.
• In conjunction with Borough Emergency Management, provides information to the public under the Community Right-to-Know Act.
• Provides information to the public under the Community Right-to-Know Act.
• Coordinates necessary actions to decontaminate hazardous material sites and remains on site until immediate health and safety risks have been resolved.
• Develops and implements appropriate access controls for areas unable to be decontaminated in the near term.
• Provides personnel support as able to assist Health and Human Services with dispensation of Strategic National Stockpile supplies.

Local Police Department

• Acts as the lead agency and establishes an incident command post if first on scene.
• Acts as the lead local agency in anti-terrorist operations.
• Participates in statewide terrorism preparedness activities.
• Coordinates with privately owned high-risk and critical facilities to recommend appropriate security programs.
• Conducts terrorism response training for law enforcement personnel.
• Supports public education and awareness activities.
• Coordinates the deployment and operation of counter-terrorist response elements.
• Establishes control zones and orders evacuation from the hot and warm zones.
• Secures scene, reroutes traffic, and implements crowd control measures as needed.
• Provides security at incident site, operational areas, and critical facilities including Strategic National Stockpile dispensing sites.
• Provides requested support for evacuation operations.
• Conducts reconnaissance in vicinity of the incident site to identify threats from delayed action and secondary weapons.
• Cooperates with state and federal agencies to investigate the incident and to identify and apprehend suspects.
• Coordinates with the EOC Mental Health Unit to provide chaplains to deliver comfort and solace for emergency workers and disaster victims as able.

Area Hospitals

• Maintain medical surveillance for CBRNE signs and symptoms.
• Provide emergency and routine medical care.
• Provide updates to the EOC regarding hospital capabilities and capacity.
• Supply a medical liaison to the EOC.
• Establish onsite decontamination capabilities if possible.

Mat-Su Borough School District

• Provides for the safety of students and notifies the EOC of any student relocation.
• Augments congregate care operations by making facilities and resources available when school is not in session or when the needs of students have been met.
• Assists the EOC with transportation services after ensuring the transportation needs of students have been met.
• Augments nursing services as directed by the EOC and as appropriate based on the availability of nurses after student needs have been met.

WMD Decontamination

Following an overt WMD terrorist incident the immediate concern is to corral and isolate the ambulatory victims so that contamination does not spread. Decontamination must begin quickly in order to reduce the duration of human exposure to chemical agents, biological agents, or radiation. Ideally, decontamination should also improve the environment for human health until evacuation can be accomplished. Conversely, since the attack may go unnoticed, decontamination may not be possible following a covert attack using WMD materials. The Mat-Su Borough has one decontamination trailer and has trained personnel to operate it.

Decontamination Guidelines

• Attempt to identify, decontaminate, and track the health of all exposed people. Generally, victims of a chemical attack that are able to escape the attack site have not received a lethal dose and are only marginally at risk from the effects of the agent. However, delayed effects can develop as a result of long-term exposure to a low agent concentration. Victims of a biological or radiological attack may not develop symptoms for several hours, days, or weeks, regardless of the dose they initially receive. The same concepts hold true for responders who may have been exposed during response or rescue operations.
• Water is usually available in large quantities and can be used to decontaminate a large number of people quickly. Although it does not neutralize the WMD material, soap and water can help remove contamination. Additionally, the runoff is contaminated and must be controlled.
• The temperature can affect decontamination operations. The wind chill factor can make emergency decontamination an uncomfortable, or even dangerous, undertaking. In addition, some chemical agents may freeze or boil at temperatures within the habitable range. Frozen agents produce little if any vapor hazard. This can reduce inhalation exposures and enhance survival. Boiling agents rapidly convert to vapor. This intensifies inhalation hazards, but reduces residual contamination. However, radiation is unaffected by temperature and many biological agents can remain viable over wide temperature ranges.

For the purposes of this plan, temperatures are defined as hot (>80°F), moderate (60-80°F), cool (>32

Decontamination Issues

Serious issues of concern to ambulatory victims will be privacy, speed, and the safety of their families (i.e., small children, the elderly, and the handicapped). Speed and safety are interrelated. Responders must also consider crowd control, protection for personal property and responder's equipment, storage of contaminated items, and maintaining the chain of custody for evidence. Law enforcement officers wearing appropriate PPE may be required on the decontamination lines to perform these tasks.

Annex K: Disaster Recovery

Operational Concepts

The substance of recovery has mainly to do with how to get financial, organizational, and human resources focused on both short-term and long-term needs, based on locally defined priorities. Recovery actions typically involve:

• Analyzing post-disaster conditions and opportunities for restoring the community to pre-disaster condition or better.
• Repairing and restoring key facilities for short-term functioning of the community.
• Hazard abatement (short-term) and mitigation (long-term), including whether to rebuild in vulnerable areas.
• Housing recovery (temporary and long-term).
• Local business district recovery and temporary business resumption.
• Key economic facility recovery (e.g., ports or rail facilities).
• Maximizing available State and Federal assistance.
• Leveraging public assistance (typically limited) to most effectively maximize and attract private capital.
• Making the community attractive for investment capital needed to reconstruct buildings and restore business activities and housing.

The recovery process is defined by the way the community organizes itself to make decisions, set priorities, and work with affected population subgroups and key stakeholders. The recovery process involves:

• Strategies to plan for recovery of hard-hit individual areas while allowing "normal" functions to continue in unaffected areas.
• Strategies for community participation and investment of stakeholders.
• How to reorganize the bureaucracy and policy-adoption process for recovery.
• How information is collected and analyzed.
• How to use and support existing and emergent community-based organizations and human resources.

Damage assessment is an important part of the Disaster Recovery process. Prompt initiation of initial damage assessments during the emergency response phase may expedite the final damage assessment once the incident is over.

Damage assessment procedures are included in Part 2 of this EOP.

The Recovery Task Force is established to oversee the recovery and reconstruction process and serve as an advisory committee to local government officials responsible for recovery activities. The task force will also identify mitigation opportunities, identify resources, and ensure maximum control over the recovery process.

The task force would normally begin meeting immediately following an in-depth borough-wide damage assessment. The group's responsibilities include, but are not limited to, preparing a redevelopment plan, developing procedures to carry out build-back policies, developing policies for redeveloping areas that have sustained repeated disaster damage, develop policies that promote mitigation from future damage, and develop priorities for relocating and acquiring damaged property. The Recovery Task Force may establish subcommittees to address specific recovery issues.

The Recovery Task Force should be mobilized for at least 60 days following the Borough Manager's request to declare a disaster area. The Borough Assembly can repeal or extend the activation of the task force.

Responsibilities of the Recovery Task Force

• Review damage reports and other analysis of post-disaster circumstances, compare these circumstances with mitigation opportunities, and identify areas for post-disaster development changes.
• Initiate recommendations for enactment, repeal, or extension of emergency ordinances, moratoriums, and resolutions.
• Recommend and implement an economic recovery program focusing on local community needs.
• Recommend zoning changes in damaged areas.
• Recommend land areas and land-use types that will receive priority in the recovery and reconstruction process.
• Recommend procedural changes for non-vital regulations and development standards to reduce reconstruction time.
• Initiate recommendations for relocation and acquisition of property in damage areas.
• Initiate a property owner notification program to inform nonresident property owners of damages incurred to their property and any post-disaster requirements or restrictions imposed by local authorities.
• Evaluate damaged public facilities and formulate reconstruction, mitigation, or replacement recommendations.
• Participate in the preparation of a community redevelopment plan.
• Make recommendations for new ordinances, plans, codes, and/or standards to assist in recovery from future disasters.
• Identify funding sources for mitigation and recovery projects, including State and Federal assistance programs, private sector funding, and public donations.
• Ensure aid requests received at Disaster Recovery Centers are referred to appropriate agencies or addressed by the Mat-Su Borough.
• Formulate special committees and sub-committees as situation warrants.
• Set a calendar of milestones for recovery tasks.
• Recommend procedures to document actual uses, densities and intensities and compliance with regulations in effect at the time of construction, through such means as photographs, diagrams, plans, affidavits, permits, appraisals, tax records, etc.

Recovery Task Force Participation

The Recovery Task Force should include a Disaster Recovery Coordinator, an Economic Recovery Coordinator, and a Hazard Mitigation Coordinator as well as a Chairperson.

The following members may be considered for the task force:

• Borough/City Managers
• Borough Emergency Manager
• Dept. of Emergency Services representative
• Local Manager or Administrator
• Finance Department representative
• Public Information Officer
• Utilities representative
• Attorney
• Public Works representative
• Community Services representative
• Planning Department representative
• School district representative
• Business community representative
• Human Services representative
• Primary community groups
• Community Development representative
• Others who fill key roles in the local community
• Visitor and Convention Bureau representative

The Recovery Task Force may include the following positions:

Incident Recovery Coordinator

Role: To facilitate the coordination of disaster assistance from the Federal Government and State agencies available to the Mat-Su Borough following a disaster emergency.

Responsibilities: Will consist of, but not be limited to, the following:

• Determine the types of assistance available to the Borough and the types of assistance most needed.
• Assist in the local coordination of Federal and State disaster recovery efforts.
• Provide local assistance to facilitate Federal and State disaster assistance programs.
• Act as facilitator in securing Federal or State disaster assistance.
• Inform the community of types of disaster assistance available.
• Other duties as directed by the Recovery Task Force or Borough Assembly.

Economic Recovery Coordinator

Role: To facilitate the coordination of economic recovery with the business community following a disaster emergency.

Responsibilities: Will consist of, but not limited to, the following:

• Determine the potential or actual impacts to the local economy and determine short-term and long-term strategies for consideration.
• Assist in the local coordination of Federal and State economic recovery efforts.
• Act as facilitator in disseminating accurate information to and from the business community.
• Inform the business community of types of disaster assistance available.
• Other duties as directed by the Recovery Task Force or Borough Assembly.

Hazard Mitigation Coordinator

Role: To facilitate the coordination of hazard mitigation assistance from the Federal Government and State agencies available to Mat-Su Borough following a disaster emergency.

Responsibilities: Will consist of, but not be limited to, the following:

• Determine the types of hazard mitigation assistance or funding available to the Borough and the types of assistance most needed.
• Assist in the local coordination of Federal and State hazard mitigation efforts.
• Provide local assistance to facilitate Federal and State hazard mitigation assistance programs.
• Act as facilitator in securing Federal or State hazard mitigation funding for local hazard mitigation projects.
• Other duties as directed by the Recovery Task Force or Borough Assembly.

Planning Role of Recovery Task Force

The Recovery Task Force will meet on a continuing and regularly scheduled basis to discuss its specific roles and responsibilities in accordance with the ordinance, and relative issues associated with recovery from a major disaster emergency. This would include, but not be limited to preparing a redevelopment plan for the Borough, developing procedures to carry out the Borough's rebuilding policy, developing policies for redeveloping land areas that have sustained repeated damages, developing priorities for relocating and acquiring damaged property, establishing special committees and subcommittees within the task force to deal with specific issues during the disaster recovery process, establishing criteria to determine reconstruction and rebuilding priorities, developing procedures that promote the mitigation of future disaster damage through activities carried out during recovery and reconstruction, and recommending changes to the Mat-Su Borough Post-Disaster Strategic Plan and Mat-Su Borough Comprehensive Plan.

Recovery Task Force Briefings

The outgoing Incident Commander is responsible for briefing the Disaster Recovery Team Coordinator, the DES Director and the Borough Manager about the incident status and recovery priorities. The Disaster Recovery Team Coordinator will then assemble and brief the Disaster Recovery Team based on the incident specifics. The composition of the Disaster Recovery Team will vary depending upon the type and severity of the incident.

The following information should be included in the Disaster Recovery Team Coordinator briefing:

• Overview of situation (name and number of incident, size; size, location, and land status; name of IC; weather conditions; incident behavior thus far; current tactics, IC Post and EOC locations; other factors influencing strategy, resources, and tactics)
• Status of disaster declarations (local, state, federal); inter-agency agreements in effect
• Recovery priorities and political considerations
• Desired date for transition from IMT to Recovery Team to occur
• Local plans and ordinances that may impact recovery
• Legal considerations (including investigations underway)
• Procurement procedures
• Claims procedures
• Disaster recovery needs (i.e. debris removal, restoration of interrupted services, housing for displaced personnel, counseling services,

Support for Community Leadership

The community leadership relies on emergency management to coordinate recovery activities, provide information about those activities (such as status reports and issue identification), and serve as a liaison to outside jurisdictions and organizations, including State and Federal agencies. Following are some of the major ways in which emergency management supports the local leadership in recovery:

• Brief public officials on status of recovery operations and outlook for the immediate future.
• Serve as a local resource and authority on State and Federal disaster recovery assistance programs.
• Serve as liaison to outside agencies on specific issues requested by leadership.
• Hold regular briefings with agency directors to keep them informed of current activities and problems.

Recovery Assistance for Local Citizens

Disaster Recovery Center (DRC)

The Logistics Section may need to arrange a large facility to serve as a Disaster Recovery Center (DRC), where citizens can meet with federal/state/local and volunteer agency representatives to apply for disaster assistance. Appropriate facilities include schools, churches, and community centers. The Public Information Officer should coordinate the advertising for the DRC through the Joint Information Center (if activated). Federal, state, local, and volunteer agencies may provide or accept applications for the following services through the Disaster Recovery Center:

• Temporary housing for disaster victims whose homes are uninhabitable because of a disaster.
• Essential repairs to owner occupied residences in lieu of temporary housing, so that families can return to their damaged homes.
• Disaster unemployment and job placement assistance for those unemployed because of a major disaster.
• Disaster loans to individuals, businesses, and farmers for refinancing, repair, rehabilitation, or replacement of damaged real and personal property not fully covered by insurance.
• Agricultural assistance payments and technical assistance, and federal grants for the purchase or transportation of livestock.
• Information on the availability of food stamps and eligibility requirements.
• Individual and family grants to meet disaster related expenses and other needs of those adversely affected by "major disasters" when they are unable to meet such needs through other means.
• Legal counseling to low income families and individuals.
• Tax counseling concerning various disaster- related tax benefits.
• Consumer counseling and assistance in obtaining insurance benefits.
• Crisis counseling and referrals to mental health agencies to relieve disaster caused mental health problems.
• Social Security assistance for recipients or survivors, such as death or disability benefits or monthly payments.
• Veteran's assistance, such as death benefits, pensions, insurance settlements, and adjustments to home mortgages held by the Veteran's Administration if a VA insured home has been damaged.
• Other specific programs and services as appropriate to the disaster.

Disaster Recovery Centers can be developed with the support of the American Red Cross, the Salvation Army, or other Aid organizations.

For information on helping child victims after a disaster, visit the Federal Emergency Management Agency and American Red Cross websites where publications are available.

www.fema.gov

http://www.redcross.org/

Post-Incident Evaluation

Each time the Incident Management Team and Emergency Operations Center are exercised, either in a real emergency or during a planned drill, it is important that all participants take the opportunity to learn from the experience of managing an emergency incident.

A post-incident evaluation or "debrief" is a tool that can facilitate this process, by allowing incident personnel to reflect briefly on the lessons learned during an emergency response. Consider the following questions in conduction a post-incident evaluation.

• Did Incident Management Team personnel integrate effectively to respond to the incident at hand?
• Were staffing levels adequate?
• Did the EOC space function adequately?
• What were the most successfully elements of the incident response?
• What were the major problems?
• What specific actions were taken to improve the effectiveness of the response?
• How did communications flow within the EOC?
• Were all personnel comfortable and familiar with their expected roles and responsibilities?
• How did IMT personnel integrate with other agencies/organizations?
• Was the information in this plan useful in guiding the response? How might you revise the plan based on this experience?
• Was there adequate resource information/telephone numbers in the plan?
• Did external notifications occur quickly and effectively?
• Was the alert/siren system effective?
• Did evacuation occur smoothly?
• Was the shelter facility adequate?
• What were the major "lessons" learned?
• What would you do differently next time?
• What would you do the same?

Keep records of the post-incident evaluations developed and insert copies into this plan to jog memories during future incidents or drills.

Promoting Community Healing

In the initial days of the disaster, community officials may be so absorbed with responding to the initial emergency that less tangible needs of the community may be neglected at first. However, community members may suffer from a number of disaster-related stresses, including the following:

• Emotional distress
• Financial loss
• Childcare issues
• Family relationship strain
• Physical health concerns

Community outreach programs are an important component of any disaster response and recovery effort. These programs should include activities that help residents understand the nature and kinds of stress reactions they are experiencing and provide information and resources to assist them in coping with the effects of the disaster.

This section provides short descriptions of a few community outreach techniques and programs that can be implemented following a community disaster event. This section also identifies additional resources available through regional, state, and national organizations to promote community outreach, awareness and healing.

Suggested Community Outreach/Healing Programs

In the wake of a disaster emergency, community leaders should bring residents together to address and respond to problems on a broader-based community level. It is helpful to use organizations that are already in place - such as churches, trade/professional groups, Moose/Elks/Eagles, Girl/Boy scouts, Tribal or Native organizations, Parent/Teacher groups, etc. Also, special outreach programs can be implemented to reach out to the community as a whole.

Community outreach activities may include the following:

• In-service training for local professionals
• Distribution of community education materials
• Peer Listener programs
• Talking circles

A comprehensive program of materials and guidance to aid community healing are available FREE OF CHARGE through the Prince William Sound Regional Citizens' Advisory Council, as part of their "Coping with Technological Disasters" series.

Call PWSRCAC at 907-277-7222 to learn where to find this program.

Community Education Materials

Community education information can be distributed through printed leaflets, community service announcements on local broadcast media, or print ads in local newspapers. Community education materials may be general in nature, discussing disaster recovery and response issues, or may focus on specific problems such as depression, anxiety, domestic violence, or substance abuse.

Consider the following in developing and distributing community education materials:

• Determine the specific needs of your community and focus on them.
• Select a time for broadcast announcements when your target audience will most likely be reached.
• Run newspaper ads or articles at regular intervals.
• Place educational leaflets in areas of greatest community interest (community centers, mental health facilities, clinics, other meeting places).
• Distribute leaflets at major public events like festivals, fairs, etc.
• Consider bulk mailing through the post office or door-to-door distribution.

In-service Training for Community Professionals

Local community professionals such as schoolteachers, law enforcement personnel, and religious/spiritual leaders can take an active role in promoting community healing following a disaster emergency. Because these individuals are in constant contact with members of the community, they should be trained to recognize, counsel, and refer individuals with special needs following a disaster.

In-service training programs provide resources and instruction to guide professionals in promoting the community healing process. The following are suggestions for organizing and administering in-service programs:

• Select a qualified mental health professional to deliver the in-service training.
• Deliver in-service training programs in a manner that makes it easy for local professionals to attend and participate.

Peer Listener Programs

A peer listener-training program can train local residents to provide help to disaster-impacted communities and individuals. The peer listener acts as a friend, advisor and referral agent for individuals that may not desire to seek professional services or may not know that help is available.

Community leaders who are considering using peer listener training to facilitate community healing should consider the following:

• Peer listener training should be provided by qualified mental health professionals.
• Peer listeners should be volunteers from within a community who are highly trusted, dependable, and discreet. They should represent all cultural, ethnic and age groups.
• Peer listener training usually takes about 2 days.
• Community leaders should follow up with peer listeners to ensure all community needs are being met.

"Talking Circle" Outreach Activity

The talking circle is a traditional Native American activity that involves engaging a group of participants in a dialogue where all participants are considered and treated as equals. In many locations, generations of tribal members have used talking circles in leadership discussions and storytelling. The circle allows each participant to see the others' faces and speak in turn as a stick or feather is passed from hand to hand.

A talking circle can be a powerful tool in initiating community healing following a disaster emergency. The following steps are suggested for organizing a talking circle.

• Identify and contact community leaders to organize each talking circle. These individuals should have strong ties to various segments of the population (age, occupation, and other subgroups) to ensure maximum outreach.
• Identify spiritual leaders to participate in the talking circles. Encourage them to bring traditional ceremonial items to the talking circles.
• Advertise the time and location for talking circles throughout the community. Schedule the talking circles for different times of day and at locations such as community halls, schools, and senior centers to reach out to all members of the community.

Annex L: Pandemic Influenza Plan

August, 2009