HomeMy WebLinkAbout1982-03-02; City Council; 6917; Emergency PlanCIT% JF CARLSBAD —AGENDA MLL
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MTG. 3-2_82 CITY OF CARLSBAD
CITY ATTY 2S
DEPTZI .
_ CITY MGR.�
RECOMMENDED, ACTION:
THAT COUNCIL ADOPT RESOLUTION NO. _APPROVING AND ADOPTING
THE CITY OF CARLSBAD EMERGENCY PLAN AS REVISED JANUARY, 1982.
ITEM EXPLANATION 7''
CARLSBAD'S PRESENT EMERGENCY PLAN WAS ADOPTED ON FEBRUARY 19, 1974.
THE 1982 EMERGENCY PLAN IS NOT ONLY TO UP —DATE SPECIFIC INFORMATION
AND PROCEDURES BUT TO STANDARDIZE THE PLAN'S FORMAT WITH FEDERAL,
STATE AND LOCAL EMERGENCY PLANS.
IN CONCERT WITH CITY STAFF, THE EMERGIs'NCY PLAN WAS WRITTEN AND
PRINTED BY THE UNIFIED SAN DIEGO COUNTY OFFICE OF DISASTER PRE—
PAREDNESS.
FISCAL IMPACT
WILL REQUIRE SEVERAL HOURS OF STAFF TIME DURING THE YEAR TO REVIEW
AND TRAIN ON SPECIFIC TASKS AND RESPONSIBILITIES OF EACH CITY
DEPARTMENT.
EXHIBITS
A. EMERGENCY PLAN — CITY OF CARLSBAD
B. RESOLUTION NO. �o (p
C. PSYCHO —SOCIOLOGY IN EMERGENCY PLANNING
PSYCHO -SOCIOLOGY IN EMERGENCY PLANNING
Extracts from the International Civil Defence
Bulletin. Summary report of Professor Enrico
Quarantelli, Director of the Disaster Research
Centre of Ohio State University.
Of the many things which could be reported about research findings
and observations on disaster preparednes--, we want to note only
what might be called two general, but very important, themes for
Civil Protection officials.
The first is that study after study consistently shows that
societal, community and organizational disaster planning typically
or usually assumes that people should adjust to the planning or the
plans. This is, planning is undertaken With the idea that the be-
haviour of potential or actual disaster victims should follow what"
ever is specified or detailed in emergency policies or documents.
This might seem logical, that is, that people should follow plans,
but it is usually very unrealistic. Most disaster planning is
done from the view -point and for the convenience of the agencies
or organizations drawing up the plans. Too often, plans typically
require people to deviate sharply or to act in ways quite different
from their normal, everyday behaviour or what they are likely to•do
in an emergency. Realistic disaster planning requires that plans
be adjusted to people and not that people be forced to adjust to
plans. Research indicates that this is a very important point
which is generally overlooked. To repeat, effective disaster
planning incorporates everyday normal behaviour and typical stress
responses; it does not require totally different or unlikely be-
haviours.
A second major theme from the research studies is that it is a
mistake to equate disaster planning with the drawing up or the
production of written plans. Too often a written plan is con-
sidered to be the heart of disaster planning. Written disaster
plans are at best only one part of real disaster preparedness. In
fact, at times, the plan, itself, may be the least important part
of the whole disaster planning process. Planning involves thinking
about possible problems. It involves meetings and interorganiza-
tional contacts and communication. It involves training exercises
and disaster rehearsals. It involves assessing risks and creating
linkages among relevant groups. It involves creating certain kinds
of social climates or attitudes.
(continued)
q
1*
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Disaster planning should be thought of as a process and not solely
the production of a product, that is a written plan, In fact{
the -existence of a written plan or a document can actually be
disfunctional or dangerous., It nay mislead officials into thinking
they are prepared for a disaster because an official paper exists.
Preparedness -planning is most effective when officials view the
planning activities as an unending process. Planning and not just
plans need to be constantly kept up--to-date and revised as circum-
stances change.
- - - - - - - - - - - - - - - ,- - -
Selected quotations from writings and some of
those concerned with providing emergency aid,
*Disaster -victims go to great lengths, to help and take care
of themselves and their families and friends usually in a very
skilled and competent way. All human societies have a long record
Of surviving through war, crop failures, floods, fires, etc., over
thousands of years- of existence. People who have lost their homes
usually go to the houses of friends or relatives whenever possible
and great numbers are usually absorbed in this way inmost disaster
situations, People can be helped to do this by providing transport,
small amounts of cash and food, etc.,
*Disaster victims will quickly rebuild some.form of shelter
for themselves using local material, or materials, recover,,ad from
their previous homes., it means that every assistance and encourage-
ment should be given to this inherent attitude of people - and that
specific items, for instance, roofing materials, should, be made
available..
*Relief officials often fail to recognize what one might des-
cribe as the. natural relief mechanism existing in the disaster
society'.. Victims are rarely the bewildered, resourceless and de.! -
pendent beings that they -are depicted as being in news bulletins
and in fund raising publicity material. 11bether it be in the trans-
port of victims to hospitals, in the evacuation of a city or in the
provision of emergency shelter, it is the victims themselves who
carry outmost of what needs to be done.
As these -quotations imply, regardless of the local victims' ability
and willingness to act for themselves, emergency officials and re-
lief agencies still play a very important and vital role in the
aftermath of a disaster. Four such.activi.ties might be noted.
One, organized emergency help can supplement or otherwise facilitate
the capacities of survivors to cope with the disaster, for example,
by providing transportation so that evacuees can go to relatives
and kin.
(.continued)
Second, only organizations with appropriate resources can normally
do certain disaster -related tasks, for example, restoring railroad
tracks or highway bridges.
Third, there is often a necessity to mobilize and manage the tangible
resources which survive a disaster. Even in massive disasters, the
problem is less the absence or destruction of material )resources
as it is one of mobilizing and managing them. Thus, mu(,-h is often
made about the absence of communication at the time of disaster.
The fact is that in the vast majority of cases, communication
facilities and informal communication networks exist even after
impact - the problem is to find and use such resources.
Finally, and perhaps most important of all, official groups can
provide the intangible resources so often urgently needed at the
time of a mass emergency. We have in mind here the dissemination
of information and the distribution of knowledge about what has or
has not happened, what is and is not needed. Victims can do much
for themselves, but often lack the information which will allow
them to act appropriately. Stricken communities can do much for
themselves but frequently lack knowledge of how to go about doing
things. In fact, research has shown that if there is one crucial task
at the height of the emergency time period, it is simply that of
obtaining a correct overall picture of what has occurred. Individual
victims cannot provide such information; such knowledge has to be
collated by outside groups. Civil Protection personnel have to
make sure that they avoid working with misconceptions or myths
about disasters and that they have the major responsibility for
validly assessing the situation and arriving at some estimates of
damages and needs. This will avoid, for example, the typical exagger-
ation of damage estimates which often lead to a very bad overestima-
tion of housing needs, or the misperception, of post -impact health
threats which have no basis in reality but may lead to an influx of
unneeded and often unusable medical supplies and personnel.
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RESOLUTION NO.. GVcvv
A RESOLUTION OF THE CITY COUNCIL OF THE. CITY OF
CARLSBAD, APPROVING AND ADOPTING THE CITY OF
CARLSBAD EMERGENCY PLAN.
NOW, THEREFORE, BE IT RESOLVED by tho City Council of the
City of Carlsb&01�, as follows:
That the City of Carlsbad Emergency Plan dated January 1982,
as presented to the City Council on this date is approved and
adopted as the City of Carlsbad Emergency Plan.
PASSED AND ADOPTED BY THE CITY COUNCIL of the City of
Carlsbad, California, this 2nd day of March , 1982,
by the following vote, to wit:
AYES: Council Members Packard, Casler, Anear, Lewis and Kulchin
NOES: None
ABSENT: None
c- � �c s
RONALD C. PACKARD, Mayor
ATTEST:
ALETHA L. RAUTENKRANZ, City Clerk
(SEAL) JJ
Im
1275 ELM AVENJUE
CARLSBAD, CALIFORNIA 92008
February 23, 1982
FIRE DEPARTMENT
LETTER OF PROMULGATION
TELEPHONE:
(714) 438.5521
This Emergency Plan, as adopted by the City Council of the City of
Carlsbad, California, will be the immediate basis for the conduct
and coordination of emergency operations in the City of Carlsbad
under the following disaster conditions.
1. Upon declaration of a STATE OF WAR EMERGENCY as
defined in the California Emergency Services Act;
2. When the Governor of the State of California has
proclaimed a STATE OF EMERGENCY in an area including
this City; or
3. Upon the order of the Mayor or the Director of Emergency
Services of this City, provided that the existence or
threatened existence of a LOCAL EMERGENCY has been
duly proclaimed in accordance with the provisions of
the Emergency Services Ordinance of this City.
APPROVED:
Ronald C. Packard, Mayor
(Chairman, Disaster Council)
I
APPROVED:
Frank Aleshire, City Manager
(Director of Emergency Services)
PLAN
• EM�ERGfN�Y
CITY OF CARLSBAD
to
Al, A
CITY OF CARLSBAD
EMERGENCY PLAN
t
January 1982 /
'i
TABLE OF CONTENTS
Page
I. PLANNING BASIS ------------------------------------- 1
A. Authorities and References-------------_,------ 1
B. Purposes ------------------------------------- 1
C. Objectives ----------------------------------- 1
D. Assumptions ---------------------------------- 2
E. Plan Activation ------------------------------ 3
F. Planning Factors ----------------------------- 3
I. Description of Jurisdiction ------------- 3
2. Supporting Organizations and Mutual Aid-- 4
3. Continuity of Government ---------------- 4
II. GENERAL PLAN --------------------------------------
5
A.
Operations - Major Emergencies --------------
5
1. Pre -Emergency --------------------------
5
2. Emergency --------------------------
5
3. Post -Emergency ----------------------- ---
7
B.
State of War Emergency -----------------------
8
III. ORGANIZATION AND TASK ASSIGNMENTS -----------------
9
A.
Organization Structure -----------------
9
B.
The Emergency Services Organization -----------
9
C.
Personnel -------------------------------------
10
D.
General Responsibilities-----------------------
10
E.
Specific Responsibilities --------------------
10
F.
Staff Sections and Task Assignments -----------
11
G.
Emergency Services., ---------------------------
13
H.
Support Services ----------------------------
16
I.
Emergency Organization Chart -----------------
lg
ATTACHMENTS ------------------------------ ----------
20
A - Continuity of Government ------------------------- --
20
B - State of War Emergency --------------------------
21
C - Basic Actions for Increased Readiness - War Emergency
28
D - Warning System -------------------------------------
34
E - Emergency Communications Systems -------------------
36
F - Emergency Broadcast System (EBS)--------------------
39
and Lifesaving Information For Emmergencies (LIFE)
G - Emergency Operating Center --------------------------
41
H - Fallout Shelter System -------------------------
42
I - Disaster Assistance Unters-------------------------
Al
Sample Resolution
It -
January 1982
Y
`F
EMERGENCY PLAN {
CITY OF CARLSBAD EMERGENCY SERVICES ORGANIZATION
a
I. PLANNING BASIS
A. Authorities and References
1. California Emergency Services Act, Chapter 7 of Division 1 of
Title 2 of the Government Code.
2. California Emergency Plan (August", 1975) and subplans.
3. California Emergency Resources Management Plan (January 9, 1968)
and subplans.
4. Governor's Orders and Regulations for a War Emergency, 1971.
5. Unified San Diego County Emergency Services Agreement.
6. County of San Diego Emergency Services Ordinance No. 3947,
dated August 22, 1972.
7. City of Carlsbad Emergency Services Ordinance No. 1152, dated
January 2, 1973.
8. City of,Carlsbad Resolution adopting the California Master
r
Mutual, Aid Agreement, Resolution 60-A, dated July 21, 1953.
B. Purposes
This document, with its annexes, constitutes the Carlsbad Emergency
Plan, w'aich covers the City of Carlsbad. Its purposes are to:
1. Provide a basis for the conduct and coordination of operations and
the management of critical resources during emergencies;
2. Establish a mutual understanding of the authority, responsibilities,
functions, and operations of government during emergencies; and
3. Provide a basis for incorporating into the Carlsbad emergency or-
ganization those non -governmental agencies and organizations having
resources available to meet foreseeable emergency requirements.
C. Objectives
This Plan is designed to accomplish the following objectives in time
of disaster:
1. Saving lives and protecting property.
2. Providing for the continuity of government.
3. Providing a basis for direction and control of emergency operations.
4. Repairing and restoring essential systems and services.
-1- 9
January 1982
/,
i ;
5. Providing for the protection, use, and distributiuri of the re-
maining resources.
6. Coordinating operations with the emergency service organizations
of other jurisdictions.
D. Assumptions
1. Basic Assumptions
a. Disasters do not change the basic responsibilities of government;
they increase the need for fulfilling them promptly and effectively
under emergency conditions.
b. The responsibility for emergency preparedness rests with civil
government at all levels.
C. The City can meet its basic operational objectives if it has
realistic contingency plans and preparations which provide
for appropriate and coordinated responses.
d. Prompt and correct public response. which affects government's
ability to respond in an emergency, is largely dependent upon
timely and factual information, advice, and instructions.
e. Available warning time, used effectively, decreases potential
life and property loss.
f. Adequate pre -emergency testing of facilities and equipment
assures reliable functioning.
2. Assumptions about major emergencies.
a. The areas affected are usually geographically limited.
b. The remedial actions to be taken vary considerably depending
upon the specifics of the emergency.
C. The nature and extent of an emergency governs which elements
of the emergency organization mobilize and respond.
d. Special task force organizations may be required to meet special
situations.
e. Emergency responses are a composite of extraordinary activity
and continuing conduct of routine governmental operations.
f. Informal citizen, groups may spontaneously form to assist in
recovery and should be effectively utilized.
g. Certain normal facilities and systems could be seriously over-
loaded and/or overcrowded.
h. Mutual aid from unaffected areas is available and could be
focused on the disaster area.
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January 1982
e,
i. Fiscal and procurement procedures are a major concern.
E. Plan
Activation
1.
This plan becomes operative:
a. Automatically with the existence of a State of War Emergency,
as defined by the California Emergency Services Act; or
b. When the Governor has procla+med a State of Emergency in an
area which includes this City; or
C. On the order of the Mayor or the Director of Emergency Services
(City Manager), provided the existence or threatened of a Local.
Emergency has been proclaimed in accordance wit the provisions
of the Emergency Services Ordinance of this City.
2.
The Director/ City Manager is authorized to order the mobi-
lization of the City's emergency organization if the threat of an
emergency is present, in order to provide for increased readiness.
The organization can be mobilized fully or in part, as required
k
by the circumstances of the situation.
? F. Planning Factors
1.
Description of Jurisdiction
a. The City of Carlsbad is located north of the City of San Diego,
`
approximately 34 miles from the County Administration Center,
in the southwest portion of the State of California.
b. It is bounded on the south and east by unincorporated areas
of the County of San Diego; on the north kand northeast.by
the City of Oceanside; and on the west by the Pacific Ocean.
C. The City is approximately 29.4 square miles in area. The
planning area of the city enc;mpasses 32 square miles. The
City is predominantly residential with light industry.
d. The 1970 census population was 14,944. The 1980 estimated
population of the City is 35,700.
e. The terrain is coastal. Interstate Highway 5 bisects the City
from north to south. State Highway 78 runs along the northern
border. The City is served by the Santa Fe Railroad.
f. The City depends primarily upon truck transportation for
critical supplies. Air transportation is available into
Palomar Airport, located on the eastern edge of the City.
g. Carlsbad is located in the Tri-City Hospital District,
whose hospital is located at 4002 Vista Way, Oceanside,
California. The hospital has a bed capacity of 231. The
City is served by all radio stations in the Emergency
Broadcast System Operational Area.
-3-
January 1982 11
0
2. Supporting Organizations and Mutual Aid.
a. Support to and by the City.
The City emergency service organization supports and is
supported by:
(1) The emergency organization of the County.
(2) The emergency organizations of cities within the County
and those of other counties;
(3) The emergency organization of the State of California
and of other counties;
(4) Federal agencies.
b. Business and Indusxry.
Businesses and industries having personnel and resources which
might be needed to meet emergency requirements have been incorporated
into a resources directory which is maintained by the Fire Department.
C. Mutual Aid.
Mutual Aid, including personnel, supplies, and equipment
is provided in accordance with the California Master Mutual
A Aid Agreement. More information about mutual aid is con-
tained in the Law Enforcement and Fire Service Annexes.
d. Red Cross.
The American Red ,Cross, according to an understanding between
that organization and the Unified San. Diego County Emergency
Services Organization, fulfills several functions during a
disaster. They are:
(1) Providing liaison personnel at field operations centers,
EOCs, and any other disaster operational headquarters.
(2) Carrying out its responsibilities with regard to mass
care service and, together with county staff, selecting,
staffing, and equipping mass care facilities.
(3) Assisting the medical service in handling mass casualties
and the selection, staffing; and equipping of emergency
aid stations.
3. Continuity of Government. v
In order to assure continuity of government, provision has been
made for the following; found in Attachment A, Continuity of
Government:
a. Emergency Succession to key government positions; and
b. Temporary alternate seats of government.
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January 1982
II. GENERAL PLAN
A A. Operations - Major Emergencies
1. Pre -emergency - City departments are responsible for taking the
following actions:
a. The departments having emergency responsibilities as listed
in section III, Organization, develop and maintain Procedures
and Resources (P and R) Manuals. They are written in con-
sonance with this plan and, after approval by the Director
of Emergency Services (City Manager), become part of it.
The manuals include such information as the department's
mission, organization charts, tasks, lines of succession,
alerting procedures, primary and secondary headquarters,
communications capabilities, procurement procedures, personnel,
and equipment inventories. They may include standard operating
procedures and check -lists describing the use and disposition
of departmental resources in an emergency situation. P and R
Manuals may explain the coordination and communication lines
with organizations of other jurisdictions. The resources
in the private sector and in special districts, including
personnel, are identified as they are relevant to emergency
responsibilities.
2. Emergency - This stage is divided into three phases:
Emergency Possible
When conditions exist which could result in an emergency; for
example, continuing and excessive rainfall, an uncontrolled
wildland fire, an undersea seismic disturbance resulting in
a Tsunami Watch, or a potential civil disturbance, city
staff reacts as listed below.
(1) All affected departments put their emergency plans and
procedures into limited operation. This includes alerting
key personnel, assuring readiness of essential resources
and preparation to move them to the threatened area as
required, and keeping the publicinformed of
condi ti orr's anal provi di ng them w.i th instructions
.
(2) The County Office of Disaster Preparedness (ODP) is
notified about the threat, its imminence, potential
severity, the area to be affected, and any other avail-
able information. This initial reporting and subsequent
reports, which include actions taken and anticipated
deficiencies in critical resources, are made by the
Director of Emergency Services.
(3) Departmental staff coordinate with their counterparts
in other jurisdictions and determine local deficiencies
which might require assistance; for example, mutual aid.
-5_ January 1982
b, Emergency Expected
This phase begins when an evaluation indicates that the emer-
gency is expected to occur. The Director of Emergency Services
immediately puts emergency plans into full operation and conducts
operations as follows:
(1) Alerts threatened elements of the�populace and initiates i
evacuation if necessary;
(2) Advises appropriate emergency services to activate all
needed and available resources, advising him or her where
resources appear insufficient, as well as preparing for 5
receipt and application of mutual aid; and a.
(3) If it is determined that State or Federal aid will be a
needed, the Director proclaims or has the City Council
proclaim a Local Emergency, as prescribed by City Ordi-
nance. The proclamation is then forwarded through ODP
and the State Office of Emergency Services, to the Governor.
At the time such request is made, State OES is provided
with estimates of the severity and extent of the damage;
the amount of both public (agricultural) and private (non-
agricultural) damage sustained or expected; and the total
funds, personnel, equipment, materials, or other resources
required to mitigate the damage. These estimates are up-
dated as additional information becomes available.
C. Emergency Onset
This stage exists with the occurrence of an emergency with such
force as to be beyond local capabilities to handle, resulting
in a need for interjurisdictional mutual aid. this stage
requires the proclamation of a Local Emergency, if it has
not already been done. The emergency organization, as outlined
in Part III, is mobilized, as needed, to cope with the situation.
Each service, when mobilized, operates according to the pro-
visions of its annex and/or pertinent procedures and resources
manuals. Priority is given to operations such as the following:
(1) Mobilizing, allocating, and positioning personnel and
materials;
(2) Producing and disseminating warnings, emergency informa-
tion, and instructions to the public;
(3) Surveying and evaluating the emergency situation and
advising the Director of Emergency Services;
(4) Providing for evacuation and rescue;
(5) Providing for the care and treatment of casualties;
10
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January 1982
(6) Coordinating with the Red Cross for the care of people
µ, (including tasks such as delivering survival supplies
to displaced persons and receiving and answering -inquiries);
(7) Enforcing police powers in controlling the locations and
movements of people, establishing pass and entry controls,
erecting traffic barricades, imposing curfews, etc;
(8) Implementing health and safety measures;
(9) Protecting, controlling, and allocating vital resources;
(10) Advising industry, schools, and business of possible phased
shutdowns; 'ind
F
(11) Restoring or activating essential facilities and systems.
MOTE: When local resources are committed to the maximum
and additional materials, and/or personnel are re-
quired, a request for mutual aid will be initfai,ad.
The chie,•s of the law enforcement and fire services
request or render mutual aid directly through estab-
lished channels. -However, any action which -involves
financial outlay by the City must be authorized'by
the Director.
3. Post Emergency
C
This stage has three major objectives: (1) Finding or providing
temporary means to reinstate family autonomy and provide essential
public facilities; (2) permanent restoration of private and public
property, as well as reinstatement of public services; and (3) to
uncover residual hazards, contribute to advance knowledge of disaster
phenomena, and provide information to improve future emergency opera-
tions. These objectives often overlap. The corresponding needs of
this stage are listed below and the City organization assists in
meeting them to the extent possible.
a. Alleviation:
(1) Maintaining family autonomy whenever possible, by providing
temporary housing and/or minor repairs to restore permanent
housing, means of sustenance, essential clothing, unemploy-
ment compensation, and personal needs.
(2) Re-establishing essential public services, including emer-
gency care, sewage and garbage disposal, drinking water,
gas and electric service, telephone service, and the
opening of roads and schools.
b. Rehabilitation:
(1) Permanent replacement or full renovation of family dwellings
and restoration of means of livelihood.
(2) Full restoration of public facilities.
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January 1982
c. Reconnaissance:
Informat"ion may be gathered by any department on its own ini'tia-
-; tive, or the Director of Emergency Services may request it, de-
pending on the type of emergency, relative conditions, and the
department's involvement in emergency operations.
d. Disaster Assistance:
At the earliest feasible time the OES State Coordinating Officer
will bring state agency representatives together with local,
Federal, and Red Cross officials to establish priorities and
implement coordinated Federal and State disaster assistance
programs. Each of the agencies takes the necessary action to
meet identified recovery needs. Information about where, when,
and how affected persons may receive assistance is, broadly
disseminated through all available sources, which may include
handbills.
e. Disaster Assistance Centers:
The Disaster Assistance Centers (DACs), as outlined in Attachment
I, are used to meet the needs of victims, particularly when there
are large and widespread groups of them. The County Director,
in.cooperation with the City and State, and Federal represen-
tatives, evaluates the feasibility of establishing centers and
takes the lead in operating them.
B. State of War Emergency
There are special considerations and unique problems involved in a State
of War Emergency. The subject of nuclear war is therefore treated in a
separate section. Refer to Attachment C.
t(P
-8- January 1982
II ORGANIZATION AND TASK ASSIGNi TS
A. 0'r ai'iization Structure
1. The structure of the emergency organization (see chart, page 19)
is based on the following principles:
a. Compatibility with the structure of governmental and private
organizations;
b. Clear lines of authority and channels of communication;
C. Simplified functional structure;
d. Incorporation into the emergency organization of all available
personnel resources having disaster capabilities; and
e. Formation of special-purpose units to perform those activities
peculiar to major Emergencies.
2. A major emergency changes the working relationships between govern-
ment and industry, and among government agencies. The primary
changes include:
a. Consolidation of several departments under a single chief, even
though such departments normally work independently of each other.
b. Formation of special-purpose units (Situation Intelligence,
Emergency Information, Direction and Control, and Radiological
Defense) to perform functions not normally required. Individuals
assigned to serve in such units are detached from their regular
private or governmental employer when such units are mobilized.
3. Changes in the emergency organization structure may be required to
satisfy specific situational requirements.
4. Inter -jurisdictional relationships during a State of War Emergency
are shown by the chart or page 33.
Q. The Emergency Services Organization
1. The City of Carlsbad emergency services organization consists of
the following:
a. The City Council - the City governing body.
b. The Carlsbad Civil Defense and Disaster Council, which consists
of the following:
(1) The Mayor, who is Chairperson.
(2) Director of Emergency Services (City Manager), Vice
Chairperson.
(3) Assistant Director of Emergency Services, Fire Chief.
(4) Chiefs of Emergency Services as provided for in this plan.
17
-9- January 1982
c. The Director of Emergency Services, City Manager.
d. Assistant Director of Emergency Services, the Fire Chief,
appointed by the Director.
e. Legal Advisor, City Attorney.
f. Staff Sections, see below.
g. Emergency Services, see below.
h. Resources Management Division, see below.
C. Personnel
1. General
Emergency personnel are available from government and private agencies
as well as from skilled and professional groups. Additional assis-
tance is obtained by using volunteers and/or persons impressed into
service.
2. Disaster Service Workers
a. All public employees and registered volunteers of a jurisdiction
having an accredited disaster council are "disaster service
workers." (Government Code, Title I, Division 4, Chapter 8, and
Labor Code, Part I, Division 4, Chapters 1 and 10).
i ; a
b. The term "public employee" includes all persons employed by the
State or any county, city, or public district.
D. General Responsibilities
1. The City is responsible for conducting emergency operations within
its jurisdiction. However, in a disaster involving more than one
city, or a city (or cities) as well as the unincorporated area, the
County emergency services organization is responsible for coordi-
nating disaster operations.
2. The Director/City (Manager is responsible for providing for emergency r.
planning, operations, liaison, and coordination of those activities
within the City.
3. Each City department has the responsibility to deveiop and maintain
a Procedures and Resources Manual which includes details on specific
activities, techniques, and procedures necessary to accomplish
assigned emergency tasks.
E. Specific Responsibilities
1. City Council
The City Council establishes basic policies which govern the emer-
gency organization. It also declares Local Emergencies and ratifies
local disaster declarations made by the Director/ City Manager.
IS
-10- January 1982
F.
2. Disaster Council
The Disaster Council makes recommendations to and advises the
City Council, as established in City Ordinance Number 1152.
3. Director of Emergency Services
The Director/City Manager serves as Chief of Staff for the City Council and
may request the Council to proclaim the existence or threatened existence
of a Local Emergency if the Council is in session, or may issue such
a declaration if the Council is not in session. A declaration made
oy the director is subject to ratification by the Council within 7
days.
b,.e Director also makes requests to the Governor to proclaim States =x'
of Emergency when necessary. Such requests are coordinated through
ODP.
4. Legal Advisor
The City Attorney serves as Legal Advisor to the Council, the Director/
City Manager and the emergency services organization.
5. Staff Sections
The staff sections, those assigned to them, and their responsibil-
ities are shown in the following table. Additional information can
be found in the Direction and Control --Annex 1.
Staff Sections and Task Assignments
Staff Sections Tasks
1. Direction and Control Group and its Sections
Director of Emergency Services:
City Manager
-11-
Request the City Council to
proclaim, or proclaim, local
emergencies
Request the Governor to pro-
claim State of Emergency
Direct and control the City's
emergency organization
Direct cooperation between and
coordination of services and
staff and resolve any problems
that may arise
Represent the City in all dealings
pertaining to emergencies
Designate the order of succession
to the Office of Director, sub-
jec't to approval by the Council
Provide instructions for the
general public
Send information summaries to
ODP
11
January 1982
s�
In the event of a declaration
of local emergency, state of
or statP of war emer-
gency, the Director is empowered
to:
Make and issue rules and regu-
lations related to the pro-
tection of Tife and property;
to be confirmed at the earli-
est practicable time by
the Council
Obtain vital supplies and equip-
ment, bind the City fFor their
fair value, commandeering
them if necessary
Require the emergency services
of any Ci ty o F f i cer or em-
ployee and command the aid of
as many citizens as necessary
as disaster service workers
Requisition necessary -personnel
or materials from any City
department or agency
Execute all ordinary powers
as City Manager; all special
powers per this ordinance, by
resolution, or the Emergency
Plan; or by any statute,
approved agreement, or any
other lawful authority.
Assistant Director of Emergency Develop emergency plans and manage
the City's emergency program
Services: fire Chief Perform other duttls as assigned
by the Director
Staff Source: Plan organization and operations
Service Chiefs and Acting Service policy
Chiefs (see,below) Identify major operational
problems
Clerical Staff as as Assist the Director of Emergency
Services
Prepare intelligence summaries
for the Director
2, Situation Intelli snce Section
Includes Situation Display
Officer: Planning Director
Display Team Manager: To be
appointed by the Planning Director
Staff Source:
Planning staff
Clerical Staff as as
-12-
Manage the information collec-
tion and reporting system
Display situation and opera-
tional information
Evaluate situation information,
including damage assessment
Disseminate situation intelli-
gence
a
January 1982
0
3. Radiologicai Defense Section
Officer: Radiological Defense Officer Manage the fa1lout .monitoring
Director, Parks and Recreation system
Direct shelter system
Staff Source: Evaluate RADEF information
Trained Radiological Monitors in the Disseminate RADEF intelligence
following departments: Fire, Utilities/ Provide technical guidance on
Maintenance, Parks and Recreation, RADEF countermeasures
and Engineering
4. Communications Section
Including Message Center)
Officer: Chief, Police Department
Staff Source:
Police Department Personnel
Fire'Department Personnel
RACES (Radio Amateurs)
Manage communications systems
Receive, seed, and record EOC
messages
Distribute messages within the
EOC
Restore and maintain communica-
ti ons faci 1 i ;i es
5. Warning Section
Officer: Chief, Police Department Receive and disseminate warning
information
Staff Source: to be assigned by Chief Initiate alerting procedures
6. Emergency Public Information Section
Officer: Director, Personnel Department Prepare and disseminate emer-
Staff Source: gency public information
City Clerk
Library Staff
Clerical Staff as assigned
7. Procurement Section
Officer: Purchasing Officer
Staff Source:
Purchasing Staff
Finance Department Staff
Clerical Staff as assigned
Representatives from Business
Procure material and services
from public and private sec-
tors as required
G. Emergency Services
The various City and County emergency services are assigned responsibility
for performing basic and auxiliary tasks according to the following table:
(see Annexes for additional information)
1. Mass Care/Welfare Basic Tasks:
Chief: Director, County Department of
Social Services
-13-
Manage and operate reception
centers
Manage and operate public shelters
z1
January 1982
Personnel:
County Department of Social
Services Staff
Superintendent of Schools
Red Cross
Director, Recreation Department
2. Medic:al/Hdalth Service
Chief: Director, County Department
of Health Services
Personnel:
County Department of Health Services
Staff
Medical Personnel (private practice)
Hospitals, Community and Private
3. Law Enforcement Service
Chief: Chief, Police Department
Personnel:
Police Department Personnel
Police Reservists
Basic Tasks: (cont.)
Inventory and allocate temporary
lodaing
Provide EOC housekeeping support
Register displaced persons
Provide rehabilitation and
counseling services
Provide financial assistance
Provide registration and
locator services
Operate a registry
Auxiliary Tasks:
Collect and report information
Assist with first aid
Provide facility contamination
control
Basic Tasks•
Provide medical treatment for
sick and injured persons
Provide medical registration
services
Manage medical services, activi-
ties, facilities, and resources
Auxiliary Tasks:
Collect and report information
Provide first aid in support
of search and rescue
Provide facility contamination
control
Basic Tasks:
Enforce laws, rules, and
regulations
Provide security for facilities
and resources
Control pedestrian traffic
Alert the public (provide
warnings)
Auxiliary Tasks:
Collect and report information
Assist fire Department in search
and light rescue and area
contamination control
Assist with providing first aid
Assist the Coroner
-14- January 1952
4. Traffic Control Service
Basic Tasks:
Chief: Chief, Police Department
Enforce vehicular traffic laws
and regulations (including
Personnel:
those for designated routes
California Highway patrol Personnel
inside t1ije city)
Police Department Personnel
Police Reservists
Auxiliary Tasks:
Collect and report information
Assist in area contamination
control
5. Engineering/Public Works Service
Basic Tasks:
Chief: Assistant City Manager,
Provide damage assessment
Operations
Clear debris
Construct emergency facilities
Personnel:
Provide technical supervision
Utilities and Maintenance Staff
over all other emergency
Engineering Division Staff
construction
Construction Firms'Representatives
Auxiliary Tasks:
Collect and report information
Operate fallout monitoring
and reporting stations
Assist in search and heavy
rescue
Assist in first aid
Provide facility and area de-
contamination
Assist in area contamination
control
6. Fire Service
Basic Tasks:
Chief: Chief, Fire Department
Suppress fires and develop a
fire defense
Personnel:
Provide search and rescue
Fire Department Personnel
Auxiliary Tasks:
Collect and report information
Assist in first aid
Provide decontamination and
area contamination control
Provide shelter management
Provilie radiological monitoring
January 1982
5
r.
W
Basic Tasks:
Recover, identify, and dispose
of the dead
Auxiliary Tasks:
Register deaths, notify next of
kin, prepare and coordinate
list of the dead, maintain
necessary records, inform law
enforcement, health, and public
agencies
Basic Tasks:
Evacuate endangered animals
Round -up animal's
Establish.a temporary holding
faci-lity or facilities
Auxiliary Tasks:
Coordinate the return of animals
to owners
Provide liaison with wildlife,
ecological, and conservation
groups
Coordinate support functions of
area humane activities and
organizations
Collect and report data
Dispose of unclaimed and infirm
or injured animals
i
H. Support Services Basic Tasks:
Emergency,Resources Officer: Assist the State with the
City Manager's Office; Assistant management, including,pro-
City Manager, Developmental tection, control, and priority
allocation of emergency re -
Resources Board: sources
City Clerk
Division Chiefs listed -below Auxiliary Tasks:
Personnel: See Division, listed below
Administrative Services Staff
The following divisions are extensions of the State resources management
organization:
1. Construction Division Basic Tasks:
Chief: Director, Building Department Provide for the repair, modi-
fication, and/or construction
of emergency facilities and
housing
7. Coroner
Chief: County Coroner
Personnel:
Coroner Staff
8. Animal Control
Chief: Director, County Department
of Animal Control
Personnel:
County Department of Animal Control
Personnel
County Veterinarian Staff
-16-
January' 1982
P
Construction Division (cont.)
Personnel:
Maintain an inventory of sources
Building Department Staff
and provide for the procurement
Utilities and Maintenance Staff
and allocation of building
supplies
Auxiliary Tasks:
Collect and report information
2. Housing Division
Basic Tasks!
Chief: Director, Building Department
Survey existing housing
Maintain a housing inventory
Al -locate housing damage and
Personnel:
arrange repair
Housing and Redevelopment Staff
Survey -sites for expedient
Real Estate Firms Representatives
and improvised housing
Establish needs for and
arrange expedient housing
construction
3. Food Division
Basi-c Tasks:
Chief: City Manager's Office;
Maintain an inventory of sources
Assistant City Manager, Administration
and provide for the conserva-
tion, allocation, and distri-
Personnel:
bution of foodstocks
County Department of Agriculture
and Weights and Measures Staff
Auxiliary Tasks:
County Farm and Home Advisor
USDA Representatives
Provide technical advice with
Food Industry Representatives
regard to contaminated food
products and agricultural lands
Collect and report information
4. Health Division
Basic Tasks:
Chief: Director, County Department
Maintain an inventory of sources
of Health Services
of health resources and provide
for their emergency allocation
Personnel:
Determine public health hazards
County Department of Health Services
Establish standards for control
Staff
of public health hazards
Sanitary Engineers
Provide technical guidance
County Department of Animal Control
and supervise activities to
Staff
control public health hazards
County Veterinarian
Detect and identify hazardous
biological and chemical agents
Auxiliary Tasks:
Collect and report information
�S
-17-
January 1982
5. Personnel niv4,s4,0n
Basic Tasks:
Chief: Director, Personnel Department
Maintain a personnel inventory
Personnel:
and provide for the recruit -
Personnel Department Staff
ment, retraining, and alloca-
tion of available
Business and Industry Representatives
staff
Volunteer Groups
Auxiliary Tasks:
Collect and repart information
6. Petroleum Division
Basic Tasks:
Chief: Assistant City Manager,
Operations
Maintain an inventoryof
sources and provide for the
Personnel:
procurement and allocation of
Mechanical Maintenance Staff
Petroleum Industry Representatives
Petroleum stocks
Mfacilitiesanage and operate supply
7. Transpo;�tation Division
Basic Tasks:
Chief: City Engineer
Maintain an inventory of
Personnel:
sources and provide for the
Engineering Division Staff
procurement and allocation
of transportation resources
Department of Education
s (school buses)
Manage and operate essential
.'
` Transportation Industries
transportation systems
Auxiliary Tasks:
r
Collect and report information
8. Utilities Division
Liaison:
Director, Utilities Department
Serve as liaison to local
utilities (water,
gas, and
electric) representative
9. Telecommunications Division
Liaison:
Chief, Police Departemnt
Serve as liaison to County
communications representatives,
i
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January 1982
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January 198
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ATTArFIMFNT A
CONTINUITY OF GOVERNMENT
A
A. Lines of Succession and Alternate Officials
1. The City Council has provided for the preservation of the City
government in the event of a major emergency. The Council desig-
nates standby officers to fill-in in the event of vacancies.
k
2. The City Manager is the Director of Emergency Services for the
City of Carlsbad. Should the City Manager be unable to serve
in that capacity, individuals who hold permanent appointments to
the following positions automatically serve as Acting Director,
in the order shown, and serve until a successor can be appointed
by the City Council. An individual serving as Acting Director has
the authority and powers of the position of Director.
Line of Command - Director of Emergency Services
1. City Manager, Director
2. Fire Chief, Assistant Director
3, Assistant City Manager, Development
4, Police Chief
5, Assistant City Manager, Operations
6. Assis tant,Ci.ty Manager, Administration
B. Temporary Seat of Government
The temporary seat of government, in the event the normal location is
not available, because of emergency conditions, will be as follows:
Harding Street Community Center, Recreation Room
3096 Harding Street .................... First Alternate
Valley Jr. High School
1645 Magnolia Street ................... Second Alternate
z &�
January 1982
-20-
ATTarWVI:NT R
A STATE OF WAR EMERGENCY
A. General
The magnitude and unique nature of the survival problems associated
with nuclear war deserve special attention. The probability that much
of the nation would be affected in a similar manner and at the same
time requires that the responses planned to cope with such an event be
as uniform as possible.
Since there are a number of possible variations on the situation which
could occur, it is necessary to plan in terms -of the remedial response
appropriate to each. Such planning lends itself to time - phase consid-
erations. Therefore, attention is given to those actions to be taken
befor, during and after the onset of a State of War Emergency.
B. Assumptions
1. National policy considers nuclear attack to be the primary threat.
2. There is also the possibility of an attack with conventional, incen-
diary, chemical, or biological weapons.
3. Locations in California might be attacked with little or no advance
warning; by aircraft, missiles, aerospace weapon systems, clandestinely
introduced weapons, or by sabotage.
4. There is no way of knowing the exact nature of potential enemy inten-
tions or precise capabilities for attack.
5. Radioactive fallout poses the greatest threat to the largest number
of people, and the most lives can be saved through effective use of
fallout shelters.
6. Although control and recovery tasks are similar in many respects,
there are major differences. These differences must be recognized,
identified, and planned for.
7. Significant departures from routine operations can be anticipated.
8. The overall resource requirements are much greater than those of
any other emergency.
9. Interjurisdictional mutual aid may be unavailable and/or delayed.
C. Operations - War Emergency
1. Warning Conditions
Three warning conditions are prescribed for war emergencies:
.2t
-21- January 1982
a. Strategic Warning -- Enemy initiated hostilities are imminent.
Warning time may vary from several hours to several days and is
the basis for initiated readiness condition. (See 3, below).
b. Tactical Warning -- An actual attack against this country has
been detected. The attack warning signal is sounded and public
announcement made.
C. Attack (No Warning) -- A weapon has been detonated.
General procedures for the receipt and dissemination of warning,
and the general characteristics of the warning system, are given
in Attachment D, Warning Systems.
2. Operational Time Periods
Operational requirements vary with time and circumstances. For
planning purposes, emergency operational phases are identified by
the activity appropriate to each period.
a. Increased Readiness -- the period during the buildup to and the
onset of an emergency. During this time, emphasis is on attain-
ing the highest level of readiness.
b. Remedial Operations -- a period during and after an attack when
the public is generally confined to fallout shelters and the
operations of the emergency organization, are primarily shelter
based. Emphasis i-s on survival and organized remedial operations.
C. Recovery Operations -- a period during which the emergency organ-
ization conducts priority operations to restore essential services
and supply systems and the public has either temporarily or per-
manently emerged from fallout shelters. Emphasis is on sustain-
ing the surviving population.
d. Final Recovery -- an extended period (which may last for months
or years) during which emergency operations are phased out and
nationwide resources management operations become paramount.
3. Readiness Conditions
International events may continue to produce critical situations
requiring civil governments to undertake precautionary measures
prior to an attack warning. Therefore, a series of readiness con-
ditions, numbered inversely from Condition Four through Condition
One, has been established. Each condition prescribes specific pre-
paratory actions to be taken by the emergency organization. Specific
actions to be taken under each readiness condition are outlined in
Attachment C, Basic Actions for Increased Readiness - War Emergency.
Changes in readiness conditions are announced by the Governor or
his designated representative.
Announcements of Condition Three and Condition Two are made initially
A over the department of Justice California Law Enforcement Teletype
System (CLETS) and followed by an official announcement through the
-22- January 1982
news media. Condition One will exist upon proclamation by the Governor
or w.�tc^^a+; caiay ►upon re sei nt of a tactical warni nq or an attack.
4. Increased Readiness Actions
In the event of a change in readiness conditions, civil government
personnel prepare for and implement priority operations, such as
those in the list that follows. 'ihe list is not prioritized.
a. Prepare to conduct post -attack operations.
b. Mobilize and pre -position the emergency organization.
c. Activate the following facilities:
(1) Emergency Operating Center (EOC):
(2) Public care facilities, especially fallout shelters,
preparing them for occupancy by inventorying stocks, fill-
ing deficiencies, and distributing supplemental survival
supplies; and
(3) Medical and health facilities, such as blood collection
stations and immunization clinics.
d. When authorized, expand fallout shelter capacities by upgrading
existing structures and constructing expedient shelters.
e. Produce and disseminate emergency information and instructions
` to the public.
f. Implement emergency training and public education programs.
g. Pre -position vital records and resources to maximize post -attack
availability and establish custody, control, and protective
security.
h. Review plans for emergency resources management.
i. Reaffirm plans for continuity of government.
j. Advise selective shut -down of business, schools, and industry.
k. Prepare to direct and control movements of the public to fallout
shelters.
1. On notice of a warning condition, public responses should be
as follows:
-23-
31
January 1932
M,
A
i
Warning Co. ition
Strategic Warning
(no public warning signal)
Tactical Warning or
Attack, No warning
(attack warning signal)
5. Remedial Operations
Public kt.,ponse
1 • L 1'J 42ti I G aNN( opt ia, Ctii station
2. Follow the instructions given
3. Prepare to occupy shelters
1. Listen to appropriate- EBS* station
2. Follow the instructions given
3. Occupy fallout shelters
Those actions to be taken after a nuclear detonation are discussed
below.
a. Fire and Radiation
(1) The initial effects of a nuclear detonation are heat,
blast, and radiation in the target area.
(2) The area surrounding the target area will pose the problems
of fallout radiation and fire for disaster workers.
(3) Countermeasures to combat fire and fallout radiation are
the responsibility of the fire service (refer to the Fire
Service Annex) and the radiological defense section (refer
to the Direction and Control Group Annex).
b. Assessment is made of the surviving communications systems and
they are reestablished as necessary.
C. In the event of attack, the highest numbered basic operating sit-
uation that prevails within an area determines the actions to
be initiated in the immediate post -attack period. The actions
are summarized below.
Undamaged Area Actions
The undamaged area actions apply in areas with minor or no
blast and fire damage and negligible fallout, or in which
fallout radiation has decreased to the point where shelter,
occupancy is no longer required.
The emergency organization will take the following actions,
as appropriate. (The listed order does not indicate pri-
ority.)
(a) Continue or initiate pre -attack actions.
(b) Survey and evaluate the emergency situatit... and advise
the County Office of Disaster Preparedness at the
County EOC.
*See Attachment F, Emergency Broadcast System 3 Z
-24- January 1982
(c) Improve the fallout shelter capability.
(d) Maintain, restore, and operate essential facilities and
systems.
(e) Emerge from fallout shelters c.h a standby basis.
(f) Establish special safety measures by implementing
health controls and appropriate Radiological Defense
(RADEF) countermeasures and marking areas.
(9) Provide available mutual aid to more seriously affected
areas.
(h) Care for distressed people by operating public shelters;
registering and locating displaced persons; and providing
emergency medical treatment, food, and lodging.
(i) Maintain law and order.
0) Establish government custody, control, and protective
security over vital resources.
(k) Establish priorities; allocate and distribute personnel
and materials, based on an estimate of available re-
sources and supplies.
- (2) Undamaged Fallout Area Actions
x
In fallout areas essentially undamaged by blast or fire, post-
attack responses are determined by the general need for fall"
out protection of the public and disaster- services workers.
Many normal operations must be stopped or severely 'limited
during shelter occupancy. Unsheltered activities are pro-
gressively implemented as the radiation hazard decreases.
The emergency organization takes the following priority
actions, as appropriate. (The listed order does not indi-
cate priority.)
(a) Continue, or initiate, pre -attack actions as appropriate.
(b) Survey and evaluate the emergency situation.
(c) Implement radiological monitoring and reporting.
(d) Produce and disseminate situation intelligence, with
special attention given to fallout warning and arrival
times.
(e) Estimate remaining resources required for recovery.
(f) Produce and disseminate emergency information and in-
structions to the public.
(g) Implement health controls and RADEF countermeasures.
33
-25- January 1982
r
(h) Occupy and manage fallout shelters and the_cnr I
,.,Id
operate communications systems. a.vv U
(i) When radiation levels permit, allocate and distribute
food, water, clothing, fuel, and medical supplies to
the shelters.
0) When radiation levels permit, provide support to more
seriously affected areas or receive support from and/
or relocate to less seriously affected areas.
(k) As soon as practicable, restore, operate, and maintain
other essential facilities and systems.
(3) Fire Area Actions
The detonation of a nuclear weapon can create scattered
fires at distances where only minor structural damage
occurs, threatening persons in shelter. Prompt action is
necessary to prevent these fires from spreading.
The emergency organization responds by preparing for and
taking the following actions, as required. (The listed
order does not indicate priority.)
(a) Utilizing self-help shelter fire suppression teams
to figPit fires.
(b) Using fire department personnel and equipment to con-
tain fires beyond the capability of self-help fire
suppression teams.
(c) Surveying and evaluating the fire situation and, as
protection against the immediate threat of fire is
accomplished, taking action to protect against fallout.
(d) Relocating the threatened population to fire -safe,
fallout -protected areas as it becomes possible to do so:
6. Recovery Actions
As fires burn out and radiation levels decrease, emergency operations
phase into the recovery period. Emphasis is then placed on the
management of resources to meet continuing survival and recovery
needs.
The priority actions during this period are:
a. Continuing to initiate and conduct operations required for sur-
vival and recovery as described in the preceding schedules.
b. Establishing and/or continuing to operate a resources management
system, based on the State Emergency Resources Management Plan,
including:
(1) Planning for, determining priorities for, and implementing
general reconstruction and production operations.
-26-
341
Oanuary 1982
(2) Controlling the distribution of essential resources; and
imnlPmentinn price and rant controls and consumer.rationing;
c. Taking the steps required to maintain a stabilized economy.
-27-
J S •�
January 1982
I
nr;,ICI$MEP:1 C -
'� BASIC ACTIONS FOR INCREASED READINESS - WAR EMERGENCY
A. General
1. An increase in international tension may require precautionary
actions by the Federal, State, and local governments for in-
creased cadiness and protection. The State Office of Emergency
Services determines and disseminates readiness conditions, which
designates progressive phases and -automatically initiates specific
procedures for orderly transition frvii peacetime to wartime readiness.
2. Readiness Condition Four is in effect during normal peacetime con-
ditions. Announcement of Readiness Condition Three and Readiness
Condition Two is received initially at the Sheriff's Office, re-
layed promptly to the Director of Emergency Services, and followed
by official public announcements. Readiness Condition One exists,
automatically, upon notice of attack warning or a proclamation by
the Governor.
3. The City carries out increased readiness actions under readiness
conditions, as listed below.
B. Readiness Condition Four
1. Situation
During this normal peacetime situation, civil governments operate
in their normal manners, giving priority to their statutory responsi-
bilities and obligations. They develop and improve their readiness
posture for both war -caused and peacetime emergencies. Civil'ian
and government agencies conduct appropriate emergency planning,
orientation, training, and other readiness programs.
2. Actions
a. Develop and improve emergency organization, staffing, resources,
and supporting systems.
b. Review, update, and maintain the basic emergency plan, annexes,
and prepare inventory lists of emergency personnel and material
resources; designate relocation sites for essential resources;
and issue implementing administrative orders, updating as neces-
sary.
C. Develop the maximum practicable fallout shelter capacity and
readiness in existing structures; and prepare plans for the
emergency construction, use, and management of expedient fallout
shelters.
x d. Develop and improve the EOC and other control facilities.
e. Improve emergency communications, warning, radiological de-
fense, situation intelligence, emergency public information,
and mass care systems.
No-28- January 1982
f. Conduct and participate in tests; exercises_, and trai::ing pro
grams and prepare plans for accelerated emergency training.
g. Conduct public information programs to educate people regarding
readiness and survival.
C. Readiness Condition Three
1. Situation
In this condition the international situation warrants increased
readiness in government, without formally alerting the general
public.
2. Actions
a. Notify key personnel within the emergency organization.
b. Inform government officials, employees, and local leaders of
plans for increased readiness.
C. Place priority on actions required to increase readiness through-
out the departments of the City.
d. Cancel leaves of absence for government employees and advise
other public and private agencies to do the same.
e. Review and update plans and procedures for alerting and mobil-
izing the emergency organization and for warning and informing
the public.
f. Check fallout shelter signs, communications systems, management
personnel, and plans for shelter assignments, public movement
to shelter, in -shelter activities, and emergency controls.
g. Check availability and readiness of regular and auxiliary emer-
y?ncy personnel and equipment particularly for mass care, communi-
cations, and radiological defense systems, and augment as necessary.
h. Review plans for management of essential resources. Refer to
the California Emergency Resources Management Plan and sub -plans.
i. Review organization and readiness of EOC staffs and facilities;
verify lines of succession to key positions in the emergency
organization and in City departments.
j. Review and update plans for accelerated training and conduct
training in emergency skills.
k. Activate an information agency capable of answering an increased N
volume of inquiries from the public.
1. Distribute emergency information literature and advise the public
to continue normal activities and do the following:
-29- January 1982
(1) Review their personal and family readiness and survival
plans, emphasizing shelter expedients and the reduction
�. of vulnerability.
(2) Obtain adequate stocks of food, water, and other necessities.
(3) keep informed of the developing situation and comply with
government instructions.
M. Check readiness to impose emergency controls. (Refer to the
Governor's Orders and Regulations for a War Emergency.)
n�
D. Readiness Condition Two
of
1. Situation
At this time, the international situation indicates great risk of
general war, requiring extra precautionary measures by government
at all levels, and the public, to prepare for a War Emergency.
2. Actions
a. Alert government officials and key personnel within the emergency
organization.
b. Place cadre staff on 24-hour duty at the EOC and the remainder
of staffs on standby alert and prepare and test such facilities
for full activation.
` C. Report status to the County EOC as soon as the EOC cadre staff
has been activated, and then daily at 1200 and 2400 hours.
d. Increase fallout shelter capacity and readiness, as follows: -
(1) Improve licensed structures and arrange for use of un-
licensed structures which will provide fallout protection.
(2) Insure that structures which provide fallout protection
are marked and ready for occupancy, and that shelter manage-
ment personnel, RADEF equipment, and communications systems
are available and operable.
(3) Construct expedient and improvised fallout shelters and
advise the public on methods of constructing expedient
group and family shelters.
e. Test and improve emergency communications and information re-
porting systems, installing additional equipment as necessary.
f. Intensify training of disaster service workers and the public
in emergency skills.
g. Transfer essential resources and vital documents and records
to protected relocation sites.
h. Verify that individuals designated as alternates or standby
successors to key government officials or positions carry iden-
tification and proof of official status and are allocated to
-30-
3r
January 1982
a
specific fallout shelters.
i. Keep the emergency organization and the public informed of the
situation, stressing what actions they should take before, during,
and immediately after enemy attack, especially those actions which
will reduce vulnerability.
j. Continue appropriate actions shown under Readiness Conditions
Four and Three, complete positioning of essential survival re-
covery items, and finalize the inventory lists of emergency per-
sonnel and resources.
k. Assess readiness progress and priority operations. Refer to
operations schedules.
1. Advise selective shutdown of business, industry, and schools.
E. Readiness Condition One
I. Situation
At this point, the Federal Government considers that war is imminent
or inevitable. The Governor proclaims a State of War Emergency to
permit full mobilization of emergency organizations and completion
of wartime readiness.
2. Actions
a. Mobilize entire emergency organization.
b. Place entire EOC staff on 24-hour duty, fully activate EOC and
report status to the County EOC.
C. Implement the emergency plan for a State of War Emergency. Re-
fer to operations schedules.
d. Advise public to listen to local EBS radio stations for emer-
gency broadcasts, add to follow the instructions.
e. Continue actions started under Readiness Conditions Three and
Two as time and safety permit, with maximum emphasis on con-
struction of expedient and improvised fallout shelters and other
actions which will reduce vulnerability.
f. Complete intensified training in emergency skills and make any
final preparations.
-31-
January 1982
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January 1982 Li Q
Interjurisdictional Chart
Line of Authority Duri nq a State of War Emergeng
GOVERNOR
STATE OF CALIFORNIA
DIRECTOR *
CALIFORNIA OFFICE OF EMERGENCY SERVICES
REGIONAL MANAGER **
CALIFORNIA OFFICE OF EMERGENCY SERVICES
DIRECTOR OF EMERGENCY SERVICES ***
UNIFIED SAN DIEGO COUNTY
EMERGENCY SERVICES ORGANIZATION
i
i
i
DIRECTOR **** _ _ _ _ _ ' DIRECTORS
COUNTY OF SAN DIEGO -�— — CITIES IN COUNTY
.. _ _ .... Line of Coordination and Communication; may become line of
authority by State action.
* Has emergency authority delegated from Governor.
** Has emergency authority delegated from Director, OES
*** Has emergency authority derived from Unified San Diego County
Emergency Services Agreement between and among member juris-
dictions (cities and County); and/or as may be delegated from
higher authority.
**** Has emergency authority delegated by local ordinance.
-33- January 1982'
ATTAr..HMFNT n
WARNING SYSTEM
A. General
The warning system is the means for rel9ying notice from the Federal
Government of impending or actual attack to the public. Appropriate
responses and the most effective use of the warning information may -he
limited by the amount of time available.
Refer to the San Diego County Warning Plan for information about
procedures for disseminating warning.
B. Actions
Warning actions are characterized by requiring high priority for a short
period of time, the use of mass media systems for passing warning to the
publ-ic, the small number of workers necessary to operate the system,
the demand for fast activation of the system on short notice, and the
need to maintain readiness to repeat all actions in the event of success-
ive alerts or attacks.
The National Warning System (NAWAS) feeds warning information to the
state warning point. After the state warning point transmits the warning
condition, the warning points inform the local governments. Local
authorities then inform the public by means of outdoor warning devices,
i
mobile loudspeakers, and any other means.
C. Facilities
Warning information is received at the County Sheriff's Office via, the
NAWAS system, the California Law Enforcement Telecommunications System
(CLETS), Public Safety radio systems, and the Radio Amateur Civil Emer-
gency Services (RACES) network.
The EBS. and the LIFE systems are expected to provide coverage -for a
large part of the population. (See Attachment F.)
Notice of warning is also broadcast from the various county and city
communications centers to special facilities (hospitals, f;Ne stations,
utility stations, etc.) Key workers of emergency organiz6iions may
be alerted by telephone or radio.
D. Types of Warning
1. Attack Warning
A warning tnat an actual attack against this country has been detected.
2. Fallout Warning
A warning of radiation hazards resulting from a nuclear cause.
-34- January 1982 trL
E. Warning Signal
The attack warning signal consists
sirens, or short blasts on horns or
deemed necessary (see below).
F. Warning Signals - War Emergence
of a 3 to 5 minute wavering tone on
whistles, repeated as often as
Outdoor warning devices, the EBS, and other communications media will
announce a warning condition by means of standard signals or words.
WARNING SIGNALS
STRATEGIC
-
COMMUNICATIONS
.WARNING
TACTICAL
ATTACK
ALL
MEDIA
(READINESS
WARNING
(NO
CLEAR
CONDITIONS)
WARNING)
EBS, and other
Message includes
"THIS IS
"THIS IS
Voice or
voice or printed
'information, ad-
AN ATTACK
AN ATTACK
printed an -
message systems
vice, and action
WARNING"
WARNING"
nouncement
instructions
Outdoor warning
NONE
ATTACK
ATTACK
NONE
devices (siren,
WARNING
WARNING
whistle, or horn)
signal
signal
G. Warning Signal - Peacetime Emergencies
Warning of an extraordinary peacetime emergency may be received by local
government over the California Law Enforcemeni. Telecommunications System
(CLETS), public safety radio systems, NAWAS, the LIFE system, and/or
other means. The attention or alert signal is not used in this County.
-35-
January 1982//,
ATTACHMENT_E
EMERGENCY COMMUNICATIONS SYSTEMS
A. General
The communications systems installed in or controlled from the EOC
support the field activities of elements of the emergency organization.
Other communications systems provide links to nearby jurisdictions and
to higher levels of the statewide emergency organization. The communi-
cations systems in the EOC include the radio systems licensed to the
City. Such radio systems are augmented, in an emergency, by radio
systems licensed to other governmental agencies, to private industry,
and to individuals.
During a State of War Emergency, privately owned radio systems, equip-
ment, and facilities, subject to approval of the licensee, will generally
by used to support field activities of the emergency services not al-
ready linked directly to the EOC.
Refer to the Direction and Control Annex for specific information on
action, organization, and available systems. All radio equipment
will be operated in compliance with FCC Rules and Regulations.
B. Operational Considerations
1. The Communications and turning Section is one of several staff
sections which are organized and assigned at the EOC to'provide
communications for the direction and control of emergency opera-
tions. Messages directed outside of the EOC are handled by communi-
cations operators in this staff section.
The Message Center processes and distributes messages within the
EOC. The EOC communications and message center staff is super-
vised by the EOC Communications Officer.
Operators to run the EOC communications equipment are provided by
those agencies regularly using these systems. The EOC Communica-
tions Officer provides operators for other communications equip-
ment,which augments regular capabilities, and also provides for
personnel to service and maintain communication equipment and
facilities in the EOC.
2. Allocation of Radio Systems
Radio systems subject to City control are used for message trans-
mission according to the following table, subject to such revisions
as may be issued by the EOC Communications Officer. Operators
of radio equipment provide service in accordance with this table,
or revisions as issued.
` G
-36- January 1982
t
Radio Systv—, Emergencyy Service
Police Department Law Enforcement
Traffic Control
Fire Fire
Utilities Maintenance, Engineering, Parks Utilities Maintenance
and Recreation Radiological Defense
Emergency Broadcast System Emergency Public Information
RACES All Emergency Services
3. Emergency Public Information Media
Emergency information, advice, and action instructions are announced
to the public by various media. The Emergency Broadcast System (EBS),
the Lifesaving Information For Emergencies (LIFE) radio system, and
mobile loudspeakers are the primary media. Other available media are
bulletins, handbills, and the press. The Emergency Public Informa-
tion Officer releases all emergency public information originated
by the emergency services organization.
4. Message Priorities
Message classifications and priorities are as follows:
Emergency Messages . . . . . . . . . . . . Highest Priority
Operational Priority Messages . . . . . . Second Priority
Priority Messages . . . . . . . . . . . . Third Priority
Routine Messages . . . . . . . . . . . . . Lowest Priority
Each message is classified on the EOC message form by the originator
and a priority is assigned to it in accordance with the above table
and/or with instructions issued by the Director or the EOC Communi-
sations Officer
C. Communications S stems Inventory
1. Systems in the EOC:
a. Carlsbad Police Department
b. Carlsbad Fire Department
C. Public Works
d. Law Enforcement Mutual Aid (Blue)
CLAMARS
e. Fire Mutual Aid
Fire Zone 2 (Orange)
f. CLEMARS "-CnL�. Law @`c��arc�.nrr,� `c1n.\� ''h'o\o 16%L\W-'n
g. Ham equipment (RACES)
h. Landline (commercial telephone)
-37-
January 1982
d
2. Shelter Communications System
The communications system for shelter operations is provided by the
use of either RACES or Citizens Band equipment, as well as land lines
that are available.
an
4
January 1982
ATTACHMENT F
EMERGENCY BROADCAST SYSTEM (EBS)
AND
y LIFESAVING INFORMATION FOR EMERGENCIES (LIFE)
I. Emergency Broadcast Systtm (EBS)
A. General
The State of California has been segmented into "EBS Operational
Areas" for the purpose of disseminating emergency information. y,
The San Diego EBS operational area encompasses the entire County.
Two EBS radio stations, KOGO and KCBQ, have been provided with
fallout -protected -Facilities. Other unprotected, but authorized, ;4
EBS stations continue to operate as conditions permit.
All authorized stations in each EBS operational area broadcast a
common program. A "program entry point" has been established for
each EBS area. Emergency services authorities for each jurisdiction
will prepare emergency information and action instructions pertinent
to the people of their respective jurisdictions, which will be routed
to the designated program entry point for broadcast.
B. Operational Considerations
Authorized stations continue to broadcast on regular assigned fre-
quencies during a war emergency. They broadcast their call 'letter
identification and the area identification, and listeners are ad-
vised to monitor those stations which serve the area in which they
are located, since EBS announcements may vary according to the
area served
C. Facilities
The Program Entry Point for the San Diego EBS operational area is
the County EOC. Emergency information will be routed to the
program entry point via RACES radio or telephone. EBS stations
serving the San Diego EBS Operational Area are:
t STATION FREQUENCY
KOGO* 600
KFMB 760
KMJC 910
KMLO 1000
i KSDO 1130
KCBQ* 1170
KSON 1240
KUDE 1320
KGB 1360
KOWN 1450
* Protected Station
Jan uar 1982�
-39- y
II. LIFESAVING INFORMATION FOR EMERGENCIES (LIFE)
` A. u"erie'r`a i
The Office of Disaster Preparedness has developed the LIFE system
for the purpose of disseminating emergency information and warnings
in times of emergencies.
,
5
B. stem Operation
The LIFE system uses the EBS radio facilities at the EOC and the
sub -carrier frequency of KPBS-FM. This station has a transmitter b
on Mt. Miguel, south of E1 Cajon. The LIFE messages of public
information can be received at participating broadcast stations
and public/private facilities on special monitor receivers.
C. System Access
The LIFE system is available to a jurisdiction's officials (Mayor,
City Manager, etc.) and can be accessed when t`e operational area
EOC is activated via the telephone system (440-6300). When the
operational area EOC is not staffed, the request for access is to
be made to ODP (448-4611, 24 hours). If telephone service is
not available to the jurisdiction, programming requests should
be passed over the RACES radio system to the operational area
EOC. Specific access instructions are found in each jurisdiction's
Emergency Information Plan or Warning Plan.
k -
I
qr
-40- January 1982
u
ATTACHMENT G
EMERGENCY 01DCD'ITTMr- r1:h1TCD
A. General
The Emergency Operating Center (EOC) is a facility for the centralized
direction and control of the emergency organization and the general
public. During an Increased Readiness Condition or an Alert Warning,
the EOC is activated and staffed to the extent required.
B. Operational Considerations
The chief of each element of the emergency organization, or designated
representative, and staff assistant direct and coordinate emergency
operations from the EOC.
C. Facilities
The following facilities are scheduled for emergency use:
Police Department Headquarters,
1200 Elm Avenue Designated EOC
Central Fire Station,
1275 Elm Avenue First Alternate
Pine Street School,
801 Pine Street Second Alternate
-41-
wl t
January 1982
1Z
ATTACHMENT H
FALLOUT SHELTER SYSTEM
A. General
The fallout shelter system consists of existing facilities which, due
to their construction features, will significantly reduce exposure to
hazardous radiation in the event of fallout resulting from the detonation
of nuclear weapons. Fallout shelters are a radiological defense counter-
measure. Although the use of in -place fallout shelters is the central
countermeasure around which all war emergency operations are based,
other RADEF countermeasures must also be used to insure the minimum
exposure of the population and the emergency service workers.
B. Operational Considerations
The effective use of fallout shelters, existing and expedient, requires
the timely dissemination of information, advice, and action instructions
to the public and the regulation of movement to public shelter. The
location of fallout shelters within the County requires some inter -
jurisdictional movement of people to shelter.
There are insufficient existing fallout shelters in San Diego County
for all residents. Therefore, the construction of expedient shelters
is a priority activity in the event of a change in readiness conditions.
(See Attachment C, Basic Actions for Increased Readiness - War Emergency.)
The glass Care/Welfare Service provides staff for the management of in -
shelter activities. Refer to the shelter management division section of
the Mass Care Annex. t
C. Expedient Shelter
The construction of expedient shelters is governed by the following factors:
F
I. Designation of suitable sites.
2. Availability and mobilization of emergency construction teams.
4
3. Availability and mobilization of emergency construction equipment.
4. Provision of survival supplies.
-42 January 1982
ATTACHMENT I
DISASTER ASSISTANCE CENTERS
Disaster Assistance Centers (DACs) are a cooperative effort between several
levels of government and the Red Cross. They are opened when a disaster has
occurred and there has been a presidential declaration, which makes available
Federal disaster relief assistance. In a DAC, Federal, State, and local agency
representatives are available to provide information and assistance about
disaster relief programs. This means that disaster victims can receive all
of the information they need and make all necessary applications in one
facility. The DAC facilitates coordination of the various programs, on -the -
spot, between the representatives.
The responsibilities of the various levels of government and the Red Cross
are as follows:
A. The Federal government coordinates with the State in setting up DACs,
usually inspects the sites and may provide representatives from the
following agencies, as determined by the Federal Coordinating Officer,
normally the Regional Director of FEMA, Region IX:
I. Small Business Administration (SBA)
Provides information about and takes applications for low -interest
home and business loans.
2. Department of Housing and Urban Development (HUD)
Along with local and State resources, provides temporary housing,
assistance and guidance relating to existing FHA loans and other
low -interest loans, limited home repair, and rental and mortgage
payment assistance.
3. Department of Agriculture (USDA)
Provides assistance and guidance relating to existing Farmers
Home Administration and Rural Electrification Act loans and other
low -interest loans.
4. Internal Revenue Service (IRS)
Sometimes is represented and provides income tax assistance.
B. The State government coordinates with the County government in selecting
DAC sites and with the Federal government in staffing them and furnishes
representatives to provide services. Such representation is determined
by the State Coordinating Officer, normally the Director of the Office
of Emergency Services (OES), and may include:
1. DES
Provides a State Coordinating Officer, assists in setting up the
DACs, and provides staff wherever needed.
2. Department of Social Services
Provides Individual and Family Grants
3. Employment Development Department
Provides State unemployment compensation for eligible disaster
victims and, if implemented, disaster unemployment compensation.
Furnishes information related to employment and vocational re-
training.
-43- January 1982 /
. x
4. Department of Housing and Community Development
Sometimes provides temporary housing and buildinq inspection.
5. Department of Veterans Affairs
Provides assistance to victims whose homes or farms are financed
under the Cal Vet Program.
6. Other possible representation from the State includes the State
Contractors Licensing Board, for contractor assistance, and the
State Franchise Tax Board, for Income Tax assistance.
C. In general the County government's role is supportive; assisting the State
and Federal representatives, providing local coordination of the centers,
and furnishing staff when needed to provide services, which include, but
are not limited to, those listed below. The County also pays any costs
associated with the centers, such as rent.
The DAC sites to be used in the event of inundation due to dam failure are
preselected and are found in the County's Dam Evacuation Plan.
1. Office of Disaster Preparedness (ODP)
Serves as the lead agency for the County. Provides an Gperations
Officer to serves as Disaster Assistance Manager to coordinate all
of the County activities and serve as liaison to the State and
Federal agencies, other jurisdictions, and private groups.
2. Department of Public Welfare
In cooperation with the Red'Cross, receives and distributes food
and clothing from government and private sources and provides for
other personal needs. Provides eligibility workers to do the intake
and exit interviews.
3. Planning Department, Codes Division
Provides staff to make available information about building permits,
zoning and other regulatory requirements. Provides building inspectors
to inspert ;comes for safety and needed repairs.
4. Department of Transportation
Provides staff to give information about road rebuilding and repair
to disaster victims.
5. Department of General Services, Facilities Services Division
Provides tables and chairs for the centers, including their trans-
portat,on and set up.
6. Department of Sanitation and Flood Control
Provides staff to make available flooding information, including
protective measures that can be taken. Also, if requested to do
so, provides staff to read and interpret inundation maps.
7. County Assessor
After some disasters, provides staff to accept applications for
reappraisal.
8. Department of Health Services
Provides staff for information regarding public health matters such
-44- January 1982
. R
as safety of water and food supplies, adernikry Cf And methods of rodent control.*"'aye u'spo�ai,
D. Red Cross
In coordination with State and County welfare agencies, conducts regis,r
tration and referral services and provides for individual and family
needs; for example, food, clothing, shelter, and supplemental medical
assistance.
E. Any city suffering heavy damage provides staff to act as liaison and to
provide specific information about the c-iy. For example, public works
and engineering personnel, as well as building inspectors, would probably
be required at the DAC.
F. Disaster Service Centers
These centers are designed for follow-up contacts and, therefor, usually
have only a few primary service representatives and are much smaller
operations than DACs.
-45-
.C3
January 1982
I
- SAMPLE
'RESOLUTION REQUESTING GOVERNOF D
PROCLAIM A STATE OF EMERGENCY
WHEREAS, on 19 the Board of Supervisors of the
County of found that due to heavy rains, windstorms, floods,
or other causes, a condition of extreme to life and property did exist in
County; and
WHEREAS, in accordance with state law the Board of Supervisors declared an emer-
gency did exist throughout said county; and
WHEREAS, it has now been found that local resources are unable to cope with
the effects of said emergency;
NOW THEREFORE, IT IS HEREBY DECLARED AND ORDERED that a copy of this declaration
be forwarded to the Governor of California with the request that he proclaim the
County of to be a state of emergency; and
I1' IS FURTHER ORDERED that a copy of this declaration be forwarded to the
State Director of the Office of Emergency Services; and
IT IS FURTHER RESOLVED that (Title) is
thereby designated as the authorized representative for public ass;,tance and
Title) is hereby designated as the authorized
representative for individual assistance of the County of for the
purpose of receipt, processing, and coordination of all inquiries and requirements
necessary to obtain available state and federal assistance.
Dated:
Attest:
Clerk of the Board of Supervisors
Board of Supervisors, County of
County of }
State of California
-46 -
,: 41
January 1982