The California Mass Fatality Management Guide: a Supplement to the State of California Coroners’ Mutual Aid Plan
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STATE OF CALIFORNIA The California Mass Fatality Management Guide: A Supplement to the State of California Coroners’ Mutual Aid Plan September 2019 Gavin Newsom Governor Mark Ghilarducci Director Governor’s Office of Emergency Services 1 2 STATE OF CALIFORNIA GOVERNOR’S OFFICE OF EMERGENCY SERVICES GOVERNOR: Gavin Newsom DIRECTOR: Mark Ghilarducci LAW ENFORCEMENT BRANCH: Mark N. Pazin, Chief PREPARED BY: Dennis Smithson, Assistant Chief State Coroners Mutual Aid Coordinator ADDRESS: Governor’s Office of Em ergency Services Law Enforcement and Victim Services Division Law Enforcement Branch 3650 Schriever Avenue Mather, CA 95655 (916) 845-8700 - Office Warning Center (24 Hours) 916-845-8911 PLEASE NOTE: This guide does not supersede nor is it exclusive of the State of California Coroners’ Mutual Aid Plan. Both are intended to be compatible in the event of a catastrophic mass fatality event. The Coroners’ Mutual Aid Plan and companion documents may be found at www.oes.ca.gov. 3 Foreward The care and management of the dead as a result of a catastrophe is one of the most difficult aspects of disaster response and recovery operations. California has experienced several disasters over the last half-century, but none that has overwhelmed the capacity of the coroner/medical examiner mutual aid system to care for the deceased victims of these events. Tomorrow we may not be as fortunate. California’s natural disaster vulnerability, added to the increasing possibility of terrorism within its borders, could produce mass fatalities that may make the events of recent U.S. history pale in comparison. This document represents a significant step in identifying the important and necessary role of state agencies in supporting the local Coroners and Medical Examiners in performing their essential duties pertaining to catastrophic mass fatality incidents. Publication of the California Mass Fatality Management Guide: A Supplement to the State of California Coroners’ Mutual Aid Plan represents the collaboration of several state, local, federal, private, and volunteer organizations that have recognized the compelling need to distinguish the State of California’s role in a catastrophic mass fatality event. To accomplish the task of preparing this document and addressing the critical issues of fatality management, the Office of Emergency Services, Law Enforcement Branch, has established the State Mass Fatality Management Planning Committee (see Appendix A). The guide provides for an organized and unified state level capability to assist in meeting the extraordinary demands of a catastrophic mass fatality event. Where appropriate, federal and private organizations are identified and integrated into this document which will be implemented within the State Standardized Emergency Management System (SEMS) and National Incident Management System (NIMS) structure. Any California state agency role and responsibility described in this document is consistent with their respective “Administrative Order” as referenced in the State Emergency Plan. Also, federal agency citations are recognized as a part of the National Response Framework. It must be noted that the U.S. Army Research Development and Engineering Command and the U.S. Department of Justice, Office of Justice Programs, Office of Domestic Preparedness publication: Capstone Document: Mass Fatality Management for Incidents Involving Weapons of Mass Destruction, has been an excellent source of information and stimulus for this guide. Finally, it is recognized that the Coroner/Medical Examiner’s responsibility of the operational area may reside with a Sheriff or an appointed/elected Coroner/Medical Examiner. For the purpose of this guide, the term Coroner/M.E. will represent all three types of coroners in California. Inquiries and comments concerning this guide should be addressed to the: CA Governor’s Office of Emergency Services Law Enforcement Branch - State Coroners’ Mutual Aid Program 3650 Schriever Ave., Mather, CA 95655 (916) 845-8700 4 Table of Contents Table of Contents................................................................................................................ 5 Introduction......................................................................................................................... 6 Purpose of the Guide........................................................................................................... 9 Authority of the Guide........................................................................................................ 9 Scope of the Guide............................................................................................................ 10 Definitions......................................................................................................................... 11 Mass Fatality Planning Assumptions and Critical Issues ................................................. 17 Mass Fatality Response Organization............................................................................... 26 Channels For Requesting Coroner/M.E. Mutual Aid ....................................................... 30 State Agencies’ Roles and Responsibilities...................................................................... 34 In-State Professional Resources and Associations ........................................................... 45 Federal Agencies Roles and Responsibilities ................................................................... 49 Federal Supporting Agencies............................................................................................ 53 Supporting Agencies Other Than Those Listed in the National Response Framework .. 61 Appendix A – State Mass Fatality Management Planning Committee ............................ 69 Appendix B – California State Mass Fatality Incident Agency Roster ............................ 77 Appendix C – Government Codes .................................................................................... 83 Appendix D – Abbreviations and Acronyms.................................................................... 93 Appendix E – Family Assistance Center .......................................................................... 99 Appendix F – Infectious Risk of Human Corpses .......................................................... 109 Appendix G – Guidelines for Establishing a Human Remains Reference System......... 115 Appendix H – Federal Family Assistance Plan for Aviation Disasters.......................... 121 Appendix I – National Response Framework – Emergency Support Function #8......... 169 Appendix J – Pandemic Influenza Planning Considerations and Guidelines................. 189 Appendix K – Consideration of a Mass Fatality Incident at a Correctional Facility...... 207 Appendix L – Interpol Information and Guidelines ....................................................... 217 Appendix M – Activating DMORT................................................................................ 223 Appendix N – Quick Reference Guide ........................................................................... 227 Appendix O – Frequently Asked Questions (FAQs) ...................................................... 231 Appendix P – References................................................................................................ 237 5 Introduction "Show me the manner in which a nation cares for its dead, and I will measure with mathematical exactness, the tender mercies of its people, their loyalty to high ideals, and their regard for the laws of the land." William Ewart Gladstone, (1808-1898) Former Prime Minister of Great Britain Notable Mass Several catastrophic events in recent history have demonstrated the need to Fatality Events recognize and strengthen fatality management planning and response. Worldwide The Indian Ocean Tsunami on December 26, 2004, resulting in over 250,000 dead; Hurricane Katrina, the U.S Gulf Coast calamity producing over 1,500 deceased victims; The tragic events of September 11, 2001, with nearly 3,000 fatalities; and, The deliberate bombing of the Alfred P. Murrah Federal Building in Oklahoma City causing 168 fatalities. Among the many deadly disasters that have struck across the globe in the last century, these four incidents have brought to our collective attention the reality and necessity of preparing for events that produce an overwhelming number of deaths. What lies ahead may be even more deadly as we consider the effects of the anticipated pandemic influenza. (Appendix J provides detailed fatality management considerations for pandemic influenza). California Mass In California, the potential for a catastrophic mass fatality event can occur any Fatality moment. Whether natural or human-caused, this state is extremely susceptible Potential to disasters which could produce fatalities that would overwhelm our current governmental response systems. In the past 25 years, California has had numerous disasters that have resulted in many deaths as exhibited in Figure 1. Despite the considerable number of deaths, there was minimal coroner mutual aid assistance. It is inevitable that California will experience a catastrophic disaster resulting in a significant number of dead. Pre-event planning, a thorough knowledge of the organizational requirements, and a disciplined response to a catastrophic mass fatality event will prove effective and beneficial. The proper care and management of human remains in the aftermath of a disaster deserves no less. 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