EMERGENCY OPERATIONS PLAN
CITY OF UNION CITY
AUGUST 2025 DRAFT V. 2.5
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Letter of Promulgation
To: City Officials, Employees and Residents
The preservation of life, property and the environment are inherent responsibilities of local, state, and federal governments. As disasters can occur at any time, the City must provide safeguards that will save lives and minimize property and environmental damage through careful planning, preparedness measures and training. Sound emergency plans carried out by knowledgeable and well-trained personnel can and will minimize losses.
The City’s Emergency Operations Plan (EOP) establishes an Emergency Management Organization and assigns functions and tasks consistent with California’s Standardize Emergency Management System (SEMS) and the National Incident Management System (NIMS). It provides for the integration and coordination of planning efforts through a whole community approach and authorizes city personnel to perform their duties and tasks before, during, and after an emergency.
This plan was developed for city departments and local special districts with emergency services responsibilities within the City. The content is based upon guidance approved and provided by the Federal Emergency Management Agency (FEMA) and the California Office of Emergency Services (Cal OES). The intent of the plan is to provide guidance on how to respond to an emergency from the onset, through an extended response and into the recovery process.
Once adopted, this plan is an extension of the County of Alameda Emergency Operations Plan and the State of California Emergency Plan. It will be reviewed and tested periodically and revised as necessary, to meet changing conditions such as lessons learned from an actual disaster or emergency; and/or changes in State/Federal guidance.
This plan will be submitted to the City Council for review, and, upon their concurrence, officially adopted and promulgated.
This promulgation shall be effective upon its signing and shall remain in effect until amended or rescinded by further promulgation. The promulgation of this plan further affirms the City’s support for emergency management, and a safe and resilient community.
________________________
Mayor
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Table of Contents
Letter of Promulgation ...................................................................................................2 Acronyms ........................................................................................................................7 Approval and Implementation .......................................................................................9 Foreword ..................................................................................................................................9 Plan Approval and Implementation .......................................................................................9 Plan Modifications...................................................................................................................9 City of Union City’s Commitment to Comprehensive Equity and Climate Resilience....10 Plan Concurrence..................................................................................................................11 Record of Changes................................................................................................................12 Record of Distribution...........................................................................................................13
1. Purpose, Scope, Situation and Assumptions.....................................................14
1.1 Purpose ......................................................................................................................14
1.2 Planning Organization and Format..........................................................................14
1.3 Scope..........................................................................................................................15
1.4 Situation Overview ....................................................................................................16
1.4.1 Geography and Climate........................................................................................................18
1.4.2 History ...................................................................................................................................18
1.4.3 Capability Assessment..........................................................................................................20
1.4.4 Mitigation Overview...............................................................................................................20
1.5 Planning Assumptions..............................................................................................20
2. Concept of Operations..........................................................................................23
2.1 Response....................................................................................................................23
2.1.1 Goals, Priorities, and Strategies............................................................................................23
2.1.2 Plan Activation ......................................................................................................................24
2.1.3 Proclaiming an Emergency ...................................................................................................24
2.1.4 Presidential Declarations ......................................................................................................26
2.1.5 Emergency Management Response Levels .........................................................................26
2.1.6 Sequence of Events During Disasters ..................................................................................27
2.2 Recovery.....................................................................................................................33
2.2.1 Short-Term Recovery............................................................................................................33
2.2.2 Long-Term Recovery ............................................................................................................33
2.3 Continuity...................................................................................................................34
2.3.1 Continuity of Operations and Government............................................................................34
3. Organization and Assignment of Responsibilities.............................................36 Union City, CA 5
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3.1 Use of Standardized Emergency Management System, National Incident Management System, and Incident Command System .....................................................36
3.2 Role of Elected Officials............................................................................................36
3.3 Role of City Departments..........................................................................................37
3.3.1 City Manager’s Office............................................................................................................37
3.3.2 Community & Recreation Services .......................................................................................38
3.3.3 Economic and Community Development Department..........................................................38
3.3.4 Financial Services Department.............................................................................................38
3.3.5 Fire Department....................................................................................................................38
3.3.6 Human Resources Department.............................................................................................39
3.3.7 Information Technology Services Department......................................................................39
3.3.8 Police Department.................................................................................................................39
3.3.9 Public Works Department .....................................................................................................39
3.3.10 Emergency Operations Center, Department Operations Center and Responder Personnel 40
3.4 Role of the Private Sector.........................................................................................40
3.4.1 Contracted City Services.......................................................................................................40
3.4.2 Residents ..............................................................................................................................40
3.4.3 Population with Access and Functional Needs .....................................................................40
3.4.4 At Risk Individuals.................................................................................................................41
3.4.5 Businesses............................................................................................................................42
3.4.6 Volunteer Organizations........................................................................................................43
3.4.7 Public-Private Partnerships...................................................................................................43
4. Direction, Control and Coordination ...................................................................44
4.1 Direction and Control................................................................................................44
4.2 Coordination ..............................................................................................................44
4.3 Multi-Entity/Jurisdiction Coordination and Mutual Aid..........................................44
4.3.1 OA Coordination....................................................................................................................44
4.3.2 Mutual Aid.............................................................................................................................44
4.3.3 Mutual Aid Coordination........................................................................................................45
4.4 National Incident Management System, Standardized Emergency Management System, and Incident Command System ............................................................................47
4.4.1 National Incident Management System ................................................................................48
4.4.2 Standardized Emergency Management System...................................................................49
5. Communication .....................................................................................................54
5.1 City EOC .....................................................................................................................54
5.2 City Operations and Responders.............................................................................54
5.3 Notification and Warning ..........................................................................................54
6. Information Collection, Analysis and Distribution.............................................55
6.1 Before an Incident .....................................................................................................55 Union City, CA 6
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6.2 During an Incident .....................................................................................................55
6.3 After an Incident ........................................................................................................56
6.4 Emergency Public Information.................................................................................56
7. Administration, Finance and Logistics ...............................................................57
7.1 Administration ...........................................................................................................57
7.1.1 City Operations Policy Statement .........................................................................................57
7.1.2 Disaster Service Workers......................................................................................................58
7.1.3 Documentation......................................................................................................................58
7.2 Finance .......................................................................................................................59
7.2.1 Expenditure Tracking............................................................................................................59
7.2.2 Eligible Expenses..................................................................................................................59
7.2.3 Recordkeeping Requirements...............................................................................................59
7.3 Logistics.....................................................................................................................60
7.3.1 Resource Management.........................................................................................................60
7.3.2 Resource Priorities................................................................................................................60
7.3.3 Resource Requests...............................................................................................................60
8. Plan Development and Maintenance ...................................................................62
8.1 Administrative Practices...........................................................................................62
8.2 Standard Operating Procedures ..............................................................................62
8.3 Training and Exercises .............................................................................................62
8.4 Essential Records Retention....................................................................................63
8.5 After Action Reports and Corrective Actions .........................................................64
9. Authorities and References..................................................................................65 Appendix A – Glossary of Terms ................................................................................67 Union City, CA
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Acronyms
• Access and Functional Needs (AFN)
• Action Plan (AP)
• After Action Report (AAR)
• American Red Cross (ARC)
• California Disaster and Civil Defense Master Mutual Aid Agreement (MMAA) • California Disaster Assistance Act (CDAA)
• California Emergency Services Act (ESA)
• California Office of Emergency Services (Cal OES)
• Continuity of Government (COG)
• Continuity of Operations (COOP)
• Department Operations Center (DOC)
• Disaster Recovery Center (DRC)
• Disaster Service Worker (DSW)
• Emergency Management Assistance Compact (EMAC)
• Emergency Medical Services (EMS)
• Emergency Operations Center (EOC)
• Emergency Operations Plan (EOP)
• EOC Action Plan (EAP)
• Federal Coordinating Officer (FCO)
• Federal Emergency Management Agency (FEMA)
• Geographic Informational Services (GIS)
• Homeland Security Presidential Directives (HSPDs)
• Incident Action Plan (IAP)
• Incident Commander (IC)
• Incident Command Post (ICP)
• Incident Command System (ICS)
• Information Technology (IT)
• Integrated Preparedness Plan (IPP)
• Joint Field Office (JFO)
• Joint Information Center (JIC)
• Local Assistance Centers (LAC)
• Multiagency Coordination Group (MAC Group)
• Multiagency Coordination System(s) (MACS)
• National Incident Management System (NIMS)
• National Oceanic Atmospheric Administration (NOAA)
• National Response Framework (NRF)
• Office of Emergency Services (OES)
• Operational Area (OA)
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• Public Information Officer (PIO)
• Regional Emergency Operations Center (REOC)
• Standard Operating Procedure (SOP)
• Standardized Emergency Management System (SEMS)
• State Coordinating Officer (SCO)
• State Operations Center (SOC)
• The Robert T. Stafford Disaster Relief and Emergency Assistance Act (Stafford Act) Union City, CA
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Approval and Implementation
Foreword
The City of Union City (hereafter, “City”) EOP addresses the City’s planned response to extraordinary emergency situations associated with natural and human-caused disasters, technological incidents, and national security emergencies in or affecting the City. This plan does not apply to normal day-to-day emergencies, or the established departmental procedures used to cope with such emergencies. Rather, this plan focuses on operational concepts and would be implemented relative to large-scale disasters posing major threats to life, property, and the environment requiring unusual emergency responses.
This plan accomplishes the following:
• Establishes the Emergency Management Organization required to mitigate any significant emergency or disaster affecting the City.
• Identifies the roles and responsibilities required to protect the health and safety of residents, public and private property, and the environmental effects of natural, technological, and human-caused emergencies and disasters.
• Establishes the operational concepts associated with a field response to emergencies, the City Emergency Operations Center (EOC) activities, and the recovery process.
Plan Approval and Implementation
Upon concurrence of the City Council, the plan will be officially adopted and promulgated. The approval date will be included on the title page. The plan will be distributed to those City departments, supporting allied agencies, and community organizations having assigned primary functions or responsibilities within the EOP as necessary.
Plan Modifications
Upon the delegation of authority from the Director of Emergency Services, specific modifications can be made to this plan without the signature of the City Council. This Basic Plan, it’s Annexes, Appendices, and Attachments supersede all previous versions of the City EOP.
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City of Union City’s Commitment to Comprehensive Equity and Climate Resilience Overview
In alignment with FEMA's Equity and Climate Resilience Framework, the City of Union City’s EOP demonstrates a strong commitment to equity and climate resilience, ensuring that all community members are considered and protected during emergencies. The plan integrates comprehensive strategies to address the needs of vulnerable populations and mitigate the impacts of climate-related hazards, reflecting the city's dedication to inclusive and sustainable emergency management. This robust approach ensures that the city is proactive in its efforts to build resilience and equity, creating a safer and more sustainable environment for all its residents.
Equity Approach
1. Inclusive Planning and Implementation: The City of Union City ensures that cultural competence and considerations for Access and Functional Needs (AFN) are integrated into every stage of emergency management, focusing on preventing disproportionate impacts on vulnerable populations.
2. Accessible Housing and Services: The city prioritizes accommodating AFN populations in inclusive, ADAcompliant facilities during emergencies, ensuring access to necessary services and communication aids such as interpreters and assistive technologies.
3. Community Engagement and Accessibility: The development of the EOP involves significant input from diverse community stakeholders and representatives to address the needs of all populations, enhancing overall resilience and inclusiveness.
Climate Resilience Strategy
1. Comprehensive Risk Assessment: the City of Union City conducts thorough risk assessments using historical data, scientific studies, and stakeholder input to identify potential hazards and vulnerabilities, employing tools like FEMA's HAZUS software.
2. Adaptation and Mitigation Strategies: The City implements mitigation strategies such as updating ordinances, retrofitting structures, and educating the public to reduce risks from natural and humancaused hazards.
3. Sustainability and Environmental Protection: the City prioritizes preserving the environment by minimizing the impact of emergencies on natural resources, ensuring that emergency responses do not exacerbate environmental degradation.
The City of Union City’s EOP emphasizes equity and climate resilience by integrating inclusive planning, accessible services, and community engagement with comprehensive risk assessments, adaptation strategies, and environmental protection. These efforts ensure that the city is well-prepared to manage emergencies while protecting its diverse populations and sustaining its environment.
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Plan Concurrence
The following list of signatures documents each City Council Member’s concurrence and receipt of the 2025 City EOP.
Council Member _______________________________________
Date
Council Member _______________________________________
Date
Council Member _______________________________________
Date
Council Member _______________________________________
Date
Council Member _______________________________________
Date
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Record of Changes
Version
Number
Date of
Change
Change Made By Date of
Approval
Change Approved By Description of Change
1 Aug 2025 Howell Consulting Union City OES Full Update 2 3
4 5
6 7
8 9
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Record of Distribution
Recipient Name Recipient Title Recipient Agency Date of Delivery Number of Copies Provided Union City, CA 13
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1. Purpose, Scope, Situation and Assumptions
1.1 Purpose
The purpose of the City EOP is to provide the planning basis for a coordinated response to extraordinary emergency situations associated with natural and human-caused emergencies or disasters within or affecting the City. This plan is the principal guide for the City’s response to, management of, and recovery from real or potential emergencies and disasters occurring within its designated geographic boundaries.
Specifically, this plan is intended to:
• Outline the methods and procedures used by emergency management personnel to assess emergency situations and take appropriate actions to save lives and reduce injuries, prevent, or minimize damage to public and private property, and protect the environment. • Identify the components of an Emergency Management Organization and establish associated protocols required to effectively respond to, manage and recover from major emergencies and disasters.
• Develop a whole community approach to emergency management to facilitate a response that is inclusive of the entire community.
• Identify the organizational framework for the overall management and coordination of emergency operations in the City by implementing the SEMS and the NIMS. • Identify the responsibilities of local, state, and federal agencies in the event of an emergency or disaster affecting the City.
• Define the operational concepts and procedures associated with the EOC interface with the field emergency responders.
• Facilitate mutual aid to supplement local resources.
• Facilitate multi-agency and multi-jurisdictional coordination between local government, the private sector, operational area (OA), state, and federal agencies. • Support the provision for emergency public information, including information on personal protective actions the public can take.
• Serve as an operational plan and reference document, that can be used for pre-emergency planning in addition to emergency operations.
• Use in coordination with applicable local, state, and federal contingency plans.
Allied agencies, special districts, private enterprises, and volunteer organizations that have roles and responsibilities in this plan are encouraged to develop operating protocols and emergency action checklists to support their responsibility to this plan.
1.2 Planning Organization and Format
This plan is divided into several parts that contain general and specific information relating to city emergency management operations. Those parts are as follows:
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• Basic Plan: This part provides the structure and organization of the City’s emergency management structure, identifies roles and responsibilities, describes the concept of emergency operations, and identifies how the City implements SEMS and NIMS, as established by federal and state emergency management entities.
• Functional Annexes: The functional annexes focus on the support, emergency phase, or agencyfocused annexes add information and direction to the overall EOP. These annexes are variations of functional annexes tailored to the EOP format used by the City of Union City. While the basic plan provides broad, overarching information relevant to the EOP as a whole, these annexes focus on specific responsibilities, tasks, and operational considerations that pertain to the performance of a particular emergency operations function.
• Hazard Specific Annexes: Hazard specific annexes identify hazard specific risk areas including evacuation routes, specify provisions and protocols for warning the public and disseminating emergency public information, and specify the types of protective equipment and detection devices for responders.
• Support Documents: The support documents focus on critical operational functions and clearly describes the policies, processes, roles, and responsibilities that agencies and departments carry out before, during, and after any emergency.
Figure 1-1 Plans Relational Structure
1.3 Scope
The policies, procedures and provisions of this plan are applicable to all agencies and individuals, public and private, having responsibilities for emergency preparedness, response, recovery and/or mitigation activities within the City.
The plan applies to any extraordinary situation associated with any hazard, natural, or human-caused, which may affect the City, as well as situations requiring a planned and coordinated response by multiple agencies or jurisdictions.
Incorporating the FEMA Comprehensive Preparedness Guide (CPG) 101: version 3.1, the CalOES EOP Crosswalk - Local Government, the Alameda County EOP, and the California Emergency Plan, this plan is designed to be read, understood and exercised prior to an emergency and establishes the framework for the implementation of the SEMS and NIMS for the City.
Tri-Cities Hazard
Mitigation Plan
City of Union City
Annex
Emergency
Operations Plan
(Basic)
Functional
Annexes Support Annexes Hazard Specific Annexes
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This plan will be used in coordination with the State Emergency Plan and the National Response Framework (NRF).
1.4 Situation Overview
This section describes a number of potential hazards that could affect the City, which would warrant the activation of the emergency management organization. The map provided in Figure 1-2, details the City of Union City.
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Figure 1-2 Base Map of the City of Union City
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1.4.1 Geography and Climate
Union City is a city in the San Francisco Bay Area in Alameda County, California, along the east side of the bay. Union City is approximately 30 miles from San Francisco and 20 miles north of San Jose, and 395 miles north of Los Angeles. Along with Union City, the cities of Fremont and Newark make up the Tri- City Planning Area in Southern Alameda County. To the north and west of Union City, is the larger city of Hayward.
According to the U.S. Census Bureau, the Union City has a total area of 19 square miles, all and with no bay frontage. The City lies adjacent to Baylands that are located within the city of Hayward. Of the 19 square miles, approximately half of the City is undeveloped hillside. The City has a mean elevation of 62 feet above sea level, with portions of the urbanized area at only 20 feet above sea level. The Eden Landing Ecological Reserve lies along to the west of the Union City, along the San Francisco Bay shoreline in the city of Hayward. The Reserve is approximately 6,400 acres of restored salt ponds, adjacent diked marshes, and transitional areas to uplands that are managed for resident and migratory waterbirds, tidal marsh habitats, plant species, migrating waterfowl, as well as shorebirds and mammals. The tidal marsh habitat also acts as a significant nursery habitat for species of anadromous fish such as salmon and steelhead. Dry Creek Pioneer Regional Park is located in Union City and shares a contiguous border with sister park Garin Regional Park, located in Hayward. The parks are a part of the East Bay Regional Park District. The parks feature a Visitor Center, Dry Creek Garden, Meyers Cottage, Nature Study, the Garin Apple Festival, activities for school groups, picnicking, hiking, horseback riding, kite flying, equestrian trails, dog walking areas, and fishing from the Jordan Pond pier. Jordan Pond has naturally reproducing populations of largemouth bass, bluegill, and sunfish.
The climate in Union City is described as Mediterranean, characterized by warm, dry summers and mild winters. According to the National Weather Service (NWS) the City gets approximately 15 inches of rain per year and the number of days per year with any measurable precipitation is 55. On average, there are 265 sunny days per year in Union City, California. There are 0 inches of snowfall per year in Union City. The NWS reports that August has the warmest temperatures of the year with an average high of 79°F.
December and January have the coolest temperatures of the year with an average low of 42°F. Union City experienced a record high of 107°F in June of 1961 and a record low of 21°F in December of 1990.
1.4.2 History
In 1850, entrepreneurs John and William Horner built a settlement in the San Francisco Bay Area. The settlement was named Union City, after the Horner’s’ steamboat, “The Union”. The settlement began to fill out during the Gold Rush, when disappointed gold miners discovered that Union City’s fertile soil was ideal for farming.
In December of 1850, about a half mile east of Union City, Henry Smith bought some land and founded the town of New Haven, named after his hometown of New Haven, CT. Union City merged with the nearby community of New Haven to form the town of Alvarado on the west side, named after the former Mexican governor, Juan Bautista Alvarado. Alvarado is a California Historical Landmark and the site of the first courthouse in Alameda County where county government began on June 6, 1853. The seat of government moved to San Leandro in 1856.
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Further east, the town of Decoto was founded in 1870. It became a railroad hub, with the transcontinental railroad running through it. In 1959, the rural communities of Alvarado, New Haven and Decoto, fearing the future loss of their identity, determined to fend off the encroachment of neighboring Hayward to the north, and Fremont to the south, and decided to unite and incorporate as a new city to be known as Union City. Over the next 50 years, many thriving industries grew around the area, including salt manufacturers, beet sugar factories, and flourmills.
The City, situated within Alameda County, faces a variety of hazards. This plan was developed using an allhazards planning approach and leverages the specific hazard and vulnerability findings that are identified in the Tri-Cities multi-jurisdictional Local Mitigation Plan, City of Union City Annex which include, but are not limited to:
Hazard
Geographic
Extent
Likelihood of
Future
Occurrences
Magnitude/
Severity Significance
Climate Change
Influence
Climate Change Extensive Highly Likely Critical High –
Coastal Flooding and
Sea Level Rise
Limited Highly Likely Limited Med-High High
Dam Failure Sig – Ext. Unlikely Catastrophic High Medium Drought & Water
Shortage
Extensive Likely Limited Medium High
Earthquake Extensive Likely Catastrophic High Low
Flood: 1%/0.2% annual
chance
Significant Occasional Critical High High
Flood:
Localized/Stormwater
Flooding
Extensive Highly Likely Limited Medium Medium
Landslide Limited Likely Limited Medium Medium
Levee Failure Limited Unlikely Limited Low Medium
Severe Weather:
Extreme Cold and
Freeze
Extensive Highly Likely Limited Low Medium
Severe Weather:
Extreme Heat
Extensive Highly Likely Limited Medium High
Severe Weather:
Heavy Rain and Storms
Extensive Highly Likely Limited Medium Medium
Severe Weather: High
Winds and Tornadoes
Extensive Highly Likely Negligible Low Medium
Subsidence Limited Likely Negligible Low Medium
Tsunami Limited Unlikely Limited Low Low
Wildfire Limited Highly Likely Critical Medium Medium
Source: Tri-City LHMP City of Union City Annex
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1.4.3 Capability Assessment
A capability assessment provides part of the foundation for determining the type of emergency management, preparedness, and mitigation strategy. The assessment process also identifies gaps, or weaknesses, that may need to be addressed through preparedness planning goals and actions deemed practical considering the jurisdiction’s capabilities to implement them. Finally, the capability assessment highlights the positive measures that are in place or underway for continued support and enhancement of the jurisdiction’s preparedness and response efforts.
As an established organization, the Emergency Management Organization has the capabilities to perform the necessary emergency response duties outlined in this EOP.
The City has completed the following to increase capabilities:
• The City has identified a secondary EOC.
• Incorporated EOC Position Specific training.
• Participates in training and Exercises in the Region
• Serves as an Operational Area partner.
In light of the City’s susceptibility and vulnerability to disasters, continuing emphasis will be placed on emergency planning, training of full-time personnel, public awareness and education, and assuring the adequacy and availability of sufficient resources to cope with such emergencies.
As part of the planning and threat mitigation process, the city is involved in ongoing public education programs which focus on the need of individuals to be knowledgeable about the nature of disasters, necessary preparations, and proper responses to those disasters.
1.4.4 Mitigation Overview
The City has taken a number of mitigation measures for each identified hazard to minimize the impact that is likely to result from an emergency. The approved Tri-Cities Multi-Jurisdictional Local Hazard Mitigation Plan identifies inclusive mitigation efforts to reduce the occurrence and impact of identified hazards in the city. As the cost of damage from all hazards continues to increase nationwide, the city recognizes the importance of identifying effective ways to reduce their vulnerability to disastrous events.
For detailed information on the City’s mitigation strategies, please refer to Tri-Cities Multi-Jurisdictional Local Hazard Mitigation Plan, City of Union City Annex found on the City of Union City webpage.
1.5 Planning Assumptions
The following are assumptions used during the development of this plan. These assumptions translate into basic principles for conducting emergency management operations in preparation for, response to and recovery from major emergencies.
• Emergencies or disasters may occur at any time, day, or night, in populated and remote areas of the City.
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• Major emergencies and disasters will require a multi-agency, multi-jurisdictional response. Therefore, it is essential that NIMS, SEMS, and the Incident Command System (ICS) are implemented immediately by responding agencies and expanded as the situation dictates. • Large-scale emergencies and disasters may overburden local resources and require the need for mutual aid from neighboring jurisdictions.
• Large-scale emergencies and disasters and the complex organizational structure required to respond to them pose significant challenges in terms of warning and notification, logistics, and agency coordination.
• The City is primarily responsible for emergency actions within city boundaries and will commit all available resources to save lives, minimize injury to people, protect the environment and minimize property damage.
• Major emergencies and disasters may generate widespread media and public interest; information provided to the public needs to be accurate and timely. Additionally, the media must be considered an ally in largescale emergencies and disasters; it can provide considerable assistance in emergency public information and warning.
• Large-scale emergencies and disasters may pose serious long-term threats to public health, property, the environment, and the local economy. While responding to significant disasters and emergencies, all strategic decisions must consider each of these threats. • Disasters and emergencies may require an extended commitment of personnel and other resources from involved agencies and jurisdictions.
• The Emergency Management Organization is familiar with this plan, supporting documentation, and NIMS, SEMS, and ICS.
It is the City’s intent to fulfill the policies described here, within the capabilities and resources available at the time of an emergency or disaster.
This plan uses the whole community concept where residents, emergency management representatives, organizational and community leaders, and government officials can understand and assess the needs of their respective communities and determine the best ways to organize and strengthen their resources, capabilities, and interest. Engaging in the whole community emergency management planning process, builds a more effective path to societal security and resilience. This plan supports the following whole community principles:
• Understand and meet the needs of the entire community, including people with disabilities and those with other access and functional needs.
• Engage and empower all parts of the community to assist in all phases of the disaster cycle. • Strengthen what works well in communities on a daily basis.
In keeping with the whole community approach, this plan was developed with representation from city departments and various other stakeholders. The effectiveness of the emergency response is largely based on the preparedness and resiliency of the community.
Community Resiliency Consists of Three Key Factors:
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1. The ability of first responder agencies (e.g., fire, law etc.) to divert from their day-to-day operations to the emergency disaster effectively and efficiently.
2. The strength of the emergency management system and organization with the region, to include EOCs, mass notification systems and communication systems.
3. The preparedness of the region’s citizens, businesses, and community organizations.
By focusing on enhancing all three of these components, the City is improving not only the City’s resiliency to emergency disasters, but also the regions.
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2. Concept of Operations
2.1 Response
During a major emergency response, the City will work in coordination with numerous governmental, nongovernmental, and private organizations. To enable a multi-faceted operation, the City follows a specific response structure that designates the way local, county, and state-level entities coordinate and communicate during emergency response operations.
This Concept of Operations provides guidance to City decision makers and plan users regarding the sequence and scope of actions to be taken during a citywide emergency response. The response phase concept of operations the City practices can be summarized in six key elements
1. Goals, priorities, and strategies.
2. Plan activation.
3. Proclaiming an emergency.
4. Presidential declarations.
5. Emergency management response levels.
6. Sequence of events during disasters.
2.1.1 Goals, Priorities, and Strategies
Operational Goals: During the response phase, the agencies charged with responsibilities in this plan should focus on the following five goals:
• Mitigate Hazards.
• Meet basic human needs.
• Address needs of People with Access and Functional Needs. • Restore essential services.
• Support community and economic recovery.
Operational Priorities: Operational priorities govern resource allocation and the response strategies for the City and its political subdivisions during an emergency. Below are operational priorities addressed in this plan:
• Save Lives – The preservation of life is the top priority and takes precedence over all other considerations.
• Protect Health and Safety – Measures should be taken to mitigate the impact of the emergency on public health and safety.
• Protect Property – All feasible efforts must be made to protect public and private property and resources, including critical infrastructure, from damage during and after an emergency. • Preserve the Environment – All possible efforts must be made to preserve the environment and protect it from damage during an emergency.
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Operational Strategies: To meet the operational goals, emergency responders should consider the following strategies:
• Mitigate hazards –As soon as practical during the disaster response; suppress, reduce, or eliminate hazards/risks to people, property, and the environment to lessen their actual or potential effects/consequences.
• Meet basic human needs –All possible efforts must be made to supply resources to meet basic human needs, including food, water, accessible shelter, medical treatment, and security during an emergency.
• Address needs of individuals with disabilities or access and functional needs –People with AFN are more vulnerable to harm during and after an emergency. The needs of these individuals must be considered and addressed.
• Restore essential services –Power, water, sanitation, accessible transportation, and other essential services must be restored as quickly as possible to assist communities in returning to normal daily activities.
• Support Community and Economic Recovery –All members of the community must collaborate to ensure recovery operations are conducted efficiently, effectively, and equitably. Promoting expeditious recovery of the affected areas.
2.1.2 Plan Activation
The City EOP may be activated by the Director of Emergency Services (City Manager) or designated alternates under any of the following circumstances:
• By order of the Director of Emergency Services (City Manager) as designated by the City Municipal Code Chapter 2.28 Emergency Organization or as needed on the authority of the City Manager or designee based on incident complexity.
• Upon proclamation by the Governor that a State of Emergency exists. • Automatically on the proclamation of a State of War Emergency. • Upon declaration by the President, of the existence of a National Emergency. • Automatically, on receipt of an attack warning or actual attack on the United States, or upon occurrence of a catastrophic disaster that requires immediate government response.
2.1.3 Proclaiming an Emergency
The California Emergency Services Act (ESA) provides for three types of emergency proclamations in California: (1) Local Emergency, (2) State of Emergency, (3) State of War Emergency.
Emergency proclamations expand the emergency powers and authorities of the State and its political subdivisions. They also provide a mechanism for unaffected jurisdictions to provide resources and assistance to affected jurisdictions. Although emergency proclamations facilitate the flow of resources and support to the affected jurisdiction and local government, they are not a prerequisite to providing mutual aid and assistance under existing agreements or requesting assistance from agencies such as the American Red Cross (ARC), the Alameda County, or the State of California.
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Local Emergency Proclamations
In the case of the existence or likely existence of an emergency that threatens the people, property, or environment of the City; and the condition is beyond the capability of the City to control effectively; the Director of Emergency Services (City Manager) can proclaim a Local Emergency.
A Local Emergency may be proclaimed to exist due to a specific situation, such as flood, fire, storm, pandemic, drought, sudden and severe energy shortage, or other conditions. If assistance is requested through the California Disaster Assistance Act (CDAA), a Local Emergency may be recommended by the City Manager as specified by the Municipal Code Chapter 2.28 Emergency Organization and issued within 10 days after the actual occurrence of a disaster. A Local Emergency proclamation must be ratified by the City Council within 7 days.
The governing body must review the need to continue the proclamation at least every 60 days until the Local Emergency is terminated. The Local Emergency must be terminated by resolution as soon as conditions warrant. The Proclamation of a Local Emergency provides the governing body with legal authority to:
• Request the Governor proclaims a State of Emergency, if necessary. • Promulgate or suspend orders and regulations necessary to provide for the protection of life and property, including issuing orders or regulations imposing a curfew within designated boundaries. • Exercise full power to provide mutual aid to any affected area in accordance with local ordinances, resolutions, emergency plans, or agreements.
• Request state agencies and other jurisdictions to provide mutual aid. • Require the emergency services of any local official or employee. • Requisition of necessary personnel and materials from any local department or agency. • Obtain vital supplies and equipment; and, if required, immediately commandeer the same for public use.
• Impose penalties for violation of lawful order.
• Conduct emergency operations without incurring legal liability for performance, or failure of performance (Article 17 of the Emergency Services Act provides for certain privileges and immunities).
When the City proclaims a Local Emergency, it will notify the County Office of Emergency Services (OES) Proclamation of a State Emergency:
The Governor proclaims a State of Emergency based on the formal request from the City Council and the recommendation of the California Office of Emergency Services. If conditions and time warrant, the Governor drafts and signs a formal State of Emergency Proclamation. The Governor has expanded emergency powers during a proclaimed State of Emergency. The Governor:
• Has the right to exercise police power as deemed necessary, vested in the State Constitution and the laws of California within the designated area.
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• Is vested with the power to use and commandeer public and private property and personnel, to ensure all resources within California are available and dedicated to the emergency when requested. • Can direct all state agencies to utilize and employ personnel, equipment, and facilities for the performance of any and all activities designed to prevent or alleviate the actual and threatened damage due to the emergency. Can also direct them to provide supplemental services and equipment to political subdivisions to restore any service to provide for the health and safety of the residents of the affected area.
• May make, amend, or rescind orders and regulations during an emergency and temporarily suspend any non-safety-related statues, ordinances, regulations, or rules that impose restrictions on emergency response activities.
Proclamation of a State of War Emergency
In addition to a State of Emergency, the Governor can proclaim a State of War Emergency whenever California or the nation is attacked by an enemy of the United States, or upon receiving a warning from the federal government indicating that such an enemy attack is probable or imminent. The powers of the Governor granted under a State of War Emergency are commensurate with those granted under a State of Emergency.
2.1.4 Presidential Declarations
When it is clear that State capabilities will be exceeded, the Governor can request federal assistance, including assistance under the Robert T. Stafford Disaster Relief and Emergency Assistance Act (Stafford Act). The Stafford Act authorizes the President to provide financial and other assistance to state and local government, certain private nonprofit organizations, and individuals to support response, recovery, and mitigation efforts following Presidential Emergency or Major Disaster declarations.
Declaration of Emergency or Major Disaster: The President of the United States can declare an Emergency or Major Disaster under the Stafford Act (41 USC §5121 et seq.). This also allows the president to provide federal government resources to support the States’ response and recovery activities. While Presidential Declarations under the Stafford Act release federal resources and funding to support response and recovery, federal agencies may also provide assistance under other authorities or agreements that do not require a Presidential Declaration.
2.1.5 Emergency Management Response Levels
The City EOP will be activated when an emergency occurs or threatens to exceed normal day to day capabilities to adequately respond to and mitigate an incident(s). The scope of an emergency, rather than the type, will largely determine whether the EOP and EOC will be activated, and to what level.
For planning purpose, Cal OES has established three EOC activation “levels” which the City follows. Table 2-1 defines those levels:
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Table 2-1 EOC Activation Levels
Activation
Level Detail Eventor Situation
Minimum
Staffing
Three
(Low)
Level Three is a minimum
activation. This level may
be used for situations
which initially only require
a few people
Events with potential
impacts on the health &
safety of the public
and/or environment
Weather Alerts
Incident involving 2+ City
departments
Low risk planned event
Wind or rainstorm
Power outage and Stage 1
& 2 emergencies
EOC Director
Other Designees (Such as
Section Coordinators,)
Two
(Medium)
Level Two activation is
normally achieved as an
increase from Level Three
or a decrease from Level
One. This activation level
is used for emergencies or
planned events that
would require more than
a minimum staff but
would not call for a full
activation/staffing
Two or more large
incidents involving 2 or
more departments
Major wind or rain
Major scheduled event
Large scale power outage
and Stage 3 power
emergencies
Hazardous Material
Incident involving large
scale or possible largescale evacuations
EOC Director
Section Coordinators
Branches & Units as
appropriate
Liaison/Agency
Representatives as
appropriate
Public Information Officer
One
(High)
Level One activation
involves a complete & full
activation of all
organizational elements &
staffing. Level One would
be the initial activation for
any major emergency
requiring acute State
help.
Major County/City or
Regional emergency,
multiple departments
with heavy resource
involvement
All EOC as appropriate
Source: Cal OES
2.1.6 Sequence of Events During Disasters
Two sequences of events are typically associated with disasters: one involves the response and the other involves emergency proclamations. The response sequence generally describes the emergency response activities to save lives, protect property and preserve the environment. This sequence describes deployment of response teams, activation of emergency management organizations and coordination among the various levels of government. The emergency proclamation sequence outlines the steps to gain expanded emergency authorities needed to mitigate the problem. It also summarizes the steps for requesting state and federal disaster assistance.
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1. Before Impact
Before an emergency ever occurs, the City is committed to conducting preparedness activities that include developing plans, training personnel, conducting emergency exercises, educating the public, and arranging to have necessary resources available.
To remain ready to respond, the City will keep their emergency communications systems, warning systems and the EOC ready at all times.
Routine Monitoring for Alerts, Watches and Warnings
Emergency officials constantly monitor events and the environment to identify specific threats that may affect their jurisdiction and increase awareness level of emergency personnel and the community when a threat is approaching or imminent.
Increased Readiness
Sufficient warning provides the opportunity for response agencies to increase readiness, which are actions designed to increase an agency’s ability to effectively respond once an emergency occurs. This includes, but is not limited to:
• Briefing government officials.
• Reviewing plans and procedures.
• Preparing and disseminating information to the community. • Updating resource lists.
• Testing systems such as warning and communications systems. • Activating EOC(s), even if precautionary.
Pre-Impact
When a disaster is foreseen as highly likely, action is taken to save lives, protect property and the environment. During this phase, warning systems are activated, resources are mobilized, and evacuation begins.
Proclaiming and Emergency
In the case of the existence or threatened existence of an emergency that threatens the people, property, or environment of the City, and the condition is beyond the capability of the City to control effectively, the City Council, or the City Manager if the Council is not in session, can proclaim a local emergency.
2. Immediate Impact
During this phase, emphasis is placed on control of the situation, savings lives and minimizing the effect of the disaster. Below is a list of actions to be taken:
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Alert and Notification
Local response agencies are alerted about an incident by the public through 911, another response agency, or other method. First responders are then notified of the incident. Upon an alert, response agencies notify response personnel.
Resource Mobilization
Response agencies activate personnel and mobilize to support the incident response. As the event escalates and expands, additional resources are activated and mobilized to support the response.
Activation and mobilization continue for the duration of the emergency, as additional resources are needed to support the response. This includes resources within the City, or, when resources are exhausted, from surrounding unaffected jurisdictions and/or the County.
Incident Response
Immediate response is accomplished within the City by local responders. First responders arrive at the incident and function within their established field level plans and procedures. The responding agencies will manage all incidents in accordance with the ICS organizational structures, doctrine, and procedures.
Establishing Incident Command
Incident Command is established to direct, order, and/or control resources by virtue of some explicit legal agency or delegated authority at the field level. Initial actions are coordinated through the on-scene IC.
The IC develops an initial Incident Action Plan (IAP), which sets priorities for the incident, assigns resources, and includes a common communications plan. If multiple jurisdictions or agencies are involved, the first responders will establish a Unified Incident Command Post (ICP) to facilitate multijurisdictional and multiagency policy decisions. The IC may implement an Area Command to oversee multiple incidents that are handled by separate ICS organizations or to oversee the management of a large or evolving incident that multiple incident management teams engaged.
Activation of the Multiagency Coordination System
Responding agencies will coordinate and support emergency management and incident response objectives through the development and use of integrated Multiagency Coordination Systems (MACS) and Multiagency Coordination System Groups (MAC Groups). This includes developing and maintaining connectivity capability between the ICP, Local 911 Centers, Local EOC, Regional EOC (REOC), the State EOC, the Federal EOC, and NRF organizational elements.
Local EOC Activation
Local jurisdictions activate their local EOC based on the magnitude or need for more coordinated management of the emergency. When activated, local EOCs help form a common operating picture of the incident by collecting, analyzing, and disseminating emergency information. The local EOC can also improve the effectiveness of the response by reducing the amount of external coordination of resources Union City, CA 30
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by the IC by providing a single point of contact to support multiagency coordination. When activated the local EOC notifies the OA that the local EOC has been activated.
Communications between field and the EOC
When a jurisdiction’s EOC is activated, communications and coordination are established between the IC and the Department Operations Center(s) (DOC) to the EOC, or between the IC and the EOC.
OA EOC Activation
If one or more local EOCs are activated, or if the event requires resources outside the affected jurisdiction, the OA EOC activates. The OA EOC also activates if a Local Emergency is proclaimed by the affected local government. The OA EOC then coordinates resource requests from the affected jurisdiction to an unaffected jurisdiction, or if resources are not available within the OA, forwards the resource request to the Regional EOC and mutual aid coordinators.
Regional EOC Activation
Whenever an OA EOC is activated the Cal OES Regional Administrator will activate the REOC within the affected region and notifies the Cal OES Headquarters. The REOC will then coordinate resource requests from the affected OA to unaffected OAs within the affected region, or, if resources are not available within the affected region, resource requests are forwarded to the State Operations Center (SOC) for coordination.
State Level Field Teams
The State may deploy Field Teams (Emergency Services Regional Staff) to provide situation reports on the disaster to the REOC in coordination with the responsible Unified Command.
State Operations Center Activation
The State Operations Center is activated when the Regional EOC activates to:
• Continuously monitor the situation and provide situation reports to brief state officials as appropriate.
• Process resource request between the affected regions, unaffected regions, and state agency DOC. • Process requests for deferral assistance and coordinate with Federal Incident Management Assistance Teams when established.
• Coordinate interstate resource request as part of the Emergency Management Assistance Compact (EMAC) or Interstate Disaster and Civil Defense Compact. • The SOC may also be activated independently of a Regional EOC to continuously monitor emergency conditions.
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Joint Information Center Activation
Where multiple agencies are providing public information, the lead agencies will work together to analyze the information available and provide a consistent message to the public and the media. Where practical, the agencies will activate a Joint Information Center (JIC) to facilitate the dissemination of consistent information.
State DOC Activation
Each state agency may activate a DOC to manage information and resources assigned to the incident. If a DOC is activated, an agency representative or liaison may deploy to facilitate information flow between the two facilities.
FEMA Regional Response Coordination Center Activation
The FEMA Regional Response Coordination Center may deploy a liaison or Incident Management Assistance Team to the SOC to monitor the situation and provide situational awareness to federal officials.
3. Sustained Operations
As the emergency continues, further emergency assistance is provided to individuals impacted by the disaster and efforts are made to reduce the likelihood of secondary damage. If the situation demands, mutual aid is provided, as well as activities such as search and rescue, shelter and care, and identification of victims.
4. Transition to Recovery
As the initial and sustained operational priorities are met, emergency management officials consider the recovery phase needs. Short-term recovery activities include returning vital life-support systems to minimum operating standards. Long-term activity is designed to return to normal activities. Recovery planning should include reviews of ways to avert or mitigate future emergencies. During the recovery phase, damage is assessed, local assistance centers and disaster recovery centers are opened, and hazard mitigation surveys are performed.
Local Assistance Center (LAC)
LACs are opened by local governments to assist communities by providing a centralized location for services and resource referrals for unmet needs following a disaster or significant emergency. The LAC is staffed and supported by local, state, and federal agencies, as warranted, as well as nonprofit and voluntary organizations. The LAC provides a venue at which individuals, families, and businesses can access available disaster assistance programs and services. The LACs need to be physically accessible, and information needs to be provided in accessible formats for all community members. If federal resources are authorized, a state-federal Disaster Recovery Center (DRC) may be co-located with the LACs.
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Joint Field Office (JFO)
The state coordinates with FEMA as necessary to activate a JFO to coordinate federal support for the emergency. The state will appoint a State Coordinating Officer (SCO) to serve as the state point of contact.
A Federal Coordinating Officer (FCO) is appointed upon a Presidential Declaration of an Emergency or Major Disaster.
Demobilization
As resources are no longer needed to support the response, or the response activities cease, resources are demobilized. Demobilization includes provisions to address and validate the safe return of resources to their original location and includes processes for resource tracking and ensuring applicable reimbursement.
Where applicable, demobilization should include compliance with mutual aid and assistance provisions.
The sequence of activities occurring for the emergency response and proclamation process is illustrated in Figure 2-1.
Figure 2-1 Response Phase Sequence of Event
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2.2 Recovery
In the aftermath of a disaster, many citizens will have specific needs that must be met before they can pick up the thread of their pre-disaster lives. Typically, there will be a need for such services as:
1. Assessment of the extent and severity of damages to public and private property.
2. Restoration of services generally available in communities - water, food, medical assistance, utilities, and lifelines.
3. Repair of damaged homes, buildings, and infrastructure.
4. Professional counseling due to mental anguish and inability to cope.
Local governments can help individuals and families recover by ensuring that these services are available and by seeking additional resources if the community needs them. Recovery occurs in two phases: shortterm and long-term.
2.2.1 Short-Term Recovery
Short-term recovery operations begin during the response phase of the emergency. Although referred to as “short-term” recovery, these activities may last for weeks. Short-term recovery includes actions required to:
• Stabilize the situation.
• Restore services (electricity, water, and sanitary systems). • Implement critical infrastructure recovery plans to maintain operations during emergencies and the recovery phase.
• Commence the planning for the restoration of the community, including economic functions. • Address debris that poses a threat to public health and safety.
For federally declared disasters, Disaster Assistance Centers may be established by FEMA to assist disaster victims and businesses in applying for grants, loans, and other benefits. In coordination with the ARC, the City may provide sheltering for disaster victims until housing can be arranged.
2.2.2 Long-Term Recovery
Long-term recovery continues the short-term recovery actions focusing on community restoration. Longterm recovery may continue for several months or years depending on the severity and extent of the damage sustained. These activities include those necessary to restore a community to a state of normalcy, given the inevitable changes that result from a major disaster. Long-term recovery activities require significant planning to maximize opportunities and mitigate risks after a major incident and may include the following:
• Reconstruction of facilities and infrastructure including the technology systems and services necessary for restoration of all operations functions.
• Community planning including the development of long-term housing plans. • Implementation of waivers, zoning changes, and other land-use legislation to promote recovery.
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• Assistance to displaced families, which may include financial support as well as social and health services.
• Restoration of the local economic system.
• Integration of mitigation strategies into recovery efforts. • Documentation of eligible disaster-related costs for reimbursement through state and federal grant programs.
2.3 Continuity
2.3.1 Continuity of Operations and Government
A critical component of the City emergency management strategy involves ensuring that government operations will continue during and after a major emergency or disaster. The ability to maintain essential government functions, including the continuity of lawfully constituted authority, is a responsibility that must be provided for to the greatest extent possible. A major disaster could result in great loss of life and property, including the death or injury of key government officials, the partial or complete destruction of established seats of government and/or the destruction of public and private records essential to continue operations of government and industry.
In the aftermath of a major disaster, during the reconstruction period, law and order must be preserved and, so far as possible, government services must be maintained. To this end, it is essential that local government units continue to function. The following portions of the California Government Code and the State Constitution provide authority for the continuity and preservation of State and local government:
• Continuity of Government (COG) in California (Article IV, Section 21 of the State Constitution). • Preservation of Local Government (Article 15 of the ESA). • Temporary Seat of State Government (Section 450, Title 1, Division 3, Chapter 1 of the Government Code).
Key authorities include Sections 8635 through 8643 of the Government Code:
• Furnishing a means by which the continued functioning of political subdivisions can be assured by providing for the preservation and continuation of (City and County) government in the event of an enemy attack, or in the event a State of Emergency or Local Emergency is a matter of statewide concern.
• Authorize political subdivisions are to provide for the succession of officers (department heads) having duties related to law and order and/or health and safety. • Authorize governing bodies are to designate and appoint three standby officers for each member of a governing body and for the Chief Executive, if not a member of the governing body. Standby officers may be residents or officers of a political subdivision, other than those to which they are appointed.
Standby officers take the same oath as regular officers and are designated numbers 1, 2 and 3. • Authorize standby officers are to report ready for duty in the event of a State of War Emergency, State of Emergency or Local Emergency at the place previously designated.
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• Authorize local governing bodies are to convene as soon as possible when a State of War Emergency, State of Emergency or Local Emergency exists, and at a place not within the political subdivision.
City Council
To provide for the continuation of the Council during an emergency, the Council may appoint standby members or make necessary appointments, at the time of the emergency, for an official quorum. The Council may choose to meet virtually as allowed under AB 557 (Hart, 2023).
City Officials
Depending on the extent of the emergency, the normal City organization may be partially or entirely replaced by an emergency organization, and City officials may or may not be fully occupied with their emergency roles.
Alternate Facilities
The City has identified alternate facilities to coordinate emergency response. Those facilities are identified below:
City Council Chambers
If the City Council chambers in the City Hall Building is unusable, then the interim seat of government shall be located at:
First Alternate: Union City Ruggieri Senior Center, 33997 Alvarado-Niles Road, Union City, 94587 Second Alternate: Kennedy Youth Center, 1333 Decoto Road, Union City, CA 94587 Emergency Operations Center (EOC)
The EOC is equipped with emergency power generators, radios, telephones, and maps and can be staffed 24 hours per day.
Primary EOC: Union City Ruggieri Senior Center, 33997 Alvarado-Niles Road, Union City, CA 94587 Secondary EOC: CERT Building, ACFD Fire Starion #31, 33555 Central Avenue, Union City CA, 94587 Succession
The City Code requires that the order of succession for the position of the Director of Emergency Services be as follows:
1. City Manager/Director of Emergency Services.
2. Assistant Director of Emergency Services or designee.
3. OES Manager.
4. Police Chief.
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2. Organization and Assignment of Responsibilities
2.1 Use of Standardized Emergency Management System, National Incident Management System, and Incident Command System
For the City, this basic plan establishes the operational organization that is relied on to respond to an emergency. The City uses the SEMS, The NIMS, and the ICS, to be consistent with the NRF concepts and to be coordinated with other jurisdictional partners within the Alameda County.
The following sections list out the City’s organization structure as well as departmental roles and responsibilities during an EOC activation.
2.2 Role of Elected Officials
All disasters are locally driven events, and it is the local official’s role to provide leadership and policy guidance to their jurisdiction before, during, and after a disaster. It is important for local elected officials to engage in preparedness efforts, which are ongoing and involve activities undertaken to prepare for disasters and emergencies, as well as to facilitate future response and recovery efforts. The following section details some of the local official’s roles and responsibilities during and following a disaster.
Elected Officials Role During an Emergency Disaster
The primary role of an elected official during a disaster is that of support. As the disaster is occurring and the immediate response is underway, elected officials best serve citizens by empowering and allowing first responders and EOC staff the freedom to manage the incident as they have been trained to do. Elected officials should allow them time to stabilize the situation before attempting to step in as a decision maker.
Elected officials’ role as decision maker will come, but the primary goal of addressing a disaster as it is happening is to stabilize the situation quickly and efficiently – first responders and City EOC staff will do this. To help with this goal, an elected official’s role consists of:
• Support and work with emergency management officials, as needed. This may include facilitating communication with and obtaining assistance from other agencies, proclaiming a local state of emergency, and issuing emergency orders such as imposing curfews etc. • Communicate quickly, clearly, and effectively to constituents and work with partners to ensure a coordinated message.
• Get accurate information out early and often, and ensure all messaging is accessible. • Maintain situational awareness regarding the disaster by staying informed. • Provide input for response-related activities, when appropriate. • Trust and empower emergency management staff to make the right decisions. • Serve citizens by allowing First Responders and EOC staff to manage the incident as they are trained to do. The active participation of Elected Officials in planning/training before a disaster and leadership during the recovery period is where they will have the greatest impact and be of most value.
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• Use an EOC Liaison to help stay informed during the incident.
Elected Officials Role Following an Emergency Disaster
The primary role of an elected official after a disaster is that of leadership. Once the first responders and EOC staff have stabilized the situation, elected officials become crucial to the recovery process. A community is built on law and order, and this stems from City Code, Zoning Regulations, Building Code, Police Enforcement, and much more. Just because a disaster occurs does not mean these regulations are null and void. On the contrary, they are crucial to make sure the community is built back right. For a city to truly recover, diligent and firm adherence to the City’s Codes and Regulations must be adhered to. To help in accomplishing this goal, elected officials can:
• Understand the disaster assistance programs available and application process for State and the Federal Disaster Declarations.
• Support the community throughout the recovery – it can be a long process and may take multiple years.
• Help identify opportunities to rebuild and mitigate future damage through planning and smart infrastructure investments.
• Ask questions – the recovery process and programs can be complex. • Ensure all Codes and Regulations are enforced during the recovery process.
3.3 Role of City Departments
In the event of an EOC activation, each city department is responsible to support emergency response and recovery objectives and taking the lead regarding the emergency function to which they have been assigned. The departments also provide representatives to the EOC to coordinate people, resources, and information to manage an incident that occurs in the City, and to communicate emergency efforts between departments and/or jurisdictions.
Designated department representatives are trained in emergency management and response operations.
In addition, these representatives have assigned successors to support EOC staff in the event of extended operations. The sections below outline the designated responsibilities for each of the City departments.
Details of department staff roles and responsibilities in the EOC are defined in the EOC position job aids included in part two of this plan.
3.3.1 City Manager’s Office
The executive staff members of the City Manager’s Office are responsible for policy level decisions related to the management of the incident. The office will provide representatives to assist in the EOC, and provide liaison assistance to the operational area, if activated. The City Manager, or designee, will serve as the EOC Manager/Director overseeing the direction and policy guidance of all EOC operations. Policy level decisions are related to formation of policies/procedures, authorization of expenditures, support of local emergency management operations with additional staff, resources, etc., as well as other operations as appropriate.
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PIO to support the collection, verification, and dissemination of emergency related information to the public and the media.
3.3.2 Community & Recreation Services
Community & Recreation Services is responsible for supporting mass care operations, including the implementation of shelter operations in the City. Mass care and shelter operations include the mobilization and deployment of department personnel and resources (in coordination with the operational area) and receiving and registering volunteer resources during emergencies. Community & Recreation Services will provide staff to manage the shelter facilities and may request additional assistance from the ARC, if necessary. Community & Recreation Services personnel are also responsible for reporting damage assessment information related to park facilities, working within their departmental reporting structure.
Community & Recreation Services will appoint department representatives to the City EOC to assist in the coordination of department operations. In addition, the department also serves in a primary role for the provision of services for people with AFN during an emergency.
3.3.3 Economic and Community Development Department
The Economic Community Development is responsible for providing support on public infrastructure evaluation/damage assessment, providing Geographic Informational Services (GIS) support upon request, identifying possible shelter locations (ensuring the structural safety of the buildings), providing staff to the EOC, providing animal care services to sheltering/evacuation, and administering evaluations and permits in the recovery process. Department representatives lead the Planning Section and may serve in a variety of EOC sections and branches, depending on the needs of the incident. Economic Community Development also establishes the Recovery Coordination Group following the response phase of a disaster event as the City moves into the recovery phase and supports redevelopment and recovery strategies for the City using current economic development strategies.
3.3.4 Financial Services Department
Financial Services is responsible for overseeing all expenditures related to emergency management and response operations, including tracking and documentation necessary for recovery reimbursement purposes including personnel time tracking during emergency operations. Financial Services will provide department representatives to staff the Finance Section in the EOC. Department representatives will utilize established procedures and protocols for expense tracking and documentation but may also develop additional procedures as necessary to fit the needs of emergency operations. Financial Services will also provide staffing to the Procurement Unit in the Logistics Section in the EOC utilizing established procedures and protocols for purchasing but may develop procedures as necessary to support emergency operations.
3.3.5 Fire Department
The Fire Department (Alameda County Fire Department) is responsible for the management of fire operations within the City during emergency response efforts. This includes the immediate first responder effort to manage any fires, as well as the management of a safe scene, recognition of potential hazardous materials, public safety on scene, and many other responsibilities. The Fire Department will coordinate all Union City, CA 39
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response efforts and serve as the main coordination point when requesting fire response or emergency medical service (EMS) assistance from neighboring jurisdictions.
Fire services also include the provision of EMS, providing life-saving medical care. Fire EMS personnel will work in coordination with private EMS providers to meet the needs of the incident in the event that Fire EMS is overwhelmed. A Fire Department representative will be appointed to serve in the Fire Branch of the Operations Section in the EOC.
3.3.6 Human Resources Department
The City Human Resources Department is responsible for managing all efforts associated with city personnel and volunteers. As emergency resources, city personnel and volunteers may be assigned to positions in the EOC or in the field to support city emergency management and response operations.
Department representatives will staff the Personnel Branch of the EOC, addressing issues such as workers compensation, disaster service worker (DSW) agreements, volunteer management, and other various tasks as determined appropriate. In addition, the risk management personnel within Human Resources are responsible for providing a representative to staff the Safety Officer position within the EOC.
3.3.7 Information Technology Services Department
The Information Technology (IT) Department is responsible for ensuring the operation of the City’s critical IT infrastructure during an emergency and providing technical support to the EOC when activated. IT will staff the Communications Unit in the EOC, and will provide support to GIS, mapping, and any other technical resources. IT will provide representatives to the EOC when activated.
3.3.8 Police Department
The Police Department is responsible for law enforcement operations and terrorism prevention within the City. Police officers will respond to the immediate threats and dangers associated with any emergencies in the City. The Police Department will support emergency operations including, but not limited to prevention of threats, protection of population, evacuation, and damage assessment. A Police Department representative will be appointed to serve in the Law Branch of the Operations Section in the EOC.
3.3.9 Public Works Department
The Public Works Department serves in a variety of roles to support emergency management and response operations. Responsibilities for Public Works include, but are not limited to, damage assessment, critical infrastructure restoration, support for debris management, transportation, evacuation, and general logistics operations. Public Works is also responsible for providing flood gate management services for designated areas within the City. Department representatives will be appointed to the EOC to serve in both the Operations and Logistics Sections. In addition, Public Works will assist emergency operations by deploying personnel into the incident area to assess damage and begin emergency restoration efforts.
These operations will be coordinated through their DOC, which will communicate and coordinate with the EOC.
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3.3.10 Emergency Operations Center, Department Operations Center and Responder Personnel
While this EOP is focused on the City’s organizational response, all city employees with responsibilities for emergency functions would greatly benefit from having a personal and family preparedness plan. Any city employee with responsibility to report to the EOC, a DOC, or to field response operations should have a personal and family preparedness plan in place. Personal and family preparedness planning supports city employees in ensuring the safety of their loved ones, and in turn supports the employees with being available to respond to their city emergency management responsibilities. Finally, the following sections list out the roles and responsibilities of the private sector.
3.4 Role of the Private Sector
3.4.1 Contracted City Services
In the event of an EOC activation, each contract city service partner is responsible for supporting emergency response and recovery objectives and taking the lead regarding the emergency function to which they have been assigned. At a minimum contract city service partners will either provide a representative to the City EOC or provide a contact number for their Business Operations Center to coordinate people, resources, and information in order to manage an incident that occurs in the City, and to communicate emergency efforts between their organization and the City.
3.4.2 Residents
The resident of the City are primary beneficiaries of the City’s emergency management system. At the same time, residents play an important role in emergency management by ensuring that they and their families are prepared for disasters. Before an emergency, residents can assist the emergency management effort by taking first aid training, maintaining supplies, and being prepared to evacuate or shelter-in-place for several days.
Many residents join disaster volunteers’ programs such as Community Emergency Response Teams and remain ready to volunteer or support emergency response and recovery efforts. During an emergency, residents should monitor emergency communications and carefully follow direction from authorities. By being prepared, residents can better serve their family, their community, and reduce demands on first responders.
3.4.3 Population with Access and Functional Needs
Populations with AFN include those members of the community that may have additional needs before, during and after an incident in functional areas, including but not limited to maintaining independence, communication, transportation, supervision, and medical care. Individuals in need of additional response assistance may include those who:
• Have disabilities – temporary and/or lifelong.
• Live in assisted living settings.
• Are elderly.
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• Are unaccompanied children.
• Are from diverse cultures.
• Have limited English proficiency or a non-English speaking. • Have sight or hearing losses (impairments).
• Are transportation disadvantaged.
• Other situations that would require assistance.
Lessons learned from recent emergencies concerning people with disabilities and older adults have shown that existing paradigm of emergency planning, implementation and response must change to meet the needs of these groups during an emergency. These lessons show four areas that are repeatedly identified as most important to people with disabilities and older adults:
• Communications and Public Information: Emergency notification systems must be accessible to ensure effective communication for people who are deaf/hard of hearing, blind/low vision, or deaf/blind.
• Evacuation and Transportation: Evacuation plans must incorporate disability and older adult transportation providers enable the movement of people with mobility impairments and those with transportation disadvantages.
• Sheltering: Care and shelter plans must address the access and functional needs of people with disabilities and older adults to allow for sheltering in general population shelters. • Americans with Disabilities Act: When shelter facilities are activated, the State will work with local officials to ensure they accommodate the provisions of the Americans with Disabilities Act.
3.4.4 At Risk Individuals
Another perspective is to consider the needs of people who are not in contact with traditional emergency service providers. These people may feel they cannot comfortably or safely access and use the standard resources offered in preparedness, response, and recovery. These include, but are not limited to individuals who are:
• Homeless.
• Without transportation.
• Out of hearing range of community alert sirens/systems. • Without radio or television to know they need to take action. • Without access to telephones.
• Visiting or temporarily residing in an impacted region. • Not familiar with available emergency response and recovery resources. • Limited in their understanding of English.
• Geographically or culturally isolated.
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3.4.5 Businesses
Most of the City’s critical infrastructure is owned and maintained by businesses and must be protected during a response to ensure a quick and complete recovery from an emergency. These same businesses provide valuable resources before, during and after an emergency, as well as play a critical role in meeting the needs of those impacted by an emergency.
Target Hazards
Some key industries are potential targets for terrorist attacks and must institute measures to prevent attacks and protect their infrastructure and surrounding community. This requires businesses to coordinate with local, state, and federal governments to ensure that their emergency plans are integrated with government plans.
Hazardous Materials Area Plans
Some industries are required by law or regulation to have emergency operations procedures to address a variety of hazards. The Cal OES Hazardous Materials Program requires businesses that handle hazardous materials that meet certain quantity or risk thresholds, to submit Business Program Plans and Risk Management Plans to the County’s Certified Unified Program Agency or Administering Agency. The administering Agency can then develop Hazardous Material Area Plans to respond to a release of hazardous materials within the county.
Business Emergency Plans
This plan recommends that all businesses develop comprehensive emergency plans that include employee injury and illness prevention programs, business resumption and continuity of operations elements. A comprehensive business emergency plan can assist the business and community at large by providing:
• Information to employees to protect themselves and their families from the effects of likely emergencies.
• A business emergency organization with identified positions having clear and specific emergency roles, responsibilities, delegated authority and identified successors. • An identification of actions necessary to protect company property and records during emergencies. • A list of critical products and services.
• Production shutdown procedures.
• A company command post.
• Alternative work sites.
• Methods and channels of communication.
• Contacts with local emergency management officials.
• A method to provide and accept goods and services from other companies.
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Business Operations Centers
This plan also promotes the use of business operations centers to enhance public and private coordination.
Local government can effectively coordinate with businesses by establishing a business operation center that is linked to their existing EOC.
3.4.6 Volunteer Organizations
The City recognizes the value and importance of organizations that perform voluntary services in their community. These organizations have resources which can augment emergency response and recovery efforts. Some examples of voluntary organization are the following:
• American Red Cross
• Community Emergency Response Team within the City or County. • Amateur Radio Groups within the City or County.
3.4.7 Public-Private Partnerships
The private sector provides valuable assistance and resources to support emergency response and recovery activities. The goal of the Public-Private partnership is to advise on:
• Appropriate agreements to provide for quick access to emergency supplies and essential services to minimize the need to stockpile such supplies during normal times. • Logistic measures required to quickly deliver needed supplies and services to affected areas. • Methods to utilize non-profit and private sector capabilities to increase the surge capacity of local agencies responding to emergencies.
• Methods to promote the integration of the non-profit and private sectors into the emergency services system so that people can be better informed and prepared for emergencies. • Systems that aid business and economic recovery after an emergency.
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3. Direction, Control and Coordination
3.1 Direction and Control
The City is responsible for coordinating the resources, strategies, and policy for any event in the City that exceeds the capacity of field responders. Tactical control always remains the responsibility of field Incident Commanders. The City Manager, working through the mechanism of the EOC, provides direction and control over the coordination of multi-department and multi-jurisdictional resources to support the field responders. Policy decisions may be made by the EOC Manager/Director that is staffed by the City Manager or designee.
3.2 Coordination
The City EOC will coordinate resource requests from the field and other jurisdictions within the City. If request exceed the supply, the EOC will provide resources based on established priorities.
If resources are not available within the City, requests will be made to the Alameda OA EOC. The OA EOC will coordinate resources obtained from within the OA. If resources are not available in the OA, they will request from the Coastal REOC. The REOC(s) will coordinate resources obtained from operational areas throughout the region. If resources are not available in the region, they will request from the SOC. If the state cannot supply the resource, they will request from FEMA and other federal agencies.
3.3 Multi-Entity/Jurisdiction Coordination and Mutual Aid
3.3.1 OA Coordination
In the event that an incident overwhelms the resources and capabilities of the City, additional support will be requested from a variety of entities, jurisdictions, and organizations. For general emergency management operations, the City will follow SEMS and make requests for additional assistance through the OA, working directly with the operational area emergency management personnel and the OA EOC, if activated. If the emergency requires state and federal support, representatives from the operational area will work with the state level emergency management organization (REOC), following the established SEMS, NIMS, and ICS structures.
When working with external partners such as private companies, non-profit organizations, nongovernment organizations, or other partners, city representatives in the EOC will ensure that these external partners work within the designated organizational structure of the City EOC. The City EOC Manager/Director will designate the coordination procedures for new partners that are not already established as part of the City’s emergency management operational systems.
3.3.2 Mutual Aid
California's emergency assistance is based on a statewide mutual aid system designed to ensure additional resources are provided to the state’s political subdivisions whenever their own resources are overwhelmed or inadequate. The basis for this system is the California Disaster and Civil Defense Master Mutual Aid Union City, CA 45
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Agreement (MMAA), which is entered into by and between the State of California, its various departments and agencies, and the various political subdivisions, municipal corporations, and public agencies to assist each other by providing resources during an emergency. The agreement obligates each signatory entity to provide aid to each other during an emergency without expectation of reimbursement. Under specific conditions, federal and state funding may be appropriated to reimburse public agencies who aid other jurisdictions. If other agreements, memoranda, and contracts are used to provide assistance for consideration, the terms of those documents may affect disaster assistance eligibility and local entities may only be reimbursed if funds are available. This plan promotes the establishment of emergency assistance agreements between public and private sector agencies at all levels.
There are four approved, formal Mutual Aid Systems in California. Those systems are:
• Fire and Rescue.
• Law Enforcement.
• Coroner.
• Emergency Management.
Other informal mutual aid involves, but is not
limited to the interchange of:
• Public Information.
• Public Works.
• Medical and Health.
• Communications.
• Transportation Services.
• Facilities.
• Hazardous Material Mutual Aid System.
• Volunteer and Private Agencies.
California is divided into six mutual aid regions,
which are subdivisions of the state emergency
services organization to facilitate the coordination of mutual aid and other emergency operations within an area of the State consisting of two or more OAs. A map of the Regions is shown in . The City is located in Mutual Aid Region II.
4.3.3 Mutual Aid Coordination
Formal mutual aid requests follow specified procedures and are processed through pre-identified mutual aid coordinators. Mutual aid requests follow discipline-specific chains (i.e., fire, law enforcement etc.) from one level of government to the next. The mutual aid coordinator receives the mutual aid request and coordinates the provision of resources from within the coordinator's geographic area of responsibility. In the event resources are unavailable at one level of government, the request is forwarded to the next higher level of government to be filled.
Figure 3-1 California Mutual Aid Regions
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• Field Level Requests: Requests for MMAA resources originate from the Field Level and are managed by the IC. If the IC is unable to obtain the resource through existing local channels, the request is elevated to the next successive government level until obtained or cancelled. • Local Government Request: Local jurisdictions are responsible for the protection of life and property within the municipal geographic boundaries. The local jurisdiction where the incident occurred should assess its resource inventory and existing local agreements to determine if the requested resource is available. When locally committed resources are exhausted and mutual aid is needed, the local official will request assistance from the OA Mutual Aid Coordinator. • OA Requests: The OA is a composite of its political subdivisions, (i.e., municipalities, contract cities, special districts, and county agencies). The OA Mutual Aid Coordinator assesses the availability of resources within the OA and fulfills the resource request based upon that assessment. In the event resources are unavailable at the OA level, the request is forwarded to the Regional Mutual Aid Coordinator responsible to be filled.
• Region Level Requests: The State is geographically divided into six Mutual Aid Regions. For Law Enforcement Mutual Aid, Region I is divided into two sub-regions. Each Mutual Aid Region is comprised of multiple OAs and has a Regional Mutual Aid Coordinator. The Regional Mutual Aid Coordinator is granted the authority to coordinate the mutual aid response of discipline-specific resources within the Region to support a mutual aid request by a jurisdiction also within the Region.
In the event resources are unavailable at the Region level, the request is forwarded to the State Mutual Aid Coordinator to be filled.
• State Level Requests: On behalf of the Governor, the Director of Cal OES has the responsibility for coordination of state mutual aid resources in support of local jurisdictions during times of emergency.
The Director will analyze and coordinate the request by forwarding the request to an unaffected REOC or tasking the appropriate State agency to fill the need.
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Figure 3-2 Flow of Request and Resources
4.4 National Incident Management System, Standardized Emergency Management System, and Incident Command System
Emergency management operations for the City are organized under the guidelines established by NIMS, SEMS, and ICS. These emergency management structures and guidelines provide the foundation for all emergency operations, creating a flexible organizational structure that can be adjusted to meet the needs of any incident, regardless of the size, extent, or associated damage. This plan, following the identified emergency management structures and guidelines, serves as a local, city management plan, and nests into and supports the Alameda County EOP.
The city will manage their internal operations through the implementation of this plan as outlined, and work in support of county operations if necessary. In following these standardized systems, the City EOC is organized into the sections listed below.
• Management Section.
• Operations Section.
• Planning Section.
• Logistics Section.
• Finance Section.
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Detailed descriptions of the roles of each position in the EOC can be found in the supporting documents section of this plan.
NIMS is the national standard for incident management operations defined by the FEMA and based on the National Response Framework. NIMS has been adopted by the City by resolution to serve as its incident management system. ICS is the organizational structure within NIMS that defines how emergency management operations will be organized. All state and local jurisdictions are required to prepare, plan, and respond to emergencies based on the NIMS and ICS standards in order to be eligible for federal reimbursement for emergency related costs. Additional details regarding NIMS and ICS can be found online through FEMA’s website.
In addition, the SEMS, based on State of California emergency management standards, has been adopted by the City for managing response to multi agency and multi jurisdiction emergencies, and to facilitate communications and coordination between all levels of the system and among all responding agencies.
California Government Code § 8607 requires all local public agencies (cities, special districts, and counties) to respond to emergencies using the SEMS at the scene of a multi-agency emergency and in the EOC.
SEMS defines the organizational structure of local EOCs, reporting to operational area EOCs, which report to REOC(s), to state EOCs, and finally to FEMA. The utilization of SEMS during emergency management and response efforts is required for jurisdictions to be eligible for state reimbursement. Additional information for SEMS can be found online through the Cal OES website.
4.4.1 National Incident Management System
The terrorist attacks of September 11, 2001, illustrated the need for all levels of government, the private sector, and nongovernmental agencies to prepare for, protect against, respond to, and recover from a wide spectrum of events that exceed the capabilities of any single entity. These events require a unified and coordinated national approach to planning and to domestic incident management. To address this need, the President signed a series of Homeland Security Presidential Directives (HSPDs) that were intended to develop a common approach to preparedness and response. Two Policy Directives that are of particular importance to emergency planners:
• HSPD-5, Management of Domestic Incidents: Identifies steps for improved coordination in response to incidents. It requires the Department of Homeland Security to coordinate with other federal departments and/or agencies and state, local, and tribal governments to establish a NRF and a NIMS. • PPD-8, National Preparedness: Describes the way federal departments and agencies will prepare. It requires DHS to coordinate with other federal departments and agencies – and with state, local, and tribal governments to develop a National Preparedness Goal.
Together, the NIMS, NRF, and the National Preparedness Goal define what needs to be done to prevent, protect against, respond to, and recover from a major event; and how well it needs to be done. These efforts align federal, state, local, and tribal entities; the private sector; and nongovernmental agencies to provide an effective and efficient national structure for preparedness, incident management, and emergency response.
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The NIMS structure provides a consistent framework for incident management at all jurisdictional levels, regardless of the cause, size, or complexity of the incident, building on the Incident Command System and the NIMS provides the nation’s first responders and authorities with the same foundation for incident management for terrorist attacks, natural disasters, and all other emergencies. The NIMS structure requires the institutionalization of the ICS and its use to manage all domestic incidents.
The NIMS structure integrates existing best practices into a consistent, nationwide approach to domestic incident management that is applicable at all jurisdictional levels and across functional disciplines. Six major components make up the NIMS approach:
• Command and Management.
• Preparedness.
• Resource Management.
• Communications and Information Management.
• Supporting Technologies.
• Ongoing Management and Maintenance.
4.4.2 Standardized Emergency Management System
The SEMS is the cornerstone of California’s emergency response system and the fundamental structure for the response phase of emergency management. SEMS is required by the ESA for managing multiagency and multijurisdictional responses to emergencies in California. The system unifies all elements of California’s emergency management community into a single integrated system and standardizes key elements. SEMS incorporates the use of the Incident Command System, California Disaster and Civil Defense Master Mutual Aid Agreement, the OA concept and multiagency or inter-agency coordination.
State agencies are required to use SEMS and local government entities must use SEMS in order to be eligible for any reimbursement of response-related costs under the state’s disaster assistance programs.
SEMS Organization Levels
There are five Standardized Emergency Management System organizational levels.
State
The State Level of SEMS prioritizes task and coordinates state resources in response to the request from the Regional Level and coordinates mutual aid among the mutual aid regions and between the Regional Level and State Level. The State Level also serves as the coordination and communication link between the state and the federal emergency response system. The State Level requests assistance from other state governments through the EMAC and similar interstate compacts/agreements and coordinates with FEMA when federal assistance is requested. The State Level operates out of the SOC. At the Federal Level, the NRF identifies the methods and means for federal resources to provide support to the state and local government. Federal resources would be accessed via SEMS process through the mutual aid region and SOC.
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Region
The Regional Level manages and coordinates information and resources among OA(s) within the mutual aid region and also between the OA and the State Level. The Regional Level also coordinates overall state agency support for emergency response activities within the region. California is divided into three Administrative Regions – Inland, Coastal and Southern which are further divided into six mutual aid regions.
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Operational Area (OA)
An OA is the intermediate level of the state’s emergency management organization, which encompasses a county’s boundaries, and all political subdivisions located within that county, including special districts. The OA facilitates and/or coordinates information, resources, and decisions regarding priorities among local governments within the OA. The OA serves as the coordination and communication link between the Local Government Level and the Regional, State, and Federal Levels. Tribal jurisdictions in the OA may have statutory authorities for response similar to that at the local level.
Local Government (The City)
The Local Government Level includes cities, counties and special districts, Local governments are required to use SEMS when their EOC is activated, or a local emergency is declared or proclaimed in order to be eligible for state reimbursement of response-related costs.
Field
The Field Level is where emergency response personnel and resources, under the command of responsible officials, carry out tactical decisions and activities in direct response to an incident or threat.
SEMS Functions
SEMS requires that every emergency response involving multiple agencies includes the five functions identified in Figure 4-3. These functions must be applied at each level of the SEMS organization.
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Figure 3-3 SEMS Functions
Command/Management
Command is responsible for directing, ordering, and/or controlling of resources at the field response level.
Management is responsible for overall emergency policy and coordination at the EOC levels. Command and Management are further discussed below:
• Command: A key concept in all emergency planning is to establish command and tactical control at the lowest level that can perform that role effectively in the organization. In the ICS, the IC, with appropriate policy direction and authority from the responding agency, sets the objectives to be accomplished and approves the strategy and tactics to be used to meet those objectives. The IC must respond to higher authority. Depending upon the incident’s size and scope, the higher authority could be the next ranking level in the organization up to the agency or department executive. This relationship provides an operational link with policy executives who customarily reside in the DOC or the EOC, when activated.
• Management: The EOC serves as a central location from which multiple agencies or organizations coordinate information collection and evaluation, priority setting and resource management. Within the EOC, the Management function:
o Facilitates multiagency coordination and executive decision making in support of the incident response
o Implements the policies established by the governing bodies o Facilitates the activities of the Multiagency Coordination Group • Operations: Responsible for coordinating and supporting all jurisdictional operations supporting the response to the emergency through implementation of the organizational level’s Action Plans (AP).
At the Field Level, the Operational Section is responsible for coordinating the tactical response directly applicable to, or in support of the objectives in accordance with the IAP. In the EOC, the Operations Section Coordinator/Chief manages functional representatives who share information and decisions about discipline-specific operations.
• Logistics: Responsible for providing facilities, services, personnel, equipment, and materials in support of the emergency. Unified ordering takes place through the Logistics Section to ensure controls and accountability over resource requests. As needed, Unit Coordinators are appointed to address the needs for communications, food, medical, supplies, facilities, and ground support.
Command/
Management
Operations Planning/
Intelligence Logistics Finance/ Administration
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• Planning/Intelligence: Responsible for the collection, evaluation and dissemination of operational information related to the incident for the preparation and documentation of the IAP at the Field Level or the EOC Action Plan (EAP) at an EOC. Planning/Intelligence also maintains information on the current and forecasted situation and on the status of resources assigned to the emergency or the EOC. As needed, Unit Coordinators are appointed to collect and analyze data, prepare situation reports, develop action plans, set GIS priorities, compile, and maintain documentation, conduct advance planning, manage technical specialists, and coordinate demobilization. • Finance/Administration: Responsible for all financial and cost analysis aspects of the emergency and for any administrative aspects not handled by the other functions. As needed, Unit Leaders are appointed to record time for the incident or EOC personnel; coordinate procurement activities, process claims and track costs.
The field and EOC are illustrated in Table 4-1.
Table 3-1 Field and EOC SEMS Functions Comparison
SEMS Function Field Level EOCs
Command / Management Command is responsible for directing, ordering and/or controlling resources
Management is responsible for
facilitation of overall policy,
coordination, and support of the
incident
Operations The coordinated tactical response of all
field operations in accordance with the IAP
The coordination of all jurisdictional
operations in support of the response to
the emergency in accordance with the
EAP
Planning & Intelligence The collection, evaluation, documentation and use of intelligence related to the
incident
Collecting, evaluating, and disseminating
information and maintaining
documentation relative to all jurisdiction
activities
Logistics Providing facilities, services, personnel,
equipment, and materials in support of
the incident
Providing facilities, services, personnel,
equipment, and materials in support of
all jurisdictional activities as required
Finance & Administration Financial and cost analysis and administrative aspects not handled by the
other functions
Responsible for coordinating and
supporting administrative and fiscal
consideration surrounding and
emergency incident
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4. Communication
4.1 City EOC
Once notified of an emergency or disaster of any size, or of a potential or imminent threat to the City, communications will be established between the City EOC and outside entities, such as field responders, department level personnel, media, or other outside agencies and partners. From the EOC, telephones, cell phones, radios, email, and internet applications (such as VEOCI) are used for direct communications with field responders or outside agencies.
The City EOC can communicate with the OA EOC to access the State OASIS satellite system. OASIS can support the operational area entities by allowing for direct satellite communication with the State’s REOC, and the SOC. OASIS voice transmission works like a standard telephone and data transmission is similar to a computer modem.
4.2 City Operations and Responders
The City operational staff in the field implement interoperable communications through the use of radios to facilitate communications with all responding departments and city entities. Alternate forms of communication such as the use of cell phones, text messaging, email, amateur radio etc., may be utilized if determined necessary. The use of the interoperable radio system allows for communication between DOCs, EOCs, and the ICP that is located near the site of a field emergency incident. DOCs and dispatch centers for private entities (i.e., private EMS providers) are responsible for maintaining communications with the City EOC when it is activated.
4.3 Notification and Warning
In addition to an effective communication capability, government must have an effective means to provide warning alerts to the populations impacted or at risk as a result of an emergency. Those warning alerts are as follows:
• To receive detailed, up-to-date information directly from the Union City Police Department via email sign up for Nixle alerts at Nixle.com and register for Union City Police Department (CA). Once logged in, go to setting and select the Alert, Advisory and Community option. To receive text message alerts only, text your zip code to 888777.
• Tune your radio to KCBS at 740 AM for important alerts and updates. • To receive Union City-specific alerts your cell phone, we encourage you to sign up for AC ALERT.
Additionally, special broadcasts, or simply driving up and down the streets using the public address system can also be conducted to notify and warn citizens. Police and Fire may be required to disseminate emergency warnings to public who cannot be reached by primary warning systems.
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5. Information Collection, Analysis and Distribution
5.1 Before an Incident
Information is often provided before an incident occurs. Sources may include weather reports, National Oceanic Atmospheric Administration (NOAA) alerts, crime reports, credible threats of intentional events, and others. Advanced notice information can be used to activate the EOC, prepare emergency management and response personnel, and provide information to the City population. This advanced information can increase the preparedness level of emergency management and response personnel, by helping them size the number of responders and material resources needed for the response. Advanced information is also used to notify people that might be living in harm’s way, and supports individuals and their families with preparing for, or evacuating from, the hazardous situation. Early information can greatly reduce the numbers of people who might otherwise be harmed by the emergency event.
5.2 During an Incident
Information collected during the incident assists in determining the correct course of action and emergency management decisions. Information is collected from field responders, DOCs, private entities, the media, social media, community members, and a variety of other sources. All information collected from opensource public resources will be analyzed for accuracy, processed through rumor control, and documented by the respective EOC sections, branches, and units. All information documentation will be provided to the Situation Unit in the Planning Section of the EOC for inclusion into the EAP.
The use of APs in the City EOC provides a clear and measurable process for identifying objectives and priorities for a given event. Action Planning is an important management tool that involves:
• Process for identifying priorities and objectives for emergency response or recovery efforts. • Documents the priorities and objectives and the task and personnel assignments associated with meeting the objectives.
The Action Planning process should involve the EOC Director and Section Chiefs/Coordinators (one from each Section) along with other EOC staff, as needed, such as agency representatives.
The initial EAP may be a verbal plan that is developed during the first hour or two following EOC activation.
A verbal plan may also be utilized for incidents involving a limited scope, short duration (less than 12 hours) and/or a limited number of response personnel. An EAP will be developed whenever the EOC is activated, either partially or fully. A written EAP is required whenever:
• Two or more agencies are involved in the response.
• The incident overlaps more than one operational period. • All EOC functions are fully staffed.
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The EAP addresses a specific operational period, which may vary in length from a few hours to days depending on the circumstances. The plan should be regularly reviewed and evaluated throughout the operational period and revised or updated as warranted.
The Planning Section Chief/Coordinator, with input from the EOC Manager/Director, EOC Coordinator, and the Operations Section Chief/Coordinator, establishes the schedule and cycle for planning and situation information dissemination. Initially, meetings may be conducted every few hours or several times each day. Over time, meetings may be held twice each day, and then daily, depending on the level of operations.
In addition, all EOC situation status reports and EAPs will be developed and presented for the purpose of information sharing at scheduled meetings during each EOC operational period. Information may also be sent to City departments, EOC personnel, the OA, and other key agencies using the City’s Emergency reporting system, OASIS, radio, telephone, email, internet, or fax. Regardless of the method of communication, all data should be verified prior to transmission. If unverified data must be transmitted, it should be clearly designated as unconfirmed information.
The City uses VEOCI (EOC Management Program), and hard copy forms found in the supporting documents of this plan to record and report information.
6.3 After an Incident
Information collected throughout emergency operations will be documented by members of the Planning Section. This information will be used during the recovery phase of the emergency to develop a history of actions and expenditures related to the disaster. Information will also be used for the development of the after-action report that is used to document effective practices, archive effective tools, note areas in which EOC personnel saw need for additional training or tools, and document areas for program enhancements.
In addition, the City and other agencies, entities, and organizations involved in the emergency management and response operations will collect information related to their respective after-effects of the incident, such as social and economic impacts, relief support provided, and ongoing recovery operations.
6.4 Emergency Public Information
Emergency Public Information is a priority of most importance during emergencies and disasters. The City government has a primary responsibility to provide accurate and timely information to the public regarding conditions, threats, and protective measures. To avoid conflicts and confusion, the Emergency Public Information function operates best when centralized and coordinated among all involved jurisdictions, agencies, and organizations.
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6. Administration, Finance and Logistics
6.1 Administration
Emergency management operations that support administration, finance, and logistical processes are primarily conducted within the Logistics and Finance Sections of the EOC and provide for the following:
• Track and document expenses.
• Document all actions taking during emergency operations. • Procure necessary equipment, resources, and additional support. • Track and document city employee working hours.
• Manage continuity of operations (COOP) for the City.
• Develop staff rotation schedules for extended operations. • Manage compensation and claims related to emergency operations. • Track and document the deployment and utilization of resources. • Manage additional staff and volunteers to support emergency operations. • Manage financial and in-kind donations.
• Oversee and manage information technology components and issues as they arise. • Other actions as appropriate.
6.1.1 City Operations Policy Statement
Limitations
Due to the nature of emergency response, the outcome is not easy to predict. Therefore, it should be recognized that this plan is meant to serve as a guideline and that the outcome of the response may be limited by scope, magnitude, and duration of the event.
Suspension of Routine Activities and Availability of Employees Day-to-day functions that do not contribute directly to the disaster operation may be suspended for the duration of an emergency. Efforts normally required for routine activities may be redirected to accomplish emergency tasks. During an emergency response, City employees not otherwise assigned emergency disaster related duties will, unless otherwise restricted, be made available to augment the work of their department, or other City departments, if required.
Households of Emergency Response Personnel
City employees may not be at peak efficiency or effectiveness during a disaster if the status of their households is unknown or in doubt. Employees who are assigned disaster response duties are encouraged to make arrangement with other employees, friends, neighbors, or relatives to check on their immediate families in the event of a disaster and to communicate that information to the employee through the City EOC.
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Non-Discrimination
All local activities will be carried out in accordance with federal nondiscrimination laws. It is the City’s policy that no service will be denied on the basis of race, religion, national origin, age, sex, marital status, veteran status, sexual orientation, or the presence of any sensory, mental, or physical disability.
Citizen Preparedness
This plan does not substitute government services for individual responsibility. Citizens are expected to be aware of developing events and take appropriate steps to respond in a safe and timely manner. Since the City’s resources and personnel may be overwhelmed at the onset of a disaster event, individuals and organizations should be prepared to be self-sufficient following a disaster. The City will make every effort to provide information to the public via the media and other sources to assist citizens in dealing with the emergency.
7.1.2 Disaster Service Workers
Under California Government Code, Section 3100-3109, all public employees are obligated to serve as Disaster Service Workers. Public employees (civil service) are all people employed by any county, city, state agency or public district in the State of California. Disaster Service Workers provide services and support during declared emergencies or disasters.
In the event of a major emergency or disaster, City employees may be called upon to perform certain duties in support of emergency management operations, such as: serve in a position in the EOC, support shelter operations, or work at a logistics base in the field.
• City employees may be required to work at any time during a declared emergency and may be assigned to disaster service work.
• Assignments may require service at locations, times and under conditions other than normal work assignments.
• Assignment may include duties within the EOC, in the field or at another designated location.
Under no circumstances will City employees that do not usually have a response role in their day-to-day responsibilities be asked to perform duties or functions that are hazardous, that they have not been trained to perform or are beyond their recognized capabilities.
7.1.3 Documentation
The EOC Finance/Administration Section will be responsible for maintaining records on damage assessment expenditures, recovery cost expenditures, insurance related documents, personnel overtime and other cost associated with the emergency.
The EOC Planning Section will maintain copies of documents that are integral to EOC functions such as EAP, Situation Status Logs, Position Logs etc. that together make up the history and chronology of the emergency events.
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7.2 Finance
In the case of a major disaster, the EOC will support county, state, and federal entities with cost recovery efforts, if requested and as able. City citizens may benefit from the Small Business Administration, and the City may benefit from the State and/or the FEMA Public Assistance Program. The City may assist the citizenry with public service announcement regarding available unemployment benefits, worker’s compensation, and insurance benefits.
7.2.1 Expenditure Tracking
The city may be reimbursed for insurance, state and/or federal sources for disaster-related expense. The purpose of this section is to provide guidance on the record keeping requirements for claiming such expenses.
7.2.2 Eligible Expenses
Eligible costs are extraordinary costs incurred while providing emergency services required by the direct impact of a declared disaster and which service is the responsibility of the applicant agency. Eligible costs are generally considered to be net costs over and above any increased revenue or subsidy of the emergency service. Ineligible expenses include standby personnel and/or equipment and lost revenue.
7.2.3 Recordkeeping Requirements
State and federal governments require detailed information to support claims for reimbursement. Funding will be approved or denied based upon the information supplied by applicant agencies. Documentation supporting all the cost claimed will be required, and all information must relate back to individual original source records. The following guidelines should be followed when documenting disaster-related reimbursable expenses:
• Costs and revenue associated with emergency operations should be segregated from normal operating expenses.
• Separate records should be maintained for each vehicle and piece(s) of heavy equipment used for emergency operations.
• Vehicles and equipment documentation should include the times and/or hours operated by location and operator.
• Vehicle operating expenses should include fuel, tires, and maintenance. • Labor costs should be compiled separately from vehicle and/or equipment expenses. • Equipment documentation should include exactly where the equipment was used and for what; hours and minutes used; and the name of the equipment operator if applicable. • Revenues and subsidies for emergency operations must be subtracted from any costs claimed. • Requisitions, purchase orders, and invoices must be maintained for all supplies, materials and equipment expenses claimed.
• Costs for supplies and materials must include documentation of exactly where resources were used and for what purpose.
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• All non-competitive procurements must be justified.
Expenditure tracking should commence upon notice or obvious occurrence of a disaster. The following section focuses on logistics and resource management, priorities, and requests.
7.3 Logistics
7.3.1 Resource Management
The resource management function describes the system that will be utilized for identifying available resources within the City to enable timely, efficient, and unimpeded access to resources needed to prepare for, respond to, or recover from an incident. Resource management under the NIMS includes mutual aid and assistance agreements, the use of special federal, state, territorial, tribal, and local teams, and resource mobilization protocols. This function specifically includes the management of personnel for emergency management operations and addresses necessary coordination efforts with local jurisdictions to secure necessary support and resources.
7.3.2 Resource Priorities
When activated, the City EOC establishes priorities for resource allocation during the emergency. All City resources are considered part of a pool, which may be allocated by the EOC to fulfill priority missions. Each department retains control of its non-assigned resources until released for an emergency assignment by the EOC.
7.3.3 Resource Requests
Resource requests will be made through one of the following processes:
• Discipline-specific (usually Fire and Law) mutual aid systems: Request for resources that are normally within the inventories of the mutual aid system will go from local coordinator to OA Mutual Aid Coordinator to the Regional Mutual Aid Coordinator.
• All other resource requests will be made through the logistics function at each level.
Resource requests from the City will be coordinated with the Alameda OA EOC to determine if the resource is available internally or other more appropriate sources located within the OA. Emergency Management Mutual Aid Coordinators at each level will keep the Operations Chief informed of the status of resource requests and allocations. Coordinators at each level will communicate and coordinate with each other to maintain current status on resource requests and allocations within the disaster area.
Resource requests from the City EOC to the Alameda OA EOC may be verbally requested and then documented. Available resources will be allocated to the requesting local government, if a request for a specific resource exceeds the supply, the available resources will be allocated consistently with the priorities established through the action planning process. The Section Chiefs in the EOC are responsible for ensuring that priorities are followed.
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Resource requests for equipment, personnel, or technical assistance not available to the City should be coordinated with the Alameda County EOC to the Coastal REOC. Once the request is coordinated, approved and resources deployed, planning in coordination with various Operational Branches is important for tracking the resources.
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7. Plan Development and Maintenance
This section of the City EOP discusses the overall approach to plan development and maintenance responsibilities.
This plan is developed under the authority of the City Manager’s office in accordance with the City’s Emergency Organization, who has the primary responsibility for ensuring that necessary changes and revisions to this plan are prepared, coordinated, published, and distributed. The City uses the planning process prescribed by FEMA and the State of California. This Plan and supporting documentation are reviewed and updated on a regular basis. The review and updates are coordinated with the City Departments and Alameda County.
7.1 Administrative Practices
Adherence to standard administrative and financial procedures is critical to ensure resources and funding to support response and recovery activities are accurately tracked and accounted for. Standard administrative and financial practices also support proper cost accounting in order to obtain any reimbursement provided through disaster assistance programs.
The City follows administrative practices required by state law and the SEMS Guidelines in Part III of the SEMS Guidelines documenting California’s Emergency Management administrative practices.
7.2 Standard Operating Procedures
This Plan is intended to be used in conjunction with county, operational area, and State plans and associated Standard Operating Procedures (SOPs). Where supporting plans are inconsistent with the general principles described in the State Emergency Plan, the state plan will supersede supporting plans.
SOPs provide the purpose, authorities, duration, and details for the preferred method or performing a single function or a number of interrelated functions in a uniform manner. SOPs must also facilitate the need to carry out actions under conditions that may not have been anticipated when the SOP was drafted.
For example, it may be necessary to consider alternative procedures that solve a problem in order to perform in a more time-efficient or cost-efficient way. It is clear; therefore, some procedures may need to be suspended, relaxed, or made operational under threat of disaster. However, such action should be carefully considered, and the consequences should be projected realistically.
7.3 Training and Exercises
All city department personnel that are designated responsible for staffing the EOC are required to complete training related to emergency management operations. All designated personnel will be provided with a copy of this plan (as noted in Record of Distribution section of this plan) and are required to read and become familiar with the plan.
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the City should follow. This IPP aligns with other training and exercises within the OA to ensure practice and integration with OA partners as often as possible.
Partner jurisdictions and agencies having assigned responsibilities under this plan must ensure their assigned personnel are properly trained to carry out identified responsibilities. Individual jurisdictions and agencies are responsible for maintaining their own plans, training, and program maintenance.
Finally, training and exercises involve a variety of scopes, scales, and participation. Training can include the following:
Drills
A drill is a small, organized exercise that tests one specific action, such as evacuation of a building, or sheltering-in-place.
Tabletop exercises
A tabletop exercise is a discussion-based exercise in a low-stress environment to discuss a possible emergency scenario.
Functional exercise
A functional exercise is an activity designed to exercise a single function, or multiple functions through the simulation of a realistic scenario. The functional exercise is designed to simulate real conditions in the EOC, and as such includes time constraints on decision making and, by its nature, allows for a more stressful environment.
Full-scale exercise
A full-scale exercise is an activity involving multiple agencies, jurisdictions, entities, organizations, etc., and exercises multiple functions through the simulation of a realistic scenario. This exercise includes the mobilization and utilization of city resources.
8.4 Essential Records Retention
Maintenance of administrative records continues through all phases of an emergency. In preparation for an emergency, training and appropriate forms are provided to the City’s emergency response organization.
During a response, entities ensure adequate documentation is collected through the Documentation Unit at the Incident and EOC. Documentation should include records of personnel activities, use of equipment, and expenditures for the emergency. Finally, after the response has been terminated, records should be protected and maintained for audit purposes. The Cost Unit is responsible for cost recovery records and assisting in collecting any missing information. Problem areas are identified, corrective measures taken, and employees retrained in the proper, updated procedures.
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8.5 After Action Reports and Corrective Actions
SEMS regulations require local government agencies to complete an After-Action Report (AAR) for each Governor proclaimed emergency. After an incident or from a gubernatorial proclamation, the AAR is completed within 120 days. Furthermore, SEMS regulations under Title XIX, Division 2, Chapter 1, Section 2450(a) require any federal, state, or local jurisdiction proclaiming or responding to a Local Emergency for which the governor has declared a State of Emergency or State of War Emergency shall complete and transmit an AAR to Cal OES within 90 days of the close of the emergency period.
The identification of corrective actions is critical to the AAR process. Jurisdictions are strongly encouraged to make recommendations for correcting problems noted in the response/recovery effort, or during exercises and training. Corrective actions may encompass anything from detailed recommendations for improving individual agency plans and procedures to broader system-wide improvements. Corrective actions are assigned to relevant stakeholders and tracked to ensure the identified problem has been addressed.
The AAR will provide, at a minimum:
• Response actions that were taken.
• Application of SEMS during response.
• Necessary modifications to plans and procedures that are needed. • Lessons learned.
• Noted areas of improvement.
• Best practice implementations proposed.
• Training needed.
• Recovery activities conducted to date.
• Additional information as appropriate.
Findings and recommendations in the contents of the AAR will be used to further develop and update the City EOP, as necessary. AAR development will include the input of all personnel involved in the incident or exercise.
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8. Authorities and References
Federal
Authorities
• Robert T. Stafford Disaster Relief and Emergency Assistance Act of 1988, 42 U.S.C. 5121, et seq., as amended
• Homeland Security Presidential Directive 5, Management of Domestic Incidents, February 28, 2003 • Homeland Security Presidential Directive 8, National Preparedness, December 17, 2003 • The Code of Federal Regulations, Title 44, Chapter 1, Federal Emergency Management Agency, October 1, 2007
• Public Law 920, Federal Civil Defense Act of 1950, as amended • Public Law 84-99, U.S. Army Corps of Engineers - Flood Fighting • Public Law 93-288, Federal Disaster Relief Act of 1974 • Public Law 107-188, Bio-terrorism Act, June 2002
• Public Law 107-296, Homeland Security Act, January 2002 • Executive Order 13228, Office of Homeland Security, October 8, 2001 • Executive Order 13231, Critical Infrastructure Protection, October 16, 2001 • Executive Order 13234, Citizens Prepared, November 9, 2001 • Presidential Decision Directive 39 - U.S. Policy on Counterterrorism, June 1995 • Presidential Decision Directive 62 - Combating Terrorism, May 1998 • Presidential Decision Directive 63 – Critical Infrastructure Protection, May 1998 • National Security Presidential Directive 17 - National Strategy to Combat Weapons of Mass Destruction
References
• National Response Framework (as revised)
• National Incident Management System
• Federal Emergency Management Agency’s (FEMA) Comprehensive Preparedness Guide (CPG) 101:
Developing and Maintaining EOPs version 3.0
State
Authorities
• California Disaster Assistance Act, California Government Code Section 8680 et. seq. • California Disaster and Civil Defense Master Mutual Aid Agreement • California Government Code, Title 1, Chapter 4, Division 8, Section 3100 - Disaster Service Workers • California Government Code, Title 1, Chapter 4, Division 8, Section 8635 - Continuity of Government • California Government Code, Title 2, Division 1, Chapter 7 – California Emergency Services Act Union City, CA 66
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• California Government Code, Title 19, Division 2 – Standardized Emergency Management System • California Water Code, § 128-Department of Water Resources - Flood Fighting References
• Standardized Emergency Management System
• California Disaster Assistance Act
• California State Emergency Plan, 2023
County
• Alameda County Administrative Code, Title 2, Chapter 2.118, “Civil Defense,” June 30, 2002 References
• Alameda County Emergency Operations Plan, June 2025
• County of Alameda Local Hazard Mitigation Plan, 2021
City
• Union City Certified Emergency Management Plan, 2014
• Union City, California Municipal Code Chapter 2.28 Emergency Organization Union City, CA 66
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Appendix A – Glossary of Terms
Action Plan (AP): See EOC Action Plan and Incident Action Plan.
Activation: 1) Initial activation of an EOC may be accomplished by a designated official of the emergency response agency that implements SEMS as appropriate to accomplish the agency's role in response to the emergency. 2) An event in the sequence of events normally experienced during most emergencies.
After Action Report (AAR): A report that examines response actions, application of SEMS, modifications to plans and procedures, training needs, and recovery activities. AARs are required under SEMS after any emergency that requires a gubernatorial state of emergency proclamation. Local government AARs must be submitted to Cal OES within 90 days.
Agency: A division of government with a specific function offering a particular kind of assistance. In the Incident Command System (ICS), agencies are defined either as jurisdictional (having statutory responsibility for incident management) or as assisting or cooperating (providing resources or other assistance). Governmental organizations are most often in charge of an incident, though in certain circumstances private sector organizations may be included. Additionally, Non-Governmental Organizations (NGO) may be included to provide support. All-Hazards: Any incident, natural or humancaused, that warrants action to protect life, property, environment, public health, or safety, and minimize disruptions of government, social, or economic activities.
California Disaster and Civil Defense Master Mutual Aid Agreement (MMAA): An agreement entered by and between the State of California, its various departments and agencies, and the various political subdivisions, municipal corporations, and public agencies of the State of California to assist each other by providing resources during an emergency. Mutual Aid occurs when two or more parties agree to furnish resources and facilities and to render services to each other in response to any type of disaster or emergency.
California Emergency Support Functions (CA-ESF): The CA-ESFs are a grouping of State agencies, departments, and other stakeholders with similar functional activities/responsibilities whose responsibilities lend to improving the state’s ability to collaboratively prepare for, effectively mitigate, cohesively respond to, and rapidly recover from any emergency. CA-ESFs unify a broad-spectrum of stakeholders with various capabilities, resources, and authorities to improve collaboration and coordination for a particular discipline. They also provide a framework for the state government to support regional and community stakeholder collaboration and coordination at all levels of government and across overlapping jurisdictional boundaries.
California Emergency Services Act (ESA): An Act within the California Government Code to ensure preparations within the state will be adequate to deal with natural, human-caused, or war-caused emergencies which result in conditions of disaster or in extreme peril to life, property, and the natural resources of the state, and generally to protect the health and safety and preserve the lives and property of the people of the state.
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Catastrophe: Any natural or human-caused incident, including terrorism that results in extraordinary levels of mass casualties, damage, or disruption severely affecting the population, infrastructure, environment, economy, national morale, and/or government functions.
Command: The act of directing, ordering, or controlling by virtue of explicit statutory, regulatory, or delegated authority.
Command/Management: Command is responsible for the directing, ordering, and/or controlling of resources at the field response level. Management is responsible for overall emergency policy and coordination at the SEMS EOC levels.
Command Post: See Incident Command Post.
Command Staff: The Command Staff at the SEMS Field Level consists of the Information Officer, Safety Officer, and Liaison Officer. They report directly to the Incident Commander. They may have an assistant or assistants, as needed. These officers are also found at the EOC levels in SEMS, and they report directly to the EOC Director and comprise the Management Staff. They may have an assistant or assistants, as needed.
Communications: Process of the transmission of information through verbal, written, or symbolic means.
Continuity of Government (COG): Activities that address the continuance of constitutional governance.
COG planning aims to preserve and/or reconstitute the institution of government and ensure that a department or agency’s constitutional, legislative, and/or administrative responsibilities are maintained.
This is accomplished through succession of leadership, the pre-delegation of emergency authority, and active command and control during response and recovery operations.
Continuity of Operations (COOP): Planning should be instituted, including all levels of governments, across the private sector and non-governmental organizations as appropriate, to ensure the continued performance of core capabilities and/or critical government operations during any potential incident.
Coordination: The process of systematically analyzing a situation, developing relevant information, and informing appropriate command authority of viable alternatives for selection of the most effective combination of available resources to meet specific objectives. The coordination process (which can be either intra- or inter-agency) does not involve dispatch actions. However, personnel responsible for coordination may perform command or dispatch functions within the limits established by specific agency delegations, procedures, legal authority, etc. Multiagency or interagency coordination is found at all SEMS levels.
Coordination Center: Term used to describe any facility used for the coordination of agency or jurisdictional resources in support of one or more incidents.
Corrective Actions: Implementing procedures based on lessons learned from actual incidents or from training and exercises.
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Cost Unit: Functional unit within the Finance/Administration Section responsible for tracking costs, analyzing cost data, making cost estimates, and recommending cost-saving measures.
Critical Infrastructure: Systems and assets, 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.
Demobilization: The orderly, safe, and efficient return of an incident resource to its original location and status.
Department Operations Center (DOC): An Emergency Operations Center (EOC), specific to a single department or agency where the focus is on internal agency incident management and response. They are often linked to and, in most cases, are physically represented in a combined agency EOC by authorized agent(s) for the department or agency.
Disaster: A sudden calamitous emergency event bringing great damage, loss, or destruction.
Division: The partition of an incident into geographical areas of operation. Divisions are established when the number of resources exceeds the manageable span of control of the Operations Section Chief. A Division is located within the ICS organization between the Branch and resources in the Operations Section.
Documentation Unit: Functional unit within the Planning/Intelligence Section responsible for collecting, distributing, recording, and safeguarding all documents relevant to an incident or within an EOC.
Emergency: Any incident(s), whether natural or human-caused, 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, protect property and public health and safety, or to lessen or avert the threat of a catastrophe in any part of the United States.
Emergency Management Assistance Compact (EMAC): A congressionally ratified organization that provides form and structure to interstate mutual aid. Through EMAC, a disaster-affected state can request and receive assistance from other member states quickly and efficiently, resolving two key issues upfront:
liability and reimbursement.
Emergency Management Community: The stakeholders in emergency response in California including the residents of California, the private sector and federal, state, local, and tribal governments.
Emergency Operations Center (EOC): 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. EOC may be organized by major functional disciplines (e.g., fire, law enforcement, and medical services), by jurisdiction (e.g., federal, state, regional, tribal, city, county), or some combination thereof.
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Emergency Operations Plan (EOP): The ongoing plan maintained by various jurisdictional levels for responding to a wide variety of potential hazards.
Emergency Response Agency: Any organization responding to an emergency, or providing mutual aid support to such an organization, whether in the field, at the scene of an incident, or to an operations center.
Emergency Response Personnel: Personnel affiliated with or sponsored by emergency response agencies.
EOC Action Plan: The plan developed at SEMS EOC levels, which contains objectives, actions to be taken, assignments, and supporting information for the next operational period.
Essential Facilities: May include facilities such as law enforcement, fire, emergency operations centers, schools, medical facilities, and other resources that have a role in an effective and coordinated emergency response.
Evacuation: Organized, phased, and supervised withdrawal, dispersal, or removal of civilians from dangerous or potentially dangerous areas and their reception and care in safe areas.
Federal: Of or pertaining to the federal government of the United States of America.
Finance/Administration Section: The section responsible for all administrative and financial considerations surrounding an incident or EOC activation.
Function: Function refers to the five major activities in ICS: Command, Operations, Planning, Logistics and Finance/Administration. The same five functions are also found at all SEMS EOC Levels. At the EOC, the term Management replaces Command. The term function is also used when describing the activity involved, (e.g., the planning function). A sixth function, Intelligence/Investigations, may be established, if required, to meet emergency management needs.
Group: Established to divide the incident management structure into functional areas of operation. Groups are composed of resources assembled to perform a special function not necessarily within a single geographic division. Groups, when activated, are located between branches and resources in the Operations Section. See Division.
Hazard: Something that is potentially dangerous or harmful, often the root cause of an unwanted outcome.
Incident: An occurrence or event, natural or human-caused, which 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.
Incident Action Plan (IAP): An oral or written plan containing general objective reflecting the overall strategy for managing an incident. It may include the identification of operational resources and assignments. It may also include attachments that provide direction and important information for management of the incident during one or more operational periods. At the SEMS EOC Level, it is called the EOC Action Plan.
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Incident Command: Responsible for overall management of the incident and consists of the Incident Commander, either single or unified command, and any assigned supporting staff.
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 IC has overall authority and responsibility for conducting incident operations and is responsible for the management of all incident operations at the incident site.
Incident Command Post (ICP): The field location where the primary functions are performed. The ICP may be co-located with the incident base or other incident facilities.
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 the 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.
Information: Pieces of raw, unanalyzed data that identifies persons, evidence, events; or illustrates processes that specify the occurrence of an event. May be objective or subjective and is intended for both internal analysis and external (news media) application. Information is the “currency” that produces intelligence.
Intelligence: Product of an analytical process that evaluates information collected from diverse sources, integrates the relevant information into a cohesive package, and produces a conclusion or estimate.
Information must be real, accurate, and verified before it becomes intelligence for planning purposes.
Intelligence relates to the specific details involving the activities of an incident or EOC, and current and expected conditions, and how they affect the actions taken to achieve operational period objectives.
Intelligence is primarily intended for internal use and not for public dissemination.
Intelligence/Investigations: Intelligence gathered within the Intelligence/Investigations function is information that either leads to the detection, prevention, apprehension, and prosecution of criminal activities (or the individual(s) involved) including terrorist incidents or information that leads to determination of the cause of a given incident (regardless of the source) such as public health events or fires with unknown origins. This is different from the normal operational and situational intelligence gathered and reported by the Planning Section.
Joint Information Center (JIC): A facility established to coordinate all incident-related public information activities. It is the central point of contact for all news media. Public information officials from all participating agencies should co-locate at the JIC.
Jurisdiction: A range or sphere of authority. Public agencies have jurisdiction at an incident related to their legal responsibilities and authority. Jurisdictional authority at an incident can be political or geographical (e.g., federal, state, tribal, and local boundary lines) or functional (e.g., law enforcement, public health).
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Key Resources: Any publicly or privately controlled resources essential to the minimal operations of the economy and government.
Local Government: According to federal code36a county, municipality, city, town, township, local public authority, school district, special district, intrastate district, council of governments (regardless of whether the council of governments is incorporated as a nonprofit corporation under state law), regional or interstate government entity, or agency or instrumentality of a local government; an Indian tribe or authorized tribal entity, or in Alaska a Native village or Alaska Regional Native Corporation; a rural community, unincorporated town or village, or other public entity.
Logistics: Providing resources and other services to support incident management.
Logistics Section: The section responsible for providing facilities, services, and material support for an incident or EOC activation.
Management Staff: See Command Staff.
Mitigation: Provide a critical foundation in the effort to reduce the loss of life and property from natural and/or human-caused disasters by avoiding or lessening the impact of a disaster and providing value to the public by creating safer communities. Mitigation seeks to fix the cycle of disaster damage, reconstruction, and repeated damage. These activities or actions, in most cases, will have a long-term sustained effect.
Mobilization: The process and procedures used by all organizations - federal, state, tribal, and local - for activating, assembling, and transporting all resources that have been requested to respond to or support an incident.
Multiagency Coordination Group (MAC Group): Typically, administrators/executives, or their appointed representatives, who are authorized to commit agency resources and funds, are brought together and form MAC Groups. MAC Groups may also be known as multiagency committees, emergency management committees, or as otherwise defined. It can provide coordinated decision-making and resource allocation among cooperating agencies and may establish the priorities among incidents, harmonize agency policies, and provide strategic guidance and direction to support incident management activities.
Multiagency Coordination System(s) (MACS): Multiagency coordination systems provide the architecture to support coordination for incident prioritization, critical resource allocation, communications systems integration, and information coordination. The elements of multiagency coordination systems include facilities, equipment, personnel, procedures, and communications. Two of the most commonly used elements are EOC and MAC Groups. These systems assist agencies and organizations responding to an incident. Mutual Aid Agreements and/or Assistance Agreements: Written or oral agreements between and among agencies/organizations and/or jurisdictions that provide a mechanism to quickly obtain emergency assistance in the form of personnel, equipment, materials, and other associated services. The primary objective is to facilitate rapid, short-term deployment of emergency support prior to, during, and/or after an incident.
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Mutual Aid Coordinator: An individual at the local government, Operational Area, Region or State Level that is responsible to coordinate the process of requesting, obtaining, processing, and using mutual aid resources. Mutual Aid Coordinator duties will vary depending upon the mutual aid system.
Mutual Aid Region: A mutual aid region is a subdivision of Cal OES established to assist in the coordination of mutual aid and other emergency operations within a geographical area of the state, consisting of two or more Operational Areas.
National: Of a nationwide character, including the federal, state, tribal, and local aspects of governance and policy.
National Incident Management System (NIMS): Provides a systematic, proactive approach guiding government agencies at all levels, the private sector, and non-governmental organizations to work seamlessly to prevent, protect against, 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.
National Response Framework (NRF): A guide to how the nation conducts all-hazards incident management. Non-governmental Organization (NGO): An entity with an association based on the interests of its members, individuals, or institutions. It is not created by a government, but it may work cooperatively with the government. Such organizations serve a public purpose, not a private benefit. Examples of NGO include faith-based charity organizations and the ARC.
Officer: 1) The ICS title for the personnel responsible for the Command Staff (Management Staff at EOC) positions of Safety, Liaison, and Public Information. 2) One who holds an office or post; especially one elected or appointed to a position of authority or trust in a corporation, government, institution, etc.
Operational Area (OA): An intermediate level of the state emergency organization, consisting of a county and all other political subdivisions within the geographical boundaries of the county.
Operational Period: The time scheduled for executing a given set of operation actions, as specified in the Incident Action Plan. Operational periods can be of various lengths, although usually last 12-24 hours.
Operations Section: The section responsible for all tactical incident operations and implementation of the Incident Action Plan. In ICS, it normally includes subordinate branches, divisions, and/or groups. At the SEMS EOC levels, the section is responsible for the coordination of operational activities. The Operations Section at an EOC contains branches, groups, or units necessary to maintain appropriate span of control.
Organization: Any association or group of persons with like objectives. Examples include, but are not limited to, governmental departments and agencies, private sector, and/or non-governmental organizations.
Planning Section: The section responsible for the collection, evaluation, and dissemination of operational information related to the incident or EOC activities and for the preparation and documentation of the IAP or EOC action plan, respectively. This section also maintains information on the current and forecasted situation and on the status of resources assigned to the incident or EOC activation.
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Political Subdivisions: Includes any city, city and county, county, tax or assessment district, or other legally authorized local governmental entity with jurisdictional boundaries.
Preparedness: A continuous cycle of planning, organizing, training, equipping, exercising, evaluating, and taking corrective action in an effort to ensure effective coordination during incident response. Within NIMS, preparedness focuses on the following elements: planning, procedures and protocols, training and exercises, personnel qualification and certification, and equipment certification.
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.
Private Sector: Organizations and entities that are not part of any governmental structure. The private sector includes for-profit and not-for-profit organizations, formal and informal structures, commerce, and industry.
Protocols: Sets of established guidelines for actions (which may be designated by individuals, teams, functions, or capabilities) under various specified conditions.
Public Information: Processes, procedures, and systems for communicating timely, accurate, and accessible information on the incident’s cause, size, and current situation; resources committed; and other matters of general interest to the public, responders, and additional stakeholders (both directly affected and indirectly affected).
Public Information Officer (PIO): A member of the Command Staff (Management Staff at the SEMS EOC Levels) responsible for interfacing with the public and media and/or with other agencies with incidentrelated information requirements.
Recovery: The development, coordination, and execution of service- and site-restoration plans; the reconstitution of government operations and services; individual, private–sector, non-governmental, and public assistance programs to provide housing and to promote restoration; long-term care and treatment of affected persons; additional measures for social, political, environmental, and economic restoration; evaluation of the incident to identify lessons learned; post-incident reporting; and development of initiatives to mitigate the effects of future incidents.
Regional Emergency Operations Center (REOC): Facilities found at Cal OES Administrative Regions. REOC provide centralized coordination of resources among Operational Areas within their respective regions and between the Operational Areas and the State Level.
Reimbursement: Provide a mechanism to recoup funds expended for incident-specific activities.
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Resource Management: Efficient emergency management and incident response requires a system for identifying available resources at all jurisdictional levels to enable timely and unimpeded access to resources needed to prepare for, respond to, or recover from an incident. Resource management under NIMS includes mutual aid agreements and assistance agreements; the use of special federal, state, tribal, and local teams; and resource mobilization protocols.
Resources: Personnel and major items of equipment, supplies, and facilities available or potentially available for assignment to incident operations and for which status is maintained. Resources are described by kind and type and may be used in operational support or supervisory capacities at an incident or at an EOC.
Response: Activities that address the short-term, direct effects of an incident. Response includes immediate actions to save lives, protect property, and meet basic human needs. Response also includes the execution of EOP and of mitigation activities designed to limit the loss of life, personal injury, property damage, and other unfavorable outcomes. As indicated by the situation, response activities include applying intelligence and other information to lessen the effects or consequences of an incident; increased security operations; continuing investigations into nature and source of the threat; ongoing public health and agricultural surveillance and testing processes; immunizations, isolation, or quarantine; and specific law enforcement operations aimed at preempting, interdicting, or disrupting illegal activity, and apprehending actual perpetrators and bringing them to justice.
Response Personnel: Includes federal, state, territorial, tribal, sub-state regional and local governments, private sector organizations, critical infrastructure owners, and operators, NGO and all other organizations and individuals who assume an emergency management role. Also known as an Emergency Responder.
Safety Officer: A member of the Command Staff (Management Staff at the SEMS EOC Levels) responsible for monitoring incident operations and advising the IC on all matters relating to operational safety, including the health and safety of emergency responder personnel. The Safety Officer may have assistants.
Section: 1) The organizational level having responsibility for a major functional area of incident or EOC Management, (e.g., Operations, Planning, Logistics, Finance/Administration) and Intelligence/Investigations (if established). The section is organizationally situated between the branch and the Incident Command. 2) A separate part or division as: a. A portion of a book, treatise, or writing. b. A subdivision of a chapter. c. A division of law.
Situation Report: Often contains confirmed or verified information regarding the specific details relating to the incident.
Special District: A unit of local government (other than a city, county, or city and county) with authority or responsibility to own, operate, and maintain systems, programs, services, or projects [(as defined in California Code of Regulations (CCR) Section 2900(s)] for purposes of natural disaster assistance. This may include joint powers authority established under Section 6500 et. seq. of the California Code of Regulations.
Stafford Act: The Robert T. Stafford Disaster Relief and Emergency Assistance Act (Stafford Act) establishes the programs and processes for the federal government to provide disaster and emergency assistance to Union City, CA 76
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states, local governments, tribal nations, individuals, and qualified private nonprofit organizations. The provisions of the Stafford Act cover all hazards including natural disasters and terrorist events. Relevant provisions of the Stafford Act include a process for Governors to request federal disaster and emergency assistance from the President. The President may declare a major disaster or emergency.
Standard Operating Procedure (SOP): Complete reference document or an operation manual that provides the purpose, authorities, duration, and details for the preferred method of performing a single function or several interrelated functions in a uniform manner.
Standardized Emergency Management System (SEMS): A system required by California Government Code and established by regulations for managing response to multiagency and multijurisdictional emergencies in California. SEMS consists of five organizational levels, which are activated as necessary: Field Response, Local Government, Operational Area, Region, and State.
Standardized Emergency Management System (SEMS) Guidelines: The SEMS guidelines are intended to assist those responsible for planning, implementing, and participating in SEMS.
Standardized Emergency Management System (SEMS) Regulations: Regulations establishing the Standardized Emergency Management System (SEMS) based upon the Incident Command System (ICS) adapted from the system originally developed by the Firefighting Resources of California Organized for Potential Emergencies (FIRESCOPE) program including those currently in use by State agencies, the Multiagency Coordination System (MACS) as developed by FIRESCOPE program, the Operational Area concept, and the Master Mutual Aid Agreement and related mutual aid systems. Regulations are found at Title XIX. Division 2. Chapter 1, Section 2400 et. seq.
State: When capitalized, refers to any State of the United States, the District of Columbia, the Commonwealth of Puerto Rico, the Virgin Islands, Guam, American Samoa, the Commonwealth of the Northern Mariana Islands, and any possession of the United States. See Section 2 (14), Homeland Security Act of 2002, Public Law 107−296, 116 Stat. 2135 (2002).
State Operations Center (SOC): The SOC is operated by the California Governor’s Office of Emergency Services at the State Level in SEMS. It is responsible for centralized coordination of state resources in support of the three Regional Emergency Operations Centers (REOC). It is also responsible for providing updated situation reports to the Governor and Legislature.
Strategy: The general plan or direction selected to accomplish incident objectives.
System: An integrated combination of people, equipment, and processes that work in a coordinated manner to achieve a specific desired output under specific conditions.
Technical Assistance: Support provided to state, tribal, and local jurisdictions when they have the resources, but lack the complete knowledge and skills needed to perform a required activity (such as mobile-home park design or hazardous material assessments).
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Technical Specialists: Personnel with special skills that can be used anywhere within the SEMS organization.
No minimum qualifications are prescribed, as technical specialists normally perform the same duties during an incident that they perform in their everyday jobs and they are typically certified in their fields or professions.
Terrorism: Under the Homeland Security Act of 2002, terrorism is defined as activity that involves an act dangerous to human life or potentially destructive of critical infrastructure or key resources; is a violation of the criminal laws of the United States or of any state or other subdivision of the United States in which it occurs; and is intended to intimidate or coerce the civilian population, or influence or affect the conduct of a government by mass destruction, assassination, or kidnapping. See Section 2 (15), Homeland Security Act of 2002, Public Law107−296, 116 Stat. 2135 (2002).
Threat: An indication of possible violence, harm, or danger.
Tools: Those instruments and capabilities that allow for the professional performance of tasks, such as information systems, agreements, doctrine, capabilities, and legislative authorities.
Unified Command: An ICS 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 IAP.
Unit: The organizational element with functional responsibility for a specific incident planning, logistics, or finance/administration activity.
Vital Records: The essential agency records needed to meet operational responsibilities under national security emergencies or other emergency or disaster conditions (emergency operating records), or to protect the legal and financial rights of the Government and those affected by Government activities (legal and financial rights records).
Volunteer: For purposes of NIMS, a volunteer is any individual accepted to perform services by the lead agency (which has authority to accept volunteer services) when the individual performs services without promise, expectation, or receipt of compensation for services performed. See 16 U.S.C. 742f(c) and 29 CFR 553.101.