HomeMy WebLinkAboutStaff Report 6417
City of Palo Alto (ID # 6417)
City Council Staff Report
Report Type: Consent Calendar Meeting Date: 1/11/2016
City of Palo Alto Page 1
Council Priority: Emergency Preparedness
Summary Title: Adoption of Emergency Operations Plan
Title: Adoption of the City of Palo Alto Emergency Operations Plan (EOP) and
Update of Membership of the Palo Alto/Stanford Citizen Corps Council
From: City Manager
Lead Department: Office of Emergency Services
Recommendation
Staff requests that the City Council 1) adopt by Resolution the enclosed updated City of Palo
Alto Emergency Operations Plan (EOP); and 2) consent to the updated Palo Alto/Stanford
Citizen Corps Council (CCC) membership list.
Background
The City of Palo Alto Emergency Operations Plan (EOP) is a foundational document for
emergency management for City staff, key partners, and the community. The City’s Office of
Emergency Services (OES) is responsible for the review, revision, management, and distribution
of the EOP. The EOP basic plan requires 1) review by the Emergency Services Council (ESC) and
Palo Alto/Stanford Citizen Corps Council (CCC) and 2) adoption by the City Council.
Discussion
In January 2015, the cities of Los Altos, Mountain View, Palo Alto, and Sunnyvale (a.k.a. North
County) selected a consulting firm, Tetra Tech, to develop a shared EOP (base plan). The firm
was paid from an emergency preparedness grant (with the City of Sunnyvale as the fiduciary).
Because the North County jurisdictions 1) commonly work together with regard to public safety
and 2) desire to build a capability to cross-staff and/or co-locate Emergency Operations Center
(EOC) and other such facilities, the concept of a common-format EOP was desired.
In May 2015, Palo Alto hosted a meeting with the consulting firm and the EOP planning team
from the North County jurisdictions with over 50 representatives of North County
neighborhoods, Emergency Services Volunteers (ESVs), non-governmental organizations (such
as the Red Cross), schools, private sector businesses, and other such stakeholders.
City of Palo Alto Page 2
The North County planning team also desired to include current best management practices in
the format of the new EOP, including keeping the basic plan (sometimes called a base plan) as
concise as possible (to maximize utility and accessibility), comport with the Federal Emergency
Management Agency (FEMA) comprehensive preparedness guidance1, and follow the State of
California Office of Emergency Services EOP crosswalk.2
In October 2015, City OES staff received the draft EOP from the consultant and began a review
process with the Emergency Services Council (ESC) and Palo Alto/Stanford Citizen Corps Council
(CCC) in accordance with Municipal Code Section 2.12.080 in November 2015. On November
18, 2016, the ESC/CCC recommended that this EOP be presented to the City Council for
approval.
Citizen Corps Council Membership Update
Because of staffing changes at the Palo Alto Medical Foundation (PAMF), Jerry Glotzer has
replaced Sheri Klapper. Staff requests that Council consent to this roster update in accordance
with Palo Alto Municipal Code section 2.12.030(5).
Resource Impact
No impact is anticipated.
Policy Implications
Approval of this Resolution is consistent with current City policies and regulations regarding
homeland security and emergency management.
Environmental Review
This staff report does not represent a project under the California Environmental Quality Act
(CEQA).
Attachments:
ATTACHMENT A - Reso Adopting Emergency Operations Plan January 2016 (PDF)
ATTACHMENT B - DRAFT Emergency Operations Plan January 2016 (PDF)
1 CPG 101
https://www.fema.gov/media-library-data/20130726-1828-25045-
0014/cpg_101_comprehensive_preparedness_guide_developing_and_maintaining_emergency_operations_plans_20
10.pdf
2
http://www.caloes.ca.gov/PlanningPreparednessSite/Documents/Emergency%20Operations%20Plan%20Crosswalk
%20for%20Plan%20Review%202011.doc
*NOT YET APPROVED*
Attachment A
151207 jjs 0170015 1
Resolution No. __________
Resolution of the Council of the City of Palo Alto Adopting the City of Palo
Alto Emergency Operations Plan (EOP) dated January 2016
RECITALS
A. The City of Palo Alto has developed an updated Emergency Operations Plan
(EOP) in order to help coordinate resources to make our community safer and better prepared
to deal with all hazards.
B. The Palo Alto/Stanford Citizen Corps Council is part of the Emergency Services
Council as provided by Palo Alto Municipal Code section 2.12.030(5), stating that members
include "Such representatives of civic, business, labor, veterans, professional or other
organizations having an official emergency responsibility, as may be appointed by the City
Manager with the advice and consent of the city council."
C. Per Palo Alto Municipal Code section 2.12.080, the Citizen Corps Council and the
Emergency Services Council recommend that the City Council adopt the new EOP.
The City Council of the City of Palo Alto hereby RESOLVES as follows:
SECTION 1. The City Council hereby adopts the Emergency Operations Plan (EOP)
dated January 2016, attached hereto and incorporated herein by reference.
SECTION 2. The City Council hereby consents to the updated Palo Alto/Stanford
Citizen Corps Council (CCC) membership list.
SECTION 3. The Council finds that this is not a project under the California
Environmental Quality Act and, therefore, no environmental impact assessment is necessary.
INTRODUCED AND PASSED:
AYES:
NOES:
ABSENT:
ABSTENTIONS:
ATTEST:
___________________________ ______________________________
City Clerk Mayor
*NOT YET APPROVED*
Attachment A
151207 jjs 0170015 2
APPROVED AS TO FORM: APPROVED:
___________________________ ______________________________
City Attorney City Manager
_____________________________
Fire Chief
_____________________________
Director of Administrative Services
City of Palo Alto
Emergency Operations Plan Section I – Basic Plan
EMERGENCY
OPERATIONS
PLAN
BASIC PLAN
Draft Pending City Council
Adoption: January 2016
City of Palo Alto
Emergency Operations Plan Table of Contents
I
TABLE OF CONTENTS
Forward ........................................................................................................................................................ iv
Document Management and Distribution ...................................................................................................... v
Revision History ............................................................................................................................................ vi
Certification of Biennial Review ................................................................................................................... vii
City Council Resolution ................................................................................................................................viii
Introduction ...................................................................................................................................................... 1
Purpose ......................................................................................................................................................... 1
Scope ............................................................................................................................................................ 1
Limitations..................................................................................................................................................... 2
Situation ........................................................................................................................................................ 2
Planning Assumptions.................................................................................................................................... 2
Emergency Management Organization ............................................................................................................. 4
Office of Emergency Services ......................................................................................................................... 4
Preparedness................................................................................................................................................. 4
Planning..................................................................................................................................................... 5
Training ..................................................................................................................................................... 5
Exercises .................................................................................................................................................... 5
Public Awareness and Education ................................................................................................................ 6
Response ....................................................................................................................................................... 6
Pre-Event Response ................................................................................................................................... 6
Emergency Response ................................................................................................................................. 6
Recovery ....................................................................................................................................................... 7
Short-term Recovery .................................................................................................................................. 7
Long-term Recovery................................................................................................................................... 7
Disaster Assistance Programs..................................................................................................................... 7
Damage Assessment .................................................................................................................................. 7
Recovery Documentation .......................................................................................................................... 8
Recovery Organization ............................................................................................................................... 8
After Action Report .................................................................................................................................... 8
Mitigation ...................................................................................................................................................... 8
Whole Community Approach ......................................................................................................................... 9
Citizen Corps Council ................................................................................................................................. 9
City of Palo Alto
Emergency Operations Plan Table of Contents
II
Private Sector ............................................................................................................................................ 9
People with Disabilities .............................................................................................................................. 9
Individuals with Access and Functional Needs .......................................................................................... 10
Considerations for Pets and Other Animals .............................................................................................. 10
Concept of Operations .................................................................................................................................... 11
Field Level Coordination: ICS ........................................................................................................................ 11
Local, Regional & State Level Coordination: SEMS ........................................................................................ 11
Field Response ......................................................................................................................................... 11
Local Government ................................................................................................................................... 12
Operational Area ..................................................................................................................................... 12
Regional................................................................................................................................................... 12
State ........................................................................................................................................................ 12
Federal Coordination: NIMS ......................................................................................................................... 12
Additional Coordination: North County Jurisdictions .................................................................................... 12
North County EOC.................................................................................................................................... 13
Mutual Aid .................................................................................................................................................. 13
Alert and Warning .......................................................................................................................................... 14
Emergency Alert System (EAS) ..................................................................................................................... 14
AlertSCC ...................................................................................................................................................... 14
Integrated Public Alert and Warning System (IPAWS) .................................................................................. 14
Additional Systems ...................................................................................................................................... 14
Emergency Operations Center ........................................................................................................................ 15
Primary and Alternate EOC Locations........................................................................................................... 15
EOC Activation and Deactivation.................................................................................................................. 15
EOC Activation Levels............................................................................................................................... 15
EOC Communication and Coordination ........................................................................................................ 16
Notification and Mobilization................................................................................................................... 16
Internal Communications & Coordination ................................................................................................ 16
External Communications & Coordination ............................................................................................... 17
Position Descriptions and Responsibilities ................................................................................................... 17
EOC Structure .......................................................................................................................................... 17
Department Responsibilities ........................................................................................................................ 17
Emergency Declarations ................................................................................................................................. 21
City of Palo Alto
Emergency Operations Plan Table of Contents
III
Local Proclamation ...................................................................................................................................... 21
State of Emergency...................................................................................................................................... 21
State of War Emergency .............................................................................................................................. 22
Presidential Declaration ............................................................................................................................... 22
Other Powers .............................................................................................................................................. 22
Continuity of Government .............................................................................................................................. 23
Lines of Succession ...................................................................................................................................... 23
Essential Facilities: Alternate Seat of Government ....................................................................................... 23
Preservation of Vital Records ....................................................................................................................... 24
Attachment 1: Authorities and References ..................................................................................................... 23
Local Authorities & References .................................................................................................................... 23
State Authorities & References .................................................................................................................... 23
Federal Authorities & References ................................................................................................................ 23
Attachment 2: Sample Proclamation .............................................................................................................. 24
City of Palo Alto
Emergency Operations Plan Forward
IV
FORWARD
This City Emergency Operations Plan (EOP) outlines how the City of Palo Alto government complies with and
implements the requirement of the California Emergency Services Act to protect the lives and property of the
community of the City of Palo Alto.
The EOP is organized and defined as follows:
This Basic Plan (also referred to as EOP in this document) presents the planning assumptions, policies,
and concept of operations that guide the responsibilities for emergency preparedness, prevention,
response, recovery and mitigation for the City of Palo Alto.
There are a number of City plans and other documents that support or relate to this Basic Plan and are
categorized as Functional Annexes or Hazard Annexes:
Functional Annexes include more detailed information on Direction and Control, Alert and Warning,
and Emergency Operations Center (EOC) Position Checklists. This category also includes EOP-related
City plans.
o Emergency Operations Center Manual (includes EOC Position Checklists)
o Local Hazard Mitigation and Adaptation Plan (LHMAP, formerly LHMP)
o Threats and Hazards Identification and Risk Assessment (THIRA)
o Continuity of Governance / Continuity of Operations (COOP/COG)
o Damage Assessment
o Mass Care and Shelter
o Recovery
o Local Energy Assurance Plan (LEAP)
o Emergency Public Information and Warning (EPIW)
o Communications
o Foothills Fire Management Plan (Community Wildfire Protection Plan (CWPP))
o Airport Emergency Plan (including aircraft incidents not at the Palo Alto Airport)
o Department Emergency Plans (DEPs) and other related procedures
o Public Health and Medical Services (pandemic, etc.)
o Multi Agency Coordination (MAC) plans
Hazard Annexes includes City plans for specific hazards.
o Storm/Flood
o Earthquake
o Terrorism/Major Criminal Event
o Major Fire, Hazardous Materials (HazMat) or Mass-Casualty Event
As explained below, this EOP Basic Plan is subject to various review and approval processes, whereas the
various annexes are not. It is also important for the reader to understand that there is a panoply of other
planning documents that are applicable to the City, the region, the state, and so forth. It is not practical or
requisite to list those herein, but some of the primary regulations and such are found in Attachment 1.
City of Palo Alto
Emergency Operations Plan Document Management and Distribution
V
DOCUMENT MANAGEMENT AND DISTRIBUTION
The City’s Office of Emergency Services (OES) is responsible for the review, revision, management, and
distribution of the City of Palo Alto EOP.
The Emergency Operations Plan (EOP) Basic Plan, as defined above, will be reviewed on a biennial basis by the
City's Office of Emergency Services (OES). The EOP may be modified at any time as a result of a post-incident
or post-exercise evaluation, and changes in responsibilities, procedures, laws or regulations.
In accordance with the Palo Alto Municipal Code, new versions of the EOP are reviewed by the City's
Emergency Services Council (ESC) and Palo Alto/Stanford Citizen Corps Council (CCC) and subsequently
approved and adopted by City Council (resolution).
The EOP will be distributed to the City's Executive Leadership Team (City staff), to key partners, and will be
posted on the City's website for public reference.
City of Palo Alto
Emergency Operations Plan Document Management and Distribution
VI
REVISION HISTORY
Revision Date Section(s) of Plan
Revised Revised By
City of Palo Alto
Emergency Operations Plan Document Management and Distribution
VII
CERTIFICATION OF BIENNIAL REVIEW
The Office of Emergency Services has reviewed this Emergency Operations Plan and hereby certifies the
review.
Date Name/Department/Agency Signature
City of Palo Alto
Emergency Operations Plan Section I – Basic Plan
VIII
CITY COUNCIL RESOLUTION
This shall be the official Emergency Operations Plan for the City of Palo Alto and shall supersede previous
plans. Nothing in this plan shall be construed in a manner that limits the use of good judgment and common
sense in matters not foreseen or covered by the elements of the plan or any appendices hereto.
The plan is promulgated under the authority of the City Manager, ratified by the City Council, after having
been reviewed by the City of Palo Alto's Emergency Services Council (which includes the Palo Alto/Stanford
Citizen Corps Council), per Palo Alto Municipal Code Section 2.12.080.
See City Council Resolution attached to this version of the EOP.
City of Palo Alto
Emergency Operations Plan Section I – Basic Plan
Section I: Basic Plan
1
INTRODUCTION
The Emergency Operations Plan (EOP) for the City of Palo Alto outlines authorities, organizational structures,
and procedures used to coordinate activities related to local and regional emergencies or disasters.
The City and surrounding region are susceptible to a number of hazards such as natural disasters and human-
caused events, as well as technological failures and pandemics.1 Accordingly, the EOP utilizes an “all-hazards”
approach to ensure the City is able to prepare for, respond to, recover from, and mitigate (to the extent
possible) all potential hazards and critical incidents.
PURPOSE
The primary purpose of the EOP is to:
1) Identify roles and responsibilities for City departments as they pertain to preparedness, response,
recovery, and mitigation activities
2) Codify the City’s understanding and adoption of state and federal constructs2 through which
operational coordination, mutual aid, and other requests for support will be integrated
3) Serve as a foundational document for additional plans of the City, as well as be referenced in plans of
other governments, non-governmental organizations, and other entities (private businesses, etc.)
4) Comply with state and federal laws and regulations such as the California Emergency Services Act3
SCOPE
The EOP serves as the foundational document for the City’s emergency management activities. While all City
resources may be called upon as needed, specific departmental responsibilities are outlined in the EOP Basic
Plan and associated annexes. To ensure the City is adequately prepared, all City departments are required to
actively participate in preparedness and planning activities to include the development of departmental plans,
policies, and procedures as necessary to fulfill their assigned roles and obligations.
The EOP embraces the Federal Emergency Management Agency's (FEMA) "Whole Community" approach to
emergency management and, in addition to City resources, recognizes the roles of special districts, non-
governmental organizations (NGOs), community-based organizations (CBOs), faith-based organizations (FBOs),
private-sector businesses, educational organizations, and other stakeholders. Additionally, the EOP is intended
to reflect the wide variety of support that may be required by residents, visitors, and businesses, including
people with disabilities and others with access or functional needs. Consideration for people with disabilities,
access or functional needs will be given in all aspects of City emergency planning.
Certain groups and organizations will need to interface with the City's Emergency Operations Center (EOC) and
among each other, including in circumstances where normal telecommunications may be impaired. By
understanding the elements of this plan, the City and such organizations can facilitate that process.
All members of the community should understand the potential risks and hazards we face and the obligation
to prepare personally, at a family level, and in one's organization.
1 There are two main documents that outline local risk analysis: Local Hazard Mitigation and Adaptation Plan and the Palo
Alto Threat and Hazard Identification and Risk Assessment (THIRA). See www.cityofpaloalto.org/thira 2 For example: This EOP is based on the functional elements of California’s Standardized Emergency Management Systems
(SEMS). SEMS is established by State Law (Chapter 1 of Division 2 of Title 19 of the California Code of Regulations). 3 California Emergency Services Act (Chapter 7 of Division 1 of Title 2 of the Government Code)
2
LIMITATIONS
While many of the elements outlined in the EOP are designed for flexibility and can be utilized as-needed to
address a number of emergency and non-emergency events, some activities require special activation or a
formal disaster declaration by the City Council or others. Similarly, the EOP is not meant to outline procedures
for routine incidents or minor emergencies which are adequately addressed through existing processes.
The EOP identifies operational strategies and plans for managing inherently complex and potentially
catastrophic events. City assets, resources, and departments are potentially vulnerable and may become
overwhelmed. Deviations from the organizational and response structures outlined in the EOP may be
required, based upon evolving needs and available resources. With this in mind, the EOP is designed to
promote flexibility whenever possible and is not intended to limit the use of good judgment and common
sense in matters not foreseen or adequately addressed by elements of the EOP and its associated annexes,
appendices, or plans.
SITUATION
Emergency management is based on an understanding of community risk. The City has undergone multiple
hazard analysis processes per FEMA's Comprehensive Preparedness Guide 201 (CPG 201). This current best
practice places risk into three categories: natural, technological (accidental), and human-caused (deliberate).
Detailed information regarding Palo Alto's geography, demographics, and hazards potentially impacting the
City are detailed in the Palo Alto Threat and Hazard Identification and Risk Assessment (THIRA) as well as the
Santa Clara County Local Hazard Mitigation and Adaptation Plan (LHMAP).
PLANNING ASSUMPTIONS
The following assumptions were used during the development of the EOP and are recommended for the
readers' own plans:
The City of Palo Alto is susceptible to a number of hazards and risks that may result in critical incidents
Critical incidents include a variety of natural, technological, or human-made emergencies and disasters
Some critical incidents may have advance warning while others will not
All City departments will participate in planning and preparedness activities as required
City personnel will be adequately trained to perform the roles in which they are assigned
The City's EOC will be partially or fully activated to support operations during critical incidents
City personnel may be unable or unavailable to report to work or as assigned
Non-essential City operations may be reduced or cancelled in order to prioritize resources
Mutual aid and other assistance will be requested when City resources are inadequate, but outside
assistance and support may be unavailable for extended periods of time
Communications equipment and infrastructure may be damaged or disrupted
Transportation infrastructure may be damaged or disrupted and access to critical facilities may be blocked
Critical infrastructure and utilities such as natural gas, water, and electricity may be severely impacted
3
Residents, businesses, and other entities may need to be self-sufficient for one week or more
Additional planning, resources, and support will be needed to support people with disabilities and others
with access and functional needs
4
EMERGENCY MANAGEMENT ORGANIZATION
As defined by Palo Alto Municipal Code (PAMC) Sec. 2.12.070, the City’s Emergency Organization includes:
All officers and employees of the City;
All volunteer forces enrolled to aid them during an emergency (registered Emergency Services
Volunteers);
All groups, organizations, and persons who may by agreement or operation of law be charged with
duties incident to the protection of life and property in the City.
The City Manager is the leader of the City's Emergency Organization and is the statutory director of emergency
services. During an emergency when the EOC is activated, the City Manager manages and directs all aspects of
the City‘s emergency response and recovery operations and may delegate authority and tasks to staff. In the
absence of the City Manager, another staff member is selected to function as the City Manager.
OFFICE OF EMERGENCY SERVICES
The Municipal Code, as part of the Emergency Organization, also cites the Office of Emergency Services (OES),
which operates as a public safety department. The Director of Emergency Services (Emergency Services Chief)
directs the activities of the Office of Emergency Services and is the statutory assistant director of emergency
services. The Director of Emergency Services reports to the City Manager and assists in coordinating the City‘s
overall response and recovery operations. The Director of Emergency Services also acts as the City
government‘s key representative and lead agent for day-to-day emergency management, with powers
delegated through the Municipal Code4 to:
1. Direct coordination and cooperation of services and staff of the emergency organization of the City,
and resolve questions of authority and responsibility that may arise between them; and
2. Represent the City in all dealings with public or private agencies on matters pertaining to emergencies
To achieve this mandate, OES leads or coordinates planning, intelligence, and coordination, not only internally
but also with allied agencies such as Stanford University, the private sector, and the community to promote,
coordinate, and advance the four phases of emergency management: preparedness, response, recovery, and
mitigation.
PREPAREDNESS
The Preparedness Phase includes activities undertaken prior to an emergency in order to improve the City’s
ability to coordinate, respond, and recover from a critical incident. These activities focus on maintaining or
improving capabilities that will be used in the response or recovery phases. The City’s preparedness activities
emphasize emergency planning and training as well as public education and outreach. The City also conducts
drills and exercises regularly in order to validate ongoing activities, identify areas for improvement, and
prioritize or justify future effort and funding.
In recognition of the number and wide variety of potential hazards facing the region, the City has adopted an
“all-hazards” approach to planning and preparedness. While not restricting the development of specialty or
tactical plans, this model focuses on the development of core capabilities through which the full spectrum of
potential hazards and critical incidents can be addressed.
4 See Palo Alto Municipal Code (Section 2.12.050(b))
5
Planning
Emergency planning includes a wide variety of plans at the strategic, operational, and tactical levels. Strategic
plans include the EOP and many of its associated hazard specific or functional annexes, while operational and
tactical planning includes more granular information such as standard operating procedures (SOP), checklists,
personnel assignments, notification rosters, and resource lists.
All City departments are required to participate in the development of relevant strategic and operational plans
while ensuring that internal tactical planning is sufficient to meet the needs of their outlined roles and
assigned objectives. This includes the development of department specific SOPs required to meet the
objectives outlined for each department.
Training
Training is an essential component of preparedness and greatly impacts the City’s ability to respond to, and
recover from, a critical incident. The City's Office of Emergency Services maintains a Staff Development
Program (SDP) and works with other City departments to develop training for staff.
The City actively manages training activities and allocates funding in relation to fluctuating needs, personnel
turnover, and course availability. In addition, the City consistently prioritizes training that promotes staff
understanding and familiarity with the following concepts:
Incident Command System (ICS)
California Standardized Emergency Management System (SEMS)
National Incident Management System (NIMS)
California Disaster Service Worker (DSW)5
In addition to staff training, the Office of Emergency Services also provides training to the City's Emergency
Services Volunteer (ESV) program members and further partners with Stanford University, local businesses,
and other entities to develop and provide training and public safety public education.
Exercises
Exercises are the primary tool for assessing preparedness activities and identifying areas for improvement
while allowing all levels of personnel to simulate their response and recovery roles in a learning environment.
The City follows the best practices of the Homeland Security Exercise and Evaluation Program (HSEEP),
including the building block concept of seminars, small-scale tabletop exercises, functional exercises, and full
scale exercises.
The City uses a wide variety of exercises to regularly assess critical capabilities and prioritize future planning
and training needs. By simulating potential response or recovery scenarios, the City is able to validate existing
plans while determining if and where additional training is required.
5 See California Government Code (Section 3100), government employees (excluding non-naturalized aliens) are Disaster
Service Workers. When a disaster occurs, each employee will be expected to perform certain duties to assist the
community in returning to normal as soon as possible. Certain registered volunteers may also be Disaster Service
Workers.
6
Public Awareness and Education
The City and its partners actively promote public awareness and education in order to strengthen overall
preparedness and community resilience. By providing community education, outreach, training, and
coordination, the City increases the ability of community members and organizations to adequately prepare
for and meet their own needs. By promoting self-reliance and individual preparedness, the City reduces the
overall burden on limited resources and competing needs that emerge during critical incidents.
RESPONSE
The Response Phase includes any actions taken immediately before, during, or directly after a critical incident
in order to minimize the potential or existing impacts of the incident.
Pre-Event Response
Some incidents may provide sufficient warning to allow for pre-event or precautionary measures. Depending
upon the probability and likelihood of significant impacts, pre-event response activities may include:
Public Warning
Evacuations
Resource Mobilization
Staging
Mutual Aid Requests
Proclamation of a Local Emergency
Emergency Response
Emergency response activities are actions taken during, or in the immediate aftermath, of a critical incident to
reduce actual impacts. While these activities are most often associated with traditional response agencies
including law enforcement, fire protection, emergency medical services (EMS), utilities, and public works, the
size and complexity of an incident may require robust support from additional governmental agencies,
nongovernmental organizations (NGOs), and other partners. As a result, comprehensive stakeholder
participation during the development and socialization of relevant strategic, operational, and tactical plans can
greatly enhance the efficiency and effectiveness of these emergency response activities.
When coordinating emergency response activities and addressing competing needs and objectives, the City
utilizes the following prioritization hierarchy:
1) Support Life Safety
2) Protect Property & Infrastructure
3) Reduce Impacts to the Environment
Emergency response may also include activities related to short-term recovery and often overlaps with long-
term recovery operations.
7
RECOVERY
The Recovery Phase includes short- and long-term activities focused on returning the community to pre-
incident conditions. In some instances when a state or federal disaster declaration has been made, recovery
activities include the critical task of identifying, documenting, and quantifying response and recovery costs
eligible for reimbursement.
Short-term Recovery
Short-term recovery operations begin during the response phase and may include activities such as the
restoration of essential services, rapid debris removal, and the reestablishment of City services.
Long-term Recovery
Long-term recovery operations are often required to address extensive damage to infrastructure. Activities
include the restoration and reconstruction of public facilities and disaster response cost recovery.
Disaster Assistance Programs
Disaster assistance programs may be available for the following:
Individuals – may be eligible for loans and grants for housing assistance programs (for homeowners
and renters), and uninsured disaster-related necessities (including personal property, medical, dental,
and transportation expenses). Other Stafford Act Programs including crisis counseling, disaster
unemployment assistance, and legal services may be available. In addition, various NGOs such as the
American Red Cross, Mennonite Disaster Services, and the Salvation Army provide recovery assistance
to individuals, families, and community organizations. Assistance may include basic necessities such as
food, shelter, clothing, and housing reconstruction.
Businesses – may be eligible for low-interest loans to assist with uninsured physical damage through
the U.S. Small Business Administration (SBA). Programs for agricultural assistance in the form of low-
interest loans for economic losses may be available through the U.S. Department of Agriculture
(USDA).
Government – assistance is available through state assistance under the California Disaster Assistance
Act (CDAA), as well as several federal programs including the Federal Emergency Management Agency
(FEMA) Public Assistance (PA) Grant Program and the Hazard Mitigation Grant Program (HMGP).
Non-profit organizations – assistance is available through state assistance under the CDAA, as well as
several federal programs including FEMA PA Grant Program for eligible non-profit organizations.
Damage Assessment
Damage assessment activities involve identifying, recording, compiling, and analyzing damage information in
order to determine the type of recovery assistance needed. Following major disasters, a process known as a
Preliminary Damage Assessment (PDA) is used to determine preliminary eligibility for certain state and federal
financial assistance and reimbursement programs.6
6 See the City of Palo Alto Damage Assessment Plan for details.
8
Recovery Documentation
Documentation is the key to recovering eligible emergency response and recovery costs. Damage assessment
documentation will be critical in establishing the basis for eligibility of disaster assistance programs. Various
state and federal assistance programs require different types of documentation for eligible costs and in
addition to structural damage, may include staff time, equipment, and materials utilized in response to the
incident. To support the maximum recovery of eligible reimbursement, City departments and agencies must
identify and support internal mechanisms for tracking and documenting appropriate costs.
Recovery Organization
The City Manager and the Director of Emergency Services are responsible for the overall management of the
recovery operations. Senior staff from the Office of Economic Development, Planning and Community
Environment Department, and the Development Services Department will serve as Unit Leaders in the City’s
recovery organization.
After Action Report
As part of the recovery phase, and in accordance with SEMS, the State of California requires any city and/or
county declaring a local emergency for which the governor proclaims a state of emergency, to complete and
transmit an after action report to the California Office of Emergency Services (Cal OES) within 90 days of the
close of the incident period. The after action report should include the following information:
Documentation of response activities
Identification of both problems and successes during emergency operations
Analysis of the effectiveness of the SEMS components
Plan of action for implementing improvements
Cal OES After-Action Questionnaire
MITIGATION
The Mitigation Phase includes actions and measures taken to reduce or eliminate the degree of long-term risk
from natural and technological hazards. Whereas preparedness activities increase the City’s ability to respond
to the impacts of a hazard, mitigation activities reduce the potential for those impacts in the future, thereby
reducing overall risk. A number of mitigation activities are available and may include the implementation,
augmentation, or promotion of the following:
Building and Safety Codes
Disaster/Fire/Flood Insurance
Land Use Planning and Management
Hazard Research and Analysis
Land and Repetitive Loss Acquisition
Monitoring and Inspection
Public Outreach and Education
Relocation
Risk Mapping
Safety Codes, Statutes, and Ordinances
Tax Incentives and Disincentives
Seismic Strengthening or Retrofitting
The City participates in local and regional mitigation activities such as the development of risk assessments and
mitigation plans. Further, the City’s Comprehensive Plan (General Plan) includes mitigation aspects and
elements.
9
WHOLE COMMUNITY APPROACH
The City’s ability to respond and recover from significant emergencies and major disasters is highly dependent
upon planning for the unique needs and specific requirements of the City’s residents and non-resident
commuters and visitors. To further identify and meet these needs, the City has adopted a “Whole
Community” approach in which the inclusion and integration of community partners, neighbors, and other
stakeholders are actively promoted in all phases of emergency management. Through these collaborative
efforts, the City will become more resilient and better prepared to meet the needs of its residents and daytime
populace alike, especially those with disabilities and others with access and functional needs.
Citizen Corps Council
The Palo Alto/Stanford Citizen Corps Council (CCC) serve to harness the power of individuals, businesses, and
organizations through education, training, and volunteer service.
Further, the City of Palo Alto OES sponsors an Emergency Services Volunteers (ESV) program which includes
various categories: ARES/RACES (ham radio), Block Preparedness Coordinators (BPC) & Neighborhood
Preparedness Coordinators (NPCs), Community Emergency Response Team (CERT), and the Medical Reserve
Corps (MRC) volunteers. As noted above, by local ordinance, ESVs are a part of the City's Emergency
Organization.7
The Palo Alto OES may deploy ESVs to function in various capacities in support of City departments or mutual
aid partners. Depending upon the incident, ESVs may support specific response objectives in the field, at DOCs
or otherwise in accordance with existing protocols/plans and direction from OES.
Private Sector
The City of Palo Alto is home to a diverse and vibrant business community including traditional retail and
entertainment sectors as well as some of the largest and well-known companies in the world. Representing
tens of thousands of employees, the business community swells the City’s daytime population and serves as a
foundation for economic prosperity. The City actively engages with the private sector to better understand
their needs, identify resources, and develop partnerships. Many of the City’s private sector partners
proactively address preparedness planning internally as a way to minimize business disruptions and to support
the wellbeing of their employees and also offer their resources and technical capabilities to the larger
community. The City acknowledges this valuable support and will continue collaborative efforts with the
private sector as an integral component of the City’s overarching emergency management program.
People with Disabilities
People with disabilities often require additional planning and support to ensure they receive equal access and
coverage as required under the Stafford Act8 as well as other state and federal legislation such as the
Americans with Disabilities Act (ADA) of 19909. Covered disabilities are not always apparent and may include
impairments of mobility, vision, and hearing as well as some cognitive disorders and mental illnesses.
7 See Palo Alto Municipal Code (Section 2.12.070) 8 See Robert T. Stafford Disaster Relief and Emergency Assistance Act (Public Law 93-288, as amended, 42 U.S.C. 5121) 9 See Americans With Disabilities Act of 1990 (Pub. L. No. 101-336, 104 Stat. 328 [1990])
10
The City has a diverse population which includes a wide variety of people with disabilities. To meet the needs
of these individuals, the City is committed to supporting efforts and activities designed to improve and validate
capabilities in support of people with disabilities, including but not limited to:
Notification and warning procedures
Evacuation, transportation, and sheltering considerations
Accommodations for Service Animals
Accessibility to information
In addition, the City looks to integrate people with disabilities and their advocates directly into preparedness
activities such as plan development and review. These efforts have included targeted outreach to publicize the
development of this EOP and solicit input and participation in the subsequent development and review of
associated operational annexes and appendices.
Individuals with Access and Functional Needs
In addition to people with disabilities, the City recognizes that additional support may also be needed to
support those with “access and functional needs”. Access and functional needs are not necessarily related to a
specific condition, diagnosis, or impairment and are based upon functional areas such as:
Maintaining independence
Effective communication
Transportation
Supervision
Medical care
Individuals with access and functional needs may not have access to support networks outside of their
immediate communities or be able to self-evacuate. As a result, they may have additional needs before,
during, and after an incident. Those with functional needs often include children, the elderly, tourists, and
other segments of the population, including:
People with disabilities
People living in institutionalized settings
People from diverse cultures
People with limited English proficiency
People without transportation
People who are economically disadvantaged
Considerations for Pets and Other Animals
As a result of deficiencies in emergency planning uncovered in the aftermath of Hurricane Katrina, the federal
government passed the Pets Evacuation and Transportation Standards (PETS) Act in 2006 as an amendment to
the Stafford Act. Recognizing the unwillingness of many displaced individuals to take advantage of evacuation
or shelter resources without accommodating for their pets or companion animals, the PETS Act directs that
state and local preparedness plans address the needs of individuals with pets and companion animals during a
disaster or emergency.
The City works to include considerations for the needs of pets and companion animals in plans as appropriate.
Furthermore, although not required under the PETS Act, additional resources for the evacuation of larger
animals and livestock, such as horses, may be available through coordination and request through the County.
11
CONCEPT OF OPERATIONS
In accordance with state and federal laws, the City of Palo Alto has officially adopted and integrated the
following emergency management, response, and coordination systems:
The Incident Command System (ICS)10
The Standardized Emergency Management System (SEMS)11
The National Incident Management System (NIMS)12
Together, these congruent operational systems outline how critical incidents, emergencies, and disasters will
be coordinated in the field, at the local level, and up through the county, region, state, and federal levels.
FIELD LEVEL COORDINATION: ICS
As mandated by both SEMS and NIMS, the City utilizes the Incident Command System (ICS) to manage
response activities in the field. ICS provides for common terminology, processes, and position titles, while
allowing the delegation of functions (or tasks) to subordinate positions in order to promote proper span of
control and unity of command. ICS is applicable to any size incident and is designed to be expandable as the
needs of an incident expand or contract. When utilized, the standardization of ICS principles and nomenclature
is capable of integrating large numbers of personnel from disparate organizations.
LOCAL, REGIONAL & STATE LEVEL COORDINATION: SEMS
As the cornerstone of California’s emergency response system, The Standardized Emergency Management
System (SEMS), integrates the concepts and principles of both the National Incident Management System
(NIMS) and ICS. Jurisdictions within the State are required to adopt its use and the system unifies all elements
of California’s emergency management community into a single integrated structure. SEMS ensures that local
communities retain the authority and responsibility for managing and coordinating responses within their
jurisdictions, while promoting situational awareness and facilitating the prioritization of resource requests.
The five SEMS coordination levels expand outward from the impacted area at the field level, with each
successive level representing a larger geographic area. The five organizational levels include:
Field Response
Field response includes on-scene activities and coordination, consistent with ICS, and includes the use of an
Incident Command Post (ICP). Depending upon the incident, multiple ICPs may be established at various sites
throughout an impacted area and an Area Command may also be established. Resource requests and situation
reports are routed from the field to the next SEMS organizational level, either through participating response
agencies or the local Emergency Operations Center (EOC) if activated. Department Operations Centers (DOC)
provide internal coordination for specific departments and may interface as an intermediate level of
10 More information can be found at http://training.fema.gov/emiweb/is/icsresource/index.htm 11 State authority is to be found, in part, in California Emergency Services Act (Chapter 7 of Division 1 of Title 2 of the
Government Code). California State and local jurisdictions use the Standardized Emergency Management System as
outlined in California Code of Regulations (Title 19, Divisions 2, Chapter 1) and the California Government Code (§8607). 12 Federal authority is found in the Robert T. Stafford Disaster Relief and Emergency Assistance Act (Public Law 93-288, as
amended, 42 U.S.C. 5121) and in Homeland Security Presidential Directive (PPD) 5, “Management of Domestic Incidents”
and Homeland Security Presidential Directive (HSPD) 8, “National Preparedness.” The emergency management system
used nationally is the National Incident Management System (NIMS).
12
coordination between the field and the EOC while coordinating and maintaining department operations
unrelated to the incident.
Local Government
Local governments retain the responsibility and authority for managing response activities within their
jurisdictions. To support these efforts, local jurisdictions may activate their respective EOCs. Local EOCs
provide agency coordination, provide logistical support, establish common operating procedures, identify
overarching priorities, and prioritize available resources. Additionally, local EOCs coordinate with the
Operational Area (OA)/County EOC.
Operational Area
The Operational Area (OA) provides coordination within the county and between all political subdivisions. The
OA coordinates response activities within the county’s geographic area through the County EOC, if activated.
The OA also serves as a link to regional level and all other OAs within the region. The City of Palo Alto is part of
the Santa Clara County OA and coordinates closely with the Santa Clara County Office of Emergency Services
(SCCOES). The City participates in OA planning and, during a critical incident, coordinates with the OA through
either SCCOES or the Santa Clara County EOC, if activated. The City also participates in various OA plans such
as Multiple Patient Management Protocol (MPMP) (also known as Mass Casualty Incident (MCI)), Active
Shooter, etc.
Regional
The State of California is divided into three regions that each maintain Regional Emergency Operations Centers
(REOC) to coordinate resource requests, support mutual aid, and promote situational awareness between their
respective OAs. The City of Palo Alto and the Santa Clara County OA are within the Coastal Administration
Region. Palo Alto participates in regional planning through the Urban Area Security Initiative (UASI), the
Northern California Regional Intelligence Center (NCRIC), and others.
State
When required, California’s State Operations Center (SOC) is activated to facilitate state agency response,
mobilize mutual aid, and coordinate with other regions, states, and the federal government. The SOC also
serves as the liaison with the National Operations Center (NOC).
FEDERAL COORDINATION: NIMS
The National Incident Management System (NIMS) provides a comprehensive national framework for incident
management applicable at all jurisdictional levels and across all functional disciplines. The majority of NIMS
requirements applicable to the City of Palo Alto, including the adoption of ICS, are satisfied by the adoption of
SEMS. Additional elements of NIMS outline coordination between federal agencies and the use of federal
assets and resources.
ADDITIONAL COORDINATION: NORTH COUNTY JURISDICTIONS
Emergency management and response partners in the North County area of Santa Clara County, defined as the
Cities of Los Altos, Mountain View, Palo Alto, and Sunnyvale, along with Stanford University, have long
recognized that mutual aid and cooperation in response to critical incidents can be enhanced and made more
13
effective by sharing resources. Given the common hazards facing the area and the potential for large regional
impacts, North County agencies and stakeholders will need to work together during extended incidents to
meet evolving needs and provide critical services.
Building upon the success of ongoing coordination, North County cities have identified and integrated mutually
beneficial activities that offer a number of synergies and potential economies of scale. These activities include
preparedness elements, such as combined planning processes, shared stakeholder integration, and the
development of common plan elements; along with response elements such as the collocation of common
emergency management and coordination functions to support mutual North County operational objectives.
North County EOC
Historically, each of the North County jurisdictions have developed, staffed, and maintained their own EOCs.
However, depending upon the incident, some or all of the North County agencies may co-locate EOC functions
within a common facility. Such a configuration would provide a number of benefits and efficiencies including
increased coordination, fewer staff, and reduced costs, while allowing each jurisdiction to maintain individual
control of their respective EOC functions.
MUTUAL AID
The California Mutual Aid System operates within the framework of the California Master Mutual Aid
Agreement (MMAA)13 and under the authority of the California Emergency Services Act14. The system allows
for the mobilization of resources to and from emergency response agencies, local governments, operational
areas, regions, and the state with the intent to provide requesting agencies with adequate resources.
The California Mutual Aid System includes six mutual aid regions in order to facilitate the coordination and
flow of mutual aid requests. As part of the Coastal Administration Region, the Santa Clara County OA and the
City are part of Mutual Aid Region II.
The system includes a number of discipline-specific mutual aid systems that operate through designated
mutual aid coordinators at the OA, regional, and State levels. Mutual aid requests are coordinated within their
geographic area before unfilled requests are forwarded to the next level. Mutual aid requests that do not fall
into one of the discipline-specific mutual aid systems are handled through the emergency services mutual aid
system and by emergency management staff at the local government, operational area, regional, and state
levels.
13 See the California Master Mutual Aid Agreement (Chapter 7 of Division 1 of Title 2 of the Government Code) 14 See the California Emergency Services Act (Chapter 7 of Division 1 of Title 2 of the Government Code)
14
ALERT AND WARNING
EMERGENCY ALERT SYSTEM (EAS)
The Emergency Alert System is a public warning system that may also be used by federal, State, and local
authorities to provide emergency information and notification to citizens. This system allows use of existing
media (radio, TV) resources to communicate to residents in the event of a widespread emergency situation.
ALERTSCC
AlertSCC is a county-wide community alert and notification system. This system allows the City of Palo Alto to
quickly provide critical information and instructions to subscribers using registered cell phones, emails, or
landline phones through a reverse 911 function. Registration can be completed at www.AlertSCC.org
INTEGRATED PUBLIC ALERT AND WARNING SYSTEM (IPAWS)
The Integrated Public Alert and Warning System (IPAWS) is a modernization and integration of the nation’s
alert and warning infrastructure. IPAWS provides public safety officials with an effective way to alert and warn
the public about serious emergencies using the Emergency Alert System (EAS), Wireless Emergency Alerts
(WEA), the National Oceanic and Atmospheric Administration (NOAA) Weather Radio, and other public alerting
systems from a single interface.
ADDITIONAL SYSTEMS
A number of additional communications systems or pathways are available to the City, including:
The City of Palo Alto Website www.cityofpaloalto.org
Social Media (e.g., www.cityofpaloalto.org/PAPDconnect)
Internal City E-mail and Telephone Systems
Stanford University Radio Station KZSU (90.1 FM)
The City also has various means to 1) notify, recall, and mobilize staff (including those off-duty) and 2)
communicate and coordinate with such staff and other government and non-government organization
partners.
15
EMERGENCY OPERATIONS CENTER
The City of Palo Alto EOC provides a centralized location where emergency management coordination and
decision making can be supported during a critical incident, major emergency, or disaster. When activated, the
EOC provides support for a number of critical tasks related to communications, coordination, resource
management, and executive leadership.
PRIMARY AND ALTERNATE EOC LOCATIONS
The primary EOC for the City of Palo Alto is located in the Public Safety Building.
If the primary EOC is threatened, inoperable or inaccessible, an alternate EOC can be designated or provided
utilizing the Mobile Emergency Operations Center (MEOC) or by using an alternate facility. OES has several
locations identified that could be selected based on the situation and resources.
EOC ACTIVATION AND DEACTIVATION
The EOC facility and equipment are maintained and used regularly by Palo Alto OES and other City public
safety staff and may be used for coordination and monitoring activities at any time without the need for a
formal activation ("steady state"). However, depending upon the need and circumstances, an official EOC
activation may be appropriate to support a number of activities, including:
Field response
Pre-planned events
Local Proclamation of Emergency
Governor’s Declaration of Emergency
Presidential Declaration of a National Emergency
State of War
Additional information on roles and responsibilities, EOC activation authorities and procedures can be found in
the Palo Alto EOC Manual.
EOC Activation Levels
The Palo Alto Police Department manages the 9-1-1 Communications Center (Public Safety Answering Point
(PSAP) for the City of Palo Alto and Stanford University, covering law enforcement, fire/EMS, public works,
utilities, animal services, and other calls for service. The 9-1-1 Center, in most cases, is the entity responsible
to notify key staff of any emergent situation where the EOC or other OES resources might be required. The
criteria and procedures are detailed in confidential rosters, protocols, and other documents, such as the EOC
Manual.
When the City’s EOC is activated, the County Operational Area and other partners will be notified (as
practicable). The City has reciprocal notification agreements with other agencies, including those in San Mateo
County, for some events such as flood or storm events.
The City may also establish Departmental Operations Centers (DOC) for specific departments (e.g. Public
Works, Utilities, Information Technology, etc.), as required to support field operations and coordinate other
functions within their respective departments.
16
EOC activation levels are scalable based on the evolving needs of the City and may include full or partial
staffing as required. SEMS compliant activation levels are outlined in Table 1-A below:
TABLE 1-A: EOC ACTIVATION LEVELS
Level Operational Status Description Examples
Level 1 Minimum Activation Monitoring an incident/event
or potential situation/event.
Severe weather warning
Flood watch
Terrorism warning
Minor earthquake
Level 2 Partial Activation
Necessary EOC positions are
activated to manage the
incident as needed.
Planned event
Local emergency declared
Oil spill
Wild land fire affecting
developed areas
Level 3 Full Activation Full activation of the EOC
with all position activated.
Catastrophic earthquake
Major public safety
incident
Major local and/or
regional disaster
Similarly, the deactivation of the EOC will be scalable based on the decreasing needs of the City. Appropriate
EOC functions and roles will be demobilized as the situation permits.
EOC COMMUNICATION AND COORDINATION
The EOC has the capability to communicate and coordinate with a broad array of internal (field personnel,
incident commanders, department operations centers (DOCs)) and external stakeholders (response partners,
critical infrastructure and key resources, outside agencies). For example, the City's EOC is outfitted with
communications equipment to interoperate with a large number of partners, ranging from the City's
Emergency Services Volunteer (ESV) program to the Palo Alto Unified School District to the National Guard.
Notification and Mobilization
When necessary, the City will notify needed emergency response personnel using available communications
systems (Information Technology systems, two way radios, etc) and in accordance with applicable response
plans (EOC Manual, Department Emergency Plans, and so forth).
Internal Communications & Coordination
Coordination with field elements from the EOC may be coordinated through relevant DOCs or directly with an
Incident Commander. If a DOC is not activated, the Incident Commander may communicate directly with their
department specific representative, typically located in the Operations Section of the EOC.
Additionally, the Palo Alto EOC will communicate and coordinate with the Santa Clara County OA EOC and
other cities within the Santa Clara County OA. Each city, including Palo Alto, will provide situational awareness
and relevant resource status to the OA EOC, and in turn the OA EOC will push aggregated county-wide
information back to each city. In some cases mutual aid for disciplines with other established mutual aid
systems (such as Law Enforcement) will use such systems while in other cases (commonly known as single-
point ordering) the requests will go via OA EOC-City EOC logistics pathways.
17
External Communications & Coordination
The City EOC will also coordinate with outside agencies such as special districts, public utilities, volunteer
organizations and/or private agencies. These agencies will communicate directly with the City and may provide
a representative to the City EOC, as outlined in the EOC manual. The level of involvement of special districts,
public utilities, volunteer organizations, and private agencies will vary considerably depending upon the type of
incident.
POSITION DESCRIPTIONS AND RESPONSIBILITIES
EOC Structure
The EOC is organized following the five major functional areas outlined in SEMS:
Management
Planning/Intelligence
Operations
Logistics
Finance/Administration
See the Palo Alto EOC Manual for position descriptions.
DEPARTMENT RESPONSIBILITIES
The National Response Framework (NRF) provides guiding principles for all levels of government to work
together when responding to a major incident. Incorporated into the NRF are 15 Emergency Support
Functions (ESF)15, described below. Note that numerous functions are only partially the responsibility of City
government.
ESF #1 Transportation Aviation/airspace management and control
Transportation safety
Restoration/recovery of transportation infrastructure
Movement restrictions
Damage and impact assessment
ESF #2 Communications
(Telecommunications)
Coordination with telecommunications and information technology
industries
Restoration and repair of telecommunications infrastructure
Protection, restoration, and sustainment of national cyber and
information technology resources
Oversight of communications within the incident management and
response structures
15 The State of California has similar California Emergency Function (CA-EF) types.
18
ESF #3 Public Works and
Engineering
Infrastructure protection and emergency repair
Infrastructure restoration
Engineering services and construction management
Emergency contracting support for life-saving and life-sustaining services
ESF #4 Firefighting wildland, rural, and urban firefighting operations
ESF #5 Emergency
Management
Coordination of incident management and response efforts
Issuance of mission assignments
Resource and human capital
Incident action planning
Financial management
ESF #6 Mass Care, Housing,
and Human Services
Mass care
Emergency assistance
Disaster housing
Human services
ESF #7 Resource Support Comprehensive incident logistics planning, management, and
sustainment capability
Resource support (facility space, office equipment and supplies,
contracting services, etc.)
ESF #8 Public Health and
Medical Services
Public health
Medical
Mental health services
Mass fatality management
ESF #9 Urban Search and
Rescue
Life-saving assistance
Search and rescue operations
ESF #10 Oil and Hazardous
Materials Response
Oil and hazardous materials (chemical, biological, radiological, nuclear,
explosive, etc.) response
Environmental short- and long-term cleanup
ESF #11 Agriculture and
Natural Resources
(and Pets)
Natural and cultural resources
Historic properties protection and restoration
Safety and well-being of household pets
19
ESF #12 Energy Utilities
Energy infrastructure assessment, repair, and restoration
ESF #13 Public Safety and
Security
Law Enforcement
Facility and resource security
Security planning and technical resource assistance
Public safety and security support
Support to access, traffic, and crowd control
ESF #14 Long-Term
Community Recovery
Community Recovery
Assistance to residents, businesses
ESF #15 External Affairs Emergency public information and warning
Media and community relations
Table 1-B outlines the City department’s responsibilities during a disaster by ESF and identifies the lead (L) and
support (S) departments for each function. In some cases, departments may share the lead function (see
footnotes).
TABLE 1-B: DEPARTMENT RESPONSIBILITIES
Department
Responsibilities ES
F
1
ES
F
2
ES
F
3
ES
F
4
ES
F
5
ES
F
6
ES
F
7
ES
F
8
ES
F
9
ES
F
1
0
ES
F
1
1
ES
F
1
2
ES
F
1
3
ES
F
1
4
ES
F
1
5
Administrative
Services / OMB S L S S
City Attorney
City Auditor
City Clerk
City Manager’s
Office S S L L
Community
Services S S16 L S S L17 S S
Development
Services S S
Fire Department S L S S S L L L S S S
Human
Resources S S
16 Community Services Open Space Rangers may support firefighting. 17 Lead for historic resources
20
Information
Technology L18 S
Library
Office of
Emergency
Services
S S S S L S S S S S S S S S S
Planning &
Community
Environment
L
S
Police
Department S L S S S S S S S S L19 L S
Public Works L20 L S S S S S S
Utilities S S S S S S L S S
18 Lead for general City IT systems; cyber. 19 Police Department Animal Services is lead for pets (incl. at shelters). 20 Public Works is lead for Aviation (Airport) and portions of restoration/recovery (debris management).
21
EMERGENCY DECLARATIONS
LOCAL PROCLAMATION
The State of California Government Code allows a local emergency to be proclaimed by a city council, county,
or by an official designated by ordinance adopted by the governing body21.
If the City of Palo Alto determines that the effects of an emergency are, or may become, beyond the capability
of local resources, a local emergency can be proclaimed. The Palo Alto City Council has empowered the City
Manager and the Director of Emergency Services to issue a proclamation of local emergency when the City
Council is not in session. A sample proclamation is included as an attachment to this EOP. Such a
proclamation of local emergency is invalid after seven days, unless ratified by the City Council. Proclamations
must be made within ten (10) days of occurrence to qualify for assistance under the California Disaster
Assistance Act and must be renewed every 14 days.
A local proclamation of emergency allows the City Manager and the Director of Emergency Services to take
measures necessary to protect and preserve public health and safety and may trigger certain reimbursement
opportunities.
STATE OF EMERGENCY
After a proclamation of a local emergency, the governing body of the City, having determined that local
resources are not sufficient to mitigate the situation, may request by letter or resolution that the Governor
proclaim a state of emergency22 in the area to fully commit state and mutual aid assistance and provide
resources to assist local government.
To support its request for a gubernatorial proclamation, it is essential that the City forward an estimate of
damage and financial loss to Cal OES through the Santa Clara County OA as quickly as possible. Estimates of
loss are an important part of the criteria that Cal OES considers when making a determination to proclaim a
state of emergency and request a Presidential Declaration of Emergency or Disaster. A copy of the request for
a Governor’s proclamation, with the following supporting data, must be forwarded, to the Santa Clara County
OA Coordinator for transmission to the Cal OES Director:
Copy of the local emergency proclamation
Initial damage estimate summary that estimates the severity and extent of the damage
The Cal OES prepares a recommendation as to the action that should be taken by the Governor. If the action
recommends a Governor’s proclamation, Cal OES prepares the proclamation. The Governor may also proclaim
a state of emergency without a local request if the safety of persons and property in the state are threatened
by conditions of extreme peril, or emergency conditions are beyond the emergency response capacity and
capabilities of local authorities.
21 See California Government Code (Sections 8630-8634) authorizing local government proclamations and Palo Alto
Municipal Code (Section 2.12.050) authorizing the City Manager or Director of Emergency Services to declare a local
proclamation of emergency, if the City Council is not in session. 22 See California Government Code (Sections 8625-8629) authorizing actions and power of the Governor to declare a State
of Emergency.
22
STATE OF WAR EMERGENCY
In addition to a State of Emergency, the Governor can proclaim a State of War Emergency23 whenever the
state or the nation is attacked by an enemy of the United States, or upon receipt by the state of a warning
from the federal government indicating that such an enemy attack is probable or imminent. The provisions of
the Governor granted under a State of War Emergency are the same as those granted under a State of
Emergency.
PRESIDENTIAL DECLARATION
Following the proclamation of a state of emergency, the Cal OES Director may recommend that the Governor
request a Presidential Declaration24 of a major disaster under the authority of Public Law 93-288. The
Governor’s request to the president is submitted through the FEMA. Supplementary justification data may be
required to accompany the state and local proclamations and Initial Damage Estimate.
OTHER POWERS
Other local, state, and federal authorities such as public health emergencies or quarantines may grant broad
powers to certain government officials to restrict movement or impose other restrictions.
23 See California Government Code (Sections 8620-8624) outlining the powers of the Governor under a State of War
Emergency 24 See Robert T. Stafford Disaster Relief Act (Public Law 93-288) as the statutory authority for most Federal disaster
response activities.
23
CONTINUITY OF GOVERNMENT
Continuity of Government (COG) is an essential function of emergency management and is vital during an
emergency/disaster situation. Continuity of government is defined as the preservation, maintenance, or
reconstitution of the civil government's ability to carry out its constitutional responsibilities. All levels of
government share a constitutional responsibility to preserve the life and property of their citizens. The
California Government Code and the Constitution of California provide the authority for state and local
government to reconstitute itself in the event incumbents are unable to serve.
For more detailed information see the City of Palo Alto COOP/COG Plan.
LINES OF SUCCESSION
When a role or function is essential to the City’s ability to complete its critical missions, a successor must be
named to assume the duties and responsibilities of that role. Table 1-C below outlines the continuity of
government lines of succession for essential city government positions.
TABLE 1-C: LINES OF SUCCESSION
Key Position Primary Successor Secondary Successor
City Manager Assistant City Manager (Public Services) Assistant City Manager (Internal
Services)
Standby Council Members may be called to serve during an emergency when a quorum of current City Council
Members is not available and a City Council meeting is urgently required. “Unavailable” is defined in PAMC
2.12.090(c) and California Government Code section 8636 as killed, missing, or so seriously injured as to be
unable to attend meetings and otherwise perform duties of the office. If there is a need for standby Council
Members to serve on the Council, standby Council Members shall be appointed to the Council to replace
unavailable members as necessary to reach seven members (PAMC section 2.12.090(c)). Order of
appointment, duration and service requirements for Standby Council Members are provided in the Council’s
“Policy for Appointment of Emergency Standby Council”.
California Government Code sections 8642-8645 provide guidance for appointing Council Members in the
unlikely event that all Council and Emergency Standby Council Members are unavailable to serve. For example,
if only one member of the Council or one member of the Emergency Standby Council is available, that person
shall have the power to reconstitute the City Council (Cal. Gov’t. Code § 8642). Should all members of the
Council and the Emergency Standby Council be unavailable, members of the City Council could 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 (Cal. Gov’t. Code § 8644).
ESSENTIAL FACILITIES: ALTERNATE SEAT OF GOVERNMENT
The primary seat of the City of Palo Alto local government is:
Palo Alto City Hall
250 Hamilton Avenue
Palo Alto, CA 94301
24
Subject to the needs of the City and the situation and conditions present, an alternate site will be selected. A
pre-identified potential alternate site has been identified at:
Cubberley Community Center
4000 Middlefield Road, T2
Palo Alto, CA 94303
Note: The Cubberley Community Center is also the pre-designated site for the City's primary shelter and may
also be used for medical treatment.
PRESERVATION OF VITAL RECORDS
City leadership will require certain vital records during a disaster. Vital Records are the documents required to
continue the mission of City departments and agencies during and after a disaster. The records will assist in
providing services both to internal City departments and external customers, such as citizens, contractors,
other government entities. Example documents may include:
Public Records
Computer system back-ups/servers
Order of Succession Ordnances or Resolutions
Plans, policies, and procedures for critical processes
Payroll information
Contracts and leases
Legal and financial records
Insurance documents
Protection of, and access to, these and other vital records requires planning and is coordinated by the Palo
Alto City Clerk. Each City department is responsible for identifying vital records, coordinating with the County
Clerk, and assigning internal responsibility for their preservation.25
25 The City of Palo Alto Office of the Clerk maintains the City’s Record Retention Policy which describes each department’s
vital records. http://www.cityofpaloalto.org/civicax/filebank/documents/15226
City of Palo Alto
Emergency Operations Plan Section II – Attachments
Section II: Attachments
City of Palo Alto
Emergency Operations Plan Section II – Attachments
23
ATTACHMENT 1: AUTHORITIES AND REFERENCES
LOCAL AUTHORITIES & REFERENCES
The plan is promulgated under the authority of the City Manager, ratified by the City Council, after having
been reviewed by the City of Palo Alto's Emergency Services Council (which includes the Palo Alto/Stanford
Citizen Corps Council), per Palo Alto Municipal Code Section 2.12.080.
The following authorities and references are applicable:
Palo Alto Municipal Code Section 2.12 Emergency Organization and Functions
STATE AUTHORITIES & REFERENCES
State authority is to be found, in part, in California Emergency Services Act (Chapter 7 of Division 1 of Title 2 of
the Government Code). California state and local jurisdictions use the Standardized Emergency Management
System as outlined in Chapter 1 of Division 2 of Title 19 of the California Code of Regulations and the California
Government Code §8607 et sec.
The following authorities and references are applicable:
Standardized Emergency Management System Regulations: California Code of Regulations, Title 19,
Division 2, Chapter 1
Disaster Assistance Act Regulations: California Code of Regulations, Title 19, Division 2, Chapter 6
Local Emergency Prevention Measures for County Health Official: California Health and Safety Code §
101040
California Master Mutual Aid Agreement
California Disaster Assistance Act
Orders and Regulations that may be promulgated by the Governor during a State of Emergency or a
State of War Emergency
FEDERAL AUTHORITIES & REFERENCES
Federal authority is to be found in the Robert T. Stafford Disaster Relief and Emergency Assistance Act of 1988
(Public Law 93-288) and in Homeland Security Presidential Directive 5, “Management of Domestic Incidents”
and Homeland Security Presidential Directive 8, “National Preparedness.” The emergency management system
used nationally is the National Incident Management System (NIMS).
The following authorities and references are applicable:
Robert T. Stafford Emergency Disaster Relief and Emergency Assistance Act (42 USC § 5121 et seq.)
Federal Disaster Relief Regulations: 44 CFR Part 206
National Incident Management System, HSPD-5, Management of Domestic Incidents
National Response Plan, U.S. Department of Homeland Security, December 2004
National Response Framework, U.S. Department of Homeland Security, March 2008
City of Palo Alto
Emergency Operations Plan Section II – Attachments
24
ATTACHMENT 2: SAMPLE PROCLAMATION
SAMPLE PROCLAMATION
WHEREAS, Sections 2.12.050 of the City of Palo Alto Municipal Code empowers the Director of
Emergency Services (City Manager) or the Assistant Director of Emergency Services (Office of
Emergency Services Chief) to proclaim the existence or threatened existence of a local emergency
when said City is affected or likely to be affected by a public calamity and the City Council is not in
session, and;
WHEREAS, the _____________________ (Director of Emergency Services/Assistant Director of
Emergency Services) of the City of Palo Alto does hereby find; That conditions of extreme peril to the
safety of persons and property have arisen within the City, caused by _____________________(fire,
flood, storm, mudslides, torrential rain, wind, earthquake, drought, or other causes); which began on
the ______ day of ________________, 20_____. and;
That these conditions are, or are likely to be, beyond the control of the services, personnel,
equipment, and facilities of the City, and;
That the City Council of the City of Palo Alto is not in session and cannot immediately be called into
session;
NOW, THEREFORE, IT IS HEREBY PROCLAIMED that a local emergency now exists throughout the City
of Palo Alto, and;
IT IS FURTHER PROCLAIMED AND ORDERED that during the existence of said local emergency the
powers, functions, and duties of the emergency organization of the City shall be those prescribed by
state law, by ordinances, and resolutions of this City, and; That this emergency proclamation shall
expire in 7 days after issuance unless confirmed and ratified by the governing body of the City of Palo
Alto.
Dated: __________________________ By:______________________________
Director/Assistant Director of Emergency Services*
Print Name_________________________
Address____________________________
*Identify appropriate title
Note: It may not be necessary for the City to proclaim a local emergency if the County has already
proclaimed an emergency that applies to the entire geographic County area or for a specific area that
includes the City.
(Source: Cal OES, Emergency Proclamations: A Quick Reference Guide for Local Government)