TO: HONORABLE MAYOR
AND CITY COUNCIL
FROM: Raymond Riordan
SUBJECT: See Below DATE: March 21, 2025
Approved Date:
3/27/25
CO
UNCIL DISTRICT: Citywide
S
UBJECT: Emergency Management and City Council Role in Emergencies Study Session
PURPOSE AND OUTCOME
T
his Study Session will provide an overview on:
• Recent Emergency Management Organization (EMO) activations; • The role of the elected officials during an emergency or disaster; • Purpose of the Disaster District Office (DDO);
• Continuity of Operations Plan; and
• EMO functions.
T
he Study Session will also include a discussion-based, facilitated tabletop exercise to demonstrate how the updated Emergency Operations Plan, Annexes, and Support Plans will be implemented in an emergency or disaster; how the coordination between the City EMO and the ten DDOs works; and how communications with the public are coordinated.
B
y the end of this Study Session, the Mayor and City Council will:
• Have a better understanding of their role during an emergency or disaster; • Discuss actions to take during an emergency or disaster; • Experience how the EMO collects information, creates situation status reports, and communicates with the elected officials through the DDO, as needed; and • Discuss key information on the updated emergency plans and procedures.
COUNCIL AGENDA: 4/3/2 025
FILE: 25-355
HONORABLE MAYOR AND CITY COUNCIL
March 21, 2025
Subject: Emergency Management and City Council Role in Emergencies Study Session
BACKGROUND
The City Manager’s Office of Emergency Management supports the City Manager, who is the City’s Director of Emergency Services, in developing, maintaining, and managing the City’s emergency management capabilities, including the City’s primary and alternate Emergency Operations Centers (EOC), the EMO, emergency communications, and all other aspects of Multi-Agency Coordination Systems used during an emergency or disaster in the City of San José.
Currently, the Emergency Management Objectives include the following:
• The City has a plan to tackle any emergency.
• Employees, residents, and businesses are ready to take action and able to answer a “call to action.”
• Our community trusts the City to let them know when an emergency is coming, and the public provides vital information to the City.
• Our emergency response is optimized through technology.
On July 10, 2017, the City’s Emergency Management Work Group was formed with the purpose of improving the readiness of the City of San José following the impacts of the 2017 Coyote Creek Flood. Each Department Director identified a management representative to participate in the Emergency Management Work Group. The department representative has the authority to commit the department’s resources and personnel to support emergency preparedness, planning, response, and recovery activities. The Emergency Management Work Group meets regularly to review improvement progress. During the Study Session, department leads will provide updates on annexes and support plans to the Emergency Operations Plan - Base Plan that was adopted by City Council in May 2024.
ANALYSIS
A Situation Manual accompanies this memorandum to City Council (Attachment - City Council Study Session Emergency Management and City Council Role in Emergencies - Tabletop Exercise). The format and flow of the Study Session will follow the Department of Homeland Security’s Exercise and Evaluation Program requirements.
The Study Session will take place at the City’s EOC. The facility will be arranged to demonstrate the relationship between the EMO, DDOs, shelter and other field activities, and public information and liaison functions. The format will include a staff presentation, structured questions, informal dialogue, and public comment. The Situation Manual will include instructions, scenario information, and key questions designed to stimulate discussion on response issues, communication, public information, and operations. The Study Session will conclude with a discussion on the progress of the City-wide emergency management program and future considerations as the city becomes “quake ready.”
HONORABLE MAYOR AND CITY COUNCIL
March 21, 2025
Subject: Emergency Management and City Council Role in Emergencies Study Session
ROLE OF THE ELECTED OFFICIALS
One of the outcomes of the Study Session is to review the role of elected officials during an emergency or disaster. The tabletop exercise activities will review elected official actions before, during, and after an emergency that could directly influence the behavior, readiness, and resiliency of residents, businesses, and City employees, and directly impact the City’s ability to protect lives, property, and the environment. From setting policy for emergency management, homeland security, and continuity programs within the City to resourcing these programs to protect their constituents, the City’s elected officials create and build the capability and capacity to enable the City to effectively prepare for, mitigate against, prevent, respond to, and recover from all threats and hazards impacting the City.
More than any other position within the City, the City’s elected officials play a crucial role in strengthening the resilience of their constituents, the City’s residents, and businesses. The City’s elected officials maintain and nurture a direct connection with the residents and businesses within the City and can use that relationship to encourage resiliency at all levels. Encouraging residents to be prepared for an emergency; providing information to residents before, during, and after an emergency; and strengthening emergency procedures for their communities are critical tasks for the City’s elected officials.
During an emergency, the City Manager, or designee, as the Director of Emergency Services, is responsible for carrying out the policy established by the Mayor and City Council. The City’s Emergency Operations Plan provides that policy direction and enables the City to coordinate many disparate elements toward pre-agreed strategic goals. The Mayor and City Council serve as the main connection between the government and the public during and after the emergency.
Each member of the City Council provides a direct link to their constituents through the establishment of their DDO in their respective districts, when needed. DDOs serve as the focal point for coordinating aid to each Council District and enable the City Council to focus on local district needs and provide information to the City EMO regarding unmet and urgent needs within their district.
The City Council may also hold community meetings to conduct business relevant to response and recovery efforts related to the disaster (for example, the adoption of ordinances) and to hear from and communicate with the public.
Before, during, and after an emergency, specific responsibilities of the City Council include, but are not limited to:
• Promote and raise awareness in the community on how to be prepared for emergencies;
• Maintain and support continuity of government operations and essential services; • Participate in required training as required by state and federal law;
HONORABLE MAYOR AND CITY COUNCIL
March 21, 2025
Subject: Emergency Management and City Council Role in Emergencies Study Session
• Review requirements for special legislation and policy development; • Serve as the liaison with the public and community organizations; • Maintain coordinated communication with the public as guided by the EOC City Council Liaison and Emergency Public Information Officer; • Receive regular updates and briefings from the Director of Emergency Services (City Manager) through the EOC City Council Liaison;
• Review and approve the Proclamation of Local Emergency; • Establish and manage DDOs in each Council District, as needed; • Visit impacted areas, shelters, and other incident facilities to reassure constituents and identify areas of concern or need;
• Coordinate with the City EMO regarding unmet and urgent needs within the City Council Districts;
• Support and accompany visits by state and federal officials to impacted areas, shelters, and other incident facilities;
• Conduct community meetings to determine needs and identify current or future City actions related to the emergency; and
• Consider and approve both short- and long-term recovery recommendations as developed by City staff.
DDO
The City Manager’s Office of Emergency Management staff have been meeting with the staff of each City Councilmember to discuss the purpose and activities that may evolve into a DDO. Conversations have included identification of the best site to facilitate the elected officials’ responsibilities, operational goals and priorities, and how to support the identified sites. The DDO allows constituents to have ready access to the Councilmember and staff during an emergency, especially when transportation routes or normal working conditions are not possible, for receiving emergency public information, identifying urgent humanitarian needs, and coordinating vital services to their community.
The functions of the DDO help coordinate:
1. Government assistance in large, complex emergencies;
2. Communication to their constituents as early and often with accurate and current information; and
3. Support for their constituents, gather information, and identify unmet needs.
EVALUATION AND FOLLOW-UP
The City Manager’s Office of Emergency Management will continue to provide staff training through the Multi-Year Training and Exercise Program and to work with all City departments in updating and/or developing emergency plans and procedures. The lead staff in each area of work will be responsible for managing the coordination of the
HONORABLE MAYOR AND CITY COUNCIL
March 21, 2025
Subject: Emergency Management and City Council Role in Emergencies Study Session
necessary work and bringing relevant updates or requests for direction back to Council Committee or the full City Council as appropriate.
COORDINATION
This memorandum has been coordinated with the City Attorney’s Office and the City Manager’s Office.
PUBLIC OUTREACH
This memorandum will be posted on the City’s Council Agenda website for the April 3, 2025 City Council Study Session.
COMMISSION RECOMMENDATION AND INPUT
No commission recommendation or input is associated with this action.
CEQA
Not a Project, File No. PP17-010, City Organizational and Administrative Activities resulting in no change to the physical environment.
PUBLIC SUBSIDY REPORTING
This item does not include a public subsidy as defined in section 53083 or 53083.1 of the California Government Code or the City’s Open Government Resolution.
/s/
Raymond Riordan
Director, City Manager’s Office of
Emergency Management
For questions, please contact Raymond Riordan, Director of the City Manager’s Office of Emergency Management at (408) 794-7050.
ATTACHMENT
City Council Study Session Emergency Management and City Council Role in Emergencies - Tabletop Exercise, Situational Manual, April 3, 2025 Attachment
C
ity Council Study Session
Emergency Management and
City C ouncil Role in Emergencies -
Tabletop Exercise
S
ituation Manual
April 3, 2025
This Situation Manual provides exercise participants with all the necessary tools for their roles in the exercise. Some exercise material is intended for the exclusive use of exercise planners, facilitators, and evaluators, but players may view other materials that are necessary to their performance. All exercise participants may view the Situation Manual.
Situation Manual
City Council Study Session: Emergency Management and City Council Role in Emergencies – Tabletop Exercise
2 EXERCISE OVERVIEW
Exercise
Name
City Council Study Session: Emergency Management and City Council Role in Emergencies – Tabletop Exercise
Exercise
Dates
Thursday, April 3, 2025
Scope
The City Council Study Session on Emergency Management and City Council Role in Emergencies aims to engage the Mayor and City Council in discussions on recent emergency response actions, coordination and communication between the Emergency
Management Organization (EMO) and the ten Disaster District Offices (DDO), and updated plans and procedures. The session will include a discussion-based, facilitated tabletop exercise.
Mission
Area(s) Response, Recovery
Core
Capabilities
Operational Communications
Operational Coordination
Planning
Public Information and Warning
Objectives
Engage the Mayor and City Council in discussion on:
1. Recent EMO activations;
2. The role of the elected officials during an emergency;
3. Purpose of the DDO;
4. Continuity of Operations Plan (COOP); and
5. EMO functions.
Threat or
Hazard Earthquake
Scenario A major (7.2 Richter Scale) Hayward fault earthquake (See “Scenario – Focused Discussion” for additional information) Participating
Organizations See Appendix B – Exercise Participants
Situation Manual
City Council Study Session: Emergency Management and City Council Role in Emergencies – Tabletop Exercise
3 Exercise
Name
City Council Study Session: Emergency Management and City Council Role in Emergencies – Tabletop Exercise
Point of
Contact on
Exercise
Design
Raymond Riordan
Director
City Manager’s Office - Office of Emergency Management
[email protected]
408-794-7050
Situation Manual
City Council Study Session: Emergency Management and City Council Role in Emergencies – Tabletop Exercise
4 GENERAL INFORMATION
Exercise Objectives and Core Capabilities
The following exercise objectives in the table below describe the expected outcomes for the exercise. The objectives are linked to core capabilities, which are distinct critical elements necessary to achieve the specific mission area(s).
The objectives and aligned core capabilities were selected by the Exercise Planning Team after an extensive review of lessons learned, after-actions reports, and newly develop local emergency management products.
Exercise Objectives Core Capabilities
1. Review recent Emergency
Management Organization (EMO)
activations.
Operational Coordination
2. Review the role of the elected
officials during an emergency.
Operational Coordination
Public Information
3. Review the purpose of the Disaster
District Office (DDO).
Operational Coordination
Operational Communications
4. Review the Continuity of Operations
Plan (COOP).
Operational Coordination
Operational Communications
5. Review the EMO functions.
Planning
Operational Coordination
Operational Communications
Table 1. Exercise Objectives and Associated Core Capabilities
Participant Roles and Responsibilities
The term participant encompasses many groups of people, not just those playing in the exercise. Groups of participants involved in the exercise, and their respective roles and responsibilities, are as follows:
• Players respond to the situation presented based on expert knowledge of response procedures, current plans and procedures, and insights derived from training.
• Facilitators provide situation updates and moderate discussions. They also provide additional information or resolve questions, as required.
• Presenters provide information about topics in emergency management.
• Observers primarily view the exercise.
Situation Manual
City Council Study Session: Emergency Management and City Council Role in Emergencies – Tabletop Exercise
5 The following table lists the City entities participating in the tabletop exercise . See Appendix B – Exercise Participants for a more detailed list.
Participating City Entities
Mayor’s Office Housing Department
City Council Offices Human Resources Department
City Attorney’s Office Planning, Building, and Code
Enforcement Department
City Manager’s Office Police Department
Department of Parks, Recreation, and
Neighborhood Services Public Works Department
Department of Transportation City Manager’s Office of Communications Environmental Services Department City Manager’s Office of Economic Development and Cultural Affairs
Finance Department City Manager’s Office of Emergency
Management
Fire Department
Table 2. City Entities Participating in Tabletop Exercise Exercise Structure
Introduction
The Mayor will provide welcoming remarks and turn the program over to the City Manager.
The City Manager will provide keynote opening and frame the day and the role of the City Council.
Module 1
Complete a review of past EMO activations; and review elected officials’ role during an emergency and the purpose of a DDO.
This module will focus on Objectives 1 and 2 on page 4
Module 2
Introduce 7.2 Richter Magnitude earthquake scenario and the roles of the EMO and the Continuity of Operations Plan (COOP). Also review the role of the different EMO staff members and Department Operations Centers (DOC). Various EMO and DOC representatives will be asked to contribute to the discussion. There will also be discussion about some of the City’s current emergency planning efforts. Participants can expect to respond to questions that develop organically during this module.
This module will focus on Objectives 3, 4, and 5 on page 4.
Situation Manual
City Council Study Session: Emergency Management and City Council Role in Emergencies – Tabletop Exercise
6 Exercise Guidelines
This is intended to be a safe, open environment. The problems and challenges are real and there is no “textbook” solution. The following exercise ground rules have been developed to ensure that the goals and objectives are met in a reasonable amount of time and the tabletop exercise runs smoothly.
• Keep the exercise’s objectives in mind throughout the exercise; • Treat the scenario incidents as real events and play your appropriate role; • Participate openly and focus discussions on appropriate topics – asking questions, sharing thoughts, and offering forward-looking, problem-solving suggestions, which are strongly encouraged, as these will enhance the exercise experience;
• The Mayor and each Councilmember can interrupt two times during the Study Session to ask a question or make a comment. Once the Mayor and all Councilmembers have used their two interrupts, everyone will get two more interrupts for the duration of the Study Session;
• Keep your questions and comments focused and consider the time constraints; and
• Respect the observations, opinions, and perspectives of others, as the discussions will explore a variety of policies, decisions, actions, and key relevant issues from different sources.
Exercise Assumptions and Artificialities
In any exercise, a number of assumptions and artificialities may be necessary to complete play in the time allotted. During this exercise, the following apply:
• The scenario is plausible, and events occur as they are presented; • There is no “hidden agenda” or any trick questions; and • All players receive information at the same time.
Exercise Control
The facilitated tabletop exercise uses a scenario-based approach to create the decision- making environment for you, as a participant, to act in your role. This is a no-fault exercise that focuses on expanding the knowledge base among the Mayor and City Councilmembers and help set expectations of how they receive information from the EOC during an incident, and ideas of what to do to support their community.
The facilitators are responsible for keeping discussions on track with exercise objectives and ensuring that all issues are explored (time permitting). In general, the facilitators will keep side conversations to a minimum and keep discussions on track and within established time limits.
Situation Manual
City Council Study Session: Emergency Management and City Council Role in Emergencies – Tabletop Exercise
7 SCENARIO-FOCUSED DISCUSSION
Module Schedule
Timeframe Total Time Activity
08:45 am – 09:00 am 15 minutes Arrival & Check-in
09:00 am – 09:05 am 5 minutes Introduction & Opening Remarks 09:05 am – 09:50 am 45 minutes
Module 1 – Review EMO
Activations & Roles of the Elected
Officials
09:50 am – 11:45 am 115 minutes Module 2 – Tabletop Exercise 11:45 am – 11:55 am 10 minutes Public Comment
11:55 am – 12:00 pm 5 minutes Closing Remarks
Introduction – 5 minutes
Mayor’s Welcoming Remarks
City Manager’s Opening Remarks
Module 1 – 45 minutes
35-minute module + 10-minute Q&A
Objective 1: Review recent EMO activations.
Facilitator: Ray Riordan (10 minutes)
Emergency Management Organization activations since 2020 • 03/05/2020: COVID-19 ~ 730 Days
• 0 4/09/2022: Home Depot Fire – 1 day
• 0 8/31/2022: Extreme Heat – 10 days
• 0 8/31/2022: PG&E PSPS #4 – 10 days
• 12/29/2022 to 01/15/2023: Atmospheric River – 18 days • 03/10/2023: Atmospheric River – 6 days
• 01/30/2024: Winter Storm – 9 days
• 02/17/2024: Winter Storm – 3 days
• 07/01/2024: Excessive Heat – 12 days
• 09/30/2024: Excessive Heat – 5 days
• 11/04/2024: PG&E PSPS #5 – 3 days
• 11/05/2024: National Election Safety – 5 days
Situation Manual
City Council Study Session: Emergency Management and City Council Role in Emergencies – Tabletop Exercise
8 • 12/05/2024: Humboldt EQ/Tsunami – 1 day
• 02/06/2025: Cold Weather IMT – 6 days
• 02/12/2025: Inclement Weather IMT – 2 days
• 03/05/2025: Inclement Weather IMT – 8 days
Facilitator: Ray Riordan (15 minutes)
Discussion of recent experiences:
• Understanding that the City is faced with many hazards, and the Emergency Management Organization has been activated frequently, what are some of your fears and/or concerns?
• What kinds of information from the EOC would you expect?
Objective 2: Review the role of the elected officials during an emergency.
Objective 3: Review the purpose of the DDO.
Presenter: Karen Truong (10 minutes)
Review:
• Purpose of the DDO.
• Communication feedback loop involving the Emergency Public Information Officer (EPIO), City Council Liaison, and the community. • Triggers for DDO Activation.
Questions:
• What is a DDO?
• How will the Councilmember know when/where to activate the DDO? • Who will the Councilmember/Council Office need to notify of this decision? • How will unmet needs be communicated to the EMO?
• How will emergency public information be disseminated to the public?
Facilitator: Ray Riordan
10-minute Q&A:
• Are there any additional clarifications or questions?
Situation Manual
City Council Study Session: Emergency Management and City Council Role in Emergencies – Tabletop Exercise 9 Disaster District Office Activation Chart
Situation Manual
City Council Study Session: Emergency Management and City Council Role in Emergencies – Tabletop Exercise
10 Module 2 – 115 minutes
110-minute module + 5-minute closing remarks
Objective 4: Review the COOP.
Objective 5: Review the EMO functions.
Facilitators: Lee Wilcox & Jennifer Schembri
Overview of the COOP (Lee Wilcox)
• Discuss the critical services and infrastructures that are required to continue even when the EOC is activated.
Overview of the EOC Functions (Jennifer Schembri)
• Each EOC Section Coordinator and Emergency Public Information Officer (EPIO) will provide a brief introduction of their name, section, and general roles and responsibilities.
Earthquake Scenario (Lee Wilcox)
• A massive 7.2 Richter Scale magnitude earthquake erupts along the Hayward fault.
Tabletop Exercise
• Facilitation of the EMO, ensuring communication and coordination among the teams in the center and in the field. (Jennifer Schembri) • Facilitation of Council conversation and questions. (Lee Wilcox)
Council Discussion (Lee Wilcox)
• Q&A if time permits: Mayor and Councilmembers ask any questions they have following end of tabletop exercise.
• Feedback if time permits: Facilitator will pose some/all of these questions to Mayor and Councilmembers.
o What insight have you gained from this Study Session that you want us to keep in mind as we continue working on the City’s emergency management efforts?
o What are some emergency management areas where we should challenge ourselves and/or improve?
o What strengths do we bring to the emergency management efforts? o What do you need to do to be prepared as an individual and as a community leader?
Situation Manual
City Council Study Session: Emergency Management and City Council Role in Emergencies – Tabletop Exercise
11 City Manager’s Closing Remarks
• We are all first responders in times of crisis.
Situation Manual
City Council Study Session: Emergency Management and City Council Role in Emergencies – Tabletop Exercise 12 Emergency Management Organization Chart
Situation Manual
City Council Study Session: Emergency Management and City Council Role in Emergencies – Tabletop Exercise
13 Public Comment – 10 minutes
Closing Remarks – 5 minutes
Mayor’s Closing Remarks
Situation Manual
City Council Study Session: Emergency Management and City Council Role in Emergencies – Tabletop Exercise
Appendix A: Exercise Schedule A-1 A PPENDIX A: EXERCISE SCHEDULE
Timeframe Total Time Activity
08:45 am – 09:00 am 15 minutes Arrival & Check-in
09:00 am – 09:05 am 5 minutes Introduction & Opening Remarks 09:05 am – 09:50 am 45 minutes
Module 1 – Review EMO
Activations & Roles of the Elected
Officials
09:50 am – 11:45 am 115 minutes Module 2 – Tabletop Exercise 11:45 am – 11:55 am 10 minutes Public Comment
11:55 am – 12:00 pm 5 minutes Closing Remarks
Situation Manual
City Council Study Session: Emergency Management and City Council Role in Emergencies – Tabletop Exercise
Appendix B: Exercise Participants B-1 APPENDIX B: EXERCISE PARTICIPANTS
EXERCISE PARTICIPANTS
MAYOR’S OFFICE
Mayor Matt Mahan
CITY COUNCIL
District 1 – Rosemary Kamei
District 2 – Pamela Campos
District 3 – Carl Salas
District 4 – David Cohen
District 5 – Peter Ortiz
District 6 – Michael Mulcahy
District 7 – Bien Doan
District 8 – Domingo Candelas
District 9 – Pam Foley
District 10 – George Casey
EXECUTIVE MANAGEMENT
City Manager Jennifer Maguire
Assistant City Manager Leland Wilcox
City Attorney Nora Frimann
EXERCISE FACILITATORS
Assistant City Manager Leland Wilcox
Deputy City Manager Jennifer Schembri
Director of Emergency Management Raymond Riordan
EXERCISE PRESENTERS
Emergency Management Staff Member - Karen Truong
EOC MANAGEMENT SECTION
EOC Director – Jennifer Schembri
Liaison Branch Coordinator – Angel Rios
Emergency Public Information Officer (EPIO) – Carolina Camarena Safety Officer – Joseph Gregory
Legal Advisor – Diana Yuan
Access & Functional Needs Coordinator – Andrea Aguiar
EOC OPERATIONS SECTION
Operations Section Coordinator – Matt Loesch
Situation Manual
City Council Study Session: Emergency Management and City Council Role in Emergencies – Tabletop Exercise
Appendix B: Exercise Participants B-2 Fire and Rescue Branch – Chief Robert Sapien or Assistant Chief James Williams Law Branch (Police PCC) – Captain Randy Torres
Public Works Branch – Katherine Brown
Mass Care Branch – Andrea Flores-Shelton
Mass Care Branch: Housing Unit – Cupid Alexander
Damage Inspection Branch – Lisa Joiner
Transportation Branch – Rick Scott
EOC PLANNING SECTION
Planning Section Coordinator – Jay McAmis
Situation Status Public Works – J Guevara
EOC LOGISTICS SECTION
Logistics Section Coordinator – David Mesa
EOC FINANCE & ADMINISTRATION SECTION
Finance & Administration Section Coordinator – Maria Oberg
ADDITIONAL ATTENDEES
Environmental Services DOC – Jennifer Brown
Parks, Recreation, & Neighborhood Services DOC – Kendra Yarn Planning, Building & Code Enforcement DOC – Bill Mayne
Public Works DOC – Norman Mascarinas
Situation Manual
City Council Study Session: Emergency Management and City Council Role in Emergencies – Tabletop Exercise
Appendix C: Acronyms C-1
APPENDIX C: ACRONYMS
Acronym Term
COOP Continuity of Operations Plan
DDO Disaster District Office
DOC Department Operations Center
EOC Emergency Operations Center
EMO Emergency Management Organization
TTX Tabletop Exercise