Consolidated City of Jacksonville/ Duval County, Florida

Transcription

Consolidated City of Jacksonville/
Duval County, Florida
Comprehensive Emergency Management Plan
November 2010
CONSOLIDATED CITY OF JACKSONVILLE/DUVAL COUNTY, FLORIDA
COMPREHENSIVE EMERGENCY MANAGEMENT PLAN
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The Consolidated City of Jacksonville/Duval County, Florida
Including the municipalities of:
Atlantic Beach, Jacksonville Beach, Neptune Beach, and Baldwin
TABLE OF CONTENTS
TABLE OF CONTENTS...................................................................................................................................... 1
LIST OF FIGURES & TABLES ....................................................................................................................................... 6
EXECUTIVE SUMMARY ................................................................................................................................... 9
BASIC PLAN ................................................................................................................................................. 11
INTRODUCTION ...................................................................................................................................................11
Basic Plan................................................................................................................................................11
Hazard Specific Plans (HSPs) ................................................................................................................11
Interagency Coordinating Procedures (ICPs)....................................................................................13
ICPs ............................................................................................................................................................................. 13
Position Specific Guides (PSGs)............................................................................................................14
PURPOSE ............................................................................................................................................................14
SCOPE ...............................................................................................................................................................15
METHODOLOGY .................................................................................................................................................16
PROMULGATION .................................................................................................................................................19
SITUATION .................................................................................................................................................... 20
HAZARDS ANALYSIS.............................................................................................................................................20
Winds from Tropical Cyclones ..............................................................................................................20
Storm Surge.............................................................................................................................................25
Floods ......................................................................................................................................................27
Hazardous Materials Spills .....................................................................................................................30
Extreme Temperatures ..........................................................................................................................31
Brush, Wildfires and Forest Fires.............................................................................................................32
Thunderstorms and Tornadoes.............................................................................................................32
Drought ...................................................................................................................................................33
Terrorism ..................................................................................................................................................33
Critical Infrastructure Disruption ...........................................................................................................33
Hazard Prioritization Process .................................................................................................................33
GEOGRAPHIC INFORMATION ...............................................................................................................................37
Geographic Characteristics.................................................................................................................37
Existing Land Use Characteristics.........................................................................................................37
Surface Water System ...........................................................................................................................39
Flood Plain Areas ..................................................................................................................................................... 39
Flood Hazard Areas ................................................................................................................................................. 39
Transportation Network .........................................................................................................................40
DEMOGRAPHICS.................................................................................................................................................41
Duval County Farm Worker Population ..............................................................................................44
Duval County Annual/Seasonal Tourist Population ...........................................................................44
Duval County Special Needs Population ...........................................................................................45
Duval County Hearing Loss/Impairment Population .........................................................................46
Duval County Transient Population .....................................................................................................46
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Geographic Mobility .............................................................................................................................48
Education ...............................................................................................................................................49
Manufactured Homes...........................................................................................................................50
ECONOMIC PROFILE ...........................................................................................................................................53
Industries .................................................................................................................................................55
Occupational Characteristics..............................................................................................................56
Commuting ............................................................................................................................................56
Poverty Rates in Duval County.............................................................................................................56
Housing Characteristics ........................................................................................................................59
Occupied Housing Units .......................................................................................................................59
Housing Costs .........................................................................................................................................59
Potential Economic Impacts of Hazards.............................................................................................60
Employment and per Capita Income ................................................................................................................. 60
Average Property Values ....................................................................................................................................... 61
EMERGENCY MANAGEMENT SUPPORT FACILITIES ...................................................................................................61
Public Works/Parks and Recreation Disaster Equipment Staging Areas.........................................61
POD SITE LOCATIONS LIST ...................................................................................................................................69
CONCEPT OF OPERATIONS ......................................................................................................................... 70
NATIONAL INCIDENT MANAGEMENT SYSTEM (NIMS) .............................................................................................70
NIMS Components.................................................................................................................................71
Command and Management.............................................................................................................................. 71
Preparedness............................................................................................................................................................ 71
Resource Management ......................................................................................................................................... 72
Communications and Information Management............................................................................................. 72
Supporting Technologies ........................................................................................................................................ 72
Ongoing Management and Maintenance........................................................................................................ 73
INCIDENT COMMAND SYSTEM ..............................................................................................................................73
Concepts and Principles.......................................................................................................................73
Most Incidents Are Managed Locally .................................................................................................................. 73
ICS Is Modular and Scalable.................................................................................................................................. 74
ICS Has Interactive Management Components ............................................................................................... 74
ICS Establishes Common Terminology ................................................................................................................. 74
ICS Incorporates Measurable Objectives............................................................................................................ 74
ICS Should Be User Friendly..................................................................................................................................... 74
Management Characteristics..............................................................................................................75
Common Terminology ............................................................................................................................................ 75
Modular Organization............................................................................................................................................. 75
Management by Objectives ................................................................................................................................. 75
Reliance on an Incident Action Plan ................................................................................................................... 75
Manageable Span of Control ............................................................................................................................... 76
Pre-designated Incident Locations and Facilities.............................................................................................. 76
Comprehensive Resource Management ........................................................................................................... 76
Integrated Communications ................................................................................................................................. 76
Establishment and Transfer of Command ........................................................................................................... 76
Chain of Command and Unity of Command .................................................................................................... 77
Unified Command ................................................................................................................................................... 77
Accountability .......................................................................................................................................................... 77
Deployment .............................................................................................................................................................. 77
Information and Intelligence Management....................................................................................................... 77
ORGANIZATIONAL SYSTEM ...................................................................................................................................78
NORMAL, NON-EMERGENCY OPERATIONS ...........................................................................................................80
Emergency Preparedness Division Organizational Structure ...........................................................80
INCREASED READINESS PROCEDURES ....................................................................................................................81
EMERGENCY OPERATIONS ...................................................................................................................................84
Structure..................................................................................................................................................85
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Emergency Operations Center Activation Levels .............................................................................88
OPERATIONS RESPONSIBILITIES ..............................................................................................................................88
General ...................................................................................................................................................88
Role of the Consolidated City of Jacksonville/Duval County..........................................................89
Specific Responsibilities of the Mayor .................................................................................................89
Emergency Response Organization....................................................................................................92
Executive Group ...................................................................................................................................................... 92
EOC Management Team....................................................................................................................................... 93
Lead agencies .......................................................................................................................................94
Participating Role or Agency ................................................................................................................................ 95
EOC/Area Command Functional Branch/Groups/Units ..................................................................99
Operations Section Overview ............................................................................................................................... 99
Law Enforcement Branch..................................................................................................................................... 100
Fire Branch .............................................................................................................................................................. 100
HAZMAT Branch...................................................................................................................................................... 101
Health & Medical Branch ..................................................................................................................................... 101
Sheltering Branch ................................................................................................................................................... 102
Bulk Distribution Branch......................................................................................................................................... 103
Mass Care Branch.................................................................................................................................................. 103
Temporary Housing Branch .................................................................................................................................. 104
Animal Issues Branch ............................................................................................................................................. 104
Public Works Branch .............................................................................................................................................. 105
Utilities Branch......................................................................................................................................................... 105
Telecommunications Branch ............................................................................................................................... 106
Corporate Recovery Branch ............................................................................................................................... 106
Transportation Branch........................................................................................................................................... 107
Logistics Section Overview................................................................................................................................... 107
Food Unit ................................................................................................................................................................. 108
Ground Support Unit.............................................................................................................................................. 108
Communications Unit............................................................................................................................................ 109
Fuel Unit ................................................................................................................................................................... 109
Facilities Unit............................................................................................................................................................ 109
Donations Unit ........................................................................................................................................................ 110
Supply Unit............................................................................................................................................................... 110
Volunteer Reception Center Unit ....................................................................................................................... 110
Planning Section Overview .................................................................................................................................. 111
Technical Specialists.............................................................................................................................................. 111
Documentation Unit .............................................................................................................................................. 112
Resources Unit ........................................................................................................................................................ 112
Situation Unit ........................................................................................................................................................... 112
Damage Assessment Unit..................................................................................................................................... 112
GIS Unit..................................................................................................................................................................... 113
Finance/Administration Section Overview........................................................................................................ 113
Time Unit .................................................................................................................................................................. 114
Cost Unit .................................................................................................................................................................. 114
Compensation/Claims Unit.................................................................................................................................. 114
Procurement Unit ................................................................................................................................................... 115
Public Information Officer .................................................................................................................................... 115
Liaison Officer ......................................................................................................................................................... 116
Safety Officer.......................................................................................................................................................... 116
Complexes and Divisions ....................................................................................................................117
Response...............................................................................................................................................119
Notification and Warning ..................................................................................................................................... 119
Issuance of Executive Orders and Proclamations ........................................................................................... 120
The Planning Process............................................................................................................................................. 120
Logistics.................................................................................................................................................................... 124
Evacuation.............................................................................................................................................................. 125
Sheltering................................................................................................................................................................. 125
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Emergency Evacuation Assistance .................................................................................................................... 126
Transportation......................................................................................................................................................... 126
Needs Assessment/Incident Management Software System........................................................................ 128
Citizen Corps........................................................................................................................................................... 129
Mutual Aid Agreements and Memoranda of Understanding .......................................................129
Introduction ............................................................................................................................................................ 129
Mutual Aid Requests.............................................................................................................................................. 130
Responding to a Mutual Aid Request ................................................................................................................ 130
Recovery...............................................................................................................................................132
Introduction ............................................................................................................................................................ 132
Transition from Response to Recovery ............................................................................................................... 133
Recovery Functions ............................................................................................................................................... 134
Damage Assessment............................................................................................................................................. 134
Infrastructure & Public Assistance ....................................................................................................................... 139
Individual Assistance ............................................................................................................................................. 143
Emergency/Disaster Support Other Than Public Assistance or Individual Assistance ............................... 146
Hazard Mitigation ................................................................................................................................147
Introduction ............................................................................................................................................................ 147
Lead Agency.......................................................................................................................................................... 148
City of Jacksonville Business Plan ........................................................................................................................ 148
2010 Comprehensive Plan ................................................................................................................................... 148
Community Emergency Preparedness Initiatives ............................................................................................ 148
Pre-Disaster Hazard Mitigation Activities............................................................................................................ 149
Pre-Disaster Hazard Mitigation Functions .......................................................................................................... 151
Post-Disaster Hazard Mitigation Activities.......................................................................................................... 151
Post-Disaster Hazard Mitigation Functions......................................................................................................... 152
Concept of Operations ........................................................................................................................................ 152
Planning Assumptions............................................................................................................................................ 155
Coordination of Mitigation Activities.................................................................................................................. 155
Coordination of Mitigation Activities with Municipalities and the State...................................................... 156
Mitigation Assessment........................................................................................................................................... 156
Equipment and Resources Necessary for Mitigation Assessment................................................................. 156
Local Agencies with Supporting Roles in Mitigation Assessment .................................................................. 156
Training Procedures for Mitigation Personnel.................................................................................................... 157
Structural Hazard Mitigation Initiatives............................................................................................................... 157
Non-Structural Mitigation Activities..................................................................................................................... 157
Mitigation Memoranda of Understanding, Mutual Aid Agreements, or Inter-Local Agreements .......... 159
Local Government Status in the National Flood Insurance Program........................................................... 159
Process for Identifying Mitigation Opportunities in the Post-Disaster Environment .................................... 159
Process to Manage Mitigation Assistance Funds............................................................................................. 160
PREPAREDNESS ACTIVITIES..................................................................................................................................160
General issues ......................................................................................................................................160
CEMP Development and Maintenance............................................................................................................ 160
Preservation of Vital Records and Databases.................................................................................................. 160
Registration of Persons with Special Needs....................................................................................................... 161
Public Awareness & Education ..........................................................................................................161
Public Service Announcements .......................................................................................................................... 163
Recovery Information ........................................................................................................................................... 163
Mitigation Opportunities ....................................................................................................................................... 163
Maps of Evacuation Zones and Routes ............................................................................................................. 163
Exercises ................................................................................................................................................167
Training ..................................................................................................................................................168
FINANCIAL MANAGEMENT ....................................................................................................................... 174
INTERAGENCY AGREEMENTS ..............................................................................................................................176
OTHER FINANCIAL AGREEMENTS ........................................................................................................................176
REFERENCES & AUTHORITIES...................................................................................................................... 178
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STATE OF FLORIDA .............................................................................................................................................178
CONSOLIDATED CITY OF JACKSONVILLE/DUVAL COUNTY ....................................................................................178
STATUTORY FISCAL PROCEDURES ........................................................................................................................179
Ordinance Code 674.209 – Compensation, Reimbursement........................................................180
STANDARD OPERATING PROCEDURES REFERENCES APPLYING TO THE CEMP.........................................................180
POLICIES ..........................................................................................................................................................181
ORDINANCES AND ADMINISTRATIVE RULES ..........................................................................................................183
State of Florida Statutes ......................................................................................................................183
Federal ..................................................................................................................................................184
Administrative Rules, State of Florida ................................................................................................185
Administrative Rules, Federal .............................................................................................................186
Presidential Directives, Federal ..........................................................................................................186
Duval County Ordinances ..................................................................................................................186
RECORD OF CHANGES OR REVISIONS ..................................................................................................... 188
DISTRIBUTION LIST ...................................................................................................................................... 192
ATTACHMENT 1: ORDINANCE CODE, CHAPTER 674................................................................................ 194
ATTACHMENT 2: RESOLUTION/PROMULGATION LETTER........................................................................... 216
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LIST OF FIGURES & TABLES
FIGURE 1: STRUCTURE OF CEMP ..............................................................................................................................12
FIGURE 2: DUVAL COUNTY WIND SPEED ZONES .........................................................................................................22
FIGURE 3: ALL MAJOR HURRICANES WITHIN 65 NM OF DUVAL CO. 1851-2008..........................................................23
FIGURE 4: ALL HURRICANES WITHIN 65 NM OF DUVAL CO. 1851-2008 ......................................................................23
FIGURE 5: POPULATION VS. HURRICANES ...................................................................................................................24
FIGURE 6: NORTHEAST FLORIDA HURRICANES 1565-1899 ..........................................................................................26
FIGURE 7: 100-YEAR FLOODPLAIN ............................................................................................................................28
FIGURE 8: COASTAL HIGH HAZARD AREAS ................................................................................................................29
FIGURE 9: HURRICANE EVACUATION ZONES...............................................................................................................30
FIGURE 10: JACKSONVILLE DAILY TEMPERATURES .......................................................................................................32
FIGURE 11: AGE DISTRIBUTION OF PEOPLE IN DUVAL COUNTY.....................................................................................41
FIGURE 12: DUVAL COUNTY POPULATION DENSITY & DISTRIBUTION .............................................................................42
FIGURE 13: DUVAL COUNTY POPULATION DISTRIBUTION BY AGE/GENDER ...................................................................43
FIGURE 14: DUVAL COUNTY SPECIAL NEEDS POPULATION DISTRIBUTION ......................................................................45
FIGURE 15: TYPES OF HOUSEHOLDS IN DUVAL COUNTY ..............................................................................................48
FIGURE 16: GEOGRAPHIC MOBILITY OF RESIDENT ......................................................................................................49
FIGURE 17: EDUCATIONAL ATTAINMENT ....................................................................................................................50
FIGURE 18: MANUFACTURED HOME PARKS IN DUVAL COUNTY ...................................................................................51
FIGURE 19: CORRECTIONAL FACILITY POPULATION ....................................................................................................52
FIGURE 20: EMPLOYMENT BY INDUSTRY ......................................................................................................................56
FIGURE 21: POVERTY RATES IN DUVAL COUNTY .........................................................................................................58
FIGURE 22: TYPES OF HOUSING UNITS IN DUVAL COUNTY ...........................................................................................58
FIGURE 23: OCCUPANTS WITH A HOUSING COST BURDEN IN DUVAL COUNTY ..............................................................60
FIGURE 24: EMERGENCY HELICOPTER LANDING ZONES ..............................................................................................62
FIGURE 25: DUVAL COUNTY HURRICANE SHELTERS .....................................................................................................63
FIGURE 26: DUVAL COUNTY FIRE STATIONS ...............................................................................................................64
FIGURE 27: DUVAL COUNTY MILITARY BASES .............................................................................................................65
FIGURE 28: DUVAL COUNTY HOSPITALS ....................................................................................................................66
FIGURE 29: DUVAL COUNTY EVACUATION ROUTES ....................................................................................................67
FIGURE 30: DUVAL COUNTY POINTS-OF-DISTRIBUTION (PODS) ..................................................................................68
FIGURE 31B: EMERGENCY PREPAREDNESS DIVISION ORGANIZATIONAL CHART.............................................................81
FIGURE 32: EOC/AREA COMMAND ORGANIZATIONAL CHART .................................................................................87
FIGURE 33: LEAD AGENCY MATRIX...........................................................................................................................96
FIGURE 34: COMPLEX COMMAND MAP .................................................................................................................117
FIGURE 35: COMPLEX COMMAND TABLE OF ORGANIZATION ...................................................................................118
FIGURE 36: ICS PLANNING PROCESS ......................................................................................................................121
FIGURE 37: THE PLANNING “P” ..............................................................................................................................122
FIGURE 38: RESPONSE TO RECOVERY CURVE ...........................................................................................................134
FIGURE 39: LMS PLANNING PROCESS .....................................................................................................................150
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TABLE 1: SAFFIR-SIMPSON HURRICANE WIND SCALE .......................................................................................................... 20
TABLE 2: DUVAL COUNTY HAZARD ANALYSIS / VULNERABILITY, PROBABILITY, RISK ASSESSMENT TABLE (1998-2008) –
VULNERABILITY TO HAZARD BY COMMUNITY ............................................................................................................. 35
TABLE 3: DUVAL COUNTY FARM WORKER POPULATION .................................................................................................... 44
TABLE 4: DUVAL COUNTY NON-ENGLISH SPEAKING POPULATION ..................................................................................... 45
TABLE 5: DEMOGRAPHIC DESCRIPTION OF DUVAL COUNTY'S POPULATION....................................................................... 46
TABLE 6: ECONOMIC CHARACTERISTICS ............................................................................................................................ 53
TABLE 7: DISASTER EQUIPMENT STAGING AREAS ................................................................................................................ 61
TABLE 8: PLANNING ROLES AND RESPONSIBILITIES........................................................................................................... 121
TABLE 9: DUVAL COUNTY STRUCTURAL MITIGATION INITIATIVES ....................................................................................... 157
TABLE 10: DUVAL COUNTY NON-STRUCTURAL MITIGATION INITIATIVES ........................................................................... 158
TABLE 11: PUBLIC EDUCATION AND AWARENESS EVENTS ................................................................................................. 163
TABLE 12: RECOMMENDED TRAINING .............................................................................................................................. 169
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EXECUTIVE SUMMARY
The Comprehensive Emergency Management Plan (CEMP) establishes the organizational
and procedural framework to ensure that the Consolidated City of Jacksonville/Duval
County will be adequately prepared to deal with all hazards threatening the lives and
property of Duval County citizens. The CEMP outlines the responsibilities and coordination
mechanisms of County agencies, municipalities, and other taxing districts in a disaster. The
CEMP also coordinates response and recovery activities with voluntary organizations
active in disasters and the business community. The plan unifies the efforts of these groups
for a comprehensive approach to reducing the effects of a disaster.
The Plan addresses the four phases of emergency management (preparedness, response,
recovery, and mitigation), parallels state activities outlined in the State of Florida CEMP,
federal activities set forth in the “National Response Plan,” and describes how local, state,
and national resources will be coordinated to supplement local response and recovery
capability. The CEMP is in compliance with the criteria issued by the State of Florida
Division of Emergency Management (FDEM), Chapter 9G-20, F.A.C., pursuant to F.S. §252.
The CEMP is both a planning and an operations-based document that provides guidance
for all aspects of emergency management. The CEMP is organized into four essential
elements: The Basic Plan including a mitigation component and two (2) annexes that
address Hazard Specific Plans (HSPs), and Interagency Coordinating Procedures (ICPs).
The Consolidated City of Jacksonville/Duval County Fire & Rescue Department Emergency
Preparedness Division extends its appreciation to all partner organizations who
participated in the planning effort to create this document.
Martin Senterfitt, Chief
Emergency Preparedness Division
Jacksonville Fire & Rescue Department
515 N. Julia Street, Suite #400
Jacksonville, FL 32202
(904) 630-2472
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BASIC PLAN
INTRODUCTION
The Consolidated City of Jacksonville/Duval County is vulnerable to a variety of hazards
that threaten our population, businesses and the environment. The Comprehensive
Emergency Management Plan (CEMP) establishes the framework, as authorized by
Chapter 252, Florida Statutes, to ensure that City of Jacksonville/Duval County is prepared
to deal with “all hazards.” The CEMP emphasizes action within the four phases of the
Emergency Management cycle: Preparedness, Response, Recovery and Mitigation.
The CEMP defines the functional roles and responsibilities of each government entity that
partners in the City of Jacksonville/Duval County’s disaster organization and their
relationship to each other. In addition, the Consolidated City of Jacksonville/Duval
County’s CEMP provides a comprehensive approach to reducing the effects of disasters
on its population and physical environment.
As outlined in Figure 1 on the next page, the CEMP is divided into three sections: The Basic
Plan including a mitigation component and two (2) annexes that address Hazard Specific
Plans (HSPs), and Interagency Coordinating Procedures (ICPs). The following describes
each section:
Basic Plan
The Basic Plan outlines the general purpose, scope and methodology of the plan;
coordination, control and organizational structure; concept of operations, and identifies
responsibilities of all agencies and resources mobilized by the county to assist in recovering
from a disaster. The CEMP enables the Consolidated City of Jacksonville/Duval County to
discharge its responsibility for providing direction and control during any large-scale
disaster.
Hazard Specific Plans (HSPs)
This section of the CEMP includes plans that are specific to unique hazards or risks that will
be utilized by all agencies. Hazard specific plans are based on the Consolidated City of
Jacksonville/Duval County’s vulnerability to specific hazards discussed in the situation
section of the basic plan. These hazard specific plans identify only specific elements
unique to the hazard:
Civil Unrest HSP
Flood HSP
HAZMAT HSP
Hurricane HSP
Infectious Disease Pandemic HSP
Mass Casualty Incident HSP
Severe Weather HSP
Special Event HSP
Tornado HSP
Wildfire HSP
Terrorism Response HSP
BioWatch
Radiological Plan
Biological Response
Chemical Response
MMRS
Improvised Explosive Device
Specific responsibilities, tasks or functions that will be carried out before, during and after a
disaster or emergency are addressed in the hazard specific plans.
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Figure 1: Structure of CEMP
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Interagency Coordinating Procedures (ICPs)
This section of the CEMP includes numerous Interagency Coordinating Procedures (ICPs).
Interagency Coordinating Procedures detail by name and organization the lead,
participating, and coordinating entities and their roles and responsibilities in the four
phases of an emergency or disaster. Each Interagency Coordinating Procedure outlines
specific tasks or “functional” procedures that are generic to all agencies regardless of the
hazard. These tasks utilize the Incident Command System (ICS) concept of the National
Incident Management System (NIMS). These Interagency Coordinating Procedures may
also include job aids where specific tasks for coordinating entities are described in detail.
For the purposes of simplicity, the ICP section has been subdivided into two sections:
ICPs
These ICPs are clearly functional Interagency Coordinating Procedures; they address a
specific function 1:
• Bridge Closure ICP
• Bulk Distribution ICP
• City/County Government Closure ICP
• Complex Command ICP
• County Staging Area ICP
• Damage Assessment ICP
• Debris Management ICP
• Downtown Evacuation ICP
• Emergency Communications ICP
• Emergency Notifications ICP
• Evacuation ICP
• Facilities Management ICP
• Fuel Plan ICP
• Hospital Hurricane Evacuation ICP
• Human Needs Assessment ICP
• Incident Command ICP
• Incident Management Team ICP
• Mass Fatality ICP
• Mass Feeding ICP
• Mutual Aid Reception Point ICP
• Pet-Friendly Shelter ICP
• Resources Management ICP
• Search & Rescue ICP
• Sheltering ICP
• Special Events Public Safety ICP
• Special Needs & Adopt-a-Shelter ICP
• Stadium Emergency Operations Plan
• Strategic National Stockpile ICP
• Tactical Interoperable Communications ICP
• Traffic Management ICP
• Transportation ICP
0F
1
This list of ICPs, as well as the list of EOC PSGs, may be subject to change.
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These ICPs are Interagency Coordinating Procedures that are assigned to each function
of the ICS structure within the Emergency Operation Center (EOC)/Area Command (see
Figures 1 and 32).
Operations Section ICP
Planning Section ICP
Logistics Section ICP
Public Information ICP
Finance/Admin Section ICP
Position Specific Guides (PSGs)
Position Specific Guides (PSGs) are procedures or guidelines that are ICS position-specific
and utilized by that position in the EOC to accomplish the functions, missions, or activities
outlined by corresponding HSPs or ICPs. PSGs typically include position specific checklists
where specific tasks for individual positions are described in detail.
PURPOSE
The CEMP is both a planning and an operations-based document that provides guidance
for all aspects of emergency management including, disaster preparedness; evacuation
and sheltering; warning and notification; public education and information; resource
management; mutual aid; Special Needs Program; impact and damage assessment;
debris management; training and exercises; and post-disaster recovery programs. The
CEMP establishes official emergency management policy for all county agencies and
municipalities in response to, recovery from, and mitigation of emergencies and disasters
within the Consolidated City of Jacksonville/Duval County.
The CEMP initiates a
temporary re-organization of government intended to provide the most efficient response
and recovery system possible through the coordination and maximum utilization of all
available resources.
The CEMP establishes a framework for an effective system of comprehensive emergency
management, for the purpose of:
Reducing loss of life, injury, and property damage and loss resulting from natural or manmade emergencies;
Preparing for prompt and efficient response and recovery activities to protect lives and
property impacted by emergencies;
Responding to emergencies with the effective use of all relevant plans and resources
deemed appropriate;
Recovering from emergencies by providing for the rapid and orderly implementation of
restoration and rehabilitation programs for persons and properties affected by
emergencies;
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Assisting in awareness, recognition, education, prevention and mitigation of emergencies
that may be caused or aggravated by inadequate planning for, and regulation of, public
and private facilities and land use; and
Implementing the Incident Command System (ICS) regardless of the magnitude of any
given incident or disaster.
SCOPE
The CEMP establishes the basic policies, assumptions and strategies for a comprehensive
all-hazards countywide Emergency Management Program.
The CEMP prioritizes protection of citizens as a first priority, with the preservation and
protection of property being the second priority.
The CEMP is applicable to minor, major or catastrophic disasters. It is flexible and
expandable, depending on the emergency situation and needs. Any part or section of
the plan may be utilized separately if required by the situation.
The CEMP establishes the procedures to coordinate with local, regional, state and federal
emergency management agencies, organizations and programs.
A unified direction and control structure is described. The CEMP identifies staff roles and
resource allocation, as well as decision-making criteria. It delineates lines of authority,
responsibilities and working relations of various entities.
The CEMP brings together county and municipal resources in a unified approach to
manage the disaster. In addition, it identifies a cooperative process for coordination of
private sector and volunteer resources.
The CEMP addresses management and prioritization of local resources and establishes the
procedure to request immediate assistance for resources, if needed. State and/or federal
resources will be requested and drawn from when local resources have been exhausted.
The CEMP provides a format for the shift of focus of the EOC/Area Command from
Response to Recovery and Mitigation. Long-range recovery and mitigation is addressed
by the ability of the EOC/Area Command to continue operations in a modified form, after
the response phase has been terminated.
The CEMP establishes an effective format for emergency management by:
Identifying the types of hazards that can occur within the Consolidated City of
Jacksonville/Duval County.
Determining the Consolidated City of Jacksonville/Duval County’s vulnerability to various
types of disasters and identifying the most threatening so that appropriate preparedness,
mitigation and planning steps can be taken.
Addressing each phase of the Emergency Management cycle:
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Preparedness: Utilizes lessons learned from previous disasters, locally and elsewhere, to
determine what is likely to occur during any particular type and intensity of disaster. Likely
community needs can be identified and prioritized. Adequate planning pre-determines
the best utilization of resources in responding to needs. Identification and training of
personnel for roles and responsibilities during the disaster is included in this phase. It
involves working with the private sector, residents and volunteer organizations to assist
them in pre-disaster education and planning activities to lessen the impact of disasters.
Response: The implementation of the CEMP. Government responds to emergencies by
activating its plan, incrementally increasing response as needed, giving direction and
control to the emergency management effort, and looking ahead to recovery.
Individuals respond by implementing their own disaster plans, whether it means
evacuating the area or remaining in place.
Private businesses and volunteer
organizations implement their plans to secure and protect their assets, and if capable,
make available resources to help the community.
Recovery: Begins as soon as possible, sometimes during the response phase.
The
emergency management organization initiates procedures to assess needs and resources,
establish priorities, reviews state and federal aid criteria and coordinates with
representatives from both levels of government. Once the extent of the recovery effort is
determined, the appointed recovery team members determine how best to manage the
specific activities, what resources and personnel will be required and what other actions
are needed to return the impacted areas to normal operations as quickly as possible.
Assessment of both short and long-term mitigation measures takes place during this phase
and the “after action” evaluation process is conducted.
Mitigation: This phase involves identifying preventative and/or corrective measures and
actions to prevent or limit bodily injury, loss or life or property damage from disasters. It
includes policy issues as well as structural projects within government and the private
sector. A separate Local Mitigation Strategy (LMS) serves as the guidance document for
both pre-disaster mitigation planning and post-disaster recovery.
METHODOLOGY
This plan was formulated via several processes:
• Emergency Preparedness Division staff reviewed after-action reports from disasters;
• Emergency Preparedness Division staff reviewed list of unresolved deficiencies;
• The Security and Emergency Preparedness Planning Council (SEPPC) heard
Hurricane Katrina after-action lessons learned and NIMS compliance requirements;
• Training sessions were provided to stakeholders (i.e., all lead and participating
agencies) in March, 2006 informing them of the general changes of the CEMP;
• Planning was formulated through the delivery of ICS-300 and ICS-400 courses to
numerous responder groups and personnel;
• Meetings were held with each functional component to review their respective
function within the CEMP;
• Several EOC functional and tabletop exercises were held in the Spring of 2006 to
test and evaluate initial drafts and concepts of the revised CEMP.
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•
•
Drafts were distributed and comments collected among selected agency and
responder representatives; and
National Incident Management System (NIMS) and National Response Framework
(NRF) concepts were integrated into the revised plan.
The CEMP is a dynamic “NIMS compliant” document that adapts to changes in policy,
priorities and needs.
State and federal statutes, regulations, and priorities guide
development of the document. Some of the public and private entities participating in
the development of this plan include:
• Consolidated City of Jacksonville/Duval County
• Amateur Radio Emergency Service
• American Red Cross, Northeast Florida Chapter
• Association of Contingency Planners, Northeast Florida Chapter
• Atlantic Beach Animal Control
• Atlantic Beach Police Department
• Beaches Energy Services
• BellSouth
• City of Atlantic Beach
• City of Jacksonville Beach
• City of Neptune Beach
• Civil Air Patrol
• Duval County Health Department
• Duval County Medical Examiner’s Office
• Duval County Property Appraiser
• Duval County School Board
• Emergency Services Homeless Coalition
• First Coast Disaster Council
• Florida Division of Emergency Management - Area 3 Coordinator
• Jacksonville Humane Society
• Jacksonville Airport Authority
• Jacksonville Beach Animal Control
• Jacksonville Beach Fire Department
• Jacksonville Beach Police Department
• Jacksonville Economic Development Commission
• Jacksonville Emergency Preparedness Division
• Jacksonville Fire & Rescue Department
• Jacksonville Port Authority
• Jacksonville Public Information Division
• Jacksonville Public Works Department
• Jacksonville Sheriff's Office
• Jacksonville Transportation Authority
• Jacksonville Veterinary Medical Society
• Jacksonville Zoological Gardens
• JEA
• Neptune Beach Animal Control
• Neptune Beach Police Department
• Northeast Florida Crisis Response Team
• Northeast Florida Regional Council
NOVEMBER 2010
17
•
•
•
•
•
•
•
•
Second Harvest Food Bank/Lutheran Social Services
SMG
The Salvation Army
Town of Baldwin
U.S. Coast Guard Sector Jacksonville
U.S. Naval Air Station Jacksonville
United Way of Northeast Florida
Hands-On Jacksonville
Local planning involvement includes:
•
•
•
•
•
•
A promulgation letter from the mayor displayed at the end of this document.
Multi-agency exercises each year.
Security and Emergency Preparedness Planning Council (SEPPC) meetings.
Emergency Coordination Officers Program.
Deficiency Measuring/Resolution Process.
Local Mitigation Strategy meetings.
The Emergency Preparedness Division (EPD) Chief is responsible for ensuring that all
changes have been distributed to recipients of the CEMP. The distribution list, displayed at
the end of this document is used to verify that all appropriate persons/offices are copied.
A Record of Changes Log, found at the end of this document (see page 188) is used to
record all major published changes of the CEMP. The holder of the copy is responsible for
making the appropriate changes and updating the log.
A master copy of the CEMP, with a Record of Revisions, is maintained in the Emergency
Preparedness Division’s office. A comparison of the master copy with any other will allow
a determination to be made as to whether or not the copy in question has been posted
to it with all appropriate changes.
NOVEMBER 2010
18
PROMULGATION
As discussed above, this CEMP is divided into four sections: The Basic Plan including a
mitigation component and two (2) annexes that address Hazard Specific Plans (HSPs), and
Interagency Coordinating Procedures (ICPs). For the purposes of Chapter 252.38, F.S., and
9G-6.0023, F.A.C., the Basic Plan and the mitigation component shall be considered the
Duval County Comprehensive Emergency Management Plan (CEMP), and shall be
approved by the Jacksonville City Council. The Basic Plan and the mitigation component
provide an overview of the emergency management system; its primary audience is
executives, emergency managers, departmental directors, and anyone interested in
reviewing or learning about broad concepts of emergency operations in the
Consolidated City of Jacksonville/Duval County. It is expected that the content within
these sections will change infrequently.
On the other hand, by their very nature, the content within the two (2) annexes that
address Hazard Specific Plans (HSPs), and Interagency Coordinating Procedures (ICPs), will
likely change frequently. As such, in order to remain timely and accurate, the HSPs are
approved by the Security and Emergency Preparedness Planning Council (SEPPC) and
ICPs are approved by the Jacksonville Fire & Rescue Emergency Preparedness Division
Chief.
NOVEMBER 2010
19
SITUATION
This section of the CEMP describes the potential hazard considerations, geographic
characteristics, support facilities, land use patterns, economic profiles and demographics
of the Consolidated City of Jacksonville/Duval County. It also describes specific planning
assumptions regarding preparedness, response, recovery and mitigation that were taken
into consideration during the development of this plan.
HAZARDS ANALYSIS
This section details the man-made and natural hazards to which the Consolidated City of
Jacksonville/Duval County is vulnerable. Following this section, Table 2, on page 37,
presents hazard information including the types of hazards, vulnerable populations,
impact of damage and an assessment of the probability of frequency and potential
severity of each hazard.
Winds from Tropical Cyclones
As a general hazard, hurricanes have historically caused a great deal of damage in the
State of Florida. They usually have a regional multi-county impact, affecting the lives of
thousands of citizens.
Hurricanes, the most dangerous and destructive storms on earth, are tropical cyclones
that consist of high velocity winds blowing counter-clockwise around a moving lowpressure center. Hurricanes are commonly classified according to wind velocity, using
what is known as the Saffir/Simpson Hurricane Scale (1 through 5) (see Table 1) 2. In
addition, mobile homes and unsafe structures throughout the county will be vulnerable to
winds emanating from all categories of hurricanes.
1F
Table 1: Saffir-Simpson Hurricane Wind Scale
Source: National Oceanic and Atmospheric Administration
2
Note that whenever the severity or intensity of a hurricane is referenced throughout this Plan, the classification scale
used is the Saffir-Simpson scale, even if not directly referenced.
NOVEMBER 2010
20
Wind is the second ranked of the lethal components of a hurricane's destructive force, yet
may affect far more persons than storm-surge. Strong winds can be a very dangerous
element of a hurricane, reaching up to more than one hundred miles inland. The impact
of the wind on structures, plus wind borne debris, can result in injury or death for those far
from the coast. Gale force winds and tornadoes associated with hurricanes are very
hazardous to mobile homes. High winds often lead to downed power lines and trees thus
inhibiting mobility during and after the storm. The Emergency Operations Center
coordinates the response for hurricanes, the details of this plan can be found in the
Hurricane Hazard Specific Plan.
Unlike the effects of the storm surge, the high winds associated with a hurricane will have
an impact on inland as well as coastal areas. Therefore, inland areas must plan for the
impacts of high winds (downed trees and power lines) on their road system and, perhaps
more importantly, on the health and welfare of their citizens living in mobile homes or in
substandard homes which may not be resistant to these high winds.
All of the Consolidated City of Jacksonville/Duval County is at risk from high winds;
however, the threat is exacerbated by the large number of residents who reside in our
coastal areas. The wind velocity zones established through the statewide building code
establishes five zones across the county.
NOVEMBER 2010
21
Figure 2: Duval County Wind Speed Zones
Roughly, 100,000 people live in the 120 MPH zone, 250,000 in the 119 MPH zone, another 250,000 in the 115 MPH zone,
150,000 in the 110 MPH zone and 50,000 furthest west in the 105 MPH Zone.
NOVEMBER 2010
22
Figure 3: All Major Hurricanes Within 65 nm of Duval Co. 1851-2008
Figure 4: All Hurricanes within 65 nm of Duval Co. 1851-2008
NOVEMBER 2010
23
Figure 5: Population vs. Hurricanes
Note the above graph compares the rising population to hurricanes that came near the
Consolidated City of Jacksonville/Duval County.
NOVEMBER 2010
24
Storm Surge
Storm surge is considered the most destructive of the forces related to hurricanes. The
surge is caused by the frictional forces of hurricane winds on the surface which, when over
a large body of water such as the Atlantic Ocean, results in a high dome of wind-driven
water. This surge of water contains immense, destructive power. At times the effects of
the moving water can be likened to a bulldozer clearing everything in its path. Debris
propelled by the storm surge can act as a battering ram destroying objects in its way.
Storm surge has been found to be difficult to predict and was removed from the SaffirSimpson Scale in 2009 since the amount of storm surge did not necessarily correspond with
the category of storm. Hurricane size (extent of hurricane force winds), local depth of
near-shore waters, and topographic forcing can also be important in forecasting storm
surge. Moreover, other aspects of hurricanes, such as the system's forward speed and
angle to the coast, also impact the storm surge that is produced. For example, the very
large Hurricane Ike (with hurricane force winds extending as much as 125 miles from the
center) in 2008 made landfall in Texas as a Category 2 hurricane and had peak storm
surge values of 15-20 feet. In contrast, tiny Hurricane Charley (with hurricane force winds
extending at most 25 miles from the center) struck Florida in 2004 as a Category 4
hurricane and produced a peak storm surge of only 6-7 feet.
Secondary destructive forces resulting from storm surge include beach erosion and inlet
formation. Studies have shown that the impact of storm surge can be expected along the
entire St. Johns River and its tributaries within the borders of the Consolidated City of
Jacksonville/Duval County. Storm surge and wind emanating from hurricanes can destroy
or heavily damage beachfront homes and commercial establishments, piers, seawalls,
boardwalks, etc. With a larger, higher intensity storm, it is expected to cause massive
destruction on coastal barrier islands, and particularly in coastal municipalities including
the cities of Atlantic Beach, Neptune Beach, and Jacksonville Beach. In addition, the
Mayport Naval Station is expected to encounter such destruction. Based on past history,
beach erosion, usually the result of the stress placed on the shore from the storm surge, is a
problem in the Northeast region. In the event of a hurricane either striking or passing near
this coast, the potential of beach erosion that can undermine both houses and roads must
be seriously considered. Effects of beach erosion on coastal roads should also be
considered in relation to late evacuations, recovery from storms, and in planning future
roadways.
Inlet formation can be caused by water flowing across the barrier island with enough
force to break through the island. During such an occurrence, there is danger to life and
property, as well as a potential for severe restrictions in mobility, due to breaks in the
transportation system. If inlet formation were to occur, it would most likely be at stormwater outfalls and designed storm-water infrastructure. However, inlet formation could be
a factor north of the mouth of the St. Johns River, where Highway A1A crosses
undeveloped Little Talbot Island.
Areas most at risk from storm surge are those zones designated for Category 1, 2 and 3
hurricanes as shown on the map in Figure 9 on page 30. Estimates from the Northeast
Florida Regional Council for expected numbers of people evacuating those areas are in
NOVEMBER 2010
25
the neighborhood of 214,000 persons. The Regional Council is in the process of updating
the Northeast Florida Hurricane Evacuation Study and new numbers will be available
some time in late 2009, however they were not yet available for the update to the CEMP.
Figure 6: Northeast Florida Hurricanes 1565-1899
Although the evacuation of 850,962 (2008 census bureau population projection for Duval
County) residents and a variable number of visitors is achievable, the clearance times for
a fast moving Category 4 or 5 could require evacuation start times which are beyond our
current ability to accurately predict a storm’s actual landfall and intensity. The clearance
time situation becomes even worse if the size of the storm, or its predicted landfall, requires
the evacuation of adjacent counties. The problems that arise from merging the evacuees
from Duval and neighboring counties may extend clearance times beyond reasonable
limits. As a result, residents of the Consolidated City of Jacksonville/Duval County are
discouraged from evacuating out of the county unless they are utilizing air transportation
or evacuate very early. The threat from storm surge represents a serious hazard to the
barrier island communities and the entire eastern half of the county. In addition, flooding
due to torrential rainfall (inundation) could pose a serious threat in portions of the
Pre-landfall hazards associated with a hurricane also pose a significant threat to a
successful evacuation. The natural tendency to delay evacuation until the last minute
may trap residents on roadways due to traffic jams or flooded evacuation routes. The
torrential rains and tropical storm force winds associated with the outer bands of a
hurricane frequently render evacuation routes impassable long before the predicted
NOVEMBER 2010
26
landfall of the storm. In accordance with a wind effects report distributed by the Florida
Institute of Technology, Tropical Storm Force Winds (TSFW) can down trees and power
lines, blow out windows, blow down signs, cause flying debris, structural collapse and
cause vehicles to overturn and deviate from their course 3. It is the policy of the
Consolidated City of Jacksonville/Duval County to plan for the affects of TSFWs on
preparedness activities and evacuation procedures.
2F
When TSFWs (i.e., one minute sustained 34 knots or 39 mph winds) arrive, overall
countywide evacuation and pre-storm preparatory activities will cease. At this time, all
response agencies, including the Consolidated City of Jacksonville/Duval County
EOC/Area Command, should “lock down,” and all on-duty personnel should report to a
secure duty station, and vehicular traffic should cease. However, weather conditions may
not deteriorate uniformly across the county. Therefore, county departments and response
agencies may make exceptions to extend preparedness activities beyond the “lock
down” time but such exceptions must be specified in their disaster response plans, or
SOGs. These plans/SOGs must specify the conditions, identify those classifications that
may authorize, and the criteria used to determine, the need for an extension. The
Emergency Preparedness Division strongly recommends that the safety of first responders
and county employees be the chief concern when drafting extension procedures.
Floods
All of the Consolidated City of Jacksonville/Duval County is vulnerable to damage from
wind driven rain and flooding from rain. The Regional Hurricane Evacuation Study also
provided data on vulnerable populations for the year 2005, for each storm category.
Included in the vulnerable population is a section on special needs population, hospitals
and nursing homes. The Consolidated City of Jacksonville/Duval County is divided into
evacuation zones. This is done in order to provide sufficient division of the total population
at risk in accordance with predicted flooding levels associated with storm surge. These
areas and the population estimates provided in this chapter are also used for estimating
evacuation clearance times in the transportation analysis. Clearance times for both 2005
and 2010 have also been estimated in later sections.
Rain ranks third in the order of a hurricane’s destructive force. During the average 24-hour
period that it normally takes a hurricane to pass over an area, an average rainfall of
between 5 and 10 inches may occur. Normally, this happens concurrently with the arrival
of gale force winds. However, in Florida, there have been hurricane-related rainfalls
ranging from 12 to 20 inches. These excessive rains that accompany hurricanes can
cause excessive flooding in low lying areas that will need to evacuate. It is very important
to consider roads which are rendered impassable during heavy rains and which may
affect the evacuation of the vulnerable population. The Emergency Operations Center is
the central point for managing a flood incident in Duval County. The details of this plan
can be found in the Consolidated City of Jacksonville/Duval County Flood Hazard Specific
Plan.
3
Pinelli, Jean-Paul, Subramanian, & Chelakara. “Wind Effects on Emergency Vehicles.” Report prepared for the Division
of Emergency Management, Florida Division of Community Affairs. August 31, 2003
NOVEMBER 2010
27
Figure 7: 100-Year Floodplain
Source: Federal Emergency Management Agency, Flood Zones
NOVEMBER 2010
28
Figure 8: Coastal High Hazard Areas
House Bill 1359, enacted in 2006, re-established the definition of the Coastal High Hazard
Area to refer to the "area below the elevation of the category 1 storm surge line as
established by a Sea, Lake, and Overland Surges from Hurricanes (SLOSH) computerized
storm surge model”.
NOVEMBER 2010
29
Figure 9: Hurricane Evacuation Zones
There are three ways the Consolidated City of Jacksonville/Duval County residents can be
flooded: storm surge, creeks and river or natural flooding, and finally neighborhood or
localized flooding caused by poor drainage. Areas at risk are shown in the 100-year Flood
Plain Map, Figure 7 p. 28, as well as areas subject to storm surge from a Category 1 storm,
also called the Coastal High Hazard Area, Figure 8, p. 29, and finally, isolated
neighborhoods with drainage issues.
Due to the low-lying nature of much of the
consolidated city, localized flooding often accompanies heavy thunderstorms. This
localized flooding rarely presents more than an inconvenience, but occasionally results in
severe flooding that, includes one instance that resulted in a Presidential Declaration of
Natural Disaster. Many homes located along the banks of the St. Johns River and its
tributaries will be subject to river flooding, particularly that (flooding) which is related to
severe hurricanes which strike the coastline from the ocean at any angle ranging from 30
degrees to 150 degrees (relative to the coastline).
The Consolidated City of
Jacksonville/Duval County evacuation details are addressed in the Consolidated City of
Jacksonville/Duval County Evacuation ICP.
Hazardous Materials Spills
Residents of the Consolidated City of Jacksonville/Duval County are vulnerable to the
harmful effects of the accidental release of hazardous materials. Hazardous materials are
transported throughout the county by air, sea, and land transportation. The Consolidated
City of Jacksonville/Duval County's position as a major crossroads for both rail and
highway traffic into Florida creates a high potential for a hazardous materials accident.
NOVEMBER 2010
30
Interstate 95, one of two major north/south highways for the state, runs the entire length of
the county and right through the downtown business district. Interstate 10, the major eastwest route for north Florida and the Gulf states, terminates at its intersection with I-95, less
than two miles from the downtown business district. Interstate 10 also goes directly past
the town of Baldwin. The Consolidated City of Jacksonville/Duval County contains a
major railroad intersection and loading/off-loading point. In addition, ocean-going ships
load and off-load material at the Consolidated City of Jacksonville/Duval County's port
facilities, and many barges transport petroleum products along the St. Johns River. Within
the Consolidated City of Jacksonville/Duval County there are a number of private and
public facilities that produce, store or use hazardous materials. Emergencies involving
hazardous materials can be postulated as ranging from a minor emergency with no offsite
effects to a major emergency that may result in an offsite release of hazardous and toxic
materials.
The overall objective of chemical emergency response planning and
preparedness is to minimize exposure for a spectrum of emergencies that could produce
offsite levels of contamination in excess of levels of concern (LOCs) established by the
Environmental Protection Agency. Minimizing this exposure will reduce the consequences
of a hazardous materials incident.
No specific emergency sequence can be isolated as the model for which to plan
because each emergency could have different consequences, both in nature and
degree. As an alternative to defining a specific emergency, the Consolidated City of
Jacksonville/Duval County Hazardous Materials Hazard Specific Plan identifies various
parameters for planning which are based upon knowledge of the possible consequences,
timing and release characteristics of a spectrum of emergencies. This plan establishes the
appropriate response for each level of threat.
The design arcs used for hazardous materials can easily reach 5 miles from the incident.
When that distance is drawn from all of the potential locations of events, along the river
and rail and major roadways, there is hardly any area or population in the Consolidated
City of Jacksonville/Duval County not at risk. The Consolidated City of Jacksonville/Duval
County’s additional efforts are described in detail in the HAZMAT Hazard Specific Plan.
Extreme Temperatures
According to data provided by the National Weather Service – Jacksonville Office,
temperatures rarely rise above 100 degrees or fall below 20 degrees. Despite Florida’s
normally mild climate, temperature-related deaths in Florida exceed those caused by
hurricanes and tornadoes combined. Extreme high temperatures (105° heat index and
above) may pose a threat of heat stress to the county’s elderly and infant populations. In
the event of an electrical service interruption, the lack of air conditioning may pose a
particular danger to at-risk populations.
Extreme cold temperatures are also a potential threat. The elderly and people with
medical conditions, such as diabetes, are especially at risk to extreme temperatures and
cannot tolerate intense cold. Cold weather-related medical conditions, such as
hypothermia, can become a danger to those who are not physically prepared or
sheltered adequately, such as the homeless.
NOVEMBER 2010
31
Figure 10: Jacksonville Daily Temperatures
Brush, Wildfires and Forest Fires
This kind of event is common (99 times per year) in the Consolidated City of
Jacksonville/Duval County but not large in scope (average 16 acres). The Consolidated
City of Jacksonville/Duval County does not have great numbers of residents living in urban
interface zones with forests. The rapid western development of Duval County increases the
vulnerability of the population to wildfires. Due to new construction the fires can spread
rapidly from traditionally rural and unpopulated regions of west Duval County into new
high density residential neighborhoods. More details on this hazard can be found in the
Consolidated City of Jacksonville/Duval County Wildfire Hazard Specific Plan.
Thunderstorms and Tornadoes
According to the National Weather Service Jacksonville Office, Duval County
experienced 236 severe thunderstorm events from 1996 to 2007 averaging 20 per year.
These storms caused a total of 42 injuries, but no deaths. In May 1997 a downburst
associated with a severe thunderstorm produced wind gusts as high as 106 mph at NAS
Jacksonville causing $2 million in damages but no injuries or deaths. The entire population
is at risk, however not every event results in death, injury or even property damage.
Between 1996 and 2007 twelve tornadoes were reported in Duval County. Tornadoes may
be spawned by land-falling hurricanes, especially in the right-front quadrant of the storm.
Hurricane-related tornadoes are not usually accompanied by hail or lightning, the usual
warning signs of tornadoes. No particular area or population in the county is especially at
risk from this hazard. The Consolidated City of Jacksonville/Duval County protects citizens
NOVEMBER 2010
32
via the implementation of the Severe Weather Hazard Specific Plan and the Tornado
Hazard Specific Plan.
Drought
On April 15 though the 29th of 1999, the Consolidated City of Jacksonville/Duval County
was part of a Major Disaster Declaration by the President of the United States for Fire and
Drought for Emergency Protective Measures under FEMA Public Assistance Category B.
No particular area or population in the county is especially at risk from this hazard.
Terrorism
The Consolidated City of Jacksonville/Duval County is designated as a Tier 2 Urban Area
by the Department of Homeland Security’s (DHS) Urban Area Security Initiative (UASI)
program. DHS selects UASI cities based on risk, population, vulnerability and terrorism
related threats. The county was affected indirectly by the attacks on New York and
Washington on September 11, 2001 along with the rest of the nation. No event before or
after, related to terrorism, has impacted the County directly outside of hijacked planes in
the 70’s. No particular area or population in the county is especially at risk from this hazard.
Please refer to the Consolidated City of Jacksonville/Duval County Terrorism Response
Hazard Specific Plan.
Critical Infrastructure Disruption
On April 29, 2002, a series of combined random events led to an emergency shutdown of
the electric grid serving all of the Consolidated City of Jacksonville/Duval County. Power
remained disrupted for twelve to eighteen hours causing major failures of many
communication, electronic and even water and sewer systems. Such an event is only
expected to occur once every ten years, but causes a wide (but not very deep) impact.
Generally these kinds of events are not life-threatening and cause little permanent widespread damage but are very costly for their short durations. No particular area or
population in the county is especially at risk from this hazard.
Hazard Prioritization Process
Twenty-two hazards were identified and their vulnerabilities analyzed as required between
the State of Florida CEMP Guideline Criteria and the Local Mitigation Strategy
requirements. Each local government has different priorities based on the outcome of this
hazard analysis for particular jurisdictions. Duval County used the Local Mitigation
Strategy Risk Assessment sub-committee and the Duval Prepares organization to
determine those priority hazards that call for the development of standard operating
guidelines, resource identification, impact analysis, mitigation strategies, performance
objectives, hazard elimination and mitigation activities.
Local Mitigation Strategy sub-committee members (subject matter experts in planning,
public works etc.) reviewed the nineteen-hazard analysis and then used a normative
group process to rank order hazards based on frequency, severity, damage estimates and
other professional knowledge.
That prioritization process yielded the top hazards to be:
•
Wind from Tropical Cyclone
NOVEMBER 2010
33
•
•
•
•
•
•
•
Floods
Storm Surge from Tropical Cyclone
Terrorism
Hazardous Materials Accidents
Wildfires
Critical Facilities Disruption
A follow-up meeting further narrowed the top hazards list to 6 by combining wind and
storm surge from Tropical Cyclone into one hazard, and by dropping critical facilities
disruption as a hazard usually resulting from other hazards. Therefore the final list of the top
hazards that can affect Duval County and its municipalities is:
•
•
•
•
•
•
Wind and Storm Surge from Tropical Cyclone
Floods
Terrorism
Hazardous Materials Accidents
Wildfires
The Risk Assessment and Planning subcommittee
Committee reaffirmed the above priorities as the
hazard prioritization process through the meetings
the 2010 LMS during February and March 2009.
November 2010 CEMP update.
NOVEMBER 2010
of Duval Prepares, the LMS Advisory
top priorities in the 2010 LMS Update
and workshops conducted to update
This same process was used for the
34
Table 2: Duval County Hazard Analysis / Vulnerability, Probability, Risk Assessment Table
(1998-2008) – Vulnerability to Hazard by Community
Duval County Hazard Analysis
Hazard
Probability
Severity
Vulnerable
Population
778,800
(100%)
Vulnerable
Population Note
Entire County
Wind from
Tropical
Cyclones
Storm Surge
0.19
storms/yr
90 MPH
0.12
storms/yr
Floods
110 MPH
150,000
(19%)
1.2
7 events/yr
>6”
Hazardous
Materials
Accidents
Extreme
Temperatures
Brush,Wildfires,
Forest Fires
Thunderstorms
& Tornadoes
2 events/yr
Clean up
required
1,000
(.00001%)
778,800
(.00001%)
Population
estimate of CAT 13
Less than 1000
persons
Less than 1000
persons
8
events/yr.
99
events/yr
26/5.5/yr.
<28° or .99°
92,677
(11.9%)
5,000
(.0064%)
778,800
(100%)
No. of households
in poverty
Urban Interface
Tract Population
Entire County
94
Drought
1/15 yr.
> 6 months
Entire County
Terrorism
0.01
events/yr.
1/10 yr.
Injury/Death
778,800
(100%)
778,800
(100%)
778,800
(100%)
231
Thunderstorms
11 Tornadoes
2
Entire County
0
Critical
Infrastructure
Disruption
NOVEMBER 2010
16 Acres
Warning
issued
>12 hrs.
Entire County
Frequency/#No
of Occurrences*
14
70
20
99+
1
35
Vulnerability, Probability, Risk Assessment Table (1998 – 2008) - Vulnerability to Hazard by Community
Hazard
Events
Recorded
1998-2008
Probability of
Occurrence
Significant
#s of People
Economic
Impact
Vulnerability
Level
Risk
Level
Duval
County
City of
Jacksonville
Jacksonville
Beach
Atlantic
Beach
Neptune
Beach
Bal
14
High
Yes
High
High
High
Y
Y
Y
Y
Y
Y
1.2
High
Moderate
High
High
Moderate
Y
Y
Y
Y
Y
N
70
High
Yes
High
High
High
Y
Y
Y
Y
Y
Y
4
Low
No
Very Low
Very Low
Very Low
Y
Y
Y
Y
Y
Y
99+
High
No
Low
Low
Moderate
Y
Y
Y
Y
Y
Y
230 TH/
11/T
High/Low
Yes/No
Moderate/
Moderate
Moderate/
Moderate
Moderate/
Low
Y
Y
Y
Y
Y
Y
2
Moderate
Yes
Low
Low
Low
Y
Y
Y
Y
Y
Y
1
Low
High
Moderate
Moderate
Low
Y
Y
Y
Y
Y
Y
20
Moderate
Incident
Dependent
Moderate
Moderate
Moderate
Y
Y
Y
Y
Y
Y
0
Low
Yes
High
Moderate
Moderate
Y
Y
Y
Y
Y
Y
Natural Hazard
Wind from Tropical Storm
Storm Surge (from
Hurricane, Tropical
Storms, Northeasters)
Flooding (from Hurricane,
Tropical Storm and
Seasonal Heavy Rains,
Nor’easters)
Extreme
Temperatures(<28° or
>99°)
Wildfire (Brush, Forest)
Thunderstorms &
Tornadoes
Drought
Natural or Man-Made
Hazard
Critical
Infrastructure
Disruption
Man-made Hazard
Hazardous Materials
Accidents
Terrorism
Type of Hazard: Disaster events and incidents that have taken place or have probability to take place in Duval County
(with exception of hazards deleted from further consideration in the 2009 Consolidated City of Jacksonville/Duval County
Comprehensive Emergency Management Plan). Please see LMS for additional risk analysis.
NOVEMBER 2010
36
GEOGRAPHIC INFORMATION
The analysis of potential hazards is the basic component of any community's
comprehensive emergency management plan. A complete understanding of the
community's geography, demographics, and land use trends is essential to be able to
minimize the possible loss of life, human suffering, and damage to public and private
property associated with major natural or man-made incidents.
The information
developed can provide Duval County's emergency managers with a tool, which can be
used to identify those hazards that require an organized response to properly manage
related activities, so that needed priorities and actions can be established.
The hazards analysis involves not only knowledge of the kinds of hazards to which the
Consolidated City of Jacksonville/Duval County is subjected, but also specific estimates of
people and property at risk from a particular hazard. When this measure of vulnerability,
reflecting a worst-case situation, is combined with available hazard information, the
community can estimate the frequency and extent of damage and the areas and
persons affected. This combination of factors is the key to determining if present
capabilities are adequate for mitigating, preparing for, and responding to an emergency,
and if found inadequate, identifying procedures needed to upgrade these capabilities.
Geographic Characteristics
The Consolidated City of Jacksonville/Duval County is located in the northeast corner of
the State of Florida, approximately ten miles from the State of Georgia. The Consolidated
City of Jacksonville/Duval County comprises 850.27 square miles (i.e., 544,175 acres). It
measures approximately 40 miles from east to west at its widest extent, and 33 miles from
south to north. (Source: Jacksonville Planning and Development Department, JPDD)
The highest elevation in the City of Jacksonville/Duval County is 199 feet above sea level.
This elevation is found in the extreme southwest corner of the county. From that point, the
land surfaces gently slope eastward toward the ocean. The county is characterized by
low level coastal plains, interrupted by a series of ancient marine terraces. These terraces,
or ridges, have been modified by stream erosion.
The major geographical feature of the county is the St. Johns River, which splits the county
into 2 unequal parts. The St. Johns, its tributaries, and the Nassau River control drainage in
the western, northern, and central portions of the county. The eastern part of the County
is dominated by numerous brackish streams that empty into Pablo Creek (the Intracoastal
Waterway) or directly into the Atlantic Ocean. 47,535 acres of the Consolidated City of
Jacksonville/Duval County's area, or almost 9 percent, is inland water (JPDD).
A considerable amount of the Consolidated City of Jacksonville/Duval County is
comprised of freshwater marshes and swamps along with salt marshes. The freshwater
wetlands are found in conjunction with the creeks and stream valleys in the southeastern,
western, and northern portions of the county and in isolated pockets in the western sector.
Salt marshes are found in the St. Johns and Nassau River valleys in northeast Duval County.
Existing Land Use Characteristics
Duval County has developed over the past 200 years from a crossing at the St. Johns River
on the Kings Road from Georgia to St. Augustine into a sprawling, diversified community.
NOVEMBER 2010
37
Urban development originated in 1822 when the site of Jacksonville was first surveyed and
formally organized. Duval County was created in the same year, with Jacksonville
designated as the county seat. The settlement was originally established to service the
traffic crossing the river, but soon became a center of river-borne traffic into the state's
interior.
Developments spreading along the St. Johns, such as Chaseville, New Berlin, Mayport, and
Mandarin, were linked by the river. The advent of railroads into this area spurred further
development, especially with the crossing of the St. Johns. The Consolidated City of
Jacksonville/Duval County became a tourist destination in the late 1800's, as well as a
terminus for tourists proceeding up river to interior resorts, such as Green Cove Springs and
Switzerland.
A railroad line was built to Pablo Beach (now Jacksonville Beach),
establishing a new corridor of development from the South Jacksonville area to the
beach.
As Jacksonville became a railroad and water traffic hub, commercial and industrial
development spread along these avenues of commerce. Major commercial and
industrial activity is now found radiating from the original center of Jacksonville along
major railroads and highways as well as northward along the St. Johns towards the Atlantic
Ocean.
Residential development often followed this commercial and industrial growth, but not
entirely unique to our area, major residential satellite developments grew up in remote
areas of the county. Areas such as Arlington, Mandarin, Ortega and the Beaches grew,
attracting supporting commercial uses, and have grown to where today these and
numerous other once-outlying areas now make up the unified urban fabric of Duval
County.
Although close to 850,962 4 persons are estimated to live in the Consolidated City of
Jacksonville/Duval County in 2008, the pattern of development has left large, mostly
undeveloped quarters of the county. While some areas contain scattered development
of farms and large lot residential uses, large parts of the county, notably the southwest
portion, is largely untouched, mostly held in large tracts of land devoted to tree farming.
3F
The following list summarizes the existing land use of the Consolidated City of
Jacksonville/Duval County:
Land Use
Residential
Commercial
Industrial
Open Space/Recreation
Public Facilities
Conservation/Historic Pres.
Agricultural
Vacant/Undeveloped
4
Percent of Total
15.4%
1.4%
2.1%
1.1%
11.5%
1.7%
26.2%
40.8%
Source: U.S. Census Bureau, 2008 Population Estimates, Census 2000,
.
NOVEMBER 2010
38
Surface Water System
Headwaters of the St. Johns River are located in a marsh area west of Fort Pierce in St.
Lucie County, more than 300 miles from the river's mouth at Mayport. Over these 300
miles, the drop in elevation is only about 25 feet. Of this 25 foot drop in elevation,
approximately 20 feet occur during the river's first 90 miles. For this reason, the river has the
appearance of a vast lake often with indiscernible flow.
Tidal conditions are clearly evident near the river's mouth in the Consolidated City of
Jacksonville/Duval County. Due to the extremely flat terrain, high evapo-transpiration
rates, and variable freshwater flows, these tidal variations are also experienced as far
upriver as Lake George, 115 miles from the river's mouth. Tidal effects have been
recorded as far as 161 miles upstream at Lake Monroe under combined conditions of
extreme drought and high tide conditions. From Lake George north to the Atlantic, the
river's flow normally reverses with the change in the tide.
The average discharge of the St. Johns River at its mouth is estimated at 8,300 cubic feet
per second (cfs). Reversal of flow by tidal action causes upstream and downstream flow
at Jacksonville to reach 130,000 cfs. At the St. Johns River entrance, flood tides (incoming
tides) with average velocities of 1.9 knots and ebb tides (outgoing tides) with average
velocities of 2.3 knots occur. This changing direction of flow in the St. Johns River occurs
throughout the county area. However, at Mandarin Point, essentially opposite Orange
Park (Clay County), average flood tide and ebb tide velocities are diminished to 0.6 and
0.7 knots, respectively.
The capacity of the main stem of the St. Johns River to store water is tremendous owing to:
(1) the great width of channel in the reach between Palatka and Jacksonville, (2) low
hydraulic gradients, flood plain which in places is more than ten miles wide. Storm water is
held in storage for long periods before being discharged to the sea.
Flood Plain Areas
Extensive flood plain areas exist in the Consolidated City of Jacksonville/Duval County due
to the slight elevations of land above sea level and the relatively flat topographic relief of
the land surface. Flood plain areas exist around the St. Johns River and its tributaries as
well as around the coastal lagoon and saltmarsh system.
In addition to flood plains surrounding large water bodies and their tributaries, there are
large areas within the county's interior which experience periodic flooding. These flood
prone areas are generally the result of flat, poorly drained land where accumulated
rainfall runs in a sheetflow or ponds on the surface.
The Consolidated City of Jacksonville/Duval County experiences its most severe flooding
when heavy rainfall is accompanied by a rise in sea level due to a storm surge or wind
and wave set-up. Hurricanes and prolonged or severe northeasters are the predominant
causes of such flooding which can be greatly exaggerated when occurring during one or
more periods of high tide. However, even in less severe events such as tropical storms or
localized thunderstorms, rainfall alone can and has caused flooding.
Flood Hazard Areas
NOVEMBER 2010
39
Major flood hazard areas exist along the Intracoastal Waterway and adjoining creeks and
salt marshes. Inland to the west, a flood zone of similar size and shape exists from just
above McCormick Road south of Fort Caroline to past Beach Boulevard. Although large
portions of land east of the Intracoastal Waterway are outside of the 100-year flood zone,
the entire Beaches area is susceptible to flooding from coastal storms due to the nature of
barrier islands acting as overwash plains for storm surges. Low-lying areas adjacent to
water bodies or areas of high surface runoff are generally at risk. Most of the areas along
these waterways are developed in residential uses.
The majority of the land bounded by Southside Boulevard on the west, Hodges Boulevard
to the east, J. Turner Butler Boulevard to the south, and Beach Boulevard on the north, is
within the flood hazard area. Much of this area is wetlands. An extensive 100 year flood
hazard area exists south of J. Turner Butler Boulevard, west of Southside Boulevard and
northeast of U. S. 1.
Another large flood hazard area exists between Hood and Losco Roads in Mandarin.
Perhaps the largest continuous flood hazard area occurs in the relatively undeveloped
southeast corner of the Consolidated City of Jacksonville/Duval County. The large
wetland area drains southwestward toward Durbin Creek and northeastward toward
Pablo Creek. Pablo Creek has an extensive flood plain area that drains much of the land
surrounding the University of North Florida, from Mill Dam Branch to Cedar Swamp Creek.
Julington Creek forms a major flood plain area in conjunction with its tributaries. Several
low areas along the St. Johns River in the Southeast District would be flooded by a 100
year flood. The northern part of Duval County is heavily influenced by the St. Johns River,
Nassau River, and Atlantic Ocean, being heavily dissected by many tributaries and
branching creeks along which flood hazard zones exist. Aside from the highest uplands
and barrier island ridges, a majority of all land east of Dames Point falls within the 100 Year
Flood Hazard Zone.
The Nassau River and Intracoastal Waterway are surrounded by extensive marsh lands
which are all at risk of flooding. Thomas Creek's flood plain borders the county boundary
on the northwest. Flood hazard zones of irregular size and shape are scattered over the
entire district.
The Cedar River, Sawmill Creek, and Ribault River comprise the main flood plain area in
northwest Duval County. Isolated patches of flood hazard area can be found; however,
most of western Duval County is of relatively high elevation.
Southwest Duval County contains some of the highest elevations in the county, yet there
are extensive flood hazard zones west of Yellow Water Creek. McGirts Creek and the
Ortega River form a major flood plain area that extends from Old Plank Road southeast to
the Clay County line then curves toward the northeast where it meets the Cedar River and
then enters the St. Johns River.
Transportation Network
The Consolidated City of Jacksonville/Duval County is well-connected to its region, the
state and nation by several interstate and other federal highways, an international airport,
two municipal airports, extensive rail service provided by three major railroads (Southern,
Florida East Coast, and CSX) and a major port for ocean and river traffic.
NOVEMBER 2010
40
The Consolidated City of Jacksonville/Duval County contains approximately 142 miles of
highways, 487 miles of arterial, and 492 miles of collector streets.
DEMOGRAPHICS
The population of the Consolidated City of Jacksonville/Duval County is distributed
primarily along the St. Johns River radiating out from the downtown area. In the last ten to
fifteen years, the area between Southside Boulevard and the beaches has been
developed with residential land uses averaging three to four dwelling units to the acre.
The beaches are nearly built out and combine to a total of close to 50,000 people.
The overall distribution of population by planning district can be seen on the following
table. The age distribution chart that follows shows that by far the majority of the
population is less than 45 years old. The Consolidated City of Jacksonville/Duval County
has an average of 1.429 persons per acre or 915 people per square mile.
The population of the Consolidated City of Jacksonville/Duval County in 2004 was 805,000;
417,000 (52 percent) females and 388,000 (48 percent) males. The median age was 35.1
years. The population under 18 years accounted for 27 percent and 10 percent were 65
years and older.
Figure 11: Age Distribution of People in Duval County
NOVEMBER 2010
41
Figure 12: Duval County Population Density & Distribution
NOVEMBER 2010
42
Figure 13: Duval County Population Distribution by Age/Gender
NOVEMBER 2010
43
Duval County Farm Worker Population
Analysis by the Jacksonville Planning and Development Department’s May 2000 Housing
Element of the 2010 Comprehensive Plan indicates that farm worker housing is not a need
in the Consolidated City of Jacksonville/Duval County.
Table 3: Duval County Farm Worker Population
Male:
Farmers and farm managers
Farming, fishing, and forestry occupations
Female:
Farmers and farm managers
Total:
152
779
52
217
1,200
Source: 2000 U.S. Census Summary File
NOTE: Data based on a sample except in P3, P4, H3, and H4. For information on confidentiality protection,
sampling error, non-sampling error, and definitions see
http://factfinder.census.gov/home/en/datanotes/expsf3.htm.
289H
Duval County Annual/Seasonal Tourist Population
According to Visit Jacksonville, there were 2.8 million overnight visitors to the Consolidated
City of Jacksonville/Duval County in 2008.
The average hotel occupancy in the Consolidated City of Jacksonville/Duval County in
2008 was 68.5 percent. With approximately 15,532 hotel rooms in the Consolidated City of
Jacksonville/Duval County, on any given day, there are approximately 10,000 to 15,000
visitors in Jacksonville.
NOVEMBER 2010
44
Duval County Special Needs Population
Figure 14: Duval County Special Needs Population Distribution
2008 DUVAL COUNTY SPECIAL NEEDS MEDICAL NEEDS REGISTRATIONS
TOTAL = 1944
200
180
180
179
155
VULNERABLE POPULATION
160
150
140
117
120
96
100
95
76
80
68
65 63
60
53
49
41
40
37
30
20
66
59 60
41
34
30
13
26
15
42
41
23
12
18
8
2
32
20
32 2
20
32 3
20
32 4
20
32 5
20
32 6
20
32 7
20
32 8
20
32 9
21
32 0
21
32 1
21
32 6
21
32 7
21
32 8
21
32 9
22
32 0
22
32 1
22
32 2
22
32 3
22
32 4
22
32 5
22
32 6
23
32 3
23
32 4
24
32 4
24
32 6
25
32 0
25
32 4
25
32 6
25
32 7
25
32 8
26
32 6
27
7
0
ZIP CODES
Table 4: Duval County Non-English Speaking Population
Duval County, Florida
Spanish:
Linguistically isolated
Not linguistically isolated
Other Indo-European languages:
Asian and Pacific Island languages:
Other languages:
Total:
Estimate
16,728
3,885
12,843
6,281
1,209
5,072
9,995
1,356
8,639
2,245
748
1,497
70,498
Source: U.S. Census Bureau, 2004 American Community Survey
NOVEMBER 2010
45
Duval County Hearing Loss/Impairment Population
As per Jacksonville Community Services, Individual Living Resource (part of the
Jacksonville Disabled/ Deaf Consumers Services) quoted from 65,000 to 127,000 hearing
impaired citizens living in the Jacksonville area. All of this population is at risk during times
of disaster, as appropriate communication and understanding of impending situations is
paramount to the safety of our citizens.
Duval County Transient Population
According to the Florida Department of Business and Professional Regulation, Division of
Hotels and Restaurants, and the Florida Department of Health, transients constitute
customers, seasonal visitors and employees who live/work in the area for less than 60 days
per year. From the U.S. Census 2000 for Jacksonville Population and Demographics, we
find that housing occupancy for seasonal, recreational, or occasional use numbered 917
transients.
Table 5 below, describes in detail the demographics of the population of the
Table 5: Demographic Description of Duval County's Population
Characteristic
Estimate
Percent
U.S. avg.
Total population
805,002
N/A
N/A
Male
388,043
48.2
48.90%
Female
416,959
51.8
51.10%
Median age (years)
35.1
N/A
36.2
Under 5 years
63,234
7.9
7.00%
18 years and over
585,847
72.8
74.50%
65 years and over
82,146
10.2
12.00%
White
519,608
64.5
75.60%
Black or African American
233,200
29
12.20%
Hispanic or Latino (of any race)
41,124
5.1
14.20%
American Indian and Alaska Native
2,923
0.4
0.80%
Asian
27,432
3.4
4.20%
636
0.1
0.10%
Some other race
8,617
1.1
5.20%
Two or more races
12,586
1.6
1.90%
513,622
N/A
N/A
Native Hawaiian and Other Pacific Islander
Social characteristics
Population 25 years and over
High school graduate or higher
N/A
88.4
83.90%
Bachelor's degree or higher
N/A
24.3
27.00%
Civilian veterans (civilian pop. 18 yrs. and over)
106,225
18.3
11.20%
Disability status (population 5 years and over)
110,420
15
14.30%
Foreign born
55,664
6.9
12.00%
NOVEMBER 2010
46
Characteristic
Male, Now married, except separated (population 15
years and over)
Female, Now married, except separated (population 15
years and over)
Speak a language other than English at home
(population 5 years and over)
Estimate
Percent
U.S. avg.
159,070
53.8
56.40%
151,195
46.5
51.40%
64,386
8.7
18.70%
421,901
69.4
65.90%
23.4
N/A
24.7
42,161
52,235
22,760
N/A
N/A
N/A
N/A
N/A
10
13.2
44,684
53,692
24,020
10.10%
13.10%
Average household size
2.49
N/A
2.6
Average family size
3.1
N/A
3.18
Total housing units
357,721
N/A
N/A
Occupied housing units
323,166
90.3
89.60%
Owner-occupied housing units
205,122
63.5
67.10%
Renter-occupied housing units
118,044
36.5
32.90%
Vacant housing units
Owner-occupied homes
Median value (dollars)
Median of selected monthly owner costs
With a mortgage (dollars)
Not mortgaged (dollars)
34,555
205,122
126,739
N/A
1,058
292
9.7
N/A
N/A
N/A
N/A
N/A
10.40%
N/A
151,366
N/A
1,212
345
Economic Characteristics
In labor force (population 16 years and over)
Mean travel time to work in minutes (workers 16 years
and over)
Median household income (in 2004 inflation-adjusted
dollars)
Median family income (in 2004 inflation-adjusted dollars)
Per capita income (in 2004 inflation-adjusted dollars)
Families below poverty level
Individuals below poverty level
Housing Characteristics
Source: U.S. Census Bureau, 2004 American
Community Survey
In 2004 there were 323,000 households in the Consolidated City of Jacksonville/Duval
County. The average household size was 2.5 people. Families made up 66 percent of the
households in the Consolidated City of Jacksonville/Duval County. This figure includes
both married-couple families (44 percent) and other families (22 percent). Non-family
households made up 34 percent of all households in the Consolidated City of
Jacksonville/Duval County. Most of the non-family households were people living alone,
but some were comprised of people living in households in which no one was related to
the householder.
NOVEMBER 2010
47
Figure 15: Types of Households in Duval County
Geographic Mobility
In 2004, 77 percent of the people at least one year old living in the Consolidated City of
Jacksonville/Duval County were living in the same residence one year earlier; 15 percent
had moved during the past year from another residence in the same county, 3 percent
from another county in the same state, 4 percent from another state, and 1 percent from
abroad.
NOVEMBER 2010
48
Figure 16: Geographic Mobility of Resident
Education
In 2004, 88 percent of people 25 years and over had at least graduated from high school
and 24 percent had a bachelor's degree or higher. Among people 16 to 19 years old, 8
percent were dropouts; they were not enrolled in school and had not graduated from
high school. The total school enrollment in the Consolidated City of Jacksonville/Duval
County was 223,000 in 2004. Preprimary school enrollment was 24,000 and elementary or
high school enrollment was 147,000 children. College enrollment was 51,000.
NOVEMBER 2010
49
Figure 17: Educational Attainment
Manufactured Homes
There are approximately 32 mobile home parks within the Consolidated City of
Jacksonville/Duval County, comprising of over 988 acres of land, nearly 27,000
manufactured homes, and housing approximately 67,000 individuals, based on a home
occupancy average of 2.5 persons per household. All mobile home parks in Consolidated
City of Jacksonville/Duval County are strongly urged to evacuate during all tropical storm
events regardless of whether or not they are located in any of the storm surge evacuation
zones.
NOVEMBER 2010
50
Figure 18: Manufactured Home Parks in Duval County
NOVEMBER 2010
51
Figure 19: Correctional Facility Population
NOVEMBER 2010
52
ECONOMIC PROFILE
Table 6 below shows a variety of selected economic characteristics of Duval County.
Table 6: Economic Characteristics
Characteristic
Population 16 years and over
In labor force
Civilian labor force
Employed
Unemployed
Armed Forces
Not in labor force
Unemployed
Females 16 years and over
In labor force
Employed
Children under 6 years
All parents in family in labor force
Children 6 to 17 years
All parents in family in labor force
Population 16 to 19 years
Not enrolled in school and not a H.S. graduate
Unemployed or not in the labor force
COMMUTING TO WORK
Workers 16 years and over
Car, truck, or van -- drove alone
Car, truck, or van -- carpooled
Public transportation (excluding taxicab)
Walked
Other means
Worked at home
Mean travel time to work (minutes)
Employed civilian population 16 years and over
OCCUPATION
Management, professional, and related occupations
Service occupations
Sales and office occupations
Construction, extraction, maintenance and repair
occupations
Production, transportation, and material moving
occupations
INDUSTRY
Agriculture, forestry, fishing and hunting, and mining
Construction
Manufacturing
NOVEMBER 2010
Estimate
607,685
421,901
417,163
383,383
33,780
4,738
185,784
417,163
8.1%
319,387
199,443
198,452
176,933
67,513
41,926
131,650
97,439
41,720
3,541
2,968
377,706
306,611
40,421
6,812
9,128
7,157
7,577
23.4
383,383
124,956
59,728
115,955
0
41,469
41,275
1,813
29,641
24,180
53
Characteristic
Wholesale trade
Retail trade
Transportation and warehousing, and utilities
Information
Finance and insurance, and real estate and rental
and leasing
Professional, scientific, and management, and
administrative and waste management services
Educational services, and health care, and social
assistance
Arts, entertainment, and recreation, and
accommodation, and food services
Other services, except public administration
Public administration
CLASS OF WORKER
Private wage and salary workers
Government workers
Self-employed workers in own not incorporated
business
Unpaid family workers
Estimate
17,634
41,793
28,072
9,262
44,162
48,885
59,088
32,238
22,908
23,707
307,862
57,034
18,125
362
INCOME AND BENEFITS (IN 2004 INFLATION-ADJUSTED DOLLARS)
Total households
323,166
Less than $10,000
30,114
$10,000 to $14,999
20,063
$15,000 to $24,999
41,219
$25,000 to $34,999
43,994
$35,000 to $49,999
47,457
$50,000 to $74,999
68,032
$75,000 to $99,999
33,452
$100,000 to $149,999
26,695
$150,000 to $199,999
7,287
$200,000 or more
4,853
Median household income (dollars)
42,161
Mean household income (dollars)
54,779
With earnings
271,680
Mean earnings (dollars)
52,989
With Social Security
75,263
Mean Social Security income (dollars)
12,912
With retirement income
58,611
Mean retirement income (dollars)
15,846
With Supplemental Security Income
12,142
Mean Supplemental Security Income (dollars)
7,727
With cash public assistance income
4,636
Mean cash public assistance income (dollars)
1,641
With Food Stamp benefits in the past 12 months
22,194
Families
212,105
Less than $10,000
12,412
$10,000 to $14,999
10,698
$15,000 to $24,999
21,195
NOVEMBER 2010
54
Characteristic
$25,000 to $34,999
$35,000 to $49,999
$50,000 to $74,999
$75,000 to $99,999
$100,000 to $149,999
$150,000 to $199,999
$200,000 or more
Median family income (dollars)
Mean family income (dollars)
Per capita income (dollars)
Non-family households
Median non-family income (dollars)
Mean non-family income (dollars)
Median earnings:
Male full-time, year-round workers (dollars)
Female full-time, year-round workers (dollars)
Estimate
22,428
33,490
51,220
26,313
23,398
6,293
4,658
52,235
64,471
22,760
111,061
29,089
34,990
27,008
38,620
31,303
AGE OF FAMILIES AND PEOPLE WHOSE INCOME IN THE PAST 12 MONTHS
IS BELOW THE POVERTY LEVEL (IN PERCENT)
All families
10
With related children under 18 years
14.9
With related children under 5 years only
17.4
Married couple families
3.9
4.4
9.5
Families with female householder, no husband
present
26.4
33.5
40.1
All people
13.2
Under 18 years
19
Related children under 18 years
18.7
Related children under 5 years
21.3
Related children 5 to 17 years
17.7
18 years and over
11.1
18 to 64 years
11.2
65 years and over
10.9
People in families
11.9
Unrelated individuals 15 years and over
21.5
Source: U.S. Census Bureau, 2004 American Community
Survey
Industries
In 2004, for the employed population 16 years and older, the leading industries in the
Consolidated City of Jacksonville/Duval County were educational, health, and social
services, totaling 15 percent, closely followed by professional, scientific, management,
administrative, and waste management services, at 13 percent. As demonstrated by
Figure 20 below, agriculture made up less than 1 percent.
589H
NOVEMBER 2010
55
Figure 20: Employment by Industry
Occupational Characteristics
Among the most common occupations were: Management, professional, and related
occupations, 33 percent; Sales and office occupations, 30 percent; Service occupations,
16 percent; Construction, extraction, and maintenance occupations, 11percent; and
Production, transportation, and material moving occupations, 11 percent . Private wage
and salary workers accounted for 74 percent of employees, while 15 percent were
federal, state, or local government workers, and 5 percent were self-employed.
Commuting
Consolidated City of Jacksonville/Duval County workers who drove to work alone
accounted for 84 percent in 2004, 11 percent carpooled, 2 percent took public
transportation, and 4 percent used other means. The remaining 2 percent worked at
home. Among those who commuted to work, it took them on average 23.4 minutes to
get to work.
Poverty Rates in Duval County
In 2004, on average 13 percent of the population were in poverty.
NOVEMBER 2010
56
Figure 21 demonstrates that 19 percent of related children under 18 were below the
poverty level, compared with 11 percent of people 65 years old and over. Ten percent of
all families and 26 percent of families with a female householder and no husband present
had incomes below the poverty level.
NOVEMBER 2010
57
Figure 21: Poverty Rates in Duval County
Figure 22: Types of Housing Units in Duval County
NOVEMBER 2010
58
Housing Characteristics
In 2004, the Consolidated City of Jacksonville/Duval County had a total of 358,000 housing
units, 10 percent of which were vacant. Of the total housing units, 66 percent were in
single-unit structures, 27 percent were in multi-unit structures, and 7 percent were mobile
homes. Twenty-seven percent of the housing units were built since 1990.
Occupied Housing Units
In 2004, the Consolidated City of Jacksonville/Duval County had 323,000 occupied
housing units - 205,000 (63 percent) owner occupied and 118,000 (37 percent) renter
occupied. Eight percent of the households did not have telephone service and 9 percent
of the households did not have access to a car, truck, or van for private use. Multi vehicle
households were not rare. Thirty-four percent had two vehicles and another 12 percent
had three or more.
Housing Costs
The median monthly housing costs for mortgaged owners was $1,058, non-mortgaged
owners $292, and renters $691. Figure 23 shows that 29 percent of occupants have
mortgages, 10 percent of occupants do not have mortgages, and 52 percent of renters in
the Consolidated City of Jacksonville/Duval County spent 30 percent or more of their
household income on housing.
591H
NOVEMBER 2010
59
Figure 23: Occupants with a Housing Cost Burden in Duval County
Potential Economic Impacts of Hazards
Employment and per Capita Income
The effects of the hazards that will have an impact on employment levels and per capita
income in Duval County are dependent upon the type and magnitude of the disaster. The
effects of a direct hurricane strike and associated phenomena can be expected to have
a major temporary negative impact on employment and income in Duval County. All of
the county’s industries will be disrupted in the aftermath of a storm, but large-scale
economic disruptions will probably be short-lived. According to research, there will be a
short-term spike in unemployment claims. This will be tempered when employment
increases as workers are added in emergency services, cleanup, and construction.
Tourism and industries in the beach municipalities, coastal areas and along the river may
face more long-term economic challenges, having faced the full impact of a tropical
storm’s forces.
Brush fires, large terrorism events and critical infrastructure/transportation disruptions due to
other hazards such as hurricanes, may also have a widespread, temporary negative
effect on employment and wages. The effects of most other hazards on employment
levels can be expected to have more of a localized impact. For example: a hazardous
materials spill will only have an effect on employment at the actual site where the event
occurs; a tree disease outbreak will only affect timber workers.
NOVEMBER 2010
60
Average Property Values
Hazards with widespread effects, such as hurricanes and its associated storm surge, will
cause a short-term county-wide devaluation in property values. A large portion of the
homes in the county will be destroyed or damaged. However, redevelopment may spur a
long-term escalation in property values. As with the impacts on employment, most other
hazards will probably only affect a small number of homeowners in a localized area.
EMERGENCY MANAGEMENT SUPPORT FACILITIES
Public Works/Parks and Recreation Disaster Equipment Staging Areas
Table 7: Disaster Equipment Staging Areas
Arlington East Sewage Treatment Plant
1555 Millcoe Road
721-2304
Streets & Drainage South Area Maintenance Yard
2915 Parental Home Road 724-3086
Waccamaw Inc. Shopping Center
South end of parking lot
11250 Old St. Augustine Road @ Losco Road
Westside Skills Center
7450 Wilson Boulevard
573-1150
Old Kmart Shopping Center
Normandy Boulevard (on south side of Normandy across from
Combs Road) 834-7890
Streets and Drainage West Area Maintenance Yard
2637 West 1st Street 387-8840
Northside Skillls Center
1157 Golfair Boulevard
924-3011
Streets & Drainage North Area Maintenance Yard
4767 Moncrief Road 768-4888
Imeson Industrial Park
North Main Street
Streets and Drainage East Area Maintenance Yard
609 St. Johns Bluff Road North 998-5378
NOVEMBER 2010
61
Figure 24: Emergency Helicopter Landing Zones
400 West State Street
655 West 8th Street
500 West Church Street
501 East Bay Street
800 Prudential Drive
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62
Figure 25: Duval County Hurricane Shelters
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63
Figure 26: Duval County Fire Stations
NOVEMBER 2010
64
Figure 27: Duval County Military Bases
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65
Figure 28: Duval County Hospitals
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66
Figure 29: Duval County Evacuation Routes
Note: Please see figures 42, 43, & 44 for specific evacuation routes on pages 161-163.
NOVEMBER 2010
67
Figure 30: Duval County Points-Of-Distribution (PODs)
NOVEMBER 2010
68
POD SITE LOCATIONS LIST
Council
1
1
2
2
3
3
4
4
5
5
6
6
7
7
7
8
8
9
9
10
10
11
11
12
12
13
14
14
JAX Bch
JAX Bch
JAX Bch
NEP Bch
NEP Bch
Location
9119 Merrill Rd
3435 University Blvd N
2701 Hodges Blvd
2271 S. Kernan Rd
4765 Hodges Blvd
2051 San Pablo Rd.
2446 University Blvd. S.
2948 Knight Lane E.
10300 Southside Blvd.
6271 St. Augustine Rd. W.
10850 Old St. Augustine Rd.
3800 Crown Point Rd.
1300 Jessie St.
5200 Norwood Ave.
W. 44th St.
Imeson Park Blvd.
3000 Dunn Ave.
5300 Lenox Ave.
3663 Raines Ave.
200 Lane Ave. N.
3701 Winton Dr.
1021 US 301 S.
13700 Pecan Park Rd.
13611 Normandy Blvd.
5810 Normandy Blvd.
10915 Baymeadows Rd.
8201 Blanding Blvd.
2519 Bayview Rd.
2415 South Beach Parkway
400-500 Pablo Ave
2000 3rd Street N.
2010 Forest Ave
1515 Florida Blvd
NOVEMBER 2010
Cross Street
Jane St.
Jack Rd.
Bentwater Dr.
Alden Road
Sutton Park Dr. N.
Las Brisas Way
S. Bartram Rd.
N. Knights Lane
Phillips Hwy.
Rainbow Rd.
Winderpark Ct.
Arrowhead Dr.
MLK Jr. Pkwy.
W. 44th St.
Springfield Blvd.
N. Main St.
Lem Turner Rd.
Shen Ave.
Moncreif Rd. W.
Beaver St.
Ribault Scenic Dr.
MLK Jr. Drive
Terrell Rd.
103rd St.
Verna Blvd.
Point Meadows Way
Lake Gray Blvd.
Cambridge Rd.
Theodore Ave.
4th & 5th Street N.
19th Ave. N.
Trailwood Dr
Windward Ln
Business Name
Old Wal-Mart
Public Library
New Life Church
Kernan Middle
Publix
Alamacani
Lovegrove Elem.
Southside Middle
Avenues Mall
Dupont Shopping
Private School
Crown Point Elem.
City Inspection Station
Gateway Mall
Parks & Recreation
Parking Lot
Bealls Outlet
Potter's House
Raines High School
JTA Park & Ride
Ribault High School
abandoned gas station
Air Cargo #4
Equestrian Center
Westside Plaza
Winn Dixie
Office Depot
School
Park
Strip Mall
Fletcher Middle
Public Works
Neptune Beach Elem.
N
30°21'12.8"
30°21'42.37"
30°17'57.78"
30°18'15.28"
30°15'14.80"
30°18'54.22"
30°18'03.25"
30°18'20.73"
30°10'52.14"
30°15'23.35"
30°10'41.59"
30°11'40.50"
30°20'02.60"
30°22'11.96"
30°22'22.35"
30°25'05.91"
30°26'16.48"
30°18'44.00"
30°22'55.68"
30°19'33.62"
30°23'22.71"
30°17'11.90"
30°29'02.39"
30°14'26.86"
30°18'20.72"
30°13'00.61"
30°11'55.32"
30°16'25.44"
30°15'58.35"
30°17'22.04"
30°18'25.74"
30°18'53.39"
30°19'01.24"
W
81°32'58.8"
81°36'18.79"
81°27'30.06"
81°29'08.72"
81°27'56.37"
81°26'51.40"
81°36'09.30"
81°42'13.74"
81°33'10.40"
81°37'31.52"
81°36'21.03"
81°36'53.77"
81°38'15.20"
81°40'04.98"
81°39'34.40"
81°38'45.47"
81°41'58.87"
81°44'07.45"
81°42'27.38"
81°45'05.60"
81°42'28.19"
81°58'57.09"
81°40'43.11"
81°54'21.30"
81°44'59.11"
81°31'03.94"
81°44'19.57"
81°43'62.69"
81°23'43.38"
81°23'38.87"
81°23'51.12"
81°25'07.87"
81°24'48.58"
Complex Zone
South
South
South
South
South
South
South
South
South
South
South
South
North
North
North
North
North
West
North
West
North
West
North
West
West
South
West
West
Beaches
Beaches
Beaches
Beaches
Beaches
2
2
2
2
3
2
2
3
3
3
3
3
1
1
1
6
6
4
5
5
5
4
6
4
4
3
4
4
69
CONCEPT OF OPERATIONS
NATIONAL INCIDENT MANAGEMENT SYSTEM (NIMS)
Since the September 11, 2001, attacks on the World Trade Center and the Pentagon,
much has been done to improve prevention, preparedness, response, recovery, and
mitigation capabilities and coordination processes across the country. A comprehensive
national approach to incident management, applicable at all jurisdictional levels and
across functional disciplines, has worked to improve the effectiveness of emergency
response providers and incident management organizations across a full spectrum of
potential incidents and hazard scenarios. Such an approach has also improved
coordination and cooperation between public and private entities in a variety of
domestic incident management activities. On February 28, 2003, the President issued
Homeland Security Presidential Directive (HSPD)-5, which directed the Secretary of
Homeland Security to develop and administer a National Incident Management System
(NIMS). According to HSPD-5:
“This system will provide a consistent nationwide approach for federal, state, and
local governments to work effectively and efficiently together to prepare for,
respond to, and recover from domestic incidents, regardless of cause, size, or
complexity. To provide for interoperability and compatibility among federal, state,
and local capabilities, the NIMS will include a core set of concepts, principles,
terminology, and technologies covering the incident command system; multiagency coordination systems; unified command; training; identification and
management of resources (including systems for classifying types of resources);
qualifications and certification; and the collection, tracking, and reporting of
incident information and incident resources.”
While most incidents are generally handled on a daily basis by a single jurisdiction at the
local level, there are important instances in which successful incident management
operations depend on the involvement of multiple jurisdictions, functional agencies, and
emergency responder disciplines. These instances require effective and efficient
coordination across this broad spectrum of organizations and activities. The NIMS uses a
systems approach to integrate the best of existing processes and methods into a unified
national framework for incident management. This framework forms the basis for
interoperability and compatibility that, in turn, enables a diverse set of public and private
organizations to conduct well-integrated and effective incident management operations.
It does this through a core set of concepts, principles, procedures, organizational
processes, terminology, and standards requirements applicable to a broad community of
NIMS users.
To provide this framework for interoperability and compatibility, the NIMS is based on an
appropriate balance of flexibility and standardization. NIMS provides a consistent, flexible,
and adjustable national framework within which government and private entities at all
levels can work together to manage domestic incidents, regardless of their cause, size,
location, or complexity. This flexibility applies across all phases of incident management:
prevention, preparedness, response, recovery, and mitigation. NIMS also provides a set of
standardized organizational structures – such as the Incident Command System (ICS),
multi-agency coordination systems, and public information systems – as well as
requirements for processes, procedures, and systems designed to improve interoperability
NOVEMBER 2010
70
among jurisdictions and disciplines in various areas, including: training; resource
management; personnel qualification and certification; equipment certification;
communications and information management; technology support; and continuous
system improvement.
NIMS Components
The NIMS integrates existing best practices into a consistent, nationwide approach to
incident management that is applicable at all jurisdictional levels and across functional
disciplines in an all-hazards context. Six major components make up this systems
approach. The following discussion provides a brief synopsis of each major component of
the NIMS, as well as how these components work together as a system to provide the
national framework for preparing for, preventing, responding to, and recovering from
domestic incidents, regardless of cause, size, or complexity. A more detailed discussion of
each component can be found in a variety of sources, particularly the NIMS Integration
Center ( http://www.fema.gov/nims/index.shtm).
290H
Command and Management
NIMS standard incident command structures are based on three key organizational
systems:
The Incident Command System (ICS)
The ICS defines the operating characteristics, interactive management components, and
structure of incident management and emergency response organizations engaged
throughout the life cycle of an incident;
Multi-agency Coordination Systems
These define the operating characteristics, interactive management components, and
organizational structure of supporting incident management entities engaged at the
federal, state, local, and regional levels through mutual-aid agreements and other
assistance arrangements; and
Public Information Systems
These refer to processes, procedures, and systems for communicating timely and
accurate information to the public during crisis or emergency situations.
Preparedness
Effective incident management begins with a host of preparedness activities conducted
on a “steady-state” basis, well in advance of any potential incident. Preparedness
involves an integrated combination of planning, training, exercises, personnel qualification
and certification standards, equipment acquisition and certification standards, and
publication management processes and activities.
Planning – Plans describe how personnel, equipment, and other resources are used to
support incident management and emergency response activities. Plans provide
mechanisms and systems for setting priorities, integrating multiple entities and functions,
and ensuring that communications and other systems are available and integrated in
support of a full spectrum of incident management requirements.
Training – Training includes standard courses on multi-agency incident command and
management, organizational structure, and operational procedures; discipline-specific
NOVEMBER 2010
71
and agency-specific incident management courses; and courses on the integration and
use of supporting technologies.
Exercises – Incident management organizations and personnel must participate in realistic
exercises – including multidisciplinary, multi-jurisdictional, and multi-sector interaction – to
improve integration and interoperability and optimize resource utilization during incident
operations.
Qualification and Certification – Qualification and certification activities are undertaken to
identify and publish national-level standards and measure performance against these
standards to ensure that incident management and emergency responder personnel are
appropriately qualified and officially certified to perform NIMS-related functions.
Equipment Acquisition and Certification – Incident management organizations and
emergency responders at all levels rely on various types of equipment to perform mission
essential tasks. A critical component of operational preparedness is the acquisition of
equipment that will perform to certain standards, including the capability to be
interoperable with similar equipment used by other jurisdictions.
Publications Management – Publications management refers to forms and forms
standardization, developing publication materials, administering publications – including
establishing naming and numbering conventions, managing the publication and
promulgation of documents, and exercising control over sensitive documents – and
revising publications when necessary.
Resource Management
The NIMS defines standardized mechanisms and establishes requirements for processes to
describe, inventory, mobilize, dispatch, track, and recover resources over the life cycle of
an incident. The Consolidated City of Jacksonville/Duval County implements the
Resources Management ICP to perform this function.
Communications and Information Management
The NIMS identifies the requirement for a standardized framework for communications,
information management (collection, analysis, and dissemination), and informationsharing at all levels of incident management. These elements are briefly described as
follows:
Incident Management Communications – Incident management organizations must
ensure that effective, interoperable communications processes, procedures, and systems
exist to support a wide variety of incident management activities across agencies and
jurisdictions.
Information Management – Information management processes, procedures, and systems
help ensure that information, including communications and data, flows efficiently
through a commonly accepted architecture supporting numerous agencies and
jurisdictions responsible for managing or directing domestic incidents, those impacted by
the incident, and those contributing resources to the incident management effort.
Effective information management enhances incident management and response and
helps insure that crisis decision-making is better informed.
Supporting Technologies
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72
Technology and technological systems provide supporting capabilities essential to
implementing and continuously refining the NIMS. These include voice and data
communications systems, information management systems (i.e., record keeping and
resource tracking), and data display systems. Also included are specialized technologies
that facilitate ongoing operations and incident management activities in situations that
call for unique technology-based capabilities.
Ongoing Management and Maintenance
This component establishes an activity to provide strategic direction for and oversight of
the NIMS, supporting both routine review and the continuous refinement of the system and
its components over the long term.
INCIDENT COMMAND SYSTEM
The incident command system (ICS) is a management system designed to enable
effective and efficient domestic incident management by integrating a combination of
facilities, equipment, personnel, procedures, and communications operating within a
common organizational structure, designed to enable effective and efficient incident
management. A basic premise of ICS is that it is widely applicable. It is used to organize
both near-term and long-term field-level operations for a broad spectrum of emergencies,
from small to complex incidents, both natural and manmade. ICS is used by all levels of
government – federal, state, and local – as well as by many private-sector and
nongovernmental organizations. ICS is also applicable across disciplines. It is normally
structured to facilitate activities in five major functional areas: command, operations,
planning, logistics, and finance and administration.
Acts of biological, chemical,
radiological, and nuclear terrorism represent particular challenges for the traditional ICS
structure. Events that are not site specific, are geographically dispersed, or evolve over
longer periods of time will require extraordinary coordination between federal, state, local,
private-sector, and nongovernmental organizations.
An area command may be
established to oversee the management of such incidents.
Concepts and Principles
Most Incidents Are Managed Locally
The initial response to most incidents is typically handled by local “911” dispatch centers,
emergency responders within a single jurisdiction, and direct supporters of emergency
responders. Most responses need go no further. In other instances, incidents that begin
with a single response discipline within a single jurisdiction may rapidly expand to
multidiscipline, multi-jurisdictional incidents requiring significant additional resources and
operational support. Whether for incidents in which additional resources are required or
are provided from different organizations within a single jurisdiction or outside the
jurisdiction, or for complex incidents with national-level implications (such as an emerging
infectious disease or a bio-terror attack), the ICS provides a flexible core mechanism for
coordinated and collaborative incident management. When a single incident covers a
large geographical area, multiple local ICS organizations may be required. Effective
cross-jurisdictional coordination using processes and systems described in the NIMS is
absolutely critical in this instance.
NOVEMBER 2010
73
The NIMS requires that field command and management functions be performed in
accordance with a standard set of ICS organizations, doctrine, and procedures.
However, Incident Commanders generally retain the flexibility to modify procedures or
organizational structure to align as necessary with the operating characteristics of their
specific jurisdictions or to accomplish the mission in the context of a particular hazard
scenario.
ICS Is Modular and Scalable
ICS is designed to have the following operating characteristics:
Suitable for operations within a single jurisdiction or single agency, a single jurisdiction with
multi-agency involvement, or multiple jurisdictions with multi-agency involvement;
Applicable and acceptable to users throughout the country;
Readily adaptable to new technology;
Adaptable to any emergency or incident to which domestic incident;
Management agencies would be expected to respond; and
Have a scalable organizational structure that is based on the size and complexity of the
incident.
ICS Has Interactive Management Components
These set the stage for effective and efficient incident management and emergency
response.
ICS Establishes Common Terminology
These include a standard set of pre-designated organizational elements and functions,
common names for resources used to support incident operations, common “typing” for
resources to reflect specific capabilities, and common identifiers for facilities and
operational locations used to support incident operations.
These standards and
procedures enable diverse organizations to work together effectively.
ICS Incorporates Measurable Objectives
Measurable objectives ensure fulfillment of incident management goals. Objectivesetting begins at the top and is communicated throughout the entire organization.
ICS Should Be User Friendly
Its implementation of should have the least possible disruption on existing systems and
processes. This will facilitate its acceptance across a nationwide user community and to
insure continuity in the transition process from normal operations. Additionally, ICS should
be applicable across a wide spectrum of emergency response and incident
management disciplines.
This will enable the communication, coordination, and
integration critical to effective and efficient NIMS.
NOVEMBER 2010
74
Management Characteristics
ICS is based on proven management characteristics. Each contributes to the strength
and efficiency of the overall system.
Common Terminology
ICS establishes common terminology that allows diverse incident management and
support entities to work together across a wide variety of incident management functions
and hazard scenarios. This common terminology covers the following:
Organizational Functions – Major functions and functional units with domestic incident
management responsibilities are named and defined. Terminology for the organizational
elements involved is standard and consistent.
Resource Descriptions – Major resources – including personnel, facilities, and major
equipment and supply items – used to support incident management activities are given
common names and are “typed” with respect to their capabilities, to help avoid
confusion and to enhance interoperability.
Incident Facilities – Common terminology is used to designate the facilities in the vicinity of
the incident area that will be used in the course of incident management activities.
Modular Organization
The incident command organizational structure develops in a top-down, modular fashion
that is based on the size and complexity of the incident, as well as the specifics of the
hazard environment created by the incident. When needed, separate functional
elements can be established, each of which may be further subdivided to enhance
internal organizational management and external coordination. Responsibility for the
establishment and expansion of the ICS modular organization ultimately rests with the
Incident Commander (IC), who bases these on the requirements of the situation. As
incident complexity increases, the organization expands from the top down as functional
responsibilities are delegated. Concurrently with structural expansion, the number of
management positions expands to adequately address the requirements of the incident.
Management by Objectives
Management by objectives represents an approach that is communicated throughout
the entire ICS organization. This approach includes the following:
•
•
•
•
establishing overarching objectives;
developing and issuing assignments, plans, procedures, and protocols;
establishing specific, measurable objectives for various incident management
functional activities, and directing efforts to attain them, in support of defined
strategic objectives; and
documenting results to measure performance and facilitate corrective action.
Reliance on an Incident Action Plan
Incident action plans (IAPs) provide a coherent means of communicating the overall
incident objectives in the contexts of both operational and support activities.
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Manageable Span of Control
Span of control is key to effective and efficient incident management. Within ICS, the
span of control of any individual with incident management supervisory responsibility
should range from three to seven subordinates. The type of incident, nature of the task,
hazards and safety factors, and distances between personnel and resources all influence
span-of-control considerations.
Pre-designated Incident Locations and Facilities
Various types of operational locations and support facilities are established in the vicinity
of an incident to accomplish a variety of purposes, such as decontamination, donated
goods processing, mass care, and evacuation. The IC will direct the identification and
location of facilities based on the requirements of the situation at hand. Typical predesignated facilities include incident command posts, bases, camps, staging areas, mass
casualty triage areas, and others, as required.
Comprehensive Resource Management
Maintaining an accurate and up-to-date picture of resource utilization is a critical
component of domestic incident management.
Resource management includes
processes for categorizing, ordering, dispatching, tracking, and recovering resources. It
also includes processes for reimbursement for resources, as appropriate. Resources are
defined as personnel, teams, equipment, supplies, and facilities available or potentially
available for assignment or allocation in support of incident management and
emergency response activities. Procedural details for resource management can be
found in the Resources Management ICP.
Integrated Communications
Incident communications are facilitated through the development and use of a common
communications plan and interoperable communications processes and architectures.
This integrated approach links the operational and support units of the various agencies
involved and is necessary to maintain communications connectivity and discipline to
enable common situational awareness and interaction. Preparedness planning must
address the equipment, systems, and protocols necessary to achieve integrated voice
and data incident management communications. The Consolidated City of
Jacksonville/Duval County addresses integrated communications in their Tactical
Interoperable Communications ICP.
Establishment and Transfer of Command
The command function must be clearly established from the beginning of incident
operations. The agency with primary jurisdictional authority over the incident designates
the individual at the scene responsible for establishing command. When command is
transferred, the process must include a briefing that captures all essential information for
continuing safe and effective operations.
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Chain of Command and Unity of Command
Chain of command refers to the orderly line of authority within the ranks of the incident
management organization. Unity of command means that every individual has a
designated supervisor to whom they report at the scene of the incident. These principles
clarify reporting relationships and eliminate the confusion caused by multiple, conflicting
directives. Incident managers at all levels must be able to control the actions of all
personnel under their supervision.
Unified Command
In incidents involving multiple jurisdictions, a single jurisdiction with multi-agency
involvement, or multiple jurisdictions with multi-agency involvement, unified command
allows agencies with different legal, geographic, and functional authorities and
responsibilities to work together effectively without affecting individual agency authority,
responsibility, or accountability.
Accountability
Effective accountability at all jurisdictional levels and within individual functional areas
during incident operations is essential. To that end, the following principles must be
adhered to:
Check-In – All responders, regardless of agency affiliation, must report in to receive an
assignment in accordance with the procedures established by the IC.
Incident Action Plan – Response operations must be directed and coordinated as outlined
in the IAP.
Unity of Command – Each individual involved in incident operations will be assigned to
only one supervisor.
Span of Control – Supervisors must be able to adequately supervise and control their
subordinates, as well as communicate with and manage all resources under their
supervision.
Resource Tracking – Supervisors must record and report resource status changes as they
occur.
Deployment
Personnel and equipment should respond only when requested or when dispatched by an
appropriate authority.
Information and Intelligence Management
The incident management organization must establish a process for gathering, sharing,
and managing incident-related information and intelligence.
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77
Additional, more detailed information on the incident command system can be found in a
variety of sources, particularly the NIMS Integration Center
( http://www.fema.gov/nims/index.shtm) and the National Interagency Coordination
Center ( http://www.nifc.gov/nicc/index.htm).
291H
292H
ORGANIZATIONAL SYSTEM
The governmental structure of the Consolidated City of Jacksonville/Duval County is
unique in Florida.
The county government of Duval County and the municipal
government of the City of Jacksonville are consolidated into a single body politic, which
has jurisdiction as a chartered county government throughout Duval County, and has
jurisdiction as a municipality throughout Duval County except in the cities of Jacksonville
Beach, Atlantic Beach, Neptune Beach and the Town of Baldwin. The executive power of
the consolidated government (except as retained by the beach municipalities and
Baldwin) is vested in the mayor of Jacksonville, who is chief executive and administrative
officer of the consolidated government. This system is depicted in Figure 31A next page.
NOVEMBER 2010
78
Figure 31A: City of Jacksonville Organizational Structure
NOVEMBER 2010
79
NORMAL, NON-EMERGENCY OPERATIONS
During the time when the emergency preparedness organization is in routine or nonemergency operational status, the Emergency Preparedness Division Chief and staff are
responsible for maintaining the records, files and other papers pertaining to the various
services of the emergency preparedness organization and for keeping, and as necessary,
revising an accurate, adequate record of personnel assignments to the emergency
preparedness positions authorized by this CEMP and subordinate plans. The Division shall:
Keep persons throughout the General Services District well informed by establishing and
maintaining a comprehensive educational program that focuses on emergency
preparedness. Such programs shall be responsive to identified needs and shall involve, to
the extent practicable, all aspects of the community including but not limited to the
media, retailers, banks, utilities, independent agencies of the city and other public sector
and private sector entities.
Keep the Security and Emergency Preparedness Planning Council (SEPPC) and the City
Council well informed by preparing and submitting an annual emergency preparedness
report.
On an annual basis identify, record, and update persons with special needs residing in the
General Services District and also facilitate the development and implementation of a
means designed to pick up and return such persons to designated locations.
Be the central repository for all mutual aid agreements, concerning emergency
preparedness, which have been approved and authorized by the City Council.
Maintain a state of readiness posture by conducting exercise programs each calendar
year.
Any local disaster preparedness agency within the General Services District is subject to
the provisions of Part 2 of Chapter 674 Consolidated City of Jacksonville Ordinance Code
and shall be required to coordinate its efforts through the Emergency Preparedness
Division (EPD) cooperating with the Division and observing the rules and orders made and
issued by the EPD Chief that apply to and affect that agency.
Emergency Preparedness Division Organizational Structure
The day-to-day management structure and line of authority of the Consolidated City of
Jacksonville and Emergency Preparedness Organization are illustrated in Figure 31B on the
next page.
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80
INCREASED READINESS PROCEDURES
The chief of the Emergency Preparedness Division is responsible for monitoring all
significant incidents and for placing on alert those agencies that may be required to assist
in the response. Hazard Specific Plans and Interagency Coordinating Procedures establish
a system for reacting to various warnings of impending local disasters and emergencies of
regional significance so that the effect of disasters is reduced. These plans recognize
certain conditions that trigger precautionary and emergency notification and response
actions, either by the Emergency Preparedness Division staff or larger elements of the
emergency response organization.
Local Disaster - In most cases, localized disasters occur without warning. In such cases
where a warning is received from an agency (i.e., the National Weather Service, FBI, CDC,
etc.), the information will be disseminated to those agencies within the county with
emergency response and warning duties. The staff of the Emergency Preparedness
Division will monitor conditions, regardless of the hazard and if practical, issue warning
statements for the affected areas based on hazards present.
Figure 31B: Emergency Preparedness Division Organizational Chart
Division Chief
Emergency Preparedness
“County Emergency Manager”
“Jacksonville Security
Coordinator”
Liaison
Fire Training Academy
Deputy Director
Administration, Grants,
Mitigation & Recovery
Executive Secretary
Deputy Director
Planning & Operations
Program Manager
MMRS
Health & Medical
Fire Liaison
Homeland Security
Citizen Corps/CERT
Coordinator
Planner
Mitigation &
Recovery
Program Manager
UASI Program
Coordinator
UASI Program
Planner
Training & Exercises
Logistical Support
UASI Program
Senior Planner
Operations & HazMat
EOC Specialist
Senior Planner
Plans
Planner
Public Education
Special Needs
Data Clerk
Hurricanes pose a threat to the community that warrants special consideration and
attention during the months from June to November. However, other weather systems
also have the potential of inflicting extensive damage to our community, damage that
could easily outstrip local emergency response and recovery resources. Modern weather
monitoring equipment provides an early warning of the appearance of hurricanes in the
NOVEMBER 2010
81
tropics, or other significant weather patterns, which have the potential of inflicting severe
weather on northeast Florida, such as the "Storm of the Century" winter storm of 1993 and
the "Ice Storm" of 1989. These slowly developing threats normally, but not always, allow
preparation time.
Prior to the activation of the EOC/Area Command, general and restricted information can
be distributed to those agencies with emergency responsibilities through the Emergency
Preparedness Division notification system. Once the EOC/Area Command is active, this
information will be distributed to field personnel at outlying locations and to other
activated groups within the area on a regular basis.
Throughout the developing threat of an approaching hurricane, restricted information will
also be provided by telephone to key officials, disaster organizations and medical
facilities. Preparation activities by local personnel and associated disaster agencies will be
governed by the following readiness conditions:
Hurricane Season (June 1 - November 30)/Winter Storm Season (December 1 - March 1):
Normal operating procedures, monitor National Weather Service, National Hurricane
Center information and advisories as well as other monitoring services for developing
weather systems.
Monitoring Conditions/Hurricane or Severe Weather Alert - Issuance of 72-Hour
Hurricane/Severe Weather Advisory. Emergency Preparedness Division staff alerts county
emergency response network of weather conditions and preparation/activation status.
Emergency Preparedness Division staff will leave the EOC/Area Command in shifts, as
necessary, to prepare their homes and families for storm and their extended absence.
Based on monitoring data and discussions with the mayor, the Emergency Preparedness
Division Chief will activate the Emergency Operations Center to the appropriate level for
readiness. Staff implements readiness and response procedures, including equipment
checks and EOC staffing levels.
Hurricane Watch - Approximately 48-hours prior to landfall and prior to an official
Hurricane Watch (36 hours until hurricane conditions) established by National Weather
Service, the Emergency Preparedness Division (EPD) staff continues readiness and
response procedures, with possible 24-hour staffing of the EOC/Area Command and
regular reports to response agencies. EOC personnel begin identification of specific
shelters to be staffed and opened. Command staff considers a local declaration of
emergency and evacuation orders. These are implemented as necessary.
Hurricane Warning - Minimum 24-hours before projected onset of gale force winds, and
before Duval County is placed under a Hurricane Warning by the National Hurricane
Center, but has been advised by the National Weather Service that such status is
expected, the EOC/Area Command goes to a Level I activation if not already there.
Evacuation - The Executive Group is convened prior to any declaration of emergency or
evacuation orders are issued. The goal is that during the twelve hours prior to projected
onset of gale force winds, evacuation will be completed, shelters will be open and
receiving clients, advanced preparedness measures and pre-staging of response
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82
equipment will be complete. Relocation of beaches' governments to pre-designated
inland positions, if necessary, will be completed.
Re-Entry/Recovery – The threat has passed. Search and rescue, damage assessment,
initiation of recovery begins. Levels of EOC/Area Command activation and manning will
be determined by the amount of damage, population displacement, and other factors.
The details of these functions can be found in the Consolidated City of Jacksonville/Duval
County Recovery Plan.
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83
EMERGENCY OPERATIONS
Authorization - The mayor of the Consolidated City of Jacksonville/Duval County is
authorized to activate the Emergency Preparedness Organization that shall in turn
proceed to execute the Comprehensive Emergency Management Plan, or so much
thereof as is necessary. This plan is based on the principle that the Consolidated City of
Jacksonville/Duval County authorities bear the initial responsibility for disaster response
and relief. As a corollary to the principle, each agency of Consolidated City of
Jacksonville/Duval County government will accomplish the functions for which it is
responsible. This requires that each agency be aware of the functions they will have to
perform during a disaster, the agency personnel will be trained in these disaster response
functions, and that agency personnel will report to work prior to, during, and following a
disaster.
During any absence of the mayor from the Consolidated City of Jacksonville/Duval
County, the president of the Jacksonville City Council shall automatically become acting
mayor, with emergency powers to act only when the public interest requires and with
such additional powers as the mayor may designate. If the mayor and the president of
the Council are simultaneously absent or incapable of acting as mayor, then the vice
president of the City Council of the council shall automatically become acting mayor with
the same powers, as the president of the council would have had in like circumstances. If
the mayor, council president and vice president of the council are simultaneously absent
or incapable of acting as mayor, then the chairman of the Committee on Rules of the
Council and then the Chairman of the Committee on Finance of the Council shall
become acting mayor. 5
4F
State and federal governments are prepared to supplement the efforts of the
Consolidated City of Jacksonville/Duval County when it becomes clearly evident that the
Consolidated City of Jacksonville/Duval County is unable to cope with the effects of the
disaster. Jacksonville will handle most emergencies in accordance with Chapter 674 of
the Ordinance Code, which provides for emergency continuity of the Consolidated City
of Jacksonville/Duval County government in the event of any man-made or natural
disasters or emergencies and creates the framework of the emergency response
organization, establishes the need for disaster preparedness to deal with natural and civil
emergencies. Executive Order number 2008-01 was issued by the mayor to promulgate
the intent and instructions of Chapter 674, and further establishes administrative
regulations, procedures and requirements of the local emergency response organization.
When local resources are clearly inadequate to handle the situation, assistance will be
requested from higher levels of government, both state and federal.
Chapter 674.203 of the Consolidated City of Jacksonville/Duval County Ordinance
essentially outlines a re-organization of government when a disaster is declared and the
Emergency Preparedness Organization is activated. Chapter 674.206 paragraphs (a) and
(b) outline the mayor’s responsibility to declare a disaster with a proclamation indicating
the nature of the disaster, the area or areas of the Consolidated City of Jacksonville/Duval
County threatened by it, the conditions which have brought it about, and the conditions
5
Ordinance Code of the City of Jacksonville, Chapter 674, Disaster Preparedness and Civil Emergency
NOVEMBER 2010
84
to terminate it. It states that the mayor shall convene the Council at the time of
declaration and report all the facts and circumstances and recommendations in
connection therewith.
Requests for local assistance will be made to the Chief of the Emergency Preparedness
Division through the appropriate Consolidated City of Jacksonville/Duval County agency.
After an evaluation of the situation has been made by the Emergency Preparedness
Division based on agency reports and reports from Damage Assessment Teams with the
Consolidated City of Jacksonville/Duval County, the mayor may direct the Consolidated
City of Jacksonville/Duval County resources into the affected area and/or declare a State
of Local Emergency to exist in the area. With an impending threat, such as a tropical
cyclone, a local state of emergency may be declared in advance. The Consolidated City
of Jacksonville/Duval County CEMP will be implemented, the Emergency Operations
Center activated, and the Consolidated City of Jacksonville/Duval County resources
made available for special assistance as requested by the Emergency Preparedness
Division. The Emergency Operations Center/Area Command (EOC) staffing assignments
shall be as shown in the EOC/Area Command Position Specific Guides (PSGs). Activation
of the EOC/Area Command will activate the Emergency Preparedness Organization,
which is organized using the incident command system (ICS), similar to the organization of
state and federal disaster response organizations.
The Consolidated City of Jacksonville/Duval County agencies will provide resources to
assist these designated areas according to the functional responsibilities outlined in this
document and within the EOC/Area Command Position Specific Guides (PSGs). For each
ICS unit or function, one agency has lead responsibility and other agencies are assigned
participating roles. The lead agency will provide both resources and leadership relating to
that unit or function, with participating agencies providing resources as requested by the
agency with lead responsibility.
When local resources are determined to be inadequate to cope with the disaster, the
mayor will request state and/or federal assistance through the governor. The Emergency
Preparedness Division will coordinate with the Florida Division of Emergency Management
through the Planning Section to ensure the most effective management of such
assistance.
After an incident, specialized assistance for specific needs may be requested from various
federal agencies. Procedures for requesting aid from federal programs are included in
the Consolidated City of Jacksonville/Duval County Recovery Plan. The DEM will be kept
informed of such requests in case state coordination is later required.
The mayor or his authorized designee will initiate, execute, and direct the operation. The
mayor or his authorized designee will control the operation, either personally and or
through delegation of tasks.
Structure
The Emergency Preparedness Organization of the Consolidated City of Jacksonville/Duval
County shall be organized as follows:
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85
Pursuant to Chapter 674, Ordinance Code, the head of the Emergency Preparedness
Organization shall be the mayor, assisted by the Jacksonville Security Coordinator, an
Executive Group and an Operations Group. Control and direction of the emergency
preparedness organization shall be vested in the mayor, who shall be responsible for the
prompt, efficient execution of the emergency management plan, or so much thereof as is
necessary to:
Reduce the vulnerability of the people and of the Consolidated City of Jacksonville/Duval
County to damage, injury and loss of life and property;
Prepare for and execute rescue, care and treatment of persons victimized or threatened
by disaster; and
Provide a setting conducive to the rapid and orderly start of restoration and rehabilitation
of persons and property affected by a disaster
The Executive Group, under the coordination of the mayor, is comprised of the Chief of
the Emergency Preparedness Division/ Jacksonville Security Coordinator and appropriate
department heads and other key individuals identified by the mayor. This group is the
governing authority over the others within the EOC/Area Command and elsewhere. A
staff Advisory Group composed of senior technical advisors whose expertise is vital to the
successful execution of disaster operations accompanies the Executive Policy Group.
The Operations Group, under the Executive Group and headed by the Chief of the
Emergency Preparedness Division/Jacksonville Security Coordinator, is comprised of
representatives of the many governmental and non-governmental agencies necessary to
ensure a complete and functional response to disaster situations, and is responsible for the
coordination of efforts to deal with a disaster or emergency. Present within the Operations
Group will be the managers of those city/county agencies that are relied on by the other
representatives for support in such areas as transportation, communication and supply.
Because the term “Operations Group” as designated by Chapter 674, Ordinance Code
may be confused with the “Operations Section” as established within the Incident
Command System that is utilized in the Duval County EOC, for the purposes of this
Comprehensive Emergency Management Plan the term “EOC Management Team” will
be used in its place.
The EOC Management Team is divided into sections, branches, groups and units in
accordance with ICS principles. Each branch/group/unit is responsible for an element or
elements of the preparedness, response, and recovery operation. Branch/Group/Unit
staffing, responsibilities, and other information are further outlined in the Emergency
Operations Center Interagency Coordinating Procedures (ICPs) and Position Specific
Guides (PSGs).
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86
Figure 32: EOC/Area Command Organizational Chart
NOVEMBER 2010
87
Emergency Operations Center Activation Levels
The Emergency Operations Center can be activated to three (3) levels, depending on the
nature of the disaster. The mayor, through the Chief of the Emergency Preparedness
Division, shall designate what level of activation is required in response to a given situation,
and shall ensure all steps for notification and operation are completed for that level of
activation:
Level 3 – Monitoring Activation – Level 3 is typically a “monitoring” phase. Notification will
be made to those agencies and branches/groups/units that would need to act as part of
their everyday responsibilities. This activation will typically involve only the Emergency
Preparedness Division’s staff and other members of the Fire and Rescue Department. This
level is established to perform regular situation analysis functions utilizing the best
information available for decision-making purposes.
Level 2 – Partial Activation – All primary branches/groups/units are notified. The
Emergency Preparedness Division personnel and the necessary branches/groups/units will
staff the Emergency Operations Center. Includes the staff listed above and
representatives of those branches/groups/units, city/county or non-city/county agencies,
EOC/Area Command units, or individuals as may be designated by the Chief of the
Emergency Preparedness Division as required to address an emergency situation. The
Chief of the Emergency Preparedness Division may activate portions of this plan in
preparation of an anticipated major disaster, such as a hurricane or tropical storm.
Level 1 – Full-Scale Activation – 24-hour staffing of the Emergency Operations Center. All
lead and participating agencies are notified. Requires the involvement of the entire local
emergency response organization, and would result in the full activation of each unit of
the Emergency Operations Center.
OPERATIONS RESPONSIBILITIES
General
Officials at all levels of government share responsibility for the necessary planning needed
to minimize losses and provide relief from possible natural disasters.
This shared
responsibility includes the disaster preparedness and response capabilities of the
Consolidated City of Jacksonville/Duval County government, municipal governments,
districts and independent authorities, volunteer agencies, and state and federal
government.
Initial response will provide for an immediate reaction to alleviate human suffering,
prevent loss of life, protect property, and to return the area to normalcy in the least
possible time. Operational plans shall be developed for accomplishment of various
program goals and objectives designed to effectively reduce hazards and to bring longrange recovery to distressed areas.
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88
Role of the Consolidated City of Jacksonville/Duval County
Be prepared to direct and control local response to a majority of emergencies in
accordance with local laws and mutual aid arrangements with adjacent communities,
special districts and voluntary organizations;
Provide immediate response through local police, fire/rescue and public facilities;
Establish readiness procedures to ensure proper training of personnel and the availability
of appropriate personnel and equipment in time of emergency. Readiness procedures
must also provide for notification of personnel when a warning is received from DEM;
Request activation of mutual aid arrangements when specific aid coordination in such
agreements is required;
Request assistance from other governments, either other members of the Florida Statewide
Mutual Aid Agreement, or higher levels of government, state and federal agencies,
through the Florida Division of Emergency Management;
Specific Responsibilities of the Mayor
The following specific responsibilities apply to the Mayor of the Consolidated City of
Jacksonville/Duval County as established by Chapter 674 of the Ordinance Code.
Expanded functional responsibilities of the Consolidated City of Jacksonville/Duval County
agencies are found in the Response Section of this Comprehensive Emergency
Management Plan and the EOC/Area Command Position Specific Guides (PSGs).
The mayor is responsible for meeting the dangers presented to the Consolidated City of
Jacksonville/Duval County and its people by a natural disaster. The mayor may issue
executive orders, proclamations and regulations and amend or rescind them in the
fulfillment of this responsibility, and such executive orders, proclamations and regulations
shall have the force and effect of law during the period for which they are effective.
During the continuance of a natural disaster emergency, the mayor is commander-inchief of the emergency management forces available for emergency duty. To the
greatest extent possible, the mayor shall delegate or assign command authority by prior
arrangement embodied in the emergency management plan or in appropriate executive
orders or regulations, but this shall not restrict his authority to do so by orders issued at the
time of and during the disaster emergency.
The Mayor of the Consolidated City of Jacksonville/Duval County is the director of the
Executive/Policy Group of the Emergency Operations Center. As such, he is head of the
elected and appointed officials that have the executive authority to establish the policies
that will direct EOC/Area Command operations and emergency response actions.
Declaration; Termination - A natural disaster emergency shall be declared by
proclamation of the mayor if he finds that a disaster has occurred or that the occurrence
or the threat thereof is imminent. The state of disaster emergency shall continue until the
mayor finds that the threat or danger has been dealt with to the extent that the
emergency conditions no longer exist and he terminates the state of disaster emergency
by proclamation; but no state of disaster emergency may continue for longer than thirty
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89
days unless renewed by the mayor. At the same time as the state of disaster emergency is
declared, the mayor shall convene the Council in special meeting, at which he shall
report to the Council all the facts and circumstances concerning the disaster and his
recommendations in connection therewith. The Council by resolution may terminate a
state of disaster emergency at any time, whereupon the mayor shall issue proclamation
ending the state of disaster emergency. All proclamations issued under this subsection
shall indicate the nature of the disaster, the area or areas of the Consolidated City of
Jacksonville/Duval County threatened by it and the conditions which have brought it
about or which make possible the termination of the state of disaster emergency. A
proclamation issued under this subsection shall be promptly disseminated by means
calculated to bring it to the attention of the general public and, unless the circumstances
attendant upon the disaster prevent or impede, it shall be promptly filed with the Council
Secretary.
Suspend the provisions of any ordinance prescribing procedures for the conduct of
Consolidated City of Jacksonville/Duval County business or the rules, regulations or orders
of any Consolidated City of Jacksonville/Duval County agency, if strict compliance with
such ordinance, rule, regulation or order would in any way prevent, hinder or delay
necessary action in coping with the disaster.
Utilize all available resources of the Consolidated City of Jacksonville/Duval County
government as reasonably necessary to cope with the disaster.
Transfer the direction, personnel or functions of the Consolidated City of
Jacksonville/Duval County agencies, or units thereof, for the purpose of performing or
facilitating emergency services.
Request the assistance and cooperation of the independent agencies, or such of them as
are reasonably necessary to implement the emergency management plan, and, in the
event that an independent agency fails or refuses to provide the requested assistance
and cooperation or that there is no one available to order such assistance and
cooperation, commandeer or utilize such independent agency's personnel and
equipment as reasonably necessary to cope with the disaster.
Subject to the provisions of Section 674.211 of this Ordinance Code, commandeer or utilize
any private property if he finds this necessary to cope with the disaster.
Direct and compel by any necessary and reasonable force the evacuation of all or part
of the population from any stricken or threatened area within the Consolidated City of
Jacksonville/Duval County if he deems this action necessary for the preservation of life or
other disaster mitigation, response or recovery.
Prescribe routes, modes of transportation and destinations in connection with an
evacuation.
Control ingress to and egress from a disaster area, the movement of persons within the
area and the occupancy of premises therein.
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Suspend or limit the sale, dispensing or transportation of alcoholic beverages, firearms,
explosives and combustibles.
Make provision for the availability and use of temporary emergency housing.
Take or direct measures for limiting or suspending lighting devises and appliances, gas and
water mains, electric power distribution and other utility services in the general public
interest.
Take or direct measures concerning the conduct of civilians, the movement and cessation
of movement of pedestrian and vehicular traffic prior to, during and subsequent to drills
and actual or threatened disasters, the calling of public meetings and gatherings and the
evacuation and reception of the civilian population, as provided in the emergency
management plan.
Authorize the use of forces already activated or mobilized to assist private citizens of the
Consolidated City of Jacksonville/Duval County in cleanup and recovery operations
during a natural disaster when permission to enter onto or into private property has been
obtained from the property owner.
Enforce and utilize the provisions of mutual aid plans and inter-jurisdictional agreements
and, in connection therewith:
Organize and dispatch Emergency Preparedness support forces, including personnel,
supplies and equipment as necessary, to other counties, transfer operational command of
such forces to the other jurisdiction and resume operational command of such forces
when they are no longer needed outside of the Consolidated City of Jacksonville/Duval
County.
Request and assume operational command of Emergency Preparedness support forces,
including personnel, supplies and equipment as necessary, dispatched from other
jurisdictions into the Consolidated City of Jacksonville/Duval County and transfer
operational command of such forces to the original jurisdiction when they are no longer
needed in the Consolidated City of Jacksonville/Duval County; and loan, lease or transfer,
on such terms and conditions as he deems necessary to promote the public welfare and
protect the interests of the Consolidated City of Jacksonville/Duval County, any property
of the Jacksonville government required or useful to effectuate the mutual aid plan or
inter-jurisdictional agreement, and receive and utilize any property of another jurisdiction,
by loan, lease or transfer on such terms and conditions as he deems advisable, pursuant
to a mutual aid or inter-jurisdictional agreement.
Waive procedures and formalities otherwise required by the Charter or bylaw pertaining
to:
• The performance of public work.
• The entering into of contracts.
• The incurring of obligations.
• The employment of permanent and temporary workers.
• The utilization of volunteer workers.
• The rental of equipment.
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•
•
The purchase and distribution, with or without compensation, of supplies, materials
and facilities.
The appropriation and expenditure of public funds.
Emergency Response Organization
The Direction and Control of major disaster preparation, response and recovery is
centered on the Consolidated City of Jacksonville/Duval County Emergency Operations
Center. The Chief of the Emergency Preparedness Division can activate the Emergency
Operations Center/Area Command at any time in response to the approach of a
hurricane, other severe weather occurrence, or in the event of a technological accident
or other major incident. The Director may activate the EOC/Area Command prior to
formal activation by the mayor, in preparation of the formal activation, or at any time he
feels it necessary to do so in response to an approaching storm or other anticipated
emergency event.
The organization of the Emergency Operations Center will depend upon the emergency
responsible for activation. See Structure on page 87 for details of this organization.
The Media Briefing Room (MBR) is located on the first floor of the Fire and Rescue
Administration Building.
Each group is specially identified in the accompanying organization lists. Their principle
tasks and actions at the different stages of response are also outlined. In addition to the
attached group task outlines, each of the principle participants, including the mayors of
the different jurisdictions, the Chief of Staff for the Mayor of Jacksonville, and head of the
Northeast Florida Chapter of the American Red Cross, are provided with specific outlines
of their duties and responsibilities, so that they understand their roles within the EOC/Area
Command and what is expected of them during an emergency.
Executive Group
As designated in City Ordinance Chapter 674.202 (Executive Order 2008-01), the Executive
Group should be comprised of the Jacksonville Security Coordinator and appropriate
department heads and other key individuals identified by the mayor. These positions are
currently identified as:
•
•
•
•
•
•
•
•
•
•
•
Mayor, the Consolidated City of Jacksonville/Duval County
Chief, Emergency Preparedness Division (Emergency Manager/Security
Coordinator)
Director/Fire Chief, Jacksonville Fire & Rescue Department
Director, Jacksonville Public Works Department
Director, Jacksonville Environmental Resource Management
Duval County Sheriff, Jacksonville Sheriff’s Office
Chief Administrative Officer, City of Jacksonville
Chief of Staff, Mayor’s Office
President, Jacksonville City Council
Director, Duval County Health Department
CEO, Shands-Jacksonville Medical Center
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•
•
•
•
•
•
Duval County School Board
Chief Judge, 4th Judicial Circuit Court
CEO, JEA
CEO, Jacksonville Port Authority
CEO, Jacksonville Airport Authority
Executive Director, Jacksonville Transportation Authority
As the scenario dictates, other county leaders will be activated for the Executive Group.
These include representatives from:
•
•
•
•
•
•
•
•
•
•
Northeast Florida Chapter of the American Red Cross
Florida Department of Transportation
Navy Southeast Region
Town of Baldwin Mayor
City of Atlantic Beach Mayor
City of Neptune Beach Mayor
City of Jacksonville Beach Mayor
Jacksonville Community Council Inc.
Bellsouth
The responsibilities of the Executive Group are as follows:
•
•
•
•
Authorize issuance of public evacuation recommendations, notice of school and
government office closures, and related actions at appropriate time.
Promulgate emergency policy decisions.
Oversee “Watch/Warning/Landfall/Recovery” operations.
Issue necessary proclamations and ordinances.
The activities of the Executive Group are as follows:
•
•
•
•
•
Alert Actions: Upon recommendation of Jacksonville Security Coordinator, review
plan and procedures, brief staffs, and verify personnel assignments.
Watch Actions: Maintain continuous liaison with the EOC Management Team.
Warning Actions: Convene at Emergency Operations Center; Authorize Evacuation
Order; Make other emergency-related decisions.
Landfall Actions: Direct agencies performing emergency activities.
Recovery Actions: Direct recovery as the Recovery Task Force.
EOC Management Team
In order to be consistent with federal and state agencies, and to facilitate the
coordination of its response to a natural or man-made disaster, the Consolidated City of
Jacksonville/Duval County's Emergency Preparedness Division adopted the Incident
Command System concept for its emergency management operations.
Each member of the EOC Management Team, as a senior administrator of the local
government or other entity, must be prepared to respond to a disaster situation in an
orderly, precise manner. As a situation develops prior to the activation of the EOC/Area
Command, the Emergency Preparedness Division will constantly update those would be
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EOC/Area Command staff once activated. Besides the specific actions required by their
position, the activities described below will be taken by EOC/Area Command staff
members and other senior administrators who are not required to report to the EOC/Area
Command.
The EOC Management Team is responsible for managing tactical operations directed
toward reducing the immediate hazard, saving lives and property, establishing situation
control, and restoring normal conditions. Because of its functional unit management
structure, the ICS is applicable across a spectrum of incidents differing in size, scope, and
complexity. Numerous county agencies are included in the EOC Management Team,
such as fire, law enforcement, public health, public works, and emergency services, work
together as a unit or in combinations, depending on the situation. Many incidents may
involve private individuals, companies, or nongovernmental organizations, some of which
may be fully trained and qualified to participate as partners in the Operations Section.
Lead agencies
As required by 9G-6.0023 (FAC), the CEMP assigns lead and support responsibilities for
agencies and personnel that coordinate with the emergency support functions outlined in
the State Plan. The lead agencies are designated because they either have a statutory
responsibility to perform that function, or through its programmatic or regulatory
responsibilities, the agency may have developed the necessary expertise to lead the
group or unit. In some agencies, a portion of the agency's mission is very similar to the
mission of the group/unit; therefore, the skills to respond in a disaster can be immediately
translated from the daily business of that agency.
Figure 33 on the following pages lists lead, participating, and coordinating responsibilities
of each partner organization.
The lead agency has the responsibility of coordinating all participating agencies to ensure
that missions are accomplished and resources are maximized. The lead agencies report to
their respective branch or section leader. All lead agency staff must fulfill both
administrative responsibilities and operational responsibilities to ensure proper coordination
among all participating agencies. The operational responsibilities of each lead and
participating agency are outlined in the individual inter-agency coordinating procedures
(ICPs).
Administrative responsibilities for lead agency staff include the following:
•
•
•
•
•
Staff the EOC/Area Command upon activation and ensure 24 hour staffing
coverage based on the level of activation;
Maintain a roster of all participating agency contact persons, make necessary
notifications, activate participating agencies as necessary, and maintain ongoing
communications to support mission assignments;
Maintain a listing of all available resources;
Develop, maintain, and review participating agency ICPs/PSGs to allow for the
efficient and effective implementation of the group/unit mission;
Prioritize missions in coordination with the EOC based on life safety and protection
of property and in accordance with the IAP;
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•
•
•
•
Once local resource capabilities have been exhausted, coordinate mutual aid and
private vendor resource needs to requesting parties within the county, through the
proper resource request procedure. Documentation shall be maintained for
operational accountability and for purposes of financial reimbursement;
Coordinate for the provision of all mutual aid resources to requesting parties outside
of the county in accordance with appropriate resource request procedures and
based on available assets;
Documentation shall be maintained for operational accountability and for
purposes of financial reimbursement.; and
Train all staff responsible for implementing the plan, including participating agency
staff, on ICPs/PSGs.
Participating Role or Agency
A participating agency has the following responsibilities:
•
•
•
•
•
Provide appropriate personnel, equipment, facilities, technical assistance and other
support as required, in order to assist the lead agency in accomplishing the goals,
objectives and missions assigned;
Provide technical and subject-matter expertise, data, advice, and staff support for
operations that fall within the domain of the respective agency;
Assist the lead agency in staffing the EOC/Area Command, as needed;
Maintain and review applicable ICPs/PSGs to allow for the efficient and effective
implementation of the group/unit mission(s); and
Train all agency staff responsible for implementing the plan, ICPs and PSGs.
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P = Primary or Lead Agency
S = Secondary role or agency
Amateur Radio Emergency Service
American Red Cross, Northeast
Florida Chapter
Association of Contingency Planners,
Northeast Florida Chapter
Atlantic Beach Animal Control
Atlantic Beach Police Department
Baldwin Police Department
AT&T
Civil Air Patrol
Duval County Emergency
Communications Group
Duval County Health Department
Duval County Property Appraiser
Duval County School Board
Emergency Email Network
Emergency Services Homeless
Coalition
First Coast Disaster Council
Florida Department of Children &
Family Services, District 4
Florida Department of Health - Bureau
of Labs & Office of Vital Statistics
Florida Department of Law
Enforcement
Florida Division of Emergency
Management - Area 3 Coordinator
Florida Fish & Wildlife Conservation
Commission
Florida Highway Patrol
Florida National Guard, North Area
Command
Florida Poison Information Center
Florida-Georgia Blood Alliance
Jacksonville Administration & Finance
Department
NOVEMBER 2010
O p e ra tio n s S e c tio n
E m e rg e n c y S e rv ic e s D e p u ty O p e ra tio n s S e c tio n
L a w E n fo rc e m e n t B ra n c h
F ir e B r a n c h
H A Z M A T B ra n c h
H e a lt h & M e d ic a l B r a n c h
H u m a n S e rv ic e s D e p u ty O p e r a tio n s S e c tio n
S h e lt e r in g B r a n c h
B u lk D is t r ib u t io n B r a n c h
M a s s C a re B ra n c h
T e m p o r a r y H o u s in g B r a n c h
A n im a l I s s u e s B r a n c h
In fra s tru c tu r e D e p u ty O p e r a tio n s S e c tio n
P u b lic W o r k s B r a n c h
U t ilit ie s B r a n c h
T e le c o m m u n ic a t io n s B r a n c h
C o rp o ra te R e c o v e ry B ra n c h
T r a n s p o r t a t io n B r a n c h
L o g is tic s S e c tio n
S e r v ic e s B r a n c h
F o o d U n it
G r o u n d S u p p o r t U n it
C o m m u n ic a t io n s U n it
V o lu n t e e r R e c e p t io n C e n t e r U n it
S u p p o rt B ra n c h
F a c ilit ie s U n it
D o n a t io n s U n it
S u p p ly U n it
F u e l U n it
P la n n in g S e c tio n
T e c h n ic a l S p e c ia lis t
D o c u m e n t a t io n U n it
R e s o u r c e s U n it
S it u a t io n U n it
D a m a g e A s s e s s m e n t U n it
G I S U n it
F in a n c e /A d m in is tra tio n S e c tio n
T im e U n it
C o s t U n it
C o m p e n s a t io n / C la im s U n it
P r o c u r e m e n t U n it
P u b lic I n f o r m a t io n O f f ic e r
L ia is o n
S a f e t y O f f ic e r
Figure 33: Lead Agency Matrix
P
S
S
S
S
S
P
P
S
S
S
S
S
S
S
S
S S
S
S
S
S
S
S
S
S
S
S
S
S
S S
S
S
S
S
S
S
S
S
S
S
S
S
S
S
P P P P P
96
T im e U n it
C o s t U n it
C o m p e n s a tio n /C la im s U n it
P ro c u re m e n t U n it
P u b lic In fo rm a tio n O ffic e r
L ia is o n
S a fe ty O ffic e r
D o c u m e n ta tio n U n it
R e s o u rc e s U n it
S itu a tio n U n it
G IS U n it
F in a n c e /A d m in is tr a tio n S e c tio n
S e rv ic e s B ra n c h
F o o d U n it
G ro u n d S u p p o rt U n it
C o m m u n ic a tio n s U n it
V o lu n te e r R e c e p tio n C e n te r U n it
F a c ilitie s U n it
D o n a tio n s U n it
S u p p ly U n it
F u e l U n it
P u b lic W o rk s B ra n c h
U tilitie s B ra n c h
T e le c o m m u n ic a tio n s B ra n c h
T ra n s p o rta tio n B ra n c h
S
S
P
S
S
S
S
S S
Jacksonville Business Journal
Jacksonville Chamber of Commerce
Jacksonville Recreation & Community
Services Department
Jacksonville Military Affairs, Veterans
& Disabled Services Division
Jacksonville Economic Development
Commission
Jacksonville Emergency Preparedness
P P
Division
Jacksonville Environmental &
Compliance Department
Jacksonville Fire & Rescue
Department
Jacksonville Fleet Management
Jacksonville GIS Division
Jacksonville Housing &
Neighborhoods Dept.
Jacksonville Humane Society
Jacksonville Information Technologies
Division
Jacksonville Mayor’s Administration,
Press Secretary
Jacksonville Office of Volunteer
Services
Jacksonville Recreation & Community
Services Department
Jacksonville Planning & Development
Department
Jacksonville Port Authority
Jacksonville Procurement Division
Jacksonville Public Information
Division - City Link
Jacksonville Public Works Department
Jacksonville Sheriff's Office
S h e lte rin g B ra n c h
B u lk D is trib u tio n B ra n c h
T e m p o ra ry H o u s in g B ra n c h
A n im a l Is s u e s B ra n c h
In fr a s tr u c tu r e D e p u ty O p e r a tio n s S e c tio n
F ire B ra n c h
H e a lth & M e d ic a l B ra n c h
H u m a n S e r v ic e s D e p u ty O p e r a tio n s S e c tio n
Jacksonville Agricultural Extension
Service
Jacksonville Airport Authority
Jacksonville Animal Care & Control
Division
Jacksonville Beach Animal Control
Jacksonville Beach Electric
Department
Jacksonville Beach Fire Department
Jacksonville Beach Police Department
O p e r a tio n s S e c tio n
E m e r g e n c y S e r v ic e s D e p u ty O p e r a tio n s S e c tio n
S
S
S
S P
S
P
S
P
S P
S P
S S
S S
S
P P P P P S S
S P
S
P P S
S
S
P
S
P
P
P
S P
S
P
P
P
S
P
P
S
S
S
S
P
P
P
S
S
P
P
S
S
S
S
S
S
S
P
S
S S S
Lead Agency Matrix continued
NOVEMBER 2010
97
Jacksonville Sheriff's Office 9-1-1
Jacksonville Transportation Authority
Jacksonville Veterinary Medical
Society
Jacksonville Zoological Gardens
JEA
JTA Connexion
Medical Examiner’s Office
Neptune Beach Animal Control
Neptune Beach Police Department
Northeast Florida Crisis Response
Team
Northeast Florida Regional Planning
Council
Second Harvest Food Bank/Lutheran
Social Services
The Salvation Army
U.S. Coast Guard - Capt of the Port
U.S. Coast Guard - Station Mayport
U.S. Naval Air Station Jacksonville Chief Veterinary Officer (Army
Program)
U.S. Naval Air Station Jacksonville Regional Operations Center
Hands On Jacksonville
Wireless Phone Service Providers
NOVEMBER 2010
O p e r a tio n s S e c tio n
E m e r g e n c y S e r v ic e s D e p u ty O p e r a tio n s S e c tio n
F ir e B r a n c h
H e a lt h & M e d ic a l B r a n c h
H u m a n S e r v ic e s D e p u ty O p e r a tio n s S e c tio n
S h e lt e r in g B r a n c h
B u lk D is t r ib u t io n B r a n c h
T e m p o r a r y H o u s in g B r a n c h
A n im a l I s s u e s B r a n c h
In fr a s tr u c tu r e D e p u ty O p e r a tio n s S e c tio n
P u b lic W o r k s B r a n c h
U t ilit ie s B r a n c h
T e le c o m m u n ic a t io n s B r a n c h
T r a n s p o r t a t io n B r a n c h
S e r v ic e s B r a n c h
F o o d U n it
G r o u n d S u p p o r t U n it
C o m m u n ic a t io n s U n it
V o lu n t e e r R e c e p t io n C e n t e r U n it
F a c ilit ie s U n it
D o n a t io n s U n it
S u p p ly U n it
F u e l U n it
D o c u m e n t a t io n U n it
R e s o u r c e s U n it
S it u a t io n U n it
G I S U n it
F in a n c e /A d m in is tr a tio n S e c tio n
T im e U n it
C o s t U n it
C o m p e n s a t io n / C la im s U n it
P r o c u r e m e n t U n it
P u b lic I n f o r m a t io n O f f ic e r
L ia is o n
S a f e t y O f f ic e r
P
S
S
S
S
S P
S
S
S
S
S
S
S
S S S S S
S
S
S
S
S
S
S
S
S
S
P
S
3-Jun-09
Source: EPD Senior Planner for Plans
98
EOC/Area Command Functional Branch/Groups/Units
The Emergency Operations Center works as a multiagency coordination center and is a
process that allows all levels of government and all disciplines to work together more
efficiently and effectively. In the EOC, multiagency coordination occurs across the
different disciplines involved, across jurisdictional lines, or across levels of government.
Area Command oversees the management of multiple incidents handled individually by
separate incident command organizations or to oversee the management of a very large
or evolving incident engaging multiple incident management teams.
While it is recognized Area Command oversees management coordination of the incident
and the EOC coordinates support, for the purposes of this plan the terms will be used
together to represent both functions in the same location.
As depicted in Figure 32 (page 87), the EOC/Area Command is a compilation of various
relevant Consolidated City of Jacksonville/Duval County agencies/departments and
other entities collaborating to prepare for, respond to, and recover from, a disaster
situation. The EOC/Area Command personnel are comprised of agency representatives
that are considered “decision makers” who have operational authority for the agencies
they represent. These agency representatives are assigned to staff a specific ICS position.
As missions or assignments are generated from the EOC/Area Command, they are passed
to the agency representative at the EOC/Area Command and implemented. The
following section briefly outlines the major roles and responsibilities of the functional
branches/groups/units of the EOC/Area Command. A more detailed description can be
found in the respective group/unit Position Specific Guide (PSG).
594H
Operations Section Overview
The Operations Section is responsible for command, control and coordination of all
response elements applied to the incident, regardless of the hazard. The Operations
Section carries out the objectives of the EOC/Area Command Incident Action Plan and
requests additional resources as needed. In order to maintain effective span of control,
the Operations Section is organized into the following four (4) Deputy Sections:
1.
2.
3.
4.
Emergency Services Deputy Operations Section;
Human Services Deputy Operations Section;
Infrastructure Deputy Operations Section; and
Complex Command Deputy Operations Section
Responsibilities:
•
•
•
•
•
Coordinate support for field operations;
In conjunction with the mayor, Executive Group and Emergency Manager,
establish response priorities;
Ensure cross-functional communications and coordination;
Ensure effective resource sharing between responding departments;
Establish and coordinate EOC/Area Command situation management activities;
NOVEMBER 2010
99
•
•
Supervise implementation of the EOC/Area Command Incident Action Plan; and
Coordinate response activities with state and federal agencies
Law Enforcement Branch
Law Enforcement Branch commands, controls and coordinates law enforcement
resources and activities. The Jacksonville Sheriff’s Office shall serve as the lead agency for
the Law Enforcement Branch and is responsible for linking the EOC/Area Command to law
enforcement agencies (state and federal) and appropriate dispatch centers. The Law
Enforcement Branch Director will complete and maintain status reports for major incidents,
implement the objectives of the EOC/Area Command Incident Action Plan assigned to
the Law Enforcement Branch, and assist and serve as an advisor to the Emergency Service
Deputy Operations Section Chief, as required.
Lead Agency:
Jacksonville Sheriff’s Office
Participating Agencies:
Florida Department of Law Enforcement
Florida Highway Patrol
University of North Florida Police
Atlantic Beach Police Department
Jacksonville Beach Police Department
Neptune Beach Police Department
Fire Branch
The Jacksonville Fire & Rescue Department is the lead agency for the Fire Branch and shall
coordinate all fire, EMS, and urban search and rescue operations within the boundaries of
the Consolidated City of Jacksonville/Duval County and assist neighboring communities if
called upon. The Jacksonville Fire & Rescue Department will complete and maintain
status reports for major incidents, implement the objectives of the EOC/Area Command
Incident Action Plan assigned to the Fire Branch, and assist and serve as an advisor to the
Emergency Services Deputy Operations Section Chief, as required.
Lead Agency:
• Jacksonville Beach Fire Department
• Jacksonville Emergency Medical Auxiliary
NOVEMBER 2010
100
HAZMAT Branch
The Jacksonville Fire & Rescue Department is the lead agency for the HAZMAT Branch and
shall coordinate all hazardous material response operations within the boundaries of the
The Jacksonville Fire & Rescue
Department will complete and maintain status reports for major incidents, implement the
objectives of the EOC/Area Command Incident Action Plan assigned to the HAZMAT
Branch, and implement the HAZMAT Hazard Specific Plan.
Lead Agency:
• Florida Fish & Wildlife Conservation Commission
• Jacksonville Environmental and Compliance Department
• Jacksonville Sheriff’s Office
• U.S. Coast Guard – Sector Jacksonville
Health & Medical Branch
The Health & Medical Branch is responsible for coordinating the provision of medical,
mental, and public health care for the residents and visitors of the Consolidated City of
Jacksonville/Duval County. This includes providing accurate information on where
individuals may receive appropriate care. Responsibilities include:
•
•
•
•
•
•
•
•
•
•
Minimize loss of life, subsequent disability and human suffering by ensuring timely
and coordinated medical and public health assistance;
Coordinate activities of medical care facilities and the procurement, allocation,
and distribution of medical personnel, supplies, communications, and other
resources;
Provide a system for receipt and dissemination of health related information
required for effective response and recovery from a major disaster;
Assist in the implementation of public health actions ordered;
Coordinate with the Public Information Officer (PIO) to inform the public of health
precautions or health related safety instructions for the general public;
Coordinate and prioritize requests for health services support from local responders
and obtains medical/health personnel, supplies and equipment through mutual aid
or requests for state or federal support;
Complete and maintain status reports for major incidents, implement the objectives
of the EOC/Area Command Incident Action Plan assigned to the Health & Medical
Branch;
Implement the Strategic National Stockpile ICP in response to an incident requiring
mass immunization or treatment.
Implement the Metropolitan Medical Response System (MMRS) Annex of the
Terrorism Hazard Specific Plan; and
Implement the Mass Casualty Hazard Specific Plan.
NOVEMBER 2010
101
Lead Agency:
Duval County Health Department
• First Coast Disaster Council
• Florida Department of Health - Bureau of Laboratories
• Florida Department of Health – Office of Vital Statistics
• Florida Poison Information Center
• Florida-Georgia Blood Alliance
• Jacksonville Adult Services Division
• Jacksonville Behavioral and Human Services Division
• Jacksonville Military Affairs, Veterans and Disabled Services Division
• Jacksonville Fire and Rescue Department
• Medical Examiner’s Office
• Northeast Florida Crisis Response Team
• Medical Reserve Corps
Sheltering Branch
The Sheltering Branch is responsible for coordinating the provision of basic temporary
shelter for the residents, special needs clients and visitors of the Consolidated City of
Jacksonville/Duval County. This includes refuge from severe weather or a disaster event,
immediate (short-term) post-disaster sheltering.
Determine the operational status of all facilities listed as potential shelters, including;
• Structural soundness;
• Utility services;
• Adequate sanitation facilities, including showers;
• Capacity for cooking and serving food;
• Housing capacity; and
• Access for people with disabilities.
Pet-friendly sheltering is addressed in the Animal Issues Branch, and longer-term
sheltering/housing is addressing in the Temporary Housing Branch. The Sheltering Branch
will complete and maintain status reports for major issues and incidents and implement
the objectives of the EOC/Area Command Incident Action Plan assigned to the Sheltering
Branch.
Lead Agency:
American Red Cross, Northeast Florida Chapter
NOVEMBER 2010
102
Bulk Distribution Branch
The Bulk Distribution Branch is responsible for coordinating the bulk distribution via Points of
Distribution (PODs) of basic supplies to the residents of the Consolidated City of
Jacksonville/Duval County. The Bulk Distribution Branch will complete and maintain status
reports for major issues or incidents and implement the objectives of the EOC/Area
Command Incident Action Plan assigned to the Bulk Distribution Branch. Please see Figure
30, pages 68 - 69 for list of PODs.
Lead Agency:
Jacksonville Recreation and Community Services Department
• United Way of Northeast Florida
• Second Harvest Food Bank/Lutheran Social Services
Mass Care Branch
The Mass Care Branch is responsible for providing basic human services, including: food,
potable water, clothing, emotional support and other basic necessities to persons
impacted by a disaster. The Mass Care Branch also provides a central disaster registration
and inquiry service to reunite families and respond to outside welfare inquiries. The Mass
Care Branch collaborates closely with other agencies within the Human Services Deputy
Operations Section (i.e., Sheltering Branch, Temporary Housing Branch, etc.) to ensure
close coordination and support for their mass care activities. Responsibilities include:
•
•
•
•
•
•
•
Ensuring effective integration of voluntary agency mass care activities;
Estimating the number of people who will require mass care services (i.e., feeding,
clothing, distribution of relief supplies, etc.);
Ensuring that mass care service delivery programs are designed to address the
needs of all segments of the affected population, including people with special
needs;
Coordinating the provision of shelters, feeding, and disaster welfare inquiries;
Assisting the American Red Cross with inquiries and registration services to reunite
families or respond to inquiries from other relatives;
Ensuring that physical and mental health services are available at shelters and
other mass care service delivery sites; and
Coordinating the collection and distribution of mass care service delivery statistics.
Lead Agency:
The American Red Cross, Northeast Florida Chapter
• Amateur Radio Emergency Service
• Duval County School Board (Shelter Sites)
NOVEMBER 2010
103
•
•
•
•
•
•
•
•
•
Florida Department of Children and Families, District 4
Jacksonville Community Services/Adult Services Division
Jacksonville Community Services/Mental Health & Welfare Division
Jacksonville Disabled Services Division
Jacksonville Housing & Neighborhoods Department
Jacksonville Sheriff’s Office (Security)
JTA
The Salvation Army
Temporary Housing Branch
The Temporary Housing Branch is responsible for coordinating the effective planning for
temporary housing for the residents of the Consolidated City of Jacksonville/Duval County
displaced by a disaster. The Temporary Housing Branch will work closely with state,
federal, and local agencies to expedite any necessary processes to establish alternate
long-term housing options for displaced residents. Additionally, the Temporary Housing
Branch will complete and maintain status reports for major issues or incidents and
the Temporary Housing Branch. The Sheltering Branch Director will coordinate with
Temporary Housing Branch Director on closing of shelters and providing vulnerable
population with viable options for temporary housing post incident.
Lead Agency:
Animal Issues Branch
The Animal Issues Branch is responsible coordinating the provision of care, veterinary
services, welfare, and control of animals during a declared incident or disaster. These
responsibilities include but are not limited to the following:
• Pet-Friendly Sheltering;
• Sheltering;
• Animal search and rescue;
• Veterinary services;
• Lost animal care;
• Food and water;
• Immunization and disease control; and
• Security and quarantine.
Additionally, the Animal Issues Branch will complete and maintain status reports for major
issues or incidents and implement the objectives of the EOC/Area Command Incident
Action Plan assigned to the Animal Issues Branch.
NOVEMBER 2010
104
Lead Agency:
Jacksonville Animal Care and Protective Services Division
• Atlantic Beach Animal Control
• Florida Fish & Wildlife Conservation Commission
• Jacksonville Agriculture Extension Service
• Jacksonville Beach Animal Control
• Jacksonville Humane Society
• Jacksonville Office of Volunteer Services
• Jacksonville Veterinary Medical Society
• Jacksonville Zoological Gardens
• Neptune Beach Animal Control
• U.S. Naval Air Station Jacksonville/Chief Veterinary Officer
Public Works Branch
The Public Works Branch support to assist county agencies and municipalities in
response/recovery operations, including providing support to various operational units
such as fire and law enforcement, countywide damage assessment (structures and
infrastructure), route recovery, debris removal, debris volume assessment, building safety
inspections and demolitions. Additionally, the Public Works Branch will complete and
maintain status reports for major issues or incidents and implement the objectives of the
EOC/Area Command Incident Action Plan assigned to the Public Works Branch.
Lead Agency:
• Jacksonville Recreation and Community Services Department
• JEA
Utilities Branch
The Utilities Branch plans for and coordinates necessary actions to facilitate the restoration
of energy, potable water, and sewer systems following a disaster. JEA is the lead agency
for the Utilities Branch and is responsible for coordinating all utility restoration-related
activities, tracking the restoration of said utilities, ensuring support for field operations,
including effective coordination with other response elements, pro-active exchange of
information and coordination of external resource support. Additionally, the Utilities Branch
will complete and maintain status reports for major issues or incidents and implement the
objectives of the EOC/Area Command Incident Action Plan assigned to the Utilities
Branch.
NOVEMBER 2010
105
Lead Agency:
JEA
• Beaches Energy Services
• BellSouth
Telecommunications Branch
The Telecommunications Branch plans for and coordinates necessary actions to facilitate
the restoration of telecommunications systems, fixed and mobile, following a disaster.
Jacksonville Information Technologies Division is the lead agency for the
Telecommunications Branch and is responsible for coordinating restoration-related
activities, tracking the restoration of telecommunication utilities, ensuring support for field
operations, including effective coordination with other response elements, pro-active
exchange of information and coordination of external resource support. The priority is to
restore telecommunications to critical facilities, including the EOC/Area Command.
Additionally, the Telecommunications Branch will complete and maintain status reports for
major issues or incidents and implement the objectives of the EOC/Area Command
Incident Action Plan assigned to the Telecommunications Branch.
Lead Agency:
Jacksonville Information Technologies Division
• BellSouth
• JEA
• Wireless Phone Service Providers
Corporate Recovery Branch
The Corporate Recovery Branch plans for the flow of information between government
emergency management agencies, private corporations and business groups in order to
facilitate corporate evacuations, re-entries, and recovery; provides education and
training to corporate employees; coordinates the flow of private relief and recovery
resources into impacted areas; and identifies potential sources of relief and recovery
materials and supplies available through the private sector. Additionally, the Corporate
Recovery Branch will complete and maintain status reports for major issues or incidents
and implement the objectives of the EOC/Area Command Incident Action Plan assigned
to the Corporate Recovery Branch.
Lead Agency:
Jacksonville Economic Development Commission
• Association of Contingency Planners, NEFL Chapter
• Private Sector Participants
NOVEMBER 2010
106
Transportation Branch
The Transportation Branch provides overall coordination of transportation assistance to city
and county departments, other governmental and private agencies, and others requiring
transportation assistance in disaster situations. The Transportation Branch coordinates the
designation and restoration of services on critical transportation routes within the
Consolidated City of Jacksonville/Duval County, including the coordination of general
traffic and access control programs. Other responsibilities include:
Coordinating the response operations targeted at restoring and maintaining normal
operations of public transportation systems;
Designating critical transportation routes;
Route recovery;
Supporting evacuation transportation planning;
Providing backup transportation for victims;
Providing transportation for emergency workers during recall operations; and
Completing and maintaining status reports for major issues or incidents and implement the
objectives of the EOC/Area Command Incident Action Plan assigned to the
Transportation Branch.
Lead Agency:
• Duval County School Board - Transportation
• Florida Department of Transportation
• Jacksonville Adult Services Division
• Jacksonville Fleet Management Division
• Jacksonville Recreation & Community Services Department
• JEA & Jacksonville Beach Utilities
• U.S. Coast Guard - Sector Jacksonville
Logistics Section Overview
The Logistics Section is responsible for planning and executing the acquisition and
movement of supplies, equipment, personnel and providing facilities in support of the
response to an incident. The Logistics Section is also responsible for tracking the status of
resource requests from placement to fulfillment. In order to maintain effective span of
control, the Logistics Section is organized into the following two groups:
Services Branch
Support Branch
The Logistics Section is responsible for the following:
NOVEMBER 2010
107
Identify potential sources of resources, including vendors, partner agencies and other
jurisdictions through mutual aid;
Procure, track and arrange for the delivery of materials and/or equipment required to
support the response;
Track the status of resource requests, including requests forwarded to state and federal
agencies through the WebEOC and Constellation systems;
Identify, acquire, renovate and provide logistical services for facilities required to support
the incident response;
Support the establishment of material/equipment warehousing, distribution centers and
staging areas, when directed;
Coordinate the acquisition of supplementary staff through use of temporary staff
agencies, community volunteers, mutual aid agreements or other available sources;
Coordinate the screening, acceptance and handling of donated materials and services;
and
Coordinate logistical support services for the EOC/Area Command.
Food Unit
The Food Unit provides feeding services for disaster response workers. The Food Unit
determines food and water requirements; plans menus, orders food, provides cooking
facilities, cooks, serves, maintains food service areas, and manages food security and
safety concerns. Additionally, the Food Unit will complete and maintain status reports for
any major issues or incidents and implement the objectives of the EOC/Area Command
Incident Action Plan assigned to the Food Unit.
Lead Agency:
Jacksonville Central Operations Department/Procurement Division
None
Ground Support Unit
The Ground Support Unit provides transportation in support of incident operations (except
aircraft), maintains and repairs primary equipment, vehicles, and mobile ground support
equipment, records usage time for all ground equipment (including contract equipment)
assigned to the incident, and supplies fuel for all equipment. Additionally, the Ground
Support Unit also maintains a transportation pool for major incidents. This pool consists of
vehicles (e.g., staff cars, buses, pick-ups) that are suitable for transporting personnel. The
Ground Support Unit also provides up-to-date information on the location and status of
transportation vehicles to the Resources Unit.
Lead Agency:
Jacksonville Fleet Management Division
None
NOVEMBER 2010
108
Communications Unit
The Communications Unit develops the Communications Plan (ICS205) that is consistent
with the Tactical Interoperable Communications ICP in order to make the most effective
use of the communications equipment and facilities. Additionally, the Communications
Unit will complete and maintain status reports for major issues or incidents and implement
the objectives of the EOC/Area Command Incident Action Plan assigned to the
Communications Unit. The Communications Unit is also responsible for the Tactical
Interoperable Communications ICP.
Lead Agency:
• Amateur Radio Emergency Services
• BellSouth
• Duval County Emergency Communications Group
• Wireless Phone Service Providers
Fuel Unit
The Fuel Unit will be responsible for receiving, tracking, storing, and distributing fuel for all
mobile equipment/vehicles, generators, ground support equipment and facilities utilized in
the disaster response. The Fuel Unit will work closely with the Ground Support Unit.
Additionally, the Fuel Unit will complete and maintain status reports for major issues or
incidents and implement the objectives of the EOC/Area Command Incident Action Plan
assigned to the Fuel Unit. The Fuel Unit develops a fuel plan consistent with the Fuel Plan
ICP.
Lead Agency:
Jacksonville Fleet Management Division
None
Facilities Unit
The Facilities Unit will be responsible for monitoring and management of all publicly-owned
buildings and real estate.
Additionally, the Facilities Unit will track all property being
utilized by the Consolidated City of Jacksonville/Duval County and all properties that may
be needed for incident operations; complete and maintain status reports for major issues
or incidents and implement the objectives of the EOC/Area Command Incident Action
Plan assigned to the Facilities Unit.
NOVEMBER 2010
109
Lead Agency:
Jacksonville Public Works Department/Building Inspection Division
Donations Unit
The Donations Unit will be responsible for the management, receipt, tracking, storing, and
distribution of solicited and unsolicited donated goods. Additionally, the Donations Unit
will complete and maintain status reports for major issues or incidents and implement the
objectives of the EOC/Area Command Incident Action Plan assigned to the Donations
Unit.
Lead Agency:
Jacksonville Office of Volunteer Services
Supply Unit
The Supply Unit will be responsible for ordering, receiving, tracking, storing, and distributing
any commodity necessary in support of the response to a disaster. Additionally, the
Supply Unit will complete and maintain status reports for major issues or incidents and
the Supply Unit.
Lead Agency:
Jacksonville Central Operations Department/Procurement Division
• Florida National Guard
Volunteer Reception Center Unit
The Volunteer Reception Center Unit will be responsible for receiving, tracking, and
distributing incident/disaster volunteers and their equipment and supplies. Additionally, the
Volunteer Reception Center Unit will complete and maintain status reports for major issues
in the field in regard to volunteers and implement the objectives of the EOC/Area
Command Incident Action Plan assigned to the Volunteer Reception Center Unit.
Lead Agency:
Jacksonville Recreation & Community Services Department
• Hands On Jacksonville (Unaffiliated Volunteer Reception Center)
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Planning Section Overview
The Planning Section's primary responsibility is to collect, analyze, verify, display and
disseminate incident information. This includes impact information, response activities,
details regarding the field operating environment and the status of available resources.
This Section functions as the primary support for response decision-making to the overall
emergency organization, including preparing situation briefings, map displays,
anticipatory appraisals and developing plans necessary to cope with changing field
events. During the incident response, the Planning Section Chief provides situational
advice to help guide operational decision-making. This Section is also responsible for
facilitating the incident action planning process and the development of the EOC/Area
Command Incident Action Plan and Recovery Plans and the After-Action Report. The
Planning Section ensures that safety/damage assessment information is compiled,
assembled and reported in an expeditious manner. The Planning Section (Documentation
Unit) is also responsible for the detailed recording of the entire response effort and the
preservation of these records during and following the disaster.
Technical Specialists
Technical specialists have special skills and are activated only when needed. Specialists
may serve anywhere within the organization, including the Command Staff. 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 specially
certified in their fields or professions. Technical specialists assigned to the Planning Section
may report directly to its chief, or they may report to any function in an existing unit, or
may form a separate unit within the Planning Section, depending on the requirements of
the incident and the needs of the Section Chief. Technical specialists may also be
assigned to other parts of the organization (e.g., to the Operations Section to assist with
tactical matters or to the Finance/Administration Section to assist with fiscal matters). For
example, a legal specialist or legal counsel may be assigned directly to the Command
Staff to advise the Emergency Manager on legal matters, such as emergency
proclamations, legality of evacuation orders, and legal rights and restrictions pertaining to
media access. The incident itself will primarily dictate the needs for technical specialists.
Below are a few representative examples of the kinds of technical specialists that may be
required:
•
•
•
•
•
•
•
•
Meteorologist
Epidemiologists
Flood control specialist
Explosives specialist
Structural engineering specialist
Radiation health physicist
Attorney or legal counsel
Industrial hygienist
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Documentation Unit
The Documentation Unit maintains accurate and complete incident files, including a
complete record of the major steps taken to resolve the incident; provides duplication
services to incident personnel; and files, maintains, and stores incident files for legal,
analytical, and historical purposes. Documentation is part of the Planning Section primarily
because this unit prepares the IAP and maintains many of the files and records that are
developed as part of the overall IAP and planning function.
Lead Agency:
Jacksonville Emergency Preparedness Division
• Northeast Florida Regional Planning Council
Resources Unit
The Resources Unit is responsible for maintaining the status of all assigned resources
(primary and support) assigned by the EOC/Area Command for the disaster or incident.
This is achieved by proactive collaboration with the County Staging Area and the Supply
Unit and other components of the Logistics section, maintaining a status-keeping system,
and maintenance of a master list of all resources once an incident begins.
Lead Agency:
Situation Unit
The Situation Unit collects, processes, and organizes ongoing situation information,
prepares situation summaries, and develops projections and forecasts of future events
related to the incident. The Situation Unit also prepares maps and gathers and
disseminates information and intelligence for use in the IAP. This unit may also require the
expertise of technical specialists and operations and information security specialists.
Lead Agency:
Damage Assessment Unit
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The Damage Assessment Unit is responsible for coordinating damage assessment-related
activities, including effective coordination with other response elements, pro-active
exchange of information and effective/efficient collection and dissemination of damage
information.
Lead Agency:
• Duval County Property Appraiser
• Florida Division of Emergency Management - Area 3 Coordinator
• Jacksonville Fire & Rescue - GIS Section
• Jacksonville Planning & Development Department
• Jacksonville Public Works Department/Building Inspection Division
GIS Unit
The GIS Unit supports the operations of the EOC/Area Command by creating and
maintaining maps and photographs using the Consolidated City of Jacksonville/Duval
County’s GIS system and other mapping/photographic systems. The GIS Unit catalogs all
products so that they are easily retrievable. Finally, the GIS Unit, with direction from the
Planning Section Chief, establishes procedures for prioritizing mapping requests.
Lead Agency:
Jacksonville GIS Division
• JEA
Finance/Administration Section Overview
The Finance/Administration Section has five (5) major responsibilities:
1. Provides policy guidance and establishes procedures to authorize the commitment
and payment of funds. Provides recommendations and guidance to and receives
direction from the Executive Group on countywide financial matters;
2. Coordinates the accounting for personnel time during the emergency response
and recovery efforts, and ensuring that employees continue to receive pay, health
insurance and retirement benefits;
3. Tracks and processes payments of vendor purchase orders, contracts, claims and
other payments during the emergency;
4. Ensures that an accurate accounting of the cost of responding to the emergency
(including both response and recovery) is maintained. This includes accounting for
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personnel time, the cost of services provided and for acquiring and maintaining
response facilities, materials and equipment; and
5. Ensures that management and direction of all administrative matters pertaining to
compensation for injury and claims-related activities for an incident.
The Jacksonville Finance Department is the lead agency for the Finance/Administration
Section.
Time Unit
The Time Unit is primarily responsible for ensuring proper daily recording of personnel time,
in accordance with the policies of the relevant agencies.
Lead Agency:
Jacksonville Finance Department
Cost Unit
The Cost Unit provides cost analysis data for the incident. This unit must ensure that
equipment and personnel for which payment is required are properly identified, obtain
and record all cost data, and analyze and prepare estimates of incident costs. The Cost
Unit also provides input on cost estimates for resource use to the Planning Section. The
Cost Unit must maintain accurate information on the actual costs of all assigned resources.
Lead Agency:
Jacksonville Administration & Finance Department
Compensation/Claims Unit
The Compensation/Claims Unit ensures that all forms required by workers’ compensation
programs and local agencies are completed. The Compensation/Claims Unit also
maintains files on injuries and illnesses that are associated with the incident and ensures
that all witness statements are obtained in writing. The Compensation and Claims Unit
maintains logs on the claims, obtains witness statements, and documents investigations
and agency follow-up requirements.
Lead Agency:
Jacksonville Administration & Finance Department
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Procurement Unit
The Procurement Unit administers all financial matters pertaining to vendor contracts. The
Procurement Unit coordinates with local jurisdictions to identify sources for equipment,
prepares and signs equipment rental agreements, and processes all administrative
requirements associated with equipment rental and supply contracts.
Lead Agency:
Jacksonville Procurement Department
• Jacksonville Administration & Finance Department
Public Information Officer
The Public Information Officer (PIO) plans for, coordinates, provides and disseminates
information to the general public during all phases of disaster operations. The PIO is
responsible for interfacing with the public and media and/or with other agencies with
incident-related information requirements. The PIO develops accurate and complete
information on the incident’s cause, size, and current situation; resources committed; and
other matters of general interest for both internal and external consumption. The PIO may
also perform a key public information monitoring role. Whether the command structure is
single or unified, only one incident PIO is designated. Assistants may be assigned from
other agencies or departments involved. The Emergency Manager or designee must
approve the release of all incident-related information.
Lead Agency:
Jacksonville Mayor’s Administration, Press Secretary
• Emergency Email Network
• Florida Department of Law Enforcement
• Florida National Guard, North Area Command
• Jacksonville Public Information Division
• Public Information Officers:
• Jacksonville Agriculture Extension Service
• Jacksonville Animal Care & Control Division
• Jacksonville Recreation and Community Services Department
• Jacksonville Public Library
• JEA
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•
U.S. Naval Air Station Jacksonville – Regional Operations Center
Liaison Officer
The Liaison Officer is the point of contact for representatives of other Consolidated City of
Jacksonville/Duval County, state, federal, and municipal governmental agencies,
nongovernmental organizations, and/or private entities. The Liaison Officer, or designee,
will serve as the Consolidated City of Jacksonville/Duval County’s liaison to the federal
Joint Field Office (JFO), if established during recovery. In either a single or UC structure,
representatives from assisting or cooperating agencies and organizations coordinate
through the Liaison Officer. Agency and/or organizational representatives assigned to an
incident must have the authority to speak for their parent agencies and/or organizations
on all matters, following appropriate consultations with their agency leadership. Assistants
and personnel from other agencies or organizations (public or private) involved in incident
management activities may be assigned to the Liaison Officer to facilitate coordination.
Lead Agency:
• Florida Division of Emergency Management – Region 3 Coordinator
• Northeast Florida Regional Planning Council
Safety Officer
The Safety Officer monitors incident operations and advises the Emergency Manager on
all matters relating to operational safety, including the health and safety of emergency
responder personnel. The Safety Officer has emergency authority to stop and/or prevent
unsafe acts during incident operations. The Safety Officer, Operations Section Chief, and
Planning Section Chief must coordinate closely regarding operational safety and
emergency responder health and safety issues.
Lead Agency:
None
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Complexes and Divisions
As stated above, ICS is both modular and flexible to meet the needs of the incident. In
many instances, the organizational structure depicted in Figure 34 will be adequate to
manage the incident. However, in certain situations such as larger, more complex events
requiring extraordinary coordination, it may beneficial to sub-divide the Operations
Section into four geographic areas or complexes. Roles, responsibilities and trigger points
of Complex Command are addressed in the Complex Command ICP.
•
•
•
•
North complex
West complex
South complex
Beaches complex
Figure 34 and Figure 35 depict how the Consolidated City of Jacksonville/Duval County is
divided geographically into the four complexes. When activated, a complex will have its
own ICS management structure; however, all complexes must establish effective, efficient
communications and coordination processes and protocols with the Operations Section
of the EOC/Area Command. Additionally, not every complex must be activated, nor
does each complex require identical staffing; pursuant to ICS principles, all of these are
dictated by the needs of the incident. The Beaches Complex is organized under a unified
command system incorporating City Managers from Atlantic Beach, Jacksonville Beach
and Neptune Beach.
Figure 34: Complex Command Map
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Figure 35: Complex Command Table of Organization
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Response
The response phase is entered upon formal activation of the EOC/Area Command. The
Consolidated City of Jacksonville/Duval County’s initial response activities are primarily
structured to minimize the effects of the emergency or disaster. This includes protection of
human life and property. Examples of initial response activities undertaken by the
EOC/Area Command include:
• Disseminating warnings, emergency public information and instructions to the
residents and visitors of the Consolidated City of Jacksonville/Duval County;
• Making all necessary notifications, including Consolidated City of
Jacksonville/Duval County departments and personnel and to state and federal
agencies, as needed;
• Documenting situation status;
• Declaring a state of local emergency;
• Coordinating evacuations and/or rescue operations;
• Coordinating the care of displaced persons and treating the injured;
• Clearing priority transportation routes;
• Repairing critical facilities and structures;
• Conducting initial damage assessments and surveys;
• Assessing the need for mutual aid assistance;
• Coordinating the restriction of traffic/people movement and unnecessary access
to affected areas; and
• Developing and implementing action plans.
As response activities continue, the EOC/Area Command’s activities involve the
coordination and management of personnel and resources to further mitigate the
disaster/emergency and facilitate the transition to recovery operations:
• Preparing detailed damage assessments;
• Coordinating the operation of mass care facilities;
• Coordinating mass fatality operations;
• Procuring required resources to sustain operations;
• Protecting, controlling and allocating vital resources;
• Coordinating restoration of vital utility services;
• Tracking resource allocation;
• Conducting advance planning activities;
• Documenting expenditures;
• Developing and implementing action plans for extended operations;
• Disseminating emergency public information;
• Coordinating with national, state and local volunteer agencies; and
• Recovery planning
Notification and Warning
Once the decision has been reached to activate the Emergency Operations Center/Area
Command (EOC), the Emergency Manager or designee will notify EOC/Area Command
representatives by activating a notification system. Once notified, EOC/Area Command
personnel will immediately respond to the EOC/Area Command.
Emergency
Preparedness Division personnel and designated EOC/Area Command representatives
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are expected to report directly to the EOC/Area Command without notification if they
become aware of a significant incident that may have impacted the Consolidated City
of Jacksonville/Duval County and they can not reach EOC/Area Command Staff.
The Emergency Operations Center is expected to be staffed and operational within one
(1) hour of the activation notification.
Issuance of Executive Orders and Proclamations
The Mayor of the Consolidated City of Jacksonville/Duval County shall by proclamation
declare a state of disaster emergency, which shall activate the Consolidated City of
Jacksonville/Duval County's CEMP and place into operation the Emergency Operations
Center. It will be the authority for the deployment and use of any resources to which the
plan applies and for use or distribution of any supplies, equipment, materials or facilities
available pursuant to Chapter 674 of the City Ordinance Code, and any other provisions
of city ordinances and regulations relating to disaster emergencies.
The Planning Process
It was recognized early in the development of ICS that the critical task of adequate
planning was often overlooked. The results were poor resource use, inappropriate tactics
and strategies, safety problems, higher costs, and lower effectiveness. As such, the
Jacksonville Emergency Operations Center/Area Command (EOC) utilizes the incident
planning process of the ICS to provide a systematic means for all agencies involved in the
response to have their objectives recognized and incorporated into the overall incident
plan. In addition, this process allows everyone to know the plan and their role in it. The
result of this planning process is typically the written Incident Action Plan (IAP). The
benefits of this written plan are undeniable when the size and complexity of the response
require the participation of many responders and multiple agencies. Incident action
planning is essential for a successful response to expanding incidents.
Operational Periods
An important concept in regard to this planning process is the operational period. All ICS
planning is designed around identifying accomplishments expected over a set period of
time called the operational period. The specific length of time of the operational period
varies based on a variety of factors. The Emergency Manager (Chief of the Jacksonville
Emergency Preparedness Division) will determine the length of the operational period with
input from operations staff. Typically, operational periods for the Jacksonville EOC/Area
Command are 0800-2000 and 2000 to 0800 daily. In some cases, the operational period
length may change from day to day based on operational and incident needs.
Roles and Responsibilities in the Planning Process
Many individuals play a key role in the planning process and the success of a response.
While specific roles and responsibilities of staff and the entire process are outlined in detail
in the Planning Section ICP, the roles of key individuals are briefly outlined in Figure 36 and
Table 8 below.
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Figure 36: ICS Planning Roles
Table 8: Planning Roles and Responsibilities
Emergency
Manager
Operations
Section Chief
Planning Section
Chief
Logistics Section
Chief
Finance/Admin.
Section Chief
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Provides overall incident objectives and strategy.
Establishes procedures for incident resource ordering.
Establishes procedures for resource activation, mobilization, and
employment.

Approves completed IAP by signature.
With Safety Officer:

Reviews hazards associated with the incident and proposed tactical
assignments. Assists in developing safe tactics.

Develops safety message(s).

Assists in identifying strategies.

Determines tactics to achieve command objectives.

Determines work assignments and resource requirements.

Conducts the Planning Meeting.

Coordinates preparation and documentation of the Incident Action Plan.

Ensures that resource ordering procedures are communicated to
appropriate agency ordering points.

Develops a transportation system to support operational needs.

Ensures that the Logistics Section can support the IAP.

Completes assigned portions of the written IAP.

Places order(s) for resources.

Provides cost implications of incident objectives, as required.

Ensures that the IAP is within the financial limits established by the Incident
Commander.

Evaluates facilities, transportation assets, and other contracted services to
determine if any special contract arrangements are needed.

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Planning Cycle
The cyclical planning process is designed to take the overall incident objectives and
break them down into tactical assignments for each operational period. Planning for
each operational period begins with the Emergency Manager or unified command
setting objectives. The objectives are set based on the continued assessment of the
situation and the progress made. The Planning "P" best illustrates the incident planning
process (see Figure 37 the Planning “P”).
The leg of the “P” describes the initial response period: Once the incident/threat begins,
the steps are Notification, Initial Response & Assessment, Incident Briefing (ICS 201), and
Initial Incident Command (IC)/Unified Command (UC) Meeting. At the top of the leg of
the “P” is the beginning of the first operational planning period cycle. In this circular
sequence, the steps are IC/UC Sets Objectives, Tactics Meeting, Preparing for the Planning
Meeting, Planning Meeting, IAP Prep & Approval, and Operations Briefing. At this point a
new operations period begins. The next step is Execute Plan & Assess Progress, after which
the cycle begins anew with IC/UC Sets Objectives, etc.
Figure 37: The Planning "P"
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Tactics Meeting
Prior to the Planning Meeting, the Operations Section Chief will hold a tactics meeting to
review the tactics developed by the Operations Section. Obviously, the Operations
Section Chief leads the tactics meeting. The Operations Section Chief, Safety Officer,
Planning Section Chief, Logistics Section Chief, and Resources Unit Leader attend the
tactics meeting. The objectives for the tactics meeting include:
• Generate appropriate strategies to meet the incident objectives – strategies should
make good sense, be cost-effective, and meet political considerations.
• Determining how the selected strategies will be accomplished in order to achieve
the incident objectives.
• Assigning resources to implement the tactics.
• Identifying methods for monitoring tactics and resources to determine if
adjustments are required (e.g., different tactics, different resources, or new
strategy).
The Planning Meeting
The planning meeting provides the opportunity for the command staff, as well as other
incident management personnel, agency officials, and cooperating/assisting agencies
and organizations, to review and validate the operational plan as proposed by the
Operations Section Chief. The Planning Chief leads the meeting following a fixed agenda
to ensure that the meeting is efficient while allowing each organizational element
represented to assess and acknowledge the plan. The Operations Section Chief
delineates the amount and type of resources he or she will need to accomplish the plan.
The Planning Section’s Resources Unit will have to work with the Logistics Section to fulfill
the resource needs. At the conclusion of the meeting, the Planning Section Staff indicates
when all elements of the plan and support documents must be submitted so the plan can
be collated, duplicated, and made ready for the operational period briefing.
The Planning Section Chief gives the situation and resources briefing and conducts the
planning meeting.
The Incident Commander states the incident objectives and policy issues.
The Operations Section Chief states the primary and alternative strategies to meet the
objectives, with contributions made by the Planning and Logistics Section Chiefs.
The Operations Section Chief specifies reporting locations and additional facilities needed,
with contributions from the Logistics Section Chief.
The Planning and Logistics Section Chiefs develop the resources, support, and overhead
orders. The Logistics Section Chief places the orders.
The Logistics Section Chief considers additional support requirements needed for
communications, traffic, safety, medical, etc., with contributions from the Planning Section
Chief.
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The Planning Section Chief finalizes the IAP, the Incident Commander approves the IAP,
and the General Staff implements the IAP.
Organizational elements prepare IAP assignments and submit them to the Planning
Section.
The Planning Section collates, prepares, and duplicates the IAP document for the
operational period briefing. The Planning Section will:
• Set the deadline for completing IAP attachments;
• Obtain plan attachments and review them for completeness and approvals;
• Determine the number of IAPs required;
• Arrange with the Documentation Unit to reproduce the IAP;
• Review the IAP to ensure it is up-to-date and complete prior to the Operations
Briefing and plan distribution;
• Provide the IAP briefing plan, as required, and distribute the plan prior to the
beginning of the new Operational Period; and
• Through the Resources Unit, coordinate with the Logistics Section to acquire and
assign the amount and type of resources needed.
Operational Period Briefing
This may also be referred to as the shift briefing, where the Emergency Manager reviews
the IAP with EOC/Area Command staff. The operational period briefing is conducted at
the beginning of each operational period. Immediately prior to the start of the new
operational period, incident management personnel, agency officials, and
cooperating/assisting agencies and organizations should attend the operational period
briefing. In some cases, all of the tactical personnel should attend if they can be
accommodated. EOC/Area Command staff members are briefed on the operational
elements of the plan to ensure they are aware of what it is that must be accomplished. In
addition, staff members will have a chance to ask relevant questions regarding the plan,
be briefed on any critical safety issues, and be informed regarding specific logistical
information. The operational period briefing should be brief and concise; the Planning
Section Chief facilitates the briefing following a concise agenda.
Following the operational period briefing, section supervisors will meet with their assigned
resources for a detailed briefing on their respective assignments.
Logistics
Resources must be organized, assigned, and directed to accomplish the incident
objectives. Managing resources safely and effectively is the most important consideration
of an incident. As noted above, the Planning Section’s Resources Unit tracks assigned
resources and identifies resource shortages. The Logistics Section’s Supply Unit orders or
acquires the needed resources. The Logistics Section serves as the single ordering point for
all requested resources, including mutual aid resources.
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More information on this process can be found in the Operations Section and Logistics
Section ICPs.
Evacuation
A large-scale evacuation of the Consolidated City of Jacksonville/Duval County residents
and visitors may be initiated by numerous potential threats including hurricanes, tropical
storms, floods, hazardous materials spills, wildland fires, nuclear/biological/chemical
terrorist events, and others. Evacuation estimate figures are feasible for hurricane
evacuations, but all other evacuations for other types of disasters will be extremely
variable. Estimates of population, pre-designated evacuation routes and clearance times
for effected areas of the Consolidated City of Jacksonville/Duval County for predetermined evacuation areas are presented in the Evacuation ICP.
The Chief of the Consolidated City of Jacksonville/Duval County Emergency Preparedness
Division has the responsibility to recommend to the mayor, the need to issue an
evacuation order for high risk areas in the Consolidated City of Jacksonville/Duval County
prior to the threat of a hurricane, tropical storm, wildland fire, flooding incident or any
other applicable threat.
The safety of the Consolidated City of Jacksonville/Duval County citizens is of mutual
concern to both county and municipal officials. A safe large-scale evacuation in
advance of an approaching hurricane or tropical storm in northeast Florida requires the
coordinated effort of all governmental and non-governmental agencies. Implementation
of the evacuation order and ultimately re-entry into the impacted area is the responsibility
of the elected legislative body of each local government. Direction and control of all
evacuation and re-entry activity within or through a municipality is retained by the local
entity affected. However, the ongoing communications and coordination will be
maintained with all impacted jurisdictions through regularly scheduled conference calls,
situation reports through the Consolidated City of Jacksonville/Duval County EOC/Area
Command.
Sheltering
The Consolidated City of Jacksonville/Duval County Emergency Preparedness Division
maintains a memorandum of understanding with Duval County Public Schools relative to
the closing of schools prior to an incident or disaster and the use of certain schools as
Special Needs Shelters and general population shelters. When considering the use of
these facilities, the Superintendent of Schools will participate in the development of the
evacuation schedule and will approve closure times for all schools prior to the issuance of
an evacuation order. Additional roles and responsibilities are detailed in the Sheltering ICP
and Special Needs and Adopt a Shelter ICP.
Shelters can be selected for a variety of evacuation circumstances. For hurricanes,
facilities must meet structural criteria to withstand the high winds. Facilities must also be
located outside of areas where storm surge and flooding may occur. The basic criterion
for hurricane shelter selection is outlined in the American Red Cross (ARC) publication,
“Guidelines for Hurricane Evacuation Shelter Selection (4496).”
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Emergency Evacuation Assistance
As mandated by the state, the Consolidated City of Jacksonville/Duval County maintains
a registry of individuals with special needs who require assistance when evacuating. The
Emergency Operations Center/Area Command (EOC) coordinates an evacuation plan to
relocate these individuals to specialized shelters. The details of this plan can be found in
the Special Needs and Adopt a Shelter ICP. The Special Needs Evacuation Program
(SpNEP) arranges transportation to specialized shelters for pre-registered clients and a
limited amount of late registrants. Registrants may be assigned to a Special Needs Shelter
(SpNS) or a medical facility depending on their medical needs and health conditions.
SpNS are refuges of last resort intended to maintain, to the extent practical, the current
health, safety, and well-being of medically dependent individuals who are not acutely ill.
SpNS operate in public schools or another safe structure and provide basic medical
attention to clients with special needs or who need assistance with daily activities in the
event of an impending hurricane. While in operation, the SpNS must meet a multitude of
human needs both physical and psychological under adverse conditions.
SpNS are located in public schools or other safe structures and managed by the Duval
County Health Department (DCHD). Support staff from the county/city agencies, nonprofit groups and private sector will also assist with operations.
SpNS are generally intended to operate for a limited time, one to three days. SpNS will
generally open to evacuees 24-36 hours prior to the arrival of tropical storm force winds
associated with a threatening hurricane. In most instances, evacuees are able to return to
their homes within a short time or relocate to other housing. Special needs clients requiring
temporary housing following a storm can be assisted by social service agencies. A SpNS
will continue operating until all the special needs clients have returned home or have
been transferred to another facility.
DCHD (with support and augmentation from state headquarters), is the lead agency for
the recruitment of health care providers, as defined in F.S. 456.0001(4), to staff the special
needs shelters in times of emergency or disaster events and to provide resources to carry
out this responsibility.
The Special Needs Steering Committee (SpNSC) has the responsibility to plan for the
special needs population and should have input into the design (addressing the four
phases of emergency management: preparedness, response, recovery and mitigation),
activation, operation and deactivation of SpNS.
This committee is made up of
organizations and agencies that include, but are not limited to the Emergency
Preparedness Division (EPD), DCHD, Emergency Medical Services (EMS), American Red
Cross (ARC) Northeast Florida Chapter, home care agencies, hospice organizations,
extended care living facilities, ambulance companies, oxygen and durable medical
equipment providers and others.
Transportation
It is the responsibility of the Transportation Group to coordinate and facilitate the
emergency transportation requirements of the Consolidated City of Jacksonville/Duval
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County during the response, and recovery phases of an incident or disaster. These
requirements include but are not limited to the following:
•
•
•
•
Evacuation assistance;
Traffic control;
Debris clearance; and
Logistical transportation
More detailed information on the roles and responsibilities can be found in the
Transportation ICP.
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Needs Assessment/Incident Management Software System
The EOC/Area Command has implemented an incident management software system for
the purpose of automating the collection, consolidation and distribution of information
related to the incident. The EOC/Area Command uses the incident management
software system to perform the following functions:
•
•
•
•
•
•
•
Review situation overview then drill down to details;
Gather and share critical information across agencies, jurisdictions and groups;
Assess damage to critical infrastructure;
Determine response capabilities;
Notify and alert key parties;
Execute procedures and protocols; and
Request, deploy and track resources.
The EOC/Area Command has standardized forms for reporting disaster intelligence and
for making resource requests. EOC/Area Command sections/branches/units generate
status reports on a regular basis and transmit these reports to the EOC/Area Command. It
is the responsibility of the Situation Unit within the EOC/Area Command Planning Section to
collect all of these status reports and produce a consolidated summary of the situation
status. The EOC/Area Command also has specialized reporting forms that have been
incorporated into the incident management software system.
Action planning is an effective management tool and is critical to the EOC/Area
Command operations. Action planning involves two essential characteristics:
A process to identify objectives, priorities and assignments related to emergency response
or recovery actions; and
Documentation of the priorities, objectives, tasks and personnel assignments associated
with meeting the objectives.
The Planning Section is responsible for facilitating the action planning meeting and
completing and distributing the incident action plan. Action plans are developed for a
specified operational period, which may range from a few hours to 24 hours. The
operational period is determined by first establishing a set of priority actions that need to
be performed. A reasonable time frame is then established for accomplishing those
actions. The action planning process involves the Executive Group, Emergency Manager,
and Section Chiefs (and other EOC/Area Command staff as needed). The action plans
need not be complex, but should be sufficiently detailed to guide EOC/Area Command
elements in implementing the priority actions. It is important that all incidents have some
form of action plan. The plan developed around some duration of time is called an
Operational Period, will state the objectives to be achieved and describe the strategy,
tactics, resources and support required to achieve the objectives within the time frame.
Generally, the length of the operational period is determined by the length of time
needed to achieve the objectives; typically, this period is 12 hours in length. The Planning
Section can create action plans for each work shift, a 24 hour period, or whatever makes
sense for a given event. A more detailed description of this process is outlined in the
Planning Section ICP.
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Citizen Corps
Jacksonville Citizen Corps creates opportunities for individuals to volunteer in programs
that focus on community safety, crime prevention, disaster preparedness and response.
These programs include:
• N.E. Florida VOAD (Volunteer Organizations Active in Disasters)
• Duval Prepares
• JEMA (Jacksonville Emergency Medical Auxiliary)
• CERT (Community Emergency Response Team)
• Medical Reserve Corps
• ARES (Amateur Radio Emergency Services)
• Civil Air Patrol (CAP)
• Neighborhood Watch
• VIPS (Volunteers in Police Service) – Community Posse
• ShAdCo (Sheriff’s Advisory Council)
The governing body of Jacksonville Citizen Corps is the Citizen Corps Council, which is the
Mayor’s Security and Emergency Preparedness and Planning Council. Jacksonville’s
Citizen Corps mission is to make our communities safer, stronger, and better prepared to
respond to disasters by engaging individuals in crime prevention and emergency
preparedness and response through education, training and volunteer service.
Mutual Aid Agreements and Memoranda of Understanding
Introduction
The State Emergency Management Act, Chapter 252, Florida Statutes, authorizes the State
of Florida and its political subdivisions to develop and enter into mutual aid agreements for
emergency aid and assistance. To enter into a Memoranda of Agreement, the City of
Jacksonville City Council and the Councils of respective Urban Service Districts have
passed legislation. Copies of such agreements must be sent to the Florida Division of
Emergency Management and must be consistent with Florida’s CEMP. In time of
emergency it shall be the duty of each local emergency management agency to render
assistance in accordance with the provisions of each mutual aid agreement.
Ordinance Code 674, section 674.203 authorizes the Chief of the Emergency
Preparedness Division to have the lead responsibility for handling mutual aid requests
and/or providing help to other government jurisdictions asking for assistance under the
Statewide Mutual Aid Agreement. The Emergency Preparedness Division is the central
repository for all mutual aid agreements concerning emergency preparedness which
have been approved and authorized by the City Council (Sec. 674.215).
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Mutual Aid Requests
Mutual aid will only be requested if the Emergency Preparedness Division Chief deems
that local resources inadequate. The authorized representative, or the Chief of the
Emergency Preparedness Division, shall transmit mutual aid requests through the Logistics
Section, in coordination with the Planning Section/Resources Unit. The Logistics Section
shall serve as the contact and coordination point for all mutual aid requests. The Planning
Section/Resources Unit will coordinate and track all mutual aid requests.
The following steps will be followed in making requests for resources from other
government organizations that have entered into the aforementioned agreement:
1. Mayor declares a local state of emergency because a disaster has occurred. A
copy of the declaration is sent to the Florida Division of Emergency Management
(FDEM) in Tallahassee.
2. The authorized representative will make direct contact with the State Warning Point
at the DEM and provide the information listed below. The Planning
Section/Resources Unit will follow-up with written confirmation using FDEM’s
Constellation system:
•
A description of the damage sustained or threatened;
•
An identification of the specific Emergency Support Function or Functions for
which such assistance is needed;
•
A description of the specific type of assistance needed within each
Emergency Support Function;
•
A description of the types of personnel, equipment, services, and supplies
needed for each specific type of assistance, with an estimate of the time
each will be needed;
•
A description of any public infrastructure for which assistance will be
needed;
•
A description of any sites or structures outside the territorial jurisdiction of the
Requesting Party needed as centers to stage incoming personnel,
equipment, supplies, services or other resources;
•
The place, date and time for personnel of the Requesting Party to meet and
receive the personnel and equipment of the Assisting Party; and
•
A technical description of any communications or telecommunications
equipment needed to ensure timely communications between the
Requesting Party and any Assisting Parties.
Responding to a Mutual Aid Request
When a request is received from FDEM or a Requesting Party to provide assistance, the
Emergency Preparedness Division will immediately contact the appropriate agency head
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to determine if resources are available.
processing the request:
The following steps will be adhered to in
•
Convey to the agency head the information received from FDEM or
Requesting Party. This information will be provided via voice then entered
into the state’s tracking system;
•
Advise the appropriate agency head that the Statewide Mutual Aid
Agreement stipulates that “assisting parties shall render assistance to extent
personnel, equipment and resources are available”.
Also, advise
“participating governments agree to render assistance to the fullest extent
possible”. The agency head should be informed that the Requesting Party is
responsible for costs incurred, unless there is an agreement between the
parties that all or a portion of the costs will be provided on a gratis basis;
•
Agency head determines if the resources requested can be provided;
•
After the determination has been made, the tracking system form will be
completed and forwarded to the Emergency Preparedness Division;
•
The Jacksonville Emergency Preparedness Division will provide a copy to the
requesting party immediately;
•
The Requesting Party/FDEM shall respond by executing and returning a copy
to the Assisting Party ASAP. The Emergency Preparedness Division will notify
the agency head and provide a copy of the executed documentation; and
•
If the request was not routed through FDEM, the Emergency Preparedness
Division will contact the State Warning Point and advise it of the request and
the response to the request as soon as possible. Subsequently keeping them
informed if the Requesting Party made the request directly to the Assisting
Party.
A copy of the tracking system form with information received will be placed in Planning
Section/Resources Unit files. Also, copies will be forwarded to the City’s Comptroller’s
Office in City Hall.
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131
Recovery
Introduction
Following a disaster, once the principal threat has passed and the primary concern of
protection of citizens from harm has been addressed, it becomes almost as critical to
public safety to ensure the speedy yet orderly recovery of the community. Recovery
functions include continued, potentially long-term response operations (such as debris
removal and disposal, infrastructure repair, etc.), liaison with state and federal response
and recovery agencies, damage assessment, responding to the basic needs of citizens
who may have lost their homes, possessions, businesses, or jobs. Emergency management
has to be prepared to address the long-term operations needed to return the community
to normalcy.
The lead agency responsible for coordinating recovery operations following a natural or
manmade disaster is the Emergency Preparedness Division.
The Chief of the Emergency Preparedness Division shall serve as the initial contact with the
Florida Division of Emergency Management (DEM) for the coordination of recovery efforts.
In the event of a major or catastrophic event, the activated entities within the EOC/Area
Command shall provide liaison services to their corresponding state and federal ESFs and
related agencies.
Under the National Response Framework, federal Emergency Support Function (ESF) #14
(Long-Term Community Recovery and Mitigation) coordinates the resources of federal
departments and agencies to support the long-term recovery of states and communities.
When the State Emergency Operations Center is activated in response to an emergency/
disaster, a recovery and mitigation component is activated.
Following the local establishment of a federal Long-Term Recovery Office (LTRO), the Chief
of the Emergency Preparedness Division shall designate a local LTRO liaison. For certain
hazards or incident-specific incidents, the lead response agency may continue to be the
city’s principal coordinating representative.
Once into the recovery phase of a major disaster, the Planning Section shall assume the
liaison function with the state recovery staff, as will appropriate representatives of the
various activated Consolidated City of Jacksonville/Duval County agencies involved in
recovery operations.
Coordination for the establishment of Disaster Recovery Centers, additional staging areas,
and other sites that may be needed for coordinated assistance will primarily be the
responsibility of the Human Services Branch and its subordinate groups and requisite lead
agencies. Activation of staging areas already identified by various response agencies of
the emergency management organization, and those established as satellite centers for
the municipal governments of the beach communities should they be required to
relocate west of the Intracoastal Waterway, will be activated according to their
established schedules and SOGs.
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Executive Group
In response to a major destructive storm, the Consolidated City of Jacksonville/Duval
County’s 2010 Comprehensive Plan (Objective 7.5) calls for the preparation of a postdisaster Plan that will identify programs and actions that will reduce or eliminate the
exposure of human life and property to natural hazards. To direct the Consolidated City
of Jacksonville/Duval County’s hurricane recovery operations, the 2010 Plan (Policy 7.5.2)
calls upon the Mayor of the Consolidated City of Jacksonville/Duval County to appoint an
EOC/Area Command Executive Group. The Executive Group shall be comprised of those
same individuals identified earlier, as such, in this document.
As directed by the policies of the 2010 Plan, the Executive Group shall:
1. Review and decide upon emergency building permits;
2. Analyze and recommend hazard mitigation options, including reconstruction or
relocation of damaged public facilities;
3. Coordinate the preparation of the post-disaster redevelopment plan;
4. Recommend amendments to the 2010 Plan and the Comprehensive Emergency
Management Plan, and other appropriate policies and procedures; and
5. Coordinate with state and federal disaster assistance officials.
Disaster Declaration
Requests for federal disaster assistance will be predicated on the requirements outlined in
the Robert T. Stafford Disaster Relief and Emergency Assistance Act (Public Law 93-288, as
amended). After the Consolidated City of Jacksonville/Duval County conducts the initial
damage assessment and reports to the State Emergency Operations Center, a joint
local/state preliminary damage assessment may be scheduled that could include the
Federal Emergency Management Agency. This damage assessment validates the local
data and is the basis for requesting a Presidential Disaster Declaration. Other federal
agencies that may participate in the assessment process include the Small Business
Administration and Natural Resource Conservation Service. This process is described in 44
CFR, Part 206, Subpart B - The Declaration Process and other federal and state policies
and procedures.
Transition from Response to Recovery
As recognized in local ordinances; the declaration of a local state of emergency and the
“Response Phase” is a temporary reorganization of government to address disaster
caused issues. These issues generally fall into the broad categories of meeting victim
needs, enhancing public safety service delivery and repairing or restoring infrastructure
functionality. There is no clear line of differentiation between the “Response Phase” and
“Recovery Phase.”
The command and control, coordination and resources to serve
disaster victims, transitions from an emergent need to a more deliberative process of
service delivery as programs/activities transition from Response Phase to Recovery Phase.
County recovery activities, coordination with the federal and state governments and the
processes for obtaining and administering state and federal assistance are described later
in this section.
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Figure 38: Response to Recovery Curve
Figure 38 pictorially represents a number of features in the Response phase and Recovery
phase related to each other. One feature is that the Recovery phase starts at the
inception of the disaster, similar to the Response phase. Managerial focus and resources
in the early stages is expended through the coordination of the Emergency Operations
Center and its structures. Over a period of time, the Response phase diminishes and the
Recovery phase activities become more preeminent. The rest of this section describes the
Recovery phase activities.
Recovery Functions
Recovery functions have been organized according to three primary functions that occur
in the aftermath of a disaster. These three major recovery functions include:
Damage Assessment;
Infrastructure and Public Assistance;
Individual Assistance;
Short-term and Long-term housing; and
Debris Management and Removal
NOTE: For detailed information on recovery functions, please refer to the Recovery Plan.
Damage Assessment
The Chief of the Emergency Preparedness Division shall designate a Damage Assessment
Officer to supervise assigned persons in a Damage Assessment Unit (DAU). This unit will
have four functional components:
1. Public Sector Damage Assessment Team(s), which will be responsible for assessing
the damage inflicted upon publicly owned property.
2. Private Sector Damage Assessment Team(s), which will be responsible for collecting
information on housing and business losses.
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3. Municipal Damage Assessment Team(s) are teams established within the
independent municipalities of Duval County that will provide Damage Assessment
services within their incorporated areas.
4. Human Needs Assessment Team(s), are persons assigned to collect field information
on the needs of our community following a disaster that has severely impacted
facilities and other community assets that are depended upon for daily living, and
to report back to the EOC/Area Command
Specific Damage Assessment procedures and responsibilities can be found in Damage
Assessment ICP.
Impact to the local economy shall be ascertained however possible, but will rely on the
following organizations for preliminary information and periodically revised data:
•
•
•
Property Appraiser’s Office (value of damaged or destroyed properties)
Planning and Development Department (public building assessment, impact on
jobs, etc.)
Corporate Recovery Group (business specific losses)
Teams will be drawn from Property Appraiser staff. If warranted by the extent of the
disaster, these teams may be augmented by personnel from other Consolidated City of
Jacksonville/Duval County agencies and outside sources. Following an event, Damage
Assessment teams will be dispatched into the affected areas to perform a Preliminary
Damage Assessment. These assessments shall be conducted by windshield survey.
Damage Assessment reports will be transmitted to the Damage Assessment Unit within the
EOC/Area Command Planning Section in a timely manner as established at the time of
the disaster. Damage Assessment field estimates may be transmitted electronically to the
EOC/Area Command from the field if facilities are available. Damage Assessment reports
may also assist in the establishment of baseline human and community needs, based
upon the information gained from field inspections.
Develop preliminary dollar estimates of potential damage based upon estimated
damage percentages and appraised property value, and develop related reports and
briefing information in accordance with state-required formats.
Public Works Department will support damage assessment efforts by inspecting bridges,
roads and other infrastructure, and reporting this information to Damage Assessment Unit.
Information gathered shall be monitored for inclusion in Situation Reports by Planning
Section’s Situation Unit.
Initial Damage Assessments shall be accomplished by participation in flyovers conducted
by the state’s Recon Teams. The Consolidated City of Jacksonville/Duval County
participants have been identified, and the roster of these assignees is updated prior to
hurricane season. Flyovers by the Recon Teams will also be used to initially develop a
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needs assessment for goods and services needed by the community as a result of the
disaster. Needs Assessment data and information will be tracked by the Planning Section,
and distributed to human service response agencies.
Other methods used to assess physical damages and develop needs and services
estimates include:
•
•
•
•
Continued flyovers utilizing Consolidated City of Jacksonville/Duval County-owned
(Mosquito Control, Sheriff’s Office, etc.) or acquired aircraft.
Consolidated City of Jacksonville/Duval County vehicles, such as trucks,
automobiles, off-road vehicles, etc.
Riverine Damage Assessment shall be conducted using Fire/Rescue Department,
Sheriff’s Office, and other Consolidated City of Jacksonville/Duval County marine
assets, and by utilization of state (Florida Marine Patrol, Game and Fish, etc.), or
volunteer marine assets.
Where damage is extensive, and roads may not be passable, Damage Assessment
teams may resort to foot patrols.
State of Florida Reconnaissance Teams
Following any major or catastrophic disaster, a rapid assessment of local damage and
victim needs is essential in determining the critical resources needed to support disaster
victims. To accomplish this, the state will deploy a Reconnaissance Team (s) immediately
following a catastrophic emergency or disaster in the Consolidated City of
Jacksonville/Duval County which requires immediate Damage Assessment to provide
local officials full understanding as to the extent and impact of the emergency or disaster.
The Florida Division of Emergency Management will initiate Recon Team deployment
following procedures specified in Florida National Guard (FLNG) RIAT. The Recon team
leader will coordinate assessment activity with the City of Jacksonville/Duval County
Emergency Preparedness Division Chief or designee.
Jacksonville/Duval County officials required to assist RIAT operations will immediately
report to the Emergency Operations Center/Area Command (EOC) when advised of
Recon Team arrival in Duval County. Following the arrival of the Recon Team, the
Emergency Preparedness Chief and the Recon Team Leader will conduct a situation
briefing to ensure both Recon team members and local officials have the same initial
assessment information. Following this briefing, team members and their local counterparts
will conduct the assessments in accordance with the applicable state agency checklists
(FLNG-RIAT located at the EOC/Area Command). The Recon Team will report all of its
findings to the EOC/Area Command Damage Assessment Unit as soon as possible.
State EOC will determine when RIAT assessments are completed and notify the team
leader to terminate activity.
Initial Safety and Damage Assessment
In the immediate aftermath of the disaster, the Consolidated City of Jacksonville/Duval
County will conduct a countywide local impact assessment. The Emergency Preparedness
Division Chief, or designee, is responsible for coordinating the Initial Safety and Damage
Assessment. The Emergency Preparedness Division will coordinate the initial assessment
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with the State of Florida Reconnaissance Team. Additionally, all Consolidated City of
Jacksonville/Duval County agencies, especially Fire Rescue, Sheriff’s Office and Public
Works, are responsible for reporting operational information, reports from the public, and
observed damage to the EOC/Area Command. The goal of this assessment is to
determine the magnitude and severity of damage to structures and infrastructure; and, in
the event of a severe rainfall event, determine the level of flooding damage.
All impact assessment team members must report impact assessment results to the
EOC/Area Command within hours of disaster impact. The Damage Assessment Unit is
responsible for compiling and analyzing initial damage assessments. The results are
mapped on a Geographic Information System map with color-coded categories.
The impact assessment data provides a countywide general overview of the most
significantly impacted areas and, therefore establishes a prioritization mechanism for
Damage Assessment team deployment, resource allocation, and disaster assistance.
The data collected from the initial Damage Assessment will be reported to the State
Emergency Operations Center. If outside assistance will be required, the initial Damage
Assessment will be used as the basis for a local declaration of emergency.
Preliminary Damage Assessment
A Damage Assessment is needed to quickly assess the life safety needs, magnitude of the
disaster and eligibility for state and federal aid. Damage Assessment is accomplished in
phases. Preliminary Damage Assessment (PDA) scans the affected area to determine the
width and breadth of damage, looking at critical facilities to determine the immediate
and life safety needs.
The EOC/Area Command Planning Section’s Damage Assessment Unit is the county’s
single point for receiving Damage Assessment reports and determining the disaster
magnitude. The Duval County Public Works Department serves as lead agency for the
Damage Assessment Unit while the Property Appraisers Office provides analysis support for
Damage Assessment. This agency can provide a graphic depiction of damage levels as
well as monetary Damage Assessments.
The Damage Assessment Unit produces a Preliminary Damage Assessment for the State
EOC situation report and other government agencies.
The Preliminary Damage Assessment (PDA) begins immediately after the incident occurs.
This preliminary Damage Assessment determines whether more detailed damage
assessments are necessary and identifies those areas where further efforts should be
concentrated. The preliminary Damage Assessment is reported to the Consolidated City
of Jacksonville/Duval County Emergency Operations Center within twelve hours of the
emergency occurrence by all field resources.
From the Preliminary Damage Assessments, a "quick dollar estimate" of the damages will
be derived, based on certain presumptions and assumptions predetermined by the
recovery team in the EOC/Area Command. The team will also use damage estimates
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from the Northeast Florida Hurricane Loss Study, property values from the Property
Appraisers files, and standard rates for labor and equipment.
If the Preliminary Damage Assessment indicates that the damage is severe and
widespread, a declaration of a State of Emergency may be possible without a detailed
written Damage Assessment. In that case state and federal teams may be dispatched to
assist in completing the Damage Assessment.
Information is collected and evaluated using state Damage Assessment Forms, Situation
Reports, and other means and is shared with state and federal officials as needed. This
prevents duplication of effort and verifies incomplete information.
The EOC/Area Command Planning Section’s Damage Assessment Unit is the single point
to consolidate and evaluate Damage Assessment information. This assessment is
formatted using state Damage Assessment Forms to facilitate rapid dissemination of
information.
Post-Disaster Habitability Certification
Once structures, buildings, and homes have been severely damaged, and/or had power
cut off in impacted areas, power cannot be restored until inspected by a certified
electrician. The Duval County Building Official will notify utility suppliers in the county of
reinstatement of electrical service. All buildings damaged must be permitted for rebuilding
or restoration and all new work must be up to current codes. If building is more than 50
percent damaged, then it will be brought up to current codes. Condemnation of severely
damaged buildings and structures will be accomplished when they become public safety
issues. These are legal responsibilities of all jurisdictions within the county.
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Infrastructure & Public Assistance
General
For affected governments and qualified not-for-profit organizations, a Public Officials
Briefing shall be held. At the briefing, public officials shall be oriented on available
assistance and procedures, and shall receive “Notice Of Interest” forms to be filed with
state and federal officials. Subsequent “Project Applications” shall be filed with the DEM
and FEMA for further processing. State and federal authorities will evaluate the project
applications and determine justification for assistance.
Jacksonville Administrative & Finance Department and Department of Procurement
personnel shall serve as the Consolidated City of Jacksonville/Duval County’s principal
representatives in preparation of disaster application forms, monitoring of projects to
completion and certification, and disbursement of relief funds. The City Administration
and Finance Department shall also coordinate the development of Disaster Survey Report
review and represent the Consolidated City of Jacksonville/Duval County in negotiations
for restitution of losses with federal and state officials.
Debris removal shall be coordinated and executed by the EOC/Area Command Public
Works Branch and Complex Command Public Works Branch. Fallen trees and similar
debris shall be disposed, to the extent possible, at the Consolidated City of
Jacksonville/Duval County’s mulching facility located at the Trail Ridge Landfill. Burn sites,
if needed, shall be identified by the EOC/Area Command Public Works Branch, and
operated with the cooperation of the EOC/Area Command Fire Branch, and local
environmental officials. Methods for disposal of non-mulchable debris shall be determined
by the Public Works Branch, in conjunction with local and state environmental officials.
Vegetative debris will be processed at temporary debris storage and retention sites.
The EOC/Area Command Finance/Administration Section will implement administrative
procedures for financial transactions, cost accounting, grants management, document
tracking and payroll processing. Following deactivation of the EOC/Area Command,
these functions shall be continued by those agencies that staff the Finance/Administration
Section. Procedures and instructions for preparing Project Worksheets and tracking disaster
costs have been developed by the Administration and Finance Department, which also
provides training and instruction on these procedures.
Public Assistance Grant Program
The objective of the Federal Emergency Management Agency's (FEMA) Public Assistance
(PA) Grant Program is to provide assistance to states, local governments, and certain nonprofit organizations to alleviate suffering and hardship resulting from major disasters or
emergencies declared by the President.
Through the PA Program, FEMA provides supplemental federal disaster grant assistance for
the repair, replacement, or restoration of disaster-damaged, publicly owned facilities and
the facilities of certain Private Non-Profit (PNP) organizations.
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The federal share of assistance is not less than 75 percent of the eligible cost for
emergency measures and permanent restoration. The grantee (usually the state)
determines how the non-federal share (up to 25 percent) is split with the sub-grantees
(eligible applicants). Additional information on the PA program is located in the PA section
of the Consolidated City of Jacksonville/Duval County Recovery Plan.
Applicant Briefing (Kickoff Meeting)
An applicant briefing will be scheduled to advise potential eligible applicants
(municipalities, county government and private non-profit entities) of the availability and
requirements of federal assistance. These briefings will be publicized through the media
and to the Emergency Preparedness Division, in accordance with 44 CFR-206 Subpart G &
H. Each potential applicant will be asked to complete and return a Request for Public
Assistance (RPA) form. The RPA reports damages suffered by each potential applicant
and are used by the Federal Coordinating Officer (FCO) and Public Assistance Officer
(PAO) to determine the number of damage survey and inspection teams.
A completed RPA will be transmitted to the FCO for each potential applicant. If the RPA is
denied by the FCO, the PAO will notify the potential applicant in writing, explaining the
specific reason(s) for denial and providing information on appeal procedures.
Potential applicants will also be requested to complete and return a “Designation of Subgrantee’s Agent” form that designates the official authorized to sign the funding
agreement and execute relevant public assistance documents. Before any public
assistance funds are released, the State and Applicant must enter into a disaster relief
funding agreement.
Project Worksheets
Each potential applicant must submit, within the designated application period, a “List of
Projects” to be reviewed for public assistance. This list should identify, for each damage
site and project; the disaster assistance category, site location, description of the damage
and scope of work necessary to repair, replace or restore projects to pre-disaster
conditions. Damage survey and inspection teams, comprised of county, state and federal
engineers, planners and architects, will review each project and activity on the List of
Projects.
The Public Assistance Officer (PAO) will coordinate with each applicant to arrange the
survey and inspection schedules, ensure participation by appropriate local officials and
ensure necessary records and documentation are available. The inspection team will
prepare Project Worksheets (PW) for each project, identifying activity descriptions, scopes
of work and cost estimates. Each PW undergoes two levels of review before approval by
the FCO. This approval must occur within 45 days of the date of first inspection. The first
review, performed jointly by the state/federal damage survey and inspection team, is for
concurrence on the PW. If state and federal inspectors concur, the PW goes to the FCO
for approval. If there is a disagreement on the PW, it is returned to the applicant for
resolution of the discrepancy. The second review, conducted by FEMA staff, is done
before final approval of the FCO. If the PW is approved, it is forwarded to the FCO for
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approval. If there is a discrepancy, it is returned to the survey and inspection team for
resolution of the discrepancy.
Any changes made to a PW during any stage of the review process will be returned to the
applicant, who will then have an opportunity to review the change, concur or not concur
and attach any additional documentation or statements to support their position.
Appeals
The county, on behalf of a Sub-grantee, can petition the (Governor’s Authorized
Representative (GAR) to appeal any FEMA determination on, or denial of, federal public
assistance. This appeal must be made in writing within 60 days from the date of
notification of FEMA’s determination. The Sub-grantee must provide sufficient information
that permits the County to provide to the GAR the facts needed to assess the validity of
the appeal. The FCO will review the appeal and conduct the necessary investigation to
determine the validity of the appeal. The FCO will, within 90 days following receipt of the
appeal, notify the GAR in writing of the disposition of the appeal or if additional
information is required. If additional information is requested, the FCO shall have an
additional 90 days, from receipt of the information, to review the information and notify
the GAR of the disposition of the appeal. If the FCO denies an appeal, the Sub-grantee
may submit a second appeal to the FEMA Associate Director. This appeal must be in
writing and submitted through the GAR and FCO within 60 days after receipt of the denial
of the first appeal. The FEMA Associate Director has 90 days in which to make a decision
on appeal or request additional information. If the Associate Director denies the appeal,
a third and final appeal may be made to the FEMA Director within 60 days after receipt of
the Associate Director’s denial. The FEMA Director has 90 days in which to make a decision
on the appeal or request additional information. The Director shall notify the GAR of the
final disposition of the appeal.
Program Assistance and Management
The PAO will administer all public assistance grants, agreements and contracts.
Administrative staff will be responsible for providing technical assistance to eligible
applicants and sub-grantees, and maintaining and submitting all documents and
paperwork necessary to obligate and disburse public assistance funds. This includes
establishing a system for the processing of payments to sub-grantees and to FEMA; and
establishing and maintaining accounting records for each payment draw down by the
state and each payment to sub-grantees. Public Assistance will be handled using the
Public Assistance Manual and forms from the state.
Final Inspections
When all PWs in any project application have been completed, a project summary must
be submitted by the Sub-grantee to the PAO and Governor’s Authorized Representative
(GAR). State and federal inspectors will conduct a final inspection of the project to verify
the project’s completion. Final inspection documents will then be prepared and
forwarded to the FCO for the preparation of any closing documents.
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Insurance Coordination Procedures
Most Public Assistance Grants will not be processed until insurance coordination with the
appropriate carrier has been completed. County and local government Risk Managers
must ensure early turn around of insurance documents and documentation. The State
Public Assistance Office will administer all public assistance grants, agreements and
contracts. Administrative staff will be responsible for providing technical assistance to
eligible applicants and sub-grantees and for maintaining and submitting all documents
and paperwork necessary to obligate and disburse public assistance funds. This includes
establishing a system for the processing of payments to sub-grantees and to FEMA; and
establishing and maintaining accounting records for each payment draw down by the
state and each payment to the sub-grantees.
Additional Disaster-Specific Grant Programs
Other disaster-related grant programs that the state and the Consolidated City of
Jacksonville/Duval County may be eligible to apply for include:
•
•
•
•
•
Community Disaster Loan Program - Provides funds to any eligible jurisdiction
in a designated disaster area that has suffered a substantial loss of tax and
other revenue.
Fire Management Assistance Grant Program - Assistance for the mitigation,
management, and control of fires on publicly or privately owned forests or
grasslands, which threaten such destruction as would constitute a major
disaster.
Hazard Mitigation Grant Program - Provides grants to states and local
governments to implement long-term hazard mitigation measures after a
major disaster declaration.
Reimbursement for Firefighting on Federal Property - Provides reimbursement
only for direct costs and losses over and above normal operating costs for
fighting fire on property owned by the federal government.
Public Assistance Grant Program – Provides mitigation funding to damaged
public facilities after a major disaster declaration.
Debris Management
The EOC/Area Command Public Works Branch is responsible for debris management.
During the recovery from a major disaster, such as a hurricane, debris removal will be
divided into two separate phases:
Phase I - Debris Clearance: Clearance of Debris that hinders search and rescue
operations and immediate life-saving actions, and the clearance of that debris, which
may pose an immediate threat to public health and safety. This activity will be
accomplished with local government resources, aid from neighboring counties and state
assistance agencies, contracted private providers, and volunteers.
Phase II - Debris Removal: Removal of Debris that hinders the orderly recovery of the
community. Due to the potential of being monumental in scale, this phase of the
operation will be conducted in large part by the Corps of Engineers, who are mandated
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by the National Response Framework to provide such services, following the issuance of a
Presidential Declaration of Natural Disaster.
The EOC/Area Command Public Works Branch has the responsibility for the overall
coordination of debris removal efforts to include securing all required state and federal
agency environmental permits. Emergency debris removal efforts will focus on clearing
major transportation arteries in an effort to allow the movement of emergency vehicles,
supplies, resources and traffic. After the restoration of the major transportation arteries has
been completed, debris will then be removed from collector roadways, residential/local
roadways, and public parks. The Florida Department of Transportation is responsible for
clearing debris from state and federal roads in major arterial systems.
In an effort to minimize the impacts on remaining landfill capacities, alternate means of
debris disposal will be utilized whenever possible. Vegetative debris will be burned or
chipped. Burning will not be used when it creates a public health hazard. The EOC/Area
Command Public Works Branch will identify suitable burn sites.
It is anticipated that significant numbers of personnel with engineering and construction
skills, along with construction equipment and materials, will be required from state and
federal agencies and from sources located outside of the affected area(s). The
acquisition and deployment of these resources will be coordinated among the EOC/Area
Command Logistics Section and Public Works Group. It is an EOC/Area Command Public
Works Group-required contingency to have County contracts for support of debris
management activities. The General Counsel’s Office will develop entry procedures for
debris removal from private property.
Logistics Section is responsible for other emergency period contracts and the EOC/Area
Command Public Works Branch is responsible for developing sample debris removal
contracts. This function is addressed in detail in the Debris Management ICP.
Individual Assistance
Disaster Recovery Centers
Following a disaster of such magnitude that far exceeds the Consolidated City of
Jacksonville/Duval County’s and the state’s ability to meet the needs of the community,
and results in the requesting and granting of a Presidential Disaster Declaration, the
emergency management organization (EOC/Area Command) shall, as previously
described, at the request of the Federal Emergency Management Agency or Florida
Division of Emergency Management, establish Disaster Recovery Centers for individuals
seeking recovery assistance. The Emergency Preparedness Division Chief, or designee, will
coordinate with the state, pre-event and post-event, regarding the need and location of
a DRC. The county, state and FEMA staffs jointly share the responsibility of choosing a
location for the DRC. Joint state and FEMA managers provide overall management of the
DRC. These sites shall be established at geographically strategic sites, providing all
effected citizens with access to available programs, and shall provide representatives
from numerous federal, state, local, and private relief agencies. Locations of the centers,
as well as information on FEMA’s tele-registration program, shall be made known via the
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143
Public Information Officer, and all other available information outlets (see PIO portion of
the Incident Command ICP). Refer to DRC standard operating procedures for more
details.
Tele-registration is the planned primary mechanism for the registration of affected citizens
and persons impacted by a disaster to receive disaster information and assistance.
Applicants may call 1-800-621-FEMA (3362) (hearing/speech impaired ONLY-Call TTY: 1800-462-7585) to apply for assistance. Applicants may also apply in person at a DRC for
emergency assistance or apply online or by mail.
Some of the services that a DRC may provide include:
Guidance regarding disaster recovery;
Clarification of any written correspondence received;
Housing Assistance and Rental Resource information;
Answers to questions, resolution to problems and referrals to other public and private nonprofit agencies that may provide further assistance;
Status of applications being processed by FEMA; and
SBA program information if there is a SBA Representative at the Disaster Recovery Center
site.
Individual Assistance Programs
The following federal grant programs are available to individuals following a disaster:
•
•
•
•
•
Disaster Assistance - Disaster assistance is money or direct assistance to
individuals, families and businesses in an area whose property has been
damaged or destroyed and whose losses are not covered by insurance. It is
meant to help victims with critical expenses that cannot be covered in other
ways. This assistance is not intended to restore damaged property to its
condition before the disaster.
Crisis Counseling - Provides supplemental funding to states for short-term crisis
counseling services to people affected in Presidential-declared disasters.
Disaster Legal Services - When the President declares a disaster, FEMA,
through an agreement with the Young Lawyers Division of the American Bar
Association, provides free legal assistance to disaster victims. This may
include assistance with insurance claims, landlord-tenant problems,
consumer protection and the replacement of wills and other documents.
Disaster Unemployment Assistance (DUA) - The Disaster Unemployment
Assistance (DUA) program provides unemployment benefits and reemployment services to individuals who have become unemployed
because of major disasters. Benefits begin with the date the individual was
unemployed due to the disaster incident and can extend up to 26 weeks
after the Presidential declaration date.
Small Business Administration Disaster Loans - The U.S. Small Business
Administration (SBA) can make federally subsidized loans to repair or replace
homes, personal property or businesses that sustained damages not covered
by insurance.
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144
Community Relations
The lead agency for the EOC/Area Command Reception Center Unit (i.e., Community
Services) or their designee will act as the County Community Relations Coordinator.
Trained volunteers will assist the Community Relations Coordinator in this capacity. This
team will function as the liaison with the FEMA/State Team. The Community Relations
Team, in conjunction with the Damage Assessment Team, will determine the most critically
damaged or impacted areas for the FEMA/State Team to focus on.
The various
municipalities, Chamber of Commerce, ministerial associations and other civic
organizations will be contacted to assist in assessing the community needs.
The roles and responsibilities of the Community Relations Team include:
•
•
•
•
•
•
•
•
Sole contact/liaison with the State Community Relations Coordinator in Tallahassee
or the LTRO.
Responsibility for maintaining the Community Relation County Roster database
provided by the State DEM Recovery Section every June.
Responsibility for recruiting local participants in the Consolidated City of
Jacksonville/Duval County area to be part of the FEMA/State/Local Community
Relations Teams during a Presidential Declared Disaster in Duval County.
Responsibility for dissemination and collecting information vital to the disaster
victims in order for them to recover from the declared disaster. Flyers and
applicant guides will be provided to the disaster victims for them to tele-register on
the 1-800-621-FEMA line for Disaster Assistance.
Responsibility for reporting any disaster victims unmet needs to the Human Services
Branch.
Responsibility for providing the disaster victim with an opportunity to tell their story to
a responsive Community Relations Team member.
Responsibility for maintain on-going communications with community
leaders/organizations and local government officials regarding disaster issues and
the disaster applicant process.
Perform other roles and responsibilities, which are outlined in the state’s Community
Relations SOP and Community Relations Field Guide.
Unmet Needs Coordination
Unmet needs are any disaster-related losses experienced by the victim that cannot be
provided for by the programs available from local, state, or federal government agencies
due to the victim’s ineligibility for such services or the unavailability of the goods or
services. During the recovery phase, a collaborative effort is established between
government and the private non-profit community.
During the long-term recovery phase all unmet needs will be forwarded to the Human
Services Deputy Operations Section. Human Needs Assessment Teams (HNAT),
municipalities and local officials will meet to help identify unmet needs. With assistance
from the volunteer groups, the Human Services Deputy Operations Section will utilize
existing lists of community service providers, local churches, community outreach
programs and municipalities to fulfill all requests for unmet needs.
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145
Specific Community/Human Needs Assessment procedures and responsibilities can be
found in the Duval County Health Department Post-Incident Community Needs and Rapid
Impact Assessment Plan.
Training for HNAT members and local community groups is scheduled throughout the year.
Training includes emergency home repair, debris removal, donation warehouse
management, processing centers, crisis counseling and other needed assistance.
National Flood Insurance Program
The Consolidated City of Jacksonville/Duval County participates in the National Flood
Insurance Program. Portions of the Consolidated City of Jacksonville/Duval County are in
a special hazard flood zone. Citizens cannot buy flood insurance if their local jurisdictional
government does not participate in the program.
Jacksonville/Duval County also participates in the Community Rating System (CRS), which
allows communities to have an discount on the rates paid by their citizens for flood
insurance. Communities are classified as Class 1 (most premium reduction allowed)
through Class 10 (no reduction allowed). Communities not participating are classified as
Class 10. Jacksonville currently has a CRS rating of 7 but will be receiving a rating of 6 in
the latter part of 2009.
The Consolidated City of Jacksonville/Duval County developed a Comprehensive Land
Use Plan that limits the increasing of densities within the wetlands and flood plains. The
Comprehensive Land Use Plan is the basis for rebuilding, building, and planning within the
flood plains. The management of storm water runoff is also addressed within the plan in
the Master Storm water Drainage Plan. All recovery actions, both short and long term,
must be completely addressed through the Comprehensive Plan.
Jacksonville has developed and submitted statewide mutual aid agreements within the
state. Additionally, the Consolidated City of Jacksonville/Duval County Comprehensive
Plan is an all-inclusive plan that accepts input from not only citizen groups but also
technical advisory groups that were developed based on expertise of functional
members.
Emergency Housing
The Temporary Housing Branch is responsible for coordinating the effective planning for
temporary housing for the residents of the Consolidated City of Jacksonville/Duval County
displaced by a disaster. The Temporary Housing Branch will work closely with state,
federal, and local agencies to expedite any necessary processes to establish alternate
long-term housing options for displaced residents.
Emergency/Disaster Support Other Than Public Assistance or Individual Assistance
Duval County and its citizens may be eligible to receive other emergency recovery
assistance, provided through non-disaster specific grant programs, including:
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146
Community Services Block Grant (CDBG) - Localities use the funds to support a variety of
services that help low-income people. Services typically assist with childcare, employment,
education, emergency services, health care, housing, nutrition, transportation, youth
development, and coordination of resources and community participation.
Low-Income Home Energy Assistance Program (LILHEAP) - LIHEAP will provide a one-time
benefit to eligible households to be used for energy bills. The amount of the benefit is
determined by income, household size, fuel type and geographic location.
Low-Income Home Repair Program (LEHRP) - LEHRP provides grants to local agencies
administering the Weatherization Assistance Program to assist low-income people,
especially the elderly and physically disabled, with emergency housing repairs that affect
the health and safety of residents. These funds provide for repairs that might be left
undone with only weatherization funding.
Home Investment Partnership Program (HOME) - Participating jurisdictions may choose
among a broad range of eligible activities, using HOME funds to provide home purchase
or rehabilitation financing assistance to eligible homeowners and new homebuyers; build
or rehabilitate housing for rent or ownership; or for "other reasonable and necessary
expenses related to the development of non-luxury housing," including site acquisition or
improvement, demolition of dilapidated housing to make way for HOME-assisted
development, and payment of relocation expenses.
State Housing Initiative Partnership Program (SHIP) - The State Housing Initiatives Partnership
(SHIP) Program provides funds to local governments in the State of Florida as an incentive
to produce and preserve affordable housing through the creation of a partnership
between the public and private sectors. The funds are derived from the collection of
documentary stamp tax revenues, which are deposited into the Local Government
Housing Trust Fund, based on a population-based formula.
Hazard Mitigation
Introduction
Mitigation efforts includes those activities, policies or programs developed and adopted
by government officials that will prevent, reduce or alleviate the impact caused by
disasters or emergencies on property, population and the environment. Proper and
coordinated planning is a prerequisite to effective and efficient procedural changes
required in order to address hazard mitigation.
Jacksonville/Duval County currently participates in several pre/post-event mitigation
programs. These programs are designed to minimize the risk to residents, lessen damage
to public and private properties and reduce the detrimental effects to critical
infrastructure. Our goal is to ensure that mitigation activities, initiatives and outreach are
coordinated in an efficient manner and provide vulnerability reduction and support to our
community, critical infrastructure and key resources.
Hazard mitigation planning is an essential function for the Consolidated City of
Jacksonville/Duval County that has an on-going, significant impact on our vulnerable
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147
community. The Consolidated City of Jacksonville/Duval County has a Local Mitigation
Strategy (LMS) which determines the most beneficial mitigation measures for the entire
county. The LMS is a multi-jurisdictional hazard mitigation plan where each participating
city was involved in the planning process and has officially adopted the plan. The
Consolidated City of Jacksonville/Duval County has incorporated mitigation goals and
concepts into our CEMP, emergency response plans, business plans and capital
improvement plans. Hazard mitigation also requires a refined decision process for a longstanding commitment toward disaster loss reduction.
Lead Agency
The Emergency Preparedness Division is the lead agency for all mitigation activities in the
county. The Emergency Preparedness Division Mitigation Coordinator has the responsibility
for directing all pre/post-disaster mitigation activities and for coordinating mitigation
activities with the Duval Prepares Partnership Committee, also known as the Consolidated
City of Jacksonville/Duval County Local Mitigation Strategy Working Group’s Advisory
Committee.
City of Jacksonville Business Plan
The Consolidated City of Jacksonville/Duval County undertakes, as part of its Annual
Business Plan, a program that requires each city agency to assess the potential damage
that its facilities and operations could receive due to a variety of natural and manmade
disasters or emergencies. Each agency must assess its ability to respond and recover to
any disaster. Upon completion of the assessment, each agency is then required to
prepare a pre-event plan to mitigate the anticipated effects posed by all hazards.
Mitigation efforts may include capital improvement projects, enhancement and
enforcement of existing building codes, personnel and office policies, employee training,
or facility hardening projects.
2010 Comprehensive Plan
Several elements of the Consolidated City of Jacksonville/Duval County’s 2010
Comprehensive Plan address hazard mitigation issues. Included among the issues
addressed by the comprehensive plan are:
•
•
•
•
•
•
•
•
•
•
Drainage network management.
Protection of riverine wetlands and estuarine marshes.
Floodplain management.
Preservation of the beach and dune system.
Restoring damaged beaches.
Providing hurricane shelter.
Restricting imprudent coastal development.
Mitigation actions following natural disasters and post-disaster plan development.
Marina siting.
Critical Infrastructure Protection from all hazards.
Community Emergency Preparedness Initiatives
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148
The Consolidated City of Jacksonville/Duval County’s six (6) Citizen Planning Advisory
Councils (CPACs) have been tasked with developing neighborhood-based emergency
preparedness programs. Guidelines provided by Emergency Preparedness Division allow
for considerable autonomy in program development, but encourage the CPACs to
develop viable public information programs that will inform citizens of hazard specific
threats to their neighborhood. In addition these programs address suitable methods of
personal mitigation through home or property improvements, and encourage the public
to identify hazardous situations in their neighborhoods and suggest public mitigation
projects for evaluation by Consolidated City of Jacksonville/Duval County agencies.
To assist the CPACs with their preparedness goals, Emergency Preparedness Division has
initiated the Jacksonville Community Emergency Response Team (JaxCERT) program that
offers training and participation in comprehensive Emergency Management activities.
Pre-Disaster Hazard Mitigation Activities
Pre-disaster mitigation activities in the pre-disaster environment are the responsibility of the
Emergency Preparedness Division. The Emergency Preparedness Division through the
Mayor’s Security and Emergency Preparedness Planning Council (SEPPC) which serves as
Duval County’s LMS Working Group coordinates pre-disaster mitigation activities. The
CCOJ/Jacksonville/Duval County LMS identifies the hazards to which the CCOJ/Duval
County is vulnerable; assesses the facilities and structures that are most vulnerable to all
hazards; offers a prioritized list of mitigation projects to take advantage of available
funding; and links mitigation projects to these sources of funding.
Pre-disaster hazard mitigation activities and hazard vulnerability are described in detail in
the CCOJ/Duval County LMS. Vulnerability of structures and infrastructure can be found in
the CCOJ/Duval County LMS (Section G, chapter 1 through 4). The LMS is a communitybased plan to make the county and local communities more resistant to natural and
technological hazards. The mitigation project priority list and ranking criteria are also
supplied in the CCOJ/Duval County LMS 2008. These are available from the CCOJ/Duval
County Emergency Preparedness Division.
The Emergency Preparedness Division is responsible for maintaining the CCOJ/Duval
County LMS. The LMS will be updated at least annually, after each major disaster, or on an
as needed basis. The process by which enhancements to the LMS are made starts with
suggestions from the LMS Advisory Group Subcommittees (also known as Duval Prepares
Subcommittees), and then final approval by the SEPPC. Participation by LMS Advisory
Group Subcommittees and the SEPPC is coordinated by the CCOJ/Duval County
Emergency Preparedness Division.
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149
Figure 39: LMS Planning Process
Plan Maintenance
The Emergency Preparedness Division is responsible for maintaining the Consolidated City
of Jacksonville/Duval County LMS. The LMS will be updated at least annually, after each
major disaster, or on an as needed basis. The process by which enhancements to the LMS
are made starts with suggestions from the Duval Prepares Subcommittees, consensus from
the Duval Prepares Partnership Committee and then final approval by the Security and
Emergency Preparedness Planning Council.
Participation by Duval Prepares is
coordinated by the Consolidated City of Jacksonville/Duval County Emergency
Preparedness Division and involves several public and private supporting agencies and
partners.
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150
Pre-Disaster Hazard Mitigation Functions
Hazard mitigation under sections 404 and 406 of the Stafford Act is any action taken to
reduce or eliminate the long-term risk to human life and property from natural hazards.
While the Consolidated City of Jacksonville/Duval County is performing normal daily repair
or restorative work throughout the county, it should consider mitigation methods that will
prevent or reduce damage in future incidents thereby reducing future damage costs.
One of the objectives of the pre-disaster mitigation program is to identify vulnerable
structures and critical infrastructure that require improvements or hardening. These
projects can be pursued on a project-by-project basis and a positive benefit/cost ratio
must exist to ensure that the additional work will be achieving the highest benefit in
relation to cost. Mitigation is accomplished by doing additional work that is beyond the
scope of normal repairs and beyond code requirements in order to reduce the
vulnerability to future disaster related damages.
Mitigation planning is provided through the state-sponsored LMS and carried out by the
Consolidated City of Jacksonville/Duval County Local Mitigation Strategy Working Group
that consists of representatives from all phases of the community including county
departments, municipalities, public and private schools and universities, non-profit
organizations and members of the private sector. Day-to-day supervision of the LMS is
accomplished through Duval Prepares Partnership, an Advisory Committee appointed by
the Working Group, and is staffed by Emergency Preparedness Division personnel.
The LMS contains a full hazard mitigation plan covering virtually any hazard that might
occur in the Consolidated City of Jacksonville/Duval County. It also includes numerous
recommended mitigation projects and a summary of possible funding sources. Please
refer to the Consolidated City of Jacksonville/Duval County LMS for more detailed
mitigation information.
Post-Disaster Hazard Mitigation Activities
The Consolidated City of Jacksonville/Duval County Emergency Preparedness Division will
also be responsible for coordinating local agency participation in post-disaster mitigation
activities. Local agencies involved in these operations will vary according to the specifics
of each event. Emergency Preparedness Division staff will contact all agencies for postdisaster mitigation activities and notify them as to their role in these operations.
Post-disaster, the Consolidated City of Jacksonville/Duval County will be conducting repair
and restorative work to their critical infrastructure throughout the county, it should consider
mitigation methods that will prevent or reduce damage in future incidents thereby
reducing future damage costs.
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151
Figure 40: Post-disaster Mitigation Process
Post-Disaster Hazard Mitigation Functions
The Consolidated City of Jacksonville/Duval County Emergency Preparedness Division will
also be responsible for coordinating local agency participation in post-disaster mitigation
functions. The implementation of existing mitigation functions will be accelerated as a
result of the arrival of outside assistance in the aftermath of a disaster. Post-disaster
functions include, Initial Damage Assessment (IDA), restoration of essential services,
mitigation assessment, flood data, compile damage reports and assess condition of
critical infrastructure.
Concept of Operations
The Consolidated City of Jacksonville/Duval County operates under the Incident
Command System (ICS) during emergency operations. This system is especially effective
for managing response and recovery operations that involve multiple agencies each
working on various interrelated tasks. The organization system employed during mitigation
activities is streamlined in large part because the Consolidated City of Jacksonville/Duval
County Emergency Preparedness Division has the primary responsibility for nearly all
aspects of pre/post-disaster mitigation. Although there are times when the Emergency
Preparedness Division receives assistance from supporting agencies, the vast majority of
mitigation activities are carried out directly by Emergency Preparedness Division staff.
The Consolidated City of Jacksonville/Duval County has adopted a Local Mitigation
Strategy (LMS). The LMS supports this plan. The LMS has been revised in accordance with
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the Disaster Mitigation Act of 2000 and the Emergency Preparedness Division’s Scope of
Work through the Department of Community Affairs. The LMS is updated every five years.
The LMS process of assessing hazards and prioritizing activities serves as the primary
mitigation activity of the County. The Duval Prepares Partnership Committee is the
representative civic/community group that oversees hazard mitigation in Duval County
and therefore also serves as the Consolidated City of Jacksonville/Duval County LMS
Advisory Committee. Duval Prepares has three subcommittees that assist with mitigation
activities: Business Sustainability, Public Information and Risk Assessment/Planning. The
Emergency Preparedness Division’s Mitigation Coordinator facilitates the productivity of
the Duval Prepares committees and LMS Advisory Committee. The Mitigation Coordinator
also participates in mitigation civic groups outside of the direct control of the Emergency
Preparedness Division, (i.e. the Federal Alliance for Safe Homes committees, the
Jacksonville Insurance Task Force and the Northeast Florida American Red Cross speaker’s
bureau).
Duval Prepares provides a forum for public sector and private sector entities to share
information, resources and methodologies regarding mitigation. This includes discussing
development trends, structural hazard mitigation (flood-proofing, wind-proofing, storm
water management projects, floodplain management projects, infrastructure hardening
and acquisition and demolition), non-structural mitigation (regulatory: zoning, land
development regulations, and permitting fees; financial incentives: ad valorem tax breaks
on retrofitting improvements, insurance premium reductions, and financing for structural
hardening funding), identifying vulnerable infrastructure and prioritizing community
mitigation initiatives. Through the efforts of Duval Prepares, the Mitigation Coordinator is
able to keep a listing of LMS priority projects, as well as a full listing of mitigation projects
organized into categories, to track project needs in the county. The Mitigation
Coordinator encourages Duval Prepares Partners to apply for funding and then cultivates
public/private involvement in accomplishing the goals to further the implementation of
mitigation in the community.
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Figure 41: Mitigation Organizational Structure
M AYO R
CCOJ/DUVAL CO UNTY
Security & Em ergency
Preparedness Planning
Council
LM S Advisory
Com m ittee
Duval Prepares
Public Inform ation
Subcom m ittee
Risk Assessm ent/
Planning
Subcom m ittee
Chief
Adm inistrative
Officer
CCOJ/Duval County
Fire & Rescue
Director/Fire
Chief
Em ergency Preparedness
Division Chief
CCOJ/Duval
Security Coordinator
Citizen Corps
M itigation &
Recovery
JaxCERT
Steering
Com m ittee
JaxCERT
G raduates
Business
Sustainability
Subcom m ittee
The main goal of Duval Prepares is to ensure that the Consolidated City of
Jacksonville/Duval County is more disaster resistant through public/private partnerships.
Duval Prepares has been successful in developing a website, placing newspaper
announcements, conducting radio and television spots, producing numerous printed
materials, participating in outreach opportunities nearly every week of the year, making
public presentations and contributing to public policy efforts.
The Security and Emergency Preparedness Planning Council (SEPPC) is the governing
body for mitigation policy and procedure before and after a disaster and serves as the
official LMS Working Group. The Emergency Preparedness Division Chief and
Mitigation/Recovery Coordinator present Duval Prepares/LMS Advisory Committee
recommendations to the SEPPC for final approval. Under the organization of Citizen Corps,
Jacksonville Community Emergency Response Team (JaxCERT) Steering Committee
members and JaxCERT graduates can assist in comprehensive emergency management
activities, which include pre- and post-disaster mitigation activities.
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154
The Jacksonville Property Appraiser will support the Consolidated City of
Jacksonville/Duval County Emergency Preparedness Division by providing technical
expertise regarding property values, damages and losses to properties as a result of a
disaster.
The Emergency Preparedness Division is responsible for coordinating all mitigation planning
with assistance from a number of supporting agencies. Jacksonville Building Department,
Zoning Department and the other Municipal Building and Public Works Departments will
provide support to the Emergency Preparedness Division in identifying mitigation activities
that could reduce the vulnerability for damage and loss of public infrastructure,
businesses, and housing from natural and manmade disasters Jacksonville Public Works
Department and the Municipal Public Works Departments will assist the Emergency
Preparedness Division in identifying potential road, bridge, culvert, water, and sewer
mitigation projects.
Planning Assumptions
The Emergency Preparedness Division will notify all participating agencies required for
mitigation operations; coordinate all mitigation activities required to identify potential
mitigation projects and initiatives coordinate the application process for mitigation related
grants; and serve as the grant administrator for all mitigation grants.
Personnel resources for daily operations in the Consolidated City of Jacksonville/Duval
County are limited. In the aftermath of a disaster, these resources are stretched even
further. As a result, the County relies in large part on information generated by Emergency
Preparedness Division and Public Works during the local damage assessment process, the
prioritized project list from the Consolidated City of Jacksonville/Duval County LMS, and
overall guidance from the Emergency Preparedness Division Chief or his designee in
determining specific mitigation priorities following a disaster. The Consolidated City of
Jacksonville/Duval County Emergency Preparedness Division has initiated disaster service
agreements with outside agencies to alleviate shortfalls in resources and personnel.
Coordination of Mitigation Activities
The Emergency Preparedness Division will serve as the organization responsible for
coordinating mitigation activities for lead and participating agencies. The Consolidated
City of Jacksonville/Duval County Emergency Preparedness Division Chief or his designee
is the person responsible for this task. The process of coordination is assisted by the Duval
Prepares Partnership Committee and active subcommittees. In particular, the Duval
Prepares Public Information Subcommittee will be responsible for providing information to
citizens on how they can prevent disaster damages in the future.
In the Consolidated City of Jacksonville/Duval County, much of the work involved in
identifying opportunities for possible mitigation activities is carried out during the predisaster mitigation phase (e.g. during the mitigation project identification process carried
out by the Consolidated City of Jacksonville/Duval County LMS Advisory Committee).
Opportunities for mitigation are also discovered during the initial and preliminary damage
assessments and throughout the public assistance processes. The participating agencies
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155
noted above document damage to public infrastructure, businesses and residences
working in conjunction with the Emergency Preparedness Division. The Emergency
Preparedness Division, along with input from participating agencies, then considers the
information gathered during the recovery phase and determinations are made regarding
potential mitigation projects.
Coordination of Mitigation Activities with Municipalities and the State
Chief or designee will be responsible for coordinating mitigation activities with the
municipalities and the State EOC. The Mayors of the City of Atlantic Beach, the City of
Jacksonville Beach, the City of Neptune Beach and Town of Baldwin or their designees will
be updated throughout the response, recovery, and mitigation phases of the event. The
Emergency Preparedness Division Chief or his designee will coordinate on an as needed
basis with the Bureau of Recovery and Mitigation at the Division of Emergency
Preparedness.
Mitigation Assessment
The Consolidated City of Jacksonville/Duval County Emergency Preparedness Division is
the lead agency charged with post-disaster mitigation assessment. The Chief of the
Emergency Preparedness Division, or his designee, has the primary responsibility for
assessing mitigation needs in the post-disaster environments. Mitigation opportunities will
be evaluated during post-disaster damage assessment activities.
Equipment and Resources Necessary for Mitigation Assessment
Chief will be responsible for ensuring all equipment and resources necessary for mitigation
assessment are available when needed. Vehicles used for mitigation assessment include
city and county government vehicles, and personal vehicles.
The following equipment is provided by the Emergency Preparedness Division and used for
mitigation assessment: GPS units, computers and data, office supplies, maps, and digital
cameras. Other resources may be requested on an as needed basis through the
Emergency Preparedness Division.
Local Agencies with Supporting Roles in Mitigation Assessment
The Duval County Property Appraiser, Public Works, Duval County Health Department,
Duval County Building Department, Planning & Development Department, Information
Technology Department and other Municipal Public Works, Building and Zoning
Departments are the supporting agencies that work closest with the Consolidated City of
Jacksonville/Duval County Emergency Preparedness Division in post-disaster mitigation
assessment. There are, however, a number of other local agencies that may indirectly
support mitigation in the Consolidated City of Jacksonville/Duval County.
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Training Procedures for Mitigation Personnel
Personnel involved in mitigation activities will receive on-going training according to their
individual needs.
The Consolidated City of Jacksonville/Duval County Emergency
Preparedness Division will work with all mitigation assessment team members to ensure that
all training needs are met. The primary source for mitigation training is the Florida Division
of Emergency Management.
Structural Hazard Mitigation Initiatives
Several on-going initiatives are illustrated in Table 9 below. More initiatives can be found in
the Consolidated City of Jacksonville/Duval County Local Mitigation Strategy section of
this document.
Table 9: Duval County Structural Mitigation Initiatives
Category
Decrease
Vulnerability
Agency
Duval County Public
Schools (DCPS)
Reduce Risk
JEA
Reduce Risk
Florida Department of
Transportation
Local government
All municipalities
Reduce Risk
Structural Mitigation Initiative
Structural enhancements and
retrofitting for shelters and other
critical facilities. - Ongoing
• Retrofit sewage lift stations
(flood proofing) to enhance
elevation;
• Retrofit water wells with an
alterative electrical source;
• Retrofit vulnerable electric
sub-stations (flood proofing);
• Plan and implement
underground utility
placement.
Maintenance of drainage
infrastructure
Continued and ongoing
stormwater drainage and facility
hardening improvements.
Non-Structural Mitigation Activities
Several on-going initiatives are illustrated in Table 10 next page. More initiatives can be
found in the Consolidated City of Jacksonville/Duval County Local Mitigation Strategy
section of this document. .
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Table 10: Duval County Non-Structural Mitigation Initiatives
Category
Agencies
Education,
Training and
Awareness
Financial Services
Municipal Building
Departments
City of
Jacksonville/Duval
County/Duval County
Emergency
Preparedness Division
City of
Jacksonville/Duval
County Engineering
Department City of
Jacksonville/Duval
County Planning and
Development Division.
NE Florida Builders
Association
Building Officials
Organization
Community Affairs
Business and
Professional Regulation
FLASH
City of
Jacksonville/Duval
County Emergency
Preparedness Division
Education,
Training and
Awareness
Education,
Training and
Awareness
Land Use and
Zoning
Education,
Training and
Awareness
NOVEMBER 2010
City of
Jacksonville/Duval
County Building
Department, Permitting
Department, and Fire
Department
North Florida Coalition
on Recovery (NEFCOR)
Non-Structural Mitigation
Initiative
Flood insurance education
program for property
owners.
Education/incentive
programs for builders;
higher building standards
and cost effective
retrofitting
Evacuation Education
Program that informs
general population of
evacuation routes, time
frames, shelter and
procedures.
Develop requirement to
ensure defensible space
around homes/subdivisions
from wildfires
Coordinates education of
and response to unmet
needs of citizens after a
disaster.
158
Category
Agencies
Education,
Training and
Awareness
Community Rating
System (CRS)
Education,
Training and
Awareness
National Flood
Insurance Program
(NFIP)
Non-Structural Mitigation
Initiative
Provides a discount on
flood insurance premiums
for participating
governments.
Promotes safe and more
efficient use of land in flood
zones.
Mitigation Memoranda of Understanding, Mutual Aid Agreements, or Inter-Local
Agreements
The Emergency Preparedness Division has a formal Memorandum of Agreement with
Duval Prepares Partners to assist in pre-disaster mitigation activities. Since Duval Prepares
serves as the Local Mitigation Advisory Committee and was designated by the Security
and Emergency Preparedness Planning Council on September 24, 1998 as the official
mitigation advisory group, it is understood that they also agree to assist in post-disaster
mitigation activities outlined in the Consolidated City of Jacksonville/Duval County Local
Mitigation Strategy. The group is also responsible for the prioritization of projects for the
Hazard Mitigation Grant Program (HMGP).
Local Government Status in the National Flood Insurance Program
The Consolidated City of Jacksonville is a participant in the National Flood Insurance
Program (NFIP) and has a Community Rating System score of 7. A certified Floodplain
Manager in the Engineering Division of the Public Works Department coordinates the
Consolidated City of Jacksonville/Duval County’s participation. The Consolidated City of
Jacksonville/Duval County citizens may receive flood zone determinations or Community
Rating System information from the Engineering Division/Development Management
Group office. The City of Atlantic Beach, the City of Jacksonville Beach, the City of
Neptune Beach and the Town of Baldwin also participate in the NFIP. As much of the
development now in place along the Consolidated City of Jacksonville/Duval County’s
coast and rivers was developed prior to adoption of NFIP standards and rating zones, it is
anticipated that should a major hurricane strike our area, many structures, both private
and public, would have to be rebuilt or replaced by structures meeting NFIP standards. To
support federal mitigation efforts that are associated with the NFIP, the Consolidated City
of Jacksonville/Duval County participates in the Federal Hazard Mitigation Assistance
Program and hosts local workshops to educate residents on flood damage reduction
techniques.
Process for Identifying Mitigation Opportunities in the Post-Disaster Environment
The Consolidated City of Jacksonville/Duval County Emergency Preparedness Division is
responsible for coordinating all recovery operations in the county. As a result of this active
role in the recovery process, the Emergency Preparedness Division is well poised to identify
opportunities for future mitigation projects such as elevation and/or acquisition of flood
prone structures, drainage improvement projects, and infrastructure enhancement
NOVEMBER 2010
159
projects. The Emergency Preparedness Division works closely with the damage assessment
teams in the field and the building inspectors for Duval County and the municipalities to
identify potential mitigation opportunities.
Process to Manage Mitigation Assistance Funds
All mitigation and recovery grants are coordinated by the Consolidated City of
Jacksonville/Duval County Emergency Preparedness Division.
The Emergency
Preparedness Division has managed a variety of recovery and mitigation grants in the past
including Hazard Mitigation Grant Program funds. The Emergency Preparedness Division is
also the administrator for all emergency management grants involving the County. Most
emergency management grants have a 75 percent federal, 25 percent local financial
contribution. In certain cases, up to 12.5 percent of the local 25 percent match can be inkind. Sources of in-kind match can be staff time, equipment and volunteers. An additional
source of cash match that can be utilized for a disaster or economic peril is the City of
Jacksonville cash carry-over account (“Rainy Day Fund”).
PREPAREDNESS ACTIVITIES
General issues
CEMP Development and Maintenance
The Deputy Director, Planning and Operations, is responsible for the development and
maintenance of the CEMP, ensuring that necessary revisions are prepared, coordinated,
published and distributed.
Preservation of Vital Records and Databases
During Emergency Operations, the Planning Section Chief, and individual Consolidated
City of Jacksonville/Duval County agencies are responsible for the preservation of vital
records and databases deemed essential for continuing government functions and
conducting post-disaster operations. All Consolidated City of Jacksonville/Duval County
agencies and constitutional authorities must ensure protection of their records so that
normal procedures may continue after the disaster. These records are also necessary for
the rapid recovery from the effects of a disaster.
In the event that an emergency alternate location for the seat of government is necessary
as a result of a natural disaster, the Mayor of the Consolidated City of Jacksonville/Duval
County, with the advice and assistance of the Emergency Preparedness Division Chief,
shall activate Continuity of Operations (COOP) Plans for executive agencies to use in
preparation of removal to an emergency alternate location.
The COOP Plans of the Consolidated City of Jacksonville/Duval County agencies contain:
1. Procedures for determining which personnel, records, equipment and supplies are
to be considered "essential" and, therefore, will be pre-staged and/or scheduled for
removal to the alternate location.
NOVEMBER 2010
160
2. The method or methods by which records, equipment and supplies are to be prestaged and/or prepared for physical removal from their usual locations to the
emergency alternate location.
3. The precautions to be taken and steps to be followed to preserve and protect vital
records and databases.
Registration of Persons with Special Needs
State Law requires the Consolidated City of Jacksonville/Duval County’s Emergency
Preparedness Division to conduct an annual voluntary registration program to identify
those persons within a county who need transportation assistance during a disaster. The
Consolidated City of Jacksonville/Duval County has opted to develop and operate a
comprehensive program that attempts to identify every resident with a special medical
need. In 2005 a database was developed by the Emergency Preparedness Division (EPD),
and at the present time the registry averages 1,500 registered persons with special needs.
Each year special needs clients will register with EPD, and are placed or updated in the
database. This database will be used by the Emergency Operations Center during such
time evacuations are required. The Consolidated City of Jacksonville/Duval County also
has incorporated a plan and collaborated with Jacksonville Transportation Authority, JFRD
and area ambulance services to transport special needs clients to special needs shelters
and area hospitals.
Each January, a new special needs database will be created for that calendar year. The
previous year’s database will be archived for future referral. Letters of renewal will be
mailed to the special needs clients on the existing database announcing the new
registration process. This process is addressed in the Special Needs & Adopt a Shelter ICP.
The registration forms are distributed in a variety of ways: annual mail-out with JEA and
Beaches electric bills provides special needs population with information on the program
and where to recover registration forms. Registration forms are directly distributed to
Home Health Care (HHC) agencies, Children’s Medical Services (CMS), Community
Centers, Senior Centers, JEA and Beaches customer service centers and sending directly
to individuals who make requests through the City Link CARE System. Registration forms are
on line at the COJ.net website, to be printed out and mailed in. Transportation only forms
are distributed to county libraries.
Public Awareness & Education
The Planner for Public Education is responsible for public education and information
throughout the year. Following are some local means of public information dissemination:
•
•
•
•
•
•
•
Public Access TV Talk Shows & Programs
Various News Media “Call-In” Shows
Neighborhood and Church Group Meetings
Florida Times-Union Storm Watch and other disaster preparedness manuals
The Jacksonville Business Journal Special Edition
Emergency Email Network
Emergency Preparedness Web Site Updates
NOVEMBER 2010
161
•
•
•
•
•
•
•
Public notices via Email of Duval Prepares meetings
Business Disaster Preparedness Fairs
Multiple Public Safety and Disaster Preparedness Fairs
Annual Hurricane Exercises
Emergency Preparedness Information in local phone books
Special Medical Needs registration mail outs
The Consolidated City of Jacksonville/Duval County’s One Call 630-CITY Line
Information is communicated to the public throughout the year about hazards,
vulnerabilities and disaster preparedness. Venues include: the COJ.net website, television
interviews, on-site presentations to community groups, and numerous printed materials,
including a disaster preparedness guide to every household receiving the local Florida
Times-Union newspaper.
Public education promotions and on-site presentations are conducted especially during
the following annual events, identified in Table 11 next page.
NOVEMBER 2010
162
Table 11: Public Education and Awareness Events
Event
Date
Hazardous Materials Awareness Week
Kids Weather Survival Week
Be Kind to Animals Week
Hurricane Preparedness Week
Mayor’s Neighborhood Summit
Fire Prevention Week
Project SafeSide
Family Safety Awareness Week
February
February
May
May
June
October
October
December
During evacuations, changeable highway message signs are permanently installed on I-10
and I-95 and several portable signs are available through the Jacksonville Sheriff’s Office
especially to communicate to the evacuating public.
Public Service Announcements
Public Service Announcements are pre-drafted and available for editing in the EOC/Area
Command under the direction of the PIO. These drafts cover a wide variety of probable
disaster scenarios.
Recovery Information
Communication to the public is vital following a disaster. The Emergency Preparedness
Division will provide recovery information for dissemination to the public, including the
location of Disaster Recovery Centers, Recovery Information Centers and Disaster Legal
Assistance. Mass media is the primary communication method, followed by printed
materials distributed by field personnel. Information will also be available on the on line at
the COJ.net website.
Mitigation Opportunities
Duval Prepares is a major effort used to communicate mitigation opportunities through
educational outreach programs for individual homeowners and the public. Duval
Prepares is a voluntary organization of leaders in several industries such as insurance,
forestry, construction, disaster relief and business recovery that meet monthly to further
mitigation efforts, direct grant dollar expenditure and raise awareness of the benefits of
mitigation.
Maps of Evacuation Zones and Routes
Maps of evacuation zones and routes can be obtained year-round from the Emergency
Preparedness Division, City Hall, City Hall Annex, City Hall in the Mall, or the American Red
Cross Northeast Florida Chapter. These maps may also be viewed on on-line at the
COJ.net website.
NOVEMBER 2010
163
Please refer to the following figures (next pages) for maps of the Consolidated City of
Jacksonville/Duval County evacuation routes.
Figure 42: Evacuation Routes North of Atlantic Boulevard
NOVEMBER 2010
164
Figure 43: Evacuation Routes between Atlantic and Beach Boulevard
NOVEMBER 2010
165
Figure 44: Evacuation Routes Between Beach and J.T. Butler Boulevard
NOVEMBER 2010
166
Exercises
The Planner for Training and Exercises is responsible for disaster exercises.
The purpose of the exercise process is to produce an opportunity for the Consolidated City
of Jacksonville/Duval County, with private organizations and other governmental
agencies, to learn roles and responsibilities in a disaster. These inter-agency exercises
maybe tabletop, functional, drill or full-scale exercises. The exercise process is designated
by the State of Florida, Department of Community Affairs, Division of Emergency
Management.
Every EOC/Area Command Functional Branch, Group/Unit, lead and participating
agencies, shall participate in at least one of the several Exercises conducted by the
Emergency Preparedness Division each year. Some of the private agencies included in
that total include the American Red Cross, Salvation Army, Association of Contingency
Planners and Lutheran Social Services. All City agencies that are listed in the EOC/Area
Command Functional Groups/Units section of this plan shall participate in exercising.
Federal, state and regional governmental agencies may also participate in City of
Jacksonville exercises. These may include the U.S. Army Corp of Engineers, U.S. Coast
Guard Sector Jacksonville, U.S. Navy, the National Weather Service, Florida Division of
Emergency Management, Florida Fish & Wildlife Conservation Commission, and the
Northeast Florida Regional Planning Council.
Regional coordination efforts are enhanced by the presence of collaborative regional
organizations that includes representation from many different jurisdictions and different
disciplines. Regional Terrorism Exercises are conducted annually through the Regional
Domestic Security Task Force (RDSTF) Region 3 and Urban Area Security Initiative (UASI).
The RDSTF and UASI carry out tabletop, functional, and full-scale exercises with a full array
of regional partners. RDSTF and UASI exercises may be coordinated.
The annual exercise cycle usually includes City involvement in a functional exercise in the
spring/summer, a full-scale Exercise in the fall, RDSTF/UASI Functional and/or Full-scale
exercises, and three to four smaller tabletop and functional exercises throughout the year,
based on need and environment. Following is an example of the Planning Process for
designing and scheduling a disaster exercise for Duval County:
SAMPLE PLANNING PROCESS
1st Meeting (Initial Planning Conference)
Layout Exercise strategy. Develop Exercise objectives/purpose.
2nd Meeting
Evaluate timeline/milestones. Confirm Email list for Exercise briefing. Follow up on Design Team.
3rd Meeting
Discuss scenarios for the Infrastructure Branch and Logistics Section in a post-disaster environment.
Include variables of flooding, debris management, temporary housing, transportation needs,
NOVEMBER 2010
167
blackouts, downed power lines and food/water issues. Focus on roles of the Communications Unit,
Planning Section & Resources Unit during the Exercise.
4th Meeting
Confer on scenarios for the Operations Section. Focus on roles of the Communications Unit, Planning
Section & Resources Unit during the Exercise. Researched FEMA and other purchasing forms used for
disaster requisitions. Focus on EOC/Area Command Functional Groups/Units using Incident Master for
resource requests to the Resources Unit. Lay out area and parameters of post-disaster damage,
including number of fatalities and displaced citizens.
EXERCISE TIMELINE/MILESTONES
9April
Exercise briefing, including dates & times, e-mailed to invite adequate participation.
9April
Exercise design team confirmed.
9 May
State Exercise messages (Resource Requests) due.
9 May
Resource Requests reviewed via State Exercise conference call.
9 May
Scenarios developed.
9 May
Exercise evaluation points identified.
9 May
Exercise evaluators/controllers identified. Evaluation forms/package developed.
9 May
Exercise messages developed. PowerPoint presentation of Exercise created
9June
Run Disaster Exercise
9June
Exercise Critique. Critique results available to participants
All exercises will be evaluated according to the requirements of the Homeland Security
Exercise Evaluation Program (HSEEP). The HSEEP is a capabilities and performance-based
exercise program that provides a standardized policy, methodology, and language for
designing, developing, conducting, and evaluating all exercises.
At the conclusion of each exercise, the Emergency Preparedness Division seeks feedback
and analysis from Exercise participants. These responses are collected and analyzed and
a list of deficiencies is generated. These deficiencies are translated by staff into an AfterAction Report (AAR) and Improvement Plan (IP) containing measurable goals for
improvement. These goals will be tracked in an attainment database, as part of the
Consolidated City of Jacksonville/Duval County’s Quality program.
Exercises may also be conducted for individual EOC/Area Command Sections and
Branches, as needed.
Training
The Planner for Training and Exercise is also responsible for Emergency Preparedness
training. The Emergency Preparedness Division has developed an 8-hour core curriculum
of four emergency management classes required for all persons assigned to the EOC and
available to all city employees and volunteers.
Intermediate and Advanced Incident Command System courses are offered by local
instructors who have been trained to teach these upper level courses. Classes are
scheduled throughout the year to ensure the maximum number of staff take the required
classes.
NOVEMBER 2010
168
Additionally, emergency management training opportunities provided at the state and
national level are monitored and communicated to appropriate groups throughout the
year. A variety of national courses are available for online and self-study training. Staff are
encouraged to seek professional emergency management accreditation through the
International Association of Emergency Managers (IAEM) and/or the Florida Emergency
Preparedness Association (FEPA).
Training for personnel involved in EOC operations is indicated in Table 12 below.
Table 12: Recommended Training
RECOMMENDED TRAINING COURSES FOR ICS POSITIONS AND OTHER AGENCIES
Shelter
Management
R
EPD - Emergency
Management
Training Series
R
First Aid/CPR
R
Human Needs
Assessment
Training
O
Liaison Officer
Training
O
Local Financial
Management
G290 – Basic PIO
O
All Hazards
Incident
Management
Team
R
E202 Debris
Management
R
ICS Position
Specific Courses
(i.e., Ops Chief,
Planning Chief,
Logistics Chief, IC,
etc.)
R
NOVEMBER 2010
Volunteers
Elected
Officials
EOC Support
Staff
Public Safety
Dispatchers
Unit Leaders
Deputy Ops
EM Services
Deputy Ops
Branch
Directors
Group
Supervisors
O = Optional
Services
Deputy
Ops
Infrastructure
Planning
Section Chief
Logistics
Section Chief
Finance
Section Chief
Operations
Section Chief
Complex
Commanders
Human
M = Mandatory
PIO
Safety officer
Liaision Officer
Incident
Commander
R = Recommended Training
O
O
O
O
O
O
R
O
R
O
O
O
O
O
O
O
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
O
R
O
O
O
O
R
R
O
O
O
O
O
O
O
O
O
O
O
R
O
O
O
O
R
R
R
O
O
O
O
O
O
O
O
O
O
O
O
R
O
O
O
O
O
R
O
R
R
R
R
R
R
R
R
O
O
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
O
O O
O
O
169
E273 Managing
Floodplain
Development
E278 NFIP/CRS
O
R
R
R
R
R
O
IS800B – National
Response
Framework
E362 Multi-Hazard
Safety for Schools
E388 Advanced
PIO
E905 IEMC
Hurricane Prep. &
Response
E906 IEMC
Hurricane
Recovery &
Mitigation
*G120 Exercise
Design Course
G130 Exercise
Evaluation Course
IS700 NIMS
M
M
O
M
O
M
M
O
R
M
M
M
M
R
R
R
M
M
M
R
O
R
R
R
O
O
O
O
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
O
O
R
O
O
R
O
M
M
Volunteers
Elected
Officials
EOC Support
Staff
Public Safety
Dispatchers
Unit Leaders
Deputy Ops
EM Services
Deputy Ops
Branch
Directors
Group
Supervisors
O = Optional
Services
Deputy
Ops
Infrastructure
Planning
Section Chief
Logistics
Section Chief
Finance
Section Chief
Operations
Section Chief
Complex
Commanders
Human
PIO
Safety officer
M
M = Mandatory
R
M
ICS100 Orientation
or Basic ICS
M
G191 ICS/EOC
Interface
R
G195 Intermediate
ICS or ICS200 Intro
to ICS
M
G196 or ICS300
Intermediate ICS M
ICS 400 –
Advanced ICS
M
*IS230 Principles of
Emergency
Management
R
*IS235 Emergency
Planning Course O
NOVEMBER 2010
Liaison Officer
Incident
Commander
M
M
O
M
O
O
O
O
O
O
O
O
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
O
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
M
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
R
O
O
O
O
R
O
O
R
O
O
O
O
O
O
O
O
O
O
R
170
*IS240 Leadership
O
and Influence
*IS241 Decision
Making/ Problem
Solving
O
*IS242 Effective
Communication O
O
O
O
R
O
O
R
O
O
O
O
O
O
O
R
O
O
O
O
O
R
O
O
R
O
O
O
O
O
O
O
R
O
O
R
O
O
R
O
O
R
O
O
O
O
O
R
O
R
O
R
R
*IS244 Developing
Volunteer
Resources
*IS247 Decision
Making in a Crisis
G250.7 Rapid
Assessment
Planning
G275 EOC
Management
Operations
G276 Resource
Management
G360 Hurricane
Planning
G381 Public
Assistance
Operations 1
G385 Disaster
Response and
Recovery
G386 Mass
Fatalities
G393 Mitigation
for Emergency
Managers
G601 Damage
Assessment
G250.11
COOP/COG
IS 702 NIMS PIO
Joint Information
NOVEMBER 2010
Volunteers
Elected
Officials
EOC Support
Staff
Public Safety
Dispatchers
Unit Leaders
Deputy Ops
EM Services
Deputy Ops
Branch
Directors
Group
Supervisors
O = Optional
Services
Deputy
Ops
Infrastructure
Planning
Section Chief
Logistics
Section Chief
Finance
Section Chief
Operations
Section Chief
Complex
Commanders
Human
M = Mandatory
PIO
Safety officer
Liaison Officer
Incident
Commander
O
R
O
O
R
R
O
R
O
R
O
O
O
O
R
R
O
R
O
R
R
O
O
R
O
O
R
O
O
O
O
O
R
O
R
O
R
O
O
R
O
O
R
O
O
R
O
R
O
O
O
R
O
R
O
R
O
O
R
O
O
R
O
O
R
O
O
O
O
O
R
O
R
O
R
O
O
R
O
O
R
O
O
R
O
O
O
O
O
R
O
R
O
R
O
O
R
O
O
R
O
O
R
O
R
R
R
O
R
O
R
O
R
O
O
R
O
O
R
O
O
R
O
O
O
O
O
O
O
R
O
R
O
O
R
O
O
R
O
O
R
O
O
O
O
O
O
O
R
O
R
O
O
R
O
O
R
O
O
R
O
O
O
O
O
O
O
R
O
R
O
O
R
O
O
R
O
O
R
O
O
O
O
O
O
O
R
O
R
O
O
R
O
O
R
O
O
R
O
O
O
O
O
O
O
R
O
R
O
O
R
O
O
R
O
O
R
O
O
O
O
O
O
R
O
R
O
R
R
O
O
R
O
O
R
O
O
O
O
O
O
R
O
R
O
O
171
System
NOVEMBER 2010
O
172
NOVEMBER 2010
173
FINANCIAL MANAGEMENT
The Finance and Administration Section shall provide fiscal and managerial support as
required. The Chief of the City of Jacksonville’s Department of Administration and
Finance-Accounting Division has the task and responsibility of financial recovery of any
disaster event (large or small) that may occur in the city/county. Responsibilities include
identifying, documenting, and recovering costs from the State of Florida, Federal
Emergency Management Agency (FEMA) and other federal government agencies like
the U.S. Army Corp of Engineers and USDA-Natural Resource Conservation Service to
maximize the cost recovery opportunity.
The Accounting Division will provide fiscal and accounting support to the Procurement
Department and will focus efforts to coordinate and assist in the completion of
documentation of reimbursable expenditures as determined by FEMA.
To provide maximum financial recovery, the most important task following a disaster is to
identify and document all the damage. The Department of Procurement has developed
a handbook to assist personnel as a guide to properly collect and document information
needed for financial recovery. Damage assessment activities are done in collaboration
with the Damage Assessment Unit of the Planning Section. Procedures to do so include:
A. Initiate the Documentation Process – Start keeping records using the Damage
Assessment Report (DAR).
B. Map damage sites – each damaged site will need to be located and marked on a
city/county map and local map. Damaged sites should include a street address or
the closest available landmark. A local map may represent a subdivision, office
complex, or structural diagram indicating the damage location within the building.
C. What to document – prepare a list of work performed and facilities damaged as a
direct result of the disaster. The list should separate work and damages into those
categories identified by FEMA. Include both work that has been completed and
work in process (not completed). The following documentation must be obtained
and forwarded to the Accounting Division when requested:
1) Maintain a separate file for each site. Do not combine sites.
2) Prepare daily activity reports from supervisors’ daily logs.
3) Keep these documents for each site done by force account:
a) Daily activity reports for labor, materials and equipment
b) Delivery tickets
c) Invoices
d) Payroll journals
e) Canceled checks for paid goods
f) Daily logs from supervisors
g) Keep these documents for each site by contract:
i. Bid advertisement and list of bidders
ii. Contract awarded
iii. Invoices canceled checks
iv. Record of work inspections
NOVEMBER 2010
174
4) Supporting Documentation – Pictures of damage should be taken with a 35mm/digital camera versus a Polaroid and put in the site file.
5) Record keeping forms – there are two ways to complete items of work: one is
by contract, and the other is by utilization of Consolidated City of
Jacksonville/Duval County-owned personnel, equipment and materials.
Utilization of the Consolidated City of Jacksonville/Duval County’s own
resources is called Force Account Work. The proper documentation in each
case is described below:
a) Contract work – if the work is completed on a lump sum contract, an
invoice and copy of the contract is needed. A detailed breakdown
of all cost including equipment use, dates used, hourly rates and hours
used must be documented.
b) Force Account Work – A written record of labor, equipment, material
used, contract record and rental equipment be prepared, as
necessary and signed to be eligible for reimbursement. These forms
must be certified by the department heads or division chiefs and must
include all supporting documentation.
When the Consolidated City of Jacksonville/Duval County uses other jurisdictions’
resources under Mutual Aid, the same documentation is required. Document where you
assigned this assistance, what they did, and how it was controlled. In addition, an invoice
showing the date, amount paid, and check number is required indicating that we have
paid the other jurisdiction. Direct mutual aid requires the same documentation for both
the sending and receiving parties.
The Assisting Party shall bill the Requesting Party with an itemized notice as soon as
practicable. Billings should not be later than 60 days following period of assistance.
Requesting Party shall pay bills or advise of disputed items no later than 60 days after the
billing date. Modifications can be made through mutual agreement by both parties to
extend the ending payment time, donations, etc.
The Public Assistance (PA) Program provides reimbursement to state and local
governments for: the repair or reconstruction of public facilities, which are owned and
operated by a government; debris removal; and protective measures.
The Florida Department of Community Affairs - Division of Emergency Management
administers the PA Program, as the grantee for all federal funds related to the program.
The Consolidated City of Jacksonville/Duval County is a sub-grantee to the program.
An applicant’s briefing on all aspects of the PA Program is held as soon as possible after
receipt of the declaration. The Consolidated City of Jacksonville/Duval County will send a
designated authorized agent who is qualified to speak officially for the local government.
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INTERAGENCY AGREEMENTS
Emergency utilization of resources and capabilities of organizations not part of
Consolidated City of Jacksonville/Duval County government will be pre-arranged under
agreements or understandings to the maximum extent feasible.
Agreements and understandings will be entered into by duly authorized officials and will
be formalized in writing whenever possible.
Agreements and understandings between elements of the Consolidated City of
Jacksonville/Duval County government will be included within the plans of Consolidated
City of Jacksonville/Duval County government.
Details of such agreements and
understandings which are in appropriate for inclusion in this plan will be set forth in
supporting operations procedures, instructions and other directives of the units of
government concerned.
Agreements remain in effect until rescinded or modified. Agreements must state the
procedure for payment or reimbursement for personnel services rendered, equipment
costs and expenditure of material. A clear statement of agreement on this matter is
mandatory.
OTHER FINANCIAL AGREEMENTS
1) State Homeland Security Grant Program (SHSGP) – Funds from Dept of
Homeland Security (DHS) to improve the ability of state and local agencies
to prevent and respond to terrorist attacks using chemical, biological,
radiological, nuclear or explosive weapons.
2) Urban Area Security Initiative (UASI) – Funds from DHS's Office of Grants &
Training to address unique planning, equipment, training and exercises
needs in high-threat, high-density urban areas. Funds enhance and sustain
capability to prevent, respond to and recover from threats or acts of
terrorism.
3) Emergency Management Preparedness and Assistance (EMPA) – Funds
allocated from the Emergency Management Preparedness and Assistance
Trust Fund created by the Legislature in 1993 to implement necessary
improvements in the State's emergency preparedness and recovery
program and facilities.
4) Emergency Management Performance Grant (EMPG) - Funds to the
state/local jurisdictions to pay for statewide and local disaster mitigation,
preparedness, response and recovery programs
5) Hazard Analysis Grant – Funds from state to identify and conduct on-site
evaluation of facilities in the community housing hazardous materials.
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6) Metropolitan Medical Response System (MMRS) – Funds from DHS to prepare
for terrorist events that involve radiological, nuclear, biological and explosive
agents, as well as epidemic disease outbreaks, large scale hazardous
material accidents and major natural disasters.
7) Community Emergency Response Team (CERT) – Funds to recruit and train
citizens to be prepared for emergency situations in their community and
neighborhoods.
8) Citizen Corps Grant - Funds to promote volunteer service activities that
support homeland security and community safety.
9) Hazard Mitigation Grant Program (HMGP) - Authorized under Section 404 of
the Robert T. Stafford Disaster Relief and Emergency Assistance Act, the
program provides grants to states and local government to implement longterm hazard mitigation measures after a major disaster declaration.
10) Pre-Disaster Mitigation Grant Program (PDM) - Authorized under Section 203
of the Robert T. Stafford Disaster Relief and Emergency Assistance Act, the
program is to assist states and local governments in implementing costeffective hazard mitigation activities that complement a comprehensive
mitigation program.
11) Flood Mitigation Assistance Grant Program (FMA) - FMA provides funding to
assist states and communities in implementing measures to reduce or
eliminate the long-term risk of flood damage to buildings, manufactured
homes, and other structures insurable under the National Flood Insurance
Program.
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177
REFERENCES & AUTHORITIES
STATE OF FLORIDA
Section 252.38, Florida Statutes, directs each county to establish an Emergency
Management Agency and appoint a Director to carry out the provisions of section 252.31
- 252.60. The Consolidated City of Jacksonville/Duval County’s Emergency Preparedness
Division Chief is the emergency manager for the county. In this capacity, the Division
Chief is directly and solely responsible for:
1. Organization, administration and operation of the Emergency Preparedness Division, the
County Emergency Operations Center and other related operational facilities.
2. Serves in the capacity of advisor to the Mayor during emergency or disaster operations.
3. Coordinator of activities services and programs to emergency planning and
emergency response throughout the Consolidated City of Jacksonville/Duval County.
4. Maintaining liaison with state, federal and other local Emergency Management
Agencies.
5. Development and maintenance of operational planning for emergency responses.
6. Instituting training programs and public information programs.
7. Ascertaining the requirements of the county in order to implement emergency response
operations.
8. Taking all preparatory steps necessary, including the partial or full emergency
mobilization of agencies of county and municipal governments in advance.
9. Cooperating with the Governor's Authorized Representative, the State Division of
Emergency Management and all other federal and relief agencies in matters pertaining
to Emergency Management.
10. Taking measures to carry into effect any request from municipalities, agencies, the
State Division of Emergency Management, or federal agencies for any appropriate
emergency management activity.
11. Carrying out any implemented actions deemed necessary by the Mayor.
CONSOLIDATED CITY OF JACKSONVILLE/DUVAL COUNTY
Ordinance Code Chapter 674, Disaster Preparedness and Civil Emergency, creates and
maintains as the local emergency preparedness agency, the Emergency Preparedness
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178
Division of the Consolidated City of Jacksonville’s Fire and Rescue Department. Chapter
674 also establishes the Emergency Preparedness Planning Council to review the
emergency operations plans of the Consolidated City, outlines the emergency powers of
the Mayor of the Consolidated City of Jacksonville/Duval County, and the Consolidated
City of Jacksonville/Duval County's emergency preparedness and response network.
Executive Order 96-201 establishes the foundations of the emergency preparedness
organization of the Consolidated City of Jacksonville/Duval County, and also provides the
guidelines that are to be followed when the emergency powers ranted by Part 3, Chapter
674, are to be invoked and exercised.
Chapter 31 of the Ordinance Code creates the Fire and Rescue Department. Chapter 31
also establishes the Emergency Preparedness Division as part of that Department, and
recognizes that the Division Chief of the Emergency Preparedness Division shall also
perform the duties and hold the office of the Consolidated City of Jacksonville/Duval
County Emergency Planning Director and Security Coordinator.
The City of Jacksonville FY 2002/03 Business Plan requires that every agency of the
Consolidated City of Jacksonville/Duval County prepare an Agency Disaster Report
assessing their ability to respond to any disaster or emergency that may either affect their
agency or which may call upon that agency to perform response or relief efforts. Each
agency, as part of the assessment process, is required to address numerous issues,
including the disaster role of the agency, the validity of existing plans and procedures, the
training of employees in their disaster response roles, family preparedness and emergency
use and acquisition of resources.
Once the self-assessment is completed, each agency is then required to develop and
implement, with the assistance of the Emergency Preparedness Division, a Long Term
Action Plan, which will enhance their emergency preparedness and disaster response.
The Consolidated City of Jacksonville/Duval County requires that each agency designate
an Emergency Coordinating Officer (ECO). The ECO is responsible for the preparing and
maintaining of emergency preparedness and disaster response plans and procedures for
their agency. Part of this responsibility includes participation in disaster training exercises
and drills as may be available.
Whenever employees of the Consolidated City of Jacksonville/Duval County are
rendering aid outside the Consolidated City of Jacksonville/Duval County pursuant to a
mutual aid plan or inter-jurisdictional agreement, they shall have the same powers, duties,
rights, privileges and immunities as if they were performing their duties within the city limits.
Whenever volunteer or auxiliary emergency preparedness personnel are detailed to an
emergency disaster support force outside the Consolidated City of Jacksonville/Duval
County, they shall have the same powers, duties and immunities as if they were
performing their emergency preparedness duties within the city limits.
STATUTORY FISCAL PROCEDURES
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179
Ordinance Code 674.209 – Compensation, Reimbursement
In the case of equipment belonging to the Consolidated City of Jacksonville/Duval
County, provided to and used in another jurisdiction, loss or damage sustained and
operation and maintenance expense incurred as a result of that use shall be itemized in a
claim for compensation from the other jurisdiction, which shall be made under oath by the
Chief from documentation provided by the appropriate Consolidated City of
Jacksonville/Duval County employees usually responsible for such equipment. The claim
shall be served by mail or otherwise upon the chief fiscal officer of the other jurisdiction,
and a copy shall be provided to the Director of Administration and Finance and the
Council Auditor. The Chief shall report to the mayor each instance of damage, loss or
expense that is not reported to him within 60 days after it is sustained or incurred. In the
case of emergency preparedness personnel furnished by the Consolidated City of
Jacksonville/Duval County to another jurisdiction, the administration and training service
shall keep a record of the compensation (including compensation due to personal injury
or death) paid to public employees who are a part of the emergency preparedness
personnel so furnished and also a record of the actual traveling and maintenance
expenses of all emergency preparedness personnel so furnished, while they are rendering
aid to the other jurisdiction, to the extent that the other jurisdiction does not provide
transportation, meals and housing to such emergency preparedness personnel free of
charge. The Chief shall submit an itemized statement of these compensation, traveling
and maintenance expenses to the other jurisdiction on whose behalf they were incurred
as directed by the mayor and furnish a copy of such statement to the Director of
Administration and Finance and Council Auditor.
The Consolidated City of Jacksonville/Duval County shall be liable for any loss or damage
to any equipment provided by other jurisdictions and used by or in the Consolidated City
of Jacksonville/Duval County pursuant to a mutual aid plan or inter-jurisdictional
agreement and shall pay any expense incurred in the operation and maintenance of the
equipment; provided, that no claim by another jurisdiction shall be allowed unless, within
60 days after the loss, damage or expense is sustained or incurred an itemized notice of
the claim, under oath, is served by mail or otherwise upon the Director of Administration
and Finance. The Consolidated City of Jacksonville/Duval County shall also reimburse
another jurisdiction providing aid to the city/county for compensation (including
compensation due to personal injury or death) paid to employees furnished as a part of
the aid and shall defray the actual traveling and maintenance expenses of the
employees while they are rendering aid, to the extent that the Consolidated City of
Jacksonville/Duval County does not provide transportation, meals and housing to the
employees free of charge. The term employee, as used in this subsection, shall mean and
include paid, volunteer and auxiliary employees and emergency preparedness workers
actually provided by the other jurisdiction to aid the Consolidated City of
Jacksonville/Duval County.
STANDARD OPERATING PROCEDURES REFERENCES APPLYING TO THE CEMP
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180
The Planning and Development Department is responsible for maintaining the 2010
Comprehensive Plan which refers to the Comprehensive Emergency Management Plan in
at least 2 Objectives:
Objective 7.1.3 – The City, acting as Duval County, shall review, and update as necessary,
the hurricane evacuation portion of the Comprehensive Emergency Management Plan
(CEMP) prior to June 1 of each year. The latest versions of, or changes to, all state and
regional emergency plans shall be incorporated into the CEMP to ensure
intergovernmental plan consistency.
Objective 7.5 – Within 60 days of the occurrence of a major destructive storm or similar
disaster, the Consolidated City of Jacksonville/Duval County shall prepare a post-disaster
redevelopment plan designed to reduce or eliminate the exposure of human life and
property to natural hazards.
POLICIES
7.5.1 The Comprehensive Emergency Management Plan CEMP shall include guidance for
post-disaster recovery operations. Post disaster recovery efforts and development shall
include implementation of hazard mitigation programs that result in the reduction or
elimination of future losses from similar events.
7.5.2 After a hurricane has severely impacted Jacksonville, the Mayor of the Consolidated
City of Jacksonville/Duval County, and other local officials as designated by the Mayor,
shall meet to review preliminary damage assessments as collected by the Emergency
Preparedness Division. The Mayor may take such actions as deemed necessary to restore
the Consolidated City of Jacksonville/Duval County to post storm conditions. Life safety
issues, such as search and rescue activities shall receive first priority. Following life safety,
recovery efforts shall be focused on damage assessment and human needs assessment,
re-establishment of the public infrastructure. The Emergency Management Organization,
as established by the CEMP, shall remain in operation until recovery efforts can be
continued under normal governmental operations.
7.5.3 The Executive Group of the Consolidated City of Jacksonville/Duval County’s
Emergency Management Organization shall oversee recovery actions and provide policy
guidance for recovery operations.
7.5.4 The Emergency Management Organization shall implement the existing recovery
policies and procedures of the CEMP and any policies or procedures issued or endorsed
by the Executive Group. These policies shall include, but not be limited to, the issuance of
emergency building permits, coordination with state and federal officials, authorization of
mitigation options in the replacement of damaged or destroyed public property and
infrastructure; approval of a post-disaster redevelopment plan, and amendments to the
Comprehensive Plan and the CEMP.
7.5.5 Immediate repair and cleanup actions needed to protect the public health and
safety include repairs to potable water, wastewater, and power facilities; removal of
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181
debris; stabilization or removal of structures about to collapse; and minimal repairs to
make dwellings habitable. These actions shall receive first priority in permitting decisions
7.5.6 As part of its Local Mitigation Strategy, the Consolidated City of Jacksonville/Duval
County shall adopt prior to October 1, 1999 a formal decision making process to evaluate
redevelopment options, considering such factors as cost to construct, cost to maintain,
repetitive damage, impacts on land use, impacts on the environment, and public safety.
7.5.7 The Emergency Management Organization shall propose amendments to the 2010
Comprehensive Plan which reflect the recommendations in any interagency hazard
mitigation reports or other reports prepared pursuant to Section 406 of the Disaster Relief
Act of 1974 (PL 93-288).
7.5.8 If rebuilt, structures which suffer damage in excess of fifty % of their appraised value
shall be rebuilt to meet all current building and code requirements, including those
enacted since original construction of the structure.
7.5.9 Structures which suffer substantial damage to pilings, foundations, or load bearing
walls shall be required to rebuild landward of their current location or to modify the
structure to delete the areas most prone to damage.
7.5.10 Following a disaster, the Consolidated City of Jacksonville/Duval County shall
identify any existing non-public structures in the Coastal High Hazard Area (CHHA),
inventory their assessed value, judge the utility of the land for public access or resource
protection, and make recommendations for acquisition during post-disaster recovery.
7.5.11 The Consolidated City of Jacksonville/Duval County shall consider and implement
where appropriate the recommendations of the hazard mitigation annex of the local
Comprehensive Emergency Management Plan.
7.5.12 The Consolidated City of Jacksonville/Duval County shall prohibit the location of
development in areas within the CHHA which have sustained recurring hurricane-related
damage.
The Jacksonville Fire and Rescue Department standard operating procedures for mass
casualty incidents (# 212), railroad accidents (#214), Incident command system (#219),
hazardous materials (#230), bomb (#231), and civil disorder (#241), each address policies
that relate to the Comprehensive Emergency Management Plan and or the Emergency
Operations Center.
The Jacksonville Sheriff’s Office document titled the “Jacksonville Sheriff’s Office AllHazards Response Plan” addresses law enforcement policies that also relate to the
Comprehensive Emergency Management Plan in terms of emergency powers,
management Responses to Disasters, Command Centers, Communications, Aircraft
accidents, Hurricane Evacuation and Sheltering and Mass Fatality Incidents.
NOVEMBER 2010
182
Additionally, The Jacksonville Sheriff’s Office has developed a Terrorism/Weapons of Mass
Destruction Incident Protocol Guide which articulates actions needing coordination with
the actions prescribed in the Comprehensive Emergency Management Plan.
The JEA (public water, sewer and electric services independent authority) has a 2-volume
Emergency Plan Book that refers to interaction with the EOC/Area Command, CEMP in
terms of notification, response and recovery.
The City of Jacksonville/Duval County has entered into Mutual Aid & Disaster Aid
Agreements with the following:
1.
Statewide Mutual Aid Agreement
2.
Clay County
3.
St. Johns County
4.
Baker County
5.
Nassau County
6.
Jacksonville Naval Air Station
7.
Mayport Naval Station
8.
The American Red Cross
9.
The Salvation Army
ORDINANCES AND ADMINISTRATIVE RULES
The following laws, ordinances, and administrative rules apply to the City of
Jacksonville/Duval County emergency management activities:
State of Florida Statutes
Chapter 1, Definitions
Chapter 7, County Boundaries
Chapter 14, Title IV, Executive Branch Governor
Chapter 22, Emergency Continuity of Government
Chapter 23, Florida Statutes, as amended by Chapter 93-211, Laws of Florida
Chapter 30, Sheriffs
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183
Chapter 73, Eminent Domain
Chapter 74, Proceedings Supplemental to Eminent Domain
Chapter 125, County Government; Chapter 162, County or Municipal Code Enforcement;
Chapter 165, Title XII, Municipalities: Formation of Local Governments; Chapter 166,
Municipalities; and Chapter 553, Building Construction Standards.
Chapter 154, Public Health Facilities
Chapter 161, Beach and Shore Preservation; Part III, Coastal Zone Preservation.
Chapter 163, Intergovernmental Programs; Part I, Miscellaneous Programs
Chapter 166, Municipalities
Chapter 187, State Comprehensive Plan
Chapter 252, Emergency Management
Chapter 321, Highway Patrol
Chapter 380, Land and Water Development
Chapter 381, Title XXIX, Public Health
Chapter 401, Medical Communications and Transportation
Chapter 403, Environmental Control
Chapter 404, Radiation
Chapter 406, Medical Examiners
Chapter 409, Title XXX, Social Welfare
Chapter 427, Transportation Services
Chapter 768, Good Samaritan Act
Chapter 870, Affrays, Riots, Routs and Unlawful Assemblies.
Federal
Public Law 93-288, as amended, which provides authority for response assistance under
the Federal Response Plan, and which empowers the President to direct any federal
NOVEMBER 2010
184
agency to utilized its authorities and resources in support of state and local assistance
efforts.
Public Law 93-234, Flood Disaster Protection Act of 1973, as amended, provides insurance
coverage for all types of buildings.
Public Law 81-290, the Federal Civil Defense Act of 1950, as amended, provides a system
for joint capability building at the federal, state and local levels for all types of hazards.
Public Law 99-499, Superfund Amendments and Reauthorization Act of 1986, which
governs hazardous materials planning and right-to-know.
Public Law 101-615, Hazardous Materials Transportation Uniform Safety Act (HMTUSA),
which provides funding to improve capability to respond to hazardous materials incidents.
Public Law 95-510, Comprehensive Environmental Response, Compensation and Liability
Act of 1980 (CERCLA) as amended, which requires facilities to notify authorities of
accidental releases of hazardous materials.
Public Law 101-549, Clean Air Amendments of 1990, which provides for reductions in
pollutants.
Public Law 85- 256, Price-Anderson Ct, which provides for a system of compensating the
public the public for harm caused by a nuclear accident.
Public Law 84-99 (33 USC 701n), Flood Emergencies, authorizing an emergency fund for
flood emergency preparation, flood fighting and rescue operations, or repair and
restoration of flood control works threatened or destroyed by flood.
Public Law 91-671, Flood Stamp Act of 1964, in conjunction with section 412 of the Stafford
Act, relating to food stamp distributions after a major disaster.
Public Law 89-665 (16 USC 470 et sq), National Historic Preservation Act, relating to the
preservation of historic resources damaged as a result of disasters.
Stewart B. McKinney Homeless Assistance Act, 42 USC 11311-11352, Federal Emergency
Management and Shelter Program.
National Flood Insurance Act of 1968, 42 USC 4001 et.seq.
Administrative Rules, State of Florida
Florida Department of Community Affairs Administrative Rules 9G2, 6, 11, 12, 14, 16, 17, 19
and 20.
Florida Department of Community Affairs Administrative Rules 9J2 and 5
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185
Administrative Rules, Federal
CFR 44 Parts 59-76, National Flood Insurance Program and related programs
CFR 44 Part 13 (The Common Rule). Uniform Administrative Requirements for Grants and
Cooperative Agreements
CFR 44 Part 206, Federal Disaster Assistance for Disasters Declared after November 23, 1988
CFR 44 Part 10, Environmental Conditions
CFR 44 Part 14, Audits of State and Local Governments
Presidential Directives, Federal
Homeland Security Presidential Directive 5 (HSPD-5), which enhances the ability of the
United States to manage domestic incidents by establishing a single, comprehensive
national incident management system (NIMS).
Homeland Security Presidential Directive 8 (HSPD-8), establishes policies to strengthen the
preparedness of the United States to prevent and respond to threatened or actual
domestic terrorist attacks, major disasters, and other emergencies by requiring a national
domestic all-hazards preparedness goal, establishing mechanisms for improved delivery of
federal preparedness assistance to state and local governments, and outlining actions to
strengthen preparedness capabilities of federal, state, and local entities.
Duval County Ordinances
Duval County Comprehensive Management Plan, 1998 as amended.
Chapter 674, Ordinance Code (Disaster Preparedness and Civil Emergency), Sections
674.101, 674.103, 674-202, 674.203 and 674-205
Executive Order 2008-01
Declaration of a Local State of Emergency
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RECORD OF CHANGES OR REVISIONS
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Change or revision
Developed linked, detailed Table of Contents to facilitate location of
items
Developed linked, detailed List of Tables and Figures to facilitate location
of items
Updated Executive Summary
Section outlines the new structure for the CEMP, in detail
Updated ICP section to incorporate Functional ICPs (Ops, Planning and
Logistics Sections)
Added new section clarifying promulgation of the CEMP; outlining that
the only Basic Plan is approved by the City Council. Other portions of the
plan are not required to be approved by the Council.
Entire Situation portion of the CEMP was updated with current risk,
demographic and economic data and figures to the extent the data
were available. All figures were numbered to make it easier to reference
and locate within the section.
Hurricane hazard section was updated to include the concepts that the
City of Jacksonville/Duval County encourages “in-county” evacuation,
and that all planning is based on the policy that all evacuation activities
will cease at the arrival of tropical storm force winds.
Concept of Operations portion – added new section summarizing the
National Incident Management System (NIMS)
Added new section summarizing the Incident Command System (ICS)
Emergency Response Organization – deleted operations group activities
that were scaled specifically to hurricane watch and warning actions
(see “old CEMP” pp. 22-23) since the intent is to make the CEMP more allhazard. Hurricane watch and warning actions will be placed in the
Hurricane HSP.
Added expanded section on lead agencies; updating their role and
updating the matrix of responsibilities.
Added new section summarizing the new complexes and divisions.
Added a new section outlining the planning process in accordance with
ICS procedures.
Added new section outlining ICS planning process, including the Planning
“P.”
Added new section and figure outlining the resource ordering process of
the Logistics Section.
Added a section on Citizen Corps opportunities.
Reorganized the Recovery section into three functional subsections:
Damage Assessment, Public Assistance and Individual Assistance. Added
detail on specific public and individual assistance programs. Elaborated
on state and federal responsibilities for recovery activities.
Hazard mitigation introduction was updated to included risk and
vulnerability of community and critical infrastructure/key resources.
Pre/post disaster mitigation operations – added new sections summarizing
pre/post disaster mitigation activities and functions. We also included a
flow chart describing the LMS planning process.
Added post disaster mitigation process chart from FEMA.
7H
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Change or revision
Concept of Operations portion – elaborated on LMS process and
functional role of EPD coordinator, Duval Prepares Partnership, SEPPC,
mitigation civic groups.
Updatedmitigation organizational structure chart.
Date
6/15/06
Updated “Mitigation Assessment Team Matrix”
Added new section comprised of “structural” mitigation initiatives. These
initiatives are reflected on a new table inserted into plan
Added new section comprised of “non-structural” mitigation initiatives.
These initiatives are reflected on a new table inserted into plan
6/15/06
6/15/06
Updated section on Special Needs Registration.
Updated “Recommended Training” table.
HSPD-5 and HSPD-8 added to References and Authorities section.
2009 Changes or revisions
Updated Figure 1: CEMP Structure
Updated plan with Position Specific Guide description
Added municipalities to participating agencies list
Deleted bullet for “disaster planning quality process”
Updated Table 1: Saffir-Simpson scale
Updated Figure 3: Major Hurricanes thru 2008
Updated Figure 4: All Hurricanes thru 2008
Updated definition of the CHHA
Updated Figure 9: Hurricane Evacuation Zones
Deleted paragraph on Naval Sub – no longer relevant
Added information about Baldwin transportation routes and potential
Nuclear Carrier at Mayport
Updated Figure 10: Jacksonville Daily Temperatures and included
additional information on t-storms and tornadoes per NWS comments
and new data
Updated terrorism section with UASI designation based on risk.
Included information about H1N1 under disease and pandemic hazards
Updated Hazard Prioritization Process section
Updated population estimate for county
Updated Figure 12 and figure 13
Updated seasonal/tourist population figures
Updated Figure 14: Special needs population chart
Updated Figure 18: Map of mobile home parks
Updated Figure 19: Correctional facility population
Updated Shelter Map Figure 25
Updated Fire Station Map Figure 63
Updated Figure 29: Duval County Evacuation Routes
Incorporated a POD site location list
Updated Figure 31: COJ Org Chart
Updated Figure 32: EPD Org Chart
Updated Figure 33 EOC/Area Command Org Chart
Updated Figure 34: Lead Agency Matrix
Updated Branch/Group/Unit Names and descriptions
6/15/06
6/15/06
6/15/06
Date
6/8/09
6/24/09
6/24/09
6/24/09
6/1/09
6/3/09
6/3/09
6/24/09
6/3/09
6/1/09
6/24/09
NOVEMBER 2010
6/15/06
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6/22/09
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6/27/09
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Change or revision
Changed Reception Center Unit to Volunteer Reception Center Unit. In
addition, added new description for Resource Unit
Updated Figure 35: Complexes
Added additional verbiage to Logistics Section. Incorporated Supply Unit
information
Deleted Figure 38: Resource Ordering Process
Removed Eteam references and replaced with incident management
software
Updated Mutual aid process incorporating FDEM Constellation program
Added functions under Recovery Function
Added grant program to list of programs under Additional DisasterSpecific Grant Programs
Updated CRS Credit rating
Deleted Table 9: per recommendation of staff
Updated Mitigation section with new LMS Working Group membership
Better clarified the role of the Duval Prepares and SEPPC in mitigation
activities
Updated Figure 41: Mitigation Org Structure
Deleted Table 10: Mitigation Team Matrix per recommendation of staff
Updated Table 11: Structural Mitigation Initiatives
Updated Table 12: Non-Structural Mitigation Initiatives
Updated Figure 42 and Figure 43: evacuation route maps
Updated new Table 11 Recommended Training
Change “Operations Group” to “EOC Management Team”
2010 Changes or revisions
Changes “%” to “percent” in all instances throughout the entire
document.
Date changed in footer from “June 2009” to “November 2010”
throughout the entire document.
Minor formatting (e.g. font changes, bullets) and spacing changes
throughout the entire document
Removed “June 2009, Adopted by SEPPC September 2, 2009, Adopted
by City Council January 12, 2010” and replaced with “November 2010”
Changed “515 No. Julia St.” to read “515 N. Julia St.”
Removed Civil Disturbances and Coastal Oil Spills
Removed Sinkholes, Exotic Pests & Diseases, Disease & Pandemic
Outbreaks, Special Events, Mass Immigration, Major Transportation
Incidents and Commercial Nuclear Power Plant Incidents.
Replaced section titled “Hazard Prioritization Process” with same-titled
section from the 2010 Local Mitigation Strategy (pg. 110).
Added “This same process was used for the November 2010 CEMP
update” to the end of the section titled “Hazard Prioritization Process”.
Removed Table 2 and replaced with Table 11 from 2010 Local Mitigation
Strategy (pg. 94).
Changed Table 2 title from “Table 2: Duval County Hazard Analysis” to
now read “Table 2: Duval County Hazard Analysis / Vulnerability,
Probability, Risk Assessment Table (1998-2008) – Vulnerability to Hazard by
Community”.
NOVEMBER 2010
Date
6/7/09
6/8/09
6/7/09
6/7/09
6/8/09
6/8/09
6/24/09
6/24/09
6/24/09
6/3/09
6/8/09
6/24/09
6/3/09
6/3/09
6/24/09
6/24/09
6/26/09
6/26/09
6/30/09
Date
11/30/10
11/30/10
11/30/10
11/30/10
11/30/10
11/30/10
11/30/10
11/30/10
11/30/10
11/30/10
11/30/10
190
Page
36
Change or revision
Added table titled “Vulnerability, Probability, Risk Assessment Table (19982008) – Vulnerability to Hazard by Community” from 2010 Local Mitigation
Strategy (pg. 113, Table 19) and description of categories.
NOVEMBER 2010
Date
11/30/10
191
DISTRIBUTION LIST
Once approved, a copy of this CEMP will be distributed to each of the following
individuals, entities or lead agency representatives (list subject to change):
•
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•
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•
•
•
•
•
•
•
•
•
•
•
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•
American Red Cross, Northeast Florida Chapter, CEO
Association of Contingency Planners, Northeast Florida Chapter
Atlantic Beach, Mayor of
Baldwin, Mayor of
Baptist Medical Center
BellSouth
Chief Judge, Circuit Court
City Council President
Clerk of Circuit Court
Duval County Health Department, Director
Duval County Property Appraiser
Duval County School Board, Chairperson
Duval Delegation
Florida Air National Guard
Florida Division of Emergency Management - Region 3 Coordinator
Jacksonville Airport Authority
Jacksonville Animal Care & Protective Services Division
Jacksonville Beach, Mayor of
Jacksonville Central Operations Department
Jacksonville Chamber of Commerce
Jacksonville Community Council, Inc., Exec. Director
Jacksonville Disabled Services Division
Jacksonville Economic Development Commission
Jacksonville Environmental & Compliance Department
Jacksonville Finance Department
Jacksonville General Counsel
Jacksonville Housing Authority
Jacksonville Humane Society
Jacksonville Mayor’s Administration, Press Secretary
Jacksonville Planning & Development Department
Jacksonville Port Authority
Jacksonville Public Information Division - City Link
Jacksonville Recreation & Community Services Department
Jacksonville Seaport Authority
Jacksonville Sheriff's Office
NOVEMBER 2010
192
•
•
•
•
•
•
•
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•
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JEA
Mayor, Consolidated City of Jacksonville/Duval County
Memorial Hospital
Navy Region Southeast
Neptune Beach, Mayor of
Northeast Florida Regional Council
Northeast Florida Veteran’s Council
Second Harvest Food Bank/Lutheran Social Services
Shands Medical Center
St. Luke’s Medical Center
St. Vincent’s Medical Center
Supervisor of Elections
Tax Collector
The Salvation Army
U.S. Naval Air Station Jacksonville - Regional Operations Center
U.S. Naval Air Station – Emergency Management
U.S. Naval Station Mayport – Emergency Management
Hands On Jacksonville
NOVEMBER 2010
193
ATTACHMENT 1: ORDINANCE CODE, CHAPTER 674
ORDINANCE CODE OF THE CITY OF JACKSONVILLE, CHAPTER 674, DISASTER PREPAREDNESS
AND CIVIL EMERGENCY
PART 1. GENERAL PROVISIONS
Sec. 674.101. Declaration of policy.
Because of the existing and continuing possibility of the occurrence of disasters or
emergencies of unprecedented size and destructiveness resulting from enemy attack,
sabotage, terrorism or other hostile action or from natural or man-made causes; and
because of the existing and continuing possibility of the occurrence of disasters or
emergencies of a localized nature within the City but involving the likelihood of imminent
and real danger to property and the lives of the people of the locality; and in order to
ensure that preparations of the City will be adequate to deal with, reduce vulnerability to
and recover from these disasters and emergencies, generally to provide for the common
defense and protect the public peace, health and safety, and to preserve the lives and
property of the people of the City; the Council finds and declares it necessary:
(a) To create and maintain a local disaster preparedness agency in the City and to
authorize cooperation with the federal and state governments, other local disaster
preparedness agencies, and other local groups and individuals.
(b) To provide for the exercise of the emergency powers conferred by F.S. Chs. 252 and
870.
(c) To provide the means to assist in the prevention of disasters or emergencies caused or
aggravated by inadequate planning for and regulation of public and private facilities
and land use.
(d) To authorize the appropriate officials of the City to deal with routs, riots, riotous
assemblies, overt acts of violence or the imminent threat of any of these.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1; Ord. 2001-1310-E, § 1)
Note: Former § 430.101.
Sec. 674.102. Reserved.
Editor's note: The provisions of former § 674.102, relative to legislative authority, were
deleted as part of the Super Supplement to the Code. Former § 674.102 derived from Ord.
79-1242-665, § 2; Ord. 83-591-400, § 1.
Sec. 674.103. Definitions.
In this Chapter, unless the context otherwise requires:
(a) Emergency preparedness means the preparation for and the carrying out of all
emergency responsibilities and functions other than those for which military forces or state
agencies are primarily responsible, to prevent, minimize and repair injury and damage
resulting from the occurrence or imminent threat of widespread or severe damage, injury
or loss of life or property resulting from disasters or emergencies.
(b) Chief means the Chief, Emergency Preparedness Division, as provided in Part 6,
Chapter 31, Ordinance Code. For purposes of this ordinance the Chief shall also be the
NOVEMBER 2010
194
"director" of a County emergency preparedness management agency, as contemplated
in F.S. § 252.38(1)(b).
(c) Jacksonville Security Coordinator means an individual selected by the Mayor and
designated, in writing, who shall be an Assistant to the Mayor for City Security,
participating at the Mayor's staff level, and who shall be the individual responsible for
coordinating and making recommendations to the Mayor for all security and emergency
preparedness issues, preparing and maintaining security emergency preparedness plans,
and who is directly responsible for coordinating all emergency related communications
among members of the Planning Council during times of disaster or emergency.
(d) Disaster means the occurrence or imminent threat of widespread or severe damage,
injury or loss of life or property resulting from any natural or man-made cause, including
enemy attack, sabotage, terrorism or other hostile military or paramilitary action, fire,
flood, earthquake, windstorm, wave action, volcanic activity, explosion or accident
involving radiation by-products.
(e) Division means the Emergency Preparedness Division of the Fire and Rescue
Department.
(f) Emergency means:
(1) The occurrence or imminent threat of localized damage, injury or loss of life or
property resulting from a natural or man-made cause.
(2) The occurrence or imminent threat of riot, rout, riotous assembly or overt acts of
violence disturbing the public peace or safety.
(g) Planning Council means the Emergency Preparedness Planning Council.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1; Ord. 95-1272-768, § 4; Ord. 2001-1310-E, § 1)
Sec. 674.104. Supremacy of Chapter, rules, etc.
Whenever the provisions of this Chapter or of any part of this Chapter are being exercised,
they shall be supreme and shall supersede any other provisions of law inconsistent with the
exercise of these provisions. Rules, regulations and orders issued pursuant to the authority
contained in this Chapter shall, during the time that they are actually being used or
executed and to the extent of any conflict, supersede any other rules, regulations and
orders with which they may be in conflict. This Chapter being intended to secure to the
government the emergency powers and authority required to handle a disaster or
emergency, it shall take precedence over any law, rule, regulation or order that may
interfere with its execution or hinder the ability of City officials and employees to exercise
its emergency powers.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1)
Sec. 674.105. Uniformity with state and federal actions.
In order to attain uniformity in measures taken to aid emergency preparedness or to quell
civil emergencies, all action taken under this Chapter and all rules, regulations and orders
made or issued with due consideration for the orders, rules, regulations, actions,
recommendations and requests of state and federal authorities relevant thereto and, to
the extent permitted by law, shall be consistent with those orders, rules, regulations,
actions, recommendations and requests.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1; Ord. 95-1272-768, § 4)
NOVEMBER 2010
195
PART 2. SECURITY, DISASTER AND EMERGENCY PREPAREDNESS
Sec. 674.201. Territorial applicability of part.
This Part shall be applicable throughout the General Services District, as authorized and
required by F.S. § 252.38(1). Nothing in this Part shall prohibit or prevent the government of
the Second, Third, Fourth or Fifth Urban Services Districts from establishing a local disaster
preparedness agency within the district, but that agency shall be subject to the provisions
of this Part and shall be required to coordinate its efforts through the Division and to
cooperate with the Division and observe the rules and orders made and issued by the
Chief that apply to or affect the agency and the Urban Services District.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1; Ord. 95-1272-768, § 4)
Sec. 674.202. Security and Emergency Preparedness Planning Council.
(a) There is created the Security and Emergency Preparedness Planning Council which
shall consist of the Mayor as chairman, the Jacksonville Security Coordinator as vice chair,
the Director of Fire and Rescue, the Chief of the Emergency Preparedness Division, the
President of the City Council, or designee, the Chair of the Duval County Legislative
Delegation, or designee, the Director of Regulatory and Environmental Services, the Public
Health Officer, the Chief Administrative Officer, the Chief of Staff, the Director of Public
Works, the Sheriff, the Chief Judge of the Fourth Judicial Circuit, the Managing
Director/Chief Executive Officer of the JEA, the Managing Director/Chief Executive Officer
of the Jacksonville Seaport Authority, the Managing Director/Chief Executive Officer of the
Jacksonville Airport Authority, the Executive Director of the Jacksonville Transportation
Authority, the Chairperson or designee of the Duval County School Board, representatives
of each military group in Jacksonville, representatives of all major hospitals in the City
(having 300 or more beds) and a number of other representatives, not to exceed 11 in
number, from civic, business, industry, labor, veterans, professional or other groups and
from the federal government, to be appointed by the Mayor from time to time.
(b) The Planning Council shall recommend an emergency preparedness plan to the
Council as provided in Section 674.205 and shall review and comment to the Council on
all mutual aid plans and interjurisdictional agreements which are proposed for approval
by the Council to implement the emergency preparedness plan. The Planning Council
shall also conduct a continuing study of the need for amendments to and improvements
in the emergency preparedness plan and recommend necessary changes to the Council
from time to time.
(c) The Planning Council shall meet at the call of the chairman or vice-chairman. A
majority of the members shall constitute a quorum to do business, and for this purpose a
member who is unable to attend in person may designate one person as his alternate,
who is authorized to represent his principal and may vote on all matters before the
Planning Council. The Planning Council is authorized to adopt, amend and repeal rules for
the conduct of its business, including a method of obtaining public comment on a
proposed emergency preparedness plan and changes to such plan.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1; Ord. 94-1272-768, § 4; Ord. 97-1094-E, § 1)
Sec. 674.203. Emergency Preparedness organization.
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196
(a) Authorization. The Council hereby authorizes the emergency preparedness
organization established in this Section. Whenever the Mayor activates the emergency
preparedness organization, the elements and units created by this Section shall be formed
and function as provided in this Section and shall proceed to execute the emergency
preparedness plan, or so much thereof as is necessary, or to practice its execution. The
Mayor, acting through the Chief, shall schedule and conduct mock or practice disasters
with sufficient frequency that the personnel involved in the emergency preparedness
organization become familiar with their duties and functions in the emergency
preparedness plan.
(b) Structure. The emergency preparedness organization of the City shall be organized
as follows:
(1) Head of emergency preparedness organization. The head of the emergency
preparedness organization shall be the Mayor, assisted by the Jacksonville Security
Coordinator, an Executive Group and an Operations Group. Control and direction of the
emergency preparedness organization shall be vested in the Mayor and he shall be
responsible for the prompt, efficient execution of the emergency preparedness plan, or so
much thereof as is necessary to:
(i) Reduce the vulnerability of the people and of the City to damage, injury and loss of
life and property.
(ii) Prepare for and execute rescue, care and treatment of persons victimized or
threatened by disaster.
(iii) Provide a setting conducive to the rapid and orderly start of restoration and
rehabilitation of persons and property affected by a disaster.
(2) Executive Group. There is an Executive Group, under the coordination of the Mayor,
which is comprised of the Jacksonville Security Coordinator and appropriate department
heads and other key individuals identified by the Mayor. The Executive Group will carry out
the following responsibilities:
(i) Provides direction and control of the emergency preparedness organization.
(ii) Issues Executive Orders, proclamations and regulations. Amends and/or rescinds
directives in light of fulfilling responsibilities.
(iii) Provides for an orderly transition to normalcy following an emergency.
(iv) Initiates action to operationalize the Emergency Operation Center.
(v) Formulates responses to crisis situations.
(vi) Develops and issues emergency policy decisions.
(vii) Maintains public information channels with appropriate and timely information
releases.
(viii) Addresses security of all consolidated government and independent agency
property including issuing badges and maintaining a log-in/log-out book at City Hall at St.
James, while ensuring public access to public buildings, personnel and services.
(ix) Develops mail-handling policies and training.
(x) Develops evacuation procedures including written directives for securing City-owned
equipment for all City-owned properties.
(xi) Establishes mandatory security measures to be utilized by the City's Information
Technologies Division (ITD) including, but not limited to, providing security of the physical
location as well as securing all information technology.
(xii) Develops and maintains a security evaluation of City Hall at St. James in addition to
all other City-owned buildings with reports of said evaluations to be provided to City
Council on an annual basis or upon request of the Council.
NOVEMBER 2010
197
(xiii) Ensures that ITD will create and maintain a website to provide information to the
public including information for family and community security and emergency
preparedness and provide for updates during emergencies.
(3) Operations Group. There is an Operations Group, under the Executive Group, which is
headed by the Jacksonville Security Coordinator and includes both operational and
services staffing. Primary responsibilities assigned to the group include the following:
(i) Ensures the implementation of directives issued by the Executive Group.
(ii) Keeps the Executive Group informed about the response to the needs created by the
emergency situation.
(iii) Maintains upward, downward and lateral communication within the emergency
operational structure.
(iv) Promotes coordination and cooperation among public and private sector
participants.
(v) Coordinates inter- and intra-governmental activities including the activities, services,
and programs for emergency management within the County and maintains liaison with
other federal, state and local emergency management agencies.
(vi) Provides fire and rescue services designed to protect life and property, ensure fire
protection, respond to emergency medical, search and rescue services, and utilize
volunteer fire and rescue manpower to augment regular full-time personnel.
(vii) Provides law enforcement services designed to protect life and property, ensure the
management, operation and control of police and traffic safety, execute traffic control
procedures and establishes/maintains open routes for evacuation, movement of response
efforts, control of re-entry to affected areas, enhance a smooth transition when activating
the Emergency Operations Center, and utilize volunteer police manpower to supplement
the regular work force.
(viii) Ensures adequate health and medical services by establishing first aid, ambulance
services, emergency hospital systems, casualty services, distribution and collection of
health supplies, maintaining blood services, providing laboratory services, morgue and
nutrition services, maintaining and restoring water sanitation, proper handling of medical
records and coordinating the administration of medical services, coordination of the
utilization of health personnel, assisting in the registration and shelter for handicapped
persons, and assisting in damage assessment during recovery.
(ix) Coordinate with the American Red Cross in identifying, establishing and operating
emergency shelter facilities capable of housing and mass feeding of affected persons,
providing emergency clothing and necessary sundries, coordinating with health and
medical services in identifying individuals requiring medical attention, assisting federal and
state officials in the preparation and operation of Disaster Application Centers, and
providing help in damage assessment for residential units.
(x) Maintain contact between government and various private, commercial, and
industrial organizations involved in emergency operations, provide operational supply
functions that include manpower, transportation, telecommunications, fuel, equipment,
purchasing, conduct appropriate administrative and financial transactions required and
provide assistance in damage assessment.
(xi) Maintain and/or effect necessary repairs to establish safe water operations,
coordinations with the Public Works Department in maintaining the safe disposal of
wastewater and sanitation operations, assists in clearing debris, evaluate, repair and
construct essential facilities and submit timely damage and repairs assessment reports,
NOVEMBER 2010
198
maintain and effect the distribution of supplies, tools, and expertise to facilitate safe
operations.
(xii) Coordinate debris removal with the JEA to maintain passable roadways, and
endeavor to maintain integrity of water treatment plants and wastewater treatment
plants and work with the Public Works Department to evaluate and coordinate repair of
roadways and drainage systems and submit timely reports of damage assessments and
repairs, maintain and effect the distribution of supplies, tools, and expertise to facilitate
safe roadway movement.
(xiii) Coordinate electrical requirements during the emergency situation, assist in
damage/repair assessments and submit timely reports.
(xiv) Assists in requesting state assistance or invoice emergency-related mutual aid
assistance upon declaration of a state of emergency.
(xv) Initiates and coordinates the activation of the Emergency Operations Center.
(xvi) Coordinates evacuation of persons throughout the County (including those listed in
the registry of disabled citizens.)
(xvii) Coordinates damage assessments during the recovery phase.
(xviii) Perform any additional functional requirements, determined by the Mayor to be
necessary in responding to or in restoring normal conditions within the City.
(c) Manning. The manning levels and personnel distribution of the emergency
preparedness organization shall be specified in the emergency preparedness plan. To the
greatest extent possible, City personnel, including appointed officials and other
employees, shall be used to provide a trained, reserve cadre of emergency preparedness
personnel, and the assignment of a City employee to a specific position in the emergency
preparedness organization shall be considered, during the time that the emergency
preparedness organization is activated by the Mayor, as temporary additional duty and
not as an assignment or transfer to another public position. Volunteer and auxiliary
emergency preparedness personnel shall also be assigned to positions in the emergency
preparedness organization, but such assignment shall not ipso facto make the person
assigned a public employee nor entitle him to any powers, duties, rights, privileges or
immunities except as provided or authorized by this Chapter.
(d) Activation; inactive status. The emergency preparedness organization being a
temporary reorganization of the government to meet the extreme requirements of a
disaster, it shall be activated only by order of the Mayor during an actual, impending,
mock or practice disaster and at other times as requested by the Governor or to fulfill a
mutual aid or interjurisdictional agreement approved by the Council as provided in
Section 674.205. The Mayor may activate part or all of the emergency preparedness
organization, may expand his order activating part of the emergency preparedness
organization to include other parts, and may order part or all of the activated emergency
preparedness organization to be deactivated when it is no longer needed to meet the
exigencies of the disaster. During the time when the emergency preparedness
organization is in an inactive status, the Chief and the Division shall be responsible for
maintaining the records, files and other papers pertaining to the various services of the
emergency preparedness organization and for keeping and, as necessary, revising an
accurate, adequate record of personnel assignments to the emergency preparedness
positions authorized by the emergency preparedness plan; and the Division shall provide
the headquarters services for the emergency preparedness organization and perform
such functions of the emergency preparedness organization as are authorized by the
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199
emergency preparedness plan to be performed while the emergency preparedness
organization is in an inactive status.
(Ord. 79-1242-665, § 2; Ord. 81-808-365, § 1; Ord. 83-591-400, § 1; Ord. 94-1272-768, § 4; Ord.
97-229-E, § 26; Ord. 2001-1310-E, § 1)
Sec. 674.204. Volunteer and auxiliary emergency preparedness personnel.
The recruitment, training and use of individuals, not employees of the City, as volunteer
and auxiliary emergency preparedness personnel is authorized, and the Mayor may
recruit, train and assign these personnel in accordance with the emergency preparedness
plan and as required by the exigencies of a disaster when these personnel are used.
Volunteer and auxiliary personnel shall receive training adequate to allow them to
perform their assigned duties, and for this purpose the Mayor may make use of private
volunteer organizations that provide instruction or instructors of on-the-job training with or
using City employees and of formal training in the Police Academy, Firefighters School or
other schools and classes; provided, that no individual receiving instruction as a volunteer
or auxiliary emergency preparedness worker shall be entitled to nor receive any benefits,
compensation or status as a public employee.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1; Ord. 94-1272-768, § 4)
Sec. 674.205. Emergency preparedness plan.
The Emergency Preparedness Planning Council, through the Mayor, shall propose to the
Council, from time to time, an emergency preparedness plan and necessary changes
thereto, this plan to be integrated into and coordinated with the emergency
preparedness and survival plans and programs of the state and federal governments in
addition to those items included in Section 674.203. Upon adoption by resolution of the
Council, the emergency preparedness plan shall become effective and shall govern the
activities, duties and functions of the emergency preparedness organization authorized by
Section 674.203; and no change to the emergency preparedness plan shall become
effective unless and until adopted by resolution of the Council. The emergency
preparedness plan shall be a comprehensive plan for the emergency preparedness of the
City and the Emergency Preparedness Planning Council is authorized to present the plan
in stages or phases for adoption by the Council. All mutual aid and interjurisdictional
assistance agreements shall be made in conformity with and shall be subject to the
requirements of the emergency preparedness plan and the emergency preparedness
plan shall provide for cooperation with the adjoining counties, the sharing of emergency
preparedness personnel and resources and the creation and mobilization of emergency
preparedness support forces on an interjurisdictional basis; but no mutual aid plan or
interjurisdictional agreement, or any change thereto, shall become effective until
approved by the Council. To facilitate the development of an emergency preparedness
plan for the General Services District, as required by F.S. § 252.38(1)(a), all City
departments, authorities, independent agencies and constitutional officers shall prepare
and periodically revise emergency preparedness contingency plans pursuant to
directions, guidelines and assistance from the Division. The Division shall ensure that such
contingency plans are consistent with and made part of the City's emergency
preparedness plan.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1; Ord. 94-1272-768, § 4; Ord. 2001-1310-E, § 1)
NOVEMBER 2010
200
Sec. 674.206. Disaster emergencies.
(a) The Mayor is responsible for meeting the dangers presented to the City and its people
by a disaster. The Mayor may issue executive orders, proclamations and regulations and
amend or rescind them in the fulfillment of this responsibility, and these executive orders,
proclamations and regulations shall have the force and effect of law during the period for
which they are effective. During the continuance of a state of disaster emergency, the
Mayor is commander-in-chief of the emergency preparedness forces available for
emergency duty. To the greatest extent possible, the Mayor shall delegate or assign
command authority by prior arrangement embodied in the emergency preparedness
plan or in appropriate executive orders or regulations, but this shall not restrict his authority
to do so by orders issued at the time of and during the disaster emergency.
(b) A disaster emergency shall be declared by proclamation of the Mayor if he finds that
a disaster has occurred or that the occurrence or the threat thereof is imminent. The state
of disaster emergency shall continue until the Mayor finds that the threat or danger has
been dealt with to the extent that the emergency conditions no longer exist and he
terminates the state of disaster emergency by proclamation; but no state of disaster
emergency may continue for longer than 30 days unless renewed by the Mayor. At the
same time that the state of disaster emergency is declared, the Mayor shall convene the
Council in special meeting, at which he shall report to the Council all the facts and
circumstances concerning the disaster and his recommendations in connection therewith.
The Council by resolution may terminate a state of disaster emergency at any time,
whereupon the Mayor shall issue a proclamation ending the state of disaster emergency.
A proclamation issued under this subsection shall indicate the nature of the disaster, the
area or areas of the City threatened by it, and the conditions which have brought it about
or which make possible the termination of the state of disaster emergency. A
proclamation issued under this subsection shall be promptly disseminated by means
calculated to bring it to the attention of the general public and, unless the circumstances
attendant upon the disaster prevent or impede, it shall be promptly filed with the Council
Secretary.
(c) Whenever a mock or practice disaster alert is to be called, for the purpose of training
and exercising part or all of the emergency preparedness organization, the proclamation
shall clearly state that a mock or practice alert is being called and that no state of disaster
emergency actually exists. The Mayor is not required to convene the Council in special
meeting for a mock or practice disaster alert, and any proclamations, orders and
regulations issued by the Mayor during a mock or practice disaster alert shall not carry the
force of law.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1; Ord. 95-1272-768, § 4)
Sec. 674.207. Emergency powers of Mayor.
In addition to all other powers conferred upon the Mayor by law, during a state of disaster
emergency he may:
(a) Suspend the provisions of any ordinance prescribing procedures for the conduct of
City business or the rules, regulations or orders of any City agency, if strict compliance with
the ordinance, rule, regulation or order would in any way prevent, hinder or delay
necessary action in coping with the disaster.
NOVEMBER 2010
201
(b) Utilize all available resources of the City government as reasonably necessary to cope
with the disaster.
(c) Transfer the direction, personnel or functions of City agencies, or units thereof, for the
purpose of performing or facilitating emergency services.
(d) Request the assistance and cooperation of the independent agencies, or such of
them as are reasonably necessary to implement the emergency preparedness plan, and,
in the event that an independent agency fails or refuses to provide the requested
assistance and cooperation or that there is no one available to order such assistance and
cooperation, commandeer or utilize the independent agency's personnel and equipment
as is reasonably necessary to cope with the disaster.
(e) Subject to the provisions of Section 674.211, commandeer or utilize any private
property if he finds this necessary to cope with the disaster.
(f) Direct and compel by any necessary and reasonable force the evacuation of all or
part of the population from a stricken or threatened area within the City if he deems this
action necessary for the preservation of life or other disaster mitigation, response or
recovery.
(g) Prescribe routes, modes of transportation and destinations in connection with an
evacuation.
(h) Control ingress to and egress from a disaster area, the movement of persons within
the area and the occupancy of premises therein.
(i) Suspend or limit the sale, dispensing or transportation of alcoholic beverages, firearms,
explosive and combustibles.
(j) Make provision for the availability and use of temporary emergency housing.
(k) Take or direct measures for limiting or suspending lighting devices and appliances, gas
and water mains, electric power distribution and other utility services in the general public
interest.
(l) Take or direct measures concerning the conduct of civilians, the movement and
cessation of movement of pedestrian and vehicular traffic prior to, during and subsequent
to drills and actual or threatened disasters, the calling of public meetings and gatherings
and the evacuation and reception of the civilian population, as provided in the
emergency preparedness plan.
(m) Authorize the use of forces already activated or mobilized to assist private citizens of
the City in cleanup and recovery operations during a disaster when permission to enter
onto or into private property has been obtained from the property owner.
(n) Enforce and utilize the provisions of mutual aid plans and interjurisdictional
agreements and, in connection therewith:
(1) Organize and dispatch emergency preparedness support forces, including personnel,
supplies and equipment as necessary, to other counties, transfer operational command of
these forces to the other jurisdiction and resume operational command of these forces
when they are no longer needed outside the City.
(2) Request and assume operational command of emergency preparedness support
forces, including personnel, supplies and equipment as necessary, dispatched from other
jurisdictions into the City and transfer operational command of these forces to the original
jurisdiction when they are no longer needed in the City.
(3) Loan, lease or transfer, on such terms and conditions as he deems necessary to
promote the public welfare and protect the interests of the City, any property of the City
government required or useful to effectuate the mutual aid plan or interjurisdictional
agreement, and receive and utilize any property of another jurisdiction by loan, lease or
NOVEMBER 2010
202
transfer on such terms and conditions as he deems advisable, pursuant to a mutual aid
plan or interjurisdictional agreement.
(o) Waive procedures and formalities otherwise required by the Charter or by law
pertaining to:
(1) The performance of public work.
(2) The entering into of contracts.
(3) The incurring of obligations.
(4) The employment of permanent and temporary workers.
(5) The utilization of volunteer workers.
(6) The rental of equipment.
(7) The purchase and distribution, with or without compensation, of supplies, materials
and facilities.
(8) The appropriation and expenditure of public funds.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1; Ord. 95-1272-768, § 4)
Sec. 674.208. Oath.
Each person, whether he is a public employee, a volunteer worker or an auxiliary worker,
who is assigned to a specific position in the emergency preparedness plan shall, before
entering upon his duties thereunder, take the following oath in writing before a person
authorized by law to administer oaths:
I,[name] , do solemnly swear (or affirm) that I will support and defend the Constitution of
the United States and of the State of Florida against all enemies, foreign and domestic;
that I will bear true faith and allegiance to the same; that I take this obligation freely,
without any mental reservation or purpose of evasion; and that I will well and faithfully
discharge the duties upon which I am about to enter.
The subscribed, sworn oath shall be filed in the records of the Division.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1; Ord. 95-1272-768, § 4)
Sec. 674.209. Local services; compensation, reimbursement.
(a) Whenever City employees are rendering aid outside the City pursuant to a mutual aid
plan or interjurisdictional agreement, they shall have the same powers, duties, rights,
privileges and immunities as if they were performing their duties within the City limits.
Whenever volunteer or auxiliary emergency preparedness personnel are detailed to an
emergency disaster support force outside the City, they shall have the same powers,
duties and immunities as if they were performing their emergency preparedness duties
within the City limits.
(b) The City shall be liable for any loss or damage to any equipment provided by other
jurisdictions and used by or in the City pursuant to a mutual aid plan or interjurisdictional
agreement and shall pay any expense incurred in the operation and maintenance of the
equipment; provided, that no claim by another jurisdiction shall be allowed unless, within
60 days after the loss, damage or expense is sustained or incurred an itemized notice of
the claim, under oath, is served by mail or otherwise upon the Director of Administration
and Finance. The City shall also reimburse another jurisdiction providing aid to the City for
compensation (including compensation due to personal injury or death) paid to
employees furnished as a part of the aid and shall defray the actual traveling and
maintenance expenses of the employees while they are rendering aid, to the extent that
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203
the City does not provide transportation, meals and housing to the employees free of
charge. The term employee, as used in this subsection, shall mean and include paid,
volunteer and auxiliary employees and emergency preparedness workers actually
provided by the other jurisdiction to aid the City.
(c) In the case of City equipment provided to and used in another jurisdiction, loss or
damage sustained and operation and maintenance expense incurred as a result of that
use shall be itemized in a claim for compensation from the other jurisdiction, which shall be
made under oath by the Chief from documentation provided by the appropriate City
employees usually responsible for such equipment. The claim shall be served by mail or
otherwise upon the chief fiscal officer of the other jurisdiction, and a copy shall be
provided to the Director of Administration and Finance and the Council Auditor. The Chief
shall report to the Mayor each instance of damage, loss or expense that is not reported to
him within 60 days after it is sustained or incurred. In the case of emergency preparedness
personnel furnished by the City to another jurisdiction, the administration and training
service shall keep a record of the compensation (including compensation due to personal
injury or death) paid to public employees who are a part of the emergency preparedness
personnel so furnished and also a record of the actual traveling and maintenance
expenses of all emergency preparedness personnel so furnished, while they are rendering
aid to the other jurisdiction, to the extent that the other jurisdiction does not provide
transportation, meals and housing to such emergency preparedness personnel free of
charge. The Chief shall submit an itemized statement of these compensation, traveling
and maintenance expenses to the other jurisdiction on whose behalf they were incurred
as directed by the Mayor and furnish a copy of such statement to the Director of
Administration and Finance and Council Auditor.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1; Ord. 94-1272-768, § 4)
Sec. 674.210. Limitations upon liability.
No officer, employee or agent of the City shall be held personally liable in tort for any
injuries or damages suffered as a result of any act, event or omission of activity in the
scope of his duties under this Part, or specified by the emergency preparedness plan, or
assigned or ordered by the Mayor or under his direction, unless the officer, employee or
agent acted in bad faith or with malicious purpose or in a manner exhibiting wanton and
willful disregard of human rights, safety or property.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1; Ord. 95-1272-768, § 4)
Sec. 674.211. Compensation.
(a) Compensation for services or for the taking or use of private property shall be owed
by the City only to the extent that:
(1) A claimant may not be deemed to have volunteered his services or property without
compensation; and
(2) The taking or use exceeds the legal responsibility of the claimant to render the
services or make the property available.
Compensation owed for personal services shall be only such as the Council may have
fixed and for which funds shall have been specifically appropriated. Compensation for
private property shall be owed only if the property was commandeered or otherwise used
in coping with a disaster and its use or destruction was ordered by the Mayor or a member
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204
of the disaster emergency forces of the City. A person claiming compensation for the use,
damage, loss or destruction of private property or for services shall file a claim as provided
in Chapter 112.
(b) Nothing in this Section applies to or authorizes compensation for the damaging or
destruction of standing timber or other property in order to provide a firebreak or damage
resulting from the release of waters or the breach of impoundments in order to reduce
pressure or other danger from actual or threatened flood. Nothing in this Section shall be
construed as authorizing compensation to be paid beyond the amount of funds available
for this compensation nor except to the extent that the Legislature may have waived the
sovereign immunity of the City.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1)
Sec. 674.212. Liability of private persons.
A person owning or controlling real estate or other premises who voluntarily and without
compensation grants a license or privilege or otherwise permits the designation or use of
the whole or any part of the real estate or premises for the purpose of sheltering persons
during an actual, impending, mock or practice disaster, together with his successor in
interest, if any, shall not be liable for the death of or injury to any person on or about the
real estate or premises during an actual, impending, mock orpractice disaster or for loss or
damage to the property of the person, solely by reason or as a result of the license,
privilege, designation or use, unless gross negligence or willful and wanton conduct of the
person owning or controlling the real estate or premises or of his successor in interest shall
be the proximate cause of the death, injury, loss or damage.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1)
Sec. 674.213. Authority to accept services, gifts, etc.
(a) Whenever the state or federal government offers to the City services, equipment,
supplies, materials or funds, by way of gift, grant or loan, for the purpose of emergency
preparedness, the Mayor may accept the offer on behalf of the City and utilize the
services, equipment, supplies, materials or funds subject to the terms of the offer and the
rules and regulations, if any, of the agency making the offer. Funds accepted by the
Mayor may be expended only after appropriation by the Council.
(b) Whenever a person offers to the City services, equipment, supplies, materials or funds,
by way of gift, grant or loans, for the purpose of emergency preparedness, the Mayor,
acting through the Chief, may accept the offer on behalf of the City and utilize the
services, equipment, supplies, materials or funds subject to the terms of the offer. Funds
accepted by the Chief may be expended only after appropriation by the Council.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1; Ord. 95-1272-768, § 4)
Sec. 674.214. Disaster prevention.
(a) In addition to disaster prevention measures included in the emergency preparedness
plan, the Emergency Preparedness Planning Council shall consider, on a continuing basis,
steps that could be taken to prevent or reduce the harmful consequences of disasters. At
its direction and pursuant to any other competence and authority they have, City officials
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205
and agencies charged with responsibilities in connection with floodplain management,
stream encroachment and water flow, water conservation, fire prevention and control, air
and water quality, public works, land use and land-use planning, and construction
standards shall make studies of disaster-prevention-related matters. The Emergency
Preparedness Planning Council, from time to time, shall make such recommendations to
the Council and other appropriate public and private entities as may facilitate measures
for prevention or reduction of the harmful consequences of disasters.
(b) If the Emergency Preparedness Planning Council or the Division determines, on the
basis of studies or other competent evidence, that an area of the City is susceptible to a
disaster of catastrophic proportions without adequate warning, that existing building
standards and land-use controls in that area are inadequate and could contribute
substantially to the magnitude of a disaster and that changes in zoning or other land-use
regulations or building requirements are essential in order to prevent or reduce the harmful
consequences of a disaster, the Emergency Preparedness Planning Council, on the basis
of its own determination or on the determination of the Division, shall conduct one or more
public hearings to obtain public comment on necessary changes. If it finds, after the
public hearings, that changes are essential, it shall make recommendations to the Council
and other appropriate public and private entities with jurisdiction over the area and
subject matter.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1; Ord. 95-1272-768, § 4)
Sec. 674.215. Emergency Preparedness Division.
The Division shall:
(a) Keep persons throughout the General Services District well informed by establishing
and maintaining a comprehensive educational program that focuses on emergency
preparedness; such programs shall be responsive to identified needs and shall involve, to
the extent practicable, all aspects of the community including but not limited to the
media, retailers, banks, utilities, independent agencies of the City and other public sector
and private sector entities;
(b) Keep the Emergency Preparedness Planning Council and the City Council well
informed by preparing and submitting an annual emergency preparedness report;
(c) Identify, record and update, on an annual basis, persons with special needs residing
in the General Services District and also facilitate the development and implementation of
a means designed to pick up and return such persons to designated locations;
(d) Be the central repository for all mutual aid agreements, concerning emergency
preparedness, which have been approved and authorized by the City Council;
(e) Maintain a state of readiness posture by conducting exercise programs each
calendar year.
(Ord. 94-1272-768, § 4)
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206
PART 3. CIVIL EMERGENCY
Sec. 674.301. Preservation of public peace.
In the event of overt acts of violence or the imminent threat of violence within the City,
and when the Governor has not declared a state of emergency to exist, the Mayor is
authorized, by proclamation, to declare that a state of civil emergency exists in the City
and to exercise one or more, or all, of the emergency powers granted by this Part.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1)
Sec. 674.302. Requirements for declaration.
Whenever the Mayor determines that there has been an act of violence or a flagrant and
substantial defiance of or resistance to a lawful exercise of public authority and that, on
account thereof, there is reason to believe that there exists a clear and present danger of
a riot or other general public disorder, widespread disobedience of the law and
substantial injury to persons or property, all of which constitute an imminent threat to
public peace or order and to the general welfare of the City or a part or parts thereof, he
may declare that a state of civil emergency exists within the City or any part or parts
thereof.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1)
Sec. 674.303. Automatic emergency measures.
Whenever the Mayor declares that a state of civil emergency exists pursuant to Section
674.302, and as a part of the proclamation making such declaration, the following acts
shall be prohibited during the period of the civil emergency throughout the City:
(a) The sale of, or offer to sell, with or without consideration, any ammunition or gun or
other firearm of any size or description.
(b) The intentional display, after the emergency is declared, by or in any store or shop of
any ammunition or gun or other firearm of any size or description.
(c) The intentional possession in a public place of a firearm by any person, except duly
authorized law enforcement personnel or a person in military service acting in the official
performance of his duty.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1)
Sec. 674.304. Discretionary emergency measures.
Whenever the Mayor declares that a state of civil emergency exists pursuant to Section
674.302, he may exercise any or all of the following powers, in whole or in part, with such
conditions and limitations as he deems appropriate, which shall be in effect during the
period of the civil emergency in the area or areas for which the emergency has been
declared:
(a) The establishment of curfews, including the prohibition of or restrictions on pedestrian
and vehicular movement, standing and parking, except for the provision of essential
services such as fire, police and hospital services (including the transportation of patients),
utility emergency repairs and emergency calls by physicians.
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(b) The prohibition of the sale or distribution of any alcoholic beverage, with or without
the payment of a consideration therefore.
(c) The prohibition of the possession by any person in a public place of any portable
container containing any alcoholic beverage.
(d) The closing of places of public assemblage with designated exceptions.
(e) The prohibition of the sale or other transfer of possession, with or without
consideration, of gasoline or any other flammable or combustible liquid, altogether or
except by delivery into a tank properly affixed to an operable motor-driven vehicle, bike,
scooter, boat or airplane and necessary for its propulsion.
(f) The prohibition of the possession in a public place of a portable container containing
gasoline or any other flammable or combustible liquid.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1)
Sec. 674.305. Filing and publication.
A state of civil emergency or emergency measure declared, ordered or promulgated
pursuant to Sections 674.302 through 674.304 shall, as promptly as practicable, be filed
with the Council Secretary and delivered to appropriate news media for dissemination to
the general public.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1)
Sec. 674.306. Special meeting of Council.
Concurrently with the declaration of the state of civil emergency, the Mayor shall
convene the Council in special meeting, at which he shall report to the Council all the
facts and circumstances known to him concerning the civil emergency and his
recommendations in connection therewith.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1)
Sec. 674.307. Duration and termination of emergency.
A state of civil emergency declared pursuant to Section 674.302 shall commence upon
the declaration thereof by the Mayor and shall terminate at the end of a period 72
consecutive hours thereafter unless, prior to the end of the period, the Mayor by
proclamation or the Council by resolution shall terminate the state of civil emergency. An
extension of the 72-hour time limit must be accomplished by request from the Mayor and
the concurrence of the Council by resolution adopted in regular or special meeting.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1)
Sec. 674.308. Part inapplicable to Urban Services Districts.
The provisions of this Part shall not apply to, and the emergency powers herein granted
may not be exercised within, the Second, Third, Fourth or Fifth Urban Services District.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1)
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PART 4. PENALTIES
Sec. 674.401. Major violations: disaster preparedness.
A person who, knowingly and wilfully:
(a) Fails or refuses to perform a duty imposed upon him by an emergency preparedness
plan or required of him by an order issued by the Mayor or issued at the direction of the
Mayor, during an actual, impending, mock or practice disaster; or
(b) Fails or refuses to go to his assigned place of duty during an actual, impending, mock
or practice disaster or, having gone to such place of duty, to remain there until and unless
relieved, dismissed or reassigned by competent authority; or
(c) Fails or refuses to obey, observe or enforce the provisions of any order, directive or
regulation issued by the Mayor or issued at the direction of the Mayor pursuant to his
emergency powers under Section 674.207; or
(d) Fails or refuses to participate in or to perform his assigned duties as a member of an
emergency preparedness support force within or without the City, or to go outside the City
as a member of an emergency preparedness support force; or
(e) Obstructs, interferes with or prevents, or procures the obstruction, interference with or
prevention of:
(1) The enforcement, observance or execution of or compliance with any part of an
emergency preparedness plan or with an order, directive or regulation issued by the
Mayor or issued at the direction of the Mayor; or
(2) The performance of a duty or the exercise of a power by an officer, employee or
agent of the City or a emergency preparedness worker, during an actual, impending,
mock or practice disaster;
Shall be guilty of a class D offense. For offenses that are of a continuing nature, each day
the offense continues shall constitute a separate offense.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1; Ord. 95-1272-768, § 4)
Sec. 674.402. Minor violations: disaster preparedness.
A person who, during an actual, impending, mock or practice disaster:
(a) Reserved.
(b) Whether or not the emergency preparedness organization has been activated
pursuant to Section 674.203(d), solicits or attempts to persuade any member of the
emergency preparedness organization to fail or refuse:
(1) To perform his assigned duties; or
(2) To go to his assigned place of duty; or
(3) Having gone to his place of duty, to remain there until and unless relieved, dismissed
or reassigned by competent authority; or
(c) Whether or not the emergency preparedness organization has been activated
pursuant to Section 674.203(d), solicits or attempts to persuade any other person to fail or
refuse:
(1) To obey, observe or enforce the provisions of or to comply with any order, directive or
regulation issued by the Mayor or issued at the direction of the Mayor or pursuant to his
emergency powers under Section 674.207; or
(2) To enforce, observe or execute or to comply with any part of an emergency
preparedness plan;
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209
Shall be guilty of a class C offense.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1; Ord. 94-1272-768, § 4)
Sec. 674.403. Violations: civil emergency.
A person who, knowingly and willfully:
(a) Fails or refuses, or procures a failure or refusal, to obey, observe or enforce the
provisions of an order or directive issued by the Mayor pursuant to his emergency powers
under Section 674.303 or Section 674.304; or
(b) Obstructs, interferes with or prevents, or procures the obstruction, interference with or
prevention of:
(1) The enforcement, observance or execution of or compliance with any part of an
emergency preparedness plan or with an order, directive or regulation issued by the
Mayor or issued at the direction of the Mayor; or
(2) The performance of a duty or the exercise of a power by an officer, employee or
agent of the City or a emergency preparedness worker, during an actual, impending,
mock or practice disaster;
Shall be guilty of a class D offense.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1; Ord. 95-1272-768, § 4)
Sec. 674.404. Civil penalties; collection.
(a) In addition to any other penalty that may be imposed under this Part or by any other
law, the Mayor may assess a civil penalty, based upon findings made by him, giving due
consideration to the appropriateness of the penalty with respect to the gravity of the
violation, the good faith of the violator and the history of previous violations. A civil penalty
is assessable in the following instances:
(1) A member of the emergency preparedness organization who fails or refuses to
perform a duty imposed upon him by an emergency preparedness plan or required of him
by an order issued by the Mayor or issued at the direction of the Mayor, during an actual,
impending, mock or practice disaster, may be assessed a civil penalty not exceeding
$1,000.
(2) A member of the emergency preparedness organization who fails or refuses to go to
his assigned place of duty during an actual, impending, mock or practice disaster or,
having gone to his place of duty, to remain there until and unless relieved, dismissed or
reassigned by competent authority may be assessed a civil penalty not exceeding $750.
(3) A member of the emergency preparedness organization who fails or refuses to
participate in or to perform his assigned duties as a member of an emergency
preparedness support force within or without the City, or to go outside the City as a
member of an emergency preparedness support force, during an actual, impending,
mock or practice disaster, may be assessed a civil penalty not exceeding $500.
(4) A person who fails or refuses to obey, observe or enforce the provisions of an order,
directive or regulation issued by the Mayor or issued at the direction of the Mayor pursuant
to his emergency powers under Section 674.207, Section 674.303 or Section 674.304 may
be assessed a civil penalty not exceeding $500.
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(5) A member of the emergency preparedness organization who fails or refuses to obey
an order made or applicable to him by a superior member of the emergency
preparedness organization, when that part of the emergency preparedness organization
to which he is assigned or reassigned has been activated pursuant to Section 674.203(d),
may be assessed a civil penalty not exceeding $300.
(6) A member of the emergency preparedness organization who says or does anything
that brings discredit or reflects adversely upon the emergency preparedness organization
or that is calculated to humiliate, ridicule or insult the emergency preparedness
organization or any other member thereof or to cause dissension within or disruption of the
emergency preparedness organization, or the members thereof, or the emergency
preparedness plan, during an actual, impending, mock or practice disaster, may be
assessed a civil penalty not exceeding $250.
(b) A civil penalty assessed and owed under this Section shall be payable to the Tax
Collector and shall be received into the General Fund--General Services District as
miscellaneous receipts and may be collected in a civil action in the name of the City.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1; Ord. 94-1272-768, § 4)
Sec. 674.405. Administrative discipline.
In addition to any other penalty that may be imposed under this Part or by any other law,
the members of the emergency preparedness organization are subject to administrative
discipline, as follows:
(a) Volunteer and auxiliary emergency preparedness personnel, not public employees,
may be suspended for any definite length of time, reassigned to another position in the
emergency preparedness organization, required to undergo additional or intensive
training and instruction (in addition to that generally required of all emergency
preparedness personnel), delayed in or denied advancement within the emergency
preparedness organization, or dismissed from the emergency preparedness organization
(with or without disqualification to become a member of the emergency preparedness
organization at a future time). The emergency preparedness plan proposed by the
Planning Council shall contain provisions and procedures for the imposition, review and
implementation of administrative discipline upon the persons subject to this subsection,
including adequate due process in the imposition of administrative discipline and review
of decisions by an impartial administrative body or bodies.
(b) Public employees shall be administratively disciplined in the same manner as they
may be administratively disciplined for violations of personnel rules or other employment
rules applicable to the public employees, and for this purpose the provisions of the
emergency preparedness plan concerning assignment and reassignment to positions in
the emergency preparedness organization, advancement within the emergency
preparedness organization, training and experience requirements and dismissal from the
emergency preparedness organization shall be deemed to be employment rules of the
appointing authority under which the public employee usually works. When the
emergency preparedness organization is activated pursuant to Section 674.203(d), and so
long as the activation continues, the provisions and procedures contained in the
emergency preparedness plan for the imposition, review and implementation of
administrative discipline shall supersede any other provisions and procedures for this
purpose, wherever contained or by whatever other board, body or person administered.
(Ord. 79-1242-665, § 2; Ord. 83-591-400, § 1; Ord. 94-1272-768, § 4)
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PART 5 PROTECTIVE MEASURES AGAINST SEXUAL OFFENDERS AND SEXUAL
PREDATORS
Sec. 674.501 Temporary emergency shelters; sexual predators and offenders
notification requirements.
(a) For the purpose of this Section "temporary shelter" is defined as any public or private
building or facility which is offered to individuals and families who are homeless or who
evacuate their homes or a hotel, motel, or other place of temporary residence as a result
of any storm, flood, hurricane, tornado, explosion, fire, or other incident of any nature as a
place to reside, rest, sleep, or eat.
(b) Any person who is required by Florida law to register as a sexual predator or sexual
offender and who utilizes or intends to utilize a temporary shelter provided by any public or
private entity and established as a result of any emergency or incident or threatened
emergency or incident shall, immediately upon entering the shelter, notify the individual or
individuals operating the shelter that he or she is a registered sexual predator or sexual
offender. The sexual predator or sexual offender shall be assigned to a temporary shelter
specifically designated for use by sexual predators and sexual offenders.
(c) The Sheriff may designate a public building or a jail or other correctional facility as a
temporary shelter to be utilized by sexual predators and sexual offenders.
(d) Failure of a sexual predator or sexual offender to make notification as required in
Section (b) shall constitute a Class D offence.
(Ord. 2005-629-E, § 3)
Sec. 674.502 Sexual predator residency requirements.
(a) It is unlawful for any person who is required by Florida law to register as a sexual
predator to reside within 2,500 feet of any school, public library, day care center, park,
playground, or other place where children regularly congregate.
(b) A person residing within 2,500 feet of any school, public library, day care center, park,
playground, or other place where children regularly congregate does not commit a
violation of this Section, provided that the sexual predator is in full compliance with
probation, parole, or conditional release and does not commit another sexual offense,
and was in compliance with the residency restrictions prior to July 1, 2005, if any of the
following apply:
(1) The person established the permanent residence prior to July 1, 2005.
(2) The person was a minor when he/she committed the offense and was not convicted
as an adult.
(3) The person is a minor.
(4) The school, public library or day care center within 2500 feet of the persons
permanent residence was opened after the person established the permanent residence.
(c) A person who violates subsection (a) shall be guilty of a class D offence.
(Ord. 2005-629-E, § 3)
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PART 6. NATIONAL INCIDENT MANAGEMENT SYSTEM
Sec. 674.601. Findings.
The President of the United States in Homeland Security Directive 5 (HSPD), directed the
Secretary of the Department of Homeland Security to develop and administer a National
Incident Management System (hereinafter referred to as "NIMS"), which would provide a
consistent nationwide approach for federal, state, local and tribal governments to work
together more effectively and efficiently to prevent, prepare for, respond to and recover
from domestic incidents, regardless of cause, size or complexity. The collective input and
guidance from all federal, state, local and tribunal homeland security partners has been,
and will continue to be, vital to the development of effective implementation and
utilization of a comprehensive NIMS. It is necessary and desirable that all federal, state,
local and tribal emergency agencies and personnel coordinate their efforts to effectively
and efficiently provide the highest levels of incident management. To facilitate the most
efficient and effective incident management it is critical that federal, state, local and
tribal organizations utilize standardized terminology, standardized organizational structures,
interoperable communications, consolidated action plans, unified command structures,
uniform personnel qualification standards, uniform standards for planning, training, and
exercising, comprehensive resource management, and designated incident facilities
during emergencies or disasters. The NIMS standardized procedures for managing
personnel, communications, facilities and resources will improve the City's ability to utilize
funding to enhance state and local agency readiness, maintain first responder safety and
streamline incident management processes. The Incident Command System components
of NIMS are already an integral part of various incident management activities throughout
the state and City, including current emergency management training programs. The
National Commission on Terrorist Attacks (9-11 Commission) recommended adoption of a
standardized Incident Command System.
(Ord. 2005-945-E, § 1)
Sec. 674.602. Designation.
NIMS is designated as the standard for prevention, preparation for, response to and
recovery from incidents of disasters and/or emergencies that may occur in and
throughout the General Services District.
(Ord. 2005-945-E, § 1)
Sec. 674.603. Coordinator.
(a) The Planning Council shall, from time to time, issue rules and orders for implementation
of NIMS. To the extent they are involved in NIMS activities, the Second, Third, Fourth and
Fifth Urban Services Districts, the Independent Agencies, the Sheriff, the Property Appraiser,
the Tax Collector, the Supervisor of Elections and the Clerk of the Circuit and County
Courts shall observe and obey all directives set out in this part as well as all rules and orders
issued by the Planning Council.
(b) The Chief shall be the NIMS Coordinator for the General Services District. To the extent
they are involved in NIMS activities, the Second, Third, Fourth and Fifth Urban Services
Districts, the Independent Agencies, the Sheriff, the Property Appraiser, the Tax Collector,
the Supervisor of Elections and the Clerk of the Circuit and County Courts must coordinate
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all their NIMS implementation actions with the Planning Council through the NIMS
Coordinator.
(Ord. 2005-945-E, § 1)
Sec. 674.604. NIMS Directives.
(a) The Planning Council shall develop a program to integrate NIMS, to the extent
appropriate, into the Comprehensive Emergency Management Plan.
(b) The Planning Council shall identify statutes, ordinances, rules, regulations or operating
procedures that should be repealed or amended to facilitate implementation of NIMS.
(c) By December 30, 2005, all City agencies, as well as all other entities named in Section
674.503, shall report, to the Planning Council through the NIMS Coordinator, their strategies
for use of NIMS in their respective response structures, including new employee training.
(d) City employees must complete the required NIMS training appropriate to their level of
assigned responsibilities and maintain that level of training by certification within
timeframes to be established by the federal requirements for NIMS.
(e) The NIMS Coordinator will report on the status of the implementation of NIMS at each
quarterly meeting of the Planning Council.
(Ord. 2005-945-E, § 1)
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ATTACHMENT 2: RESOLUTION/PROMULGATION LETTER
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