HomeMy WebLinkAboutStaff Report 144-07TO:HONORABLE CITY COUNCIL
City of Palo Alto
City Manager’s Report
FROM: CITY MANAGER DEPARTMENTS: CITY MANAGER’S OFFICE
FIRE DEPARTMENT
POLICE DEPARTMENT
DATE: FEBRUARY 12, 2007 CMR: 144:07
SUBJECT: REQUEST FOR INPUT ON KEY POLICY ISSUES RELATED TO DRAFT
EMERGENCY MANAGEMENT/OPERATIONS PLAN, INCLUDING COUNCIL’S
ROLES AND RESPONSIBILITIES IN AN EMERGENCY/DISASTER; COMMUNITY
PARTNERSHIP IN EMERGENCY PLANNING AND RESPONSE; AND COUNCIL
TRAINING.
RECOMMENDATION
’Staff recommends that the City Council review and provide input on the overall outline and
scope of the City’s revised Emergency Management/Operations Plan; as well as on several draft
elements of the plan which will incorporate policy decisions of the Council. Staff also
recommends that the Council refer this item to the Policy and Services Committee for review of
the final draft plan before returning to Council for adoption.
BACKGROUND
Several sections of the Palo Alto Municipal Code outline the requirements for the preparation
and adoption of an emergency plan for the City. The Fire Department has primary responsibility
for preparation of the plan, which must be adopted by Council resolution. Local governments in
California are required to develop and maintain emergency plans that provide for the effective
mobilization of city resources to respond to declared emergencies. These .plans must follow the
Standardized Emergency Management System (SEMS) which enhances inter-agency disaster
response coordination. The creation of this system stemmed from the Oakland Hills fires in the
early 1990s where inadequate inter-agency coordination led to undesirable outcomes.
Government Code Sections 8568 and 8607 require the City to create a SEMS-based emergency
organizational structure to ensure eligibility for state funding of emergency response-related
costs.
More recently, in February 2003, the President issued Homeland Security Presidential Directive
5, which mandated the Secretary of Homeland Security develop and administer the National
Incident Management System (NIMS). This federal system provides for a consistent nationwide
approach to disaster response at the local, state and federal levels that complements and builds
upon the current California SEMS model. All agencies within the United States are required to
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comply with the NIMS guidelines in order to receive federal funding for disaster planning,
training, response and recovery.Compliance with the guidelines also ensures the City’s
eligibility for state disaster funds.
The City Council adopted the current Emergency Management Plan on January 11, 1999. The
adoption of this plan brought the City into compliance with the SEMS model of emergency
organization. The emergency plan is the official document that describes the City’s
responsibilities and the processes used to carry out emergency operations. Since 1999, the City
has updated its plan to reflect both local and national disasters. In 2000, the Severe Winter
Storm and Earthquake annexes were added to the plan. Following the 2001 terrorist attacks, the
City completed a Terrorism Annex to the plan. The creation of the new National Response Plan
(NRP) and the NIMS federal emergency organization model has created the need to update the
City’s emergency plan again. The federal government created guidelines for local government
compliance with the NIMS requirements in December 2005. Since then, City staff have been
working to update the emergency plan.
DISCUSSION
Attachment A to this report provides the Council witha high level overview of the City’s revised
emergency management plan. This outline follows state and federal guidelines for plan
organization and content. Most elements of the final plan will be standardized in nature and are
consistent with other local government plans. However, there are certain elements of the plan
that the City has expanded upon or modified to address the unique circumstances present in Palo
Alto or specific community interests. These include: Council’s role as representatives Of the
City to the citizens, media and other agencies during a disaster; community alert/notification
procedures; and community partnerships. Staff has included drafts of two of these elements with
this report for Council review and comment (Attachments B and C). These documents are still
in draft form. Staff would like to receive Council input on these items before final adoption of
the plan. All of these elements are discussed in more detail below.
Council’s Roles and Responsibilities: One of the specific concerns staff has heard previously
from the Council is the lack of clarity on the Council’s roles and responsibilities in a disaster.
Attachment B provides draft protocols and procedures for the Council that will be incorporated
into the final emergency plan. These protocols identify the key roles for the Council and the
implementation steps for both the Council and staff. As identified in the plan, the Council will
be the "face" of the City organization with the media, community members and visiting
dignitaries during a disaster. The Council also provides policy oversight, including declaration
of the emergency and suspension of certain City rules, for the Emergency Services Director in
the execution of the City’s emergency operations. These responsibilities are vital to the success
of the City’s disaster response and recovery efforts. Additionally, the Council plays an on-going
role in supporting disaster preparedness and response through provision of funding and support
for City programs, e.g., funding for new response equipment and PANDA programs.
In developing the Council protocols, staff discussed the issue of increased training opportunities
for the Council. This is a key discussion point for the Council. Staff would like to receive input
as to what types of training would be the most beneficial for the City Council. Some suggestions
CMR: 144:07 Page 2 of 5
include: 1) drills and exercises utilizing the activation procedures/protocols; 2) tailored
emergency communications training; 3) IS 700 NIMS training (either online or in a classroom
setting); and 4) participation in inter-agency exercises or training.
Community Alert/Notification Procedures: Staff is still preparing the draft of this section, which
will focus on the mechanisms that allow the City to notify residents and businesses of disaster
situations. Staff will be soliciting support from the Palo Alto/Stanford Red Ribbon Task Force
(RRTF) in this effort. This section will also provide technical details on dispatch center
responsibilities; Public Information Officer (PIO) duties, both in the Emergency Operations
Center and in the field; and internal staff warnings and notifications. The key element of this
plan will be the development of the City’s high-speed community alerting and emergency
notification system. The system will have the ability to perform automatic and simultaneous
notifications to members of the public, City staff, and emergency first responders on a 24/7 basis.
It will also be able to make tens of thousands of instantaneous and simultaneous notifications
based on non-geographic requirements, as well as use an interactive interface to the City’s
geographic information system (GIS). The cities of Menlo Park and East Palo Alto intend to
partner with Palo Alto on its vendor selection. Vendor proposals for this system are due back to
the City at the end of February and staff anticipates awarding a contract by mid-March. Given
this timeline, staff will be able to incorporate details of the system into the section on community
alert/notification procedures, along with input from the RRTF. This will greatly bolster this
section’s relevance for the community at large and will enhance a section currently focused
largely on internal and inter-agency staff notification procedures. Staff anticipates completing
this section before bringing the plan back to Policy and Services in April as recommended.
Community Partnerships: Attachment C outlines the Community Partnerships section of the
plan, which will ultimately become an annex to the plan. This section is the most unique to Palo
Alto, although it draws upon best practices researched in other communities. The City is
fortunate to have an engaged and active citizenry that desires to participate in disaster planning
and response efforts. The City also has numerous institutional assets and would be well-served
by fostering and leveraging partnerships with these groups. The intent, of the Community
Partnerships section is to outline existing partnerships and to identify opportunities for additional
coordination and communication. The section also provides information on the role volunteers
play in disaster preparedness, response and recovery. Staff’ s participation on the RRTF and the
recommendations coming from that body will be critical to complete this annex.
To date, emergency planning has primarily focused on strengthening internal staff resources and
government agency partnerships. These plans are very effective but are missing a key
component. The City has certain basic responsibilities during a disaster and its resources will be
completely consumed with these responsibilities. As staff has worked to clarify the City’s basic
level of response, the type and extent of the partnerships necessary has become clearer. The
recent efforts around pandemic planning have highlighted the benefits of partnering with
community groups and agencies. It is important to further build upon and add to these
relationships.
One of the key action items for future discussion is the role of the Citizen Corps Council (CCC).
The current Citizens Corps Council is structured on an information-sharing model, with
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scheduled speakers and discussion among members, none of whom have any obligation to attend
on a regular basis. The Red Ribbon Task Force will be discussing the potential future role of the
CCC as part of its work effort.
NEXT STEPS
Staff has worked on the revisions to the emergency plan through a good portion of the 2006
calendar year. A preliminary draft was initially provided to the Executive Staff members in July
2006. This initial review resulted in the identification of the need to expand upon the state
guidelines for emergency plans in order to address some of Palo Alto’s unique interests and
issues. There has been significant work towards this end, resulting in the drafts presented as part
of this report. This work effort, along with the work effort related to preparing the pandemic
influenza plan and related community outreach, slowed staff’s progress in completing the
emergency plan update by the end of 2006.
Understanding the importance of completing the update to the plan, staff is proposing the
following timeline to have the plan adopted by May 2007:
Preliminary Council review of plan February 12, 2007
Staff revisions and finalization of plan February 13 - March 16, 2007
Executive Staff review of final plan March 19 - 30, 2007
Policy and Services Committee review April 10, 2007
Final revisions and preparation of plan
Presentation of final plan to Council for adoption
April/May 2007
No later than May 21, 2007
Training on plan Summer/Fall 2007
RESOURCE IMPACT
While staff believes that the interdepartmental Steering Committee for emergency preparedness
is still the most effective approach to emergency and disaster planning, it has become clear in the
past year that resources are stretched to achieve what is required in this area with current
staffing. The temporary addition of contract staffing in the Police Department and City
Manager’s Office has been helpful. However, the Police Department staff work has focused
primarily on homeland security and the contract in the Manager’s Office is very limited in scope
and duration. Staff will be evaluating the adequacy of resources in this area during the 2007-09
budget process.
Staff is working with School District staff on plans for an alternate Emergency Operations
Center (EOC). As discussions progress, staff may identify infrastructure and equipment needs
for outfitting this alternate EOC. Staff is also investigating the cost and space requirements for
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storing emergency food and water supplies for employees during a disaster of varying lengths.
Staff received a preliminary report before the holidays on these issues from a specialized
consultant and will be analyzing the options for proceeding with this type of emergency supply
procurement.
The City must also update its plan every four years in accordance with State guidelines, The
update process requires a significant staff time commitment from numerous departments. This
process can also identify areas where disaster planning or training is deficient, leading to
requests for additional resources. The final plan will contain a section that outlines the multi-
year planning and budget strategy to address plan needs.
POLICY IMPLICATIONS
This report is consistent with existing City policies and with the Council’s designation of
emergency preparedness/planning as a top priority for 2006 and 2007.
ENVIRONMENTAL REVIEW
This is not a project requiting environmental review under the California Environmental Quality
Act (CEQA).
Attachment A:
Attachment B:
Attachment C:
Draft Emergency Operations Plan outline
Draft Council emergency protocols
Draft Community Partnerships section
PREPARED BY:
APPROVED BY:
CITY MANAGER APPROVAL:
Kelly Morariu
A/~sistant to the C}~anager
FIRE CHIEF
LYNNE JOHNSON
POLICE CHIEF
ASSISTANT CITY MANAGER
CMR: 144:07 Page 5 of 5
Attachment A
Emergency Operations Plan Outline (Draft)
Executive Summary
The executive summary will provide an overview ofPalo Alto’s Emergency Operations Plan
(EOP). The overview will include a brief summary of the organization and content of the Plan
and describe what it is, whom it affects, the circumstances under which it will be executed, and
recovery strategies that will be employed. The executive summary will also highlight sections of
special interest to the Council and community, such as the Council Protocol, Community
Partnerships, public awareness and education, notification and activation, and city
responsibilities.
II.Introduction
The introduction to the Emergency Operations Plan will explain the importance of an EOP to
Palo Alto and summarize key guidance that influenced the development of the plan. Of
particular importance in this section are the City’s responsibilities in disaster preparedness, an
overview of hazards facing Palo Alto, and how the EOP is organized. This section will also
include formal documents of promulgation and approvals, plain signatories and distribution list
documents, and a record of plan revisions.
A.Importance of EOP
B.City Responsibilities
C.Intended Audience
D.Planning Process
E.Preparedness Activities: Public Awareness and Education
F.Typical Adverse Conditions (all hazards, focusing on greatest threats to PA)
G.Intended Use of the Plan
H.Plan’s Architecture (how the plan is organized)
I.Promulgation and Approvals
J.Plan Signatories
K.Distribution List
L.Record of Revisions
III. Purpose and Assumptions
This section will discuss the purpose ofPalo Alto’s EOP and the applicable federal, state and
local guidance influencing the development of the EOP. It will emphasize the plan’s role in
addressing all hazards, particularly circumstances when normal, standard operations become
overwhelmed, and the plan’s focus on response and recovery strategies to restore essential
functions to a city during and after a disaster. It will also provide relevant background on Palo
Alto’s geographic setting and present a list of assumptions on which the plan’s organization and
focus are based.
Attachment A: Draft Emergency Operations Plan Outline
February 12, 2007 City Council Meeting
Page 1 of 7
Attachment A
Purpose
1.
2.
3.
4.
Federal and State guidance
NIMS/SEMS
Affirmation of City’s commitment to EOP planning
Overall Purpose of Planning
a. Addresses all-hazard threats
B. Assumptions
IV. Applicability and Scope
Palo Alto’s EOP applies to Palo Alto city government. It establishes the policies and structure
for city government’s management of emergencies and disasters. This section will discuss the
relationship of this plan to other plans in place in the city to handle emergencies. The EOP is
organized to prepare for the worst-case disaster scenario. The section will discuss the city’s
expectations for EOP performance time under various scenarios and review emergency scenarios
that the plan does not address or for which solutions are not currently available.
No
No
Applicability
1. Applicability of EOP to agency as a whole, as well as to specific
personnel and groups within the organization
Role of other related plans and their relationship to this plan
Distinguish EOP from these other plans
Scope
1.
2.
°
Scope--focus of planning efforts/worst case scenario.
City’s guidelines regarding plan performance (e.g., a response time of
xx hours for all emergency functions; emergencies that occur with and
without warning; during on-duty or off-duty hours)
Limitations of the EOP scenarios EOP does not cover or
vulnerabilities that have been identified in the planning process for
which solutions are not yet available
V. Hazards
Palo Alto’s geographic location and industrial and population distribution subject the city and its
residents and visitors to a variety of hazards--natural, technological and human-made hazards.
This section of the EOP focuses on seven hazards with a greater likelihood of occurrence in Palo
Alto-earthquake, flooding and dam failure, major wildland and urban fires, hazardous materials
incidents, civil disorder, terrorism/nuclear attack/acts of war, and heat. This section will also
address the impact and probability of a pandemic influenza or similar punic health emergency.
The basic organizational structure of this EOP will underlay the specific pandemic response
outlined in the City’s Pandemic Plan. Each hazard is discussed as a possible event occurring in
or around Palo Alto and includes a risk analysis.
No All hazards reviewed
1. Potential hazards (natural, human-related, pro-active/threats)
2. Severity of the impact of the hazard and the probability of occurrence
Attachment A: Draft Emergency Operations Plan Outline
February 12, 2007 City Council Meeting
Page 2 of 7
Attachment A
3. Proposed control and mitigation measures
B. Hazards with greatest probability of occurrence in Palo Alto included
VI. Authorities and References
Palo Alto’s Emergency Operations Plan is guided by federal, state and local legislation, plans
and agreements. All applicable authorities will be referenced in this section. Relevant sections
of these authorities and samples of Council emergency resolutions are included in the EOP
Annexes.
A.All supporting authorities and references that have assisted in the development of
the EOP.
B.Applicable federal, state or local ordinances that allow for the designation of
emergency.
C. Specific provisions that allow for the delegation of authority.
VII. Concept of Operations
This section will detail how Palo Alto will operate during the five phases of emergency
management prescribed by the federal government. The five phases are Prevention,
Preparedness, Response, Recovery and Mitigation. Palo Alto’s organizational model and
i~rocess is based upon the guidelines of the National Incident Management System (NIMS) and
the California Standardized Emergency Management System (SEMS) and parallels the
emergency organization structure in place in other cities, towns and counties in California and
across the country.
A special section has been added to this section to discuss Palo Alto’s special relationship with
its neighborhood organizations and volunteers, and community partnership relationshiPs with
non-profit organizations, medical and educational institutions and other affected agencies and the
private sector.
Phase I: Prevention:
A. Actions taken to avoid an incident or to intervene to stop one from ’occurring
Phase II: Preparedness:
A. EOP and Department Emergency Operations Plans in place to facilitate an
effective response
B. Community education and awareness programs
C. Training exercises
Phase III: Response:
A. Decision Process
B. Alert, Notification and Implementation Process
1.Internal
2.Public
C. Leadership/Continuity of Government
Attachment A: Draft Emergency Operations Plan Outline
February 12, 2007 City Council Meeting
Page 3 of 7
Attachment A
Do
1.Lines of Succession
2.Delegation of Authority
3.Alternate Seat of Government
4.Vital Records and Protection
SEMS-based Emergency Organization and Functions
1. SEMS functions
a. Management
b. Operations
c.Planning/Intelligence
d.Logistics
e.Finance/Administration
f.Operational Areas
2.Multi/Inter-Agency Coordination
3.Unified Command
4.Mutual Aid
5.Special Districts and Community Partnerships
a.Palo Alto Red Cross
b.PAUSD
c.Stanford University
d.Volunteers
e.Neighborhoods
f.SCVWD, PG&E, Hetch Hetchy
g.Palo Alto Airport
h.Hospitals (Stanford, Packard) and Clinics (PAMF)
i.Private Sector
6. Emergency Operations Centers
a.Purpose and Functions
b.Representation
c.Layout and Design
d.Message Center Operations
e.Alternate Facility
f.Activation and Deactivation
7. Response Information Management System (RIMS)
Phase IV: Recovery Operations
A. Introduction
B. Concept of Operations
1.Short Term
2.Long Term
C. SEMS Recovery Organization
1.Management
2.Operations
3.Planning/Intelligence
4.Logistics
5.Finance/Administration
D. Damage Assessment
Attachment A: Draft Emergency Operations Plan Outline
February 12, 2007 City Council Meeting
Page 4 of 7
Attachment A
1.Safety Concerns
2.Structural Damage
3.Recovery Activities
4.Structural Categories
E. Disaster Assistance
1. Individual Assistance
a.Government Assistance to Individuals
b.Non-profit volunteer charitable organizations
2.Public Assistance
a.State-Natural Disaster Assistance Act
b.Federal Stafford Act
F. Disaster Recovery Centers/One Stop Assistance Centers
Phase V: Mitigation
A.Identifying risks and taking action to reduce or eliminate these risks
B.Timing of mitigation: pre and post emergency
C.Forms of Mitigation
VIII. EOP Planning Responsibilities
This section will include EOP responsibilities throughout the organization. The Plan’s
emergency management staffing organizational structure will be identified with responsibilities
and lines of succession indicated.
A.Responsibilities for normal day-to-day program support
B.List of City position with description of duties/responsibilities
C.Red Ribbon Task Force and Successor
IX. Test, Training and Exercises
The objective of any Emergency Management Organization is efficient and timely response
during emergencies. A good plan is a first step toward that objective; however, planning alone
will not guarantee preparedness. Testing, Training and Exercises of the plan are essential at all
levels of government to make emergency operations personnel operationally ready.
The Palo Alto Fire Department is the lead department responsible for identifying training
required of City staff (including volunteers) under SEMS and NIMS regulations and shall
provide updates to other City departments and groups. All City departments with a public safety
mission or who are otherwise subject to such training requirements shall exchange information
on new training requirements and opportunities. Individual and team training, testing of
operations and emergency alert and notification procedures, and joint exercises with appropriate
other organizations are important components of a testing and training program and will be
delineated in this section.
Attachment A: Draft Emergency Operations Plan Outline
February 12, 2007 City Council Meeting
Page 5 of 7
Attachment A
X.Multi-Year Strategy Program Management Plan and Budget
The EOP is a living document that requires updating, maintenance and fine-tuning. Current and
future vulnerabilities need to be identified and addressed and a monitoring system put in place to
maintain plan timeliness and comprehensiveness. Palo Alto needs to make sure that the EOP is
maintained to stay current with advances and developments in disaster preparedness and
emergency operations. Forms, evacuation routes, maps and room and building designations also
need to be updated to reflect changes.
This section will identify a multi-year planning and budget strategy to address these and other
EOP plan needs.
A.EOP Maintenance: How Palo Alto plans to ensure that the EOP contains the most
current information
1. City’s maintenance strategy and tactics, including event-driven changes
and periodic reviews
2. Complete annual EOP review
B. EOP Maintenance Budget
Xl. Annexes
The Annex section of the EOP contains highly detailed and necessary information, either as
back-up material to what has already been presented in the body of the EOP or as further
reference material to aid in the implementation of the EOP. Most of the material is self-
explanatory. The Council Protocol is included in the Annexes.
A.Glossary: Definitions and Acronyms
B.Council Protocol
C.Operational Checklists
D.Hazards
E.Proclamations
F.Organization Charts
1.State
2.County/Special Districts
3.City
G. Emergency Functions
1.Federal
2.State
3.County
4.City
H. Evacuation Maps
1.Hazardous Materials
2.Flood
3.Fire
4.Earthquake
Maps
Attachment A: Draft Emergency Operations Plan Outline
February 12, 2007 City Council Meeting
Page 6 of 7
Attachment A
Jo
1. OES Mutual Aid Regions Map
2. Federal Regional Map
Hazard Mitigation Plan
Initial Damage Assessment Form
1. FEMA
2, State
Attachment A: Draft Emergency Operations Plan Outline
February 12, 2007 City Council Meeting
Page 7 of 7
Attachment B
Palo Alto Emergency Operations Plan
Council Protocol (Draft)
I.Introduction:
The City Council plays a critical leadership role in Palo Alto’s efforts to prepare for, respond to,
and recover from an emergency. The City of Palo Alto’s Emergency Operations Plan (EOP)
presents the Council’s leadership role. This protocol is designed to provide the City Council
with information needed to guide their actions in the event of an emergency in Palo Alto.
Responding effectively to emergencies requires informed and coordinated effort.
The protocol is organized as follows:
Applicability and Scope
Purpose and Assumptions
Authorities and References
Concept of Operations
-Emergency Organization
¯Council Leadership: Roles and Responsibilities
[]Emergency Activation, City Council Notification and Early Actions
[]Continuity of Government: Lines of Succession and the Emergency Standby Council
[]Recovery
Test, Training and Exercises
Council Role in EOP Maintenance/Budget
II.Applicability and Scope
This protocol applies to the City Council. It is intended to provide direction to the Council so
that Council members can fulfill their leadership role during an emergency as Palo Alto’s
governing body.
The protocol is aligned with Palo Alto’s Emergency Operations Plan (EOP). Palo Alto’s EOP
adopts an all-hazard approach for dealing with disasters and emergencies and focuses on the
preservation of life and property. The EOP identifies the City’s emergency planning,
organization, and response policies and procedures. It establishes an integrated management
system to ensure that disaster management will be carried out in a consistent manner. The EOP
meets the requirements of the Federal National Incident Management System (NIMS) and the
State of California Standardized Emergency Management System (SEMS). Compliance with
NIMS and SEMS is required for Palo Alto to be eligible to receive federal and.state funding for
preparedness, training, response, and recovery operations. The EOP also addresses the
integration and coordination with other governmental levels when required.
Attachment B: Draft Council Emergency Protocols
February 12, 2007 City Council Meeting
Page 1 of 9
Attachment B
IlI. Purpose and Assumptions
The purpose of this protocol is to provide the City Council with information needed to guide
their actions in the event of an emergency in Palo Alto.
Assumptions guiding this protocol are:
¯The City Council is the governing body of the City of Palo Alto during an emergency.
[]Some or all of the elected members of the City Council may not be available during an
emergency.
[]Special ordinances, policies and legislation will need to be enacted to ensure the
continuity of government operations and the protection of life and property during
emergency response and recovery.
[] Residents, the media and other community members and organizations have been and
will be important participants in Palo Alto’s emergency operations planning and
implementation. Effective communication with them will be a high priority.
IV. Authorities and References
Palo Alto’s Emergency Operations Plan is guided by federal, state and local legislation, plans
and agreements. These are referenced in the EOP and included in the EOP Annex. During an
emergency the City Council must make policy decisions and grant legal authority to ensure the
continuity of government operations. The California Government Code, Palo Alto Municipal
Code and the Brown Act provide specific legal authority to the City Council to assist them in
fulfilling this role. Relevant sections of these authorities and samples of emergency resolutions
are included in the EOP Annexes.
Specific authorities relevant to the City Council are as follows:
[]It is the City Council’s role to declare a local emergency or to ratify a local emergency that
has been declared by the Emergency Services Director. Council ratification must take place
within seven days of a declaration by the Emergency Services Director.
[]A declaration of a local emergency must be reviewed by the City Council at least every
fourteen days.
¯The City Council is legally responsible for declaring the end of the local emergency at the
"earliest possible date that conditions warrant" (California Government Code Sec. 8630).
[] The City Council has the obligation to promulgate or ratify other orders and regulations
necessary to protect life and property. Among them are, if necessary, the imposition of a
curfew, the suspension of automatic approval deadlines for all land use, subdivision and
zoning applications, and authorizing staff to register and swear-in spontaneous volunteers,
allowing the volunteers to be eligible for worker’s compensation benefits.
[]Brown Act requirements for special meetings apply during emergencies, except that the 24-
hour noticing and posting requirements are not required for an emergency meeting. However,
the local media must be notified by phone of emergency meetings at least one hour in
advance or at the time the members of the legislative body are notified.
Attachment B: Draft Council Emergency Protocols
February 12, 2007 City Council Meeting
Page 2 of 9
Attachment B
During and emergency meeting the council may only meet in closed session of 2/3 of the
legislative members agree, or if 2/3 of the members are not present, bu unanimous vote of the
members present.
V.Concept of Operations
This section of the protocol presents aspects of the implementation ~ofthe EOP particularly
relevant to the City Council. It provides the emergency organization, the context and the
structure within which the Council will be operating, and the Council’s roles and responsibilities
to ensure the continuity of government during emergency response and recovery.
A. Emergency Organization
Palo Alto’s EOP, like EOPs of other local and county jurisdictions in California and throughout
the country, is based on the Federal Emergency Management Agency and the California Office
of Emergency Services models. Compliance with federal and state models is required to be
eligible for state and federal disaster preparedness and recovery funding.
Palo Alto’s EOP is an operations manual designed to provide specific, step-by-step guidelines
during an emergency.
The Palo Alto Municipal Code (PAMC) establishes the position of Emergency Services Director
and designates the City Manager to fulfill that role. The PAMC also establishes the position of
Assistant Director of Emergency Services to be appointed by the Director. The EOP includes a
Palo Alto Emergency Management Staffing chart (see p.___)
B. Leadership: City Council Roles and Responsibilities
The City Council has a critical role in disaster management and the effort to return to normal
operations. During an emergency the council will need to:
¯Ratify and/or declare a local emergency and make other executive level policy decisions
as necessary and required for the management of emergency response and recovery.
-Provide support to the City Manger/Emergency Services Director and Emergency
Management Staff.
[]Work closely with the Emergency Services Director and the Public Communications
Manager/Public Information Officer (PIO) to provide accurate information to local
residents, the media and other officials, including visiting dignitaries.
¯Host and accompany VIPs and government officials on tours of the emergency area.
Coordinate such activities with the Director of Emergency Services and the PIO.
Serve as "eyes and ears" with the community, helping to ensure two-way communication
between emergency operations staff and residents throughout emergency response and
recovery.
Attachment B: Draft Council Emergency Protocols
February 12, 2007 City Council Meeting
Page 3 of 9
?
Attachment B
Communication is a key factor in emergency management. With the exception of its role as a
governing body there is no other more critical role for the members of the Council than as
communicatOrs.. The community deserves and expects to be informed and consulted before,
during and after an emergency. The manner in which a community is informed and consulted
directly affects whether the event is perceived as being handled successfully or not. As
communicators, Council members can reduce fear, anxiety and panic and promote calm,
confidence and trust. It is also important that members of the public get a clear and consistent
message that the emergency responders are taking appropriate action.
The Council’s main audiences during an emergency are residents, the media, and visiting
dignitaries and public officials from other agencies.Palo Alto’s strong partnership relationships
with non-profits, Stanford University, PAUSD, major medical facilities such as PAMF, Stanford
and Packard Hospitals, and the business community as well as active, well-organized
neighborhood associations provide a unique opportunity for the Council’s role as communication
leaders during emergency response and recovery.
The primary points of contact for the City Council in its role as communicators during an
emergency will be the Emergency Services Director and the Public Information Officer. It is
recommended that members of the City Council and the Emergency Standby Council receive
training in crises communication to assist them in this important role (See Test, Training and
Exercises).
NOTE: The Council should refrain from direct involvement with City Emergency Operations
Center (EOC) activities and coordinate their activities with the Emergency Services Director.
Council members will receive regular updates from the Emergency Services Director or his/her
designee to assist them in performing their leadership responsibilities.
C. Emergency Activation, City Council Notification and Early Actions
The following bullets summarize key activation and notification information for the Council
contained in the EOP.
¯Palo Alto’s EOP and Emergency Operations Center (EOC) are activated simultaneously
under any one of five conditions. These are outlined inthe EOP.
¯City Council members will be notified by phone by the City Manager’s or the City
Clerk’s office immediately upon EOP and EOC activation (see attached City Council
Emergency Notification Procedure). In the event that phone service is unavailable,
Council Members will receive personal notification at home or work by a Radio Amateur
Civil Emergency Services (RACES) team member. Council members are also
encouraged to listen to KZSU (90.1) for information on the event and make their own
decision to report to City Hall.
[]Upon notification City Council members are to report to the 7th Floor City Manager’s
Conference Room for a situational briefing and for further instructions. If the conference
Attachment B: Draft Council Emergency Protocols
February 12, 2007 City Council Meeting
Page 4 of 9
Attachment B
room is unavailable the Council will be directed to an alternate site when they are
initially notified.
[]The Council should meet as soon as possible in an emergency. The local media must be
notified of an emergency meeting by phone one hour in advance. A quorum of the
Council may take action. However, if less than a quorum of current Council Members is
available, Members of the Standby Council shall be appointed.
[]One of the first actions of the City Council may be to declare a local emergency or ratify
a local emergency already declared by the Emergency Services Director. A sample local
emergency resolution is included in the EOP. The City Attorney’s office will be present
to advise on this and other legal issues related to meetings, declarations and resolutions.
[]Depending on the emergency, the Council may also need to adopt other resolutions to
preserve public order and protect life and property. Brown Act, PAMC and California
Government Code references to meetings held in an emergency apply (See Authorities
and References, Section IV of this protocol).
¯Council members will be assigned to locations throughout the city to be available to local
residents and to serve as "eyes and ears" for the emergency operations staff. The nature
of the incident will determine the locations but they could include residential
neighborhoods, schools, parks, local organizations and businesses. Locations will be
provided to Council members during their initial briefing.
¯Radio communication for members of the Council will be provided by Radio Amateur
Civil Emergency Services (RACES) members who will team up with individual Council
members at the briefing site and accompanying them to the field site. Transportation will
be provided.
A City Council checklist to be followed in an emergency is attached to this protocol and included
in the EOP.
D.Continuity of Government: Lines of Succession and the Emergency Standby
Council
Individual City Council members may not be available to serve during an emergency. To
prepare for that eventuality and to ensure Palo Alto’s ability to respond in an emergency, lines of
succession are established and included in the EOP. California’s Office of Emergency Services
recommends lines of succession at least three deep to ensure the organization’s ability to manage
and direct essential operations.
Palo Alto’s Emergency Standby Council has been designated to fill lines of succession for the
City Council. Palo Alto’s Municipal Code Section 2.12.090 currently requires the City Council
to annually appoint seven former members of the City Council as the City’s Emergency Standby
Council. (Standby Council policy and PAMC ch. 2.12) - Attached
During an emergency, when a quorum of current City Council members is not available, the City
Council is required to constantly reconstitute itself to reach a Council of seven members (PAMC
Section 2.12.090). State law provides for appointments of Council Members in the event that all
Council or Standby Council Members are unavailable to serve. (See CA Government Code
8643-44). If only one member of the Council or one member of the Emergency Standby Council
Attachment B: Draft Council Emergency Protocols
February 12, 2007 City Council Meeting
Page 5 of 9
Attachment B
is available, that person shall have the power to reconstitute the City Council (CA Government
Code 8643). Should all members of the Council and the Emergency Standby Council be
unavailable, members to the City Council shall be appointed by the Chair of the Santa Clara
County Board of Supervisors, by the Chair of a nearby County Board of Supervisors, or by the
mayor of a nearby city, in that order.
The Emergency Services Director or designee will notify members of the Emergency Standby
Council of an emergency as soon as possible after the implementation of the EOP and the
activation of the EOC. Notification of the need for their services as Council members may be
made in the event that a quorum of current Council members is unavailable. Members of the
Emergency Standby Council shall be appointed to serve on the Council in order of their most
recent departure from the City Council.
It is recommended that the Emergency Standby Council receive appropriate orientation and
training for their role in an emergency.
E. Alternate Seat of Government
City Hall is the main seat of government for Palo Alto. If City Hall is unavailable during an
emergency, operations will shift to an alternate site. At this point two alternate sites have been
identified.
First Alternate:
Second Alternate:
Municipal Services Center
3201 E. Bayshore Road, Bldg. C
Palo Alto Cultural Center
1313 Newell Road
Other alternate sites may be more suitable depending on the emergency. Council members and
Emergency Standby Council members will be notified whether to report to City Hall. or to an
alternate site when notified of the emergency.
F. Recovery
Recovery refers to those measures undertaken by Palo Alto during and following a disaster or
emergency until all systems return to normal. A recovery operations organization, similar to the
emergency response organization, will be established. There are short-term and long-term
recovery goals and operations.
The City Council will continue to perform its policy and authority-granting role during recovery.
Examples of recovery roles include:
Review of short- and long-term recovery strategies;
Development and!or adjustment of policies and procedures to streamline the recovery
process (i.e. expediting building plan approval process, developing alternative building
code enforcement regulations).
Attachment B: Draft Council Emergency Protocols
February 12, 2007 City Council Meeting
Page 6 of 9
Attachment B
Initiation of formal requests for emergency government disaster relief and recovery of
operations funding; and
[]Continuing to play a key communications role with residents, business, media and
representatives of other agencies.
VI. Test, Training and Exercises
The objective of any emergency plan is efficient and timely response during emergencies. A
good plan is a first step toward that objective; however, planning alone will not guarantee
preparedness and effective execution of roles during an emergency. To this end, the Council will
participate in council-oriented EOP testing, training and exercises.
For Council members, familiarity with SEMS/NIMS and risk communications is critical to their
roles as leaders during emergency management. The City Council and the Emergency Standby
Council are currently required to take a modified version of the IS-700 NIMS overview course.
It is recommended that they take the full IS-700 NIMS course. Members of the Emergency
Standby Council should receive orientation and training on their specific r01e during an
emergency. It is also recommended that Council and Emergency Standby Council Members
receive training in crises communication. A valuable resource on effective emergency
communications strategies is the California Office of Emergency Services Risk Communication
Guide for State and Local Agencies, available on the OES website (www.oes.ca.gov).
VII. Council Role in EOP Plan Maintenance/Budget
The EOP is a living document that requires ongoing updating, maintenance and fine-tuning.
EOP Plan Maintenance is the responsibility of Palo Alto’s Office of Emergency Services. The
City Council will need to review and approve ongoing monitoring, tracking and updating
activities and a budget for plan maintenance.
Attachment B: Draft Council Emergency Protocols
February 12, 2007 City Council Meeting
Page 7 of 9
Attachment B
City Council Emergency Operations Checklist (Draft)
General Responsibilities:
Ratify and/or declare a local emergency.
Make other executive level policy decisions as necessary and required for the
management of emergency response and recovery.
Provide support to the Emergency Services Director and Emergency Management Staff.
Work closely with the Emergency Services Director and the Public Information Officer
to provide accurate information to local residents, the media and other officials, including
visiting dignitaries.
[]Upon request, host and accompany VIPs and government officials on tours of the
emergency area. Coordinate such activities with the Director of Emergency Services and
Public Information Officer.
Serve as "eyes and ears" with the community, helping to ensure two-way communication
between emergency operations staff and members of the community throughout
emergency response and recovery.
NOTE: Council members should refrain from direct involvement with Emergency Operations
Center (EOC) activities and coordinate their activities with the Emergency Services Director.
Members of the Council will receive.regular updates from the Emergency Services Director or
his/her designee to assist them in performing their leadership responsibilities.
Checklist of Activities during an Emergency:
After receiving notification of an emergency report to the 7th floor City Hall conference
room, or alternate location, for briefing and further instructions.
[] Call emergency meeting of the City Council to proclaim and!or ratify a local emergency.
In consultation with the Emergency Services Director and Emergency Management Staff,
develop and approve other resolutions to aid in the City’s response to the emergency and
maintenance of the continuity of operations.
Review the need for continuing the declaration of local emergency every 14 days and
proclaim the termination of the local emergency as conditions warrant.
[]Receive pairing with RACES team member who will provide radio communication
support for Council members.
Attachment B: Draft Council Emergency Protocols
February 12, 2007 City Council Meeting
Page 8 of 9
Attachment B
Accept assignment to locations in Palo Alto to serve as "eyes and ears" for residents,
business, schools and other organizations, and emergency operations staff.
Continue to receive briefings and updated information from the Director of Emergency
Services or designee.
Host and accompany VIPs and government officials on tours of the emergency/disaster
area as coordinated by the Director of Emergency Services or Public Information Officer.
Provide interviews to the media coordinated by the Director of Emergency Services or
the Public Information Officer.
Attachment B: Draft Council Emergency Protocols
February 12, 2007 City Council Meeting
Page 9 of 9
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12.
Attachanent 2
POLICY FOR APPOINTMENT OF EMERGENCY STANDBY COUNCIL
The City Council shall appoint the seven member Emergency Standby Council at the second regular
City Council meeting in January or as soon thereafter as possible.
The criteria that the City Council shall consider for appointments shall include: Residency in the City
of Palo Alto, availability, interest in serving and a lack of conflicts of interest.
Activation:
Emergency Standby Council Members shall be called to serve on the Council in order of most recent
departure from the City Council.
The Emergency Standby Council Members ("Emergency Council") shail be activated only following
a declared National, State or Local Emergency and when a majority of the City Council is
unavailable to serve and the urgent need for a City Council meeting arises.
The Emergency Standby Council will consist of a total of seven members which may include
available City Council members. Four members will constitute a quorum and be sufficient for all
actions to be taken.
The Emergency Standby COuncil Member shall only serve unless and until a majority of the City
Council is again available to serve.
In the event that the majority of Council Members are unavailable for an extended period of time, the
Standby Council Member shall continue to serve until the end of the missing member’s term or until
a majority of the City Council is again available to serve, whichever occurs first.
The Emergency Standby Council Members shall attend the City’s annual Emergency Training and
any additional training as deemed appropriate by the City Counci!.
Members of the Emergency Standby Council shall be appointed in order of their seniority with the
most recent Council Members being chosen first.
Each Emergency Standby Council Member shall be replaced by returning Council Members as they
become available. Those most recently on the Council shall depart the Emergency Standby Council
last.
Any tie for seating or departure shall first be resolved by the selection of those serving two terms. In
the event of a continued tie the tie shall be resolved by drawing straws. The straws are to be drawn
by the highest ranking available City Council Member or any available CAO if no Council Members
are available.
Minutes of all City Council meetings shall be sent to all members of the Emergency Standby Council.
All Members of the Emergenc)i Council are expected to keep themselves apprised of current City
issues.
Emergency Standby Council Members shall be sworn in at the first meeting at which they are called
to serve.
060103 sm0110348
Attachment C
VII. Concept of Operations
III. D. 5. Community Partners & Special Districts
Proposed New Outline:
1. Community Partnership Goals & Policy
Affiliated Volunteers (Disaster Service Workers)
City & Government-sponsored Citizen Corps Programs:
rn Palo Alto Fire Department Programs: PANDA (CERT)
[] Palo Alto Police Department Programs: VIPS, NWP, Animal Services
Non-governmental & Private Citizen Corps Participants:
n ARES/RACES
c~Palo Alto Red Cross
a Neighborhood Organizations
3. Private Sector & Business Community
Special Districts & Cooperating Entities/Agencies
Schools, Universities & Educational Institutions
o PAUSD
o Private Schools
o Stanford University
Airports & Transportation
o Palo Alto Airport
o VTA
o SamTrans
¯Hospitals & Clinics:
o Stanford
o Palo Alto Medical Foundation (PAMF)
o Veterans Administration
¯Utilities, Water
¯Government Agencies
5. Spontaneous Disaster Volunteers
Attachment C: Draft Community Partnerships section
February 12, 2007 City Council Meeting
Page 1 of 19
Attachment C
DRAFT: COMMUNITY PARTNERSHIP GOALS & POLICY
It is the policy of the City of Palo Alto to build a resilient community. "Community" is
defined in the broadest, most inclusive sense, encompassing residents, community based
organizations (CBOs), non-governmental organizations (NGOs), the private sector,
public and private educational institutions, faith-based communities, and other entities.
The City will work to build a resilient community by engaging and collaborating with
these partners in all phases of disaster management.
Attachment C: Draft Community Partnerships section
February 12, 2007 City Council Meeting
Page 2 of 19
Attachment C
Affiliated Volunteers (Disaster Service Workers)
According to the California State Office of Emergency Services1:
Ongoing disaster volunteer programs benefit both the local government and residents
by promoting disaster preparedness and establishing a cooperative response role
between .area agencies and local volunteers. The following are disaster preparedness
activities that volunteers have performed in similar programs:
n Conduct disaster preparedness presentations for community groups,
n Organize neighborhood preparedness groups,
[] Assist and participate in planning and drills/exercises for cities and schools,
n Catalog and maintain disaster resource lists, supplies, and equipment,
[] Organize and staff community disaster preparedness expositions,
[] Assist local schools, businesses, hospitals, and retirement homes update their
disaster plans, and
[] Conduct outreach to disseminate disaster preparedness information to the
community.
The use of volunteers in a disaster or for certain public safety related tasks is governed by
various laws and regulations. In particular, the California Emergency Services Act
provides a framework for how local governments can use volunteers and provides certain
liability protections for both the volunteers and the government agencies.
The City strives to build policies for the use of volunteers per the California Governor’s
Office of Emergency Services (OES) Disaster Services Worker Volunteer Program
(DSWVP) guidance and other applicable laws and regulations, as an accredited disaster
council organization. The City of Palo Alto Disaster Council was accredited on June 24,
1947.
A Disaster Service Worker (DSW) is defined in California Labor Code § 3211.92:
"Disaster Service Worker: Disaster service worker means any natural person who is
registered with an accredited disaster council or a state agency for the purpose of
engaging in disaster service pursuant to the California Emergency Services Act without
pay or other consideration. Disaster service worker includes public employees
performing disaster work that is outside the course and scope of their regular employment
without pay and also includes any unregistered person (volunteer) impressed into service
during a state of war emergency, a state of emergency, or a local emergency by a person
having authority to command the aid of citizens in the execution of his or her duties."
The current standard ciassifications2 for Disaster Service Worker volunteers are:
[]Animal Rescue [Police Animal Services]
n Care & Shelter
[]Laborer
n Communications [ARES/RACES, ACS]
~Law Enforcement [VIPs, Neighborhood Watch]
1 CA OES "They Will Come" p. 27.
2 CA OES "They Will Come" p. 60, citing Cal. Gov’t Code § 2572.1.
Attachment C: Draft Community Partnerships section
February 12, 2007 City Council Meeting
Page 3 of 19
Attachment C
c~Community Emergency Response Team Member [CERT/PANDA]
o Logistics
o Medical & Environmental Health
[]Finance & Administrative Staff
a Safety Assessment Inspector
a Human Services [including Shelters and VOlunteer Centersl
n Search & Rescue
[]Fire
[]Utilities
Registered DSWs are officially covered by state workers compensation during the
following activities:
c~Disaster service training related to their intended service as a DSW volunteer--
[]Disaster response and relief activities authorized and directed by their hiring
authority, and
a Travel to and from an actual disaster service assignment.
Coverage does not include travel to and from disaster service training. In addition, so
called "Good Samaritan" laws protect both City and volunteer Disaster Service Workers
from civil damages arising from the performance of disaster services.
Currently, the City of Palo Alto only has two groups that qualify as DSWs,
PANDA/CERT and ARES/RACES. The City utilizes DSW volunteers in all phases of
disaster management and thereby partners with the community. It is important to note
that DSWs must be sworn in and take the oath or affirmation of allegiance. They must
also be U.S. citizens. The City will continually seek to improve its volunteer programs
by evaluating best practices from other jurisdictions and adjust to legal or other changes
as they arise. The City’s fundamental message to volunteers is "We Want You."
The key elements to a successful DSW volunteer program include:
[] Volunteers are appreciated and valued: The City allocates appropriate resources
to the management and fostering of volunteer programs.
[] Volunteers are typed and credentialed: The City shall provide volunteers with
roles or classifications ("NIMS typing") and shall provide appropriate credentials
(ID cards, etc.).
[] Volunteers are utilized: Routine use of volunteers in City events provides an
Opportunity for skill-building and establishment of working relationships with
paid staff.
The City has a long and proud tradition of utilizing volunteers in various programs and
roles. In a disaster, such volunteers will be a precious resource. The City of Palo Alto
has a number of core disaster-related volunteer programs, such as:
[] Palo Alto Fire Department’s Palo Alto Neighborhood Disaster Activities
(PANDA) (a Community Emergency Response Team (CERT)), program has
more than 550 trained and active volunteers.
Attachment C: Draft Community Partnerships section
February 12, 2007 City Council Meeting
Page 4 of 19
Attachment C
The Police Department Volunteer Program is registered with the national
Volunteers in Police Service (VIPS) has 20 active volunteers, and more than 250
alumni of the Citizen’s Police Academy conducted as part of the PAPD
Neighborhood Watch Program.
City & Government-Sponsored Citizen Corps Programs
Amateur Radio Emergency Service / Radio Amateur Civil Emergency Service
(ARES/RACES):
The Amateur Radio Emergency Service (ARES/RACES) is.a group of Federally licensed
Amateur Radio (slang = "ham radio") operators who volunteer their skills to assist public
safety agencies in the event of a disaster or other incident. During calamities such as
earthquakes and hurricanes, the Amateur Radio Emergency Service has typically been
among the first to respond, filling the communications void left by downed telephone
lines and power outages - quickly linking and coordinating relief efforts. These activities
are an integral part of the purpose of Amateur Radio as defined by the Federal
Communications Commission (FCC § 97.1(a); § 97.401(a)).
Amateur Radio operators must pass a Federal examination and be issued a Federal
license, which grants them "operating privileges" - such as the right to use high power
transmitters (over a thousand watts), different modes (such as voice, Morse code, and
even television), and thousands of frequencies. Furthermore, those Amateur Radio
operators who are members of ARES/RACES are trained in emergency commumcations
(and related skills) and are Registered Disaster Service Workers (DSWs). Members of
ARES/RACES have very diverse backgrounds - but share the common goal of assisting
when called upon by their communities.
How Does the Amateur Radio Emergency Service Assist Local Agencies?
Statewide, Amateur Radio is integrated into the California Office of Emergency Services
(CA OES) Auxiliary Communications Service (ACS) and the Standardized Emergency
Management System (SEMS) (Cal. Gov’t Code § 8607). In the event of a disaster,
ARES/RACES Emergency Responders perform a number of tasks to assist local fire, law
enforcement, and other public service agencies:
¯Back-Up Emergency Communications: Most public service communications today
are heavily reliant upon land-line telephone, cellular telephone, and fax systems to
conduct routine operations. In disasters such as earthquakes (or even power-outages),
these systems fail. Subsequently, police, fire, and other public service radio channels
become rapidly saturated. ARES/RACES Emergency Responders are capable of
providing such agencies with a complete back-up radio communications system with
many additional channels. Furthermore, ARES/RACES is capable of using radio
frequencies instead of phone lines to transmit computer data (through radio modems,
a.k.a. "packet radio"). Agencies may also give ARES/RACES personnel permission
to use police/fire/etc, channels.
Attachment C: Draft Community Partnerships section
February 12, 2007 City Council Meeting
Page 5 of 19
Attachment C
Inter-Agency Communications: Most agencies have dedicated frequencies and radios
¯ that operate only on those frequencies. ARES/RACES members can be assigned to
"shadow" key people at different agencies’ operations centers and in the field to allow
inter-agency communication when the agencies are not able to communicate through
normal channels. Furthermore, because of the special frequency and power-output
privileges Amateur Radio Operators have, direct links ean be established to locations
out of range of normal public safety radios (such as California State OES in
Sacramento or FEMA in Washington, D.C.).
Health and Welfare Information: ARES/RACES members can collect and transmit
health and welfare messages to the Red Cross and out-of-area family members on
behalf of emergency workers and people in the community, freeing personnel to
concentrate on priority matters.
Simulated Emergency Tests: To maintain operator skill and to develop working
relationships with the agencies they serve, ARES/RACES Emergency Responders
participate in various disaster drills, exercises, and related activities.
Communi _ty Events: In non-emergencies, ARES/RACES volunteers may assist local
authorities by providing supplemental communications for various local events such
as parades. ARES/RACES Emergency Responders also volunteer for special duty to
supplement local agency operations.
Ham radio volunteers involved in Palo Alto response include:
[]Palo Alto ARES/RACES (also serving the Palo Alto Red Cross)
n Stanford University ARES/RACES: www-w6yx.stanford.edu
[]Santa Clara County ARES/RACES: www.scc-ares-races.org/aresraces.htm
Activation procedures for ARES/RACES are kept in the Palo Alto Communications
(Dispatch) Center, the Palo Alto EOC, and the Stanford Department of Public Safety.
The Palo Alto Office of Emergency Services maintains these activation procedures and
asks the communications centers to make notifications.
ARES/RACES volunteers are assigned to EOC, field operation centers and command
posts, as well as other areas. They also serve as liaisons for the City Council in their
community outreach role. This involves touring affected community areas and reporting
back to the Emergency Services Director (ESD). The ARES/RACES volunteers provide
the key link between the Council and the ESD. The volunteers will also play a key role
in the notification process of the Council and key staff in disaster situations. This
procedures is outlined in the Council emergency protocols.
As served agencies from other jurisdictions assist Palo Alto, their ARES/RACES
volunteers will also be involved. For example, ham radio operators from the Menlo Park
Fire District and the Woodside Fire Protection District could be sent as resources to the
City. For this reason, inter-jurisdictional training of volunteers as well as employee-staff
is prudent.
Attachment C: Draft Community Partnerships section
February 12, 2007 City Council Meeting
Page 6 of 19
Attachment C
+AmericanRed’Cross Red Cross:
PaloAIto Area Chap~:er
The Palo Alto Area Chapter of the American Red Cross (PAARC) is an Operational
Partner with the City of Palo Alto and is represented in the City EOC.
The role of the Red Cross in a disaster includes:
¯ Information and assistance in family unification.
¯ Food and lodging.
¯ Public telephones.
¯ Medical aid and crisis counseling.
The American Red Cross, as the manager for congregate care centers (shelters) will
provide the follgwing:
¯ Register evacuees.
° Provide food, water, lodging, and sanitation facilities.
¯ Provide medical aid.
¯ Assist with disaster welfare inquiries (DWI).
° Provide public telephone (telecom) services.
See also: EOC Position Checklist: "Care & Shelter Unit Leader"
NEIGHBORHOOD ORGANIZATIONS
The City of Palo Alto isfortunate to have residents who are above par in both skills and
their sense of community. This, combined with the community’s desire to be involved in
public safety, presents an opportunity for the City of Palo Alto to be aptly prepared for a
range of natural and other disasters.
The Palo Alto Neighborhoods (PAN; www.paneighborhoods.com) formed the PAN
Emergency Preparedness Committee. This Committee has been named as the
"Community Subcommittee" for the Palo Alto / Stanford Red Ribbon Task Force on
Disaster Preparedness (RRTF). While many details of PAN (and the RRTF) input to the
City are pending, there is agreement on some core themes. Specifically, there is a desire
of the part of residents to work with the City so that residents are an asset, rather than de
facto victims, in the event of a disaster.
The National Crime Prevention Council3 has summarized these concepts:
[]’!People need to understand the roles of individuals and community groups vs.
professionals."
3 National Crime Prevention Council, "Crime Prevention Can Spur and Support Homeland Security in
Neighborhoods and Communities", Nov. 2003; available on www.ncpc.org.
Attachment C: Draft Community Partnerships section
February 12, 2007 City Council Meeting
Page 7 of 19
Attachment C
"Residents need to be accessible through neighborhood/block level networks that
provide formal and informal communication."
"Securing our homeland is only possible through partnerships .... The future of
crime prevention and homeland security lies in community mobilization and
volunteerism."
One of the key action items for future discussion by the RRTF is the role of the Citizen
Corps Council (CCC). The current Citizens Corps Council is structured on an
information-sharing model, with scheduled speakers and discussion among members,
none of whom have any obligation to attend on a regular basis.
Attachment C: Draft Community Partnerships section
February 12, 2007 City Council Meeting
Page 8 of 19
Attachment C
PRIVATE SECTOR & BUSINESS COMMUNITY
According to the Federal government, over 85 percent of critical infrastructure in the U.S.
is owned and operated by.the private sector.4 Private sector emergency management
activities have not been integrated with existing governmental preparedness programs,
which are focused on government-to-government relations. Much of the state’s critical
infrastructure from telecommunications to transportation is operated by the private sector.
However, governmental entities have not developed the necessary formal relationships
with the private sector to monitor the status of these important lifelines during disasters
and to focus resources on their restoration which is essential to the well-being of the
general public.
In 2005, the California legislature enacted a new law, providing guidance to government
agencies and the private sector with regard to disasters. These principles create the
foundation of how Palo Alto strives to interact with its business community around
disaster preparedness issues:
1)Provide guidance to business and nonprofit organizations representing business
interests on how to integrate private sector emergency preparedness measures into
governmental disaster planning programs.
2)Conduct outreach programs to encourage business to work with government and
community associations to better prepare the community and their employees to
survive and recover from disasters.
3)Develop systems so that government, businesses, and employees can exchange
information during disasters to protect themselves and their families.
4)Develop programs so that businesses and government can work cooperatively to
advance technology that will protect the public during disasters.
The February 26, 2006, White House report, The Federal Response to Hurricane Katrina:
Lessons Learned, stated:
"The Federal government should recognize that the private/non-government sectors often
perform certain functions more efficiently and effectively than government because of
the expertise and experience in applying successful business .models. These public-
private partnerships should be facilitated, recognized, funded [and]... the capability to
draw on these resources should inform and be part of Federal, State, and local logistics
systems and response plans.’’5
This report’s key recommendation is that government Emergency Operation Centers
(EOCs) explicitly link to the private sector. The private sector, for its part, is to establish
parallel structures, referred to as "Business Operation Centers (BOCs)" that can plug-in
to government EOCs.
See, e.g., U.S. National Strategy for Pandemic Influenza: Implementation Plan, available on
http://www.whitehouse.gov/homeland/pandemic-influenza-implementation.html
www.whitehouse.gov/reports/katrina-lessons-learned
Attachment C: Draft Community Partnerships section
February 12, 2007 City Council Meeting
Page 9 of 19
Attachment C
Business Executives for National Security (BENS, www.bens.org) is a non-profit that is
working to improve legal and structural frameworks for government-private sector
collaboration in disaster response and recovery. BENS has a new, local initiative known
as "Bay Area Business Force" (www.businessforce.org) in which the City of Palo Alto is
represented.
The Palo Alto Chamber of Commerce and several other local businesses are also
involved in the RRTF and will work with the City to determine best practices for such
topics.
[Placeholder for partnerships with local businesses this is
one area that will require significant additional staff emphasis.
The City’s business base possesses key resources, e.g. facilities
and supplies that could be utilized in a disaster. Establishing
relationships before a disaster is key to the successful
implementation of these partnerships.]
Attachment C: Draft Community Partnerships section
February 12, 2007 City Council Meeting
Page 10 of 19
Attachment C
SPECIAL DISTRICTS & COOPERATING
ENTITIES/AGENCIES
SPECIAL DISTRICTS (from CA OES Municipal EOP Plan-Writing Guide)
The EOP should indicate the inclusion of special districts. Special
Districts may be grouped together by the functions they were designed
to perform, such as water purveyors, electric providers, schools, etc.
The EOP should indicate whether a special district would be included in
an operational area, city, and/or regional EOC. Some districts may need
to be represented at all levels. Also there are some state agencies that
may be treated in the same manner as special districts, such as state
colleges and!or universities.
The EOP should also identify protocols for special districts to facilitate
communications and maximize resources during emergency operations.
Schools, Universities & Educational Institutions
Palo Alto Unified School District (PAUSD):
PAUSD is the public school district serving Palo Alto and certain neighboring
communities such as Los Altos Hills.
PAUSD maintains its own emergency plans, EOC, and even has hired private security
guards.
In a major disaster, PAUSD would cooperate with the City of Palo Alto to:
~secure school facilities to protect lives and property
~reunite students with families
c~offer PAUSD resources to the City, such as buildings
[Piaceholder for discussion of alternate EOC - staff is currently discussing
options for co-location of an alternate EOC with PAUSD staff]
The California Education Code establishes that "the governing board of any school
district shall grant the use of school buildings, grounds, and equipment to public
agencies, including the American Red Cross, for emergencies affecting the public health
and welfare." [Cal. Education Code § 40041.5]
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Attachment C
Private Schools:
There are numerous private schools in Palo Alto. They should coordinate with the
Citizen Corps to integrate their emergency plans and ensure they are included in City
plans.
[Placeholder for expanded discussion of established relationships
with private schools]
Stanford University:
Palo Alto and Stanford University have an interwoven history and, to this day, have many
operational interdependencies. For example, the Palo Alto Fire Department provides
fire/EMS services to the University under contract. Similarly, Stanford Department of
Public Safety (Stanford Police) is dispatched by Palo Alto’s Communications Center.
Furthermore, the Palo Alto Police Department has primary law enforcement jurisdiction
over large amounts of Stanford lands, including the Stanford Medical Center (Hospital),
the Stanford Shopping Center, and the Stanford Research Park.
Traditional concepts of jurisdiction are impractical when discussing Stanford and Palo
Alto. For example, the Palo Alto Police Department is the primary law enforcement
response agency for many Stanford properties. Similarly, the Palo Alto Fire Department
covers all local Stanford lands, including those beyond City or County limits, such as the
Stanford Linear Accelerator Center (SLAC) in San Mateo County.
University-sponsored and City-sponsored special events such as football games or
dignitary visits require routine coordination.
In the event of a disaster, the University and the City each set up their own EOC.
However, because of PAPD and PAFD services to the University, Palo Alto’s EOC will
play a major role.
Stanford University’s EOC reports to the Santa Clara County Op-Area as a private entity.
The EOC also coordinates with the Palo Alto EOC, since the City is the fire and medical
response agency for Stanford.
Communications are provided by the Stanford University ARES/RACES group.
[Placeholder for expanded discussion]
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February 12, 2007 City Council Meeting
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Attachment C
Airports & Transportation
Palo Alto Airport:
The Palo Alto Airport (PAO) is a special district that could be a major resource to the
City in the event of a disaster.
While PAO is not large enough to land large fixed-wing aircraft, it is possible to use it for
dropping supplies or landing helicopters.
Stanford’s Life Flight helicopter refuels/re-supplies at PAO, for example.
PAO is home to the Palo Alto branch of the Civil Air Patrol (CAP). CAP can provide
aircraft for reconnaissance to survey damage after an earthquake, for example. CAP
missions can be under State or Federal authority (liaison to FEMA).
PAO is one of only five airports in Santa Clara County:
~International Airport in San Jose
[]South County Airport in unincorporated San Martin
~Reid-Hillview Airport in San Jose
~Moffett Federal Airfield in Mountain View
Caitrain:
Caltrain is a multi-jurisdictional passenger rail service. Stations in Palo Alto include
downtown Palo Alto, Stanford (Embarcadero), and California Avenue.
Law enforcement for Caltrain is provided by the San Mateo County Sheriff Transit Unit.
AMTRAK Police are also operational in the area.
Valley Transportation Agency (VTA):
VTA provides bus service throughout Santa Clara County.
SamTrans:
SamTrans is an agency similar to VTA, serving San Mateo County and Paio Alto.
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February 12, 2007 City Council Meeting
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Attachment C
Hospitals & Clinics
The coordination and deployment of emergency medical services (EMS) and care
facilities are generally facilitated at a regional level. One such key plan that the City
participates in is the Santa Clara Operational Area Disaster Medical/Health Plan:
"This plan is activated when County Office of Emergency Services (OES), County
Communications, or any City, Town, or Special District alerts the Health Officer that
medical resources are overwhelmed.’’6
Palo Alto staff (viz., EOC positions "Disaster Medical Unit Leader" and "Public Health")
involved in these topics should be familiar with state and local agencies such as:
[]Emergency Medical Services Authority (EMSA): www.emsa.ca.gov
a Santa Clara County Public Health Department: www.sccgov.org
Stanford University Medical Center (Stanford Hospital): Stanford Hospital provides the
primary emergency room and surgical resource to Pal o Alto.
Lucile Packard Children’s Hospital (LPCH) provides care to babies, children, adolescents
and expectant mothers.
Hoover Pavillion: This complex originally served as the "Palo Alto Hospital" and
currently provides housing for Stanford Hospital and School of Medicine programs,
including th~ Stanford Prevention Research Center. It is also a designated ambulance
staging area.
Palo Alto Medical Foundation (PAMF): The Palo Alto Medical Foundation provides
outpatient and consulting medical care. PAMF has a large main campus adjacent to
Stanford campus, as well as numerous other facilities in Portola Valley, Menlo Park, Los
Altos, and Fremont.
Surgicenter of Palo Alto: The Surgicenter provides limited outpatient surgical
capabilities.
Stanford Blood Center: Part of the Stanford School of Medicine, the Stanford Blood
Center (b!ood bank) provides blood (and related plasma and blood products) to medical
centers.
Valley Medical Center: Although not in the City limits, VMC provides medical services
for the Palo Alto Police Department and other law enforcement agencies in obtaining
clearances for prisoners.
Veterans Administration (Pal0 Alto and Menlo Park facilities): The VA Palo Alto Health
Care System provides medical services to U.S. military veterans and other customers. A
Federal agency, the VA system in Palo Alto is part of a network of facilities also located
6 http://www.emsa.ca.gov/dms2/sccdmhp.pd f
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Attachment C
in Menlo Park and Livermore. The VA Police provide primary law enforcement for
those facilities.
Emergency communications for hospitals, clinics, and other such facilities are provided
by ARES/RACES as Well as certain private telecom networks.
Utilities & Water
The City purchases its water from the San Francisco Water Department’s Hetch-Hetchy
System transported from the Sierra Nevada Mountains: In addition, Palo Alto has its own
well system for peak demand or emergency water supply needs.
Water Sources
Nearly 85% of the water delivered to Palo Alto by the San Francisco Public Utilities
Commission (SFPUC) originates from high Sierra snow melt in 459 square miles of
protected Yosemite National Park watershed land. This pure water is stored in the Hetch-
Hetchy Reservoir near the Yosemite Valley, about 120 miles away. It is delivered to the
Bay Area through a series of tunnels and pipelines. About 15% of Palo Alto’s water
comes from the Calaveras and San Antonio Reservoirs located in Alameda and Santa
Clara counties. Palo Alto is a member of the Bay Area Water Supply and Conservation
Agency (BAWSCA).
Gas & Electricity
The City of Palo Alto Utilities (CPAU) is the only municipal utility in California that
operates city-owned utility services that include electric, fiber optic, natural gas, water
and wastewater services. It is a City Department, but is reliant upon numerous other
entities for its operations, including:
~The "power grid" and the CA Independent System Operator (ISO)
~a Pacific Gas & Electric (PG&E)
~Shiloh Wind Project in Solano County, CA
a PVUSA (Photovoltaic for Utility Scale Applications) in Davis, CA
a Bishop Ranch Solar in San Ramon, CA
c~Alameda County Fairgrounds in Pleasanton, CA
Waterways, Sewage, and Wastewater
The Regional Water Quality Control Plant (RWQCP) treats wastewater from the East
Palo Alto Sanitary District, Los Altos, Los Altos Hills, Mountain View, Palo Alto, and
Stanford.
Palo Alto also is a member of the Joint Powers Agreement (JPA) covering the San
Francisquito Creek, which flows through two counties (Santa Clara and San Mateo) and
five municipalities: Menlo Park, Palo Alto, East Palo Alto, Portola Valley, and
Woodside.
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February 12, 2007 City Council Meeting
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Attachment C
The City’s Utilities and Public Works Departments maintain departmental operations
plans that outline City response to issues dealing with gas, electric, water, wastewater and
storm drain emergency services.
¯ Government First Responder Agencies with Routine Nexus to Palo Alto
Because of the topography and jurisdictional layout of the mid-peninsula, a large number
of first-responder jurisdictions have response responsibilities, in a primary or support
capacity, to Palo Alto, including, but not limited to:
[]Atherton Police Department
[]California Department ofFish & Game
[]California Department of Forestry (CDF)
[]California Highway Patrol (CHP)
[]California State Parks
[]Los Altos Police Department
[]Menlo Park Fire Protection District
[]Menlo Park Police Department
[]Midpeninsula Regional Open Space District (MPROSD)
[]Mountain View Police Department
[]Mountain View Fire Department
[]San Mateo County Fire
[]San Mateo County Sheriff
[]Santa Clara County Fire
a Santa Clara County Sheriff
[]Stanford University DPS
[]Sunnyvale Department of Public Safety
[]Woodside Fire Protection District
In addition to nominal mutual aid protocols, Palo Alto also participates in multi-agency
teams such as:
c~ Palo Alto Mountain View SWAT Team
[]Urban Search and Rescue (USAR) Team (based at Menlo Park Fire Protection
District)
The City maintains mutual aid and automatic aid agreements with these agencies,
establishing key response partnerships.
[Placeholder for expanded discussion]
California Department of Forestry (CDF)
Many portions of the Foothills rely on the CDF for primary fire response. The CDF
section that serves this area is known as the "San Mateo & Santa Cruz Unit (CZU)."
Foothills with the City of Palo Alto fall under the jurisdiction of the Palo Alto Fire
Department.
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February 12, 2007 City Council Meeting
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Attachment C
The CDF CZU Fire Response Plan is posted on:
http://www.fire.ca.gov/FireEmergencyResponse/FirePlardpdf/SanMateo_SC.pdf
Per this Plan, Palo Alto, along with a number of other agencies, participate in an Auto-
Aid Agreement with CDF.
NIidpeninsula Regional Open Space District (MPROSD)
The Midpeninsula Regional Open Space District (MPROSD) is a joint-powers authority
that has a number of preserves in or near Palo Alto. MPROSD has rangers who patrol
these areas. They are dispatched by Mountain View P.D. (9 prefix, such as 9-L-20) on a
VHF channel. MPROSD rangers have certain law enforcement powers and also carry
fire fighting equipment.
Their Skyline Office is located on the west side of Skyline immediately south of the
intersection with Page Mill Road: 650-949-1848. More info on www.openspace.org.
In the event of a large wildfire or other disaster, it is important to note that certain
important City infrastructure elements are in the Foothills in areas patrolled by
MPROSD, including telecommunications towers/repeaters (for PAPD, PAFD, cell and
other radio systems on Montebello Rd) and water supply tanks.
MPROSD has conducted joint fire watches with PAFD and ARES/RACES (Stanford and
Palo Alto), for example, on the Independence Day (4tu of July) Holiday.
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February 12, 2007 City Council Meeting
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SPONTANEOUS VOLUNTEERS
Attachment C
Spontaneous volunteers (also called "emergent volunteers’, or "spontaneous unaffiliated
volunteers") are those persons who are not affiliated with a government or certified non-
government program.
For example, a major earthquake occurs. Mary Smith is a trained bulldozer driver.
However, she is at home in Palo Alto and not able (or needed) to go to her job with a
private road construction company. Mary is not registered with the City, the Red Cross
or any other volunteer program or group. Yet, Mary wants to help.
The County of Santa Clara, in collaboration with local government jurisdictions and the
Volunteer Center of Silicon Valley (VCSV; www.vcsv.us), has developed a coordinated
plan to allow people like Mary to assist. This Countywide Plan for Coordinating
Spontaneous Volunteers calls for the establishment of regional Emergency Volunteer
Centers (EVCs) (Palo Alto falls in the North County region, which also includes
Mountain View, Sunnyvale, Los Altos, and Los Altos Hills). The City has signed a
MOU to operate an Emergency Volunteer Center when the County cannot.
The EVC can be activated by local jurisdictions or "rolled over" for County-wide
coordination, depending on the nature of the event. EVC operations are conducted in
compliance with SEMS, ICS, NIMS, and other pertinent regulations.
The City’s Emergency Volunteer Center plan addresses the fact that in the event of a
major disaster in the Santa Clara County, the following assumptions can be made:
The Volunteer Center and local government organizations may suffer injuries to
personnel, property loss, and impairment to utilities and communications
systems.
Emergency services (police, fire, ambulance) may not be available for up to 72
hours, or even longer.
Many people in the community, desiring to help, will come forward and offer
their time and talents. City hall is often the first place they will come to offer
help.
Responding agencies and organizations will require competent assistance in
order to meet community needs. These agencies are likely to include:
¯local governments, e.g., cities, county, special districts
¯traditional disaster relief agencies, e.g., Red Cross, Salvation Army, Food
Bank
[]public health organizations
¯community-based organizations, especially those that serve vulnerable
populations
[] groups not previously known or involved in disaster preparedness/response
There can also be cases where spontaneous volunteers appear at a scene to assist. In such
circumstances, it may not be practicable to register such volunteers. Those volunteers
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Attachment C
would not necessarily be covered by the Disaster Service Worker Volunteer Program, but
can be entitled to certain protections such as "Good Samaritan" laws.
Similarly, certain government workers (such as police officers and firefighters) have the
legal power to order bystanders to assist them.7 These "commandeered volunteers"
should be logged and the information relayed to the Logistics Section, Personnel Unit as
soon as practical. If the commandeered individual is injured, the City Attorney should be
notified.
Ideally, the City seeks to have as many volunteers to be registered in advance, as opposed
to relying on walk-in, spontaneous volunteers, since affiliated volunteers (also called
"convergent trained volunteers") tend to be better trained and coordinated.
v See, e.g., § 150 of the Cal. Penal Code.
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February 12, 2007 City Council Meeting
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