HomeMy WebLinkAboutJefferson County - Port Townsend 2018 Emergency Management PlanRevised March 2018
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Table of Contents – Basic Plan
I. Purpose, Scope, Situation Overview, Assumptions ........................ 5
1. Hazard Analysis Summary ........................................................................... 6
2. Structure of the Basic Plan ........................................................................... 7
II. Concept of Operations ..................................................................... 10
1. Whole Community Involvement .................................................................. 11
2. Activation Levels ........................................................................................ 14
3. Relation to Mitigation .................................................................................. 17
4. Relation to Response Plan ......................................................................... 17
5. Relation to Recovery .................................................................................. 22
III. Direction, Control, and Coordination .............................................. 24
1. Operational Areas ............................................................................... 24
IV. Organization and Assignment ......................................................... 26
1. County Structure ................................................................................. 27
2. City Structure ..................................................................................... 28
3. Incident Management Team ................................................................. 29
V. Responsibilities ................................................................................ 30
1. State Departments .............................................................................. 32
2. Federal Agencies ................................................................................ 34
3. Mutual Aid Agreements........................................................................ 35
VI. Information Collection, Analysis, Dissemination ........................... 36
1. Public Information Networks ................................................................. 36
VII. Communications ............................................................................... 38
1. Operational Communications................................................................ 38
VIII. Administration, Finance, and Logistics ..............................................40
1. Administration..................................................................................... 40
2. Finance ............................................................................................. 40
3. Logistics ............................................................................................ 43
IX. Development and Maintenance ............................................................47
1. CEMP Maintenance Schedule .............................................................. 47
X. Authorities and References ..................................................................48
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1. Annex 1.10.1 Glossary ........................................................................ 49
a. Acronyms ............................................................................... 55
2. Annex 1.10.2 Lines of Succession......................................................... 56
3. Annex 1.10.3 Multi-Agency Coordination System .................................... 57
4. Annex 1.10.4 Evacuation ..................................................................... 60
5. Annex 1.10.5 Recovery........................................................................ 66
6. Annex 1.10.6 Lead and Support Agencies.............................................. 78
7. Annex 1.10.7 Disaster Roles ................................................................ 80
8. Annex 1.10.8 ESF Cross Reference ...................................................... 84
9. Annex 1.10.9 List of Partner Agency Emergency Plans............................ 86
10. Annex 1.10.10 Declaration of Emergency .............................................. 87
Lead and Support Agencies
1. State and Local Departments ..................................................................... 91
2. Public and Private Entities ......................................................................... 92
Hazard Specific Procedures
1. Annex A Earthquakes ................................................................................ 94
2. Annex B Landslides .................................................................................. 99
3. Annex C Flooding ................................................................................... 101
4. Annex D Severe Weather ........................................................................ 105
5. Annex E Tsunami ................................................................................... 108
6. Annex F Wildfire ..................................................................................... 114
7. Annex G Terrorism.................................................................................. 116
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Section 1.1
Purpose, Scope, Situation Overview, and Assumptions
Version 2018.01
THE BASIC PLAN -
The Emergency Management Basic Plan is the central defining element of the
Comprehensive Emergency Management Plan (CEMP) required by law. It is a macro-
view of how the authority and responsibility for emergency management will be
implemented. The Basic Plan is adopted by individual resolution of the Jefferson County
Board of County Commissioners and the Port Townsend City Council.
The supporting elements of the CEMP, (subject to frequent modifications to assure
currency), are consistent with the Comprehensive Planning Guide (CPG), State Plan, and
are included in the overall strategy by reference. The CEMP, in its various component
parts, identifies the hazard or threat, establishes the strategy, guides operations, and
organizes resources to meet the emergency response and recovery needs of the
community.
NATIONAL RESPONSE FRAMEWORK - The National Response Framework (NRF),
approved by the President, explains a common discipline for managing incidents at the
local, state, or national level. It is built upon scalable, flexible, and adaptable coordinating
structures in order to align key roles and responsibilities. With this unified strategy comes
the duty of local government to plan for effective shared response.
The common discipline and structures of disaster response recommended by the NRF
are based on best practices for managing incidents at all levels of complexity. Local
planning will be consistent with this national initiative. The NRF describes the common
principles, roles, responsibilities, and coordinating structures for response to an incident.
The National Response Framework establishes a universal, standardized method of
coordination known as the National Incident Management System (NIMS).
NATIONAL INCIDENT MANAGEMENT SYSTEM (NIMS) - NIMS provides a nationwide
template to enable Federal, State, local, and tribal governments, the private sector and
non-governmental organizations to work together. NIMS represents a core set of
doctrine, concept, principles, terminology, and organizational processes to foster
collaboration at all levels.
The Jefferson County CEMP is based on NIMS throughout the entire spectrum of
planning, training, exercises, and operations coordination. This approach is in harmony
with State and Federal expectations.
The Incident Command System (ICS), the resource coordination and management
module of the National Incident Management System, is recognized and employed by all
local emergency management partner agencies involved in complex multi-agency and
multi-jurisdiction operations.
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PURPOSE - This emergency
management plan and program
defines how we will carry out the
duties of the governments of Jefferson
County and the City of Port Townsend
to meet the needs of our
geographically unique community in
the event of a major emergency or
disaster.
Our vision is an inclusive agenda of preparedness and collaboration among government
and non-government entities, the private sector, and our citizens to restore critical
services and re-establish public health and order following a disaster. It is through this
process of joint endeavor that we can reduce the impact of the emergency and make the
best use of our strengths and resources.
SCOPE AND APPLICABILITY – The Jefferson County Comprehensive Emergency
Management Plan addresses the disaster responsibilities of the personnel, services,
equipment, supplies, and facilities of the offices and departments of Jefferson County and
the City of Port Townsend, as well as the emergency roles of those special purpose
districts, quasi-municipal corporations, private sector organizations and commercial
resources that participate in the overall program by agreement or understanding.
The CEMP meets the requirements of the law by defining how a program for emergency
management will be implemented. The CEMP, in its various component parts, identifies
the hazard or threat, establishes the strategy, guides operations, and organizes
resources to meet the emergency response and recovery needs of the community.
THE SITUATION OVERVIEW - The North Olympic Peninsula presents some special
challenges to emergency planning. With our desirable rural character comes a shortfall
in response and recovery resources (surge capacity) necessary to meet all emergency
needs. Isolation from timely outside aid, caused by the damage to just a few roads or
bridges, extends our self-sufficiency target to 30 days. In the event of a larger event
impacting the Western Washington region, we are a lower priority relative to the larger
population centers, requiring even more capacity for self-sufficiency. These unique
challenges highlight the necessity for planning, coordination, and organized sharing of
response and recovery resources.
1. HAZARD ANALYSIS SUMMARY - Jefferson County consists of 1,803 square miles of
the North Olympic Peninsula. Eighty percent of the area is federally owned forest lands,
dividing the county into three distinct geographic zones: the populated eastern region,
the extreme mountainous central core consisting mostly of Olympic National Park, and
the thinly populated western coastal shelf. A single incorporated city, Port Townsend, is
the county seat. The county consists of 31,000 permanent residents and due to tourism,
the county can see as many as 2.5 million visitors throughout the year. The most
common occurring hazards to the county are winter storms, damaging winds and flooding
with earthquake and tsunamis serving as potential major hazards. Further information on
hazards can be found on the Jefferson County Department of Emergency Management
website.12
1 http://www.co.jefferson.wa.us/1184/Library---Hazard-Specific-Information
2 Information on specific hazards can be found in Section 4 Annexes
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2. CAPABILITY ASSESSMENT
a. Preparedness Capability
This county takes neighborhood planning very seriously and has provided the
ability for dozens of areas to have access to planning for major events. DEM
advises all residents to plan for 30 days.
b. Response Capability
Jefferson County is comprised of five fire districts, a sheriff’s department, and a
city police department. There are approximately 100 career and volunteer
firefighters within the county and another 54 law enforcement officers between
the sheriff and police departments. These numbers are also supplemented by
mutual-aid agreements with Clallam and Kitsap counties in the event that
Jefferson County resources are unavailable or overwhelmed in a given
emergency. The county will likely find itself cut off in the event of a major
earthquake due to the limited transportation networks in and out of the area and
thus, will require specific methods (air or barge) for outside resources to reach
the county.
3. MITIGATION OVERVIEW – The 2017 Jefferson County-City of Port Townsend Natural
Disaster Hazard Mitigation Plan3 is an approved document that addresses strategies for
highlighted hazards listed in the Hazard Identification and Vulnerability Analysis.
ASSUMPTIONS AND LIMITATIONS - Not all emergency/disaster situations can be
foreseen, and it would not be possible to define all scenarios that might occur. Some
limitations should be noted:
Local resources may be overwhelmed, damaged, or otherwise limited in their ability to
respond as planned. It may not be possible to meet all needs under extreme
circumstances.
The lack of funds or a shortage of resources may limit the ability to conduct emergency
operations as planned.
The inability to disseminate local warnings may result in some citizens not receiving
emergency information. This plan relies heavily on the capabilities of the State and
Federal governments and the news media.
Geographic isolation or impaired access may limit or prevent timely delivery of outside
aid.
Resources and time may constrain the ability of the program to meet all objectives, and
require prioritization of planning, response, and recovery efforts.
AGENCY/DEPARTMENT-FOCUSED EOP FORMAT - Jefferson County utilizes the
Agency/Department EOP format that FEMA introduced in the Comprehensive Preparedness
Guide 101. Due to the size and makeup of the county, this was determined to be the best
route forward. The plan’s major elements are consistent with the requirements of the law and
best practices, and are centered on the standards and expectations of the State of
Washington Comprehensive Emergency Management Plan.
3 http://www.co.jefferson.wa.us/DocumentCenter/View/3318
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STRUCTURE OF THE BASIC PLAN - The Plan is divided into ten sections:
§ 1.1 – Purpose, Scope, Situation Overview, and Assumptions– providing an overview of
the emergency management plan and program and an outline of the concept of
operations (this document).
§ 1.2 – Concept of Operations. This section defines the mechanism for coordination of
multiple agencies and organizations involved in the emergency or disaster, and explains
the roles and responsibilities of the Emergency Operations Center and the Incident
Management Team. This section also explains Whole Community involvement for the
county.
§ 1.3 – Direction, Control, and Coordination. This section discusses how the first line
response agencies and their support services will conduct emergency operations under
the overall coordination schematic.
§ 1.4 – Organization. Section 1.4 covers the organization of hierarchy of the city, county,
and emergency management, the Incident Management Team and the breakdown of
ESF.
§ 1.5 – Responsibilities. The responsibilities of local, state, federal, non-government, and
individual agencies and organizations in emergencies and disasters
§ 1.6 – Information Collection, Analysis, and Dissemination. Identifies the type of
information needed, the source of the information, who uses the information, how the
information is shared, the format for providing the information, and any specific times the
information is needed.
§ 1.7 – Communications. Description of the communications protocols and coordination
procedures used between response organizations during emergencies and disasters.
§ 1.8 – Administration, Finance and Logistics. This element addresses policy-level
support, financial issues and procurement, damage assessment, and coordination of
short term and long term recovery. Declaration of Emergency, the enactment of
emergency powers, and continuity of government are also outlined here.
§ 1.9 – Plan Development and Maintenance. This defines the ongoing process of training
within the jurisdiction and the task of keeping this document up to date.
§ 1.10 – Authorities and References. This section includes a matrix of roles and
responsibilities, a compendium of legal references and other documents that support the
strategic concept of operations.
SUPPORTING PLANS AND PROCEDURES - Local emergency response and recovery partners
develop internal plans and procedures that support the overall concept of operations. Local
agency plans identify how they will conduct and coordinate their activities to support collaboration
with all the partners under a single overarching concept of operation. The major supporting plans
are included in the CEMP by reference.
These partner agencies recognize the necessity for overall coordination in accordance with this
plan, but retain their full authority and responsibility for direction and control of their own assets
and execution of their individual agency plans and procedures.
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DISASTER ROLES AND RESPONSIBILITIES - Overall coordination is implemented by a multi-
agency/multi-jurisdiction Incident Management Team at the Emergency Operations Center
(EOC). The Incident Management Team (IMT) is structured according to the Incident Command
System.
INDIVIDUAL RESPONSIBILITIES - The success of the plan is based on the assumption that our
citizens will take some personal accountability for their own preparedness. A number of
neighborhood disaster preparedness organizations have taken up this important challenge.
Individual and family self-sufficiency and community resiliency for 30 days is the objective.
Neighborhood Preparedness Groups (NPGs) will be discussed in detail in Section 1.6 – Public
Affairs and Community Outreach.
Public education and disaster preparedness outreach materials are made available from a
number of sources to encourage and support individual and family preparedness.
PARTICIPATION IN THE PLANNING PROCESS
Development of emergency plans and procedures, the
design and conduct of drills and exercises, and the
ongoing training necessary to keep the program current is
facilitated by Emergency Planning Work Groups. The
Emergency Planning Work Groups are the core of the
planning process and provide valuable insight into how
community assets can be maximized.
Collectively the Emergency Planning Work Group makes
up the Jefferson County – Port Townsend Regional
Emergency Preparedness network (known as J-PREP). J-
PREP is an ongoing forum of government officials, county
and city departments, emergency response agencies, non-
government organizations, schools, faith-based organizations, local businesses, organized
neighborhoods, and citizens at-large with a common interest in disaster preparedness, response,
and recovery.
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Section 1.2
Concept of Operations
Version 2018.01
1. GENERAL
a. CONCEPT OF OPERATIONS – Depending on the nature and scope of the incident,
The Department of Emergency Management (DEM) coordinates community warnings
and alerts, supports field operations as needed, stands up an emergency operations
center for overall coordination of response, facilitates damage assessment, and
supports the coordination of restoration and recovery following a major disaster.
DEM is the primary conduit for state and federal disaster assistance, and provides
the pivot point for multi-agency multi-jurisdictional collaboration.
b. EMERGENCY OPERATIONS CENTER (EOC) - The EOC is a dedicated facility for
the joint agency coordination of overall response and recovery according to this plan,
and was established at DEM in Port Hadlock.
An Alternate Emergency Operations Center (A-EOC) is established at Fire Station 1-
6 in the City of Port Townsend. Continuity of Operations under a wide range of
conditions requires robustness of the physical plant. Backup (alternate)
communications, emergency power, extended operations support, are important
design components resident in the EOC. The City of Port Townsend, in cooperation
with East Jefferson Fire Rescue, maintains a Coordination Center at Station 1-6 (co-
located with the A-EOC) for coordination of City assets.
c. EOC INCIDENT MANAGEMENT TEAM - An EOC Incident Management Team
(EOC IMT) is established to provide overall coordination and support4. It is a
combination of Emergency Management staff, partner agency representatives, and
trained volunteers. The team is organized according to the Incident Command
System (ICS) consistent with the NIMS compliance requirement.5 The City of Port
Townsend also has a management team that acts in coordination with the EOC IMT
through a cooperate agreement. .
The EOC IMT acts as a coordinating body to aid and assist Unified Command by
providing central coordination for regional incidents, and while acting in support for
site-specific events.
The Emergency Manager leads the EOC Incident Management Team. The EOC IMT
may be expanded to meet the nature and scope of the incident.
d. PARTNER AGENCIES AND ORGANIZATIONS - Response to an emergency or
disaster under this plan employs a partnership approach for bringing to bear all the
available assets and capabilities needed to reduce injury and mitigate damage. The
community partners, by agreement, support the emergency response agencies as
needed to provide critical services to our citizens.
Contact with those partners is provided by the EOC Incident Management Team
utilizing a wide variety of communications tools. Each stakeholder is afforded unique
connectivity to the team for development of plans, training, exercises, and emergency
4 The EOC IMT is a NIMS Type 4 local all-hazards, multi-discipline team designated for overall
coordination from the Emergency Operations Center.
5 Additional reference: Attachment 1.9.6 – Incident Management Team Organization Chart
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operations coordination. These partnerships are multilateral, and coordinated
through a central point to assure the best use of resources.
e. INTERNAL CONTROL RETAINED - Each partner organization retains its own
identity and internal control. There is no intent in this plan to subordinate any entity.
Coordination and support through the Incident Management Team in the Emergency
Operations Center is voluntary and undertaken by agreement in the best interest of
the community.
The EOC Incident Management Team is structured to provide an identifiable point of
contact for each partner discipline. Participating emergency response agencies
maintain their incident command status, while recognizing overall coordination of the
Emergency Operations Center. Active two-way communication is essential to ensure
optimum efficiency, timeliness, and effectiveness.
Nothing in this plan is intended to interfere with the existing chain-of-command of any
participating agency or organization.
f. AGENCY REPRESENTATIVES - Coordination is carried out by the assignment of
representatives from each partner agency to the EOC Incident Management Team.
Some agencies require direct representation while others recognize surrogates
based on the Incident Command System structure or coordinate through the EOC
Liaison.
Agency representatives to the EOC Incident Management Team are authorized to
speak for their parent agency regarding coordination of emergency operations.
2. WHOLE COMMUNITY INVOLVEMENT
a. STATEMENT OF NON-DISCRIMINATION
The Americans with Disabilities Act (ADA) is a federal law enacted in 1990 that
prohibits discrimination against individuals with disabilities in employment, public
accommodations and state and local government operations and services. Under the
ADA, anyone who has a physical or mental impairment substantially limiting one or
more major life activities, has a record of such impairment or is regarded as having
such impairment; is considered a person with a disability. In terms of employment,
the law defines a qualified individual with a disability as a person who can perform
the essential functions of the job with or without a reasonable accommodation. Under
the ADA, it is unlawful to discriminate in employment against individuals with
disabilities or to refuse to reasonably accommodate the known disability of an
otherwise qualified individual, unless to do so causes an undue hardship.
Jefferson County and the City of Port Townsend will also ensure that there is no
discrimination against a qualified individual with a disability in the programs, services
or activities it provides. Jefferson County and the City of Port Townsend is committed
to accommodating the known disabilities of its employees and citizens.
Equal opportunity is the policy of this Employer and employment opportunities will
NOT be limited because of race, color, religion, sex, or nationality and will be so
applied. This Employer affirmatively seeks to employ and advance qualified Veterans
of Vietnam and recent conflict as identified in Federal Law and disabled Veterans.
Hiring, promotions, lay-off, discharge, rates of pay, training and other employment
activities will be consistent with this Equal Opportunity Statement. The Employer
abides by the principles of the Age Discrimination in Employment Act (ADEA) and
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does not unlawfully discriminate on the basis of age. This Employer complies with the
Americans with Disabilities Act (ADA) when requested to make an accommodation.
b. SPECIAL NEEDS POPULATIONS – Emergency preparedness programs address
the unique needs of persons with disabilities. These citizens are disproportionately
vulnerable and require reasonable accommodation in all elements of the
program. Examples of these conditions include provisions to notify people with
auditory impairments or cognitive disabilities, assistance with evacuation and
transportation, provision of ADA shelter or temporary housing, and assistance with
recovery after an emergency or disaster.
Limited resources make such accommodation challenging. With more than a third of
the county population being defined as “medically dependent” meaning they require
medicine to sustain life or control. Jefferson County and the City of Port Townsend is
working to meet those challenges by acquiring a better picture of the need in the
community, including a disabilities component in all future emergency planning, and
by involving people with different types of disabilities in an ongoing planning
process.
All associated emergency plans will include a special needs component to assure
this segment of the population is included at every level. The goal is to integrate the
diverse elements of the community into a single, comprehensive emergency planning
and response strategy.
c. PEOPLE WITH ACCESS AND FUNCTIONAL NEEDS IDENTIFIED – Vulnerable
citizens include those who may need additional assistance in an emergency because
of reduced mobility, dependency on medical technology, impaired vision or hearing,
fragile age, or other factors. This may include persons who are at a high risk from
harm due to a significant limitation in their personal care or self-protection abilities.
For some, loss of support due to power or communications outages, or transportation
and supply disruptions, may be the only risk factor.
A master registry of persons with special needs is not maintained at the county level
due to the difficulty of assuring currency. Rather, reliance will be placed on service
providers and caregivers to be aware of unique conditions and report emergencies
through channels. Some emergency response agencies maintain basic information
on vulnerable persons within their jurisdiction who may require assistance.
d. SPECIAL NEEDS COORDINATION – A Task Force of health care agencies, service
providers, adult care facilities, support groups, and individuals6 can be established in
the EOC Community Operations Branch to coordinate emergency services to
people with access and functional needs.
e. EMERGENCY PLANNING INTEGRATION POLICY (EPIP) – The objective of the
EPIP is to integrate the diverse elements of the community into a single,
comprehensive emergency planning and response strategy. An Emergency Planning
Integration work force will be convened to oversee meeting the project goals and
objectives. The outcome is to assure inclusion of a “persons with disabilities/special
needs” component in all training, drills, exercises, and public education and outreach,
emergency response and recovery to the extent possible within available resources
6 Jefferson County component of the Region 2 Health Care Coalition
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f. ACCOMMODATING THE UNIQUE NEEDS OF CHILDREN IN A DISASTER – The
needs of children, particularly post-disaster, including reunification of children with
families, childcare services, identification of special resources, lead coordinating
agency identification, post-disaster counseling, and other support services.
Coordination of this is done with local schools.
(From a poster designed by a 4th grade student at Swan School, Port Townsend)
g. IDENTIFICATION OF NEEDS FOR HOUSEHOLD PETS AND SERVICE ANIMALS
In an emergency a County Animal Response Team (C.A.R.T.) can be established
as the central organizing unit for volunteers, coordinated through the Community
Operations Branch in the EOC. The C.A.R.T will be formed from volunteers in the
community and the Jefferson County Humane Society. Efforts to evacuate and
shelter pets will be conducted in conjunction with the evacuation of their owners
affected by emergent circumstances when it can be safely accomplished. Whenever
possible, animals should be sheltered in close proximity to their owners to meet the
requirements of the Pets and Evacuation and Sheltering Standards of 2006, PL. 109-
308.
Those with service animals will be allowed to bring their animals into the shelter
with them. Service animals are easily identifiable by the special harnesses or vests
they wear, however shelter staff may ask two questions to determine the status of the
animal:
(1) “Is this a service animal required because of a disability?”
(2) “What work or tasks has the animal been trained to perform?”
Jefferson County EOC will keep an inventory of animal response and welfare groups,
horseman associations, and shelters to facilitate pet welfare in a disaster.
h. LEP PROGRAM
Department of Emergency Management utilizes Voiance Language Services for
assisting with those with LEP needs. This system is also utilized by JeffCom, the
local 911 dispatch center, when handling everyday calls.
3. RELATIONSHIP TO PREVENTION & PROTECTION PLAN
Jefferson County and the City of Port Townsend have put a lot of time and effort into
creating a well prepared community. Because of distance, geography and population
size, DEM and city and county officials promote citizens to have the capability to sustain
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themselves for thirty days after a disaster. DEM works closely with the Neighborhood
Preparedness (NPREP) which is a volunteer community organization that helps build up
individual and neighborhood for post-disaster sustainability and education.
NPREP team has currently trained over 140 neighborhoods within Jefferson County and every
year an additional ten to fifteen neighborhoods are trained. The training includes Map Your
Neighborhood (both the urban and rural), preparing to shelter in place, preparing emergency grab
and go bags for humans and pets, water and sanitation, communications, assisting the vulnerable
population, basic first aid, securing important documents, utilities shut-off and basically planning
for emergency preparedness. The NPREP team also works with local animal shelters and
veterinarians and has plans in place for sheltering of animals during a disaster
Jefferson County Department of Emergency Management has released many publications for the
purpose of public knowledge ranging in everything from specific hazards, to vulnerable
populations, to managing utilities in an emergency. Perhaps the best publication that is given to
the public is the Think, Plan, Do! A guide to prepare for emergencies and disasters. Many of
these publications are printed in English and Spanish to help those with LEP needs.
4. CONTINUITY OF GOVERNMENT
The law provides the authority for identification of a succession of powers in an emergency.7 The
Board of County Commissioners and the City Council have adopted resolutions defining how their
powers and duties will be uninterrupted.89 In addition, each department or office will designate a
line of succession for the discharge of emergency actions in the event the incumbent office holder
or department head is unavailable10. The available responsible person shall have full authority of
the incumbent office holder or department head in carrying out the emergency actions of the
Department
5. ACTIVATION
a. PROCESS OF ACTIVATION
Activation Triggers: These indicators show the type of incidents that would result
in activation of the EOC
FELT INCIDENT: Incident is observable in the community-at-large and
causes public angst and unique media interest. Minimal or no damage is
immediately evident
DEVELOPING INCIDENT: When there is an indication that a hazard
may be imminent that could require EOC involvement (precautionary
activation)
CLASSIFIED INCIDENT: Listed in the hazard-specific protocols as
necessitating activation of the EOC at some level (multiple agency
response).
AUTOMATIC RESPONSE: Requiring activation based on the nature and
scope of the incident (rapid activation).
REQUESTED: Activation in support of a significant site-specific field
operation when requested by the on-scene incident command agency
(support activation).
b. AUTHORITY OF ACTIVATION
Authority to activate falls under the Emergency Management Director. If the identified
higher authority is unavailable, the following chain of authority will be observed:
7 RCW 42.14
8 Additional reference: Jefferson County Resolution No. 54-05 – Continuity of Government in Case of an
Emergency or Disaster
9 City of Port Townsend Municipal Code 9.40.100 Succession
10 Line of Succession can be found in Annex
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1. Director
2. Assigned Duty Officer (or alternate)
3. JeffCom Director
4. Sheriff
5. Police Department Deputy Chief (City Command activation)
6. Deputy Chief East Jefferson Fire and Rescue (City Command
activation)
c. EOC/ECC ACTIVATION LEVELS
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d. LOCATION OF PRIMARY AND ALTERNATE EOC
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6. RELATIONSHIP TO MITIGATION PLAN
a. COMMUNITY RESILIENCE
Jefferson County and the Department of Emergency Management share a strong
relationship with the community in matters pertaining to outreach and safety.
Considering that Jefferson County has the largest population of citizens over the
age of 65, as well as an estimated 2.5 million visitors a year, the county holds a
unique vulnerability. Many of these citizens have come together to build
Neighborhood Preparedness Groups, of which there are over a hundred, in order
for increased community readiness. Once known, these NPGs receive resources
and training from DEM in order to set these groups up for success. DEM has also
held workshops and seminars with guest speakers in a variety of topics ranging
from how to deal with Tsunami’s to building awareness of the vulnerability of the
special populations groups.
b. LONG-TERM VULNERABILITY REDUCTION
Jefferson County and the City of Port Townsend are constantly taking steps to
ensure the long-term safety of its citizens through public information campaigns,
workshops, and infrastructure projects designed to improve survivability in the
event of a disaster scenario.
c. RISK AND DISASTER RESILIENCY ASSESSMENT
Much of the data is found in the 2017 Jefferson County – City of Port Townsend
All Hazard Mitigation Plan11
d. THREATS AND HAZARDS IDENTIFICATION
Jefferson County Department of Emergency Management makes strong use of
resources provided by Washington State EMD as well as those in-house. The
county utilizes several Geographic Information System employees build many of
the models used to educate the public and DEM on where vulnerabilities and
risks lie.
7. RESPONSE MISSION
a. INFRASTRUCTURE SYSTEM
The City’s Department of Public Works maintains the city infrastructure. It is
dedicated to street maintenance, wastewater treatment, surface water
management, and the maintenance of city buildings.
In addition, the City Department of Public Works provides engineering services
for construction of public infrastructure, support for the Development Services
Department and capital improvements program.
The County Department of Public Works has responsibility for roads, traffic, and
bridges in the unincorporated portions of Jefferson County. It is also responsible
for surface water control within its right of way, solid waste management, and
hazardous waste management. Parks and Recreation programs and facilities are
also under Public Works.
b. PUBLIC WORKS SURGE CAPACITY AND DISASTER STRATEGY
Both the City and County Departments of Public Works are signatory to the
Washington State Public Works Emergency Response Mutual Aid Plan.
Overall coordination of Public Works activities is accomplished through
representation on the EOC Incident Management Team in the Operations
11 http://www.co.jefferson.wa.us/DocumentCenter/View/3318
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Section. (Public Works unit when activated). The City Department of Public
Works may work through the City Command Center when activated.
c. WATER DISTRIBUTION SYSTEMS
The City of Port Townsend Utilities Dept. (within the City Department of Public
Works) operates a water distribution within the city. Private wells, and some
small private water systems, make up the majority of the household water
sources in the county. Jefferson County Public Utility District No. 1 maintains
several community water systems including Gardiner, Glen Cove, Tri-Area,
Bywater Bay, and several smaller units.
The City of Port Townsend water system is a gravity system with surface water
diversions on the Big Quilcene and Little Quilcene rivers connected to a 28 mile
gravity operated transmission pipeline. Lords Lake and City Lake provide for
water storage.
d. WATER DISTRIBUTION SURGE CAPACITY AND PLANNING STRATEGY
Public water systems maintain emergency plans and procedures, coordinated
with this plan, for response to water emergencies12. There is some connectivity
between systems allowing for limited redirection of water resources to systems in
need.
Water utilities are represented on the Incident Management Team through the
Operations Section (Public Works unit when activated).
e. ELECTRICITY DISTRIBUTION SYSTEMS
Jefferson County is served by four electrical utilities:
Mason County PUD in the Brinnon area (a small segment of SE Jefferson
County).
Jefferson County PUD in the City of Port Townsend and East Jefferson County
(except the Brinnon area served by Mason County PUD).
Grays Harbor PUD in SW Jefferson County (North to approximately Kalaloch).
Clallam County PUD in NW Jefferson County (Gardiner) and Bogachiel River
South to Kalaloch.
f. ELECTRICAL DISTRIBUTION SYSTEMS SURGE CAPACITY AND PLANNING
STRATEGY
There is interconnectivity among the electric utilities providers that can
accommodate moderate shortages. In addition, mutual aid plans and agreements
cover sharing of repair resources.
Emergency restoration of public power to the majority of eastern Jefferson County is defined in the Jefferson County Public Utility District Emergency
Restoration Plan (ERP) which is coordinated with this plan. Prioritization of
emergency response is coordinated through the PUD power command center. In
a major emergency, a PUD management representative will be assigned to the
Operations Section in the Emergency Operations Center.
12 City of Port Townsend Water Utility Emergency Response Plan.
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g. CRITICAL TRANSPORTATION
Jefferson Transit and Jefferson County Schools provide access to dozens of
buses that can be gathered in a short period of time for evacuation or movement
of personnel.
h. ENVIRONMENTAL RESPONSE
The Environmental Health section of the Jefferson County Department of Public
Health is the lead agency for coordination of response to animal and crop
disease outbreaks. The Emergency Operations Center Incident Management
Team would be activated to support this activity.
i. FATALITY MANAGEMENT SERVICES
The Jefferson County Prosecutor is the Coroner. The death of all persons, with
certain limited exceptions, falls within the jurisdiction of the County Coroner. The
Coroner is responsible for identification, determination of cause of death,
notification of next of kin, and disposition of unclaimed bodies.
Deputy Prosecutors assume the duty of Deputy Coroner. The Coroner is not
medical examiner, and outside ME services are used when an autopsy is
required.
A single funeral home in Port Townsend assists with removal and temporary
storage of human remains. A Multiple Fatality Plan defines surge capacity for
disposition of human remains above local capabilities. Law enforcement
personnel can be authorized by the Coroner to act as Deputy Coroner in
emergency circumstances.
The Coroner is represented on the EOC Incident Management Team by the Law
Enforcement Unit in the Operations Section.
j. FIRE MANAGEMENT AND SUPPRESSION
The Fire Districts maintain formal and informal agreements with adjacent fire
agencies for augmentation of local forces as needed. Some of these agreements
call for automatic response to certain kinds of calls. Formalized mutual aid
understandings address cost recovery and other administrative issues relating to
sharing resources.
When immediate Jefferson County mutual aid resources are exhausted, and the
incident is not resolved, the Incident Commander may request activation of the
Olympic Region Fire Defense Plan, mobilizing requested resources from Clallam
County. Should additional resources be needed, the State Fire Mobilization Plan
(coordinated through the State Fire Marshal’s Office) can be implemented to
provide assistance from throughout the state.
Fire Districts have the option to establish Area Command. Area Command
means they assume direct control and prioritization of their own assets within
their individual areas of operation. Area Command protocols provide for the
prioritization of limited resources at the district level.
Overall coordination of Fire/Emergency Medical Services is accomplished by
representation on the EOC Incident Management Team in the Operations
Section. Fire/EMS may also be assigned to Unified Command in some
circumstances.
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k. MASS CARE SERVICES
Mass Care for Jefferson County is handled by the ESF-6 director in conjunction
with ESF-8, Department of Emergency Management, and other local agencies.
The ESF-6 director is responsible for coordination of mass care, emergency
assistance, housing, and human services; coordinates with neighborhood
organizations and community relief organizations to provide direct relief and
recovery services throughout the community; coordinates unmet needs activities.
The Mass Care Branch is the primary point of contact for Individual Assistance
during disaster recovery when a Presidential Declaration for a major emergency
makes Stafford Act programs available.
l. SEARCH AND RESCUE OPERATIONS
A Search and Rescue (SAR) capability has been established by the Jefferson
County Sheriff. The SAR organization is focused on wilderness and rough county
search and rescue, and operates under the program standards established by
the State of Washington.
Local SAR capabilities are augmented by mutual aid arrangements with adjacent
jurisdictions. Additional resources, when needed (including specialty services,
aviation support, etc.), are requested through the State Emergency Management
Duty Officer.
Urban SAR (collapsed buildings, burning structures, etc.) is performed by
certified fire/EMS personnel. JCSO SAR resources are available to support
fire/EMS efforts when appropriate.
Search and Rescue is coordinated through the Law Enforcement Unit of the
Operations Section in the EOC.
m. ON-SCENE SECURITY, PROTECTION, LAW ENFORCEMENT
The Jefferson County Sheriff’s Office and the Port Townsend Police Department
comprise the local law enforcement agencies. The Sheriff is an elected
Constitutional Officer of the County; the Chief of Police is appointed by the City
Manager.
The Sheriff’s Office performs law enforcement duties in the unincorporated
portions of the county, and executes Civil Process in both the County and the
City. The Sheriff also provides jail services. The Port Townsend Police
Department provides law enforcement duties within the boundaries of the City.
The Police Department is headquartered in Port Townsend, and the Sheriff’s
Office is located at Port Hadlock. A Sheriff’s Office annex located in the
Clearwater area provides outreach to the western coastal area. Both the Sheriff’s
Office and the Police Department maintain a small force of volunteer reserve
personnel available for limited duties as needed.
Sheriff’s Office and the Police Department personnel frequently interact on an
informal, mutual aid basis. This temporary arrangement is also supported by
local troopers from the Washington State Patrol when available. More formal
mutual aid understandings are in place between the Sheriff and law enforcement
agencies in adjacent jurisdictions.
When local and immediate mutual aid resources are exhausted, including
assistance from Clallam County, the State Law Enforcement Mobilization Plan
can be implemented to provide requested assistance from throughout the state.
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Law Enforcement representation in the EOC is assigned to the Operations
Section.
n. PUBLIC HEALTH, HEALTHCARE, AND EMERGENCY MEDICAL SERVICES
Jefferson County Public Health (JCPH) provides programs and services to help
protect and improve the health of the community. JCPH serves both the County
and the City. They coordinate several programs essential to disaster response
and recovery including food safety, water quality, immunizations and control of
communicable diseases. Critical services also include family support and
developmental disabilities programs.
The Jefferson County Health Officer has overall responsibility for direction of the
program under the law. The Jefferson County Board of Health defines overall
policy. A Department Director and professional staff carry out their duties on a
daily basis.
A Public Health Emergency Response Plan defines how JCPH plans to deal with
a health emergency, and how their activities will be coordinated with the
Emergency Operations Center.
Jefferson County Public Health is a partner in the Homeland Security Region 2
Health Emergency plan (separate cover). This partnership augments local
resources by mutual aid with both Clallam and Kitsap Counties’ health
organizations. Additional resources are available in an emergency from the State
Department of Health.
The Health Department is assigned to the Operations Section, Health Unit in the
EOC. A Health Command Center may be established to carry out detailed
deployment according to internal plans.
Jefferson County Hospital District No. 2 operates Jefferson Healthcare
(previously Jefferson General Hospital) in Port Townsend. It is the only hospital
in East Jefferson County. Hospital services in West Jefferson County are
provided by the Forks Community Hospital (West Clallam County) serving West
Jefferson County as Hospital District No. 1. Jefferson Healthcare is a municipal
corporation, operating under a five member elected commission.
Jefferson Healthcare is an integrated rural health care system that includes the
single hospital, physicians’ clinics, home health and hospice, outpatient
diagnostic services, and rehabilitation services. Limited emergency room
facilities are provided. It is not a certified trauma center.
Jefferson Healthcare has a disaster plan that defines how the hospital will
coordinate resources in an emergency.
o. HOSPITAL SURGE CAPACITY - The ability of Jefferson Healthcare to staff up
to meet extraordinary need is provided by implementation of a Surge Capacity
Plan. This plan makes maximum use of hospital-related clinics, local retired
medical professionals (Medical Reserve Corps), and volunteer resources to
augment existing personnel and capabilities. The Jefferson County Healthcare
Coalition, a component of Homeland Security Region 2 Healthcare Coalition,
coordinates planning and emergency preparedness. The plan includes
partnership with local clinics, nursing homes and related facilities necessary for
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temporary relocation of patients or the use of such facilities to accommodate
overload.
Communication and coordination with Jefferson Healthcare is through the Health
Unit of the Operations Section in the EOC.
8. RELATIONSHIP TO RECOVERY PLAN
a. COMMUNITY RENEWAL
The initial emergency response period is comparatively short compared to the recovery
and restoration process. Recovery begins when the living have been rescued, the
injured treated, and damages resulting from the incident are no longer getting worse.
The recovery phase marks the beginning of the “new normal”. Disaster recovery means
a coordinated set of short term and long term actions designed to reduce the adverse
effects of a disaster and restore community vitality.
b. PRIMARY ROLE
Local government has the primary role of planning and managing all aspects of the
community’s recovery. A Local Disaster Recovery Manager (LDRM)13 will be designated
to work with the local-state-federal recovery team. The role of the LDRM is to facilitate
problem solving, and foster coordination among local partners and stakeholders.
c. ACTIVATION OF THE
RECOVERY PROCESS
The Department of Emergency Management
is the primary point of contact for disaster
recovery preparedness and is the focal point
for implementation of the recovery plan.
Recovery from a disaster will involve
coordination of local, state, Federal, and
private sector resources. Recovery priorities
will be established on the basis of the data
collected in the damage assessment
process.
d. SHORT TERM RECOVERY
The actions needed to stabilize the immediate health and safety needs of the community.
Typical actions in this phase might include:
Completion of emergency response activities.
Impact assessment (effect on community viability).
Declaration of disaster (a request for state and federal assistance).
Rough estimation of the cost of public and private damage. Restoration of essential transportation routes.
Emergency debris removal.
Restoration of basic lifeline services (water and power systems).
Security of damaged/evacuated areas.
Distribution of potable water, food and critical goods.
Identification and resolution of unmet needs.
Resumption of the essential business of local government.
Temporary housing.
Management and distribution of donated goods and services.
Coordination with State and Federal disaster relief authorities.
13 In accordance with the National Disaster Recovery Framework.
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Enhancement of regular communications with the public.
Setting up disaster coordination centers for public relief.
e. LONG TERM RECOVERY
The actions taken to promote redevelopment of community vitality. Typical actions in this
phase might include:
Completion of the Federal damage assessment process.
Identification of restoration priorities.
Completion of debris removal and demolition.
Rebuilding of damaged public facilities.
Resumption of commerce.
Stimulation of housing repair and reconstruction.
Development of hazard mitigation projects.
Mitigation of environmental impacts.
f. COORDINATION (RECOVERY TASK FORCE)
Following a major disaster, a local Recovery Task Force (RTF), under the Local Disaster
Recovery Manager, may be established by the Board of County Commissioners and the
City Council and tasked with defining needs, determining available resources, and
enabling long term redevelopment. The Recovery Task Force will be charged with
establishing uniform policies for coordination of recovery efforts. The RTF should be a
joint county/city/private sector effort. Constituency of the RTF would depend on the
severity, scope, and type of damage. Staff for the Recovery Task Force will be provided
by the Department of Emergency Management.
g. RECOVERY FACILITIES
Depending on the scope of the disaster, the following facilities may be needed to support
recovery activities:
Recovery Administration Office – To house recovery staff and clerical support.
Disaster Recovery Center(s) – Joint agency one-stop clearinghouse for coordination
of disaster relief.
Point(s) of Distribution (POD) – Facilities used to receive, sort, store, and
disseminate critical goods to persons impacted by the disaster. May establish one
POD in each operational area.
Public meetings – Locations throughout the community for communication of the
recovery process to public gatherings. May establish one in each operational area.
Joint Information Center (JIC) – For location of the joint agency public information officers
to coordinate delivery of recovery information. A single JIC will be coordinated by the
EOC Public Information Officer.
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Section 1.3
Direction, Control, and Coordination
Version 2018.01
GENERAL
RESPONSIBILITIES OF THE MULTI-AGENCY COORDINATION TEAM –
INFORMATION COLLECTION AND EVALUATION: Establishing and sustaining an
information management system in the EOC that provides for collection, processing,
tracking, display, and retention of operational information.
STRATEGIC PLANNING: Coordination of global strategic planning to guide and measure
progress toward overall emergency response and recovery goals and objectives.
COMMON OPERATIONAL PICTURE: Assembling, codifying, and displaying of the
status of infrastructure, assessment of public and private damage, and overall impact of
emergency conditions.
OVERALL INTER-AGENCY COORDINATION: A process for multi-agency and multi-
jurisdictional coordination and collaboration.
BROAD SCALE INCIDENT PRIORITIES: A system for prioritization of scarce resources
according to a strategic plan.
COMPREHENSIVE RESOURCE MANAGEMENT: General materiel support to the
emergency response and recovery agencies; acquisition, staging, delivery and tracking of
essential resources.
PUBLIC INFORMATION: Establishment and coordination of a joint agency emergency
public information network.
COORDINATION OF STATE AND FEDERAL RELIEF: The principal point of contact for
state assistance and federal disaster relief.
COORDINATION OF LOCAL GOVERNMENT: Provides staff and guidance to county
and city officials during the emergency and early stage recovery process.
AUTHORITY - Comprehensive Emergency Management Plan (CEMP). The CEMP defines the
roles and responsibilities of local government in accordance with the requirements of Chapter
38.52, Revised Code of Washington. Presidential Directive No. 5 (HSPD-5) identifies steps for
improved coordination in response to incidents and establishes the National Response
Framework (NRF) and the National Incident Management System (NIMS)14.
OPERATIONAL AREAS - Span of control can be maintained by segmenting Jefferson County
into Operational Areas (OA). These OAs, roughly approximating the existing Fire Districts and
West Jefferson County, apportion the community by geography and common resources. The
basic facilities of an Operational Area are:
Coordination Center (for primary direction and control point)
A common emergency response coordinator agency (fire district) Point of Distribution (for distribution of critical supplies). More than one POD may be
identified to cover geographic separation
Air transportation capabilities (landing strips or suitable landing zones aka LZ’s)
Marine transportation capabilities (for movement of goods and people by water) Communications capabilities (development of a communications plan for each OA
consistent with the overall communications networks)
Critical facilities inventory (identification of vulnerable facilities)
14 MAC System Annex can be found in section 1.10 Authorities and References
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Shelter facilities (community points of refuge and mass care shelters)
JEFFERSON COUNTY OPERATIONAL AREAS
AREA GEOGRAPHICAL POINTS OF INTEREST COORDINATION CENTER
1 City of Port Townsend, Cape George, Beckett Point,
Marrowstone Island, Kala Point, Port Hadlock-Irondale,
Chimacum, Center, Naval Magazine Indian Island
EJFR STATION 1-6
Alternate EOC (PT)
2 Quilcene, Dabob, Toandos Peninsula, Coyle, Lake
Leland, Lords Lake, Little/Big Quilcene Rivers
Fire District No. 2
Station 2-1 Quilcene
3 Port Ludlow, Shine, Mats Mats, Swansonville,
Bridgehaven
Port Ludlow Fire Rescue
Station 3-1
4 Brinnon, Triton Cove, Mount Walker, Duckabush River,
Dosewallips River, Pleasant Harbor
Fire District No. 4 Fire
Station 4-1 Brinnon
5 Discovery Bay, Eaglemount, Crocker Lake Fire District No. 5
Station 5-1 Discovery Bay
6 Gardiner, Diamond Point (fire-EMS for this area is
provided by Clallam Fire District No, 3
Gardiner Community
Center
7 Hoh Nation Reserve, Oil City, Kalaloch, Clearwater,
Queets Village
Fire District No. 7 (Town of
Clearwater only)
CITY COORDINATION - For incidents only involving the city, the City Command Center will act
as the primary direction and control point for city resources. The Emergency Operations Center
(CCC) may be activated in support as needed, or members of the EOC Incident Management
Team assigned to the CCC to assist where needed. The City Coordination Center is also the
location of the Operational Area 1 coordination center (East Jefferson Fire Rescue).
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Section 1.4
Organization and Assignment of Responsibilities
Version 2018.01
A. EMERGENCY ORGANIZATION STRUCTURE
a. Department of Emergency Management
15
15 Organization as of 2018
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b. COUNTY GOVERNMENT
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c. CITY GOVERNMENT
g. LOCAL EMERGENCY MANAGEMENT ORGANIZATION - The Jefferson County
Board of County Commissioners established the Department of Emergency
Management by resolution and assigned overall supervision of the department to the
County Administrator. The Interlocal Agreement for Emergency Management
assigns that duty to the City Manager for city-only operations.
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An Emergency Management Director, appointed by the County Administrator, is
responsible for day-to-day operation of the program, supervision of Emergency
Management staff, and coordination of planning, training, drills, and exercises to
assure readiness, and implementation of plans and procedures in an emergency.
The Director and the department staff are County employees and operate under the
personnel rules of the county. The City provides designated personnel to the
program as a part of their support obligation under the Agreement. The existing
departments, offices, and agencies of the City and County, including municipal
corporations and special districts, shall be utilized to the extent possible in carrying
out the responsibilities for emergency management.
Nongovernmental organizations and the private sector entities cooperate and
coordinate with the Emergency Management program through various formal and
informal mechanisms.
DISASTER AND EMERGENCIES
ORGANIZATIONAL CHAIN OF COMMAND
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Section 1.5
Responsibilities
Version 2018.01
ALTERNATE LOCATION FOR THE CONDUCT OF PUBLIC BUSINESS
The emergency affairs of the county or city can be conducted in an alternate place for the
duration of the emergency provided reasonable effort is made to notify the public of the
emergency relocation.
TELEPHONIC VOICE VOTE
When exigent circumstances require, a telephone vote of the legislative body can adopt a
declaration of emergency. This action needs to be on the record, witnessed, and later affirmed.
Telephonic voice vote will be coordinated by the City Manager or the County Administrator.
CRITICAL TASKS IDENTIFIED FOR:
GOVERNMENT LEADERSHIP
The continuation of essential government operations under emergency conditions is expected by
our citizens. Some elements of services – law enforcement, fire/EMS, emergency management,
public health, etc. - become even more essential. Sustained government services are vital to
economic stability and recovery. Some constitutional requirements – for instance some
responsibilities of the criminal court system - cannot be suspended.
Rallying the community response, marshaling resources, meeting emergency needs, and
reacting to the crisis at hand, while sustaining or restoring critical government operations, is a
major leadership challenge.
COUNTY ORGANIZATION
Legislative responsibility for county government is vested in the three-person Board of Jefferson
County Commissioners. Constitutional offices consist of Clerk of the Court, Prosecutor, Sheriff,
and the Judiciary. The Statutory offices are Assessor, Treasurer, and Auditor.
The Jefferson County Administrator is an appointed official who serves as the Chief Executive
Officer for the County, and is responsible for carrying out all decisions, directives, policies,
ordinances, and resolutions made by the Board of County Commissioners. Administrative
departments, under the County Administrator, include Central Services, Public Health, Public
Works, Community Development, WSU Cooperative Extension, and Emergency Management.
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CITY ORGANIZATION - The legislative responsibility for city government is assigned to a seven-
member City Council. The executive authority is vested in the City Manager (appointed by the
City Council). City departments are: Administration (City Attorney, City Clerk), Development
Services, Finance, Library, Public Works (Engineering, Parks, Streets and Utilities), and Police.
The City Manager is responsible for Emergency Management in the City, and executes that duty
through the interlocal agreement for Emergency Management.
ESTABLISHMENT OF A DEPARTMENT OF EMERGENCY MANAGEMENT - The requirements
of Chapter 38.52, Revised Code of Washington, are fulfilled by the establishment of a
Department of Emergency Management in the County and an interlocal agreement for
Emergency Management services by that department to the City of Port Townsend. This plan is
a part of that requirement.
USE OF COUNTY AND CITY PERSONNEL AND SERVICES IN AN EMERGENCY - County
and City personnel, services, and equipment are a part of the local emergency management
system. Washington State law directs the heads of governments to utilize those assets, along
with those of the other municipal corporations and special districts, to the “maximum extent
practicable”.16 It is the responsibility of the Department of Emergency Management to assist them
in developing the internal procedures necessary for execution of their emergency duties as
identified in this plan.
LEGISLATIVE SUPPORT TO EMERGENCY MANAGEMENT - The City Council and the Board
of County Commissioners provide emergency legislative support to the Emergency Management
program in an emergency. Such support includes declarations of emergency and special
emergency measures needed to meet response needs.
EMERGENCY POWERS - The law provides certain unique powers to the heads of local
government in the event of an emergency. Such powers may be enacted when an emergency or
disaster occurs that demands immediate action to preserve public health, protect life and public
property, and provide relief to the stricken community.17 In carrying out this plan the Board of
County Commissioners and/or the City Council may exercise those powers without regard to the
time-consuming procedures and formalities prescribed by law (except mandatory constitutional
requirements) including (but not limited to)18:
Budget law limitations
Requirements of competitive bidding
Publication of notices
Provisions pertaining to the performance of public works
16 RCW 38.52.110(1)
17 RCW 38.52.010(6)(a)
18 RCW 38.52.070(2)
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Entering into contracts
Incurring obligations Employment of temporary workers
Equipment rental
Purchase of supplies and materials
Levying of taxes
Appropriation and expenditure of public funds
The activation of these emergency powers is contingent upon a formal Declaration of Emergency
by a majority vote of the Board of County Commissioners or the City Council (for City-only
emergencies). In all cases, the test of prudence and best value in the execution of emergency
procurement will be observed whenever such diligence does not interfere with the immediate
response to life safety.
It is critical that due diligence in obtaining the best value in terms of cost must be documented.
Contract type should be carefully considered to ensure proper monitoring is in place and costs
are reasonable.
DECLARATION OF EMERGENCY - A local declaration of emergency activates the emergency
powers described above and is the prerequisite for requesting state and federal assistance in a
major emergency. Such declaration is made by the county or city legislative body by adoption of
an ordinance or resolution. A city declaration/resolution is made under RCW 35.33.081 whereas
a county declaration is covered by RCW 36.40.180. A joint resolution can be made under RCW
38.52.070(2).19
STATE DEPARTMENTS
National Guard
Coordinating Agency for ESF 20
Coordinates Defense Support to Civil Authorities
Provides:
o Air and land transportation of personnel and equipment
o Shelter
o Power generation capabilities
o Urban search and rescue
o Water purification
Supports in suppression of wildland fires along with providing security
forces and command and control capabilities
Supports state emergency communications and cyber system
requirements
Provides aerial reconnaissance, photographic missions, and radiological
monitoring, as required.
Provides limited emergency medical assistance
Washington State Patrol
Coordinating Agency for ESF 13
Assists local authorities with law enforcement operations
Coordinates traffic control on state highways
Respond to hazardous material events
Provides aerial reconnaissance photographic missions.
19 Additional reference: Annex 1.10.10– Procedures for Local Declaration of Emergency
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Department of Transportation
Coordinating Agency for ESF 1
Supports local jurisdictions with traffic control on local roads
Conducts transportation damage assessments and rapid repairs to
WSDOT infrastructure
Assists in promptly identifying and removing impediments to movement
on state highways and other routes as resources allow
Reconstructs, repairs, and maintains the state transportation system
including designation of alternate routes in coordination with counties
cities and ports.
Department of Natural Resources
Coordinating Agency for ESF 4 and 11
Mobilizes personnel and equipment during emergency or wildfire
operations for suppression and control of wildland fires
Coordinates or conducts debris removal and land reclamation on DNR
land
Provides geologic technical assistance
Provides heavy equipment support in an emergency or disaster
Department of Social and Health Services
Coordinating Agency for ESF 6
Promotes the integration of functional needs support services
Coordinates state-level mass care, emergency assistance, temporary
housing, or human services response when requested by impacted
jurisdictions
Washington State Emergency Management Division
Coordinates the acquisition and deployment of additional
communications equipment, personnel and resources necessary to
establish temporary communications capabilities within the affected
areas.
Receives and processes requests from local jurisdictions for specific
state and federal emergency and disaster related assets and services.
Coordinates state assets to support local jurisdictions in need of
supplemental emergency or disaster assistance
Coordinates the provision of statewide search, rescue, and recovery
assets to supplement the efforts of local jurisdictions.
Develops and implements programs or initiatives designed to prevent,
protect, and mitigate the effects of hazards through the development and
enforcement of policies, standards, and regulations.
Provides emergency and disaster-related training and orientation to state
and local officials to familiarize them with emergency or disaster-related
responsibilities, operational concepts, and procedures.
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FEDERAL AGENCIES
Federal Emergency Management Agency
Coordinating Agency for ESF 4, 5, 6, and 9.
Assist and provide housing and shelter for hard hit communities
Provides money for home repairs to cover damages that aren’t paid for
by insurance. Provides assistance with medical treatment and prescriptions for disaster
victims who suffer from medical conditions
Assists with rebuilding and repair of public infrastructure, including roads
and bridges, sewer lines and public buildings.
Department of Homeland Security
Secretary of Homeland Security is the principle federal official for
domestic incident management
Responsible for the coordination of federal operations within the United
States in order to prepare for, respond to, and recover from terrorist
attacks, major disasters, and other emergencies.
Provides technical expertise for infrastructure protection, resilience, and
interdependencies.
Department of Defense
Coordinating Agency for ESF 20
The Secretary of Defense authorizes Defense Support to Civil Authorities
for domestic incidents as directed by the President or when consistent
with military readiness operations and appropriate under the
circumstances and law.
Provides personnel assistance and resources to support federal
response to a major disaster or emergency.
United States Coast Guard
Coordinating Agency for ESF
Provides support for maritime operations
Conduct search and rescue operations at sea and in support of local
jurisdictions.
Support cleanup of oil spills and other maritime environmental hazards.
Inspect commercial vessels, respond to pollution, manage waterways
and draft recommendations for the transit of hazardous cargo by ship.
VOLUNTEER COMMUNITY ORGANIZATIONS (VOAD/COAD)
Jefferson County has a unique relationship with community organizations dedicated to
emergency preparedness. With technical and resource support from Jefferson County
Department of Emergency Management and Neighborhood Preparedness (NPREP), many
neighborhoods have developed their own Emergency Preparedness Groups with the goal of
being able to sustain themselves in the event of a disaster. The largest of EPGs include:
Port Ludlow Village Council Emergency Preparedness Group
Kala Point Emergency Preparedness Group
Marrowstone Island Emergency Preparedness Group
Coyle Community Emergency Preparedness Group
West Olympic Peninsula Preparedness Workshop
Cape George Preparedness Group
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Jefferson County also has access to a pair of FM radio stations for dissemination of information
as well as the JC Volunteer Emergency Communications Group (VECOM) which plays the role of
maintaining communication with the various small communities of Jefferson and neighboring
counties.
INDIVIDUAL COMMUNITY MEMBERS
Responsible for the safety and welfare of themselves and their family.
Should prepare themselves and their family for disasters and emergencies within the
community by: Establishing and maintaining a family Disaster Preparedness Plan.
Creating an emergency supply kit for their home and workplace.
Being prepared to sustain themselves and their family at minimum, 30 days after a
disaster, and possibly longer due to a catastrophic incident.
Taking proper steps to safeguard and back-up personal cyber systems and sensitive
data.
Should actively participate in local emergency preparedness and response
organizations and activities such as Neighborhood Preparedness (NPREP) and other
personal preparedness programs.
AS DEFINED IN MUTUAL AID AGREEMENTS/MOA/MOU
Jefferson County maintains written memorandums with Naval Magazine Indian Island and the
City of Port Townsend. The memorandum with Naval Magazine (NAVMAG) states that personnel
from NAVMAG are able to use the Jefferson County EOC in the event that they have to evacuate
their own. The County also has verbal agreements with Clallam County for providing Fire and
EMS response to the Gardiner area and also the Pacific coast in the area between Forks to
Kalaloch. Grays Harbor provides similar response for the Coast region north up to Kalaloch.
Other agreements are made between the various County and City entities such as Port
Townsend Police with Jefferson County Sheriff and the Fire Districts with each other when one is
either shorthanded or becoming overwhelmed in an incident. Several of the Fire Districts share
mutual aid agreements with Poulsbo Fire Department and North Kitsap Fire and Rescue in Kitsap
County while others have similar agreements with Mason County for the mid-Hood Canal region.
Jefferson County Department of Emergency Management is an equal partner in an Interlocal
Agreement between the counties of Clallam, Jefferson, and Kitsap for the purpose of the
formation of the "Washington State Homeland Security Region 2 Coordinating Council". The
formation of the Council is facilitated for the purpose of joint participation in Homeland Security
and Emergency Management "All Hazards" planning and preparedness programs under the
State Homeland Security Grant Program (SHSP) within the counties of Clallam, Jefferson, and
Kitsap. Each participating county will be responsible for their individual County's management
and administration functions associated with this agreement. No new or separate legal or
administrative entity is created to administer the provisions of this ILA. This ILA shall be
administered by the members of the Council.
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Section 1.6
Information Collection, Analysis, and Dissemination
Version 2018.01
GENERAL:
Being able to accurately collect, analyze, and disseminate information is critical in
building situational awareness during an emergency or disaster. The transfer of information can
be by phone, radio, television, computer, or even a runner. These methods are picked based on
the nature of the emergency and what is available. Jefferson County EOC needs accurate and
constantly updated information in order to paint a picture for what is needed by those in the field.
PUBLIC INFORMATION AND WARNING NETWORKS
In Jefferson County, emergency information may be disseminated by a variety of sources
including the Emergency Alert System and NOAA Weather Radio. A list of others used by DEM
include:
NIXLE: subscription based text-messaging system used for the dissemination of
important or otherwise critical information by Jefferson County Public Safety agencies.
All Hazards Alert Broadcast: tsunami warning sirens that can be activated by the State
EMD Duty Officer or locally as needed. Only located close to the water.
Media: Further information dissemination is conducted by local radio station 91.9 FM
KPTZ and 91.1 FM KROH.
OPERATIONAL COORDINATION
Essential Elements of Information (EEI) represent a comprehensive list of impact related
information needed by DEM from County and City agencies, departments and area command
sites to develop situational awareness and create a Common Operating Picture (COP).
EEI items are normally required for both emergency response and recovery and include:
• Boundaries of the disaster area
• Social, economic, political, environmental impacts
• Status of transportation nodes
• Status of communications systems
• Access points to the disaster area
• Status of operating facilities
• Hazard-specific information
• Weather data affecting operations
• Status of critical facilities
• Status of key personnel
• Status of EOC/ESF activation
• Status of disaster or emergency declarations
• Major issues/activities of ESFs
• Resource shortfalls
• Overall priorities for response
• Status of upcoming activities
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Essential Elements of Information to consider for Seismic Event:
• Seismic or other geophysical information
• Area of ground shaking
• Area of liquefaction
• Landslide/mudslide areas
• Evacuation planning
Essential Elements of Information to consider for Flood Event:
• Status of rivers/tidal areas
• Number and sufficiency of sandbag inventory
• Amount and sufficiency of potable water/food stuffs
• Evacuation planning
Essential Elements of Information to consider for Hazardous Materials Incident:
• The chemical agent(s) in question
• The extent of any release
• Affected areas
• Plume prediction
• Protective action recommendations/decisions
• Evacuation planning
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Section 1.7
Communications
Version 2018.01
GENERAL:
Being able to accurately collect, analyze, and disseminate information is critical in
building situational awareness during an emergency or disaster. The transfer of
information can be by phone, radio, television, computer, or even a runner. These
methods are picked based on the nature of the emergency and what is available.
Jefferson County EOC needs accurate and constantly updated information in order to
paint a picture for what is needed by those in the field.
a. OPERATIONAL COMMUNICATIONS
A Public Safety Answering Point (PSAP) and dispatch center was established
jointly by the law enforcement and fire agencies. Jefferson Communication
(JeffCom) is the 9-1-1 center and public safety dispatching service for all of
Jefferson County. JeffCom receives 9-1-1 calls, communicates with law
enforcement and fire/EMS assets, tracks the status of resources, and acts as the
primary point of contact for mutual aid services requested by the incident
command agency.
JeffCom is also the 24-hour warning point for larger incidents impacting Jefferson
County. Dispatchers monitor the National Warning System (NAWAS) for this
purpose, and have internal procedures for timely notification of key personnel.
In the event of the need to evacuate the primary dispatch center at Port Hadlock,
JeffCom maintains an Alternate Public Safety Answering Point (A-PSAP) at Port
Townsend. The A-PSAP provides much the same services as the primary
location, and is co-located with the Alternate Emergency Operations Center.
JeffCom maintains internal procedures for rapid expansion of capability should
emergency overload occur. The JeffCom Director coordinates all public safety
communications services, including support services, in an emergency.
b. SUPPORT COMMUNICATIONS SERVICES – AMATEUR (HAM) RADIO -
Supporting communications services are provided by Jefferson County Volunteer
Emergency Communications (VECOM) an organization within the Amateur Radio
(HAM) community. An extensive communications network has been established
to augment existing capabilities when needed, under the coordination of the
Emergency Operations Center.
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Radio Amateur Civil Emergency Services (RACES) utilizes the existing
personnel and facilities of the HAM community, organized to provide back-up
communications between several critical facilities and the Emergency Operations
Center. The RACES Plan defines how Amateur Radio resources will be utilized
to the best advantage. Amateur Radio resources are coordinated by the
Logistics Section) of the EOC Incident Management Team.
DEM also maintains a radio room where communications and media personnel would be
located during an activation. The radio room consists of multiple UHF and VHF radios,
Emergency Alert System, HAM radios and CEMNET and several other forms of
communications. Radio frequencies are kept and maintained in the Radio Room, the Red
Book, and JeffCom in order to maintain redundancy of information.
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Section 1.8
Administration, Finance, and Logistics
Version 2018.01
ADMINISTRATION
1. Department Essential Records
In order to provide for the continuity and preservation of civil government, each
department shall designate those public documents, which are essential records and
needed in an emergency and for the reestablishment of normal operations after any
such emergency. Each department shall ensure that the security of essential records
is by the most economical means commensurate with adequate protection.
Protection of essential records may be by vaulting, planned or natural dispersal of
copies, or any other method. Reproductions of essential records may be by
photocopy, microfilm, or other methods.
2. Department Disaster-Related Records and Documentation
All departments with disaster responsibilities may coordinate with DEM to
establish, maintain and protect files of all disaster-related directives, forms, and
reports, requests for assistance, expenditures, and correspondence, in accordance
with the record retention program as defined in RCW 40.10.010. Reports may be
requested by the Jefferson County Department of Emergency Management from
departments in order to provide regional, state, and federal officials with information
concerning the nature, magnitude, and impact of the disaster. These reports may be
necessary to evaluate response options and in allocating resources on a priority
basis.
Jefferson County Department of Emergency Management may be requested by
the State Emergency Management Division to provide specific reports to include, but
are not limited to:
Damage Assessment Reports
Requests for Assistance
Situation Reports
The State Emergency Operations Center may issue mission numbers (disaster
incident or search and rescue number series) to local jurisdictions for actions
taken with the intent of protecting life, property and/or the environment during the
incident period of any given event. The mission number shall be used by each
department for the duration of the incident and throughout the recovery period.
The State mission number shall be included in all disaster-related
documentation.
FINANCE
1. RESPONSIBILITY FOR COST TRACKING - All county and city offices and
departments, along with municipal and quasi-municipal corporations, special districts
organized under the laws of the State of Washington, are responsible for tracking
incident-related costs. Cost recuperation, if any, will hinge on the type and detail of
extraordinary expenditures directly related to the execution of this plan. Should the
Stafford Act, or any other similar reimbursement mechanism, be implemented, each
entity is responsible for filing for cost recovery – coordinated through the Finance
Section in the EOC.
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2. OTHER VOLUNTARY ORGANIZATIONS OR CHARITABLE INSTITUTIONS –
Volunteer disaster relief organizations may be able to provide short-term assistance
throughout the recovery process.
3. OBJECTIVES OF FEMA INDIVIDUAL ASSISTANCE – The emphasis will be on
stabilization of community health, safety, and security. Assistance may be available
to eligible public applicants to repair, restore, or replace damaged facilities to pre-
disaster design, capacity, and condition.
4. PUBLIC AGENCY APPLICANTS ELIGIBLE FOR FEDERAL ASSISTANCE –
Cities and towns
Counties
State agencies
Federally recognized Indian tribes
Special purpose districts
Critical private non-profit organizations
Government service type non-profit organizations
5. SAMPLE PUBLIC ASSISTANCE PROJECTS – These categories may be eligible for
reimbursement under the Public Assistance program:
Category A: Debris removal
Category B: Emergency protective measures
Category C: Roads and bridges
Category D: Water control facilities
Category E: Buildings and equipment
Category F: Utilities
Category G: Parks, recreational, and other
6. PROCUREMENT – Great care must be taken when purchasing goods and materials
and contracting for services for projects approved under the FEMA Public Assistance
Program. All projects are subject to audit. Contracts must be of reasonable cost,
generally competitively bid, and otherwise comply with Federal, State, and local
procurement standards.
Federal procurement standards are not waived unless lives and property are at
stake. However, non-compliance after bona fide exigencies no longer exist may
result in ineligibility for federal disaster assistance. All contracting practices must
provide full and open competition to all qualified bidders.
7. COORDINATION WITH THE FEDERAL EMERGENCY MANAGEMENT AGENCY
(FEMA) – The Department of Emergency Management is the primary point of contact
with FEMA. Public entities involved in recovery projects will appoint an applicant
agent as the principal representative for the agency regarding approved projects.
8. ENVIRONMENTAL ISSUES – Although emergency powers allow certain activities
impacting public health and safety to be carried out without delay, all recovery
activities remain accountable to the myriad environmental laws and regulations,
limitations on historical buildings and landmarks, and other regulatory processes.
Each applicant agency will be required to comply with the permit requirements, and
other measures required by law to the extent possible; and will be responsible for
knowing what those requirements are.
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9. DISASTER DECLARATION REQUIRED FOR ASSISTANCE DEFINED IN THE
STAFFORD ACT– The governor must ask the President to make a disaster
declaration. If a declaration is made, several state and federal government agencies
will come together to administer the assistance programs in the eligible jurisdictions.
To be eligible for aid, Jefferson County must be included in the disaster declaration.
10. DOCUMENTATION – Detailed documentation of ALL activities associated with
disaster response and recovery is a prerequisite for Federal reimbursement under
the Public Assistance Program if available. Comprehensive records must be kept in
real time and at all levels (not reconstructed) and present a clear description of the
actions taken.
Bridge on Old Gardiner Road – rebuilt under the FEMA disaster assistance program after old bridge was destroyed by
flooding.
PUBLIC ASSISTANCE
Upon issuance of a Declaration of Disaster by the President (requested by the
governor) assistance will become available to public entities (including possible
reimbursement of eligible costs) and private individuals through the Robert T.
Stafford Disaster Relief and Emergency Assistance Act (administered by the
Federal Emergency Management Agency - FEMA) and other programs.
Those eligible for Public Assistance include local governments, state agencies, Tribal
governments, and private non-profit organizations that own or operate a facility that provides an
essential service to the general public20. Private non-profit organizations that do not offer critical
facilities make separate requests to FEMA and SBA. To request Public Assistance, one must fill
out a Request for Public Assistance (RPA) form and must be submitted to FEMA within 30 days
of a Presidential declaration.
20 Critical facilities include power, water, sewer, communications, emergency medical care, education, and
emergency services.
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Emergency expenditures are not normally integrated into the budgeting process of local
governments. However, disasters may occur which require substantial and necessary
unanticipated obligations and expenditures.
Jefferson County, as with all other local jurisdictions in Washington State, will incur disaster-
related obligations and expenditures in accordance with the provisions of RCW 38.52.070(2),
applicable state statutes and city local codes, charters and ordinances, which include but may not
be limited to the following:
Emergency expenditures for towns and cities with populations less than 300,000.
RCWs 35.33.081, 35.33.091, and 35.33.101.
Emergency expenditures for code cities. RCWs 35A.33.080 and 35A.34.140.
The following statues cover the financing of emergency response and recovery actions:
1) Counties: RCW 36.40.180 and 36.40.190
2) Cities with populations under 300,000: RCW 35.33.081 and 35.33.101
3) Municipal and county governments are authorized to contract for construction or work
on a cost basis for emergency services by RCW 38.52.390
b. Records shall be kept so disaster related expenditures and obligations of the
county and cities can be readily identified from regular or general programs and
activities.
c. Disaster-related expenditures and obligations of the county and cities may be
reimbursed under a number of federal programs. The federal government may
authorize reimbursement of approved costs for work performed in the restoration
of certain public facilities and infrastructure after a Presidential Disaster
declaration by the President or under the statutory authority of certain federal
agencies.
LOGISTICS
1. METHODOLOGY AND AGENCIES INVOLVED IN RESOURCE PROCUREMENT
a. STATUS OF INTERNAL (ORGANIC) RESOURCES - Local emergency
response organizations have existing plans and procedures for augmenting their
capabilities (surge capacity). This includes agreements with adjacent agencies
and jurisdictions, regional mutual aid agreements, state mobilization plans, and
similar instruments of collaboration. For purposes of this plan these are “organic”
resources, considered for direct coordination by the emergency management
system only where there is a critical scarcity. An organic resource is coordinated
by the recipient agency according to a pre-arranged command structure.
b. INFORMATION SHARING AND COORDINATION - Although many organic
resources may be obtained, assigned, and applied without direct involvement of
the Emergency Operations Center, coordination of that information with the EOC
is important in order to understand the scope of the response, reduce the
possibility of duplication, and fill in the big-picture information necessary to grasp
the scope of the response. That process is particularly important when local and
mutual aid resources are about to become exhausted or depleted and may need
to be replaced with outside help.
c. IDENTIFICATION OF UNMET NEEDS - Unmet needs are those critical life and
safety elements associated with the incident for which there are no apparent and
timely solutions. Meeting those needs may require re-prioritization of local
capabilities, acquisition of external resources, or some other combination of
efforts to mitigate the hardship. For larger scale incidents, an Unmet Needs Unit
will be established in the EOC in the Community Operations Branch. .
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d. LOCAL GOVERNMENT RESOURCES ARE THE FIRST PRIORITY - It is the
responsibility of local government to aid persons suffering from injury or damage.
Jefferson County and the City of Port Townsend are required to utilize their
personnel, facilities, services, and equipment (resources) to the extent possible
to mitigate the emergency.21 This is the first level in the cost assignment
hierarchy. External resources are utilized in support of local efforts.
e. SPECIAL PROVISIONS OF THE LAW – EMERGENCY POWERS - In carrying
out response to an emergency within this plan, when a Declaration of Emergency
has been made, the County and the City have the power to enter into contracts
and incur the obligations necessary to protect health and safety of persons and
property and provide emergency assistance to victims. These actions can be
taken with greater flexibility to meet critical demands in a timely way. This
includes such formalities as budget law limitations, competitive bidding, etc.
Demonstration of reasonable attempts to attain the best value, given the
limitations of the incident, is highly recommended in the event that emergency
expenditures become eligible for cost recovery.
f. BORROWING SERVICES AND EQUIPMENT FROM CITIZENS - In the event of
a disaster, after proclamation by the governor, the County and the City shall have
the power to command services and equipment of private citizens, PROVIDED,
they are entitled to the privileges, benefits, and immunities identified in the law.
g. RESOURCE MANAGEMENT PROCESS - The Emergency Operations Center
Incident Management Team will establish a resource ordering and tracking
process to assist with the acquisition and coordination of requested resources.
This system will provide the tracking procedures necessary to document the
request, ordering, receiving and delivery of ordered resources. Resource
management is the responsibility of the Logistics Section of the EOC Incident
Management Team.
h. CONTROL OF A TRANSFERRED RESOURCE - When requested resources,
processed through the resource management system, are received and assigned
to a requesting agency, they will be considered transferred to the direct
management control of the requestor until released. When a transferred resource
has an internal command/supervision structure, that structure will remain intact
within the overall organization of the requesting agency.
i. RESOURCES REQUESTED BY OTHER AGENCIES - Where essential
resources are being acquired through the emergency management system at the
request of other response agencies, the cost of those resources will be assigned
to the requesting agency. Whenever possible, the costs will be pre-identified.
j. RESOURCES NOT OFFICIALLY REQUESTED THROUGH THE RESOURCE
MANAGEMENT SYSTEM - There is a prescribed resource ordering process in
place through the Emergency Operations Center. The cost for resources that are
not requested through this resource management process (including those that
respond spontaneously) may not be eligible for reimbursement should it become
available. Unrequested/unplanned resources are seldom used, and may interfere
with the resource management system.
21 RCW 38.52.110.
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RESOURCE GAPS
Jefferson County faces immense resource shortages due to the geography and population size.
Being located on the Olympic Peninsula creates an accessibility gap for the County as two of the
three access routes in cross large swaths of water while the third route is very susceptible to
landslides and being washed away in some parts. The loss of transportation modes makes it
incredibly difficult to get any kind of outside resources into the county.
There is also a limit to Fire, Law, Public Works, and Public Health capabilities as each have to
cover a very rural area with limited staff and equipment. Jefferson General Hospital itself has only
25 beds for emergencies to cover an entire county of 31,000 people.
SPECIALIZED RESOURCES
Jefferson County Department of Emergency Management maintains a resource inventory of
assets for the county and updates it every one-to-two years.
CPOD DESCRIPTIONS AND LOCATIONS
Community Points of Distribution are located at the following six locations throughout Eastern
Jefferson County:
Blue Herron Middle School in Port Townsend services the City of Port
Townsend and neighborhoods of Cape George and Glen Cove.
Gardiner Community Center in Gardiner services Gardiner, Diamond
Point, and Discovery Bay
The Bay Club in Port Ludlow supports Port Ludlow, Mats Mats, Paradise
Bay, Shine, Bridgehaven, and Coyle
Chimacum High School in Chimacum covers Chimacum, Port Hadlock-
Irondale, and Kala Point.
Quilcene Community Center in Quilcene is services Quilcene, Dabob
and Leland.
North Hood Canal Chamber of Commerce in Brinnon services Brinnon,
Duckabush and the mid-Hood Canal region.
RESOURCE REQUEST PROCESS
When needed, the EOC utilizes ICS 213 RR22, which is the resource request form used by
Washington State and includes instructions on how to properly fill out.
REIMBURSEMENT ELIGIBILITY AND COST RECOVERY - Some incident related costs may
become reimbursable (or partially reimbursable) under state or federal law. An example of
reimbursable expenses are those extraordinary costs associated with emergency action of a
certain qualified nature under the Robert T. Stafford Disaster Relief Act.
Reimbursement eligibility, if any, will require detailed records. In any event, no emergency action
should be undertaken on contingency with the advanced expectation of reimbursement. Some
reimbursement may require local matching funds (either direct or indirect).
DONATED GOODS AND SERVICES - Procedures are in place, within the resource
management system, to receive and process donated goods and services. To the extent
possible, the spontaneous donation of goods and services will be directed to one of the several
non-profit relief organizations for use in their disaster related activities. Where special resources
are needed, there may be a direct appeal.
22 ICS Form 213 Resource Request can be found on the State EMD Website under Logistics
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The Logistics Section of the EOC Incident Management Team will be responsible for overall
coordination of donated goods and services.
MANAGEMENT OF VOLUNTEERS - Every citizen who wishes to volunteer their services in an
emergency should have the opportunity to do so where possible. There are many essential
functions that can be performed by trained or untrained volunteers consistent with their abilities.
The resource management system will include provisions for their recruitment, screening,
processing, assignment, and tracking. To the extent possible, the administration of volunteer
management will be assigned to the existing non-profit relief agencies.
When volunteers are utilized by private agencies, assumption of liability will be in accordance with
their internal policies. Other volunteers, assigned outside of existing groups, will be provided the
special protections defined by the law for emergency workers.23
23 Reference RCW 38.52 and WAC 118-04.
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Section 1.9
Development and Maintenance
Version 2018.01
1. PROMULGATION PROCESS
a. The Jefferson County-City of Port Townsend Comprehensive Emergency
Management Planner is responsible for developing, reviewing, and updating this
plan.
b. Jefferson County and Port Townsend officials are responsible for approving and
promulgating this plan.
2. DESCRIPTION OF REVEW PROCESS
a. ACKNOWLDGEMENT OF TRAINING AND EXERCISE PARTICIPATION:
The Director of Emergency Management is responsible for developing and
implementing a training program for county staff and members of the Incident
Management Team that creates and maintains both heightened awareness
of the contents of the CEMP and enhances preparedness to conduct disaster
management activities.
b. PROCESS FOR CONDUCTING AN ANNUAL EXERCISE
JCDEM follows guidelines set by the Homeland Security Exercise and
Evaluation Program (HSEEP) when creating and implementing exercise
programs. When an exercise is identified as being necessary, a planning
team is formed to build goals and objectives and point out the participants
needed to conduct the program. These exercises can be either discussion-
based or operations-based.
3. AVAILABILITY TO THE PUBLIC
Additional copies of this plan can be obtained by contacting the Department of
Emergency Management, 81 Elkins Road, Port Hadlock, WA 98339 or by calling our
business line at 360-385-9368. Our e-mail address is
jcdem@co.jefferson.wa.us. Reference to important parts of this plan can be
found on-line at www.jeffcoeoc.org.
4. CEMP REVISION OR MAINTENANCE SCHEDULE
a. The Basic Plan and its annexes shall be reviewed annually or every other
year by local emergency management officials. Department of Emergency
Management will establish a schedule of review for planning documents.
b. This plan will be updated based upon any deficiencies that are found or
occur during actual emergencies and exercises and when changes in
threats, resources, or government occur.
c. All components of this document must be formally updated every five years.
Responsibility for updating is assigned to Jefferson County Department of
Emergency Management.
d. Revised or updated documents will be given to all departments and agencies
that play a part in those documents.
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Section 1.10
Authorities and References
Version 2018.01
1.10.1 Glossary/Acronyms
1.10.2 Lines of Succession
1.10.3 Multi-Agency Coordination Annex
1.10.4 Evacuation
1.10.5 Recovery
1.10.6 Lead and Support Agencies
1.10.7 Disaster Roles
1.10.8 Cross Reference to State and Federal Plans (ESF Format)
1.10.9 List of Relevant Partner Agencies’ Emergency Plans (published separately)
1.10.10 Declaration of Emergency
1.10.11 Layout of the Emergency Operations Center
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ANNEX 1.10.1
GLOSSARY
ACCESS AND FUNCTIONAL NEEDS: This term has replaced “special needs,” “vulnerable,”
“high-risk”, and similar terms. People with access or functional needs are those who may have
additional needs before, during or after an incident in functional areas including but not limited to:
maintaining health, independence, communication, transportation, support, services, self-
determination, and medical care. Individuals in need of additional response assistance may
include people who have disabilities, who live in institutionalized settings, who are older adults,
who are children, who are from diverse cultures, who have Limited English Proficiency or who are
non-English speaking or who are transportation disadvantaged. (National Preparedness Goal,
September 2015)
ALL-HAZARDS: Threat or incident, natural or manmade, which necessitates the use of action to
protect life, property, the environment, and public health or safety and to also minimize the
disruption of government, social, or economic activities. All-Hazards includes natural disasters,
industrial accidents, incidents involving cyberspace, pandemics, terrorism and other manmade or
technological that involve critical infrastructure or public safety.
ANNEX: Additional or supporting documents
APPENDIX: Supplement the basic plan
CATSTROPHIC INCIDENT: Any natural or manmade incident, including terrorism that results in
extraordinary levels of mass casualties, damage, or disruption severely affecting the population,
infrastructure, environment, economy, property, morale, and/or government functions. (National
Response Framework)
COMMUNITY: Unified groups that share goals, values, or purposes; they may exist within
geographic boundaries or unite geographically dispersed individuals. Communities bring people
together in different ways for different reasons, but each provides opportunities for sharing
information and promoting collective action. (National Preparedness Goal, September 2015)
COMMUNITY POINTS OF DISTRIBUTION: A centralized location where those in need can
obtain life sustaining commodities following an emergency or disaster.
COMPREHENSIVE EMERGENCY MANAGEMENT PLAN: Document establishing the
philosophy and strategic direction for Emergency Management actions during an emergency or
disaster.
CONTINUITY OF GOVERNMENT: The coordinated effort by the city or county’s elected officials
to ensure that both jurisdictions maintain the essential functions to continue during emergencies
or disasters.
CONTINUITY OF OPERATIONS: Federal initiative required by PPD-40, to ensure that agencies
are able to continue performance of essential functions under a broad range of circumstances
CRITICAL INFRASTRUCTURE: Systems, assets, and networks, whether physical or virtual, so
vital to the United States that the incapacity or destruction of such systems and assets would
have a debilitating impact on security, national economic security, national public health or safety,
or any combination of those matters. (Source: National Response Framework)
DISASTER: An occurrence of a natural catastrophe, technological accident, or human caused
event that has resulted in severe property damage, deaths, and/or multiple injuries. As used in
this plan, a “major disaster” is one that exceeds the response capability of the Local jurisdiction
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and requires County, State, and potentially Federal, involvement. (Source: FEMA Comprehensive
Preparedness Guide (CPG) 101)
EMERGENCY: Any incident, whether natural or manmade, that requires responsive action to
protect life or property. Under the Robert T. Stafford Disaster Relief and Emergency Assistance
Act, an emergency means any occasion or instance for which, in the determination of the
President, Federal assistance is needed to supplement State and local efforts and capabilities to
save lives and to protect property and public health and safety, or to lessen or avert the threat of
a catastrophe in any part of the United States. (Source: National Response Framework)
EMERGENCY ALERT SYSTEM: The Emergency Alert System (EAS) is a national public
warning system that requires broadcasters, cable television systems, wireless cable systems,
satellite digital audio radio service (SDARS) providers and, direct broadcast satellite (DBS)
service providers to provide the communications capability to the President to address the
American public during a National emergency. The system also may be used by state and local
authorities to deliver important emergency information such as AMBER alerts and weather
information targeted to a specific area. (Source: Federal Communications Commission)
EMERGENCY MANAGEMENT: A subset of incident management, the coordination and
integration of all activities necessary to build, sustain, and improve the capability to prepare for,
protect against, respond to, recover from, or mitigate against threatened or actual natural
disasters, acts of terrorism, or other manmade disasters. (Source: National Response
Framework)
EMERGENCY MANAGER: The person who has the day-to-day responsibility for emergency
management programs and activities. The role is one of coordinating all aspects of a jurisdiction's
mitigation, preparedness, response, and recovery capabilities. (Source: National Response
Framework)
EMERGENCY OPERATIONS CENTER: The physical location at which the coordination of
information and resources to support incident management (on-scene operations) activities
normally takes place. An EOC may be a temporary facility or may be located in a more central or
permanently established facility, perhaps at a higher level of organization within a jurisdiction.
EOCs may be organized by major functional disciplines (e.g., fire, law enforcement, and medical
services), by jurisdiction (Source: National Response Framework).
EMERGENCY SUPPORT FUNCTION: In the National Response Framework, a functional area of
response activity established to facilitate the delivery of Federal
Assistance required during the immediate response phase of a disaster to save lives, protect
property and public health, and maintain public safety. ESFs represent those types of Federal
assistance that a State will most likely need because of the impact of a catastrophic or significant
disaster on its own resources and response capabilities, or because of the specialized or unique
nature of the assistance required. ESF missions are designed to supplement State and Local
response efforts. The ESF structure is used at the County, State and Federal levels during an
emergency or major disaster. (Source: FEMA Comprehensive Preparedness Guide (CPG) 101)
EVACUATION: The temporary or rapid removal of people from a threatened area or region.
FEDERAL EMERGENCY MANAGEMENT AGENCY: Agency created in 1979 to provide a single
point of accountability for all federal activities related to disaster mitigation and emergency
preparedness, response, and recovery. FEMA manages the President’s Disaster Relief Fund and
coordinates the disaster assistance activities of all federal agencies in the event of a Presidential
Disaster Declaration.
HOMELAND SECURITY REGION 2: A regional organization within Washington State that
comprises the emergency management offices from Kitsap, Jefferson, and Clallam counties and
the Tribal Governments within them.
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HOMELAND SECURITY EXERCISE AND EVALUATION PROGRAM: Provides a set of guiding
principles for exercise programs, as well as a common approach to exercise program
management, design and development, conduct, evaluation, and improvement planning.
INCIDENT: An occurrence or event, natural or manmade that requires a response to protect life
or property. Incidents can, for example, include major disasters, emergencies, terrorist attacks,
terrorist threats, civil unrest, wildland and urban fires, floods, hazardous materials spills, nuclear
accidents, aircraft accidents, earthquakes, hurricanes, tornadoes, tropical storms, tsunamis, war-
related disasters, public health and medical emergencies, and other occurrences requiring an
emergency response. (Source: National Response Framework)
INCIDENT COMMAND: Entity responsible for overall management of the incident. Consists of
the Incident Commander, either single or unified command, and any assigned supporting staff.
(Source: National Response Framework)
INCIDENT COMMAND POST: The field location where the primary functions are performed. The
ICP may be co-located with the incident base or other incident facilities. (Source: National
Response Framework)
INCIDENT COMMAND SYSTEM (ICS): A standardized on-scene emergency management
construct specifically designed to provide for the adoption of an integrated organizational
structure that reflects the complexity and demands of single or multiple incidents, without being
hindered by jurisdictional boundaries. ICS is a management system designed to enable effective
incident management by integrating a combination of facilities, equipment, personnel,
procedures, and communications operating within a common organizational structure, designed
to aid in the management of resources during incidents. It is used for all kinds of emergencies
and is applicable to small as well as large and complex incidents. ICS is used by various
jurisdictions and functional agencies, both public and private, to organize field-level incident
management operations. (Source: National Response Framework)
INCIDENT COMMANDER (IC): The individual responsible for all incident activities, including the
development of strategies and tactics and the ordering and the release of resources. The Incident
Commander has overall authority and responsibility for conducting incident operations and is
responsible for the management of all incident operations at the incident site. (Source: National
Response Framework)
INCIDENT MANAGEMENT TEAM (IMT): Refers to a group that focuses on prevention,
protection, response, and recovery to emergencies and disasters based on the National Incident
Management System and Response Framework.
INDIVIDUAL ASSISTANCE (IA): Supplementary federal assistance available under the Stafford
Act to individuals, families, and businesses which includes disaster housing assistance,
unemployment assistance, grants, loans, legal services, crisis counseling, tax relief, and other
services or relief programs. (See INDIVIDUAL AND FAMILY GRANT PROGRAM)
JOINT INFORMATION CENTER: A central location that facilitates operation of the Join
Information System. A location where personnel with public information responsibilities perform
critical emergency information functions, crisis communications, and public affairs functions.
MAJOR DISASTER: Under the Robert T. Stafford Disaster Relief and Emergency Assistance
Act, any natural catastrophe (including any hurricane, tornado, storm, high water, wind-driven
water, tidal wave, tsunami, earthquake, volcanic eruption, landslide, mudslide, snowstorm, or
drought) or, regardless of cause, any fire, flood, or explosion in any part of the United States that,
in the determination of the President, causes damage of sufficient severity and magnitude to
warrant major disaster assistance under the Stafford Act to supplement the efforts and available
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resources of States, local governments, and disaster relief organizations in alleviating the
damage, loss, hardship, or suffering caused thereby (Stafford Act, Sec. 102(2), 42 U.S.C.
5122(2). (Source: National Response Framework, National Incident Management System)
MASS CARE: The actions that are taken to protect evacuated or relocated people and other
disaster victims from the effects of the disaster. Activities include providing temporary shelter,
food, medical care, clothing, and other essential life support needs to the people who have been
displaced from their homes because of a disaster or threatened disaster. (Source: FEMA
Comprehensive Preparedness Guide (CPG) 101)
MITIGATION: Mitigation is the effort to reduce loss of life and property by lessening the impact of
disasters. This is achieved through risk analysis, which results in information that provides a
foundation for mitigation activities that reduce risk. (Source: FEMA Comprehensive Preparedness
Guide (CPG) 101)
MULTI-AGENCY COORDINATION SYSTEM: Provides the basic architecture for facilitating the
allocation of resources, incident prioritization, coordination and integration of multiple agencies for
large-scale incidents and emergencies.
MUTUAL AID: The voluntary reciprocal exchange of resources and services for mutual benefit.
NATIONAL INCIDENT MANAGEMENT SYSTEM (NIMS): Provides a systematic, proactive
approach that guides government agencies at all levels, the private sector, and nongovernmental
organizations to work seamlessly to prepare for, prevent, respond to, recover from, and mitigate
the effects of incidents, regardless of cause, size, location, or complexity, in order to reduce the
loss of life or property and harm to the environment. (Source: National Response Framework,
National Incident Management System, FEMA Comprehensive Preparedness Guide (CPG) 101)
NATIONAL RESPONSE FRAMEWORK: A guide to how the nation conducts all-hazards incident
management. (Source: National Response Framework, National Incident Management System,
FEMA Comprehensive Preparedness Guide (CPG) 101)
NATIONAL WARNING SYSTEM (NAWAS): The federal portion of the Civil Defense Warning
System used for the dissemination of warnings and other emergency information from the
Federal Emergency Management Agency National or Regional Warning Centers to Warning
Points in each state. Also used by the State Warning Points to disseminate information to local
Primary Warning Points. Provides warning information to state and local jurisdictions concerning
severe weather, earthquake, flooding, and other activities affecting public safety.
NONGOVERNMENTAL ORGANIZATION: An entity with an association that is based on
interests of its members, individuals, or institutions. It is not created by a government, but it may
work cooperatively with government. Such organizations serve a public purpose, not a private
benefit. Examples of NGOs include faith-based charity organizations and the American Red
Cross. NGOs, including voluntary and faith-based groups, provide relief services to sustain life,
reduce physical and emotional distress, and promote the recovery of disaster victims. Often these
groups provide specialized services that help individuals with disabilities. NGOs and voluntary
organizations play a major role in assisting emergency managers before, during, and after an
emergency.
(Source: National Response Framework)
PRELIMINARY DAMAGE ASSESSMENT (PDA): The joint local, state, and federal analysis of
damage from a disaster and which may result in a Presidential declaration of disaster. The PDA
is documented through surveys, photographs, and other written information.
PREPAREDNESS: Actions that involve a combination of planning, resources, training,
exercising, and organizing to build, sustain, and improve operational capabilities. Preparedness is
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the process of identifying the personnel, training, and equipment needed for a wide range of
potential incidents, and developing jurisdiction-specific plans for delivering capabilities when
needed for an incident. (Source: National Response Framework)
PRESIDENTIAL DECLARED DISASTER: As set forth in the Stafford Act, a governor seeks a
presidential declaration by submitting a written request to the President through the Everett 2014
CEMP Appendix 1 Page 9 FEMA regional office. In this request the Governor certifies that the
combined local, county and state resources are insufficient and that the situation is beyond their
recovery capabilities. Following a FEMA regional and national office review of the request and the
findings of the preliminary damage assessment, FEMA provides the President an analysis of the
situation and a recommended course of action. (Source: FEMA website)
PREVENTION: Actions to avoid an incident or to intervene to stop an incident from occurring.
Prevention involves actions to protect lives and property. It involves applying intelligence and
other information to a range of activities that may include such countermeasures as deterrence
operations; heightened inspections; improved surveillance and security operations; investigations
to determine the full nature and source of the threat; public health and agricultural surveillance
and testing processes; immunizations, isolation, or quarantine; and, as appropriate, specific law
enforcement operations aimed at deterring, preempting, interdicting, or disrupting illegal activity
and apprehending potential perpetrators and bringing them to justice. (Source: National
Response Framework)
PRIMARY AGENCY: A state agency or agency assigned primary responsibility to manage and
coordinate a specific ESF. Primary agencies are designated on the basis of who has the most
authorities, resources, capabilities, or expertise relative to accomplishment of the specific
Emergency Support Function (ESF) with assistance, if requested, from the SEOC. An example of
a primary agency is the Department of Transportation for ESF 1 - Transportation.
PUBLIC ASSISTANCE (PA): Supplementary federal assistance provided under the Stafford Act
to state and local jurisdictions, special purpose districts, federally recognized tribal governments
or certain private, nonprofit organizations.
PUBLIC INFORMATION OFFICER: Communications coordinators or spokespersons of certain
governmental organizations (city, county, school, district, state government, police/fire).
RECOVERY: The economic focused long-term activities normally beyond the initial crisis period
and emergency response phase of disaster operations that focus on returning all systems in the
community to a normal status or to reconstituting these systems to a new condition that is less
vulnerable. (Source: FEMA Comprehensive Preparedness Guide (CPG) 101)
RESOURCE MANAGEMENT: The efficient and effective development of an organization’s
resources when they are needed. Such resources may include financial resources, inventory,
human skills, production resources, or information technology.
RESPONSE: Actions taken to contain or mitigate the effects of a disastrous event to prevent any
further loss of life and/or property.
SERVICE ANIMAL: Any dog that is individually trained to do work or perform tasks for the benefit
of an individual with a disability, including a physical, sensory, psychiatric, intellectual, or other
mental disability. Except as provided in subsection (2) of RCW 49.60.218 (miniature service
horse), other species of animals, whether wild or domestic, trained or untrained, are not service
animals. The work or tasks performed by a service animal must be directly related to the
individual's disability. Examples of work or tasks include, but are not limited to, assisting
individuals who are blind or have low vision with navigation and other tasks, alerting individuals
who are deaf or hard of hearing to the presence of people or sounds, providing nonviolent
protection or rescue work, pulling a wheelchair, assisting an individual during a seizure, alerting
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individuals to the presence of allergens, retrieving items such as medicine or the telephone,
providing physical support and assistance with balance and stability to individuals with mobility
disabilities, and helping persons with psychiatric and neurological disabilities by preventing or
interrupting impulsive or destructive behaviors. The crime deterrent effects of an animal's
presence and the provision of emotional support, well-being, comfort, or companionship do not
constitute work or tasks. (RCW 49.60.218)
SHELTER-IN-PLACE: To seek safety in within a building that one already occupies rather than to
evacuate the area or seek a community emergency shelter.
SITUATIONAL AWARENESS: The ability to identify, process, and comprehend the critical
elements of information about an incident. (Source: National Response Framework)
SPECIAL-NEEDS POPULATION: A population whose members may have additional needs
before, during, or after an incident in one or more of the following functional areas: maintaining
independence, communication, transportation, supervision, and medical care. Individuals in need
of additional response assistance may include those who have disabilities; live in institutionalized
settings; are elderly; are children; are from diverse cultures, have limited proficiency in English or
are non-English speaking; or are transportation disadvantaged. (Source: FEMA Comprehensive
Preparedness Guide
(CPG) 101)
STAFFORD ACT: The Robert T. Stafford Disaster Relief and Emergency Assistance Act, P.L.
93-288, as amended. This Act describes the programs and processes by which the Federal
Government provides disaster and emergency assistance to State and local governments, tribal
nations, eligible private nonprofit organizations, and individuals affected by a declared major
disaster or emergency. The Stafford Act covers all hazards, including natural disasters and
terrorist events. (Source: National Response Framework)
STANDARD OPERATING PROCEDURE: Set of step-by-step instructions compiled by an
organization to help workers carry out complex routine operations.
TERRORISM: The use or threatened use of criminal violence against civilians or civilian
infrastructure to achieve political ends through fear and intimidation rather than direct
confrontation. Emergency management is typically concerned with the consequences of terrorist
acts directed against large numbers of people. (Source: FEMA Comprehensive Preparedness
Guide (CPG) 101)
UNIFIED COMMAND: An Incident Command System application used when more than one
agency has incident jurisdiction or when incidents cross political jurisdictions. Agencies work
together through the designated members of the UC, often the senior person from agencies
and/or disciplines participating in the UC, to establish a common set of objectives and strategies
and a single Incident Action Plan. (Source: National Response Framework)
WILDLAND FIRE: Fire that occurs in wildland areas made up of sagebrush, grasses, or other
similar flammable vegetation.
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ACRONYMS
AAR After-Action Report/Review
ADA Americans with Disabilities Act
AFN Access and Functional Needs
CEMP Comprehensive Emergency Management Plan
CERT Community Emergency Response Team
CCC City Command Center
COG Continuity of Government
COOP Continuity of Operations
CP Command Post
CPG Comprehensive Preparedness Guide
DEM Department of Emergency Management
DHS Department of Homeland Security
DSCA Defense Support of Civil Authorities
EAS Emergency Alert System
EM Emergency Management
EMAC Emergency Management Assistance Compact
EMD Washington Military Department Emergency Management
EMS Emergency Medical Services
EOC Emergency Operations Center
EOP Emergency Operations Plan
ESF Emergency Support Function
FEMA Federal Emergency Management Agency
GIS Geographic Information Systems
HAZMAT Hazardous Material
HIVA Hazard Identification and Vulnerability Assessment
HMP Hazard Mitigation Plan
HSEEP Homeland Security Exercise Evaluation Program
HSPD Homeland Security Presidential Directive
IAP Incident Action Plan
IC Incident Commander
ICP Incident Command Post
ICS Incident Command System
JFO Joint Field Office
JIC Joint Information Center
MACS Multi-Agency Coordination System
MOU Memorandum of Understanding
NFIP National Flood Insurance Program
NGO Nongovernmental Organization
NRF National Response Framework
PDA Preliminary Damage Assessment
PIO Public Information Officer
PPD Presidential Policy Directive
RCW Revised Code of Washington
SITREP Situational Report
SOP Standard Operating Procedure
UC Unified Command
WAC Washington Administrative Code
WAMAS Washington State Mutual Aid System
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Annex 1.10.2
Lines of Succession
Jefferson County Line of Succession
The Jefferson County Board of Commissioners is the primary governing entity. In the event that
no County Commissioner is available, a joint board made up of the Treasurer, Auditor, Assessor,
Sheriff, and Prosecutor shall possess by majority vote the full authority of Board of County
Commissioners regarding the emergency at hand.
City of Port Townsend Line of Succession
A. City Council:
1. Mayor
2. Deputy Mayor
B. Port Townsend City Manager:
1. City Manager
2. Director of Finance and Administration
C. Port Townsend Police Department:
1. Chief of Police
2. Deputy Chief of Police
3. Patrol Sergeant
4. Designated Senior Patrol Officer
D. Port Townsend Public Works
1. Director of Public Works
2. City Engineer
3. Public Works Operations Manager
E. Finance and Administration:
1. Director of Finance and Administration
2. Finance Manager
3. Human Resources Manager
F. City Clerk:
1. City Clerk
2. Deputy City Clerk
3. City Clerk/Legal Assistant
G. Emergency Management Program:
1. Director-Chief of Police
2. Deputy Chief of Police
3. Patrol Sergeant
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Annex 1.10.3
Multi-Agency Coordination (MAC) System
PURPOSE OF THE MULTI-AGENCY COORDINATION SYSTEM. The Multi-Agency
Coordination (MAC) system provides a common strategy for collaboration among the local public
safety agencies toward the united goal of effective response to a major emergency or disaster.
The MAC system supports overall coordination while recognizing and supporting the authority
and responsibility of each constituent agency. The Multi-Agency Coordination Center is the usual
place of business for the team – known generally as the MAC Group. An adjunct of the MAC
Group occupies the City Command Center for coordination of issues relating to City response.
GENERAL RESPONSIBILITIES OF THE MULTI-AGENCY COORDINATION GROUP.
INFORMATION COLLECTION AND EVALUATION. Establishing and sustaining an
information management system in the EOC that provides for collection, processing,
tracking, display, and retention of operational information.
STRATEGIC PLANNING. Coordination of global strategic planning to guide and
measure progress toward overall emergency response and recovery goals and
objectives. COMMON OPERATIONAL PICTURE. Assembling, codifying, and displaying of the
status of infrastructure, assessment of public and private damage, and overall impact
of emergency conditions. OVERALL INTER-AGENCY COORDINATION. A process for multi-agency and
multi-jurisdictional coordination and collaboration.
BROAD SCALE INCIDENT PRIORITIES. A system for prioritization of scarce
resources according to a strategic plan.
COMPREHENSIVE RESOURCE MANAGEMENT. General materiel support to the
emergency response and recovery agencies; acquisition, staging, delivery and
tracking of essential resources.
PUBLIC INFORMATION. Establishment and coordination of a joint agency
emergency public information network.
COORDINATION OF STATE AND FEDERAL RELIEF. Act as the principal point of
contact for state assistance and federal disaster relief.
COORDINATION OF LOCAL GOVERNMENT. Provide staff and guidance to county
and city officials during the emergency and early stage recovery process;
representation of local government leadership at the coordination level.
AUTHORITY. The Multi Agency Coordination – Emergency Operations Center (MAC/EOC) is
established as a coordination mechanism for implementation of the Jefferson County
Comprehensive Emergency Management Plan (CEMP). The CEMP defines the roles and
responsibilities of local government in accordance with the requirements of Chapter 38.52,
Revised Code of Washington.
Presidential Directive No. 5 (HSPD-5) identifies steps for improved coordination in response to
incidents and establishes the National Response Framework (NRF) and the National Incident
Management System (NIMS).
NIMS COMPLIANCE. NIMS is a systematic approach to guide departments and agencies at all
levels of government, nongovernmental organizations, and the private sector to work together
seamlessly and manage incidents involving all threats regardless of cause, size, location, or
complexity.
STRUCTURE. The Multi-Agency Coordination methods used here conform to the procedures
described by the National Incident Management System (NIMS) for overall level of coordination.
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NIMS, a component of the National Response Framework (NRF), visualizes common
management structures based on MACs (or similar format) at the local government level and the
Incident Command System24 (ICS) at the field operational level.
BASIC PREMISE OF NIMS. All incidents begin and end locally. NIMS does not take
responsibility away from State and local authorities. NIMS simply provides the framework to
enhance the ability of responders, including the private sector and NGOs, to work together more
effectively. The Federal Government supports State and local authorities when their resources
are overwhelmed or anticipated to be overwhelmed. Federal departments and agencies respect
the sovereignty and responsibilities of local, tribal, and State governments while rendering
assistance. The MAC system is based on NIMS to assure seamless coordination at all levels.
GENERAL CONCEPT OF OPERATIONS. The Emergency Operations Center, a component of
the Multi-Agency Coordination system, is the primary base of operations for implementation of the
emergency management system according to the Comprehensive Emergency Management Plan.
The joint county/city EOC MAC Group (structured according to the Incident Command System
and scaled to the nature and scope of the incident) is mobilized to assume overall multiagency
and multi-jurisdiction coordination.
An Alternate Emergency Operations Center (also known as City Command Center) is established
separately to coordinate city resources and provide overflow for the primary EOC. (See EOG
3.3.02 – Emergency Operations Center Activation). The City Command Center is structured to
complement the EOC during concurrent activations, to provide for direction of city operations, and
to function as the Area 1 coordination center.
Where representatives from key MAC organizations cannot be present in the EOC, provisions
can be made for “virtual” coordination.
THE EOC AS A MULTI-AGENCY COORDINATION (MAC) CENTER. The EOC generally follows
the Multiagency Coordination (MAC) operational model. Although configured according to ICS,25
the EOC Incident Management Team (EOC/IMT) is a coordination entity providing overall
strategic planning and prioritization with no direct involvement in the operational details of the
responding agencies. When there is concurrent activation of both facilities, the AEOC/CCC is
supported by the EOC cooperatively. The EOC is activated to:
Implement the appropriate parts of the Comprehensive Emergency Management
Plan
Coordinate development of a synchronized strategic plan
Support on-scene response by relieving the burden of external coordination and
securing additional resources.
Provide a physical location staffed with personnel trained for and authorized to
represent their agency/discipline.
Equipped with mechanisms for communicating with the incident sites.
INTERNAL CONTROL. The establishment of a MAC/EOC does not change the chain of
command at the incident scene. Each local partner agency (incident command agency)
recognizes and supports the overall coordination responsibilities of the MAC/EOC while retaining
its own identity and internal control.
24 ICS is a NIMS product.
25 The ICS format is used to maintain consistency with local operations, and accommodate
familiarity with common terms and structures. Emergency Support Functions (ESF’s) are not
used, but are cross-walked to the local format to provide clarity for external agencies that are
more familiar with the ESF format.
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INCIDENT COMMAND AGENCY. The designated Incident Command agency is determined by
the type, nature, and scope of the incident. As a general reference, the CEMP identifies a lead
agency according to hazard.26 In broad scope regional incidents impacting multiple jurisdictions,
the EOC stands up the Multi-Agency Coordination Group to provide overall coordination
according to the plan. Overall coordination by the MAC/EOC does not supersede local on-scene
or area command.
EMERGENCY MANAGEMENT LEAD AGENCY. Because of the broad scale cross-boundary
impact of the following hazards, Emergency Management is the designated lead agency.
Assumption of “lead agency” status by Emergency Management does not nullify or invalidate the
responsibility of each local response organization to establish on-scene or area command in their
individual zone of obligation.
Damaging winds
Severe winter storms
Flooding
Earthquake
Volcanic activity
Consequences of terrorism
MAC GROUP ASSIGNMENTS. The EOC/MAC Group will scale the team structure necessary to
meet the nature and scope of the incident. A job action sheet will outline the duties and
responsibilities of each position (see Attachment A for an index of staff positions). A Job Action
Sheet defines the roles and responsibilities of each staff position.
26 Comprehensive Emergency Management Plan (CEMP) Attachment 1.10.6 – Local
Coordinating Agencies
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Annex 1.10.4
Evacuation Plan
SCOPE – Evacuation (i.e., remedial relocation of persons at risk) is an effective tool to be used
by Jefferson County law enforcement agencies and fire districts as a mechanism to contain and
isolate a life threatening hazard. Evacuations have many common characteristics although they
may differ in their cause, timing, and results. It is an inherently costly, disruptive, and complex
enterprise requiring effective communication with the public, trust in the agency ordering the
evacuation, and rapid compliance by those affected under difficult circumstances.
BACKGROUND – Evacuation is a sub-strategy for the protection of people by moving them a
safe distance from an imminent threat to their health and safety, and by limiting entry or re-entry
into hazardous areas until determined safe to do so by authorities. This framework allows for
scaling of the evacuation based on the magnitude of the root trigger event.
PURPOSE – The purpose of the Jefferson County Evacuation Plan is to identify evacuation
trigger events, define the roles and relationships of decision-makers and stakeholders, provide a
structure for coordination and communication, and define how evacuations will be implemented.
AUTHORITY TO ORDER EVACUATION – The adopted Jefferson County Comprehensive
Emergency Management Plan (July 2013) was developed in accordance with RCW 38.52.070.
WAC 118-30-060(2)(g) specifies that the plan shall provide details concerning “Movement
(evacuation)”. This emergency plan designates a chain of command and the organizational
relationships for dealing with evacuation. The legislative body of the jurisdiction in which the
incident occurs (Board of County Commissioners or City Council) is the primary authority for
ordering an evacuation. Under certain conditions identified by this plan, execution of an
evacuation is delegated to the designated incident command agency.
An evacuation “order” does not compel persons at risk to evacuate. The term “evacuation order”
means the formal notice to the public at risk that an evacuation is being carried out for
their protection, and to encourage compliance with the evacuation instructions
disseminated by the responsible authorities. Short term small scale evacuations may be
carried out by on-scene command without a formal declaration. Longer term or wider scope
evacuations may require formalizing the order as a means of authorizing the incident command
agency to carry out the provisions of this plan.
EXCEPTION – The County Health Officer may compel a limited evacuation as needed to prevent
or control the spread of any dangerous, contagious, or infectious diseases that may occur in the
jurisdiction.
REFUSAL TO EVACUATE – No public official has the legal authority to impose a mandatory
evacuation order on citizens in their own homes. Refusals should be noted and reported to the
Incident Command agency. Citizens who refuse should be advised that authorities may not be
able to protect them or provide rescue-relief if they remain.
GENERAL POLICIES –
The Incident Commander (or Unified Command) has full authority and
responsibility to implement and coordinate small-scale evacuations, to control
ingress and egress to and from an evacuation area, the movement of persons
within the area, and the occupancy of premises therein.
Law enforcement has the responsibility to close roads, enforce restriction of
access to and from the evacuation area, and to remove stalled or parked
vehicles which impede the flow of traffic.
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Incident Command may direct traffic flow to be altered or reversed.
A single source of warnings and emergency public information associated with
the evacuation will be under the coordination of the Incident Commander.
Organizations with duties identified in this plan have the responsibility for
developing and maintaining internal plans and procedures for carrying out those
duties under Unified Command
Large scale evacuations will be implemented with a declaration of emergency by
the appropriate legislative body.
Because of the scarcity of resources for enforcement of mandatory evacuation,
orders are issued with little intention of enforcing them. Evacuation will not entail
physical force.
OPERATIONAL OBJECTIVES – Evacuation plan will be executed under these objectives:
Minimize risk to emergency responders
Protect the life and health of residents and visitors
Communicate an evacuation warning to all those at risk
Carry out the evacuation as quickly and safely as possible
Minimize the impact to the community Effect and manage a safe and efficient re-entry
Table - 1: EVACUATION PLANNING LEVELS
LEVEL PARAMETERS EXAMPLES
1 – Spot evacuation Fewer than 10 persons
Fewer than 8 hours
expected duration
1 or 2 homes
Police activity (hostage or
active shooter)
Fire
Bomb threat
Crime scene
Small hazmat
2 – Local evacuation Fewer than 100 persons
Fewer than 8 hours
expected duration
Neighborhood or multi-
family dwelling
Flooding
Wildland fire
Hazmat release
Active shooter
Bomb threat
3 – Area evacuation More than 100 evacuees
8 hours expected duration
Several city blocks (or
more than 1 square mile)
Major event venue
Fire
Large Wildland fire
Hazmat release
Terrorist incident Public health emergency
Munitions incident
Major flooding
4 – Large scale evacuation More than 1000 evacuees
More than 8 hours
expected duration
Multiple communities
Tsunami
Major flooding
DECISION TO EVACUATE – The appropriate incident command agency (or Unified Command,
depending on the type of incident) is delegated the responsibility to implement this evacuation
plan.
EVACUATION CHAIN OF COMMAND – The law enforcement agency of the jurisdiction in which
the incident occurs will coordinate the evacuation according to this plan under the overall
direction of the designated incident command agency (or Unified Command). In complex
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evacuations an Evacuation Group may be established in Operations to coordinate the evacuation
(see Attachment A – Evacuation Roles and Responsibilities).
Table – 2: RECOMMENDED PROTECTIVE MEASURES
TYPE EXPECTATION IMPLEMENTATION
Precautionary evacuation Voluntary evacuation for a
potential threat; may include
certain at-risk populations
No evacuation order issued
Shelter-in-place Persons at risk remain
indoors in a closed interior
room
Authorities may recommend
SIP to limit movement in the
hazard area; hazard may be
minimal
Delayed evacuation Persons at risk in the hazard
area prepare for evacuation if
necessary
Authorities may recommend
preparation for evacuation
pending further development
of the risk
Immediate evacuation Evacuation of a specific is
required to remove persons
from the hazard area
Evacuation order issued;
persons in the risk area will be
advised to leave immediately
ALERTS AND WARNINGS – Warnings and alerts are the initial notifications issued to persons at
risk so they can prepare to or take the necessary steps to protect themselves.
Alert: Local authorities recognize the threat may necessitate evacuation if certain
conditions arise. The public will be notified of the possible need for evacuation
Warning: A threat exists and evacuation or shelter-in-place has been ordered.
WARNING MESSAGE – Evacuation orders should include these categories:
Guidance – recommended protective actions
Location – who should respond to the warning
Time – how much time to accomplish protective action(s)
Hazard – description of the risk
Source – who is issuing the warning
TYPICAL CONTENT OF AN ORDER TO EVACUATE –
The nature of the threat
The type of evacuation (precautionary, shelter-in-place, delayed, immediate)
Protective actions to take Definition of the evacuation area
When to evacuate
Evacuation destination to (reception sites, shelters)
Areas to avoid
Emergency transportation details
Provisions for special needs populations
Items to bring (or leave behind)
How to deal with pets or livestock
How to secure property
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METHODS FOR DISSEMINATION OF WARNINGS, ALERTS, AND EMERGENCY PUBLIC
INFORMATION –
Emergency Alert System (EAS) (public television and radio broadcast facilities in
the Puget Sound area)
Local Emergency Public Information Alliance (local FM broadcast outlets – KPTZ
and KROH radio)
Text messaging (NIXLE text and email messaging subscription service)
Local print media (hard copy information and frequently updated web sites)
Jefferson County Emergency Management Emergency Information blog (real
time posting of emergency public information on line)
Door-to-door by emergency responders
Mobile loud speakers
Electronic message signs (roadside information displays)
Flyers and handbills
MESSAGE DELIVERY – These message elements influence what people do in an evacuation:
Specificity – leave nothing to the imagination Certainty – what may happen; what may NOT happen
Clarity – use simple language
Accuracy – tell the truth
Consistency – standardize message across different warning methods
PHASED EVACUATION – Phasing is executing the evacuation in a sequential manner. Phasing
can be used to eliminate an evacuation problem or to mix evacuation strategies within the hazard
zone (such as evacuation of persons closest to the hazard and sheltering-in-place more distant
populations).
SELECTIVE EVACUATION – Advising a subset of the population to evacuate based on selective
criteria.
Age
Health status (such as respiratory problems)
Mobility impaired
Pregnant women
Children under the age of 5
Other conditions
EVACUEE DESTINATION – A recommended destination (reception site and/or shelter) will be
included in the evacuation order. Destinations are a factor in modeling evacuation routes, traffic
control points, and determining overall transportation strategy.
RECEPTION SITE(S) – Reception sites are temporary (expedient) locations outside the hazard
area where evacuees can gather:
To wait for authorization to re-enter the hazard zone
As a location for assembly of travelers/visitors
To be sheltered from inclement weather
Obtain status updates and other information from authorities
Be reunited with family members
Be re-directed to shelters or longer term holding areas
Be processed for re-entry into evacuated areas
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DESIGNATED SHELTERS – A Shelter or shelters will be identified on a case by case basis
when the evacuation will last more than one day. On average shelter use is about 5% (or less) for
the evacuating public. Shelter use is higher when the evacuating population is low income or a
greater percentage of older persons, or a number of tourists with no place else to go.
EVACUATION OF ANIMALS – Typically 60% of typical evacuees will have pets. Animal housing
facilities will be co-located with mass care shelters to reduce the need for evacuees to attempt to
return to rescue them if the incident period is protracted.
TRANSPORTATION – Transportation factors in evacuation modeling:
Can the area at risk be evacuated with free-flowing traffic?
How long will it take to evacuate the population at risk?
If congestion occurs where are the problematic areas in the network?
What are the best routes out of an area?
Are there sufficient resources to staff all proposed traffic control points?
When an incident occurs before the evacuation ends, what is the residual
population at risk?
What are the best traffic control strategies?
What is the impact of traffic impediments on evacuation times?
USE OF PERSONAL VEHICLES IN EVACUATIONS – Personal vehicle use for complex
evacuations will be high. However, some people require assistance because they do not own a
vehicle or cannot drive. Most of these receive assistance from family or friends. 1-2% may require
transportation assistance. Personal vehicles will produce problems (breakdowns, etc.).
Procedures are in place to clear blocked roads if that were to occur.
PICK-UP POINTS – For those requiring assistance, the evacuation plan will include identification
of pick-up points for public transportation to reception sites. Pick-up points will be determined on
a case-by-case basis.
VULNERABLE POPULATIONS STRATEGIES – Schools, institutions, and care facilities will
develop their own individual evacuation and transportation plans. Persons with access or
functional needs should develop emergency plans for evacuation using these priorities:
Self-help if able
Immediate family and/or friends
Caregivers and relevant service agency
Neighbors
Emergency responder assistance (may be limited by conditions)
SPECIAL NEEDS FACILITIES – Special needs facilities are responsible for the safety and
welfare of their clients and such facilities shall maintain an emergency plan that include provisions
for evacuation, making arrangements for suitable transportation, and coordinating use of
appropriate reception facilities. Transportation assistance, if needed, should be ordered through
the Emergency Operations Center.
COUNTER-FLOW STRATEGIES – Lane reversal doubles road capacity and facilitates flow out
of the hazard area. It needs careful planning so not to block ingress of emergency response
vehicles.
EVACUATION RE-ENTRY PLAN –
Develop a time line for formal re-entry
Identify evacuated areas safe for re-entry and/or modified closure level(s)
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Are power lines secure? Are there other hazards to mitigate (debris, roads,
etc.)?
Have all agencies been notified?
Has the re-entry plan been properly adopted and promulgated?
TABLE- 3: RE-ENTRY PLANNING LEVELS
SECURITY
LEVEL RESTRICTIONS
5 Closed to ALL traffic (not safe for any occupancy)
4 Closed to all traffic except fire and law enforcement (controlled)
3 Closed to all traffic except fire, law enforcement, and critical support resources (mitigation
of hazard such as opening roads, hazardous debris removal, etc.)
2
Open in phases to above and residents with appropriate identification (short term). Passes
may be issued to impacted residents who demonstrate the need for limited re-entry (i.e. pet
care, feed livestock, retrieve medications, etc.).
1 Open to all of the above and residents with appropriate identification (early recovery). May
include passes to insurance adjusters, authorized contractors and repair personnel
0 Open to the general public (return to normal activities)
DECISION TO BEGIN RE-ENTRY – The re-entry plan will be accomplished at a Planning
meeting with the Unified Command and General Staff, with media releases, Incident Action Plan
instructions, and modification of closure levels at incident traffic control points.
EMERGENCY RESPONDER SAFETY – Conditions may require emergency responders to enter
an impending hazard area to assist with the evacuation. Evacuation plans will include a “recall”
protocol that assures responders are clear of the hazard zone at a given time (i.e. potential
tsunami inundation). The recall may occur before the evacuation is complete.
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Annex 1.10.5
Recovery
BACKGROUND – The initial response period for any disaster is relatively short. When the lights
and sirens of first responders have been turned off, and the initial hours of a disaster have past,
the business and process of recovery begins. Short and long term recovery operations can be
complex, are critical to the future viability of our community, and could present challenges for
years to come following a significant disaster.
PURPOSE – This plan presents a system for the provision of short term disaster recovery
operations. Long term recovery operations and procedures are determined after the foundation
built in the short term recovery phase has been successfully completed. Developing a plan for the
unknown demands of long term recovery will depend on a near infinite number of variables.
Therefore, this segment provides an overview for Short Term Recovery activities.
SCOPE AND APPLICABILITY – This plan is in support of the Comprehensive Emergency
Management Plan that addresses the responsibilities of the personnel, services, equipment,
supplies and facilities of the offices and departments of Jefferson County and the City of Port
Townsend. It also addresses the emergency roles of special purpose districts, quasi-municipal
corporations, private sector organizations and commercial resources that participate in
emergency operations by agreement or understanding.
ASSUMPTIONS:
A major disaster will have a significant long-term effect on the County;
Economic viability, safety and health, and quality of life will be affected both in the
short term and the long term;
After the initial response to save lives and property in the first few hours after the
disaster, the critical work to restore essential services, remove debris, and begin
repairs must begin;
The responsibility to begin the coordination and support of the recovery efforts lies
with local government;
The responsibility to coordinate and facilitate the recovery efforts of all applicants
resides in Jefferson County Department of Emergency Management.
HAZARD VULNERABILITY - Jefferson County’s vulnerability to hazards has been assessed to
help prepare for response and recovery. Each of these hazards may present varying kinds and
degrees of damage. The most prominent, damage causing, natural hazards faced by Jefferson
County are summarized below:
Vulnerability
Assessment
Hazard
Very High Earthquake
High
Severe Storms (High winds, coastal flooding, etc)
Tsunami, Seiche
Wildfire
Landslide
Moderate
Drought
Hazardous Materials Spill
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Low
Flood
Volcano (Ash Fall)
RECOVERY DEFINED - Recovery means a coordinated set of actions designed to reduce the
effects of a disaster. A recovery program implies a deliberate effort to forestall and overcome the
adverse impacts of a disaster. Recovery is best understood in the context of comprehensive
emergency management, which includes all of the concepts shown in Figure 1.
Business as Usual
Figure 1. Recovery in the Context of Comprehensive Emergency Management.
TRANSITION FROM RESPONSE TO RECOVERY - The Department of Emergency
Management is the focal point for collecting damage assessment estimates, both public and
private, for both the City of Port Townsend and the County. When an incident occurs, the initial
operational periods will be focused on Response efforts. These activities might last a few hours to
several days depending on the situation. As Response activities taper off, non-life safety issues
can be addressed. At this point, the operational focus shifts from emergency response to
community recovery. In reality, however, the actions taken during Response become the
foundation for recovery.
RECOVERY STRATEGY - Recovery refers to those measures undertaken following a disaster to
start returning all systems to normal levels. Recovery does not just happen. Citizens, businesses,
and governments generally take the initiative to “pick up the pieces” and try to resume the
activities that make up life in our communities. Effective recovery consists of a myriad inter-
dependent and coordinated actions on several levels including individually, organizational, local
government, and national, and over a long period of time.
RESPONSIBILITY FOR COORDINATION - The responsibility for coordination and support of the
recovery effort lies with local government. The Department of Emergency Management will serve
as the Jefferson County focal point to coordinate recovery activities with leaders of local
government, with State agencies, and Federal resources.
Response
Business Interruption
Local Govt.
Recovery
Response
Community
Recovery
Community Recovery Risk
Assessment
Preparedness
Mitigation
Level of Effort
EVENT
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GOAL OF RECOVERY - A properly managed recovery program will allow prompt restoration of
essential services, reconstructing of damaged property, and resumption of traditional lifestyles.
PHASES OF RECOVERY - Recovery from a significant disaster will be managed in two
identifiable stages. Just as there are overlaps between response and recovery phases, there will
also be an overlap between short term and long term recovery activities:
a. Short Term Recovery Phase -- Depending on the severity of the disaster, the short
term recovery phase may range in duration from a few hours to a week or more. This is
the emergency reaction phase, which begins with the implementation of emergency plans.
Actions under this phase may include:
o Initial emergency response (fire/rescue, law enforcement, EMS, mass care,
etc)
o Initial impact assessment
o Emergency debris removal
o Clear major roadways
o Restoration of vital services
o Security of damaged / evacuated areas
o Management / distribution of donated goods
o Preliminary damage assessment
o Disaster declaration at local level
b. Long Term Recovery Phase -- Actions under this phase may include:
o Completion of damage assessment
o Completion of debris removal
o Restoration of essential facilities
o Repair / rebuilding of damaged public and private buildings / facilities
o Repair / rebuilding of roadways and bridges
o Repair / rebuilding of private homes and businesses
o Hazard mitigation projects
PRIORITIES OF RECOVERY OPERATIONS:
1. Maintain the health, safety, and security of the population. People will always
be the number one priority of response and recovery operations. Special needs
populations are an integral part of our population and may require separate and
additional services. The Department of Emergency Management, in coordination with
both governmental and non-governmental services and agencies, will make health,
safety and security of our communities the first priority in the provision of services in
both response and short-term recovery operations.
2. Restore critical facilities and utilities. Restoration of electrical power, water, and
telephones will be critical to effective recovery. Healthcare facilities, schools, some
long term care facilities, and some governmental facilities will become priorities for
restoration as the recovery process begins. More specifically, the following may be
considered to be priorities:
o EOC, JeffCom, fire stations
o Jefferson Healthcare, schools, and shelters
o Electrical power, telephone, and radio communication towers / systems
o Bridges and overpasses
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3. Resume business and economic activity. Based on the severity of the disaster,
resumption of business activity may take a few hours, several days, or months.
Getting people back to work and generating income is essential to both short term and
long term recovery.
IMMEDIATE GOALS OF SHORT TERM RECOVERY EFFORTS:
Opening lines of communication
Clearing roads
Restoration of electrical power
Sanitation Obtaining damage assessment information
CONCEPT OF OPERATIONS - The concept for recovery operations operates within the Incident
Command System structure. Activities will not necessarily take place in any pre-prescribed
chronological order. Based on the initial impact assessment, recovery activities should begin as
soon as it is safe to do so. Again, response activities and recovery activities overlap, and both
phases may be occurring at the same time. An overall concept of operations may include, but not
be limited to the following activities and efforts:
Conduct initial impact assessment
Clearing roads for re-entry to critical facilities
Search and rescue
Coordinate and complete disaster declaration
Coordinate utilities restoration
Oversee re-entry security operations (credentialing / identification of responders)
Establish temporary supply depots
Implement volunteer management structure
Implement continuity of government procedures
Coordinate and assist with establishment of local government temporary service
facilities
Coordinate with agencies assisting in sheltering, food and water distribution
Conduct / oversee short-term public information / community relations activities
Support establishment of Disaster Assistance Centers
Coordinate a county / city recovery task force
Assist with applicants briefing
Support businesses in reopening
PURPOSE OF A RECOVERY TASK FORCE - Following a disaster, demands on available
resources will exceed the supply. Meetings of a recovery task force following a disaster will
assist in defining needs, determine available resources, and enable the development of priorities.
It will also serve as a means of communication whereby government, non-governmental
organizations, and utility providers can develop a strategy for meeting those priorities. The
Recovery Task Force may be utilized for both short term and long term recovery efforts.
POTENTIAL MEMBERS OF THE RECOVERY TASK FORCE - The following agencies and
individuals have roles and responsibilities within the County and City that may be instrumental in
response, as well as short term and long term recovery. Depending on the severity, scope, and
type of damage the following may be participants in a short term recovery task force led by the
Department of Emergency Management. This list may be expanded to include other agencies or
individuals as the situation demands:
County Commissioners
County Administrator
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City Manager
City Council Emergency Management
Public Health
Public Works
Assessor
Treasurer
Community Development
Sheriff’s Office
Fire Districts
Red Cross
OlyCap
Jefferson Healthcare Utility providers
DUTIES OF THE RECOVERY TASK FORCE - Duties of the short term recovery task force may
include, but are not limited to, the following:
Establishing uniform policies for effective coordination of recovery efforts
Recommend and coordinate efforts to restore normalcy to areas adversely impacted
EMERGENCY MANAGEMENT SUPPORT FOR COMMUNITY LEADERSHIP - Emergency
Management will be the focal point in leading the Recovery Task Force but also in supporting
community leaders. Emergency Management will coordinate recovery activities, but also provide
status reports and serve as a liaison to outside jurisdictions and organizations. Specifically,
Emergency Management will:
Brief public officials on status of recovery operations and outlook for the immediate
future
Service as a local resource and authority on State and Federal disaster recovery
assistance programs
Serve as liaison to outside agencies on specific issues requested by community
leadership
Hold regular briefings with agency directors to keep them informed of current
activities and problems
INCIDENT RECOVERY COORDINATOR - Working closely with the Recovery Task Force, the
Department of Emergency Management will appoint an Incident Recovery Coordinator. The
duties of the Incident Recovery Coordinator will consist of, but not be limited to the following:
Determine the types of assistance available to Jefferson County and the City of Port
Townsend, and the types of assistance most needed;
Assist in the local coordination of Federal and State disaster recovery efforts;
Provide local assistance to facilitate Federal and State disaster assistance programs;
Act as facilitator in securing Federal or State disaster assistance
Inform the community of types of disaster assistance available
Other duties as directed by the Recovery Task Force
CONTINUITY OF GOVERNMENT - It is incumbent upon all levels of government to be prepared
and ready to continue operations in the face of a disaster. As a result, the establishment of clearly
defined procedures and the order of succession are critical to ensure that essential operations
can continue after a catastrophic event.
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PURPOSE OF DAMAGE ASSESSMENT - Concurrent with and in support of response activities,
initial damage assessment information will be assembled by the EOC. The initial reason for damage
assessment is to determine the need for the extent of emergency resources to assist in response
operations. Outside assistance may be required to assist in both response and short term recover
operations.
Initial damage assessments will include casualty as well as property damage estimates. These
estimates are necessary to coordinate shelter, health and medical responses. The initial damage
assessment also provides a basis for a County Declaration of Emergency. The Declaration of
Emergency is forwarded to the State Emergency Operations Center in order to provide a Statewide
Damage Estimate to prepare the application for Federal Assistance (requesting a Presidential
Declaration). The Federal Government requests damage assessment estimates to determine the
extent of federal aid required to put the County and City back to normal operations.
Recovery procedures currently in use through the State of Washington and FEMA provide for two
overall categories of damage – private and public. Damage to privately owned properties
generally is dealt with through the Individual Assistance Program. Damage to publicly owned
properties is dealt with through the Public Assistance Program. Businesses will need a thorough
documentation of the history of the business and the effect of the disaster on the business. The
Department of Emergency Management may assist in supporting the initial activities for
businesses in application for Small Business Administration Disaster loans
Management of Recovery Operations may require an on-going collection of vast amounts of
damage assessment data concerning the impact of a disaster upon individuals and their
communities.
DAMAGE ASSESSMENT PROCEDURES - Initial damage assessment information may be
obtained through various avenues including:
Department of Emergency Management
City of Port Townsend
Jefferson County Sheriff’s Office
Fire Districts Building inspectors
Public Works and Washington Department of Transportation
Puget Sound Energy
Jefferson County Public Health
Red Cross
State agencies
Hoh Tribe of Indians
Private citizen reports
Other agencies
It is an assumption that damage to County property will be assessed by County agencies
wherever it is located. City property is assessed by City agencies. State and federal agencies will
assess their respective properties.
These initial damage assessments will form the basis of information reported to the Washington
State Emergency Management Division Emergency Operations Center. As additional information
is obtained, these reports will be updated as necessary.
AREA COMMAND DAMAGE ASSESSMENT - When activities of response dictate that
operations are carried out under area command, each area will report their damage assessments
of both individual and public damage to the Department of Emergency Management.
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PRESIDENTIAL DISASTER DECLARATION - After the Governor submits a request for
assistance based on disaster damage exceeding pre-determined monetary thresholds to FEMA
for a Presidential Declaration for Public Assistance.
DAMAGE ASSISTANCE - Recovery assistance is generally defined into three areas: Individual
and Household; Government, eligible agencies and certain non-profit organizations; and
business. The Department of Emergency Management is the single focal point for submitting
these damage reports to the various and several agencies which may be able to provide
assistance.
1. Disaster Assistance for Individuals and Households: When the President
declares an emergency or major disaster that includes damage to households, a
variety of federal and state assistance programs may be available to meet
survivors’ essential and necessary needs. The Washington State Military
Department, Emergency Management Division (EMD) and the Federal
Emergency Management Agency (FEMA) jointly administer programs in a Joint
Field Office (JFO) to help individuals who suffer disaster damage or losses.
These Disaster Recovery Centers are normally established near the affected
area. The Department of Emergency Management may assist in facilitating the
establishment of the Disaster Recovery Centers.
Individual Assistance can consist of any or all of the following:
Temporary housing
Individual and family grants
Disaster unemployment assistance
Disaster loans to individuals, businesses, and farmers
Agricultural assistance
Legal services to low-income families and individuals
Consumer counseling and assistance in obtaining insurance benefits
Veterans’ assistance
Casualty loss tax assistance
2. Disaster Assistance for Business: When the President declares a major
disaster, the United States Small Business Administration (SBA) makes its low-
interest loan programs available to qualifying businesses and private non-profit
organizations that have suffered damages. Businesses of any size may request
an application for a low-interest loan by telephone immediately after the
declaration. SBA loan officers will be available at all Disaster Field Offices and
Disaster Recovery Centers.
Farm / ranch owners and self-employed persons may qualify for disaster
unemployment if they are out of work because of the disaster and are not
covered by regular unemployment.
The Department of Emergency Management may assist in facilitating providing
information to affected businesses.
3. Disaster Assistance for Public Agencies: The Public Assistance program
enables local and state governments, special purpose districts, private nonprofit
organizations and tribes to recover from the immediate and long-term impacts of
disasters. The program provides state and federal funds to eligible applicants for
a portion of the costs and restoration of damaged public facilities, as well as to
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reimburse the agencies for a portion of the costs associated with emergency
work and debris removal due to the disaster.
o Category A: Removal of debris, including clearance of trees, woody
debris, and building wreckage; sand, mud, silt, and gravel; and other
disaster-related material on public property.
o Category B: Measures taken before, during, and after a disaster to save
lives and protect public health and safety.
o Category C: Roads, bridges, and associated features, such as shoulders,
ditches, culverts, lighting and signs.
o Category D: Water control facilities, including drainage channels, pumping
facilities, and the emergency repair of levees. Permanent repair of flood
control works is the responsibility of the U.S. Army Corps of Engineers and
the Natural Resources Conservation Service.
o Category E: Buildings including their contents and systems.
o Category F: Utility distribution systems, such as water treatment and
delivery systems, power generation facilities and distribution lines, and
sewage collection and treatment facilities.
o Category G: Public parks, recreational facilities and other facilities,
including playgrounds, swimming pools and cemeteries.
DEBRIS REMOVAL - The clearance and disposal of debris is an essential element in immediate
recovery efforts. The task of clearing debris is so critical to life safety and security that it can be
categorized as both a response and a recovery activity. Both the County and the City of Port
Townsend’s Departments of Public Works are keys to initial debris removal efforts. Some of the
main tasks involved in debris clearance and disposal are:
Remove debris from public rights-of-way
Remove debris from other public property
Coordinate or assist in removal of debris from private property if this debris
constitutes a hazard to the general public
Establish disposal sites
Provide input for contracted disposal
Coordinate hazardous materials disposal
Provide for increased garbage volume and construction debris
PRELIMINARY DAMAGE ASSESSMENT - The Preliminary Damage Assessment (PDA)
process is based on each eligible applicant (which has experienced damage) preparing a PDA
and forwarding it to the Department of Emergency Management. The Department of Emergency
Management (DEM) is responsible for notifying eligible applicants to complete a PDA, and to
coordinate the PDA data collection from all jurisdictions in the county.
The DEM is the county’s single focal point to submit the PDA to the Washington Emergency
Management Division. Tribes have the option of submitting their PDAs through Emergency
Management or forwarding them directly to the State EOC.
If it is determined that a formal Preliminary Damage Assessment will be pursued, federal/state
PDA teams will arrive in each county. Coordination will begin and end with the Department of
Emergency Management. An Applicant’s Briefing will be held to explain Public Assistance
eligibility criteria for officials of the identified applicant jurisdictions. Criteria, rules and
regulations, and procedures are subject to constant revision and may change from one disaster
situation to another.
DETAILED NEEDS ASSESSMENT and IDENTIFICATION OF CLIENTS - Specific information
on damage will be required early in the recovery process. Identification of specific “clients” will
require direct contact with individuals and businesses.
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Many clients will identify themselves once they know where to seek support and learn what
information is required. Experience shows that some disaster survivors do not make an effort to
seek assistance and an outreach effort may be needed to inform all affected individuals.
A needs assessment usually progresses over time, as loss information comes to light gradually
from many sources. Working from a needs database, recovery staff can prepared a summary of
direct needs. A summary of direct needs will be instrumental in developing coherent, clear
requests for donations of goods and services.
Individuals may not have specific information available on their affected properties. Sources of
information may include County property tax roles. The DEM will establish a database of client
information that will provide detailed information on the client. This database will assist in the
formation of an overall needs assessment. Matching needs with resources requires full
knowledge of services received to date to avoid duplication and gaps.
Forms for collection of this information are at Attachment xx. (EOC Form 140 and 145)
STEPS IN COMMUNITY RECOVERY - No written summary can accurately identify every action
that may be needed during recovery. There are too many variables at work in most situations,
and the interactions among the players are far too complex to describe in simple terms. In
addition, disasters differ by category of hazard, magnitude of damage, type of community
affected, and ability of those impacted by a disaster to recover. There are, however, some
common elements in every recovery effort. This section attempts to organize what is in reality a
dynamic and fairly fluid set of steps in the community recovery process.
Before recovery activities begin, there is a transition from the response effort. Key EOC
functions directly support recovery. These EOC transition functions include:
Public Information Officer: The PIO may coordinate early recovery messaging, such as the
need for certain types of donations and the nature of the recovery effort. Communication
regarding the recovery program is vitally important and it begins in the EOC with the PIO.
Operations Section: The Operations Section supports evacuations and re-entry during
response by establishing Reception Centers or arranging other accommodations. The DEM
Logistics Trailer is a key component in recovery efforts, and will be important in providing a
recognizable facility to help identify potential clients by name, address, and how they may be
contacted for further information. Among other roles, Operations may be involved in providing
continuity of care during the transition from response to recovery.
Plans Section: The Situation Unit, located in the Planning Section, after receipt of the initial
damage assessment is the focal point for information including: initial summary of the
geographic area of impact; magnitude of damage; and approximate time required for response.
These are important facts for recovery planning, and will usually provide enough information to
estimate the approximate resources required.
The Recovery Unit is located within the Plans Section. The Recovery Unit assesses the need for
recovery services based on the type and extent of damage. In addition, the Recovery Unit may
take initial steps in recovery, such as working with the PIO to issue media messages that control
the donation of unwanted goods.
Finance Section: If Federal assistance is provided, detailed records of labor, equipment and
supply costs from the outset of the disaster will be required. Only actual damage and reasonable
costs will be reported. Detailed rosters of employee and equipment time, volunteer contributions,
and supplies used will be critical to obtaining Federal assistance. Keeping records will not
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ensure reimbursement, but not keeping records will ensure that reimbursement will not be
possible in the event that a Presidential declaration is made.
Community recovery is loosely described by four broad functions that overlap throughout the
process:
Get Organized
Understand Needs
Understand Resources
Match Needs and Resources
Figure 2: Steps in the Community Recovery Process
Get Organized
Establish a
Collaborative
Recovery Task Force
Establish Recovery
Reorganization
Establish Recovery
Facilities Understand
Needs Understand
Resources
Identify Clients Identify Available
Resources
Inform Clients and
Public
Solicit and Control
Donations
Interview and
Advise Clients
Manage Donations
Funds
Goods,
Services
Volunteers
Match Needs &
Resources
Transition to Established
Community Services
Match Needs &
Resources
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DISSEMINATION OF RECOVERY INFORMATION: The dissemination of timely and accurate
information on the recovery process is critical. A lack of information may lead to chaos and ill
feelings when many citizens may already be experiencing a high degree of stress. Public
meetings, websites, distribution of written information and the establishment of an identified
location for recovery operations is a critical step in recovery.
ESTABLISHMENT OF RECOVERY FACILITIES - The variability of disasters cannot be met with
an established list of required recovery facilities. Recovery facilities usually are separate from the
EOC and should not compete with facilities that may be required for response. Long-term use of
local public facilities or community buildings may be avoided (i.e. schools and community centers)
that may result in adverse impacts if occupied for many months. In addition, sights that may be
important for long term revenue or other community impacts should be avoided. Depending on
the scope of the disaster, recovery facilities to consider may include:
Recovery Office: The set of offices and meeting rooms used by the Recovery Staff.
Recovery Center: A clearinghouse of recovery information for clients and others affected by the
disaster. The Recovery Center may include client interviews. The DEM Logistics trailer may fill
the requirement for this in the early days following the disaster. The American Red Cross may be
able to assist in the further development of a Recovery Center.
Goods Warehouse: Facilities used to receive, sort, store, and disseminate goods purchased in
bulk and those collected through donations.
Public Meetings: Temporary facilities used to communicate the recovery process to large
gatherings.
Media Center (JIC): Facilities to support the delivery of recovery information through the news
media.
The EOC Logistics Section will be the focal point for establishing recovery facilities. The Logistics
Section will also be the focal point for phones, computers, janitorial services, and other support
services.
IDENTIFICATION OF AVAILABLE RESOURCES - Locally available resources may be identified
through available contractor rosters, local telephone directories, and personal knowledge of
available resources. Service organizations may be a resource for additional recovery resources.
Individual volunteers will usually surface and be available for provision of services.
Early in the recovery process, it is critical to define the requirements for resources and establish
an estimated time for arrival of recovery resources.
DONATIONS AND VOLUNTEERS - When disaster strikes there is often an outpouring of human
generosity. Disasters generally generate three types of donation: 1) Funds, 2) Goods and
Services, and 3) Volunteer Effort.
Outgoing messages on donations should begin within the first day following the event and must
focus on an actual assessment of needs. Without a request for specific kinds of donations that
will be helpful, overwhelming contributions of unwanted goods may result in “the second disaster”
when disaster recovery personnel are required to stop work and address the issue of unwanted
goods.
“Convergent volunteers” also pose a major challenge for recovery managers. Volunteers often
need transportation, protective clothing for some tasks, equipment, food and water,
accommodation, and supervision. This consumes precious time and resources unless planned in
advance. The American Red Cross will be the focal point in coordinating volunteers.
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Actions to consider may include:
A news release as soon as possible to request initial donations in cash or a clearly
identified and needed resource donation
An estimation of the need for donations of all types in terms of quantity and timing,
and set targets
Advertise the need for certain types of donations, such as funds or volunteers
Approaching community businesses for specific kinds of support
Approaching local volunteer organizations to access available personnel
COMMUNITY HEALING - In the initial days of the disaster, response and early recovery activities
will dominate the list of priorities. Some of the less tangible needs of the community may be
neglected at first. However, community members may suffer from a number of disaster related
stresses including:
Emotional distress
Financial loss
Childcare issues
Family relationship strain
Physical health concerns
Community outreach programs are an important component of any disaster response and
recovery effort. These programs should include activities that help residents understand the
nature and kinds of stress reactions they are experiencing and provide information and resources
to assist them in coping with the effects of the disaster.
Community resources such as churches, service clubs, Parent / Teacher groups, may serve as
initial focal points to assist in identifying people experiencing disaster related stresses. Jefferson
County Mental Health, clergy, and psychologists / therapists may be able to help provide
assistance in outreach efforts.
TRANSITION TO LONG TERM RECOVERY - As the focus shifts to rebuilding, the recovery
phase takes on more of a long term focus. The foundation built during short term recovery as
described in this Annex contributes directly to Long Term Recovery. The myriad variables
involved with long term recovery make describing the process only speculation and an exercise in
recording generalities. Detailed information on long term recovery processes can be found
throughout FEMA descriptions of the structures involved with long term recovery.
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Attachment 1.10.6
Lead and Support Agencies
A lead coordinating agency is identified for each hazard category.27 The support agencies are
those most likely to have a major role, but does not exclude other participation.
Strategy and overall coordination of larger scope incidents (earthquake, storms, etc.) is typically
the role of the Emergency Operations Center (EOC). Specific hazards have clear lead agencies,
and the EOC will provide support if requested.
All jurisdictions and agencies retain their internal command authority and recognize the
coordination role of the EOC Incident Management Team. Each participating agency has
representation or a designated point of contact in the EOC.
Unified Command may be established at the EOC when the command function affects multiple
jurisdictions. Some hazards are best handled by the designated command agency/Unified
Command at the scene.
HAZARD LEAD AGENCIES SUPPORTING AGENCIES
01 Damaging Winds Emergency Management Fire/EMS
Public Works
Law Enforcement
P. U. D.
02 Winter Storms Emergency Management Public Works
Law Enforcement
03 Flood Emergency Management Public Works
04 Earthquake Emergency Management All
05 Public Health Emergency Public Health Fire/EMS
06 Terrorism Law Enforcement Fire/EMS
Emergency Management
07 Tsunami Emergency Management Fire/EMS
Law Enforcement
08 Volcanic Activity Emergency Management Public Works
09 Heat Wave Public Health Fire/EMS
10 Drought Public Health Emergency Management
11 Power Outage PUD Fire/EMS
Public Works
Public Health
12 911 Outage/Overload Jeffcom Emergency Management
13 Civil Emergency, Other Law Enforcement Fire/EMS
14 Wildland Fire Fire/EMS Mutual aid Fire
Law Enforcement
15 Marine Oil Spill Coast Guard Dept. of Ecology
Fire/EMS
Responsible Party
Environmental Health
16 Water Shortage City Utilities (city)
PUD (county)
Public Health
17 Mass Casualty Incident Fire/EMS Law Enforcement
18 Maritime Emergency Coast Guard Fire/EMS
27 Reference purposes only. Actual conditions will determine organizational structure.
Revised March 2018
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19 Major Fire Fire/EMS Mutual aid Fire/EMS
Law Enforcement
20 Major Law Enforcement
Incident
Law Enforcement Mutual aid LE
Washington State Patrol
21 Hazardous Materials Washington State Patrol Fire/EMS
22 Military Ordnance NAVMAG Indian Island Fire/EMS
Law Enforcement
23 Aircraft Mishap Fire/EMS Law Enforcement
Aircraft Parent Agency
24 Dam Failure Fire/EMS City Utilities (Lords Lake)
25 Mudslide with exposures Fire/EMS Public Works
Revised March 2018
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Annex 1.10.7
Disaster Roles of County/City offices and departments, and
public sector and private sector partner agencies and
organizations
All county and city government personnel, services, equipment, and facilities become
part of the emergency management system as needed in carrying out the requirements of this
plan according to the law. Most assignments mirror daily operations; some require a local
declaration of emergency to expedite.
Emergency activities of local government offices and departments are coordinated by the
EOC Incident Management Team until demobilized when the emergency is over. Post disaster
activities are coordinated by the Joint County – City Long Term Recovery Group.
Numerous other government agencies, special districts, quasi-municipal corporations,
non-governmental organizations, and private sector entities cooperate and coordinate with the
Emergency Management program through various formal and informal mechanisms. Each of
these partners retains its internal structure and responsibilities, while collaborating where possible
with the community response effort.
State and federal agencies with local ties may opt to coordinate locally to the extent
possible, while remaining within the overall responsibility of their parent organization. Many of
our other partners cooperate where they can, while focusing on their individual responsibilities.
COUNTY OFFICES AND DEPARTMENTS
Assessor Emergency tax relief (property value adjustment)
Assistance with damage assessment
Continuation of essential services
Auditor Fiscal management
Budget emergencies
Recovery support (contracts administration)
Records preservation and recovery
Continuation of essential services
Board of County Commissioners Policy and oversight
Emergency measures and legislative support
Emergency appropriation
Declarations of emergency
Central Services Technical support
Internal telephone services and restoration
Network administration and restoration
County building damage assessment
County facilities repair and restoration
Continuation of essential services
Community Development Long term recovery coordination
Support to damage assessment
Coroner Identification of human remains
Determine cause of death
Provide for temporary storage of human remains
Establish and maintain official casualty list
County Administrator Emergency Management
Policy level communication (BOCC and EOC IMT)
Policy level communication County to City
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Restoration of county government services
District Court Continuation of essential court services
Emergency Management Emergency management planning
Coordination of training
Emergency Operations Center management
Inter-agency and inter-jurisdictional coordination
Execution of emergency plans and procedures
Health Department Immunization
Sanitation inspection
Food and water quality control
Environmental health
Home health services
Special needs populations
Prosecutor Acts as Coroner per charter
Legal advisor to the BOCC for policy
Legal advisor to the County Administrator
Continuation of essential services
Public Works Restoration of roads and bridges
County infrastructure damage assessment
Support to law enforcement for traffic control
Debris removal
Solid waste disposal
Sheriff Law enforcement
Search and rescue
Traffic control (on county roads)
Accident investigation
Superior Court Continuation of essential court services
Treasurer
Fiscal management (with Auditor)
Budget support
Emergency procurement
Continuity of government services
CITY OFFICES AND DEPARTMENTS
Administration Clerical support
City Attorney Legal advisor to the City Council
Legal advisor to the City Manager
Assists in drafting emergency legislation
City Council Policy and oversight
Appropriation of emergency funds
Emergency declaration
Legislative support
City Clerk Preservation and recovery of essential records
City Manager Executive powers
Emergency Management
Communication with the City Council
Restoration of essential city services
Continuity of Operations
Development Services Long term recovery coordination
Assistance with damage assessment
Finance Fiscal management and support
Cost tracking
Contracts administration (recovery)
Grants Administration Post disaster mitigation
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Assistance with recovery coordination
Information Services Network restoration
Telephone service restoration
Library Alternate city offices
Police Department Law enforcement
Traffic control
Coordination of mutual aid law enforcement
Evacuation
Search and rescue coordination
Public Works Streets and bridges
Water and sewer
Public facilities damage assessment
OTHER GOVERNMENT AGENCIES (Local, State and Federal)
Washington State Patrol Traffic control (state routes)
Assistance with evacuation
Augment local law enforcement resources (mutual aid)
Assistance with dissemination of warnings
Washington State Department of
Transportation
State highway clearance and restoration
Damage assessment (state routes)
Augment local public works resources (mutual aid)
Assistance with dissemination of warnings (HAR signs,
etc.)
Washington State Parks Activation of internal emergency plans and procedures
Coordination of park resources
Coordination of the use of park facilities for emergency
purposes
Damage assessment (park facilities)
Washington State Department of
Natural Resources
Wildland fire suppression
Clearance and restoration of DNR roads
Damage assessment (DNR roads)
Washington State Ferries Activation of internal emergency plans and procedures
Assistance with emergency transportation (ferry assets)
U. S. Navy (Naval Magazine
Indian Island)
Coordination of Navy personnel and facilities
Provision of mutual aid fire services
Provision of logistics support to local government (optional)
U. S. Forest Service Wildland fire suppression (federal lands)
Wildland fire suppression – mutual aid (state lands)
Augmentation of local law enforcement (mutual aid)
Jeffcom/911 Law enforcement and fire/EMS communications
SPECIAL DISTRICTS AND QUASI-MUNICIPAL CORPORATIONS
Jefferson County Fire Protection
Districts
Activation of emergency plans and procedures
Fire suppression
Urban/technical rescue and evacuation
Fire investigation
Emergency Medical Services (pre-hospital aid)
Hazardous materials emergency response (support)
Assistance with initial damage assessment
Assistance with dissemination of warnings
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Jefferson County Public School
Districts
Activation of emergency plans and procedures
Coordination of school resources
Emergency communication with staff and students
Assistance with emergency transportation
Damage assessment (school facilities)
Jefferson County Hospital
District No. 2 (Jefferson
Healthcare)
Activation of emergency plans and procedures
Provision of basic hospital services
Coordination of hospital resources
Coordination with regional hospitals
Coordination of clinics and surge capacity facilities
Jefferson County Public Utility
District
Activation of emergency plans and procedures
Damage assessment (water systems)
Damage assessment (power grid)
Restoration of the water system (served areas)
Restoration of power
NON-GOVERNMENT ORGANIZATIONS AND PRIVATE SECTOR ENTITIES
American Red Cross Shelter operations
Mass care
Assistance to disaster victims
Olympic Community Action
Programs (Olycap)
Assistance with emergency food
Special needs populations (Olycap clients)
Point of refuge coordination (Olycap community centers)
Jefferson County Ministerial
Association
Designated points of refuge
Assistance with shelter and mass care
Community Service
Organizations
Assistance with community recovery programs
Neighborhood Preparedness
Groups
Individual and family preparedness
Neighborhood communications
Neighborhood damage assessment and reporting
Private business Activation of business recovery plans
Assistance with community recovery programs
Critical goods and services
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Attachment 1.10.8
Cross Reference to
State and Federal Plans (ESF Format)
The Emergency Support Function (ESF) arrangement in the State Comprehensive
Emergency Management Plan is shown here, with the location of the referenced subjects in this
plan and supporting documents.
EMERGENCY SUPPORT FUNCTION
EQUIVALENT IN THIS PLAN
ESF 1 – Transportation Page 29 – Section 1.5 Responsibilities
Page 60 – Annex 1.10.4
ESF 2 – Communications and Warning
Page 32 – Section 1.6 Information Collection,
Analysis, and Dissemination
Page 34 – Section 1.7 Communications
ESF 3 – Public Works and Engineering
Page 68 – Annex 1.10.5 Recovery
Page 14 – Jefferson County PUD Emergency
Restoration Plan, Section 1.2 Concept of Ops
ESF 4 – Firefighting Page 15 – Section 1.2 Concept of Ops
ESF 5 – Emergency Management Page 25 – Section 1.4 Organization
ESF 6 – Mass Care and Human Services
Page 16 – Section 1.2 Concept of Ops
Page 60 – Annex 1.10.4 Evacuation Plan
Page 64 – Annex 1.10.5 Recovery
ESF 7 – Logistics and Resource Support Page 36 – Section 1.8 Finances
Page 39 – Section 1.8 Logistics
ESF 8 – Public Health and Medical Services Page 17 – Section 1.2 Concept of Ops
Page 74 – Annex 1.10.6 Lead and Support
ESF 9 – Search and Rescue Page 16 – Section 1.2 Concept of Ops
ESF 10 – Hazardous Materials Response Page 13 – Section 1.2 Concept of Ops
Page 75 – Annex 1.10.6 Lead and Support
ESF 11 – Agriculture and Natural Resources Not used in this plan
ESF 12 – Energy
Page 14 – Jefferson County PUD Emergency
Restoration Plan, Section 1.2 Concept of Ops
Page 74 – Annex 1.10.6 Lead and Support
ESF 13 – Law Enforcement
Page 16 – Section 1.2 Concept of Ops
Page 74 – Annex 1.10.6 Lead and Support
Page 77 – Annex 1.10.7 Disaster Roles
ESF 14 – Long Term Recovery
Page 18 – Section 1.2 Concept of Ops
Page 38 – Section 1.8 Finance and Logistics
Page 62 – Annex 1.10.5 Recovery
ESF 15 – Public Affairs Page 7 – Section 1.2 Concept of Ops
ESF 16 – Not used
ESF 17 – Not used
ESF 18 – Not used
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ESF 19 – Not used
ESF 20 – Military Support to Civil Authorities Page 28, 30 – Section 1.5 Responsibilities
Revised March 2018
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Attachment 1.10.9
Relevant Partner Agencies’ Emergency Plans and Procedures
(Included by Reference - Published Separately)
City of Port Townsend Water Utility Emergency Response Plan
Clallam County Comprehensive Emergency Management Plan
Jefferson County Health and Human Services Emergency Response Plan
Jefferson County Mass Casualty Incident (MCI) Plan
Jefferson County Moderate Hazardous Waste Plan
Jefferson County Public Utility District Emergency Restoration Plan
Jefferson County RACES (VECOM) Emergency Communications Plan
Jefferson County/Port Townsend Debris Management Plan
Jefferson Healthcare Emergency Plan
Jefferson Transit Emergency Response Plan
Kitsap County Comprehensive Emergency Management Plan
Kitsap County Health District Emergency Response Plan
National Disaster Recovery Framework
National Response Framework
Olympic Peninsula Chapter, American Red Cross Emergency Response Plan
Olympic Regional Fire Defense Plan
Region Two Hospital Emergency Plan – Preparedness and Response to Bioterrorism
Washington State Comprehensive Emergency Management Plan
Washington State Department of Ecology Geographic Response Plan
Washington State Ferries Emergency Management Plan
Washington State Fire Service Resource Mobilization Plan
Revised March 2018
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Annex 1.10.10
Procedures for Local Declaration of Emergency
EXECUTION OF EMERGENCY POWERS - To provide for the full implementation of the
Comprehensive Emergency Management Plan and execution of certain emergency powers by a
Declaration of Emergency made by the Board of County Commissioners or the City Council.
This guide defines a local Declaration of Emergency, outlines how to expeditiously make a local
Declaration, and clarifies the emergency powers triggered by a Declaration.
REQUIREMENTS OF THE LAW - This document provides guidance in carrying out a Declaration
of Emergency pursuant to the requirements of the law.
A Declaration of Emergency is indicated when 1) the event will likely require full commitment of
county and/or city resources, 2) it may be necessary to expend funds not provided for in the
budget or to suspend certain budget rules, and 3) when the leaders of government wish to assure
the public that local government is responding with all available effort.
DECLARATION OF EMERGENCY AND FEDERAL DISASTER ASSISTANCE - A local
Declaration of Emergency (declaration) is a prerequisite for requesting state and federal
assistance in a major emergency, and it activates certain emergency powers and procedures that
are not available without it.
WHO MAKES A DECLARATION OF EMERGENCY - A Declaration of Emergency must be
made by the county or city legislative body by adoption of an ordinance or resolution.
The County declaration is made under RCW 36.40.180, and the City declaration is made under
RCW 35.33.081. A joint declaration can be made under RCW 38.52.070(2).
A declaration must be made by the legislative body unless there is specific authority given to the
administrative executive to take such action on their behalf. Such temporary action will be
affirmed by the legislative body as soon as practicable.
DECLARATION REQUIRED FOR FULL ACTIVATION OF THE EMERGENCY MANAGEMENT
PLAN - A declaration is required for full activation of the Comprehensive Emergency
Management Plan, and designates the Department of Emergency Management as the primary
agency for assuring coordination and maximum use of resources.
IMMEDIATE DISPOSITION OF A DECLARATION - The declaration will be forwarded to the
State Emergency Management Division by the most expeditious means by the local Emergency
Operations Center.
RESPONSIBILITIES OF THE BOARD OF COUNTY COMMISSIONERS OR CITY COUNCIL –
Review the recommendation of the Department of Emergency Management for making a
Declaration of Emergency.
Adopt a Declaration of Emergency by resolution or ordinance.
Establish procedures for continuity of government in the absence of a quorum.
RESPONSIBILITIES OF THE DEPARTMENT OF EMERGENCY MANAGEMENT:
Determine the need for full activation of the Comprehensive Emergency Management
Plan according to the nature and scope of the emergency.
Draft an appropriate declaration document for presentation to the legislative authority.
Revised March 2018
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Provide a summary of the events necessitating a declaration.
Disseminate the declaration.
RESPONSIBILITIES OF THE COUNTY/CITY DEPARTMENT OF PUBLIC WORKS
Provide advice to the Department of Emergency Management when damage is occurring
to public roads and bridges.
Request a Declaration of Emergency for public roads and bridges and other
infrastructure.
CONCEPT OF OPERATION - The Director of Emergency Management or designee shall
determine the necessity of requesting a declaration using the following general guidance:
The nature of the incident requires extraordinary commitment of county and/or municipal
resources to combat the emergency.
Effective response to the emergency requires activation of the emergency powers and
procedures defined by law. Such powers include entering into contracts and incurring obligations
necessary to combat such disaster, protecting the health and safety of persons and property, and
providing emergency assistance to the victims.
Make expenditures associated with the emergency without further notice or hearing.
When a declaration is necessary to emphasize and affirm the seriousness of the event and the
intent of government to bring all the available resources to bear in meeting the needs of the
community.
The County Administrator and/or the City Manager will arrange for an emergency session of the
legislative body according to the rules. The Continuity of Government procedures will be enacted
in the absence of a quorum.
CONTENTS OF A DECLARATION - A Declaration of Emergency will be made by adoption of a
resolution including the following elements: (A sample Declaration of Emergency is attached).
A description of the nature of the emergency.
A definition of the impact areas.
A statement that an emergency exists and that unusual measures will be necessary in
order to safeguard life and property.
Notification that release of specified city/county resources is authorized in responding to
the emergency.
A time limitation to the emergency declaration.
The estimated amount of money required to meet the emergency if known.
DISTRIBUTION – In addition to internal distribution requirements, the declaration will be
immediately forwarded to the State Emergency Management Division as an indication that local
emergency procedures have been activated.
COORDINATION - The Emergency Operations Center (or Alternate EOC) will be activated as the
central coordination point for implementation of emergency procedures authorized by the
declaration.
TELEPHONIC VOICE VOTE AUTHORIZED - When exigent circumstances require, a telephone
vote of the legislative body can adopt a Declaration of Emergency. This action needs to be on the
record, witnessed, and later affirmed. Telephonic voice vote will be coordinated by the County
Administrator or City Manager (or designee).
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ALTERNATE LOCATION FOR CONDUCTING PUBLIC BUSINESS - The emergency affairs of
the county or city can be conducted at an alternate place of business for the duration of the
emergency provided a reasonable effort is made to notify the public of the emergency relocation.
IMPORTANT REFERENCES RELATING TO A DISASTER DECLARATION
Chapter 35.33.081 Revised Code of Washington – Emergency expenditures (second and
third class cities and towns).
Chapter 36.40.180 Revised Code of Washington – Emergencies subject to hearing –
non-debatable emergencies (counties).
Chapter 38.52.070(2) – Local organizations and joint organizations authorized –
Establishment, operation – Emergency powers, procedures.
Jefferson County Resolution 54-05 – Continuity of County Government in the Case of an
Emergency or Disaster (September 2005).
CLARIFICATION OF SOME OF THE TERMS USED HERE
1. Declaration of emergency – Activation of emergency powers by adoption of a resolution
by the legislative body
2. Emergency powers – Emergency actions authorized without regard to time-consuming
procedures and formalities prescribed by law (excepting mandatory constitutional
requirements), including, but not limited to, budget law limitations, requirements of
competitive bidding and publication of notices, provisions pertaining to the performance
of public work, entering into contracts, the incurring of obligations, the employment of
temporary workers, the rental of equipment, the purchase of supplies and materials, the
levying of taxes, and the appropriation and expenditures of public funds.
3. Joint declaration – A Declaration of Emergency enacted concurrently by the Board of
County Commissioners and the City Council that includes both Jefferson County and the
City of Port Townsend.
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Revised March 2018
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Jefferson Transit S S S S S
Jefferson Co. Fire Districts S L L L S S S S
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Jefferson Co. Emergency Management L L L S L L S S S L L L S L L
Jefferson Co. Public Health S S
Jefferson Co. Administration L
Jefferson Co. Sherrifs Department S L L
Jefferson Co. Treasurer S
Jefferson Co. Public Works S S L
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Washington State Emergency Management S S L S S S S S S S
Washington State Patrol S S
L = Lead Agency
S= Support Agency
Section 2: Lead and Support Agencies
Revised March 2018
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Not shown in these matrixes is a number of different variables that can affect the response of
each department and agency. For example, one agency may start out as lead and later be
relegated into a supporting role or vice versa. In other cases location plays a big role with an
incident being contained within the City of Port Townsend but the matrix shows that county
agencies can or will be involved28. Everything is situation dependent.
Public and Private Entities
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of Port Townsend while the Port of Port Townsend is the overseeing entity for all the
Marinas within the County area such as in Port Ludlow, Port Hadlock, Quilcene, and
Brinnon and even the Jefferson County Airport.
28 Port Townsend departments would take lead if incident occurs solely within city limits
L = Lead Agency S = Supporting Agency
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S= Support Agency
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Annex A
Earthquakes
DEFINITION
Earthquakes are the sudden, violent shaking of the ground caused by an abrupt shift along a
fracture in the earth, known as a fault. The earth’s crust is divided into eight major plates and
numerous smaller plates. The plates are constantly moving and when they create enough friction,
release stress, which in turn can create significant earthquakes.
HISTORY
Washington State is littered with many large and small faults with most being located within the
Puget Sound or coast. Hundreds of small earthquakes are recorded each year within the state
with ones in 1949, 1965, and 2001 causing more than $1 billion in damages to the Puget Sound
region. The most recent large earthquake was the 2001 Nisqually earthquake that occurred 11
miles north of the city of Olympia.
HAZARD IDENTIFICATION AND VULNERABILITY ASSESSMENT
There are multiple major fault lines that are in or near Washington and have the potential to
create powerful earthquakes.
Hazard-Specific Procedures
Revised March 2018
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The Southern Whidbey Island Fault crosses directly between Northeastern Jefferson
County and the Southwest portion of Whidbey Island and has the potential to cause
strong earthquakes in excess of 6.5 on the Richter scale as well as tsunamis in the upper
sound. Due to the proximity, this has the potential to cause large amounts of damage
within the City of Port Townsend and Jefferson County.
The Seattle Fault bisects the Kitsap Peninsula across the Puget Sound through Seattle
into the Cascade Mountains. Like the SWIF, it too has the potential to create strong
earthquakes and tsunamis within the Puget Sound region.
The Cascadia Subduction Zone is a 600-mile long fault that separates the Juan de Fuca
and North American Plates. This fault has the potential to create earthquakes similar in
strength and damage to that of the 2011 Tohoku event which was registered at 9.0 and
caused a tsunami that was up to 130 feet tall. An earthquake of this strength generally
causes more than a minute of continuous shaking and numerous powerful aftershocks
that can cripple any infrastructure that wasn’t destroyed in the initial shock.
The primary ways these earthquakes can cause damage is from:
Strong ground shaking
Landslides
Liquefaction
Subsidence
Tsunamis
A lot of the casualties caused by earthquakes are actually due to building collapse or the resulting
tsunami if near the coast. The disruption of utilities such as gas, power, sewer, water, telephone,
and waste can hasten the disruption of economics within the City and County. The loss of which
would be huge given the limited capability that currently exists.
Another principal concern is soil liquefaction which occurs when water saturated sands, silts, or
gravels are shaken so violently that the grains rearrange and the sediment loses strength, begins
to flow out as sand boils or causes lateral spreading of overlying layers. Liquefaction commonly
causes loss of bearing strength under foundations and roadways, can trigger landslides, and can
float low-density structures and objects.
The areas of Jefferson County that would be most affected in the event of an earthquake is the
City of Port Townsend and the smaller communities of Quilcene, Port Ludlow, and Port Hadlock
as they all contain the highest population density and a lot of the economic income. Port
Townsend itself contains many older masonry buildings that are unreinforced making them very
susceptible to damage. There are other infrastructure issues faced by the City and County
involving bridges and transportation nodes such as Highway 101, 104 and the Washington State
Ferry Terminal in Port Townsend. Each of these face the risk of earthquake caused landslide or
the complete structural failure in the case of the ferry terminal. These vulnerabilities can severely
affect response times and help from outside agencies.
Some additional assumptions:
Overloaded healthcare systems
Disturbance of community services (schools and government closures)
Failure of wireless/internet structure
Damage or closure of food and pharmaceutical outlets
Competing demands for relief and recovery resources
General public communications disturbance and extreme anxiety
IMPLEMENTATION
When responding to an earthquake, emergency personnel will prioritize the following:
Life safety
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Property protection
Protection of the environment
Preservation of the economy
Table 1 describes how the typical sequence of events that can be anticipated following a
moderate to major earthquake scenario. Many of these actions are conducted simultaneously,
and are supported by response agency plans and procedures which outline the way they will
carry out their duties.
Table 1 POST EARTHQUAKE RESPONSE ACTIONS
STEP CATEGORY ACTION
1 INITIAL RESPONSE
EXPECTATIONS
Emergency response agencies, critical government
services, and other essential service providers will establish
spontaneous early post-incident procedures that are
activated by observation of the event. Procedures (standing
orders) will outline the initial steps to be taken without the
time delay experienced when waiting for instructions from
higher authority.
2
DETERMINE STATUS
OF EMERGENCY
RESOURCES
JeffCom, in coordination with the Emergency Operations
Center, will implement a roll call/reporting procedure to gain
a rapid estimation of the operational status of the primary
emergency response agencies and facilities.
3 EXPECT SELF
DISPATCH
Communications overload (or damage to communications
facilities) may require emergency response agencies to “self
dispatch” and assume direct coordination of their individual
resources. Additionally, JeffCom may choose to only
dispatch tier one (life threat) calls according to internal
procedures.
4
CONDUCT FIRST
ROUND DAMAGE
ASSESSMENT
LE and Fire/EMS agencies will conduct initial “windshield”
damage/impact observations and report to the EOC via
JeffCom within the first hour following the incident. The
purpose of the reports is to provide for production of a
common operating picture as a basis for initial strategic
planning.
5
SET UP
ORGANIZATION AND
COORDINATION
SYSTEMS
Emergency Management will activate the Emergency
Operations Center (and City Command Center) according
to standing orders. If calls for service exceed response
resources, fire districts may establish Area Command and
assume direct coordination of district assets.
6 IDENTIFY BROAD
SCALE PRIORITIES
The EOC Operations Section will conduct survey of
operational needs and shortfalls. The EOC Community
Operations Branch will assess community needs. The
needs assessment will be used to establish response
priorities.
7
ACTIVATE PUBLIC
INFORMATION
NETWORK
The EOC Public Information Officer will implement the Joint
Information System and establish regular distribution of
critical information to the public.
8 OPEN COMMUNITY
RELIEF CENTERS
The EOC Community Operations Branch may identify and
activate emergency relief centers, points of refuge or public
shelters for displaced persons if needed.
9
COORDINATE A
DECLARATION OF
EMERGENCY
The Director of Emergency Management will request and
coordinate a formal Declaration of Emergency from the
Board of County Commissioners and City Council. A regular
executive briefing schedule will be established to keep key
personnel apprised of the status of the incident.
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10
REQUEST STATE
AND/OR FEDERAL
DISASTER
ASSISTANCE
Emergency Management will coordinate with the state
Emergency Management Division (EMD) for logistics
support. The EOC will make general status reports to EMD.
Emergency Management will be the principal point of
contact for state and federal disaster relief.
11
BEGIN TWENTY-
FOUR HOUR
INCIDENT PLANNING
CYCLE
When conditions permit, the EOC (MAC Team), in
coordination with the key response agencies, will produce
and disseminate a general county-wide Incident Action Plan
and establish a twenty-four hour planning cycle.
12
PROVIDE LOGISTICS
SUPPORT TO THE
RESPONSE
AGENCIES
The EOC Logistics Section will establish logistics support
(ordering, receiving, dissemination, and tracking of essential
goods and services) according to internal procedures.
13
CONDUCT SECOND
ROUND DAMAGE
ASSESSMENT
The EOC Public Assistance Coordinator and Community
Operations Coordinator, in cooperation with the EOC Plans
Section, will set up damage assessment data collection and
reporting process in order to assess the estimated cost of
public and private damage. That data will be reported to the
EMD as a basis for Third Round damage verification.
14
CONDUCT THIRD
ROUND DAMAGE
ASSESSMENT
State and federal authorities, in coordination with the EOC
Manager, will conduct a Third Round damage verification
process known as a Preliminary Damage Assessment
(PDA). A representation of the damage sites identified in
the Second Round will be verified by a site visit. The results
of the PDA may be used to add to estimated damage totals
in other jurisdictions as a basis for request for federal
disaster declaration.
15
PREPARE FOR
FEDERAL DISASTER
DECLARATION
Incident-related damage may be sufficient to result in a
federal disaster declaration for the state. That declaration
will release certain federal relief and recovery programs
under one or either of two categories: Public Assistance
(damage to public facilities and infrastructure), and
Individual Assistance (damage to business and private
residences).
16
ESTABLISH A
RECOVERY TASK
FORCE
If a federal disaster declaration is received for Jefferson
County, a Recovery Task Force (RTF) will be established to
coordinate implementation of the recovery plan. The EOC
will begin transition to recovery phase as emergency
demands diminish. Emergency Management will provide
staff support to the RTF.
17
CONTINUE
EMERGENCY
MANAGEMENT
OBJECTIVES
Emergency Management will continue to provide overall
coordination according to incident action plans. As
objectives are retired, the EOC will begin demobilization
and return to normal operations.
Table 2: Ingredients of a Post-earthquake Common Operating Picture
Major transportation routes
State Route (SR) 19 (from Hwy 104 to Port Townsend
City Limits
SR 20 (from Discovery Bay to intersection SR 19 and
SR 20)
Highway 101 from Gardiner to Triton Cove
SR 104 (all)
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Center Road (Chimacum to Quilcene)
Oak Bay Road (from Hadlock to Port Ludlow)
Flagler Road / SR 116 (from Oak Bay Road to Fort
Flagler)
Anderson Lake Road
City streets
Port Townsend Ferry Terminal
Key Bridges
Hood Canal
Hamma Hamma (Hwy 101 S of Brinnon)
Snow Creek (Hwy 101 @ Discovery Bay)
Hwy 116 (@ Indian Island) Marrowstone Island Causeway
Public power
City of Port Townsend
Operational Area 1 (North Quimper)
Operational Area 2 (Quilcene, Coyle)
Operational Area 3 (Port Ludlow)
Operational Area 4 (Brinnon)
Operational Area 5 (Discovery Bay)
Operational Area 6 (Gardiner)
Operational Area 7 (West Jefferson County)
Public Water
City of Port Townsend
PUD Water Systems (several locations)
Private water associations (numerous)
City Lake
Lords Lake Dam
Emergency Response
Status
East Jefferson Fire Rescue
Quilcene Volunteer Fire District
Port Ludlow Fire and Rescue
Brinnon Fire Department
Discovery Bay Fire
Jefferson County Sheriff’s Office
Port Townsend Police Department
JeffCom
Emergency Management
Hospital Status Jefferson Healthcare
Conventional Telephone
Systems Century Link network
Mobile Telephone
Networks
Wave Broadband (VoIP)
Verizon
AT&T Sprint
Other
Port of Port Townsend
Facilities
Port Townsend Marina
Jefferson County International Airport
Other Hazards
Hazardous materials storage facilities
Vulnerable public structures (Courthouse)
Historic District buildings
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Annex B
Landslides
DEFINITION
A Landslide is the sliding movement of masses of loosened rock and soil down a hillside or slope.
Landslide causes depend on the rock type, precipitation, seismic shaking, land development and
zoning practices, soil composition, moisture, and slope steepness.
HISTORY
Landslides are a common hazard in Jefferson County. Slides have been an ongoing issue on the
road between Port Hadlock and Port Ludlow. Heavy rains or winter storms have caused
numerous landslides to occur over the years with areas such as Discovery Bay, Oak Bay, and
much of Highway 101. The area south of Brinnon has experienced many landslides causing road
closures for several days.
HAZARD IDENTIFICATION AND VULNERABILITY ASSESSMENT
As the county continues to grow and the desire of people to have homes with a view, an
increasing number if structures are built on top of or below slopes subject to land sliding. Many
people believe that if a piece of land has not yet moved, or hasn’t moved in the past fifty years,
then it safe from possible future slides. As trees are removed to make way for new homes, the
nature of erosion and water absorption makes the slopes and bluff in these areas a dynamic and
changing environment. Characteristics that may indicate a landslide hazard area include:
Pre-existing landslide area
Toppling bowed, or jack-sawed trees
Tension or ground cracks along or near the edge of the top of the bluff
Structural damage caused by settling and cracking of building foundations and separation
of steps from the main structure
Mid-slope ground water seepage from a bluff face
As more homes are built with the goal of having a view, trees below the house are often cut to
help maintain that view. When trees are removed, the slope becomes more prone to sliding.
Future slides are expected to continue to be caused by periods of heavy or prolonged rainfall or
other severe weather events, large earthquakes, and the continued desire to build homes with a
view. The potential for earthquakes to create a massive number of slides is high especially along
highway 101, Oak Bay Road, and on the Port Townsend waterfront.
IMPLEMENTATION
A landslide would likely only see a major response if it were to occur on the scale of the 2014 Oso
Landslide. Smaller scale slides would see continued monitoring of the situation from DEM while
local jurisdictions move to remove debris from the affected area.
Maintain situational awareness such as understanding recent weather that has occurred
o Knowing the amount of rainfall or strength of winds
o Knowing whether or not more is expected
Conduct a threat analysis
o Road conditions
o Rainfall last 24/48 hours
o Soil saturation
Conduct data collection
Recommended action
o Activate EOC Phase 2 staffing
o Establish communications with jurisdictions at risk
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o Consider requesting Declaration of Emergency if severity warrants
Local fire districts and sheriff’s office can be tasked to check on conditions and assist with
emergency activities
Conduct SAR operations
Evacuate area surrounding incident site
Staff EOC as needed
Begin damage information collection process
Change status of EOC if necessary
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Annex C
Flooding
DEFINITION
1. River building floods: River building floods are caused by heavy, prolonged rain,
melting snow, or both. Heavy rains over prolonged periods of time are the most
common cause of flooding within Jefferson County. Runoff from melting snow and ice
in the Olympic Mountains adds to these floods especially in the spring.
2. Tidal Floods: These can occur when high tides, strong winds, heavy swell, and low
atmospheric pressure all combine and create flooding in coastal areas.
3. Flash Floods: Caused by rapid rise of water in small rivers or streams that move
quickly downhill. Usually caused by brief intense rainfall from thunderstorms. These
are rare for Jefferson County.
Flooding generally occurs along the Duckabush, Dosewallips, and both the big and little Quilcene
rivers as a combination of river building and tidal. These rivers flow from the east side of the
Olympic Mountains into the Hood Canal. Flooding that may occur in West Jefferson County is
commonly caused by the Hoh, Clearwater, Bogachiel, and Quinault Rivers that run west down
into the Pacific Ocean.
HAZARD IDENTIFICATION AND VULNERABILITY ASSESSMENT
In the history of Jefferson County, there have been eight Presidentially-declared floods dating
back to December 1979. Occurring principally during the winter months, flooding has inflicted loss
of life and property, damage to infrastructure and has been the cause for suspension of economic
activity in communities near the Big and Little Quilcene, Duckabush, and Dosewallips Rivers in
Eastern Jefferson County. Eastern Jefferson County has short, steep rivers that rise quickly and
recede quickly. The flood plains are alluvial in nature and are greatly affected by tidal action.
Southern winds tend to hold water against the shores compounding the effects. Most floods are
short term, however the potential for extreme damage is possible. In the past ten years, the
annual expense of damages caused by flooding and landslides to the county has been $750,000.
In Western Jefferson County, floods on the Hoh, Clearwater, Bogachiel, and Quinault Rivers have
damaged roads and bridges, eroded both public and private properties, and have caused
interruptions in transportation and economic activities. Rivers in Western Jefferson County are
highly erosive to the low riverbanks of the flood plains. Many acres of farm and timberland
disappear annually. Road and bridge washouts on Highway 101 in the “West End” have been
common over the last several years. Rising waters on the Hoh have necessitated sandbagging
and other emergency measures for members of the Hoh Tribe residing on reservation lands at
the end of the Lower Hoh Road.
Although Jefferson County has less than 3% of its land in a riverine floodplain, there are two
factors which argue for the county’s flood vulnerability:
• Nearly all of its population centers are in coastal floodplains to one degree or another,
• The majority of the county’s economic engine is in or near the floodplains, and
• Significant critical assets are within or adjacent to the costal floodplains.
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IMPLEMENTATION
Understanding these rivers and the hazards they pose is important when conducting response
actions.
Maintain situational awareness such as understanding recent weather that has occurred
o Knowing that storms frequently develop further Southwest; look for flooding
developments in southwest counties
Check weather and flood bulletins
o JeffCom is the designated local warning point; they will advise DEM if a flood
bulletin is received
Verify bulletins include rivers on the Olympic Peninsula
Check bulletin type (Advisory, Watch, or Warning)
Conduct a threat analysis
o Freezing level
o Rainfall last 24/48 hours
o Soil saturation
Conduct data collection
Recommended action (Warning)
o Activate EOC Phase 2 staffing
o Establish communications with jurisdictions at risk
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Local fire districts and sheriff’s office can be tasked to check on conditions and assist with
emergency activities
Staff EOC as needed
Begin damage information collection process
Request Declaration of Emergency if conditions warrant
Change status of EOC if necessary
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Annex D
Severe Weather
Hood Canal Bridge shortly after collapse 1979
DEFINITION
A. Severe weather encompasses a variety of atmospheric hazards that range in impacts.
Severe weather can be:
Winter storms
Damaging winds
Drought
Thunderstorms
A. Severe Weather can also be strong winds which have a high probability of occurrence
every year between October and April. Of all hazards that can occur within Jefferson
County, damaging winds occurs the most often and usually causes the most damage.
Most storms move into Washington from the Pacific Ocean with a southwest to northeast
airflow. Maritime air reaching the Olympic Mountains rises upwards and cools. As this
airflow reaches higher elevations and cools, there is less ability to hold moisture and
precipitation occurs. Impacts and effects include:
loss of life,
damage to homes,
businesses and critical transportation infrastructure;
◦ loss of timber resources;
◦ delays in emergency responses;
◦ damage or loss of recreation facilities;
◦ disruption of utilities;
◦ loss of jobs due to damaged equipment and facilities;
◦ school and business closures resulting in economic impacts
B. Damaging winds are considered storms with sustained winds of 50 mph or gusts 65 mph
or higher.
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HISTORY
Jefferson County has had a history of these types of severe weather with winter storms being the
most impactful. Between 2006 and 2016, there were eleven instances of winter storms occurring
in Western Washington causing landslides, flooding, and wind damage to thousands of homes
and businesses as well as over a billion dollars in damages. One of the most famous storms to
strike Jefferson County caused the collapse of the Hood Canal Bridge in 1979 leaving the
Olympic Peninsula largely cutoff from Kitsap County and all roads leading from there.
HAZARD IDENTIFICATION AND VULNERABILITY ASSESSMENT
Severe weather happens almost annually within Jefferson County and have proven to be very
dangerous. Due to the amount of trees within the county, many are at risk for power outages or
being cutoff as trees can fall blocking roads or disrupting power and utilities to homes and
businesses in the area. This also has the effect if disrupting emergency responses from fire,
EMS, and law enforcement as it cuts them off from where they may be needed.
In general, these storms have the effect of causing immobility, the loss of electrical power,
telephone service, and internet. Physical damage to homes and businesses can occur from wind
damage or the accumulation of snow and ice. Most homes or businesses have trees very close to
the building which leave them incredibly vulnerable if that tree were to fall in a storm causing
potential loss of life or major damage to the property.
IMPLEMENTATION
Jefferson County and Port Townsend plans should provide a priority for road and street
clearance, provision of emergency services, mutual aid with other public entities, and procedures
for requesting state and federal aid if needed. As part of the public information campaign, county
residents are regularly informed on how to prepare for and react when severe weather strikes.
NATIONAL WEATHER SERVICE (NWS) CRITERIA:
HIGH WIND WATCH – Conditions are favorable for the HIGH WINDS in the next 48 hours but
are not yet certain
HIGH WIND WARNING – A potentially life-threatening HIGH WIND event is occurring or is about
to happen. Winds are or will be at the WARNING level or above. HIGH WIND WARNING
threshold: Sustained winds of 40 MPH with gusts to 58 MPH or higher.
HIGH WIND ADVISORY/OUTLOOK – Events that are not life threatening, but may cause limited
power outages or other inconvenience. Sustained wind of 30 to 39 mph or gusts of 45 to 57 mph.
TRIGGER LEVELS – The NOAA/NWS HIGH WIND WARNING thresholds usually do not require
activation of DAMAGING WINDS protocols unless the upper gusts are in excess of 70 MPH.
(See SUGGESTED THRESHOLDS below).
THREAT ANALYSIS
Downed trees and tree branches
Closed roads (trees or other debris in the roadway; tree/power line entanglement)
Power outages (short term specific sites; long term system-wide damage)
Telephone outages (conventional and cellular; line damage; tower damage; overload)
System outages (internet service providers; data transfer systems; communications)
Property damage (homes and businesses; impacts from any of the above)
RECOMMENDED RESPONSE ACTIVITIES FOR DAMAGING WINDS
Maintain 24/7 awareness of conditions during storm season
Ramp up DEM situational awareness when storm potential increases
Provide for receipt and analysis of NWS storm bulletins
Ramp up EOC staffing depending on potential severity
Advise emergency response agencies to execute storm checklists (refueling chainsaws,
staff call-back, etc. depending on the potential severity)
Monitor storm activities and track damage reports
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Enhance or de-escalate EOC staffing as conditions warrant
RECOMMENDED POST-INCIDENT RECOVERY
Initiate private/public property damage information collections process
Provide public and private damage data to state EMD
Modify or enhance EOC staffing to transition from response to recovery operations
Coordinate with partner agencies in prioritizing restoration of services and disposal of
debris
DEM will act as principal coordinator in organizing and executing short term and long
term recovery
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Annex E
Tsunami
DEFINITION
Tsunamis are waves, or a series of waves generated in a body of water by sudden disturbances
such as earthquakes, landslides, or volcanoes. Tsunamis can travel at speeds up to 1000 km/h
and have waves as high as 30 meters when they make landfall. The speed and height of a
tsunami make it incredibly important for those in the path to seek high cover immediately.
HISTORY
The actual history of tsunamis in Jefferson County is quite small with the 1964 Good Friday event
being the only recorded tsunami to have hit Washington in the past 60 years. The 1700 Cascadia
earthquake is thought to have caused a massive tsunami on the Washington coast according to
Native American Tribal records dating back to the period. There have been multiple false alarms
over the years where Tsunami Warning Center has issued Tsunami watches or warnings to
Washington State but all of these had little real impact.
HAZARD IDENTIFICATION AND VULNERABILITY ASSESSMENT
Jefferson County and the rest of the Washington Coast face a high vulnerability to tsunamis.
Tsunamis can come from across the Pacific Ocean near Japan or the Philippines and travel to
the west coast in less than 16 hours. Additionally, earthquakes off the coast of South America or
Alaska also have the potential to cause large waves that travel up or down the coast damaging
anything in its way.
The most significant risk comes from a Cascadia Subduction Zone earthquake event with
thoughts on impact being similar to what happened in Japan in 2011. A tsunami of this size and
power can wash away much of the thinly populated west end as well as move through the Strait
of Juan de Fuca into the Puget Sound causing damage to Port Townsend and the neighboring
communities. Minor, but still potentially dangerous tsunamis can come from earthquakes that
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strike along the South Whidbey Island Fault or Seattle Fault lines that could cause damage to
Port Townsend and other communities that lie along the water as referenced in the figures below.
Figure 1: Represents the area encompassing Southeast Jefferson County along the Hood Canal
and in the foothills of the Olympic Mountains. The communities of Quilcene, Brinnon, and
Duckabush represent the three largest population centers in this portion of the county and are
positioned right at sea-level. Highway 101 is the only route in or out and runs along the Hood
Canal with much of the highway sitting right at sea-level as well. This makes both the
communities and the route highly vulnerable to any significant coastal surge such as a tsunami
and represents a challenge in response operations.
Figure 2: This figure includes the portion of Northeastern Jefferson County that sits at the mouth
of the Puget Sound. This is the most populated part of the county which includes the City of Port
Townsend, and the various communities of Port Ludlow, Discovery Bay, Port Hadlock-Irondale,
Mats Mats, Chimacum, Cape George, as well as Indian and Marrowstone Islands. The low lying
nature of many of these communities make them especially vulnerable to any significant wave
event that might occur. Downtown Port Townsend is a critical component of the economy within
the county and its loss could prove catastrophic. Other notable concerns include the loss of both
the Hood Canal Bridge and the Ferry Dock servicing the Port Townsend-Coupeville route of the
Washington State Ferries as both serve as the only other way in or out of the county apart from
Highway 101.
Figure 3: Western Jefferson County consists of less than 800 people but still faces significant
risk for those that live over there. The tiny communities of Queets-Clearwater and the Hoh Tribe.
This area is flooded with tourists in the spring and summer adding a layer of vulnerability that isn’t
felt as heavily as the populated eastside. As shown, Tsunami waves are expected to come fairly
far inland in places affecting the majority of the population.
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Figure 1: Southeast Jefferson County
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Figure 2: Northeast Jefferson County
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Figure 3: Western Jefferson County
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IMPLEMENTATION
In order to ensure the safety Jefferson County residents, the establishment of multiple AHAB
sirens along key coastal locations and the identification of evacuation routes within the City of
Port Townsend as well as on the County’s Pacific coast should help save lives in a tsunami. If a
tsunami were to originate from the Pacific Ocean, the closest outer coast landfall listed on
bulletins would be Neah Bay. The travel time from Neah Bay to Port Townsend is approximately
65 minutes with a decrease in amplitude as the wave moves down the Strait. Tsunamis that do
originate in the Puget Sound may not have time to be categorized as a warning or advisory.
A general evacuation of the inundation zone is top priority with the minimal safety limit being 50
feet above sea level. Once known, the following actions should take place:
Activate EOC at Phase 2+
Activate City Command Center (city resources)
Execute key personnel and agency notifications
o Include county-wide “all call”
Implement NIXLE messaging (Alert level)
Initialize emergency public information system
Make inner/outer coast notifications
Begin join planning for evacuation and search and rescue operations
Establish traffic control points
Begin evacuation of hazard areas
Establish staging areas near the hazard area for mutual aid resources
Monitor conditions for indications of degree of threat
Request declaration of emergency (BOCC and City Council)
Scale up staffing as necessary
Remain operational until 12 hours after first wave
Coordinate SAR operations if needed (by operational area)
Sustain operations or demobilize as appropriate
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Annex F
Wildfires
Photo of 2014 Chiwaukum Creek fire near Leavenworth
DEFINITION
Forest or wildland fires are the uncontrolled destruction of forested and wildlands by fire caused
by natural or human-made events. Forest and wildland fires occur primarily in undeveloped
areas. Interface fires are fires that occur in developed forest and wildlands, only partially cleared,
and occupied by structural development. When weather conditions are dry and fuels are
abundant, rapidly spreading fires can cause significant loss of life and property.
HISTORY
Jefferson County has a long history of wildfires in the past thousand years. However, it is difficult
to trace the fire history of the area back more than 350 years. Some old-growth trees and fire
scars to indicate that fires occurred about 450, 480, 540, and 670 years ago.
HAZARD IDENTIFICATION AND VULNERABILITY ASSESSMENT
Jefferson County’s fire season usually runs from mid-May through October. Any prolonged period
without significant precipitation presents a potentially dangerous situation, particularly if strong
dry, east winds prevail. The probability of a forest fire or an interface fire in any one location
depends on fuel conditions, topography, the time of the year, past weather conditions, and if there
is a human activity such as debris burning, camping, etc.
Short-term loss caused by fires is the complete destruction of valuable resources such as timber,
wildlife, habitat, scenic vistas, and watersheds. Vulnerability to flooding increases due to the
destruction of watersheds. Long-term effects are reduced amounts of timber for building and
recreation areas.
Home building near forests and wildlands increases the loss from fires. There is a trend for
families to move into more rural and forested areas. Many homes are built with an effort to
maintain the scenic aspects of the surrounding area. These are farther from firefighting assets.
Frequently, there is little clearance of vegetation resulting in a lack of defensible space.
Narrow access roads frequently found in these areas interfere with fire suppression efforts.
Frequently roads are so narrow that the standard sized fire apparatus cannot adequately turn
around or pass on the roads. More diverse fire apparatus such as brush rigs and smaller engines
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are needed, however smaller fire districts may not be able to financially support these additional
requirements.
IMPLEMENTATION
A number of activities can be undertaken which will reduce the actual numbers of fires and
resulting loss of fires.
• Forest fire education and enforcement programs must be emphasized to include early
reporting of fires
• Effective early fire detection and emergency communication systems are essential
• Effective early warning systems are essential to notify local inhabitants and persons in
the area of the fire. An evacuation plan detailing primary and alternate escape routes
should be developed if possible.
• Fire-safe development planning should be undertaken by jurisdictions to include:
- Sufficient fuel free areas around structures
- Fire resistant roofing materials
- Adequate two-way routes and turnaround areas for emergency vehicles
- An adequate water supply
- Development of local ordinances to control human caused fires
• Road closures should be increased during peak fire periods to reduce access to fire
prone areas
• Enforcement of “no-burn” periods
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Annex G
Terrorism
DEFINITION
Terrorism comprises a political effort to oppose the status quo by inducing fear in the civilian
population through the widespread and publicized use of violence, including murder, injury, and
destruction. The FBI definition of terrorism is “the unlawful use of force or violence against person
or property to intimidate or coerce a government; the civilian population; or any segment of it, in
furtherance of political or social objectives.
HISTORY
Jefferson County residents, businesses, schools, and government have received numerous
threatening phone calls over the years regarding bomb threats. Although many reports of pending
explosions are received, most are malicious mischief. A few mailboxes have been blown up, and
a few cases of arson have occurred. Arson commissions have been for personal gain, some for
revenge and some for a “thrill”.
HAZARD IDENTIFICATION AND VULNERABILITY ASSESSMENT
Terrorists hope to instill fear and panic in the civilian populations by convincing them that their
governments cannot:
Protect its own population
Protect symbols of its authority
Protect society’s institutions
Protect society’s infrastructure
Protect its own officials
End the threat of more terrorism, and as a result,
Cannot maintain normal, peaceful conditions in society.
Washington State is vulnerable to terrorist activity. Terrorism can be state sponsored or the
outgrowth of a frustrated, extremist fringe of polarized and/or minority groups. Extremists have a
different concept of morality than mainstream society, thereby making predictions on what and
where they will perform other acts of violence very unpredictable.
Terrorist groups include extremists in:
• Ethnic, separatists, and political refugees
• Left wing radical organizations
• Right wing racists, anti-authority survivalist groups
• Extremist issue-oriented groups such as religious, animal rights, environmental, and so
on.
Jefferson County has no immunity to potential terrorist activity. Terrorist groups at play today are
constantly emerging. Terrorists perform acts of violence or spread anthrax through the mail
system, or release bio-toxins into the food supply want notoriety, want to spread the maximum
amount of fear through the population, and want to create an event that will receive
national/international attention. As home to important military installations and our close proximity
to Seattle’s economic, financial, and population centers, Jefferson County’s vulnerability to the
effects of terrorism is substantial.
Communities that are most vulnerable to terrorist incidents have visible and vulnerable targets.
These kinds of targets that are in Jefferson County include:
Government office buildings, courthouses, schools, hospitals
Dams, water supplies, power distribution systems
Military installations
Ferries, bridges, seaports
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Theaters and parks
Financial institutions and banks
Sites of historical and symbolic significance
Industrial plans and business offices
Law, fire, emergency medical services and responder facilities
Special events such as parades, religious services, festivals, and celebrations
The term “Weapons of Mass Destruction” (WMD) describes weapons that can be classified into
the following categories: Chemical, Biological, Radiological, Nuclear and Explosive. These
categories are often referred to as the acronym CBRNE. Biological and chemical agents pose
threats because of their accessible nature and the rapid manner in which they could be spread.
Most agents can be easily introduced into the environment through aerosol generators, explosive
devices, breaking containers, or other forms of covert dissemination. Dispersed as an aerosol,
chemical agents have their greatest potential for inflicting mass casualties. Biological agents can
be disseminated by the use of aerosols, contaminated food or water supplies, direct skin contact,
or injection. The consequences of biological attacks will first be recognized in the hospital
emergency rooms and by other health care resources, and will present communities with an
unprecedented requirement to provide mass protective treatment, mass patient care, mass
fatality management, and environmental health clean-up procedures and plans. Radiological and
nuclear weapons would inflict explosions, thermal radiation, and radiation exposure injuries,
sickness or death.
Cyberterrorism is a relatively new phenomenon that can be used to potentially disrupt society and
exploit our continuing reliance on computers and telecommunication. Cyberterrorism threatens
the electronic infrastructure supporting the social, health, and economic well-being of all citizens.
Interlinked computer networks regulate the flow of power, water, financial services, medical care,
telecommunication networks, and transportation systems.
If one were able to accurately predict, it would be more likely that a site in Seattle or Tacoma or a
nearby military installation would be the direct target rather than one located in the County. The
consequences are that Jefferson County could appear (or it could be announced to the
Seattle-Metro area) that this area could be a haven for people fleeing from a terrorist situation.
County resources would be quickly overloaded, food supplies would quickly be depleted, lodging
would be scarce, and management of people (both local and “refugees”) could be extremely
difficult. County leaders have addressed such scenarios and are becoming cognizant of potential
problems and the implications of such an event.
In the same vein, Jefferson County’s relative quiet lifestyle offers several areas of seclusion from
which covert activities could be planned. The rise of militia groups in other parts of Washington,
Oregon, Montana, and Idaho underscores this aspect of the County’s demographics. Groups
could see the County as a place to organize and wait until circumstances seem right in other
areas of the country. Alert citizens and law enforcement alike have the responsibility to be aware
of citizens’ activities and to be mindful of the realities of the world today.
IMPLEMENTATION
Specific response and recovery actions for Terrorist incidents are difficult to plan for as they can
occur a dozen different ways in almost any location within the County or City. The Jefferson
County Mass Casualty Incident Plan provides the Incident Commander with a game plan of how
to respond to this type of scenario.
In the past, the warning signs of those who have conducted terrorist actions were either missed
or not reported. Mitigating the potential damage an actor can cause through physical,
technological, or human means has proven to be instrumental in the past, however attacks are
better prevented if people were to report any kind of suspicious behavior especially if it may lead
to an act of terror.
Revised March 2018
Page 118 of 118
If terrorism were to occur, the following would be expected to take place:
Maintain situational awareness
o Who, what, when, where, and why
o Size and scope of incident
Damage assessment of affected area
Immediate evacuation or shelter-in-place of those in the impacted area
EOC full activation in support of partner agencies
EOC provides logistical support