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A Guide to Civil Emergency Planning for Municipalities
DOCUMENT E PC 10/79
LIA 929 .C2 Emergency Planning Planification d'urgence G85 Canada Canada 1981 AMENDMENTS Date Concerning Paragraph(s) Amended by Date • A Guide to Civil Emergency Planning for Municipalities
Revised 1981 9
Introduction
A major lesson learned from the Second World War was that civilian casualties resulting from bombing attacks on municipalities could be substantially reduced by civil defence preparations. The nuclear threat does not negate this premise. Studies of the atomic bomb attacks on Hiroshima and Nagasaki show that the main cause of fatal casualties was chaos, due to unpreparedness and lack of medical care. Similar studies have shown that survival plans must be prepared and exercised well in advance to avoid such chaos which could jeopardize the national ability to survive. To this end, survival plans and preparations should be developed as part of the normal role of governments, the peacetime processes of industry and the community in general.
Aim
The aim of this guide, which revises "A Gûide to Civil Emergency Planning for Municipalities, Document EPC 10/79", is to assist provincial and particularly, municipal planners responsible for development of survival plans. It is hoped that the broad guidelines contained herein will be useful in formulating plans and procedures tailored to the requirements of a specific community or group.
More positive information on some concepts of emergency planning, as well as more background material developed since the initial publication, has been included in this document. Additional inform- ation, such as the results of tests and exercises, will likely produce further amendments or additions.
Part I of the guide reviews general planning concepts and responsibilities. Part II is a more detailed treatment of federal plans and programs. Part III contains specific information on the organization of municipal emergency services. Part IV lists publications useful to planners at various levels. Pârt V is a glossary of terms. TABLE OF CONTENTS 0
PART I
GENERAL
Chapter Page
1 The Threat and Planning Assumptions 1
2 Canada's Civil Posture for War 3
3 Federal/Provincial Responsibilities for Emergency Planning 7
4 Relocation of Government in a War Emergency 15
5 General Concepts of Civil Emergency Planning for War at the Municipal Level of Government 19
PART II
FEDERAL PLANS AND PROGRAMS
Chapter Page
6 Education, Training and Exercises 25
7 Public Protection 37
8 Canadian Forces Warning and Reporting System 43
9 Emergency Broadcasting Service 47
10 Manpower Allocation and Control 49
11 Supply and Production of Essential Commodities 55
PART III
MUNICIPAL EPEP.GENCY SERVICES
Chapter Page
12 Organization of a Municipality for Civil Emergency Planning (War) 59
. 13 Procedures for Civil Emergency Planning (Peace and War) 67 • Chapter Page 14 Operations 75
15 Standing Operating Procedures for Municipal Emergency Government Headquarters 85
16 Organization and Planning in the Smaller Community 91
17 Some Typical Responsibilities of Municipal Emergency Services 97
18 Municipal Emergency Health Services 105
19 Municipal Emergency Welfare Services 115
20 Municipal Emergency Police Services 127
21 Municipal Emergency Pire Service 133
22 Municipal Emergency Engineering Service 139
23 Municipal Emergency Communications Service 151
24 Municipal Emergency Transportation Service 177
25 Municipal Emergency Public Information Service 185
26 Municipal Radiological Defence Service 191
27 Municipal Rescue Service 199
28 The Organization of Emergency Air Services 207
29 Municipal Emergency Personnel Services 211
30 Municipal Essential Records 213
31 Municipal "State of Readiness" checklist 217
PART IV
PUBLICATIONS
Health and Welfare Canada 221
Emergency Planning Canada 223
PART V • GLOSSARY OF TERMS 225 Part I Chapter 1
THE THREAT AND PLANNING ASSUMPTIONS
Introduction
Civil emergency planners at all levels of government must have a clear understanding of the nature of the nuclear threat to Canada and the implications that arise from it. In the preparation of their emergency plans and programs, they must be fully cognizant of those areas that could be involved directly as nuclear targets and those that are likely to be seriously affected by radioactive fallout. They must be aware that because of the wide ranging effects of nuclear fallout, populated areas close to the international border would be affected by surface burst detonations on United States targets.
Threat Implications and Planning Guidance
EPC Document 2/81 - "Planning Guidance in Relation to a Nuclear Attack on Canada in the 1980s" is designed to provide the necessary guidance for preparation of programs and contingency plans for an emergency that would result from nuclear attack. It deals in some detail with:
. the type of targeting that could be expected;
. weapons effects;
• warning times;
• risk areas;
• planning considerations and planning areas; and
• protection against blast and fallout effects.
It must be recognized that the threat may change in the future, due to advanced technology, changes in weapon yield, more accurate delivery systems or enlargement of the likely target lists. These factors are more likely to result in increased enemy capabilities for attack. On the other hand, the threat could conceivably be reduced if such factors favour the Western side.
In planning for the apparent threat, rigid acceptance of areas at risk should be avoided. Planning must be flexible enough to meet a post-attack situation which may vary considerably from the one anticipated. Similarly, a prolonged warning time cannot be assured. Plans must have the capability for rapid implementation using existing facilities and not depend on a long lead time resulting from deterioration in the international situation. Consequently, planners should phase their readiness capability contingent upon specific time periods of possible pre-attack warning, attempting to maximize protection and life-saving arrangements for each phase.
It is expected that there will be a period of increasing international tension • before the outbreak of hostilities. Implementation of plans and preparations to attain the required state of civil readiness should therefore be completed 2
within this period. Hence some judgement must be exercised in selecting appropriate implementation times, and, because the length of time available cannot be predicted, those measures which have highest priority should be assigned the shortest implementation times, e g g. Priority 1: 2 days; Priority 2: 10 days; eriority 3: 30 days.
Document EPC 2/81 - "Planning Guidance in Relation to a Nuclear Attack on Canada in the 1980s" should be used in conjunction with all pertinent factors relating to civil emergency planning. Analysis of each situation is necessary. Planning assumptions are essentially knowledgeable estimates based on the best information available, carefully analyzed to meet the situation at hand.
• 3
Chapter 2 gl› CANADA'S CIVIL POSTURE FOR WAR
The program for Canada's civil emergency planning for war involves activities in several distinct fields, but principally those concerned with continuity of government, public protection, public information, support for the military, economic planning and resources control planning. Continuity of Government
To meet the requirement for continuity of government under threat of nuclear attack, or during and after an attack, plans and facilities for relocating the leadership elements of essential federal government departments and agencies have been developed. In each province a Regional Emergency Govern- ment Headquarters (REGHQ) site provides accommodation and facilities for a federal/provincial interface for total wartime leadership and control. Communications between central and regional HQs are provided by the Canadian Forces Communications Command. Permanent REGHQs have been conpleted in British Columbia, Alberta, Manitoba, Ontario, Quebec and Nova Scotia. Interim REGHQs (IREGHQ) have been established in New Brunswick, Prince Edward Island and Newfoundland. A plan exists for Saskatchewan and its implementation is underway.
Public Protection, Warning and Information
The development of a federal attack warning system is included in a program for public protection. Warning is a joint program involving the Department of National Defence (DND) and the Department of Communications (DOC) with the latter's operational role delegated to the Canadian Broadcasting Corporation (CBC). In brief, the attack warning system consists of high-decibin sirens in larger communities sounding as attention-getters, and a network of all Canadian radio and television stations broadcasting self-help advice and instructions for the public. On receipt of a validated North American Aerospace Defence Command (NORAD) warning of the imminence of nuclear attack on North America, the sirens will be sounded by provincial warning centres In REGHQs and a common broadcast, originating from CBC studios, will commence. Attack warning broadcasts are on tape in CBC studios and emergency sites.
Emergency Broadcasting Service
Plans have been developed for an Emergency Broadcasting Service (EBS) of all Canadian radio and TV stations, based on CBC network. In the event of a recognized imminent threat of attack, or actual attack, the EBS would operate from fallout-protected headquarters. • 4
Emergency Public Information Service
The concept of an Emergency Public Information Service (EPIS) has been developed. To counter complete destruction or interruption of Canadals national news capability resulting from nuclear attack on some major cities, the EPIS concept envisages a miniature news service operating from protected national and provincial sites. The EPIS will employ civilian news specialists and government information personnel.
Material for Public
Preparations have been made for the rapid issue of self-help literature and other instructions for the public. This material is now available and is stockpiled centrally and regionally for immediate use during a period of crisis. Arrangements have also been made for the printing of special instructions in daily newspapers. Emergency broadcast instructions have been taped or prepared as pro forma scripts and are pre-positioned. Special TV presentations of an educational or instructional nature are stockpiled.
Shelter
The National Shelter Program in Canada is the responsibility of the Department of Public Works (DPW) and is oriented towards development of provincial and community shelter plans. By 1980, some 20 million usable spaces had been identified by the Fallout Protection Survey of Canada. In 1972, the second survey phase, space usability., was initiated to determine specifically which of these spaces were usable from the point of view of natural ventilation and physical space. The survey has continued each year in a modest way, and at the present time seven provinces have been completed. Parts of two provinces have been partly surveyed (Quebec and Ontario). Provincial master shelter plans, from which the more detailed community shelter plans can be developed, have been completed for New Brunswick, Nova Scotia, Newfoundland, and Prince Edward Island. Additionally, model community shelter plans have been developed for the provinces of New Brunswick and Prince Edward Island. Evacuation of large centres of population is at present not a national policy but can be a local option.
Emergency Hospitals and Welfare Centres
The Department of National Health and Welfare has portable hospital and welfare centre kits deployed and in reserve to assist provincial and municipal health and welfare services. These can be made available in peacetime to meet emergency needs.
Radiological Defence
To deal with post-attack radioactive fallout, plans for a Radiological Defence System (RADEF) have been developed. Provinces, municipalities and 5
DND share roles in this program. The system is based on forecasts by DND and on monitoring and reporting posts established across the country to report fallout radiation levels to municipal emergency government headquarters, where applicable, and to REGHQ for local warning purposes and operational direction.
DND has the federal responsibility for sponsoring and sharing funding for the system. This involves provision of radiation detection instruments to provinces at 25 per cent of cost, coordinating and funding all main- tenance and repair of radiation detection equipment and training of radiological defence officers and radiological advisers. Senior training is carried out at the Federal Study Centre at Arnprior, Ontario, by military instructors and Emergency Planning Canada personnel.
Planning
The statutory authority for civil emergency planning for war is the Emergency Planning Order P.C. 1981-1305 dated 21 May 1981. This order sets out authority and direction for selected ministers of federal departments, agencies and Crown corporations to carry out their responsibilities, including planning and preparations, and providing assistance and advice to the provinces and through them to municipalities.
Under the Emergency Planning Order the areas. in whiCh departments have responsibility for planning wartime activities are an éxtension of their peacetime functions. For example, one of Agriculture's civil emergency responsibilities is "farm production including the provision of advice and guidance to farmers on the protection of farms, crops and livestock against wartime hazards such as radiation". Other departments are directed to plan for the establishment of wartime agencies such as a National Emergency Agency for Telecommunications, and a National Emergency Agency for Manpower. Each department with assigned emergency responsibilities has developed emergency orders, regulations and readiness plans.
International
International aspects of civil emergency planning include arrangements with the United States under the 1967 United States/Canada agreement, providing for joint cooperation in civil emergency planning with a view to developing compatible arrangements for exchange of radiation data, public information, emergency health and welfare, emergency communications and an open-border policy following nuclear attack.
Emergency planning includes involvement in various NATO committees and participation in NATO civil emergency planning, training and exercises.
Financial
Provision of financial support to the provinces for civil emergency planning is administered through the Joint Emergency Planning Program (JEPP). Under • 6
this program the federal government shares in the funding of provincial projects which support federal objectives and enhance the national response capability.
Training
At the Federal Study Centre in Arnprior short emergency planning courses and other educational activities are conducted for participants from across Canada by Emergency Planning Canada and other federal departments. About 1500 a year attend. These activities deal with emergency preparedness in both peace and war. Provinces and municipalities also conduct similar training, including exercises to test plans.
• 7
Chapter 3 0 FEDERAL/PROVINCIAL RESPONSIBILITIES FOR CIVIL EMERGENCY PLANNING (WAR)
Introduction
Emergency Planning Canada (EPC) evolved from a civil defence organization established in 1948. At the time, civil defence measures were reinstituted in practically all European countries, (that now form part of NATO), when there appeared to be signs of Russian encroachment in Europe.
In 1957 the Emergency Measures Organization (EMO) was created in the Privy Council Office to ensure continuity of government in Canada should nuclear war occur. Under the new arrangement, the federal civil defence headquarters of National Health and Welfare continued to devote its attention to matters related to the survival of the population. Thus, there were two organizations concerned with civil emergency planning.
In 1958 it was decided that one new organization should replace the two, and the following year a major reorganization occurred. The Civil Defence Order of 1959 rearranged civil emergency planning responsibilities within the federal government. This established the Emergency Measures Organization as the coordinating agency for the federal government in the whole field of civil emergency planning, transferring some civil defence functions from National Health and Welfare to other federal government departments, notably the Departments of National Defence and Justice.
In June 1963 the Civil Defence Order was amended to bring it into line with changed federal departmental responsibilities, and the Emergency Measures Organization was moved to the Department of Defence Production. In June 1965 the Civil Defence Order of 1959 was revoked and replaced by the Civil Emergency Measures Planning Order PC 1965-1041, and on 21 May 19.81 PC 1965-1041 was revoked and replaced by PC 1981-1305, which is the authority under which the present Fmergency Planning Canada, federal departments and agencies listed in the order fulfil théir civil emergency respon.sibilities for war.
At the federal/provincial conference on civil emergency planning in 1965, a paper on civil emergency planning arrangements for various levels of government was accepted as a planning document.
In 1965 EMO moved to the Ministry of Industry and in 1968 to the Department of National Defence, before being caught up in the general government reorganization of the early seventies.
Because of a series of large-scale emergencies, such as a big North American power blackout, and an oil spill at Chedabucto Bay, many people were convinced that more effort should be made by the Government of Canada in the field of peacetime disasters. The recommendations of the Dare Report on crisis management led to another reorganization of the Emergency Measures Organization. In 1974 EMO became the National Emergency Planning Establishment, now known as Emergency Planning Canada. This organization brought a number 9 of changes: 8
. the role was expanded to include coordination of, and assisting in planning to ensure that the federal government is ready to meet 0 the effects of natural or man-made disasters. (Such planning is part of the normal responsibilities of federal government departments, Crown corporations and agencies);
. a number of functions that are an integral part of civil preparations for war - such as communications, shelters, radio- logical defence, and road transport, were placed with other depart- ments, e.g., shelters - Department of Public Works.
In 1980 a new federal policy for emergencies was approved by Cabinet and at the same time Hon Y. Pinard was named Minister Responsible for Emergency Planning. The new policy assigned specific emergency functional responsibilities for both war and peace to departments and charged them with developing detailed plans to meet these responsibilities.
Federal Civil Emergency Planning Responsibilities for War
Each Minister of a department, agency or Crown corporation of the Government of Canada who is listed in the Planning Order is required to:
make such preparations as are required to enable him to exercise and perform the civil emergency powers, duties and functions set out in the Planning Order; and
. provide necessary assistance and advice to provinces and through the provinces, as requested, to municipalities either to enable those governments to plan emergency measures that lie within their constitutional responsibilities or to supplement the measures being planned by the Minister.
Each Minister referred to in the paragraph above is required to ensure that, where preparations for the exercise and performance of civil emergency powers, duties and functions are to be made in conjunction with agencies or depart- ments of foreign governments, the plans are coordinated by the Minister Responsible for Emergency Planning with the concurrence of the Secretary of State for External Affairs. The Minister of each department, agency or Crown corporation of the Government of Canada must:
. at all times provide other departments, agencies or Crown corporations with such assistance as may be required, having regard to existing commitments, to enable them to plan for and to exercise and perform those powers, duties and functions, including the provision of services and the loan of personnel who have been assigned emergency duties;
. be responsible for the preparation and implementation of plans that will provide for the resumption of the normal functions of that department, agency or Crown corporation in the event that such functions are sus- pended as a result of acts of war;
prepare and implement plans for the warning and dispersal of employees at a time of a National Alert or when so ordered by the Governor General • in Council; and 9
• inform all employees of departmental plans for war emergencies including • information on personal survival measures. Outline Organization of Federal Emergency Preparedness
The general federal organization for emergency preparedness is summarized as follows:
• the Interdepartmental Committee on Emergency Preparedness, a committee comprising the assistant deputy ministers of the departments most usually involved in the federal response to emergencies, advises the Cabinet on emergency preparedness matters;
• the Emergency Planning Secretariat, Privy Council Office is res- ponsible for developing national emergency planning policy, and providing direction; and
• Emergency Planning Canada, under the directior of the Assistant Secretary to the Cabinet, coordinates federal government planning aimed at mitigating the effects of disaster.
Emergency Planning Canada (EPC)
EPC consists of a headquarters in Ottawa, Regional Directors in each provincial capital, a training and educational facility at Arnprior, Ontario, and a permanent attaché at NATO HQ in Brussels. The headquarters organization has two main functional branches: Plans and Operations each headed by a Director General. The Operations Branch operates a Situation Centre which monitors and reacts to emergency situations.
EPC Regional Directors provide liaison between the federal government and provincial governments and private organizations within the region on civil emergency planning matters. They coordinate civil emergency planning among federal departments in the region. They obtain and assess information on impending emergencies and forward such information to EPC HQ.
Provincial Civil Emergency Planning Responsibilities for War
The provincial responsibilities for civil emergency planning which were discussed at the federal/provincial conference of June 1965, and accepted for planning purposes, are as follows:
. Provincial governments will make such preparations as are required to enable them to execute the following civil emergency powers, duties and functions in war:
• the development of policies and programs to ensure the continuity of provincial government in an emergency, including:
. the selection of government departments and agencies with immediate responsibilities in the saving of lives and the continuing function of essential services; the • development of plans by the departments selected; 10
. plans for the relocation of government;
. the designation of officials for duty in an emergency;
. plans for the manning of REGHQ, Regional Relocation Units (RRU) and Zone Emergency Government Headquarters (ZEGHQ); and
. the selection and storage of essential records.
. the preservation of law and order, including control of traffic;
. the organization and control of emergency welfare services including emergency clothing, lodging, feeding, registration and enquiry and personal services;
. the organization and control of health and medical services, including hospitals and public health measures;
. maintenance and repair of roads and road bridges;
. coordination of municipal and other services for the maintenance and repair of water and sewage systems;
. organization and operation of fire-fighting services;
. maintenance and repair of electrical and gas utilities;
. organization and operation of radiological defence services;
. communications as required from ZEGHQs to provincial government agencies and municipalities;
. coordination and direction of the emergency operations of municipal governments; and
. conduct of life saving operations in damaged areas.
In accordance with agreements reached with the federal departments and agencies concerned:
. control of accommodation, engineering and construction resources, provision of emergency housing and arrangements for roads and road bridges;
. control of road transport resources; and
. maintenance of agriculture production and control of fisheries. 0 11
• Such other emergency functions as may be subsequently agreed between • the federal and provincial governments. . In addition, provincial governments wi11 be responsible for:
• assigning to each municipal government its operational roles;
• providing assistance and guidance to municipal governments in the preparation of municipal civil emergency plans for the continued operation of municipal government, survival of the public and the operation of municipal emergency services, such as rescue, warden, emergency communications, emergency public information, radiological defence and emergency transportation;
• assistance and guidance to municipal government in training and exercising regular municipal employees and volunteers as emergency workers; and
• making preparations or arrangements for the protection of the population of those parts of the province which are not administered by an incorporated municipal government.
• ORGANIZATION FOR FEDERAL EMERGENCY PREPAREDNESS MINISTER
CABINET
Interdepartmental Committee 1 on Emergency Preparedness
(ICEP )
EMERGENCY PLANNING SECRETARIAT PRIVY COUNCIL OFFICE
EMERGENCY PLANNING CANADA
EPC REGIONAL OFFICES INTERDEPARTMENTAL COIMTTEE ON CIVIL EMERGENCY - PLANNING
HEADQUARTERS FEDERAL DEPARTMENTS
IREGIONAL OFFICES, FED. DEPARTMENTS
0 13 e
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• 14 •
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• 15 Chapter 4
RELOCATION OF GOVERNMENT IN A WAR EMERGENCY
General
A concept for the continuity of government in a nuclear war was first expressed in a statement made by the Prime Minister of Canada in the House of Commons on August 21, 1958 (Hansard, Volume 102, Number 79, page 3866):
"...having regard to the vulnerability of our communications and transportation facilities, the normal peacetime arrangements for government would be inadequate in the event of a major war. There is need, therefore, in our opinion, for the development of a decentralized federal system of emergency government with central, regional and some zonal elements".
In accordance with this concept, plans for the continuity of government are based on a pre-determined grouping of central, regional, zonal and local or municipal elements through which the most essential functions of govern- ment will be conducted. In general, the purpose of such an organization, with all its associated facilities, is to make it possible for governments to operate on a decentralized basis with a high probability that they will be able to assume effective operational control of the country under nuclear attack conditions.
The effectiveness of these plans is contingent on the steps taken by federal, provincial and municipal governments to provide a capability to function during the war period. This capability must be designed to withstand, to the greatest possible extent, interference from the effects of enemy attack. There also must be an immediate availability of authority to cope with emerg- ency situations that will arise.
The Plan
The relocation of government will be achieved through the establishment of emergency operating centres at the federal, provincial, zonal and local or municipal levels of government. Groups of elected officials and govern- ment employees charged with emergency assignments will be located in these centres at the outbreak of hostilities.
The decentralization of authority will be attained through delegation:
the emergency powers provided federal ministers by the War Measures Act and related Orders in Council and Regulations respecting the survival of the population and the management of the nation's resources, may be delegated by a Minister to federal government representatives at all levels.
when communications with the federal government are not available, regional commissioners, appointed by the Governor General in Council, 0 will assume powers of the federal government, including those powers 16
provided through the War Measures Act and related Orders in Council and Regulations as must be used to deal with the emergency situation existing in a province.
It is anticipated that provisions would be made for the decentralization of provincial authority through delegation.
Emergency Powers
The authority for action by the federal government, with respect to most matters of an emergency nature concerning the survival of the population and the prosecution of the war, will be found in the provisions of the War Measures Act. This Act enables the Governor General in Council to take any action which, by reason of the existence of real or apprehended war (invasion or insurrection), is considered necessary or advisable for the security, defence, peace, order and welfare of Canada. The War Measures Act would come into force uptIn the issue of a proclamation by the Governor General in Council. Provincial governments also have enacted legislation covering emergency measures. These acts, with certain exceptions, generally provide either the Lieutenant Governor in Council, or the minister responsible for emergency measures, with authority, on declaration by the Lieutenant Governor in Council that a state of emergency exists in the province, for putting into effect the measures deemed necessary to support the relief of suffering by the population.
Many municipalities have enacted by-laws which define civil emergency planning within the municipality, explain the aims of the municipal organizations, and outline the responsibilities of departments and agencies of municipal govern- ments for emergency planning in peacetime.
Relocation of Government
A complex of central emergency government facilities has been developed in the Ottawa area in which will be located government policy-making groups, consisting of elements of the federal government executive, senior civil advisers drawn from departments and agencies with essential emergency functions, and senior military advisers. Additional elements of the federal departments and agencies will provide operational assistance and technical advice.
Regional Emergency Government Headquarters (REGHQ) will be established in each region, the boundaries of a region corresponding precisely with those of the province. Located in each REGHQ will be a Regional Commissioner, a provincial government executive group, senior officials of the provincial government representing departments and agencies with essential emergency functions, civil and military elements of the federal government drawn from departmental district offices and the senior military headquarters in the province.
There will be one or more satellite relocation units in support of each REGHQ. These units, consisting of personnel from the provincial and federal departments • 17
• and agencies with representation in the REGHQ, will provide operational assistance and technical advice to the REGHQ, undertake special tasks beyond the capabilities of the REGHQ, and carry out such staff support to the REGHQ as may be necessary and possible in the light of the prevailing circumstances.
A Zone Emergency Government Headquarters (ZEGHQ) will be established in each zone. A zone is defined as an area within a region comprised of an aggregation of basic peacetime administrative areas, such as municipalities, counties, town sites or census divisions. Located in each zone will be a Zone Commissioner (who, in many cases, will be a provincial cabinet minister) and small elements representing operational departments and agencies of the federal and provincial governments.
Relocation groups for the ZEGHQ comparable to the regional relocation units will not be established in protected accommodation. However, some depart- ments and agencies may find it necessary to establish supporting elements or local field offices in the general area of the ZEGHQ to ensure an additional operational capability for their zone staffs.
Municipal Emergency Government Headquarters (MEGHQ) should be established under provincial arrangements by each municipality or groupings of municipalities. MEGHQ of any municipality likely to be a target area will be located in an area free from the effects of blast. For municipalities not likely target areas, MEGHQ may be positioned near or in the seat of civil government.
Located in the MEGHQ will be an executive group composed of the Mayor (or other head of government), selected members of the municipal civil emergency executive or control committee, and representatives of the various municipal services which would be concerned with survival operations, such as fire, police, health and welfare.
Functions of Governments in a War Emergency
The functions of governments at all levels in a war emergency are threefold:
. to provide coordination and direction in carrying out operations associated with the survival of the population from the effects of enemy attack;
. to provide policy direction, coordination and leadership in the fields in which a government is constitutionally responsible; and
• to provide for the management of the nation's resources.
At the federal level, the government will continue to give direction in all • areas constitutionally the responsibility of the Government of Canada. In addition, there will be a need to establish policy in connection with the 18
mobilization of the country for war, direct the prosecution of the war, establish national policies regarding the survival and recovery of the population and management of the country's resources. At the regional level federal government, provincial government and private industry skills and resources will be combined in National Emergency Agencies to control and regulate resources within a single policy: . a provincial government will continue to give executive direction to its departments and agencies in areas that are constitutionally the responsibility of the provincial government. It will also establish provincial policy and coordinate and give direction covering survival operations within the province.
• the federal government elements will be responsible for implementing the measures required to give effect to policies of the federal government.
In a zone, the ZEGHQ will be the centre of authority for the coordination of activities immediately following attack.
The ZEGHQ staff will give required direction to municipalities located within the zone; coordinate federal and provincial departmental activities within the zone in support of municipalities needing assistance, especially in the establishment of priorities where requirements conflict; provide support to rescue operations; provide situation reports to the REGHQ and implement any direction received from that source.
In the municipality, the municipal government under the Mayor or Reeve will continue to exercise its vested authority. In addition, it will be respon-- sible for the control and direction of all civil survival operations directed towards the survival of the population and the restoration and rehabilitation of the community during a period of emergency.
Flow of Information
A capability will exist at operations centres of the federal government, at each REGHQ, ZEGHQ and MEGHQ for gathering, analyzing and disseminating information and intelligence concerning enemy attacks, bomb damage, fallout, resources, casualties and other information that might be required by governments. There also will be a capability to originate broadcasts of advice and information to the public from the central and regional emergency facilities. These broadcasts will be carried by all radio stations in Canada over an emergency broadcasting network. 19
Chapter 5
GENERAL CONCEPTS OF CIVIL EMERGENCY PLANNING FOR WAR AT THE MUNICIPAL LEVEL OF GOVERNMENT
Civil Emergency Planning Policy
It is impossible to predict with any degree of accuracy the effects of a possible nuclear attack on Canada. However, the results of nuclear tests have shown that the damage, not only to structures and people, but to the operations of governments and the economy, could be so serious that the whole country could be completely disrupted. The meaning of the term "civil defence", which in the past has been associated with a special range of problems relating to survival of the population, must now be broadened to more adequately describe the activities required in the civil sector in the event of a nuclear war. In fact, survival measures cannot be effective unless adequate steps are taken to ensure that government in time of emergency will be able to give positive direction to the population and that the economy will provide the means of sustaining it. At the municipal level, therefore, as elsewhere, civil defence should be considered an emergency activity of government for which plans must be made ahead of time as a matter of normal procedure. Such emergency activities will, at the time, require the full utilization of the entire municipal organization, supplemented as may be necessary by trained volunteers. In the final analysis, these emergency activities of a municipal government are neither more nor less than the logical extension of its peacetime functions and those of some regular departments and agencies of government.
It is current federal government policy that civil emergency planning is a function of governments at all levels. The fullest use must be made of regular government departments, agencies and employees in the development, and implementation, if necessary, of emergency plans. The contribution of skills and enthusiasm of volunteers can be of major assistance to govern- ments in welding the whole structure of civil emergency planning into one comprehensive force.
Thus civil emergency planning involves two intimately related concepts; arrangements for the continued operation of government and economy on the one hand; and survival measures for the population on the other. The concepts of continued operation of government and population survival are two sides of the same coin and their relationship is such that, at the local level, they become much more a single problem than at either the provincial or federal levels of government.
Policy on Survival Planning
The present policy of the federal government on population survival plans, as distinct from programs for the continuity of government, in brief, is that future survival planning should be based on:
. the need to provide foc7 some means of protection gl, against radioactive fallout; 20
• the voluntary dispersal from major cities of persons not required for essential tasks;
• preparations for the reception and care of evacuees in reception communities and reception areas; and
arrangements for removing persons (remedial evacuation from areas which become dangerously contaminated by radioactive fallout.
The Threat and Its Implications
The nuclear threat and its implications, together with planning guidance relative to it, are contained in the EPC publication "The Nuclear Threat, Its Implications and Planning Guidance" (Document EPC 2/78). Municipal emergency planners should be thoroughly familiar with the contents of this publication. The following sections provide some of the civil emergency planning considerations:
Examination of Emergency Functions
Municipal authorities are responsible for examining the whole structure of the municipal organization to ensure that all departments and agencies which have emergency functions do, in fact, develop plans which will enable them to continue to operate during an emergency, and which will make the most effective use of their personnel and resources. This examination will probably illustrate certain features and elements of municipal government which, although important in peacetime, may not be considered to be important during an emergency. In such cases, it may be possible to utilize these elements effectively as part of other departments or agencies during an emergency.
Emergency Government Headquarters
Municipal governments must consider the type of emergency headquarters from which they will operate. In the case of likely target areas, municipal authorities should not plan to operate from their normal peacetime locations but rather should make appropriate arrangements for an emergency headquarters outside the normal municipal boundaries to escape the direct effects of a nuclear explosion. Provincial legislation might be required to legalize such an arrangement. These sites should have the best protection against radioactive fallout that can be arranged.
Buildings selected as emergency headquarters should be of such construction that they will provide a good deal of the necessary fallout protection. 21
0 Lines of Succession of Authority
An important element for consideration when developing plans for the con- tinuity of local government during times of emergency will be the des- ignation, by appropriate legal means, of a line of succession for such important persons as the mayor, members of council, chiefs of municipal services or departments. These lines of succession should ensure that legally competent officials of local government will always be available. In the case of likely target areas, it is recommended that more than one line of succession be established.
Mobilization of Personnel
Much of the success of survival operations will depend upon the speed with which key officials and municipal organizations can be mobilized to put the various elements of the survival plan into operation. Therefore, all municipal authorities should devise plans and procedures which will ensure that the essential municipal officials, employees and volunteers can be assembled at their place of duty as quickly as possible following the receipt of warning of impending attack. When plans for mobilization have been completed, it is essential that every person is informed where he is to report in the event of an emergency.
Preservation of Essential Records
Certain records such as employee records, maps, charts, etc., which are maintained as a matter of routine by municipal authorities, could be destroyed by a nuclear explosion. The loss of such records would, particularly in the recovery phase of a nuclear war, most certainly impair the rehabilitation of municipalities. In addition, many of these records relate directly to property rights of individual citizens and their loss could result in undue hardships to individuals.
Municipal authorities should therefore ascertain what records fall into this category and take steps to ensure their security.
NOTE: Information on essential records programs can be found in "Guide to the Preservation of Essential Records", Document EPC 12/79.
Reception of Evacuees or Casualties
A most important feature of the survival plans of municipalities not designated as likely target areas will be the development of plans for reception of those who choose to leave likely target areas prior to attack, or to receive casualties. The actual numbers of evacuees or casualties which any community plans to receive must be based upon estimates outlined in provincial plans for evacuation and reception.
Remedial Evacuation 0
It is possible that some areas could be so contaminated by excessive levels 22
of radioactivity that it would be necessary to evacuate the local population to communities which are free of the hazard. Such evacuation is known as remedial evacuation, and plans for such evacuation must form 0 an essential feature of any municipal survival plan.
Whether remedial evacuation is a feasible proposition is determined after analysis by competent authorities of all the factors involved which include: protection factors of existing shelters, dose rates outside, accumulated doses, doses in transit, availability of transport, and availability of shelters in the new location.
Mutual Aid
If areas in Canada were attacked with little or no warning the resulting casualties would be considerable. The only resources in manpower and equipment which could be applied to such essential tasks as fire- fighting, rescue, etc., must come from areas or agencies which have not been destroyed or grossly contaminated by radioactive fallout. Therefore, all municipalities will be expected to avail themselves of provincial facilities and organize and train their municipal and volunteer services in essential duties such as firefighting and rescue.
The Individual and Family Survival Plans
The degree of success which will ultimately be achieved by any municipal survival plan will be in direct proportion to the degree of active participation of the civil population. For example, population dispersal plans developed for designated areas, and reception plans developed for other municipalities, depend on public participation. Hence, the pop- ulation must be fully informed about such matters as emergency supplies, dispersal routes, knowledge of hazards, attack warnings, etc. In addition, survival plans against fallout depend upon public knowledge of the hazards from radiation and the protection afforded by fallout shelters. Individuals have a responsibility for the development of personal and family survival plans, as recommended in the Emergency Planning Canada pamphlet "ll Steps to Survival", but such plans in the final analysis will depend upon the forthright nature of the information and instructions which are provided by the various levels of government.
Nuclear Attack - Probable Sequence of Events
A probable sequence of events relating to a nuclear attack is outlined hereunder for consideration by emergency planners:
. Pre-Attack Phase - This phase includes any period of deteriorating international relations up to the time of the Attack Warning Signal or the commencement of attack, whichever is first;
Shock Phase - This phase includes the duration of the attack and the interval following until arrangements have been completed for the survival of the remaining population with the government in control, using emergency powers. To assist in realistic planning 0 during the shock phase, it has been subdivided into four periods. 23
• Attack Period - The time during which Canada, in whole or in part, is under attack including fallout from nuclear detonations in the U.S.A. and ending with commencement of rescue operations.
• Life-Saving Period - The time covering rescue operations, evacuation from damaged areas and areas of very serious fallout, and reception arrangements in other communities.
• Survival Period - The time during which the necessary arrangements are completed for the reception and the continued sustenance of the surviving population. During this period survivors would have to depend on immediately available resources such as transport, oil, communications, etc., because, except for areas undamaged and not subject to any fallout, new production and resupply would be most difficult.
• Recovery Period - This period includes the long time interval following the survival period when reconstruction and rehabilitation would be the primary considerations.
NOTE 1
Depending on the nature of the attack, phases and periods would have different timings in different parts of the country, especially the Shock Phase. In that phase certain areas will be suffering violently from the immediate effects of the attack (blast, fire, initial effects of radiation); in others, activity will be restricted because of fallout; some will not be affected by the direct effects of the attack and will escape the major impact of this phase. These latter areas, if designated for reception of evacuees, will be at the peak of activity providing survival services to evacuees.
NOTE 2
In the Shock Phase, while all levels of government will be involved in each period, the local level will be mainly concerned with rescue and survival operations; the higher levels of government will be concerned with longer term planning for survival and with the Recovery Phase. In those parts of the country which escape the more direct effects of the attack, local government and agencies of provincial and federal government are likely to be given direction regarding aid for stricken areas. 24
NOTE 3
The national effort directed toward the prosecution of the war would be undertaken concurrently with any or all phases of national survival operations if the federal government so decides, in the light of the nature and scale of the attack and the available resources. Part II
t t,
, ^.rsxe.^sr. 25
Chapter 6
EDUCATION, TRAINING AND EXERCISES
General
Education, Training and Exercises are of paramount importance in the creation of an effective organization to deal with emergencies at the local or municipal level. These three activities or their equivalents comprise the programs necessary to produce a complete awareness of the methods by which a municipal- ity can, at little or no financial cost, create an organization with the capacity to respond to any major emergency.
It follows then,that the municipal planner must do more than just write plans and identify resources. He must:
educate civil officials and the public concerning the civil emergency preparedness program in general and the municipal plan in particular;
arrange individual and group education and training of those responsible for planning and implementation;
ensure that the plans are exercised and evaluated.
Training means much more than merely teaching skills or instructing someone in certain concepts or procedures. It goes beyond teaching to include integration of skills to form an organizational capability. It includes the practice of these skills and the application of various procedures to ensure smooth coordinated operation, in a spirit of cooperation and teamwork.
Education then, is a broader term and includes informing officials and the public of the concepts and programs, to gain acceptance and promote support for the various planning projects undertaken in peacetime. It will also help ensure the fullest cooperation and assistance in the face of disaster.
An Approach to Training and Education in Civil Emergency Preparedness
Over the years, emergency measures organizations have evolved from the old concept of a separate body staffed with an army of trained volunteers into a planning organization composed of only a few members, but integrated within structures of normal government. The concept is not of an organization apart but rather, that of the whole municipal government acting together in an emergency situation. Disaster or emergency preparedness planning is simply an extension of the usual peacetime functions of governmental service units. The most relevant approach to training and education under these circumstances must be to develop within the municipality a cadre of highly qualified planners/ trainers who will look after the education and training program during peace- time, and have available when required, special training programs which could be implemented on a crash action basis during a period of crisis or significant 0 states of international tension. 26
Three specific areas of endeavour would develop from this approach. The first concern must be the development of the planners, coordinators, heads of services, and volunteers who have a planning or training role, in the skills of planning and in training techniques. Second, these planners would carry out projects in the other two areas, namely: education and peacetime training on a continuing basis; and third, the preparation of crisis response training programs.
This chapter will:
• discuss some aspects of the management of education and training of civil emergency planners;
• suggest some of the resources which might be available to those conducting local training activities; and
• provide guidance in the development of training programs and courses.
Management - Education and Training
Several methods of managing the education, training and exercise program may be used, depending on the size of the municipality and other factors. However, one of the best is the establishment under municipal authority of a committee composed of representatives from all the elements of the community which could be involved in various emergency situations. Through this committee the emergency preparedness measures Coordinator or Director would be able to:
. provide direction along the guidelines provided by his superiors;
. coordinate the use of resources;
• ensure the maintenance of standards;
. act as a focal point and maintain the momentum of the program within the overall emergency plan; and
• advise (when/where appropriate) on the duality of purpose and requirements for both peace and war emergencies.
In most cases the critical task is to obtain the full support of the community government leaders, e.g., the Mayor, the Council, Municipal Officials and other leaders in both the public and private sectors. Program support by the Mayor and Council is vital if the program is to have any possibility of success in the municipality. An education and orientation program is there- fore required which will indoctrinate the senior officials in their res- ponsibilities and inculcate in them the motivation and purposeful invoJvement that is necessary in organizing the municipality to respond to the need for civil preparedness planning. It should be noted that preparations and plans • 27
to mitigate the effects of peacetime disasters also provide a basis on which to expand for wartime emergencies. Part of the organization task is to ensure that the education, training and exercise requirements in emergency measures are recognized and understood as being based on, and essential to, existing and developing emergency preparedness plans, e.g., hospital arrangements for sudden emergencies.
Resources Coordination
In addition to determining standards to be met, an analysis of resources and related capabilities will identify, in conjunction with provincial plans, the priorities for their allocation and development of realistic goals for the education, training and exercises in support of the prime objective, i.e. effective preparedness measures. Because of the dynamic nature of our society there will be a constant requirement to update and revise the standards to ensure that the education and training processes are relevant to the program.
Training and Education
To persuade the elected officials of the need to develop preparedness plans, current, realistic and relevant examples of actual disasters and probable threats in both peace and war should be presented. The requirement for training as an essential part of the municipal plan must be clearly evident. It can be shown that the municipal training plan forms a segment of the overall county, region or provincial plan to the mutual advantage of all citizens.
When this requirement is officially recognized, an organization to provide education and training should be developed bearing in mind the provincial and federal assistance that is offered in this field.
The next step would be to educate those identified as "key" persons in the plan, e.g. certain municipal leaders and employees as well as authorized representatives of community service and volunteer organizations. Finally, the education of the general public.
One method to accomplish this is through the build up of special cadres of instructors, not only to carry out an active public education and training program, but also to provide a basis for rapid expansion should a serious crisis begin to develop.
During the introduction, the development of potentially realistic situations is essential to the credibility of the program. Support for the training and related reference and research activities cannot be expected if the senior officials are not impressed with the vital need for full authorization and commitment of the program. Situations depicted to them must be consistent with the types and forms of effects likely to be imposed upon them by major emergencies. They in turn will then direct the establishment and organization of a system to cope with the range of probable events which will occur. 28
The program for officials can be conducted in a number of ways. It can be as simple as a series of special briefings or as a seminar or workshop. These training events require considerable time and effort to develop and should involve active participation in simulated emergency environments within prepared scenarios.
Therefore, the type of development program selected will depend upon:
. the level or function of the various officials being educated since all concerned will not require the same amount or kind of education.
• senior elected officials • principal departmental officials . local organizations, volunteers.
• the amount of time these personnel are prepared to spend in educating themselves on the program.
. the ingenuity of the Civil Emergency Planner in obtaining the necessary resources and his or her ability to sell the requirement.
It should be borne in mind that to obtain the best results any plan prepared for the development phase of the program must be carried out on a continuing basis and be updated as changes in the emergencies become apparent, or when officials and other key personnel change through retirement, relocation or other reasons.
Training
If planning is to play a dual role in responding to both peacetime disasters and a nuclear war emergency, there is always a need to train people. Part- icularly important are those who will be working in the operational HQs and those who will augment such services as rescue, auxiliary police, fire and communications. The training process must begin with individual training and lead eventually to the total involvement of the entire municipal organ- ization in the practice of every aspect of emergency operations. Apart from the general orientation type of development, this progressive training might follow this sequence:
dndividual training - one learns a particular skill to perform a specific task in an assigned role.
. team training - saveral members of the same unit learn or practice their skills together.
. service unit training - one or more units of one service learn to function together.
combined training - several services practice a particular facet of operations.
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. mass exercise or emergency operations simulation training - all units of government are involved and participate in a simulated disaster situation.
Effective response to emergency situations can only be achieved when the people designated to respond have a thorough understanding of the problem areas and the ways and means of dealing with the situation. There are many aspects of civil emergency planning for which the skills acquired through peacetime employment are adequate. In addition, other skills are obtained by persons who have participated in volunteer programs such as first aid, fire-fighting and voluntary welfare programs, e.g., Red Cross.
Therefore, persons in these categories should be encouraged to participate in the program and be trained in using and augmenting their skills in an emergency situation.
Special Training
To perform special technical functions and tasks in a nuclear war emergency, specialized training courses for selected volunteers are held at centralized training centres. In these cases the required training resources are normally beyond the capability of the smaller municipalities. Similarly other courses can be arranged to complement existing specialists such as communicators, fire-fighters, welfare and health personnel.
Citizen Training
In addition to specialist training there is a basic training program require- ment for citizens who must learn how to prepare and execute a self-help plan for their family and household.
Collective Training
Between all components of the training program there is an interaction and interdependency, therefore team and combined group training is required to practice effectively one or more facets of operations. There can be advantages to the program if certain types of collective training are undertaken and sponsored by service clubs and organizations as part of their activities, thus ensuring a continuing supply of trained personnel with common bonds and communication patterns within the clubs and support organ- izations.
Special skills which require retention over prolonged periods of time should be the subject of crisis response training programs. It would be necessary to have readily available "on the shelf programs" and support data so that the training could be implemented at short notice.
To minimize costs of training programs within municipalities, all sources of equipment should be exploited. Many organizations already have their own training equipment. In addition, local schools are often prepared
^ 30
to lend rooms and audio-visual equipment. Public libraries will usually lend films on management, documentary and training films which may be of use to senior emergency planners.
The preparation of a training program or course requires a good deal of planning. Guidelines for the development of a training program or course are enumerated in the next section of this chapter.
Training Resources
A sufficient volume of resources can usually be obtained at little or no expense. The need is not for elaborate resource systems but to make people think and plan for what they must do in an emergency.
The Federal government in its continuing role of providing leadership and support to municipalities conducts courses in various disciplines and in both official languages at its central residential facility, the Federal Study Centre (FSC), Arnprior. These courses, which are fully supported financially by the Federal government, cover both the planning and operational aspects of the Civil Emergency Preparedness Program. Some courses are given by EPC permanent instructional staff at the FSC, others are sponsored and conducted by the other departments directly concerned, e.g, Health and Welfare Canada (Emergency Services), Canada Employment and Immigration, Supply and Services (Security Services Branch), Agriculture Canada, etc. The FSC (formerly the Canadian Civil Defence College and then the Canadian Emergency Measures College) has been in operation since 1954. It has provided educational services to tens of thousands of members of Emergency Measures/Civil Defence organizations. Periodically course catalogues are published and specific course instructions are sent out to provinces several months in advance. In addition, EPC has an extensive library of films on civil emergency operations, nuclear weapons effects and peacetime disaster relief at the FSC. The films are available on loan to provincial and municipal planners.
. Provincial governments are also very active in the training area. Some provinces, in fact, have their own schools, and all offer some form of courses which are given either in the municipality concerned or centrally in some zone or district of the province. In some cases, provinces can provide qualified training personnel to help municipalities develop and conduct training or educational programs. In most instances, provinces provide training materials in the form of guides, precis and audio-visual aids.
. Municipal governments. The municipal emergency measures organizations are the most important training elements. The federal level offers theoretical training, while the provinces provide instruction in municipal planning concepts and some skill training. The municipalities, however, must correlate these two aspects of training and apply them to their particular organization and resources. They must also ensure that the plans which are produced are known and understood by the population and that the required persons are trained in the application of the • 31
skills essential to the implementation of the plan. A small group of • well-prepared and competent planners under the supervision of the co- ordinator is the municipality's best education and training resource. Many other resources, both human and material, are available within the municipality to support the efforts of the cadre of planners/ trainers. Human resources include professionals or tradesmen in special disciplines or skills, educators from local institutions, and well- known business personalities. These people can help to educate the population at public meetings on disaster preparedness; can provide advice on the development of a training program or course, or on the use of various techniques of instruction; and can conduct courses or give instruction in various skills. In many municipalities, service clubs and other organizations offer or sponsor courses in every- thing from public speaking to first aid and practical nursing, sometimes gratuitously, sometimes for nominal fees. Such organizations include the Red Cross, St. John Ambulance, amateur radio clubs, etc. Finally, even the smallest municipality has anumber of training facilities and some equipment. Local schools are often prepared to lend their rooms and halls for community meetings or courses and may also be prepared to lend audio-visual equipment, such as projectors, screens, portable blackboards. Public libraries may have films on planning and management development subjects, which could be useful to emergency planners, and documentary and training films on public safety subjects. In the use of outside resources, the planner/trainer should always list all items or persons required, considering every possible source and try to obtain the best available by working through the list until he has what he desires. He might be quite surprised when he easily obtains a favourable response from what seemed to him a most unlikely source.
Exercises
It is not the intention here to deal with all the facets of an exercise as these are familiar to most'and are the subject of séparate publications. However, to complete the training and education process in civil emergency preparedness, exercises must be included as an essential adjunct at each of the training and education stages, particularly as a continuing test and evaluation of a completed plan or organizational capability. They must be conducted in a realistic environment and use, as far as possible, real time.
The purposes of axercises may be summarized as follows:
. to stimulate and maintain interest and enthusiasm;
• to practice, test, evaluate and improve plans and operational capabilities;
• to promote and refine co-operation and co-ordination between operational teams, staff groups, department heads, official authorities and other leaders involved in organized response • in an emergency. 32
Exercises vary as to aim and participation. They may deal with small groups working as a team, such as a message control centre or the Joint Operations Centre in an emergency government headquarters. They may be held in a special field, e.g., a hospital disaster plan, or they may involve all the essential departments of the community. Exercises much larger in scale, conducted at the zone, regional or national level may form the framework and setting within which the municipality exercises its own emergency plans and capabilities.
In the municipality, one of the most important exercises is one in which all the municipal departments, agencies, institutions and volunteer organizations are brought together in a simulated war or peacetime disaster setting. The Mayor and other leaders such as the City Manager or Chief Executive, the Emergency Measures Director or Coordinator, the Chief of Police, the Fire Chief, the Head of Public Works, the Superintendent of Schools, the rep- resentatives of Health and Welfare, etc. should actively participate in the exercise to gain a more thorough understanding of the various functions, activities, and inter-relationships between departmental and specialist personnel involved in disaster management. This type of emergency operations simulation is mose effective if the actual appointees to these positions are directed or persuaded by the Mayor to participate.
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0 THE DEVELOPMENT OF A TRAINING PROGRAM AND/OR COURSE
General
This section must not be construed as a complete exposition on the subject, but sets forth the basic principles to be followed in developing a training program.
Planning a Course
Suggested steps a planner should follow in the development, design and execution of a training program/course(s) are:
. identify training needs;
. set objectives and develop the scope;
. design the program or course content;
conduct the course(s); and
. assess the effectiveness of the program/course(s).
Identifying Training Needs
This requires an examination of: the organization and the people who must exercise skills or apply procedures. The analysis must be qualitative, (what must be the subject matter?) and quantitative (how much training must be given?). Three types of analyses must be carried out:
organizational
. job
staff
The objectives of the organization must be studied carefully. Then the structure of the organization must be matched to the objectives to determine whether a change in structure might not prove more productive than actually carrying out some form of training. Once it has been determined that some form of skill or some change in behaviour is required, the positions or jobs involved must be analyzed.
Job analysis will ascertain that the job duties are accurate. It will also help to determine which skill or procedure requires some enhancement or reinforcement through training.
0 34
Setting Training Objectives 0
Once the training needs of the various members and services have been determined it will be possible to set training objectives which will answer the requirements of the organization and the needs of each individual.
The best training objectives are those which define the desired results in any one of the following:
acquisition of knowledge;
acquisition of a new skill;
change in behaviour; and
change in attitude.
A good training objective will specify quite clearly in measurable terms what results are expected. It must also state the conditions under which the required behaviour must be exercised. Finally, the training objective must specify the minimum level of achievement required. All three elements appear in the following examples:
After five hours of dual flight ) Conditions time without the aid of an instructor )
the student must be able to land the ) Desired result airplane )
safely ) Minimum level of achievement
Designing the Course
Training programs and courses must be presented in a manner suited to the subject matter (skills or behavioural change) and participants. The sequence then, in designing a course will include the following steps:
. Set the objectives, and from these, determine the scope and type of course, e.g. seminar, workshop or tutorial/formal course.
Determine the frequency of presentation of courses within a program.
Select subject matter according to essential knowledge or skills (must know), useful notes or tools (should know).
0 35
• • Develop a syllabus from the subject matter selected. In developing the syllabus, the material should be divided into sections or modules in preparation for the next step.
• Organize from the modules, a block syllabus allotting block timings according to the subject matter to be developed. In most instances, particularly in skill-training, the modules will be divided into smaller periods of instruction. Objectives must be set for each period of instruction.
• Select the method of presentation of each period of instruction. Methods should be appropriate to the subject matter and the sequence of presentations should be such that variety is incorporated into the time-table. This will help maintain interest at a high level.
. Prepare a detailed time-table showing each period of instruction.
. Gather or prepare instructional material, including references and training aids.
Preparing and Conducting the Course
Preparing and conducting a course requires much administrative work. The following activities are offered as a check list to ensure that the course will be efficient and effective. Many of the activities can be carried out concurrently.
• Set dates for program or course(s).
. Select and negotiate physical facilities, if required.
• Select instructional personnel and group leaders.
. Prepare instructional material, edit and print papers, precis, where required.
. Prepare teaching plans including aims and scope of each period for guidance of instructors.
• Assemble equipment and training aids.
• Prepare an evaluation/assessment form or questionnaire, if required.
• Arrange transportation of candidates and instructional personnel and accommodation, if required.
. Prepare room(s) and check that all equipment is in working condition.
. Brief instructors and group leaders on all details pertinent to the • conduct of the course ari d rehearse where feasible. 36
EyaLaj arnor251._ s_e_
The planner,in setting objectives,is in fact saying he expects some changes to be àchieved under'certain conditions. To ensure that the objectives are realized, he must assess the results of his work and the student's achievement during and after the program or course(s).
Assessment of the student's level of achievement can be done through objective tests, pure observation or work sampling. To ensure accurate appraisal, pre-training measurement of performance should be made.
Assessment of the program or course must include both quantitative and qualitative aspects to determine the usefulness and effectiveness of the program in relation to the objectives. The review should include the design and the conduct of the course, the learning methods used and the training aids. The assessment instruments may be opinion surveys, rating forms and questionnaires. If objective tests are used for student evaluation, an analysis of the aggregate results will reveal teaching areas where more emphasis must be placed. The feedback should be used to modify and improve the program or course.
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Chapter 7
• PUBLIC PROTECTION Introduction
This chapter suggests how a municipality might organize and plan for shelter, pre-attack dispersal from likely target areas and post-attack remedial evacuation from areas seriously contaminated by radioactive fallout. It also deals with reception planning to be carried out in conjunction with dispersal and evacuation plans. As a basis for developing such plans the following assumptions are made:
• many major Canadian cities and vital port installations are likely targets and could suffer initial effects;
• there may be some random detonations of nuclear weapons; and
• there may be widespread danger from radioactive fallout.
The development of comprehensive plans for utilization of existing shelter space is essential for population survival with the minimum number of casualties. It is considered that municipalities have a responsibility for providing guidance to the public with respect to the use of such existing shelter space, guidance based on the perceived threat to the community.
Due to lack of shelter or for personal reasons a significant number of people living in likely target areas may attempt to leave, therefore plans should be made for such movement or dispersal.
After the dangers from the initial effects of an attack have subsided, the principal remaining danger will come from radioactive fallout. In some areas there may be insufficient shelter spaces and people must be evacuated. Therefore, plans should be made for post-attack remedial evacuation.
Nearby areas where the risk of attack and levels of radioactivity are expected to be low would be suitable as reception areas, therefore plans should be made for reception in these areas. Planning for any movement and reception of people from a likely target area to suitable reception areas should be the subject of joint planning, coordinated as required by the province or zone.
Plans for Shelters
Protection against blast, fire and radioactive fallout can be achieved by use of shelters which provide adequate protection. Shelters could be personal or communal, and ideally would be provided with food, water, light, ventilation and essential facilities for an extended period of occupation.
The federal government carries out surveys of usable fallout shelter space. This information, which does not include data on family homes, is now avail- • able in some provinces. Provinces and municipalities should use the data provided by this national survey in the development of plans for fallout 38
protection. The underlying principle is that use should be made of the best available shelter space and plans should be prepared to allocate persons to such shelter space. 0
The development of the community shelter plan starts with the establishment of a working group, tasked to develop a comprehensive community shelter plan integrated with the overall civil emergency plan. This task could be given to the engineering department, an equivalent department or the local EMO Coordinator. The plan will provide for:
. the identification of fallout shelter space in existing buildings, and instructions to the public regarding allocation of shelter in an emergency; and
. guidance to the public regarding:
- construction and improvement of protection in existing homes and buildings and the construction of shelters in new homes and buildings; and
- construction of backyard and group shelters where required.
Protection against the primary effects of nuclear weapons is provided by blast shelters which are.normally specially designed structures. There is, however, a certain degree of protection against such effects in other structures. The degree to which blast protection may be afforded by existing structures is dependent upon the over-pressures to which the structure is subjected and the method of construction of the building. Persons may be injured by falling debris and flying glass at a range of about 1 psi, and most residential homes will collapse at the 5 psi range. Total destruction of virtually all buildings will occur at the 30 psi range.
It follows, therefore, that any plans to make use of existing structures for blast protection should take place bétween the 30 and 5 psi line. However, provision of blast protection is not too feasible in existing structures beyond the projected 15 psi line due to the increased incidents of fires, extending out to and beyond this line.
A shelter plan where blast is considered should include the establishment of a blast shelter sub-group as part of the shelter planning group to investigate and make recommendations regarding:
the suitability of buildings or portions of buildings to serve as shelters against blast;
. designation of such shelters in the shelter plan;
designation of buildings as protective buildings for essential services or industry;
advice on the extent of core areas within the likely target areas that should not be used in the development of shelter • plans; and 39
. advice to the public regarding the program for blast shelter and the arrangement for the occupancy of such shelter. 0 Attack warnings are to be accompanied by simultaneous radio broadcasts. which would include survival instructions. Emergency broadcast instructions will indicate the action to be taken by the public. However, because the amount of warning time which may be available cannot be known ahead of time, these instructions may not be completed before attack takes place.
Therefore, every household should be provided with the details of their local plans and recommended public action. This can best be done by the issue of printed instructions which are lasting in character, such as pages in a telephone directory. The plan should draw attention to publications that will assist individuals and families in the preparation of personal and family survival plans.
Plans for Pre-attack Dispersal
In order that effective plans for the movement of people can be developed, a dispersal planning group should be established in each likely target area. The group should be comprised of members of the Municipal Civil Emergency Planning Committee from departments or agencies such as traffic engineer, police, fire, health, welfare, radiological defence, communications, transportation, engineering and others as appropriate.
The aim of a dispersal plan should be to allow as many people as possible to move out of the core of the target area and into reception areas. The first task of this planning group will be to establish:
. population density;
. capacity of roads;
. numbers of persons in institutions and hospitals;
. availability of various types of transportation; and
. media for informing the public.
When the basic data has been assembled, the planning group should be in a position to develop an effective movement plan in cooperation with prov- incial authorities. Such a plan will detail:
methods and procedures for informing the public;
evacuation areas, main feeder routes and dispersal routes;
allocation and marking of routes from the target area to the reception area(s);
o traffic control organization based upon traffic control points, collection points, regulating posts and control centres;
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communications;
allocation of transport for the movement of people in institutions and hospitals; and
. priorities of movement.
Instructions must make it clear to the public that although the decision to leave is voluntary, once people make such a choice they will become subject to rigid traffic control from the traffic control organization manning the routes.
The development of relocation plans for municipal government departments and agencies is the responsibility of departments and agencies concerned. These should be prepared separately, but must be coordinated with the plans for the public through the Civil Emergency Planning Committee.
Plans for Post-attack Remedial Evacuation
Some areas might be so highly contaminated that people in fallout shelters might not be able to resume normal activities for a considerable period of time. Also, it might be necessary in order to reduce the health risk, to move people from highly contaminated areas to areas which are safer from radiation hazards.
All municipalities should have an evacuation plan in the event that the fallout conditions require remedial evacuation. The planning organization and the development of such a plan would be similar to that used for pre- attack dispersal, except that the allotment of reception areas and dis- persal routes cannot be designated in advance, and must await the direction of provincial or zone authorities after assessment of intelligence regarding the overall fallout situation. Nevertheless, the basic part of such a plan should include:
. methods and procedures for informing the public that under certain conditions they might have to evacuate the community by certain transportation modes;
• an assessment of the radiation protection factors of all buildings in adjacent areas in order that a plan can be developed to ensure the best protection possible when hazardous fallout conditions are known;
• a traffic control organization which will be able to man the movement routes; and
• methods by which instructions can be quickly disseminated to
the public.
Plans for Reception Every municipality, except likely target areas, must be prepared to • 41
receive and care for evacuees. A reception planning group should be • established to develop the reception plan for each municipality. This group should comprise members of the Civil Emergency Planning Committee from municipal departments or agencies such as welfare, health, radio- logical defence, fire, police, engineer, communications and transportation. The situations in which municipalities might have to fulfill a reception function are:
. pre-attack dispersal from areas designated as likely targets;
. post-attack evacuation of people from target areas, and areas subjected to severe fallout.
For the purpose of planning pre-attack dispersal, reception communities can be selected in areas least likely to receive fallout and can be assigned evacuee loads according to a lodging assignment ratio to be established by the province. The municipal planning organization will then decide the best method of distributing the evacuees to lodging facilities. Such plans should include a reserve of reception communities which could be used to receive additional evacuees in the event that more lodging is required.
For the post-attack evacuation, contingency allocation of evacuees to specific reception areas can only be decided upon at a time when full information regarding damage, fallout patterns, availability of routes and over-all munCipal reception capabilities is known. Such information would be assembled and coordinated at zone or provincial level and then transmitted to the municipalities involved.
Plans for reception can be based on a survey of the following:
accommodation capacity of private dwellings;
. capacity of hotels, schools, churches and other large buildings which could be used for congregate lodging;
. facilities for mass feeding in commercial and non- commercial establishments; and
. protection factors for accommodation mentioned above.
When the potential reception capacity is known, detailed planning can be undertaken in cooperation with each responsible agency with the aim of producing a plan which will include details on:
. reception arrangements for evacuees at railway stations, road junctions, docks or other fixed entry points to the community;
. welfare services, including emergency clothing, lodging, feeding, registration, inquiry and personal services; • . traffic control and parking plans; 42
. health services;
. radiological defence;
. fire services;
. police services;
. engineering services;
. transportation; and
communications.
Once reception plans are completed, the capabilities of every municipality should be recorded and kept up to date at zone, provincial and federal level in order that planning for remedial evacuation at those levels will be based upon complete and accurate information.
Updating
Because of rapid changes in population density, new construction and expansion of existing facilities, all plans should be reviewed and updated periodically, at least every five years.
References
Planning Guidance in Relation to a Nuclear Attack on Canada in the 1980s (EPC 2/81) RAPSAC III System, Technical Instruction Manual (EP IM 100-3, Provisional, PWC). Community Shelter Planning Guide (Provisional, PWC).
0 43 Chapter 8
CANADIAN FORCES WARNING AND REPORTING SYSTEM
General
The Department of National Defence, through the Canadian Forces Warning and Reporting System (CFWRS), is responsible for:
• warning the public of the likelihood and imminence of attack;
• determining the location of nuclear explosion;
• predicting the patterns of radioactive fallout and warning the public;
• determining the actual patterns of radioactive fallout and warning the public; and
• collecting and collating nuclear data from all sources.
Organization
The CFWRS comprises two elements:
• the Warning Element - a Canadian Federal Warning Centre (CFWC) and in each of the ten provinces a Provincial Warning Centre (PWC);
• the Reporting Element - all Canadian Forces Bases (CFB) and stations (CFS). In addition, through agreement with Transport Canada,all aircraft in flight over Canada, all AERADIO Stations and Air Traffic.Control Centres report nuclear events and radiation to the appropriate PWC.
Attack Warning
Warning of the likelihood and imminence of attack is disseminated to the public in two ways:
• sounding the Attack Warning Signal over the Attack Warning siren system, and simultaneously;
• broadcasting information and instructions to the public through the Emergency Broadcasting System (EBS).
The Attack Warning Signal: • The Attack Warning Signal is an undulating tone of from three to five minutes duration, sounded on warning sirens which warn the public to listen to a radio. The initial sounding of the signal means that an attack on the • North American continent has been detected or is taking 44
place and that instructions are being broadcast by the EBS. Subsequent soundings warn the public of the approach of radioactive fallout and that survival instructions are being broadcast.
• Attack Warning sirens in each province are controlled from the PWC, except for the Ottawa/Hull sirens which are controlled from the National Defence Operations Centre (NDOC).
• The initial sounding of the Attack Warning will be authorized by the Prime Minister. In the event of a surprise attack, the Controller, Federal Warning Centre is authorized to order the Provincial Warning Officers (PWO) to sound the sirens. Should a nuclear detonation occur in a province, the PWO may initiate the signal and advise the CFWC of the action taken.
Emergency Broadcastse
. An EBS station is affiliated with each PWC to broadcast information and instructions to the public prior to attack, and, following nuclear detonations, of the approach of fallout.
• In addition to disseminating information pertaining to the Attack Warning Signal, and the effects of a nuclear explosion, the EBS will be used to broadcast other information of direct interest to the public.
CFWRS Warning Element
A dedicated communications network links the centres that comprise the CFWRS Warning Element (CFWC and PWCs).
The CFWC also has point-to-point automated communications with NORAD Headquarters over which warning information is received. As required by the national government, the CFWC is responsible for collecting from PWCs and other sources data on the effects of nuclear explosions.
The PWC in each province controls the Attack Warning sirens in the pro- vince and has communications with an EBS station. CFBs and CFSs that comprise the CFWRS Reporting Element in a province report the locationof a nuclear explosion and fallout direct to the PWC. From this reported data a PWC will predict the likely pattern of fallout, formulate actual reports and disseminate all information to the CFWC. This information will also be used simultaneously by the EBS for use in broadcasts to the public.
CFWRS Reporting Element
The National Defence Communications System (NDCS) links all Canadian Forces Bases (CFBs) and Canadian Forces Stations (CFSs), that • 45
comprise the CFWRS Reporting Element,with PWCs. A CFB or CFS that observes a nuclear explosion immediately reports the lccation and, • if possible, the height of burst, to the PWC of that province. Subsequently, the CFB or CFS will also report detected radio- activity and submit scheduled reports.
Any aircraft in flight over Canada will report the location of a nuclear explosion to a AERADIO Station or Air Traffic Control Centre, which will forward the report to the PWC in the province.
• 46
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^ 47
Chapter 9
EMERGENCY BROADCASTING SERVICE
General
The Canadian Forces, through the Canadian Forces Warning and Reporting System, is responsible for alerting the public of the likelihood and imminence of an enemy attack,and for providing information to the public on details of the attack, radioactive fallout and other related matters. There also would be a need for elements of emergency government at the central and regional levels to provide guidance and direction to the population throughout the shock phase. The quickest and most effective means of reaching the greatest number of people under conditions of nuclear attack would be through the medium of broadcasting and an emergency broad- casting plan has been prepared for the dissemination of warnings, instructions and information.
The Minister of Communications is responsible, through the CBC, for providing this emergency broadcasting service, using the facilities of the CBC and privately-owned stations.
Instructions have been issued by the Department of Communications for all radio and TV broadcasting stations to cease normal broadcasting on the declaration of a war emergency and thereafter to broadcast only program material fed under the control of the Emergency Broadcasting Service. The stations will remain in continuous operation until instructed otherwise. Should the warning come during the night, there is a possibility that some broadcasting stations might be closed down. Stations have been instructed that, if possible, they are to commence transmitting as quickly as possible after the Attack Warning has been sounded.
The emergency network can be arranged rapidly on a regional basis and can be connected together to form a national network as required. The basic emergency broadcasting system consists of the CBC radio network and affiliated stations. Ail CBC network stations can be instantly alerted by means of an alarm device to take the emergency feed. Private stations not connected to the CBC radio network will be alerted by Canadian Press and Broadcast News wire services. A notice outlining emergency broadcasting procedures is in the possession of every radio and TV broadcasting facility in Canada. Stations without a direct connection to the emergency broad- casting network are encouraged to provide a radio receiver capable of receiving a network connected station in order to rebroadcast the emergency programming.
Once the emergency networks have been activated, all stations will broadcast the program supplied to them, such programming being either from pre- recorded material or announcements made by authorized announcers from material supplied by government authorities.
For the intial period between the Attack Warning and an actual attack, recordings have been prepared giving initial instructions to the public • regarding survival actions they should take. These recordings are held 48
regionally at appropriate locations. Further instructions concerning 0 fallout warnings are prepared in pro forma; details will be completed at the time and issued for broadcasting.
Some key transmitter sites have been modified to provide fallout protection for operating personnel and emergency standby power to assure continued operation. The Provincial Warning Centres are connected to affiliated radio control studios by direct telephone and teletype circuits.
0 49
Chapter 10
MANPOWER ALLOCATION AND CONTROL 0
General
The great and sudden destruction of resources, both human and material, and the disruption of production, distribution and services that would result if a nuclear attack were made on Canada would require the most efficient u'se to be made of the remaining resources to ensure the survival of Canada as a nation. Of these resources, the one of greatest importance is manpower, without which no plans could be implemented. In this context, manpower is necessarily defined as not only the normal peacetime labour force but also housewives, students, retired persons -- in fact any person capable of effort which will contribute to national survival.
It is planned, therefore, that on the declaration of a national emergency and the invoking of the War Measures Act, National Emergency Manpower Regula- tions will come into being, providing the authority for the Employment and Immigration Commission to direct and control the employment of all civilian manpower. Members of the Reserve Forces, when called up for military service, would no longer be subject to these Regulations. Arrangements are being made, however, in co-operation with the Department of National Defence, to prevent the military call-up of persons whose civilian employment in an emergency has been designated as essential.
National Emergency Manpower Regulations
The National Emergency Manpower Regulations provide for the constitution of an Authority, the National Emergency Manpower Authority, to act as an advisory body to the Minister of Employment and Immigration at the Central Emergency Government Facility. An organization to be known as the Canada Emergency Employment Service shall be responsible for the application and administration of these Regulations. It shall consist of the staff and facilities of the peacetime Department of Employment and Immigration and such other persons and facilities as may be required. The CEMS will form part of the Federal Emergency Government and will be represented at central, regional, zonal and local levels.
Should temporary interruptions of communications isolate local, zonal or regional areas, the representatives in each such area will be authorized to administer the Emergency Manpower Regulations on their own initiative in accordance with established policies.
Functions of the Canada Emergency Employment Service
Within its general responsibility for the direction and control of manpower in the event of a nuclear attack, the Canada Emergency Employment Service (CEES) will have the following specific functions:
advise the Minister of Employment and Immigration on matters of manpower policy; 40 study and formulate recommendations on matters concerning manpower mobilization and utilization during the emergency period; 50
. develop general policies and programs related thereto;
• maintain liaison with other elements and agencies of emergency government on matters relative to manpower mobilization and utilization; examine and recommend on the manpower implications of their policies and programs; and
• develop formal regulations and orders concerning the mobilization, direction and control of manpower.
To ensure that the CEES will be able to carry out its wartime functions, the Federal Department of Employment and Immigration is responsible for the following primary functions:
• analysis of national manpower needs and resources and the preparation of recommendations required for the development of broad measures required to meet changing conditions;
• provision of advice on changes necessary regarding essential activities and critical occupations;
• preparation and dissemination of operating directives and instructions for control and allocation of manpower;
• application of. priorities and controls;
• provision of local labour market information and analyses; and
• enforcement of manpower controls and directives.
Establishment of Priorities
To obtain the most efficient utilization of available manpower, it will be necessary to establish, on the basis of their relative importance, priority ratings for the various activities for which manpower will be required during an emergency. The retention, allocation or transfer of manpower for these activities will be arranged in accordance with priorities established in peacetime in consultation with departments and agencies having emergency manpower requirements. Priorities will be adjusted as required by the devel- opment of the emergency situation.
Identification of Essential Activities
Before priorities to govern the allocation of manpower resources can be established, it is necessary to identify those activities that will be considered essential during an emergency. In terms of emergency conditions, therefore, an essential activity is defined as one: . the continuance of which is essential to the 51
support of the war effort and survival of • Canadians as individuals and Canada as a nation; and
• that will reqgre the application of allocation policies to ensure an adequate supply of manpower.
Essential Activities can be divided into two main categories:
• those allied to survival operations; and
• those allied to recovery.
For the purpose of manpower allocation and control, it will be difficult to differentiate between survival and recovery in relation to time.
Survival activities in damaged and contiguous areas will be concurrent with recovery activities in undamaged areas. While it is vital to ensure that activities essential to survival are adequately staffed, perhaps in some cases at the expense of activities essential to recovery, it is equally vital to ensure that the remaining productive capacity in activities essential to recovery continues unabated or is expanded as required to avoid complete depletion of stocks of essential goods.
It is evident that priorities for activities essential to actual survival operations will, in most cases, differ greatly from those essential to recovery. While a general "freeze" order covering those employed in all essential activities may be invoked at the beginning of an emergency, its application in various parts of the country would have to be modified to suit local conditions after consultation among employment and bther authorities.
Activities essential to survival operations, omitting actual defence against the enemy, will include the following:
. Maintenance of the Continuity of Government - This will include the manning and operation of all emergency government sites, implementation of departmental emergency plans and the preservation of law and order.
• Survival Operations: • rescue, first aid and evacuation of survivors; . decontamination; • firefighting; . radiation monitoring; • traffic control; . damage and casualty assessment,
. Emergency Health Services
. Emergency Welfare Services 52
• Public Utilities (including repairs and restoration) • Transportation • Communication • Power generation and distribution • Water supplies and sewage disposal
. Provision of Basic Necessities
• Food, fuel, housing, clothing, etc.
The continuance of many activities which might be listed under these headings will be essential both to survival operations and recovery. In some activities, such as food distribution, in which a large number of people are employed in peacetime, the surviving members of the peacetime work force may be adequate, or more than adequate, to carry on the equivalent activity under emergency conditions. The relative essentiality of each will depend on the severity and duration of the attack and priorities for the allocation of manpower will be developed in consultation with the departments and agencies concerned in the light of the circumstances at the time.
Activities essential to recovery are those allied to the restoration of the economy and the establishment of a standard of living consistent with the availability of physical productive capacity and manpower. It will be necessary to restore production as quickly as possible to provide a continuous supply of basic necessities, improving quality, quantity, standards and conditions as circumstances permit. Such survival operations as rescue, first aid and fire- fighting will revert to the degree of importance they have in peacetime, unless further nuclear attacks or attacks of other types occur: Higher priority will be assigned to activities such as the production of food, housing, and other necessities, and the reconstruction of industrial plants and public utilities.
Identification of Critical Occupations
The maintenance of essential activities involves the use of critical occupations which can be defined as those which:
. are indispensable to the carrying out of essential activities;
. require such a degree of skill that additional workers cannot be trained quickly enough to prevent a shortage of workers in a given occupation during a significant period; and
• require control over their allocation because of potential rival demands.
Workers in critical occupations might be employed prior to the beginning of an emergency in either an essential or non-essential activity. Those in essential activities will be retained, while,those in non-essential activities will be subject to transfer to an activity of higher priority. • 53
Manpower Allocation and Control 0 During an emergency, a system of manpower control and allocation will be brought into operation in consonance with the following principles:
some departments and agencies, of a skeleton nature in peacetime, will require large staffs very quickly in an emergency. For these to be fully effective at the outset, advance allocation of as much key manpower as required is essential;
. many of those employed in essential activities will have to be retained in their emplôyment and protected frôm alternate use as'long.as.required; and
. additional manpower for essential activities will be allocated from any surpluses of manpower available and through the curtailment of non-essential activities.
In the application of these principles, it will be recognized that the de- centralization of government will necessitate the administration of manpower allocation on a decentralized basis, since manpower priority ratings of given activities will differ in different localities. It will also be necessary to facilitate the movement of manpower to areas where it is needed, which will require the co-ordination of manpower priorities on a zonal, regional or national basis. The application of sanctions would have to be considered for possible use against those who do not comply with manpower directives.
Other Manpower Policies during an.Emergency
Industrial Relations - It is expected that organized labour and management will co-operate in achieving the prohibition of work stoppage in an emergency. Regulations in regard to industrial relations will be developed and applied by the Federal and Provincial Departments of Labour.
. Wages and Salaries - Regulations for the determination and stabilization of wages and salaries will also be made by the Department of Labour to conform to overall government policies regarding finance, prices, employment and monetary côntrols.
. Employees' Rights - Rights previously acquired by employees will be maintained or re-established as far as practicable at a later date. Those allocated to emergency work will have a right to re-instatement in their former employment,if possible.
0 54 •
• 55
Chapter 11
SUPPLY AND PRODUCTION OF ESSENTIAL COMMODITIES
General
Federal Government plans for control of the supply and production of essential commodities will normally affect civil emergency planning at the municipal level only in the event of war circumstance.
The government has planned that should an enemy attack be made on this country, specialized organizations for control would be activated immediately under the War Measures Act to support government at all levels, with full respon- sibility for all aspects of control over the production, distribution, and pricing of supplies, both civil and military.
Federal departments have the responsibility of making the various peacetime arrangements necessary to permit the specialized organizations for control to come into effective existence immediately on the outbreak of war, or as directed subsequent to the promulgation of the War Measures Act.
The Problem
If Canada should ever be subjected to enemy attack, particularly nuclear attack, the supply of essential materials and services for either civilian or military purposes would pose problems of a kind quite unfamiliar to governments and citizens alike:
many vitally needed supplies could become scarce immediately after a nuclear attack, for a variety of reasons:
some would be destroyed;
- the normal distribution system could be dislocated by the dispersal of people or by the disruption of transportation and communications;
- areas normally supporting only a small number of people might suddenly be inundated by refugees from targeted areas;
- there would be some tendency for people to buy all available supplies and hoard them; and
- imports might cease altogether, or at least might be seriously curtailed.
agricultural production might be able to continue in some parts of the country; but most manufacturing and food processing, which tend to be concentrated in the large cities, could virtually cease for a time;
. production in areas not directly affected or threatened by attack would be in danger of stopping before long for lack of production materials or spare parts, or because of the widespread 56 dislocation of transportation, communications, and financial arrangements;
. any failure of electric power supply, because of damage or other reasons, will have immediate repercussions on production and the public at large; and 0
. it might be noted, finally, that radioactive fallout could make surviving stocks of commodities and surviving production facilities inaccessible or unusable in many places for varying lengths of time.
Assumptions
Precisely what would happen in a future war circumstance, of course, must of necessity be a matter of speculation to some degree. Hence, it is necessary for planning purposes to develop a number of assumptions.
plans against nuclear attack must cater for at least two phases:
Shock Phase - This phase includes the duration of the attack, and the interval following until arrangements have been completed for the survival of the remaining population with the government in control although using emergency powers. To assist in realistic planning, it has been subdivided into three periods. These periods could vary in different parts of the country.
Attack Period - The time during which Canada, as a whole or in part, is under nuclear attack including fallout from nuclear detonations in the U.S.A. and ending with commencement of rescue operations.
Life-saving Period - The time covering rescue operations, evacuation from damaged areas and areas of very serious fallout, and initial reception arrangements in unaffected communities.
- Survival Period - The time during which the necessary arrangements could be completed to ensure the continued sustenance of the surviving population. During this period survivors would have to depend on immediately available resources such as transport, oil, food and communications, because, except in areas undamaged and not subject to any fallout, new production and resupply would be most difficult. During this period, radioactivity resulting from the nuclear exchange would have decayed to an extent which would allow people to leave their shelter at least for a limited time. At the end of the period the level of radio- activity should have dropped to the point where the surviving population would be able to live more normally, even though there might still be some restricted areas of high intensity radioactivity or "hot spots".
Recovery Phase - This phase includes the long time interval following the survival period when reconstruction and rehabilitation would be the le primary considerations. 57 . the essential needs of the population during the Shock Phase will have to be met in the main from stocks of ready-to-use finished products rather than from the normal productive capacity of the country;
. the commodities most needed immediately will be:
- food; - fuel, particularly for transportation and heating; - materials for human use, especially clothes, shoes and blankets; - repair materials and equipment for restoring such essential services as railways, public utilities, communications facilities and roads; and - medical supplies.
• by the end of the Shock Phase, or very early in the Recovery Phase, to permit work on the task of rehabilitating homeless and destitute people, there would be a need for additional materials such as the following:
- simple building materials and tools; - heating and electrical supplies; - furniture; and - household appliances.
• to the extent that production might be able to continue, or be restored, during the Shock Phase, there will be some flow of essential commodities to replenish stocks. Equally, however, there could be an accompanying flow of non-essential commodities from continuing production which, if not restricted, might seriously deplete crucial stocks of raw or semi-finished materials or seriously impede the early re-employment of important segments of our manpower resources on more important work;
• the real production problem will not arise until the Shock Phase is over, and its exact nature even then is very difficult to predict. Depending on the amount of damage done, the Recovery Phase alone will place heavy demands on our production capacity for all those things needed to permit reconstruction and rehabilitation of the country, and this demand will be heaviest under circumstances in which many production facilities themselves have been destroyed or suffered crippling damage. If the war continues, military demands on surviving production capability will compete with those of the civilian population, and the problem may well be not so much the allocation of finished products between these competing claimants as the provision of enough production facilities to meet the minimum needs of both the civilian population and the military forces. In either event, after the Shock Phase is over it may prove necessary to convert all remaining production facilities, as rapidly as possible, to purposes directly related to the survival and rehabilitation of the country or to the • further prosecution of the war. 58
0
^ Part III 59 Chapter 12
ORGANIZATION OF A MUNICIPALITY FOR CIVIL • EMERGENCY PLANNING (WAR)
General
This chapter outlines in general terms how a municipality could organize to carry out emergency planning for war.
Municipal governments have inherent responsibilities to prepare themselves to cope with emergency situations, including those caused by both war and peacetime disasters. In areas where a high risk of direct attack is con- sidered to exist, municipalities will be concerned with measures to ensure the continuity of local government and the protection of the population against the direct effects. In other areas, municipalities must be prepared to deal with the reception of large numbers of casualties and evacuees and with the protection of the population against the effects of radioactive fallout.
These problems do not form part of the everyday tasks of municipal depart- ments. Therefore, it is necessary to consider how existing municipal organizations can be adapted to the emergency role, as an extension of normal functions.
General Requirement
Each of the provincial and territorial governments has enacted legislation relating to civil emergency measures. Ih several cases the legislation regulations thereto, or directives and guidance promulgated under it by the provincial or territorial authorities specify how municipalities must organize and the procedures they must follow in preparing their plans. Some provinces, for example, group individual municipalities together into "emergency areas" for civil emergency planning and operations.
The size of the municipality, whether it plans independently or as part of a group, the level of risk assigned by the current threat appraisal, and the assigned role within the overall provincial or territorial plan, all tend to affect both the size and composition of the emergency planning organization of the particular municipality. In fact, there is consider- able variation in the approach required by municipalities. However, the eollowing organizational elements seem to be common to all municipalities:
. A standing committee of council, which will be referred to in this guide as the Control Committee, but which is called in various parts of Canada the Emergency Measures Committee or other descriptive names.
An official, charged by the municipal government with the responsibility of coordinating and administering its emergency planning activities, usually called the Emergency • Measures Coordinator (or Director). 60
An interdepartmental planning body, usually called the Civil Emergency Planning Committee, composed of the heads of those municipal departments which might have roles in • a wartime emergency.
Control Committee
The Control Committee should be representative of the elected body of the municipality in peacetime, its main task being to review emergency requirements and to recommend emergency program policy to council. It is from this committee of council that the Co-ordinatox should receive his direction. During emergencies, it would probably be this committee, together with the head of council, which would provide executive direction to the municipal emergency organization and the public.
Co-ordinatoV Director and Staff
Because of the nature of the task of developing a comprehensive program for civil emergency planning at the municipal level, it is frequently necessary to appoint a Coordinator and to provide him with a small staff. The Co-ordinator's office may be part of the municipal clerk's office or it may be established as a separate operating department or agency. The former course may offer certain advantages, in that the type of infor- mation required for the development of effective emergency plans may be more readily available through the clerk's office.
Remuneration for the Co-ordinator and his staff, where employed full-time, should be in accordance with the salary scale of the municipality and commensurate with the salaries of other municipal department heads. Where the Co-ordinator and staff are employed part-time, honoraria may be paid.
Some of the duties of a municipal co-ordinator would be:
to assist the Cnntrol Committee in developing the emergency plan for the municipality;
to inform municipal officials of the objectives and attainments of emergency planning;
to ensure that all departments and agencies of the municipality are kept up-to-date on emergency measures matters;
to prepare financial estimates for the program;
to maintain liaison with neighbouring and provincial emergency measures authorities;
to develop an effective training program;
to develop an effective public information program; and
to act as a principal adviser and staff officer to the head of council and the Control Committee during the emergency. 61
Civil Emergency Planning Committee • This committee should be representative of all departments of municipal government which have functions to fulfil during emergencies. The members should be the heads or chiefs of the various departments. In case of smaller municipalities where certain emergency functions cannot be assigned to municipal departments because none exist, it will be necessary to appoint well qualified volunteers to fulfil these functions. Thus, in the case of large municipalities, the planning committee will be comprised of municipal employees for the most part, while for smaller communities the planning committees might consist mainly of volunteers.
In general, planning committees should represent health, welfare, fire, police, engineering, transport, utilities, public information, radio- logical defence, legal, finance and any other agency or department of local government which has an emergency role during disaster.
The task of the planning committee is to develop the emergency plan for the community. This emergency plan will include measures which should be adopted to ensure the survival of the maximum number of the population and to provide for continuity of local government. Each departmental representative is primarily responsible for the development of the emergency plan for the service he represents. It is the task of the Coordinator to assist in the development of these plans by providing such advice as may be required, and to ensure that the various departmental plans are coordinated.
Typical Planning Tasks
A number of examples of typical planning tasks are listed in Tables at the end of this chapter.. Table 1 lists several typical planning tasks for communities which are judged to be at risk from direct weapon effects (i.e., "likely target areas") and Table 2 lists some typical planning tasks for other areas ("non-target areas").
Groups of Municipalities
Where it is found to be expedient for municipalities to group together for civil emergency planning purposes on an area or county basis, the procedures outlined above should be followed except that all participa- ting municipalities will have to pass the necessary legislation to make consolidation effective. Each municipality will be represented on the Control Committee of the area or county. An additional task of such a committee would be to agree on a division of costs between participating municipalities. 62
TYPICAL MUNICIPAL PLANNING TASKS
The following tables list some of the more common emergency measures which must be considered by the municipal emergency planning organization. It is emphasized that these lists will not be complete for any specific municipality. Many other items will suggest themselves to the emergency planners as planning progresses and the roles of depart- ments become more clearly defined.
TABLE 1
Area Designated as a Likely Target Area
Serial Emergency Planning Suggested Responsible Suggested Cooperating Task Department/Agency Departments/Agencies
1 Traffic survey for pre- Traffic Engineer Provincial Police, attack voluntary evacuation Municipal Police
2 Emergency traffic control Police Traffic Engineer, plan Provincial Police
3 Survey of water supply for Engineer Fire fire-fighting
4 Provision of emergency Engineer Health drinking water
5 Shelter programs Engineer Radiological Defence, Assessor, Building Inspector, Welfare, Health
6 Survey of engineer Engineer Designated Provincial equipment Engineer, Local contractors, Highways
7 Provision of emergency Communications Radio amateurs, local DOC communications representative, Radio taxis, Police, GRS(CB)
8 Radiological Defence Radiological Universities, Technical Defence Schools, High School science staffs
9 Fire vulnerability Fire Engineer, Fire insurance survey underwriters • TABLE 1 Cont'd 63
Serial Emergency Planning Suggested Responsible Suggested Cooperating • Task Department/Agency Departments/Agencies
10 Public information and Public information Local newspapers, Radio education program and T.V. stations, Public relations organizations
11 Preservation of essential Municipal Clerk All municipal departments records
12 Safety program for school School Board Coordinator, Police children following warning during school hours
13 Plans for the evacuation and Welfare Health, Police, continuing care of residents Transport, Coordinator of welfare institutions
14 Plans for the evacuation and Health Welfare, Police, care of residents of health Transport, Coordinator institutions
15 Municipal legislation to Municipal Council Municipal Solicitor, establish the emergency Coordinator organization
16 Recruiting of auxiliaries Departments Coordinator for existing municipal concerned departments (Fire, Police, etc.)
17 Development of emergency Municipal Council Coordinator organizations where needed and recruiting of staffs and workers
18 Training of departmental Departments Coordinator staffs and volunteer workers concerned
19 Training exercises Coordinator All municipal departments
20 Preparation of departmental Departments Coordinator emergency plans concerned
21 Planning for emergency Municipal Council Coordinator, all government headquarters departments concerned and selection of departmental assembly areas
22 Provision of mutual aid Coordinator Councils of neighbouring for and by neighbouring municipalities municipalities • 23 Plans for action by the Coordinator All municipal public related to various departments warning times 64
TABLE 2
Area NOT Designated as a Likely Target Area
Serial Emergency Planning Suggested Responsible Suggested Cooperating Task Department/Agency Departments/Agencies
1 Survey of reception Welfare Health, Engineer, accommodation Assessor, Building Inspector, Fire
2 Arrangements for reception Welfare Police of evacuees, registration and Transport inquiry, emergency feeding Supply and allocation of accommodation
3 Care of unattached evacuee Welfare Childrens Aid Society, children and dependent adults Homes for Special Care Social Services
4 Receiving and caring for Health Welfare, Local hospitals, evacuee casualties Canadian Red Cross, St. John Ambulance
5 Provision of emergency Engineer Health drinking water
6 Shelter programs Engineer Building Inspector, Radiological Defence, Assessor, Welfare, Health
7 Sanitation survey, garbage, Health Engineer sewage, vermin control
8 Epidemic control and Health Schools, Churches, Civic immunization programs groups, Public information
9 Survey of water supply for Engineer Fire fire-fighting
10 Survey of engineer equipment Engineer Designated Provincial Engineer, Local contractors Highways
11 . Traffic control plan for Police Provincial Police, Health, reception and/or remedial, Welfare, Traffic Engineer ev.acuation
12 Overall plans for remedial Coordinator Police, Radiological evacuation Defence, Provincial Police, Welfare, Public Information, Health TABLE 2 Cont'd 65
0 Serial Emergency Planning Suggested Responsible Suggested Coordinating Task Department/Agency Departments/Agencies
13 Plans for the reception Welfare Health, Police, Transport and care of residents of ;Co-ordinator welfare institutions
14 Plans for the reception Health Welfare, Police, Transport, and care of residents of Co-ordinator health institutions
15 Provision of emergency Communications Telephone and telegraph, communications Radio amateurs, Radio taxis, Police, GRS (CB)
16 Plan for maintenance of Police Provincial police law and order
17 Public information and Public information Local newspapers, Radio education program and T.V. stations, Public relations organizations
18 Municipal emergency Head of Council Municipal Solicitor legislation to establish the emergency organization
19 Provision of mutual aid by Coodinator Heads of Council of neighbouring municipalities neighbouring municipalities
20 Recruiting of auxiliaries Departments Co-ordinator for existing municipal concerned departments (Police, Fire, etc.)
21 Development of emergency Head of Council Co-ordinat.or organizations where needed and recruiting of staffs and workers
22 Training of departmental Departments Co-o'rdin'ator staffs and volunteer workers concerned
23 Training exercises Coordinator All municipal departments and agencies
24 Preparation of emergency plans Departments Co-ordinator concerned
25 Preparation of instructions Co-ordinator All municipal for public action following departments receipt of fallout warning 9 66
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Chapter 13
• PROCEDURES FOR CIVIL EMERGENCY PLANNING (PEACE AND WAR)
General
This chapter outlines general procedures which might be followed in developing a municipal emergency plan and suggests a format for a com- pleted plan. The procedures and format described are intended for use by larger urban municipalities. For those concerned with smaller municipal- ities, a simplified approach to organization and planning is suggested at Chapter 16.
The process of developing a municipal emergency plan may take some time, as the development of organizations and operational capabilities are involved. A municipality starting this process has no way of knowing how soon it may have to implement its plan. In order that at least a limited operational capability may be achieved as soon as possible after the commencement of planning, it is suggested that municipalities first develop interim plans, based upon the use of existing, readily identifiable man- power and resources. The interim plan can then form the base upon which to build the full emergency plan. This line of approach to emergency planning is used in this chapter.
Legislation
The first step to establish civil emergency planning in a municipal- ity should be the enactment of legislation in the form of a by-law or ordinance to authorize the emergency organization and provide it with its terms of rnference. This legislation should be based on the legislative pattern esl- ablished by the parent province or territory.
Local legislation should provide for the establishment of a standing committee of council (the Control Committee) and a Civil Emergency Planning Committee. Provision should be made in the legislation for financial appropriations to cover the employment of additional personnel who are con- sidered to be necessary to administer the program. However, exiSting municipal facilities and services should be used to the greatest extent possible.
Most provinces have special formats for this type of by-law.
Control Committee
The Control Committee must decide upon the broad responsibilities to be assigned to municipal departments and agencies for civil emergency planning. When these responsibilities have been established, they should be issued as formal terms of reference for the guidance of the Civil Emergency Planning Committee and the Coordinator. These terms of reference should include: 68
a statement regarding the threat, scale and forms of attack and types of disaster situations which must be considered;
a statement of the aim of the municipal plan;
. planning assumptions;
. responsibilities of the Coordinator;
. responsibilities of departments and/or agencies;
. channels for liaison with provincial and zone authorities; also federal agencies at municipal level, including the Canadian Forces;
a general layout and form for the plan; and
target dates for completion of the plan.
Other chapters of this guide deal in detail with the organization and functions of the municipal emergency services.
Civil Emergency Planning Committee
Within the terms of reference issued by the Control Committee, the Civil Emergency Planning Committee, under the guidance of the Coordinator, can decide upon the planning responsibilities of each department or agency. Within each department an emergency planning officer should be designated to undertake those tasks which are the specific respcnsibility of the department. Because of the complexities of some departmental responsibil- ities, planning responsibilities for these departments might have to be assigned to departmental working groups, and where a task concerns more than one department or agency, an interdepartmental planning group must be established; e.g., evacuation of hospitals, schools, welfare institutions, etc.
The working group technique has been found to be successful in the develop- ment of a single plan covering a wide variety of subjects of a complex nature. For example, a municipal engineer could have the broad responsibil- ity for the engineering and utility plan. Some of the subjects which must be treated in such a plan would be engineering equipment, road clearance, water, hydro, fuel, gas and others. Working groups comprised of specialists for each of the subjects mentioned will be able to develop a more effective and comprehensive single plan covering all of these specialties.
In some cases, it may be necessary to obtain the services of outside specialists to assist in planning. For example, a municipality which does not have an engineering department may find it necessary to have a consultant architect or engineer carry out a shielding analysis to determine the fallout protection potential of buildings. 0 69
In order that the Civil Emergency Planning Committee may be continually abreast of the progress of planning, the Coordinator should maintain a i progress chart which will show:
departmental or agency planning officers or working groups;
. interdepartmental planning groups;
. consultant or special agencies;
. planning terms of reference for each of the above; and
target dates for completion of plans.
When the planning organization has been established, terms of reference issued and planning responsibilities allocated, it will become apparent that the preparation of a detailed and complete plan is a fairly long- term project. The length of time for preparation of plans will vary according to the size of municipality, the extent to which existing manpower and physical assets can be applied to the plan, and other local factors.
The development of plans should be conducted in a manner which will pro- vide progressively increasing protection to the population. The develop- ment of an interim plan will ensure that some emergency measures could be executed in the event that an emergency arose before final plans were completed. Preparation of such a plan should not of course disrupt the sequence or pace of development of the final plan.
Areas Designated Likely Target Areas
Likely target areas will be most concerned with the early achievement of a capability for pre-attack voluntary evacuation and provision for the continued operation of their government and essential services. Therefore, an interim plan for a likely target area should include:
selection of a headquarters for emergency government outside the likely target area;
selection of key officials of emergency government and designation of alternates in line of succession;
. provision of emergency communication which will allow the emergency government to function; . a radiological defence plan;
arrangements for the preservation of essential records; a plan for issue of warning of attack or fallout 0 to the public, prepared in conjunction with the Canadian Forces, zone and provincial authorities; 70
. a plan for public action based upon the availability of different warning times;
a public information Drogram designed to inform the population about warning signals, nuclear weapons effects, facts about fallout, shelters and individual training and action which can be taken for survival;
a plan for a traffic control organization based upon existing manpower and facilities, including the selection and marking of main evacuation routes;
a plan to make use of existing buildings for fallout protection;
in conjunction with provincial authorities, the allotment of reception areas; and
interim departmental plans for the execution of the above plans.
Municipalities not Designated Likely_Target Areas
These municipalities should concentrate initially upon those plans which will provide early reception capability and protection from fallout. Their interim plans should therefore include:
provision for municipal emergency government headquarters in accommodation which would provide reasonable fallout protection;
. selection of key officials of emergency govern- ment and designation of alternates in line of succession;
a plan for use of existing communication facilities;
arrangements for the preservation of essential records;
a plan for issue of warning of attack or fallout to the public, prepared in conjunction with the Canadian Forces, zone and provincial authorities;
a plan for public action based upon the availability of different warning times;
a public information program designed to . inform the population about warning signals, public action on receipt of warning, nuclear weapons effects, facts about fallout, shelters and individual training and action which can be taken for survival; 71
. a broad plan for reception of evacuees and/or casualties based upon a preliminary survey of existing lodging and feeding facilities, hospitals and health and welfare institutions and a reception organization which can quickly become operational;
• a plan to make maximum use of existing fallout protection;
• a radiological defence plan; and
• interim departmental plans for the execution of the above plans.
Final Plan
A completed civil emergency plan will provide a method for the mobili- zation, organization and direction of the government and civil emergency forces within the municipality. More specifically the plan will:
• establish the authority, responsibility, functions and operations of the various agencies required for emergency purposes;
• provide a basis for the coordination of the total plan by municipal government during an emergency;
show how the manpower and physical resources of a municipality will be utilized; and
outline in writing those procedures which can be put into operation automatically (Standing Operating Procedures), so that valuable time can be saved in the event that those who have the final authority are unable to initiate the required action quickly.
A Guide for the.Contents of a Final Plan (a)
. The Aim: States the aim of the plan.
Introduction: Describes the threat, scale and forms of attack and disaster situations which might occur and gives a broad outline of the content of the plan.
. Legislation: Provincial or local legislation which provides for the preparation and implementa- • tion of the emergency plan.
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(a) NOTE: Some municipalities may wish to prepare a single Municipal Emergency Plan which includes both the wartime plan described in this chapter and the Peacetime Disaster plan which shows the organization of the municipal government and its emergency services to meet various peacetime emergencies, such as aircraft crashes, major fires, floods, etc.
General: Types of disaster covered, planning assumptions, shelter and evacuation policy and general responsibilities for municipal and other levels of government in an emergency.
Emergency Organization: The organization of the municipal government and supporting agencies to meet an emergency including emergency headquarters, command and control structure, designation of all key officials, arrangements for the preservation of essential records, alternates in line of succession, participating agencies and their roles and relation- ship to other municipalities, zone and province.
The General Survival Plan: The warning system, public action plan for various warning times, emergency govern- ment headquarters location, method for mobilization and assembly of the emergency organization and method for issue of instructions to the public.
Pre-attack Evacuation Plan: The complete plan for dealing with the movement of those who wish to leave, including the method for issue of instructions to the public, allocation and marking of main evacuation routes from likely target areas to reception areas, traffic control organization and allocation of transporta- tion for institutions and hospitals. (Applies to likely target areas only).
Life-Saving Operations Plan,: The complete plan for rescue and evacuation of injured, medical care, evacuation of homeless , fire-fighting, route clearance, salvage, etc., in and around the damaged area during the immediate post- attack period.
Remedial Evacuation Plan: Method for issue of instructions to the public, organization of the municipality for evacua- tion, traffic control organization and allocation of transportation for institutions and hospitals. (Applies to all municipalities other than those designated as likely target areas).
Reception Plan: The complete plan for reception, initial reception arrangements; responsibilities of welfare, health, traffic control, fire, police, engineer, trans- portation and radiological defence services. • 73
Shelter Plan: Based upon the municipal shelter program, a shelter plan designed to afford fallout protection to the • maximum number of people. Radiological Defence Plan: Municipal plans for radio- logical defence integrated with arrangements for reporting nuclear detonation integrated with arrangements for monitoring; instructions regarding action by the public under fallout conditions.
Departmental Plans: Separate emergency plans for each existing department and those specially created for an emergency function such as communications, transportation, public information and rescue. These plans will duplicate in some respects information already included in evacuation and reception plans. In general departmental plans should cover the following:
assumptions which apply to the departmental plans;
the role of the department or agency;
. organization of the department or agency for emergency functions;
• names of principal officials and alter- nates in lines of succession;
• command and control structure;
• departmental tasks;
• assignment of resources of manpower and equipment to tasks;
• preservation of essential records;
. method for emergency mobilization of departments;
• commitments to other departments;
• communications; and
• standing operating procedures.
Review of Plans
For reasons such as a change in the nature of the threat or lessons learned from exercises, there will undoubtedly be changes in the plan either during development or subsequent to its completion. A system of checks must be set up to make sure that changes of key officials are recorded, that 74
essential records are kept up-to-date and amended as required, that emergency forces are trained and up to strength and that emergency equip- ment is available and serviceable.
It is the responsibility of the Civil Emergency Planning Committee under the guidance of the Coordinator to keep plans up-to-date by periodic review (at least twice annually) and to report to the Control Committee on the state of readiness of the municipality.
In addition, it may be necessary in times of increased world tension to increase the state of readiness of the municipality. Although the procedures for the issue of guidance from senior governments would likely vary to suit the situation at the time, the checklist (Chapter 31) has been prepared to_assist municipalities in such circumstances. Civil States of Alert may also be issued to municipalities during this period.
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Chapter 14 • OPERATIONS General
Municipal emergency government headquarters must be organized to be able to direct and control the municipal services throughout the period of an emergency. This general principle applies to all municipalities including the likely target areas.
The organization and functions of municipal government for an emergency will vary widely depending upon whether the community is in a likely target area, the size of the community, and many other local factors. This chapter describes the functions, organization and operations of a larger municipal emergency government headquarters, but any community may make use of it by adjusting where appropriate to suit particular requirements.
Functions
The broad function of municipal emergency government headquarters is to control and direct all civil survival operations directed toward the survival of the population and the restoration and rehabilitation of the community during the period of an emergency.
More detailed emergency functions which derive from this broad function follow:
• Likely Target Aréas; '
. to make arrangements for the issue of instructions to the public;
• to direct and control voluntary pre-attack movement of persons who choose to leave the area;
• to mobilize the municipal emergency services in accordance with plans which have been made in peacetime;
. to retain full control over the area throughout the emergency period; and
. to report the progress of survival operations to higher levels of government.
. Areas Not Designated Likely Target Areas;
• to make arrangements for the issue of instructions for public action;
• to mobilize the emergency services;
. to make arrangements for the reception of evacuees and casualties in areas designated as reception areas;
• to control and direct the operations of municipal services throughout the emergency; and 76
0 . to report the progress of survival operations to higher levels of government.
Organization
In order to perform the functions listed above, the headquarters must contain four basic elements of groupings as follows:
. Executive Control - This should comprise the mayor (or other head of government) and selected members of the Civil Emergency Control Committee. The composition of this group must be designed to ensure that a legally constituted head of government is in charge at all times. The Municipal Civil Defence/Emergency Measures Co-ordinator would act as chief adviser or principal staff officer to this element.
. Operations and Intelligence - This element must contain the organization required to acquire and analyze information from all sources to provide the executive control element with adequate and accurate information upon which executive orders can be based. It must also perform the operations staff function of translating executive orders into action and co-ordinating the activities of emergency services. This element should be headed by the Civil Defence/Emergency Measures Co-ordinator in his capacity as principal staff officer to the executive control element.
Emergency Services - Municipal emergency government headquarters will have representatives of some or all of the following emergency services, de- pending upon the size and type of community:
Communications . Radiological Defence . Engineer . Rescue . Fire . Supply Health . Transportation Personnel . Welfare . Police Public Information
The entire staff of some of the services such as Communications, Personnel and Public Information may be located in the emergency headquarters. Where this occurs, some may be integrated into the operations staff. Other services such as Engineer, Fire, Health, Police, Radiological Defence and Welfare, which have a field organization, would be representated at the headquarters by the service head or his senior representative. Service heads would be responsible for the direction of their various services in accordance with the executive orders, and for keeping the Operations and Information element informed of progress and developments.
. Administrative Staff - The headquarters would need a small administrative staff to take care of clerical, feeding and caretaking duties.
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Likely Target Areas.
Where likely target areas are made up of more than one municipality a single civil emergency headquarters should be established to represent all the municipalities in the area.
It will be necessary to give this headquarters authority to act in an emergency by passing provincial and/or local emergency legislation. Organ- ization can be of several types but in general executive control should be exercised by a single executive authority of elected persons representing the municipalities. A single service head should be appointed to co-ordinate emergency operations of each of the services of all the municipalities (police, fire, etc.). A metropolitan organization is of course well suited for this purpose, but even metropolitan areas will have to make arrangements to tie in with some municipalities outside their jurisdiction but within the target area.
The municipal emergency government headquarters must provide for peacetime liaison by the designated head of police, fire and those services respon- sible for the maintenance and repair of the emergency headquarters.
Location
Likely Target Areas '- The municipal emergency government headquarters should be located far enough from any recognized potential strike zone to be free from the effects of blast. In technical terms this means a situation where there is no more than a 5% chance of exceeding 1 psi. As a rule of thumb, a distance of 25 miles should be a minimum require- ment. Members of municipal government not immediately required or without specific emergency tasks should be given post-attack rendezvous points where they would assemble and be available if called.
Non-Target Areas - The municipal emergency headquarters of a community not in a likely target area can be positioned at the normal seat of government or in a suitable existing building within the community.
Protection
All municipal emergency government headquarters must have the capability of operating under fallout conditions on a 24-hour-a-day basis during the early days of an emergency. Account must also be taken of the need for some headquarters staff members to go out to control the activities of emergency services and risk increased exposure to radiation. Where this need is established, it is recommended that a high protection factor be provided for municipal emergency headquarters. In an area of low fallout probability, a lesser protection factor may be acceptable, but in no case should it be less than the protection factor of 100 recommended for the public. However, most municipalities should be able to obtain adequate protection in existing public buildings with some minor modifications.'
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Headquarters Layout 0
Attached to this chapter is a sample.layout, for.the largest type of Municipal Emerge.icy Government Headquarters. Details regarding layout follow:
. Operations Room - Accommodation must be provided for the Operations and information staff. Operations room equipment should include desks or tables, chairs and necessary office machines and stationery. There should be maps of the area and resources boards showing the location and amount of resources in personnel, equipment and materials which are available and committed. Charts showing numbers of evacuees and casualties should be maintained. Maps should be of the following scales or equivalent.
1 or other large scale maps for plotting detailed information 25,000 or equivalent 1 50,000 for plotting locations and general information
1 500,000 for plotting general fallout patterns
Office of the Head of Emergency Government - The office of the head of government or executive group should be a separate working space located adjacent to the Operations Room.
Conference Room - Briefing sessions of headquarters personnel and orders to various groups would be given in this room.
Message Centre - This contains the equipment and personnel charged with maintaining communications within the organization and to outside points. The master register of incoming and outgoing messages is maintained here.
Emergency Services Offices - These can be arranged along one side of the Operations Room. They are used by the heads of the various departments and services who are usually in direct communication with the Operations Room. Detailed maps and resources boards relating to the individual services may be kept here. If possible, the maps and resources boards in the Operations Room should be visible from these offices.
Waiting Room - A room adjacent to the Message Centre for incoming messengers and visitors.
Liaison - The larger headquarters in likely target areas may need a liaison element for military or federal government emergency personnel.
Additional Accommodation - Typing pool, dining room, kitchen, sleeping accommodation, heating plânt and storage space, dispensary, sick bay; washroom and decontamination room. 79
Communities which are not in a likely target area, and P articularly small • municipalities*will not nèed an elaborate layout and provided that communications would be secure under fallout conditions, could probably operate satisfactorily dispersed in a complex of buildings.
Operating Procedures
The operating procedures used by municipal government and services for day- to-day peacetime operations can be adapted to many of the situations which would be created in nuclear war. However, because of the restrictions which could be imposed by unprecedented damage and widespread fallout, it is essential that operating procedures be developed which are simple, capable of alteration to meet a situation which could change rapidly and in part- icular, designed so that operations can be carried out quickly without confusion or loss of effort.
The municipal emergency government headquarters should have in being operating procedures which will provide for rapid assembly and uninterrupted, effective performance of the functions noted previously. Experience has shown that the best way to make sure that this will happen, is to prepare printed Standing Operating Procedures which can be tested in peacetime exercises to make sure that the organization is trained and competent and that nothing is left to chance, and the gaps which would inevitably occur, are closed before-hand.
Essential Records
It is vital that municipal emergency government headquarters have readily at hand those essential records which would be required to carry out survival operations in the shock phase. These would include copies of all survival plans, shelter surveys and other data required by emergency services to carry out their emergency functions.
During the recovery phase other records related to the restoration of the community such as property records and those essential to the preservation of legal rights of government and individuals would be required.
Communities would have to make arrangements to have the records mentioned above available in emergency headquarters, and take steps to ensure their preservation and later availability, Communities will likely be able to position their records so they are available or make arrangements to move records quickly in an emergency.
Resources
It is most important that emergency services know and have accurate records of the municipal resources in personnel, operational supplies and equipment which are available in peacetime and have a ready means of determining what has survived and is at hand to deploy during the period of an emergency. A useful technique which has proven its value is the use of a resources board • which can be kept up-to-date in peacetime. 80
Communications 1 Communications should be provided from Zone Emergency Government Headquarters (ZEGHQ) to Municipal Emergency Government Headquarters (MEGHQ) which should provide for communications internally and down to municipal emergency services. The basic criteria for these communications.are that they must be reliable under conditions of fallout and where necessary, take account of the interruptions which might be caused by damage in the likely target areas.
Reports and Returns
There will be a need for reports from municipalities on the situation, action undertaken for survival, progress of operations and many other matters. At a time when there may be nationwide chaos it is particularly important that these reports be authentic, accurate and timely in order that any sub- sequent action on the part of higher headquarters will be fully effective. Distorted and inaccurate reports can lead to wasteful dissipation of resources and further chaos. It is, therefore, suggested that municipalities develop together with Zone, standard reporting techniques and forms which will reduce the possibility of inaccuracy ±o a minimum and speed up the reporting procedure.
Resources Boards for Municipal Emergency Government Headquarters
The main function of a Resources Board is to provide ready information regarding local resources for survival activities. The board should show:
. the resources available at any one time;
. the disposition of these resources within the area;
. the capability of each service at operating locations;
. the state of reinforcements;
. the deployment of reinforcements to operating locations;
. outstanding features of the emergency - fire, radioactivity.
It is important to remember that the board should be kept as simple as possible. Many other items could be included but they tend to clutter the board. Any detailed information which cannot be found on the Resources Board should be obtainable from log sheets.
The Operations Room will require a main Resources Board. More detailed Resources Boards may be kept by the emergency services represented in the headquarters.
Situation Reports
A situation report (SITREP) is a means by which information on the progress of operations is passed from emergency services to municipal headquarters or to a senior level of government. • 81
The first SITREP, and where necessary, subsequent SITREPS should make particular mention of the following: 0 . state of manning of reporting headquarters;
. general state of readiness of emergency services in the area; and
. degree of implementation of emergency measures.
Each succeeding SITREP after the first should contain only new or changed information. Do not repeat information unless requested. If there is no change from previous SITREPS, it is sufficient to say "reference SITREP No ...... NO CHANGE."
In addition, these reports must contain sufficient information on the post- attack situation to enable the next higher level of government to appraise the general situation in the region, zone or municipality. This may involve reporting in general terms the situation with regard to some or all of the following likely problems:
. wounded, injured and sick;
. hospital and other medical facilities;
. evacuees and associated problems;
manpower, shortages or surpluses;
operations of the municipal emergency services;
. public order and morale;
. resource situation; and
. other matters.
The timings for SITREPS from reporting elements to the MEGHQ and from the MEGHQs to higher EGHQs must conform with the regional and national timings.
Summary
Properly organized, a Municipal Emergency Government Headquarters will be capable of:
operating under fallout conditions;
. dealing with reports and messages at any hour of the day or night for the duration of the emergency;
. maintaining an up-to-date picture of the situation by means of maps, resources boards, etc.;
9 . having information readily available for all users; 82
communicating with all elements of the local emergency organization;
• assessing the situation and taking prompt action;
• arranging for the issue of instructions for public action;
. exercising control over civil survival operations. 83 A Suggested Layout - Municipal Emergency Government Headquarters
Entr
Decontamination Area
Messenger Public Typing Pool & Waiting Room Information Wash Room
Sick Bay
I Message Office of the ICentre Head of Government Communi- cations (Mayor or Wary) ispensary Radioldgicial Police Defenc Fire 7!LiaisonL Engineer Conference OPERATIONS ROOM Room Health Maps and Resources Boards Welfare Wash Room (—I, Rescue Typing SupplyT Persalnel Pool Sleeping Accommodation Sleeping Accommodation
Dining Kitchen Food Storage Heating & Auxiliary Power
NOIE:
The abovL diagram (not to scale) illustrates a suggested layout for a larger Municipal Emergency Government Headquarters. Some larger municipalities may flot have readily available accommodation for such a layout, however every effort should be made to ensure that facilities are provided tor all th ,f tunctional elements detailed in the text. 84
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Chapter 15
STANDING OPERATING PROCEDURES FOR MUNICIPAL EMERGENCY GOVERNMENT HEADQUARTERS
Definition
Standing operating Procedures (SOPs) are administrative or operations procedures or drills for the performance of headquarters functions which can be decided upon before an emergency and prepared in printed form and, hopefully, tested.
General
The transition of a municipal government from peacetime to wartime operations must be accomplished quickly and effectively. The details of the organization, plans and procedures to accomplish the change must be prepared beforehand. Everyone involved must know exactly what is expected of them. This is best achieved by having necessary plans and procedures prepared in the form of Standing Operating Procedures (SOPs).
SOPs are NOT a substitute for judgement and decision, nor will they supply answers to the many problems which will face a local government in time of emergency. The detailed nature and extent of the problems caused by the emergency are for the most part unpredictable.
SOPs will improve the capability to deal with crises. Properly planned and rehearsed, SOPs will provide local government with:
• a rapid means of collecting information on the nature and extent of the emergency;
. an automatic means of assembling the manpower, resources and equipment in the municipality; and
an integrated municipal emergency team capable of dealing with an emergency.
This part sets out some of the conditions necessary before SOPs can be drawn up, notes the characteristics of good SOPs and suggests some points which should be covered in SOPs for the assembly and control of resources and for operations.
. Prerequisites for developing SOPs
Before developing any SOP, the following conditions must exist:
• the functions of the emergency government and each of its elements and departments must be established;
. the type of organization required to carry out the functions must be decided. This may be illustrated • by diagrammatic charts. They should indicate the 86
chain of authority, the inter-relationship between the various departments and the headquarters and the personnel required;
• federal, provincial and zone planning which might affect operations at the municipal level should be indicated if possible;
• the warning system(s) used to alert personnel should be determined; and
• the methods of communication must be established.
. Characteristics of good SOPs
• Simplicity - SOPs should be easy to understand. A complicated series of actions increases the risk of confusion. The various steps in the SOP should be related to functions. If individuals named become casualties or are unavailable, the effectiveness of the SOP will be impaired so alternates must be named and exercised. Maximum use should be made of diagrams, maps, tables, etc.
. Flexibility - provision should be made for amendment as planning progresses, conditions change, and rehearsals indicate that modif- ication is necessary. Alternate areas, routes, sources, systems, etc.,should be indicated where applicable to allow for foreseeable difficulties.
. Automatic Action - SOPs provide the basis for automatic action by individuals and groups without the issuance of further orders.
• Co-ordination - SOPs will assist in the co-ordination of effort by providing a recognized system of activity. SOPs must be known by everyone concerned.
• Rehearsal - rehearsal is essential in peacetime if SOPs are to be effective in an emergency.
• Assembly SOPs
SOPs for the assembly of local government resources are of two types:
. for the assembly of the municipal emergency government headquarters staff; and -
• for the assembly of municipal emergency services staffs. • 87
0 . Municipal emergency government headquarters assembly SOP should include:
. a definite procedure for summoning all key personnel in the event of an emergency;
names, addresses and telephone numbers of all personnel, including heads of emergency services and alternates for key officials (diagram);
routes to the emergency headquarters;
details of clothing and personal equipment required;
. traffic control arrangements;
essential vehicles and equipment including present location, new location, persons responsible for moving, etc.; (the movement plan)
details of any action or report necessary for assembly,including parking, reception, etc.;
diagrams of accommodation showing location of desks, office equipment, maps, resources boards, communications equipment, etc.; and
. opening-up drills including those for operations, administration and communications.
In addition, each emergency service represented at the headquarters which has a field organization, must have separate assembly SOPs. which would include:
. names, addresses and phone numbers of all personnel including alternates for key personnel (diagram);
. location of the service head;
. location of the service rendezvous (RV) (if applicable) where it would assemble prior to movement to the emergency location;
. routes to the emergency location;
. traffic control arrangements;
. details of clothing and personal equipment to be taken; 88
• details of equipment and vehicles, their present location, the new location and who will move them;
• details of any action or reports required by the service head on assembly;
• details of reports required by the headquarters on assembly (state of equipment, personnel, etc.);
• detailed diagrams of service accommodation in the headquarters, showing location of desks, office equipment, maps, tally boards, etc.;
. detailed diagrams of the emergency service locations including vehicle and equipment parks, personnel, accommodation, etc.; and
• opening-up drills.
. Operations SOPs
Operations SOPs for the operation of municipal emergency government headquarters should include:
. a diagram showing all appointments by section or other division with duties and responsibilities of each;
. a slate of personnel with alternates for key positions;
. duty rosters for the shift system;
. system of message control indicating the handling of "IN" messages, message logging procedure and message distribution. The handling of "OUT" messages, including initiating authority, releasing authority, logging, duties of dispatch riders and messengers;
• procedures to be followed in the issue of warning orders by the issuing officer and by the recipients;
. briefing procedures; who is to attend briefing sessions, types of presentations required and outline of subjects to be covered by each person;
• details required on situation maps for fire, damage, roads, radiation, etc., and the symbols to be used; who is responsible for keeping maps up-to-date; • 89
• . details of resources boards required and who is responsible for the maintenance of this information;
. details covering instructions to the public including necessary clearances with higher headquarters, method of dissemination, etc.;
. details of liaison and co-operation with the Canadian Forces including channels of communications;
contents of situation reports to higher headquarters including the format and times of submission if applicable; and
communications diagrams and procedures for establishing communications with higher headquarters, local municipal services, neighbouring municipalities and the Canadian Forces.
. Administration SOPs
. action to be taken in case of fire, duties of fire pickets, location of extinguishers and alarms, assembly areas for personnel;
security regulations including details of passes required for entry, security guards, prohibited areas, traffic control and parking areas at the HQ;
. housekeeping and maintenance regulations to include sleeping, feeding and sanitation arrangements;
. precautions when operating under conditions of fallout. The operation of municipal radiological defence service, monitoring station locations, reports required, etc.; and
communications regulations for the maintenance and operation of equipment including the location and method of obtaining spare parts.
. SOPs for Municipal Emergency Services
Operations and Administration SOPs for municipal emergency services should be drawn up by heads of the services who are specialists in their field.
. Action to be taken on Changes of Alert States.
0 90 •
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Chapter 16
ORGANIZATION AND PLANNING IN THE SMALLER COMMUNITY 0 The municipality of under 5,000 population does not, as a rule, require as elaborate an emergency organization as larger communities. Some services may not be necessary and the entire emergency headquarters orga- nization may only require ten to fifteen persons.
All municipalities, irrespective of size, are responsible for basic survival measures. The most important are:
. the continued operation of the government and its essential services;
. a positive program of information to the population of the community;
a plan for the protection of those in the community against the hazards of nuclear war.
Emergency Organization
Municipal Emergency Headquarters staff should include:
. elected officials;
. the civil defence Co-ordinator/Director
the heads of each of the required services; and
. a small supporting staff of clerks and typists.
This staff would be required to operate from a central location in the community. The Town Hall basement or equivalent, would be most convenient, providing some form of fallout protection is available.
The following services are considered essential in any community and others may be added where required:
. Communications: In the first instance reliance must be placed on the existing telephone service. But, because of the possibility of disruption, consideration should be given to having a radio backup to the area, county or zone headquarters. The communications service would therefore involve a person to receive telephone calls and a person capable of operating the radio.
. Emergency Welfare: Some smaller municipalities do not have a peacetime welfare organization, but will no doubt be designated to receive evacuees. In this case a person with good organizational ability should be chosen to organize the welfare service. 92
Radiological Defence: Radioactive fallout could be the most serious hazard in any small community. A person, preferably with enough education to grasp the technical aspects of radiological defence, should be appointed head of this service. Supporting him in the emergency headquarters should be someone to plot fallout information on a map of the community. Radiation monitors trained in the use of radiation detection equipment will also be required.
Fire: Many of the smaller communities have peacetime volunteer fire departments. All communities should be urged to develop this important service. In the event of an emergency it is likely that an influx of evacuees necessitating the use of makeshift accommodation arrangements, could increase the fire hazards considerably; consequently, as many people as possible should be trained in basic fire- fighting skills and practices.
Public Information: All members of the community must be informed of the hazards of nuclear war, the survival measures that can be taken and the municipal emergency plan. Some local person or organization should be assigned this responsibility.
A Guide for the Contents of an Emergency Plan
The paragraphs which follow offer guidance regarding the contents of an emergency plan for a small municipality.
Aim of the Plan: State in general terms the type of the emergency for which this plan has been prepared. It will be for one or more of the following types of emergency situations:
. protection of the population under conditions of fallout;
. reception and care of evacuees;
. reception and care of the injured;
. evacuation of the population; and
. mutual aid.
Introduction: Describe in general terms the nature of the emergency situation for which the plan has been developed and the assumptions which have been made:
O 93
. Resources: A listing of the main resources available in the municipality, e.g., firefighting equipment, earth-moving equipment, large trucks, or any equipment having an emergency capability.
. Emergency Organization: Describe the type and number of emergency services which are in the community. For each emergency service, including the municipal emergency government headquarters, list the following:
• name, address and telephone number of the Chief of the service and the principal officers;
. the organization of the service - this might take the form of a chart attached to the plan as an annex;
• the types of equipment the service uses to carry out its tasks; or the installations (buildings, etc.) from which the service carries out its tasks.
. Method of Operations: List the following information concerning each service:
. the location from which the service operates;
. the standing operating procedure of the service. This can be done by listing the automatic things members of the service should do as each warning is received; and
• describe in general terms the method of operation of the service for the type of emergency situation for which the plan has been developed.
Communications: Outline the types of communications which the municipality has and how the emergency services will use them.
. Authentication: The plan should be signed by (the head of the municipal government or his duly appointed alternate).
NOTE: Some municipalities may wish to prepare a single plan which includes both the wartime emergency plan described above and the peacetime disaster plan which shows how the municipality intends to meet various peacetime emergencies, such as floods and major fires. • 94
* A SUGGESTED MUNICIPAL BY-LAW
BY-LAW NO.
A By-Law of the Corporation of to establish civil emergency planning.
Passed
WHEREAS a state of international tension continues to exist which could be a threat to the survival of Canada: AND WHEREAS the Government of Canada has encouraged the development of civil emergency plans for peacetime and war emergencies by its departments and agencies, by provincial governments and by municipal governments; AND WHEREAS the Government of the Province of has enacted
AND WHEREAS it is desirable that such civil emergency plans be prepared; AND WHEREAS it is desirable to ensure the continued functioning of the government of the municipal corporation of AND WHEREAS the costs of establishing and maintaining an organization for civil emergency planning is shared by the Government of Canada and the Province of AND WHEREAS it is desirable that the population comprising the municipal corporation of be informed of the emergency measures they should undertake or which are to be undertaken on its behalf;
THEREFORE the Council of the Corporation of enacts as follows:
Title Note: This is an example only. Users of this guide should check with the appropriate provincial authorities to obtain the specific form of by-law applicable in their particular province.
There shall be a committee of Council to be known as the Control Committee;
The Control Committee shall be responsible for:
• the appointment of an Emergency Measures Co-ordinator/Director and such other employees as may be required;
. the review of all plans, programs and expenditures relating to emergency planning; 95
• submission to council of estimates of expenditure for the maintenance and • operation of the Emergency Measures Organization;
• submission to council at least twice per year of a progress report of activities; and
• submission to council, for approval, of a municipal emergency plan.
There shall be a Civil Emergency Planning Committee comprised of heads of municipal departments and emergency services or such other persons as may be deemed necessary by the Control Committee to formulate a municipal emergency plan.
The Chairman of the Planning Committee shall be the
(Clerk or Coordinator/Director)
Each department or emergency service of the municipal corporation of shall plan such measures and carry out such activities as are required to meet those responsibilities which would devolve upon them during a wartime emergency.
The Emergency Measures Organization of the municipal corporation of shall be composed of the Mayor, the Control Committee, the Emergency Measures Coordinator and all departments and emergency services of the Corporation.
No employee of the municipal corporation of may enter into agreement or commit the use of equipment, manpower or facilities with any federal or provincial organization requesting the use of such equipment, manpower or facilities for the purposes of emergency measures or national survival without the specific authority of the Council following a recommendation by the Chairman of the Control Committee to the Council.
The Emergency Measures Coordinator/Director will:
. coordinate the emergency plans created by departments and emergency services;
• provide advice and assistance to heads of departments and emergency services on emergency planning, organization and training;
• prepare annual estimates of expenditures for the operation and maintenance of the emergency measures organization; 96
. prepare and carry out a training program and such studies or exercises as are required;
. prepare and carry out a continuing program of public information;
. make such recommendations as are deemed necessary for the economy and effectiveness of civil emergency planning to the Chairman of the Control Committee;
. develop emergency organizations and plans in those areas of emergency measures not normally the responsibility of an existing municipal service; and
. provide and give assistance to individuals or private organizations on emergency measures.
Subject to the approval of the Council, the Control Committee may negotiate agreements with other municipal corporations for the purpose of mutual aid or for the formation of joint organizations.
Subject to the approval of Council, the Control Committee may enter into agreements witb agencies, other than government agencies, for the employment of their members within the structure of emergency government. These members would be employed as individuals and in accordance with their skills.
In the event of an emergency, and in the absence of the Mayor, the Chairman of the Control Committee shall act for the Mayor in implementing the emergency plan or in requesting the Minister of for the Province of to call on the military authorities for assistance. W Salaries, honoraria, accounting, budgeting, auditing, personnel, administration, contracting, and administrative procedures of the Emergency Measures Organization shall be in accordance with existing by-laws, regu- lations and resolutions of the municipal corporation of
0 97
Chapter 17
0 SOME TYPICALIE3PONSI.BILITIESQF MUNICIPAL EMERGENCY SERVICES
The following lists show the principal responsibilities of municipal emergency services. It is emphasized that these lists will not be complete for any specific municipality and should be used only as a guide. Heads of municipal emergency services should refer to the more detailed guides for each service which are provided by the responsible federal departments and provincial authorities.
Areas Not Designated A Lilçely.Taret Area
Health
to arrange for the handling of casualties rescued during life-saving operations;
. to provide for care of evacuee casualties;
. to provide continuing health services to the sick and non-casualty cases already in the area;
. to provide for care of those evacuated from hospitals and other health institutions;
. to organize an emergency health supplies service;
. to arrange for epidemic control and immunization programs;
. to make arrangements for the expansion of health facilities in an emergency;
. to assist other emergency services; and
to recruit and train auxiliary health services personnel in peacetime,
Welfare
. to plan, organize and develop Emergency Welfare Services in peacetime, including the conduct of welfare surveys; the co-ordination of existing public and private welfare services and resources; the expansion of essential welfare services; the creation of new services as required; and the co-ordination of plans with other municipal emergency services;
. to set up Welfare Centres in an emergency to provide for emergency feeding, emergency 0 clothing, emergency lodging, registration and inquiry, and personal services. 98
. to organize mobile welfare teams; and 0
. to recruit and train volunteer welfare workers in peacetime.
Police
. to maintain law and order;
. to control and direct traffic;
. to co-operate with other police agencies in the execution of plans for the voluntary evacuation of target areas;
. to patrol restricted areas, and safeguard vital municipal resources and services;
. to assist other emergency services; and
to recruit and train volunteer auxiliary police in peacetime.
Fire
to educate the public in household fire preventiori measures;
. to provide mutual fire aid to other areas;
. to co-operate with other municipal fire services in fire defence operations in damaged areas; and
. to recruit and train volunteer auxiliary firemen in peacetime.
Engineer
to provide technical guidance for the preparation of shelters;
. to maintain public utilities;
to make provision for additional emergency utility services capacity;
. to make provision for emergency water• supplies for fire-fighting; • 99
• to restore essential services in damaged areas; and
• to co-ordinate the organization and mobilization of private contractors and their engineer resources with the Zone engineer.
Communications
• to provide, as required, communications for municipal emergency government headquarters and the emergency services;
• to provide, as required, communications between municipal emergency government headquarters and county, area, or zone headquarters;
• to co-ordinate the use of existing communications facilities including police, fire, radio, telephone, taxis, amateur radio operators, GRS, etc.;
• to arrange for the provision of extra communications equipment if required; and
• to recruit and train volunteer communications personnel in peacetime.
Transportation
• to co-ordinate transport planning with the federal zone transport controller;
• to provide transport for use in post- attack remedial evacuation of people who could not be evacuated in private cars;
• to provide transport for the transfer of evacuees including casualties who may arrive in reception communities by rail, air or water;
. to provide transport for other emergency services; and
. to arrange for facilities for the maintenance and upkeep of transport earmarked for emergency services. 100
Public Information
• to co-ordinate a peacetime public information program;
• to inform the public of the emergency plans of municipal government and emergency services;
• to inform the public of personal survival action to be taken if an emergency occurs; and
• to co-ordinate the municipal government public information program during an emergency.
Radiological Defence
• to establish a municipal radiological defence organization;
• to recruit and train radiological monitoring personnel in accordance with standards set by the province;
. to recruit radiological defence officers for municipal emergency government headquarters;
. to provide information which can be issued to the public on action to be taken within the municipality if it is subjected to fallout; and
• to assist other emergency services.
Rescue Service
• to recruit and train volunteers as rescue workers in peacetime; and
. to organize trained rescue workers.
Supply Service
• to co-ordinate supply planning at the local level; and
• to exercise control over the distribution of supplies required by the municipal emergency services. 101
Personnel Service
• to co-ordinate requests for manpower from the municipal emergency services with the local federal manpower agency; and
• to maintain such records as may be required for municipal employees and volunteers engaged in survival operations.
Areas Designated A Likely Target Area
Health
. to provide for continuing medical services for patients in hospitals and other health institutions and for their evacuation, if necessary;
• to arrange for the evacuation of vital medical supplies;
• to restore and maintain public health services in order to prevent outbreaks of disease following attack;
select shelter areas for patients who cannot be evacuated from hospitals or other health institutions;
• to make arrangements for the evacuation of medical staffs and their allocation to health facilities in reception areas;
. to assist other emergency services; and
• to recruit and train auxiliary health services personnel in peacetime.
Welfare
• to plan, organize and develop the Emergency Welfare Services program for the community including the conduct of welfare surveys (e.g., welfare manpower resources);
• to arrange for the evacuation or continuing care of inhabitants and staff of welfare institutions;
• to co-ordinate plans, where required, with the plans of the reception communities concerned; and 102
• to recruit and train volunteer welfare workers in peacetime.
Police
• to control and direct traffic on evacuation routes in co-operation with other police agencies;
. to preserve law and order;
. to assist other emergency services; and
• to recruit and train volunteer auxiliary police in peacetime.
Fire
. to educate the public in peacetime in public and household fire prevention and fire-fighting measures;
• to arrange for the mobilization of fire-fighting equipment;
• to develop a fire defence plan; and
• to recruit and train volunteer auxiliary firemen in peacetime.
Engineer
• to man essential public utilities following receipt of warning;
• to provide engineer support for implementation of the voluntary evacuation plan;
• to support life-saving operations;
• to provide emergency water supplies for fire-fighting;
• to restore essential services following attack; and
• to co-ordinate the organization and mobilization of private contractors and their engineer resources with the zone engineer. 103
0 Communications
. to provide communications for emergency services controlling voluntary evacuation;
. to arrange communications between municipal emergency government headquarters and emergency services;
. to establish communication between municipal emergency government headquarters and zone headquarters; •
. to arrange for communication between emergency government headquarters and municipal emergency services following attack;
. to arrange for the provision of extra emergency communications equipment where required; and
. to recruit and train volunteer communications personnel in peacetime.
Transportation
. to co-ordinate transport planning with the federal zone transport controller;
. to provide transport of all types (road, rail, water and air).for the voluntary evacuation of institutions, hospitals, schools and people who cannot be evâcuat9d by private car;
. to provide transport for the evacuation of vital supplies; and
. to provide extra transport for other emergency services.
Public Information
. to co-ordinate a peacetime public information program;
. to inform the public of the emergency plans of municipal government and emergency services;
^ . to inform the public of personal survival action to be taken in the event of an emergency; and 104
• to co-ordinate the municipal government public information program during an emergency.
Radiological Defence
• to establish a municipal radiological defence organization;
• to recruit and train radiological monitoring personnel in accordance with standards set by the province;
• to recruit radiological defence officers for municipal emergency headquarters;
• to provide information which can be issued to the public on action to be taken within the municipality if it is subjected to fallout; and
. to assist other emergency services.
Rescue Service
. to recruit and train volunteers as rescue workers in peacetime; and
. to organize trained rescue workers.
Supply Service
. to co-ordinate supply planning with the federal National Emergencips Agencies at the local level; and
• to exercise control over the distribution of supplies required by the municipal emergency services.
Personnel Service
• to co-ordinate requests for manpower from the municipal emergency services with the local federal manpower control agency; and
• to maintain such records as may be required for municipal employees and volunteers engaged in survival operations. • 105
Chapter 18
MUNICIPAL EMERGENCY HEALTH SERVICES 0 General
In peacetime, the medical care of the population and preventive health measures are provided by a variety of individuals, agencies and institu- tions that operate relatively freely within a minimal framework of govern- mental control. Emergency Health Services (EHS) is a small cadre of health officials in federal, provincial and municipal governments who have the responsibility for emergency planning in the health field and for the prepar -ation of health workers, agencies and institutions for their emergency role.
In a national emergency, federal and provincial legislation will provide for the organization of health workers, agencies and institutions into an Emergency Health Service under the operational and administrative control of provincial Ministers of Health. These controls will permit the maximum use of surviving health resources to meet the emergency responsibilities of the health services. However, the efficient use of surviving health manpower, supplies and facilities can only be achieved by effective action within the municipalities. Every municipality requires a disaster plan, one part of which should be the plan for the hospital or medical facilities in that municipality.
The first concern is naturally for one's family and then for the larger commun .-ity. This is true even of those who have a municipal responsibility. It is one of the reasons pre-planning and organization is advocated, it allows for the planning for one's family, and a clear definition of one's responsibility in disaster.
To ensure that the casualties resulting from a disaster receive medical care quickly and efficiently, the Health plan must be integrated and co-ordinated with the Community (Municipal) Disaster Plan. Regardless of the capability of the hospitals to cope with mass casualties, their efficiency is severely curtailed without the involvement of outside help - local community help.
Roles
Every municipality which develops a plan of action for natural disaster is creating the basis by which that community would respond to the needs and res- ponsibilities of a national emergency. The operational responsibilities of Municipal Emergency Health Services in a national emergency are as follows:
provision of advice to council and municipal agencies in health matters; life saving surgery and hospitalization for seriously injured; . emergency medical treatment for injured not requiring hospitalization; . continuing medical care on an austere basis;
. the organization, control and administration of emergency health units assigned to the municipalities for the support of rescue operations;
0 *The Emergency Health and Welfare Services were combined at the federal level in 1979 and are now known as Emergency Services under National Health & Welfare. 106
. the direction and employment of available and assigned health 0 manpower; and . the administrative support of health facilities and units that may be located in the municipality, but which remain under the control of zone or regional emergency government headquarters.
Peacetime Planning Procedure
The steps to be taken in order to fulfil the municipal emergency health responsibilities are:
• appoint the Municipal Director/Coordinator EHS;
• appoint a Municipal Emergency Health Advisory Council;
• establish a planning organization;
• assess the potential health workload;
• assess the health resources availability;
• determine the potential for emergency operations; and
. prepare the Municipal Emergency Health Plan .
With the above information available, the EHS Director can assign specific tasks to various hospitals, emergency units and public health units, etc.
The plan must include: - aim and site involvement - information to other agencies (fire, police, etc.) who are required for support of EHS.
Hospitals review individual plans,to fit into the community health plan, which in turn must fit into the overall Municipal Emergency Plan.
Emergency Measures and the Hospital Emergency Plan
Within a M+inicipâlity/Area, during the planning stage, the responsibility for coordinating resources and services outside the health field rests with the Emergency Measures Coordinator. Complete community involvement is best obtained in those communities where emergency measures are well organized.
The efficient movement of casualties from the disaster area to a medical care facility depends almost entirely on outside services. If these services have prepared emergency plans, they must be co-ordinated by Emergency 34easures, so that the operation will be efficiently performed. Therefore 107
it is important that the Emergency Measures Coordinator be consulted by the Hospital Emergency Committee when the Hospital Emergency Plan is being considered. In the absence of an EMO plan for the municipality the hospital must accept the responsibility of planning for the necessary support services required by the hospital.
Since the Hospital Emergency Plan must be prepared not only for casualty reception, but also for patient evacuation in the event of internal disaster, it is advisable that representatives of both the fire and police departments attend planning meetings.
The Municipality and the Hospital
In amunicipality which has only one astive treatment hospital, the coordination of the Hospital Emergency Plan with the Municipal or Community Plan will present few problems if the Emergency Measures Coordinator utilizes the community resources and coordinates the training of sufficient personnel (stretcher bearers, first aiders, etc.) to meet the demands imposed by an anticipated disaster. The Coordinator will know what resources must be utilized, by attending Emergency Committee meetings and knowing the Hospital Emergency Plan, as well as the physical layout of the hospital and grounds.
Single hospital municipalities must also look beyond the borders in planning for a disaster. In areas where there are several "one hospital" municipalities within reasonable proximity, inter-hospital liaison should be instituted and maintained. This will enable the hospitals to coordinate their plans to provide mutual aid and support. The Emergency Measures Coordinator should be brought into the disaster planning, to obtain and coordinate the resources from the various communities required in support of the Hospital Emergency Plan.
MunicJpalities with Two or More Hospitals
Such municipalities emphasize, to a greater degree, the importance of the coordination of the Hospital Emergency Plans with the Municipal Plan, particularly in such areas as traffic control, equitable distribution of casualties and transportation or ambulance services. Community assist- ance would also be required to enable physicians to reach their designated hospital as expeditiously as possible.
A major metropolitan area, which has a multiplicity of hospitals within its corporate limits, would be in a better position to provide adequate support in the event of a disaster. The coordinated hospital plans should be incorporated into the Municipal Disaster Plan. Each hospital or group of hospitals may be given the responsibility for a designated sector of the metropolitan area, which could be extended beyond the metropolitan boundaries to embrace rural hospitals.
Integration of Hospital Emergency Plans
The impact of disaster may, on occasion, be absorbed by one hospital, gl, however, where applicable, the planning must proceed on the assumption 108 that disaster operations will be a cooperative effort based on the resources of a group of hospitals. In some municipalities there is a convenient cluster of facilities involving large, specialized hospitals, general hospitals and other facilities which work cooperatively together. The concept of area-wide disaster planning is furthered by the integration of hospital emergency plans. The purpose of integrating hospital emergency plans is to ensure quality of casualty care in major emergencies. It should also be used to ensure that hospitals will not be inundated and that they will not be inappropriately used. The components which enter into a coordination of hospital emergency plans and which can assist in the achievement of the purpose of coordinating hospital plans are:
• communications •
. casualty transport
. response at the scene
. the hospitals
• command coordination of the Health Services.
Communications
Telephone communications are the basis for most ordinary traffic between a hospital and a community. They will continue to be used as far as possible in a disaster, but, should be supplemented by a communications system which is independent of public utilities and which can reach essential areas which would otherwise be inaccessible. A two-way radio communications system should be considered if facilities are available.
Casualty Transport
No substitute Can be found for the supportive care provided to the patient in transit by well trained ambulance attendants. First Aid procedures, to save life or function, are pre-requisite to the transport of the seriously ill or injured and must be rendered in disaster as well as at other times.
Triage at the site must ensure that those casualties requiring immediate treatment are identified and moved to the hospital and given priority in transport.
Response at the Scene
In large scale disasters it may be necessary to set-up a medical operation at the scene of the disaster. The setting up of a medical team to be sent to the site will, of course, be dependant on the facilities and medical resources available. If such teams are contemplated, pre-planning is essential in order that a coordinated team may be sent to the site with the equipment necessary to function. It is also essential that access of such teams to the disaster site be ensured by providing for transport in a clearly marked, recognized vehicle. 109
The first action of the team should be the establishment of an impromptu medical post which can be in touch with hospitals immediately by two- way communications. Casualties should be received at the medical post, sorted, given sustaining care in accordance with their medical priority and dispatched to the appropriate facility according to priority. The four main functions of such on-site medical teams would be:
. triage and life saving treatment;
initiation of casualty documentation and records;
. reception, evaluation and dissemination of information to hospitals; and
. equitable distribution of the injtAd in accordance with the plan for the area.
Hospitals
One function of the integration of hospital emergency plans will be to confirm or modify the role of the participating hospitals and make such information available to other interested groups. Each hospital must be prepared to perform its own function to its full, extended capability. By integrating hospital emergency plans they then become a part of a district plan rather than a local emergency plan. All hospitals auto- matically contribute services in the amount necessary to provide casualty care of a complete range and high quality, whether or not the disaster occurs in their immediate vicinity.
Emergency Public Health Plan
Emergency Public Health planning must include the following: detection, identification and control of communicable diseases, their vectors, and public health hazards; inspection and control of purity of food, drugs and biologicals; food and milk sanitation; public water supplies; sewage and other waste disposal, sanitary aspects of disposal of the dead; prevention and alleviation of water pollution; vital statistics services; preventive and curative care related to human exposure to radio- logical agents; and rehabilitation and related services for disabled survivors.
The essential emergency public health activities are those necessary to ensure a safe environment for the collection, processing and treatment of the sick and injured and to establish the basis for a health environ- ment for the uninjured population. The main activities to be planned for pertain to inspection, advice and control of the following:
. monitoring of radiological and chemical hazards;
• inspection, decontamination and control of food and biologicals;
• decontamination of water supplies; 110
• environmental sanitation, excreta and refuse disposal;
• control of communicable disease; and
• provision of health hazard information.
The operational plan for the emergency public health organization must provide for the following general purposes:
• automatic liaison with all the other components of the emergency measures organization;
• inspection and immediate identification and evaluation of the present and potential health hazards;
• automatic mobilization of all the public health resources that will be needed as determined by the evaluation;
• emergency action to control or eliminate the public health hazards and to protect affected populations from exposure;
• emergency restoration or substitution of basic public health facilities and services in affected communities;
evaluation of damage to structures and property in terms of effect on public health;
restoration of public health facilities in disrupted and damaged areas; and
evaluation and reporting of emergency relief activities in terms of effectiveness in protection of public health.
The following reviews the public health resources in personnel and equipment required to implement the plan.
Personnel
- medical and nursing personnel to assist in emergency medical care and control of communicable diseases;
- public health engineers, entomologists, sanitary inspectors, laboratory technicians to assist in maintaining adequate and safe supplies of water and food, safe disposal of wastes and control of insects and rodents;
- epidemiologists, bacteriologists, chemists and laboratory specialists to investigate outbreaks of communicable disease and other widespread illnesses, to determine effective procedures for controlling the disease or cause of illness and, if necessary, to carry out such procedures; and
- veterinarians to investigate and determine the means necessary to curtail diseases of animals affecting the health of people. 111
Command and Co-ordination of Health Services
0 Command and co-ordination of the local health services is a local health responsibility. Initiative in creating an organizational structure which will best serve the locality in an emergency is therefore placed in local hands. For this purpose a district co-ordinator of health and casualty care services is worthy of consideration. Authority would then be central- ized in the co-ordinator and during the planning phases he would provide liaison between the treatment services, public health services, hospitals, and other facilities in the area. The authority of the district health co-ordinator to direct casualty care services would rest upon the mutual consent of the hospitals and other services concerned.
Traffic Control
Traffic control will form part of the police plan. In small communities help will be required to assist the police with crowd control both at the site of the disaster and at the hospital entrances. Traffic control may be required at various points between the scene of the disaster and the hospital. Within the hospital grounds, traffic must be controlled and directed in accordance with the hospital plan.
Information Centre
The Hospital Emergency Plan must include provision for the dissemination of information on casualties received at the hospital. Information could be sent via messengers to an Information Centre within the immediate hospital area, and specified in the Hospital and/or Community Plan, where people seeking information about casualties, would be directed. Hospital Social Services, where available, may be requested to man or organize this centre, and consideration should also be given to the inclusion of clergy at the Centre.
In areas where there is more than one hospital, and where the hospitals have co-ordinated their plans, a central information centre may be the most efficient and effective means of providing information. It would also alleviate the problem of wandering from hospital to hospital seeking information.
Consideration should be given to the provision of information related to public health problems both during and following disasters. The type of information to be provided should be considered during the planning stages and appropriate steps outlined.
Data on E.H.S. Medical Units
General
These units are produced, packaged, owned and issued by, the Federal Department of Health and Welfare through Emergency Services, National Health and Welfare, Ottawa, and are designated as back-up medical units to existing hospitals in time"of war. 0 The federal government, in turn, through the Emergency Services, has provided a certain number of these medical units to each of the provincial 112
health authorities for deployment in a wartime support role, and also maintains a federal reserve for each province in Department of National Defence Regional Medical Depots.
As Health is a provincial responsibility, the deployment, care, and control ofthese Medical Units is the responsibility of the provincial health authority who will obtain the required release for units.
The Medical Units are the responsibility of the Emergency Services (or designated health representatives) organization at all levels of Government, at all times.
MEDICAL UNITS DESIGNED AND DEPLOYED TO PROVIDE SUPPORT OF EXISTING MEDICAL FACILITIES IN TIME OF WAR
"THE 200 BED EMERGENCY HOSPITAL"
Purpose: Designed and deployed to provide wartime back-up to existing or destroyed hospitals, outside of likely target areas, using schools or similar buildings and to be staffed by medical personnel from designated existing hospitals.
Equipped to provide: . 8 general wards of 20 beds each • 3 operating rooms • various other supporting units
"THE ADVANCED TREATMENT CENTRE (ATC)"
Purpose: This unit was designed to support the rescue and first aid activities of health operations in major urban areas under wartime conditions, and to control the equitable distribu- tion of the injured among the available treatment facilities.
Equipped to provide: . treatment of minor injuries . sustained care for the injured awaiting evacuation • radiological decontamination of casualties . reception, sustained care and patient handling at transportation points such as airfields, ports, railheads, etc. • reception and distribution of casual- ties in major communities.
MEDICAL UNITS DESIGNED AND DEPLOYED TO PROVIDE EMERGENCY MEDICAL AID IN PEACE AND WAR
"THE CASUALTY COLLECTING UNIT (CCU)"
Purpose: Designed to provide first aid treatment for 500 casualties at the disaster site and to control casualty evacuation (tags).
Equipped to provide: . litters and blankets • burn dressings and field dressings . first aid haversacks . other miscellaneous items 113
"HOSPITAL DISASTER SUPPLIES" • Purpose: This unit was designed for, and issued to, existing hospitals in Canada to assist them in the care of casualties arising from a peacetime or wartime disaster.
Equipped to provide: Those items which are needed for casualty care and which are not usually stocked in hospitals (burn dressings, etc.). The units are issued to a hospital on the scale of one to every 25 beds. Also issued are 6 units of Ringers Lactate of choice (6 x 500 ml), if so requested by the hospital.
"BLOOD DONOR PACK"
Purpose: Designed to assist in stocking emergency Blood Shadow Depots, where established, following a large scale disaster (war), with whole blood for treatment of seriously injured casualties.
Equipped to provide: A hospital capability for providing whole blood for seriously injured casualties during 24 hours post-attack period. Has sufficient supplies and equipment to enable hospitals to collect group "0" blood from 100 local donors during this period.
• 114
0
I* 115
Chapter 19
MUNICIPAL EMERGENCY WELFARE SERVICES
General
The objective of Municipal Emergency Welfare Services is to develop a capability to provide essential welfare services in any kind of emergency. While the guidelines may relate more specifically to reception communities in the event of large scale or nuclear disasters, the principles apply equally to peacetime disaster planning and operations in any crisis.
To provide this capability, five emergency welfare services (EWS) are needed: Emergency Lodging, Emergency Feeding, Emergency Clothing, Personal Services and Registration and Inquiry.
Governmental Responsibility
Federal
The Department of National Health and Welfare was assigned,among other responsibilities, that of assisting the provinces, the municipalities and others in organizing and operating essential Emergency Welfare Services. To discharge its task, this Department created the Emergency Welfare Services Division whose main functions are:
development of basic EWS plans, policies and procedures to serve as guides to provinces;
maintenance of close working relations with provincial EWS;
provision of assistance to the provinces planning orga- nization and development of their EWS program, including training of personnel;
development of operational supplies and equipment, such as the mobile feeding unit, welfare centre kit, operational forms and manuals;
preparation, production and distribution of public educa- tion materials, such as manuals, pamphlets and displays;
co-ordination of EWS plans with other government departments and agencies;
co-ordination of EWS policies and procedures with the U.S.A.;
provision of emergency welfare specialist courses and conferences at the Federal Study Centre, Arnprior for key welfare and para welfare personnel. 0 116
• workers for the five EWS who require a special skill will need some training. These should be selected after key staff members have been trained and have developed basic organizational and operational plans; and
• workers required to do jobs that do not require EWS training (e.g. clerks and kitchen help). These workers should be recruited at the time of an emergency.
Alternates should be named for all key administrative and supervisory positions.
Training
Training is an essential part of the EWS program, as it ensures that a nucleus of trained workers would exist to set up and operate EWS in an emergency.
Courses
The EWS Director, members of the EWS Planning Committee, Chiefs of EWS, Welfare Centre Managers, and Supervisors should all attend a General Civil Emergency Preparedness Orientation Course and a General EWS Course. These courses should be given in the Provinces.
EWS Directors, Chiefs of EWS and key Special Care Facilities personnel (from provincial, zone and key reception community levels) should receive specialist training at the Federal Study Centre, Arnprior.
EWS Directors and EWS Chiefs from smaller communities, Welfare Centre Managers, and Supervisors of EWS could be trained in the provinces.
Exercises
Exercises should be held often to test and retest the adequacy of the EWS organization and the operational plans , including those of special care facilities, the competence of the workers and the efficiency of the operational procedures.
These exercises gradually should become more ambitious in size and scope. Initially they should be paper exercises held for a single service in a Welfare Centre. Next they should involve more than one Service until all EWS in one Welfare Centre Area are exercised at once. Later the total EWS operation in the reception community, including supporting services, should be tested. Exercises involving the public should then be held.
Operations
When CD/EMO services are alerted, all EWS staff members must be warned and mobilized.
There is no standard alerting system. The system adopted by a reception community will depend upon local factors, circumstances and facilities. 117
Provincial
The Provinces have primary responsibility for planning and organizing EWS in peacetime and for directing them in wartime within the confines of their borders. This division of overall emergency responsibility between federal and provincial governments is not a novel concept. Rather it is a natural extension of the principle,,well rooted in tradition, that welfare in all its aspects is a matter of provincial concern at all times. Existing peace- time provincial welfare.departments would automatically swing into emergency action and direct EWS in the event of war. This is as it should be, for pro- vincial governments have authority, organization, knowledge, resources and experience. Above all they bear full responsibility in war as in peace for the welfare of the people.
The peacetime functions of the provincial departments of welfare in EWS should be:
to organize EWS at the provincial and zone levels by utilizing existing services and/or creating new ser- vices where necessary;
to assist the municipalities in organizing EWS;
. to develop plans to mobilize the EWS in an emergency;
. to direct and maintain a co-ordinated EWS training program throughout the provinces;
to co-ordinate EWS plans with other government depart- ments and agencies and under federal guidance with neighbouring provinces.
The wartime function of the provincial departments of welfare would be to control the EWS program in the provinces. Where CD/EMO zones have been created in a province, they would form the link between provincial EWS headquarters and the municipalities.
Municipal
Local communities are responsible for actually providing EWS to victims of attack, evacuees and all others in need who arrive at their Welfare Centres. This important operational level must function efficiently if federal and provincial efforts are to be effective. The welfare services of local government therefore must appoint an EWS Director and assume responsibility for the organization and operation of EWS. The main tasks of the local EWS Director are:
to develop an EWS plan;
to divide the community into Welfare Centre areas, and to select and organize the Welfare Centres;
to develop an EWS organization using key welfare personnel 0 from local government as far as possible, and from welfare agencies or related businesses where appropriate; 118
to co-ordinate EWS plans with those of the other emergency services in the community and with zone and provincial EWS plans;
• to train EWS personnel; and
• to conduct various EWS training exercises.
Others
Responsibility for providing EWS cannot and does not end with government. Under the guidance and leadership of government, especially at the local level, all welfare and related resources must be utilized. Independent agencies, private welfare services, and related businesses and pro- fessions which serve the needs of people in peacetime are invaluable resources which must be co-ordinated through EWS.
In wartime the EWS task would be tremendous and would arise suddenly within hundreds of thousands of reception communities across Canada. For this reason a well trained, well organized nucleus of key EWS personnel, in peacetime, capable of expanding rapidly,is required to put the EWS plan into smooth and effective operation'in time of crisis.
The Emergency Welfare Services
The aim of the EWS organization in reception areas is to meet the essential survival needs of people following a disaster and to provide rehabilitation assistance until regular pre-disaster welfare services resume operations or until other plans and programs are established.
Emergency Lodging
People who leave their homes or whose homes have been destroyed in an emergency, will need emergency lodging in reception communities. Smaller cities, towns, villages and rural areas would be overcrowded with large numbers of homeless people.
All homeless people who had not made their own private lodging plans, or were unable to carry them out in the initial emergency period, would be provided with emergency lodging. These people would include:
individuals and families able to care for themselves;
unattached children and dependent adults;
children and adults in special care facilities;
children in residential schools;
children in day schools (if the warning time is short); persons discharged from hospital on receipt of warning. • 119
Evacuees would be assigned accommodation in: • • Private Dwellings - The individuals and families assigned to private homes (the largest accommodation resource in any community) would be expected to look after themselves, as amenities of living would be there already (e.g., cooking and sanitary facilities, blankets, etc.);
. Commercial Facilities - Hotels and motels would be used where available;
• Other Buildings - If there is insufficient suitable accommodation in private dwellings, individuals would be assigned to congregate lodgings. Buildings such as church halls, institutions and auditoria would be used for this type of accommodation; and
• Summer Camps - This type of facility mIll be used if there is insufficient accommodation available in private dwellings and other buildings, and if weather conditions permit.
Emergency Feeding
The speed with which some kind of suitable food or potable liquid is made available in an emergency would influence:
• the preservation of life itself (especially in the case of infants);
• the morale of people (prevent discouragement, ill temper, lack of cooperation);
• the condition of casualties (counteract shock and dehydration); and
. the efficiency of workers (mental as well as physical).
Therefore, emergency feeding must be provided for those people who have no food and/or no facilities to prepare their own meals. Feeding includes both water and food. The need for water is more urgent than food for sur- vival.
The majority of evacuees would be fed in private dwellings used for emergency lodging in reception areas and, therefore, would not require mass emergency feeding.
Groups who need mass emergency feeding fall into five broad categories:
• Evacuees - at Welfare Centres - On arrival hot drinks and infant formulas will be available;
in congregate lodging facilities; and
enroute from evacuation areas to reception areas, if they have no food with them and if the length of time enroute made feeding necessary. 120
• Patients and Staff - in the following Emergency Health Services installations:
• advanced treatment centres • emergency hospitals • emergency clinics • blood shadow depots, as required for staff.
• Municipal Emergency Service Workers - who cannot go to their homes for meals.
• Residents and staff - of improvised special care facilities. (Set up in a reception area to lodge residents evacuated from institutions elsewhere).
• Total Population - in a community where the breakdown of public utilities or difficulty in food distribution makes this necessary.
Every possible means of feeding might be required, including:
• commercial feeding establishments (restaurants, cafeterias, hotels, snack bars);
non-commercial feeding establishments (school and factory lunch rooms, church halls, college dining rooms, private clubs, community halls);
existing facilities which have some cooking capabilities but are not in themselves eating places (food processing plants, ceramic factories, brick yards, dairies and laundries);
NOTE: Use of these facilities must be approved by the local Department of Health.
• improvised facilities (indoor and outdoor).
All these facilities could be converted to emergency use by round-the- clock food production, stream-lined service, continuous feeding and the use of mobile feeding equipment.
Emergency Clothing
Due to our severe climate, an enemy attack could make the provision of emer- gency clothing immediately necessary. This need would be especially urgent if the attack took place at night or in winter and if people had to leave their homes quickly.
Emergency Clothing would be provided in three stages:
• Emergency Covering - (a blanket or coat) - to save the lives of people not properly protected from the elements. • 121
. Emergency Clothing - to clothe people in a manner that would 0 permit them to work and to care for themselves, and
to replace the contaminated clothing of workers and evacuees.
. Return to Normal - to operate a more normal system of supply and distribution when enough clothing stocks become available so that people could make a choice.
Relatively little new clothing would be available in reception areas as large stocks are not carried by retailers and wholesalers. Furthermore, most of the clothing manufacturers are located in high risk damage areas which might be destroyed in a nuclear war. Therefore, used clothing would provide the largest resource.
Used clothing would be collected by "clothing drives" within the reception communities. It would be taken to the Clothing Depot, where it would be sorted and sized and then distributed as required to the Welfare Centres for issue to evacuees.
Personal Services
In every large-scale disaster - war or natural - there are always many persons affected who have personal problems and questions which must be handled on an individual rather than on a mass care basis.
Personal Services is responsible for providing separated family members, un- accompanied children, the shocked, the bereaved, the infirm and handicapped, and many other persons, with individual and/or specialized care and material assistance to help them overcome their particular difficulties.
Depending on the size of the operation, Personal Services could be adminis- tered as follows according to the tasks to be performed:
Reception workers, easily identifiable as people having information and authority, would meet evacuees arriving at docks, railway stations, or Welfare Centres, answer questions, give psychological first-aid, direct people to available help and assistance needed by individuals and families for re-establishment.
. Unattached children and dependent adults would be separated from other evacuees, accommodated in space provided by the Emergency Lodging Service, and given special group care while efforts were being made to reunite them with their families.
Evacuated residents of special care facilities to be relocated, preferably in existing institutions and in addition to food and clothing, given the specialized services they require. If necessary, institutions will be improvised in space made available for emergency lodging.
0 122
• Emergency aid, in cash or in kind, would be given to disaster victims to enable them to quickly secure the basic necessities of life, and to everyone whose needs would not be met through normal welfare payments.
• Limited counselling would be available during the emergency period, and during the recovery period people in private homes, hospitals or congregate facilities who are unable to go to Welfare Centres would be assisted with their re-establishment plans.
Basically these tasks involve an acceleration and expansion of peacetime responsibilities.
Registration and Inquiry
Members of many families in target areas would be separated during a pre- attack evacuation or an attack. The first concern of such evacuees arriving in a reception community would be to obtain information about the missing members of their families.
The function of the Registration and Inquiry Service is to reunite members of separated families as quickly as possible and to answer inquiries regarding the safety and whereabouts of missing persons.
Evacuees who have been separated from other members of their immediate family would be registered first at Welfare Centres. Here they also would fill out Inquiry Cards for missing members of their families. Other evacuees would be registered and would make their inquiries later, if necessary, and if circumstances permit.
Mobile Registration and Inquiry Teams would go to regular hospitals, emergency hospitals, and institutions to register the evacuees therein.
Registration would be carried out by one member of a family (normally one parent) filling out a Registration Card under group instruction.
Inquiries about missing family members would be made in a similar manner via Inquiry Cards.
A Special Help Room would be available for the individual registration of evacuees unable to register in groups because of language, shock, emotional disturbances, or any other reason.
The original of each Registration Card would go to the Central Registry for the prcivince concerned. The copy would go to the local registry.
Inquiry Cards would be sent to the Local Registry for information about the persons concerned. For inquiries about which no information was available, the cards would be sent on to the Central Registry. After available in- formation was recorded on the Inquiry Cards, they would be returned to the Welfare Centre from which they originated, and given to the inquirers. • 123
Planning and Organizing a Reception Community • Each reception community should be told by the Provincial CD/EMO Co-ordinator the number of evacuees for whom it would be expected to provide care in a national emergency.
Emergency Welfare Services Plan
Every reception community should have a written EWS plan which outlines the organization and procedures to be used in setting up and operating EWS in an emergency.
Emergency Welfare Services Headquarters
Such a plan should set forth the organization of the EWS Headquarters, which is part of the overall Municipal Emergency Government Headquarters.
At EWS Headquarters, the Director of EWS and his five Chiefs of Service would be responsible for planning, directing and controlling the emergency opera- tion, including all necessary liaison and joint planning with the other services at the MEGHQ.
Welfare Centre Area
Each reception community should be divided into welfare operational areas called Welfare Centre Areas.
The boundaries of these geographic areas should be determined by the Director of EWS in conjunction with the CD/EMO Co-ordinator and the Heads of the other Municipal Emergency Services.
The EWS required by evacuees assigned to a particular Welfare Centre Area would be provided by the staff of the Welfare Centre and other EWS facilities in the area.
Welfare Centre
The basic operation unit of EWS within a Welfare Centre Area is the Welfare Centre. This is the place where evacuees would be received and where EWS would be administered and provided. A Welfare Centre may be one building (e.g., a school) or it may consist of one or more adjacent buildings.
A Welfare Centre's function may be described as:
• administering and operating the five EWS within the Welfare Centre Areas. This includes providing EWS in other CD/EMO installations (e.g. Emergency Hospitals) as long as they are required, and • 124
Staffing 0 The municipal authority should delegate the responsibility f6r EWS to the Department of Social Services (Welfare) which would appoint a Director of EWS.
In communities where a public welfare service does not exist within the municipal government, the municipal authority would select the person best fitted by training, experience and temperament to fulfill the responsibili- ties of an EWS Director.
Emergency Welfare Services Director
The EWS Director, assisted by his Planning Committee, is responsible for planning and organizing EWS in peacetime and for the overall direction and control of EWS operations in an emergency. At all times he is responsible for co-ordinating EWS plans and operational procedures with those of other emergency services through the emergency planning coordinator of the municipality.
Chiefs of Emergency Welfare Services
One of the first tasks that faces the EWS Director and his Planning Committee is the completion of EWS Headquarters staff by appointing a qualified ' Chief for each of the five EWS. Each Chief, under the direction of the EWS Director, is responsible for the overall planning, organizing, and operating of his service throughout the whole reception community.
Welfare Centre Manager
The Welfare Centre Manager, who is responsible directly to the EWS Director, is the key person in the actual provision of EWS. The Welfare Centre Manager must be well qualified to fulfill his responsibilities. Those include the preparation of administrative and operational plans for his Welfare Centre and the setting up and operation of the Welfare Centre in a disaster in accordance with EWS policies and instructions.
Supervisors
In each Welfare Centre a Supervisor should be appointed for each of the five EWS. Each Supervisor is administratively responsible to the Welfare Centre Manager. In addition he receives instructions regarding policies and procedures concerning the operation of his specific Service from the appropriate EWS Chief.
Each EWS Supervisor is responsible for organizing and operating his specific Service within the Welfare Centre Area. This includes selecting, training and supervising his staff members.
Staff Selection
Selection of staff members should take place in three stages:
. key administrative and supervisory staff members; 125
workers for the five EWS. These should be selected after key staff members have been trained and have developed basic organizational and operational plans;
workers required to do jobs that do not require EWS training (e.g., clerks and kitchen help). These workers should be recruited at the time of an emergency.
Alternates should be named for all key administrative and supervisory positions.
Training
Training is an important part of the EWS programme, as it ensures that a nucleus of trained workers would exist to set up and operate EWS in an emergency.
Courses
The EWS Director, members of the EWS Planning Committee, Chiefs of EWS, Welfare Centre Managers, and Supervisors should all attend a General Civil Defence Orientation Course and a General EWS Course. These courses should be given in the provinces.
The Chiefs and Supervisors of EWS should receive specialist training in the particular service for which they are responsible. The Chiefs of the larger reception communities should receive this training at the Federal Study Centre, Arnprior, Ontario, with the other Chiefs and the Supervisors being trained in the provinces.
Exercises
Exercises should be held often to test and retest the adequacy of the EWS organization and the operational plans, the competence of the workers, and the efficiency of the operational procedures.
These exercises gradually should become more ambitious in size and scope. Initially they should be paper exercises held for a single EWS in a Welfare Centre. Next they should involve more than one service until all EWS in one Welfare Centre Area are exercised at once. Later the total EWS operation of the reception community, including supporting services, should be tested. Exercises involving the public then should be held.
Operations
When CD/EMO services are alerted, all EWS staff members must be warned and mobilized.
There is no standard alerting system. The system adopted by a reception community will depend upon local factors and circumstances.
Upon receiving the warning, staff members would immediately report to their allotted places. Because of previous participation in various exercises, each person would know exactly what he should do. 126
A Model Reception Community Staff Organization Chart For Emergency Welfare Services
EWS EWS
n DIRECTOR Planning
io Committee t era 1 Op Chief Chief chief Chief Chief Planning Registra- Personal Committee ters Emergency Emergency Emergency tion and Services (Each ar Lodging Feeding Clothing u Inquiry Service) dq Hea Manager Manager Special Clothing Local Care Depot Registry Facilities
Welfare Centre Welfare Centre Welfare Centre Manager Manager Manager 0 0 C.) 0 P 4J Supervisor Supervisor Supelvisor Supervisor Supervisor 0 (4) Emergency Emergency Emergency Registra- Personal 0 Lodging Feeding Clothing tion and Services 0 Inquiry 44-4 Ci 1 Staff Staff Staff Staff Staff
TE:
• EWS Supervisors at Welfare Centres are functionally responsible to their respective Chiefs at EWS Headquarters;
• the Welfare Centre Manager is responsible for co-ordinating the re- quired supporting Civil Defence/Emergency Measures Services;
• all positions require Deputies;
• depending on the number of evacuees to be received, some of these positions may require assistants;
• in smaller reception communities some positions may be combined (e.g., one chief for Emergency Clothing and Registration and Inquiry). 127 Chapter 20
MUNICIPAL EMERGENCY POLICE SERVICE
General
In the police field, peacetime responsibilities are divided into three general areas, namely federal, provincial and municipal. An active system of co- operation between these three jurisdictions through National Police Services and other channels of communication does much to ensure adequate peacetime maintenance of law and order. Because national survival operations may be construed as representing an extension to peacetime police responsibilities, a greater manpower capability in the form of police auxiliaries is considered desirable. It is envisaged that the federal police component during both the pre and post attack periods will be preoccupied with the enforcement of various emergency regulations, which by nature will preclude the rendering of any assistance to either provincial or municipal authorities.
In the matter of communications there is a police radio network within each province and similar facilities are operational in all large urban areas. Many of these facilities are co-ordinated in peacetime and plans include a continuation in time of a national emergency. In the matter of survival operations, police services at all levels must be prepared to offer all assistance possible to the authorities concerned, however, in view of their increased responsibilities the services of federal and provincial police should not be included in pre-planning in other fields of action.
Police emergency responsibilities in the various areas of jurisdiction would include:
. continued maintenance of law and order;
enforcement of emergency restrictions of normal peacetime activities;
. responsibility for the guarding of public utilities and other vital installations;
. enforcement of traffic regulations and assistance in the movement of essential vehicles; and
. assistance to other emergency services.
Functions
Regional Emergency Government Headquarters - In the majority of the provinces, provincial legislation exists for the designation of the Senior Provincial Police official in that province as Police Co-ordinator for the province. He will be located at the Regional Emergency Government Headquarters. He will have a small supporting staff and communications network to Provincial Headquarters and to all zones or police districts in his region. The Police Co-ordinator's function is to act as an advisor in police policy matters to the provincial government component at the Regional Emergency Government Headquarters and to a lesser degree, to the federal government component. The Police Co-ordinator's other 128
main function will be to co-ordinate police activities between zones or police districts and to arbitrate in police matters which cannot be settled at the zone or district levels.
• Provincial Police Emergency Headquarters - In accordance with established policy, where necessary, provinces in their planning will include an Emergency Police Headquarters (Relocation Unit) under a senior police official who will take his policy direct from the Police Co-ordinator, but who will be responsible for the operational role of the Provincial Police in the province. Provincial Police Emergency Headquarters will also be the location of the main Provincial Police Communications Centre.
• Zone or Police District Headquarters - The Zone or Police District Head- quarters will be under the command of a designated senior police offical whose general responsibilities will be:
• to provide a continuing chain of command between Regional or Provincial Police Emergency Headquarters and the various Municipal Police Forces and Police Detachments in the district; and
• to direct and co-ordinate the activities of the Municipal Police Forces and Police Detachments, and to ensure the most effective use of their resources.
• Pre-Attack Phase - One of the main functions of the police forces, in addition to normal police duties, will be to control traffic during a voluntary dispersal stage.
• Attack and Post-Attack Phase - The primary functions of the police forces during the attack and post-attack phases will be:
• control of traffic;
• maintenance of law and order; and
• under the control of the Emergency Government Headquarters, to perform police duties in areas damaged by nuclear explosions.
While the majority of auxiliary police will be recruited on a one to one ratio, the ratio of evacuees to population in a community may exceed this, therefore, recruiting of additional reinforcements will probably require continued attention. One of the major responsibilities of the police will be co-ordination with welfare officials to determine the number of evacuees and the routes by which they will approach reception communities.
Organization
Although some variance exists in peacetime police organizations at the • 0 provincial and .municipal levels, the following structure basically pre- dominates: at the provincial level the police force is divided into a number of districts or subdivisions. Each district or subdivision is commanded by an officer who is responsible to the provincial police head- quarters for the direction and co-ordination of the work of the detachments within his district. Detachments are commanded by non-eommissioned officers or constables who direct the work of the men under them and have the respon- sibility for actually getting the work done. In a national emergency the chain of command is from the police co-ordinator at Regional Headquarters to provincial police emergency headquarters and police districts and then to municipal police forces and provincial police detachments. The limitations of police jurisdiction should be considered in all pre-planning as should the utilization of police forces maintained by private industry.
At the provincial level pre-planning has included a study of high and low risk damage and radioactive fallout areas; the availability of adequate traffic arteries to accommodate evacuees and essential vehicles; and has identified potential traffic bottlenecks. Attention has also been given to the best possible use of available police manpower. Many of these plans have been formulated in conjunction with the other emergency services such as f ire and welfare. Co-ordination between provincial police detachments and municipalities has been studied and, as far as possible, plans of action set out. It is desirable that plans be sufficiently flexible to permit possible alterations.
These various levels of organization are tied together by a police radio communications network through which instructions and information are given and the chain of command is exercised. The police co-ordinator and Emergency headquarters have radio contact with zone or police districts and through them to police units.
Municipal police organizations generally follow the same pattern. At this level, local police will be responsible for taking immediate action to cope with situations as they develop and for keeping the police district commander advised. Radio equipped vehicles will be controlled at the municipal level. The responsibility for seeing that pre-arranged plans for traffic control and other emergency situations are carried out will also be held at this level.
On the assumption that a high percentage of police will be included in any casualty list, recruiting of auxiliary forces has been considered a major responsibility and an active program of recruiting at provincial and municipal levels has been progressing for several years. In certain provinces and municipalities auxiliary police recruiting is on a one to one ratio with regular members. Training has been carried out on a continuing basis and to date provinces and municipalities are at various stages in uniforming and equipping these auxiliaries.
A schematic diagram describing the organization can be found on p. 131. The organization may differ in detail from province to province, but the 0 general concept remains identical. 130
Concept of Operations
Police action in time of emergency will be in accordance with the stages of alert. Police generally have three major duties and their functions in times of a national emergency are:
• maintenance of law and order in all its facets on an increased scale;
• assistance to the public and to government services in police matters; and
• participation in survival operations.
When a national emergency arises the following police emergency plans would go into effect:
• manning of various emergency headquarters;
• co-ordination of activities of police forces in accordance with established plans;
• activating of emergency communications, including pre-arranged co-ordination of the various police networks; and
call-up of police auxiliaries and reserves to augment regular provincial and municipal forces.
It will be realized that the concept of operations will vary widely depending on the geographic conditions and the density of population, together with the number of high risk damage a.rèab withiri the province. This concept will also apply to a lesser degree to municipalities and will have been taken into consideration during the planning stages. Through established police communications networks all police personnel will be alerted and pre-arranged liaison services and agencies will be activated. In stricken areas liaison with the Emergency Government Headquarters will be established. Police reinforcements from non-damaged areas will be dispatched to points of emergency as required.
As long as the communications network remains intact, the Police Co-ordinator should have an up-to-date picture of all situations in the province. However, local commands must be able to operate independently in the event of a break- down in communications or other disruption in the chain of command.
Because of the added responsibilities and anticipated police casualties in a national emergency, police must guard against taking on additional tasks which are the responsibilities of other departments and which the police would not have adequate facilities to carry out. • 9
REGIONAL EMERGENCY GOVERNMENT HEADQUARTERS RCMP CO COMMISSIONER (OPP, QPF) ADMINISTRATION STAFF COMMUNICATIONS STAFF
POLICE DISTRICT PROVINCIAL POLICE HEADQUARTERS (ZONE) DEPARTMENTAL RELOCATION DISTRICT COMMANDER UNIT SENIOR POLICE OFFICER ADMINISTRATION STAFF ADMINISTRATION STAFF COMMUNICATIONS STAFF LOMMUNICATIONS STAFF
PROVINCIAL POLICE PROVINCIAL POLICE MUNICIPAL POLICE DETACHMENT DETACHMENT AND AUXILIARIES AND AUXILIARIES AND AUXILIARIES i
POLICE STATION #f? OLICE STATION #2
POLICE POLICE POST POST
RADIO CAR LANDLINE 2 WAY RADIO 132 e
• 133
Chapter21
MUNICIPAL EMERGENCY FIRE SERVICE General
In national survival operations, the role of the fire service is largely an extension of its regular peacetime operations. Studies have shown that the fire fighting problems resulting from a nuclear event will usually be beyond the capabilities of any fire fighting forces available. The fire service, therefore, must plan and organize to make the best use of the fire fighting resources available within a reasonable distance of the city struck.
Any measures taken by municipal fire departments towards the provision of better fire prevention and protection for a community in peacetime will be reflected in fewer fires that may occur subsequent to a nuclear strike.
Functions
The majority of provincial governments have passed legislation making the Provincial Fire Marshal or Fire Commissioner the commander of all the munici- pal fire services in the province during an emergency. This Fire Marshal or Commissioner will be at the Regional Emergency Government Headquarters in an emergency to advise the government on fire problems and to command the fire service. The responsibilities of the Fire Marshal. or Commissioner may be as indicated below:
• develop, maintain and exercise a provincial fire defence plan;
• establish and maintain operational command of the fire service in an emergency;
• develop standing operating.procedures for alerting the fire service, manning the various fire headquarters and apparatus;
. direct, supervise and assist in the development of zone and area emergency fire service plans and programs;
. establish and maintain liaison with provincial EMO for emergency fire service planning and operational purposes;
• establish and maintain an Emergency Fire Service Advisory Council to advise the provincial govern- ment on matters relating to the planning, organization, equipping and operation of the fire service in the event of an emergency;
. provide special and advanced training courses for • fire service officers to equip them to fulfil their 134
role in an emergency, including training on 0 planning, radiation monitoring, etc.; and
. develop and encourage province-wide fire service fire prevention programs with particular reference to the risks that may occur in an emergency.
There may be some advantage in having an emergency zone covering each target city and surrounding area. A Fire Chief should be appointed to command the fire services in the zone in an emergency. The Zone Fire Commander's responsibilities might include:
. directing and co-ordinating the zone emergency fire service plan;
establishing and maintaining control of the fire service in the zone in an emergency;
. in co-operation with Area and Municipal Fire Chiefs, developing zone emergency fire service plans and standing operating procedures within the provincial plan;
assisting, co-ordinating and supervising the development of area emergency fire service plans;
. designating the Fire Chiefs who will control the emergency fire service within the zone complete with alternates and the means of communication within the zone;
reviewing the plans of the Area or Sector Fire Chief and supporting their requests for additional manpower and equipment where warranted.
The EMO area may correspond with counties or municipalities, cities, or groups of them. A Fire Chief should be appointed to command the fire services in this area in an emergency. L+There the zone corresponds with the target city and surrounding area, some of these Area Fire Chiefs will be Sector Fire Chiefs. Typical responsibilities for Area Fire Chiefs who are Sector Fire Chiefs in the re-entry plan might include:
commanding and controlling during re-entry operations of fire companies placed under his command by the Zone Fire Chief;
. developing a sector fire fighting plan using the fire fighting resources allocated to him by the Zone Fire Chief; 135
carrying out practice drills;
assessment of the need for additional equipment and men to carry out his fire fighting role in an emergency and initiate action on procurement;
• carrying out the duties listed under an Area Fire Chief for a non-target area for his sector.
The Area Fire Chiefs that are not Sector Chiefs might have the following responsibilities:
• in co-operation with the Municipal Fire Chiefs within the area, developing an emergency fire service plan and standing operating procedures compatible with the zone and provincial plans;
• encourage and assist Fire Chiefs in developing their emergency plans and in their emergency fire prevention and educational programs for the public;
• establish and maintain adequate intercommunication with the fire service in the area; and
• direct, co-ordinate and exercise the area emergency fire service plan.
Organization
A schematic diagram of the organization is shown at the end of this chapter.
Concept of Operations
The following points are axiomatic in the fire service and affect the concept of operations in an emergency:
• the best way to fight fire is to prevent it. Scientific studies indicate that sustained fires from thermal radiation are most likely to occur in light, highly combustible material such as dried grass, paper, upholstery, deteriorated wood, therefore, the better the housekeeping throughout the area, the less fires will result;
• fire resistant buildings and wide separation of buildings tend to prevent the spread of fire;
• since the majority of fires start small, the fire effects of a nuclear attack will be greatly decreased if a large proportion of the survivors extinguish the fires in their immediate vicinity 136
as soon as possible. This is particularly true in the suburban areas;
• the municipal water system will most likely be knocked out by the blast effects and the planning for fire fighting must provide the water from static bodies of water in the area;
• the number of sustained fires resulting from nuclear attack will be very large and beyond the capability of any foreseeable collection of fire fighting resources. The available fire fighting resources must, therefore, be employed to assist the rescue operation for its duration.
The emergency fire service organization will be set up to make the maximum use of the fire fighting resources that exist at the time of the emergency. They will be organized in order to ensure that the maximum fire fighting forces possible will be made available for fire fighting. The municipal fire departments will be grouped together to mutually assist one another so that their spare apparatus, off-duty and auxiliary fire fighters can be moved to the disaster area to support the local fire services.
Target areas will undoubtedly have different plans for implementation, depending upon the amount of warning which they receive. If adequate time is available, they will undoubtedly evacuate a proportion of their fire fighting resources to prepared locations outside the probable area of de- struction, preferably where they will not likely be under fallout.
Equipment
The equipment and manpower for the emergency fire service will come almost entirely from existing municipal fire depàrtments, There may well be previously prepared static water storage facilities and means of transferring water to the fire sCene that are not part of the normal fire department establishment. • •
EMERGENCY FIRE SERVICE ORGANIZATION
REGIONAL EMERGENCY GOVERNMENT HEADQUARTERS
REGIONAL FIRE MARSHAL
EMERGENCY ZONE EIvIERGENCY ZONE EMERGENCY ZONE TARGET AREA FIRE OFFICER FIRE OFFICER FIRE OFFICER
EMERGENCY ZONE FIRE OFFICER
AREA AREA AREA FIRE CHIEF FIRE CHIEF FIRE CHIEF
AREA SECTOR SECTOR FIRE CHIEF FIRE CHIEF FIRE CFIIEF
MUNICIPAL MUNICIPAL MUNICIPAL L_1 FIRE CHIEF FIRE CHIEF FIRE CHIEF
MUNICIPA-L-1 MUNICIPAL FIRE CHIEF FIRE CHIEF
FIRE FIRE FIRE COMPANY COMPANY COMPANY i 138
0
0 139
Chapter 22
0 MUNICIPAL EMERGENCY ENGINEERING SERVICE
General
A nuclear attack on North America, which implies a direct attack on many major Canadian cities and vital port installations, would cause wide- spread destruction of industry and commerce, communications, transporta- tion, utilities accommodation and other facilities vital to the survival of the nation. Even if Canada were not directly attacked, fallout from attack on targets in the United States could very well deny the use of such installations over widespread areas. Heavy losses of engineering and construction resources, a substantial proportion of which are located in likely target areas, would also result.
The rapid restoration of essential utility services and other engineering tasks related to lifesaving activities would be of first importance during the shock phase. At the zone and regional levels small engineering elements would be required to coordinate activities between municipalities and zones, but it is at the municipal level that engineering operations would actually take place during this period. For these purposes, a well organized Municipal Emergency Engineering Service will be required from the outset to control engineering and construction resources and local engineering activities.
Peacetime Planning Procedures
This chapter suggests how a municipality might organize a municipal emergency engineering service for the purpose of ensuring the optimum use of manpower, equipment and materials during the three attack phases. Additionally, brief reference is made of the organization to be established at the zonal and regional levels for the control of engineering and construction resources.
There are generally four types of municipal engineering services:
the large city with a complete staff of qualified engineers and equipment;
the county organization with a large staff and adequately equipped service;
the smaller community with limited staff and equipment; and
the rural municipality with just a foreman and a couple of labourers.
The usual municipal engineering service in peacetime is largely concerned with sewage and water systems and street and road systems within the municipal boundaries. Utility services such as gas systems, telephone systems and electrical power are usually operated and serviced by govern- to ment or private industry. In a war emergency the Municipal Emergency Engineering Service must involve and coordinate the efforts of all elements in the municipality. 140
The Municipal Emergency Engineering Service in the case of larger communities will use all the resources available within the boundaries of that community and where the area concept has been adopted the resources of a number of small towns and villages as well as the rural municipality will be available.
The engineering resources would include:
. municipal engineering staff and equipment;
• electrical, gas and telephone utilities;
. municipal public buildings;
• private contractors of all sorts, and
• industrial maintenance and construction services.
The first step in preparing a plan for the engineering service is to make a vulnerability survey of all the utility services and then assess the engineering tasks that may need to be undertaken in an emergency.
The next step is to survey the resources of materials and manpower that are available to carry out these tasks. As material and equipment resources may change very quickly the most important thing is to ensure that the personnel who know where these items are on a day-to-day basis are involved in the plan.
Preparatory emergency engineering service activities will take place during the pre-attack phase, whereas life-saving and remedial activities dominate operations during the shock-phase. In the recovery phase, the municipal engineering resources will be allocated to tasks meeting priorities determined at higher levels of government under controls established by these government levels.
As a guide for Municipal Chief Engineers, a specimen engineering emergency plan is included at the end of this chapter.
Pre-attack Phase Tasks
The tasks to be undertaken during a period of strained international rela- tionships and/or after a civil state of alert has been declared, will depend upon the likely risks and the role of the municipality concerned. In some cases they may be high-risk areas likely subject to the direct effects of a nuclear weapon or they may be low-risk areas and serve as support to or as evacuation centres for those municipalities which might suffer the direct effects.
High-risk Areas'
construction of improvised fallout shelter;
adjust operations of utilities to make them less vulnerable to weapons effects; • 141
• dispersal of vital municipal equipment and designated personnel to relocation sites outside likely target areas; and
dispersal of contractors and utility equip- ment and personnel to relocation sites outside of the likely target area.
Low-risk Areas
assembling material and personnel resources for post-strike operations in likely target areas;
• providing supplementary washing, cooking, heating and sanitation facilities in reception communities;
• providing temporary roads and car parks in reception communities;
• constructing improvised fallout shelters; and
• improvising additional utility services in reception communities.
Shock Phase
Where direct attack or random detonation occur, the immediate requirement would be to direct all available and necessary engineering and construc- tion resources to assist with life-saving operations in the damaged areas. Engineering tasks during these operations would include:
opening routes for rescue forces;
assistance to the fire-fighting services;
use of engineering and construction equipment in rescue operations;
maintenance of vital utility services which are still in operating condition;
restoration of utility services which are essential for preservation of life, such as electric power and the supply of potable water;
assistance to emergency services operating in the damaged area, particularly, the emergency health and welfare services in the immediate provision of improved facilities; and
• temporary patch-up repairs to all types of accommodation.
In all other communities tasks started before attack will continue except gl, where restricted by radioactive fallout. In addition to the applicable 142
'activities listed previously, communities near damaged areas would be called upon to send engineering assistance for life-saving operations to the stricken areas. 0 Following life-saving operations at the beginning of the shock phase, engineering resources would be employed to:
eliminate serious hazards to life in damaged areas such as ruptured utility services, industrial hazards, fire hazards and public health hazards, including disposal of the dead;
restore essential services in damaged areas which are still to be occupied;
restore essential services which have been interrupted in other areas;
salvage, where possible, vital engineering and cons- truçtion resources in damaged areas;
continue maintenance and restoration of utility services, especially those required for vital industries and the preservation of life;
extend essential utility services as necessary and assist other services such as health and welfare in the provision of emergency hospital, lodging, feeding and other mass care facilities for evacuees in over-crowded reception areas; and
assist in decontamination programs where these can be under- taken.
Recovery Phase
The recovery phase is generally regarded as the period which would start about 14 days after attack. Freedom of movement in all but the most seriously contaminated areas should be possible. Government at each level would assess the damage and priorities would be assigned to the repair, reconstruction of industry, ports, airfields and other vital installations. By this time all engineering and construction resources would be brought under control and allocated to meet national priorities. Part of engineering and construction resources may have to be assigned to the following vital services:
. electrical power;
. fuel processing and distribution systems;
. transportation systems
communications systems;
. water and sewage distribution systems;
food processing plants; 143
. emergency housing; and • other essential industries and commerce. The responsibility for restoration of the above.vital services which were damaged or destroyed would rest primarily with the management of the company or government agency directly controlling the facility. Any integral engineering resources of the company or agency would be employed in such tasks in the first instance. All construction and engineering construction resources would be controlled by the provincial component of the National Emergency Construction Agency.
Such projects of major scope would ordinarily be central, regional and zonal in character rather than municipal. Where municipal projects were undertaken, it would usually be as part of a larger overall plan. Thus, it seems likely that during the recovery phase work commenced locally would gradually be merged into zone, regional and finally national rehabilitation plans.
Shock Phase Organization and Control
Municipal Organization
The Municipal Emergency Engineering Service for the shock phase should consist of all public engineering resources of the municipality, and all privately ownêd engineering resources, including building and construction firms. Where appropriate, the engineering resources of publicly or privately owned utility companies should also be included, insofar as they lie within the area of municipal jurisdiction. •
An exception would be made with respect to the electric power and gas utilities which come under the control of other agencies. The Municipal Emergency Engineering Service would only coordinate the engineering activities of electric power and gas utilities with other engineering operations where necessary, for example during life-saving operations in a damaged area. The engineering resources of electric power and gas utilities would only be diverted from their normal tasks in the most , exceptional circumstances.
Engineering resources which must be placed under the direction and control of the Municipal Emergency Engineering Service to a greater or lesser degree depending upon the size and type of municipality are:
Public Works and Utilities
• municipal services
• roads and road bridges
. public buildings • . water 144
sewers and sanitation
• electric power
• gas
Contractors Services
• general contractors
• sub-contractors including all sub-trades
• equipment and material dealers service
• industrial maintenance and construction service
• architectural and engineering consultant services
Resources with Contractors
• engineering and construction manpower
• tools and materials
• heavy equipment
The Municipal Emergency Engineering Service must be headed by a Chief Engineer who may be the city or town engineer or, where these do not exist, the local head of a public utility, a private engineer or, in many cases, a local contractor. The size of staff needed by the Chief Engineer would, of course, depend upon the engineering and construction resources requiring coordination in the community. The heads of various utilities and services should be appointed Assistant Chief Engineers.
In very large municipalities or where municipalities have been grouped together on an area basis, an engineer in charge can be assigned with appropriate staff to a sub-division of the area placed under the overall control of the Chief Engineer.
Where it is intended to collect engineering and construction personnel, equipment and material in readiness for emergency operations, it will be necessary to create equipment parks and appoint suitable persons to take charge of them. Engineers in charge of equipment parks would be responsible for the reception and allocation on direction of the Chief Engineer of all engineering personnel, equipment and material placed under their control.
It will be particularly important during this period to bring all small sub-trade contractors, such as carpentry, electrical, plumbing, heating and ventilation, under a single control which may be the Chief Engineer in a small community or an Assistant Chief Engineer appointed for this purpose in a larger community. • 145
Zonal Organization
At Zone Headquarters, a Zone Engineer will be needed to advise the Zone Controller on all engineering matters and to undertake the coordination and control of all engineering functions within the zone. The Zone Engineer may also require a staff with representation from the provincial department of highways and the construction industry and provision for liaison with provincial utilities.
Regional Organization
A Regional Engineer should be appointed and authorized to carry out the functions of coordination and control. He should be supported by a staff made up of representatives of the major engineering interests in the region and including liaison with provincial utilities.
Attached at the end of this chapter is an outline chart showing a,Shock Phase Regional, Zonal and Municipal Engineering Organization.
Essential Records
During the shock phase, it would be the general intention that the senior engineer at each level of government would be able to bring the engineering and construction resources within each sphere of jurisdiction to bear on any disaster situation with maximum speed and flexibility. It follows, there- fore, that to exercise this kind of control the authority at each level must survey and keep up to date as far as is practicable, during the pre-attack phase, lists, location and availability, of all engineering and construction resources. The detail of such records would vary for each level.
Because the construction industry is by its very nature constantly changing, it will be necessary to have a system by which all contractors with engineering and construction resources report their location and availability periodically, and promptly at the outset of an emergency and again following an attack, to establish exactly what resources are at hand and useable. Each of the public or privately owned utility services will likely have a system for reporting their resources, including maintenance vehicles and equipment.
Additionally, the Municipal Chief Engineer and his staff will require the Category I records of public utility installations and other important engineer plans which would be needed immediately to assist with survival operations. These records must be in a form suited for use under emergency conditions, such as simplified master charts. Microfilming should only be used for Category II and III essential records, which although vital are not needed immediately in an emergency.
Communications
The Municipal Emergency Engineering Services will require communications which are reliable under fallout conditions and sufficiently mobile to control all types of engineering operations throughout the pre-attack and shock phases. The Chief Engineer at Municipal Emergency Government Head- quarters will need constant communication with the heads of each of the public works or utility services, and with engineering parks or sources of engineering and construction resources. For the likely target areas a 146
separate engineer radio network will be necessary. Use should be made of existing utility and contractors radio networks where possible. In other areas the Municipal Emergency Government Headquarters radio network can is probably carry engineer traffic as a back-up to line communications.
Recovery Phase Engineer Control Organization
Wherever possible during the shock phase and otherwise in the recovery phase, the operational type of engineering organization and controls would be replaced as quickly as possible by the wartime organization for the control of all engineering and construction resources to be established by the Minister of Public Works in Canada, in conjunction with the provincial and municipal governments.
The broad wartime functions of this organization would be as follows:
the direction, regulation and control of engineering and construction resources represented by the construction equipment and manpower of contractors, of governments at all levels, and of industry;
the coordination of demands for such engineering and construction resources and their allocation in accordance with priorities determined by the executive authority; and
. the coordination of demands on National Emergency Agency and the Canada Emergency Manpower Service (CEMS).
As the organization for the control of engineering and constructions resources is established at each level of government, it is expected that municipal and provincial, public and privately owned works and utilities would revert to peacetime organizations and practices. They,together with other essential services mentioned above,would become claimants for the engineering and construction resources which would be placed under the control mentioned above.
Municipal Organization
Although these controls would be exercised principally from the regional and zonal levels, it would likely he necessary to open local offices in the larger communities. These offices would be responsible for licensing and registration of all contractors and sub-contractors and for their allocation to engineering tasks once the priorities are established by the executive authority at the appropriate level of government.
Regional and Zonal Organization
During the recovery phase, the regional and zonal engineering elements would be changed in character from a survival operations organization to a more administrative control type of organization. Staffs would be required to coordinate demands for engineering resources, consolidate registration and licensing arrangements, expand administrative and financial control and co- 0 ordinate the allocation and use of engineering and construction resources. 147
Control of Engineering and Construction Resources
The Civil Emergency Measures Planning Order PC 1965-1041 requires the • Department of Public Works of Canada to "establish in conjunction with provincial authorities a wartime organization responsible through central, regional and local authorities for the control of all engineering and construction resources".
The organization, national in scope,will consist of a headquarters at the federal level of government, the provinces and territories (through departments having an existing capability for exercising the controls) and certain municipalities which may be delegated the responsibilities for, and powers of, control.
The controls will be exercised under a national policy for priorities. Within the national policy of. priorities, the provinces, territories and municipalities will establish priorities and control the use of the resources accordingly. The controls will be maintained at each level of government to ensure, in the national interests, that the most efficient and best use is made of the resources and exercised as any other normal federal-provincial-municipal arrangements in peacetime or wartime.
• 148
A SPECIMEN PLAN FOR MUNICIPAL EMERGENCY ENGINEERING SERVICE
Objectives
Depending upon whether or not the community is in a likely target area, the Municipal Émergency Engineering Service has special aims to fulfill in connection with evacuation or reception and these should be noted in addition to the following which are common to all municipalities:
• to minimize the effects of nuclear attack on essential services and arrange for their continued operation, and
• to assist other municipal emergency services.
Engineer Appointments
The various key appointments, such as the following, including two alternates in each case, should be listed:
Chief Engineer Deputy Chief Engineer Engineers in charge of: Equipment Parks Contractor Services Water and Sewer Streets and Roads Electric Power Gas Utility Telephone Utility Subdivision
Warning
Include detailed instructions for warning key personnel.
Manning
Include instructions for personnel to report to municipal headquarters or other types of rendezvous, such as equipment parks. Procedure for the issue of identity cards should be described.
Tasks
For each of the following functions show the tasks to be undertaken in the pre-attack and, where possible, the post-attack phases:
• Utilities - Detail steps to be taken to reduce loads and place plants and key installations on a maintenance basis, where desirable. If the public has not already been instructed on procedures for shutting off domestic appliances and equipment, instructions should be given under this heading. • 149
• Public Works - Engineering work to be carried out should be specified, listing nature and location of work and contractors, municipal and • other resources assigned to each task. . Engineering Resources - Instructions for the mobilization of contractors' services and their assignments to tasks where these are not included above.
. Engineering Equipment Parks - Instructions for the establishment of engineering equipment parks. Theprocedures for allotment of engineering resources, servicing, maintenance and repair of equipment held at parks and other details of operation can be shown in an annex to the plan.
Resources Boards
Describe the use to be made of engineering resources boards to record the availability of engineering resources, particularly heavy equipment.
Reports and Returns
Describe the system to be used by utilities, public works and contractors in reporting engineering resources both pre- and post-attack.
Essential Records
List the essential records by category required by the Municipal Emergency Engineering Service for emergency operations (can be an annex). Manpower
Make arrangements with local manpower control authorities (CEMS), for obtaining skilled and unskilled labour.
Supplies
Make arrangements with the National Emergency Agency for obtaining stores and material, particularly fuel and lubricants for engineering equipment and for control and use of electric power and gas.
Other Departments
Make any special arrangements for assistance to or from other emergency services. Control and Communication
Decide location of Headquarters Municipal Engineering Service, Subdivisions, Equipment Parks, times of opening and arrangements for communications between engineering elements including any special communications needed to assist with rescue and other survival operations in damaged or seriously • contaminated areas. SHOCK PHASE ENGINEER ORGANIZATION LEGEND: Control -Coordination REGIONAL PROVINCIAL EGHQ F--^► -I UTILITIES
(Public and private) ZONE - - - EGHQ F
CHIEF EN^INEER MUNICIPAL/AREA EGH^ ENGINEER-IN-CHARGE I SUBDIVISION
( Chapter 23 MUNICIPAL EMERGENCY COMMUNICATIONS SERVICE General The Municipal Emergency Communications Service should be developed to provide adequate and assured.communications for the municipal emergency government headquarters and the various municipal emergency services so that these elements of emergency government continue to function throughout the period of a war emergency. Accordingly, in this section, the requirements of each are analyzed under various emergency circumstances. The types of organization needed to meet these requirements are also considered and finally, a method for the development of a communications plan is presented. Licensing and Operation of Civil Emergency Radio Stations This subject is not dealt with in this section. There are Department of Communications regulations on these matters for peacetime and wartime emergencies. SECTION I THE REQUIREMENTS FOR EMERGENCY COMMUNICATIONS Aim The purpose of this chapter is to analyze the essential operations which would have to be carried out by municipal emergency services during the various phases of a war emergency, in order to assess the communications requirements for each service in relation to these operations, both for likely target areas and areas not designated likely target areas. (Communications between zone and municipalities, which are a zone respon- sibility, are not discussed.) Organization All municipalities will need some or all of the following: Emergency Services: . Communications . Public Information* . Engineer . Radiological Defence (Radef) • Fire . Rescue . Health . Supply* • Personnel* . Transportation* . Police . Welfare *May not have operating units. • 152 Likely Target Areas For these areas, some of the tasks which might have to be performed and the municipal emergency services which are likely to be involved in them are set out in the following table: Services Primarily Situation • Tasks Concerned Pre-attack Instructions to the public Public Information phase Pre-attack evacuation Police Transportation Health Welfare Manning headquarters) ) All Services Mobilizing emergency ) services If attack Conduct of life-saving operations Rescue including Radef ) resources from outside Engineer ) Target areas, Fire ) and the Canadian Health / Forces (if Welfare ) committed) Transport ) If no attack, Control of public activity Radef but area to minimize radiation Public Information contaminated exposure Police Remedial evacuation Radef Public Information Police Health Welfare Transportation plus Canadian Forces (if committed) 40 153 For likely target areas it is necessary to select a single municipal emergency government headquarters (MEGHQ) located outside the target area, to represent all the municipalities comprising the target area. This headquarters will consist of an executive group of elected persons and single heads for each of the emergency services. Communications will be needed for some of the emergency services of this headquarters to communicate with their operating units in and around the target area. As military forces may not be available to assist in damaged or contam- inated areas, municipal governments must be prepared to control life-saving operations. This may require sub-division of the area of operations and creation of subordinate headquarters to the MEGHQ (e.g., "sector" headquarters) in order to maintain a reasonable span of control. The communications requirements of those services with primary tasks can be examined briefly and individually as follows: . Police - The police require a radio network, controlled from a single point, for traffic control. Fire - In the pre-attack phase, fire radio communications will only be required for the mobilization of fire services where the telephone system throughout or in part of the area involved in this mobilization is inadequate for this purpose. In a post-attack situation, fire services would require a radio network to enable the area fire chief at municipal emergency government headquarters to deploy fire services, as required, with complete flexibility. Normal fire communications should suffice if the area were not attacked. . Engineering - The task of the engineering service is to keep essential utilities such as power, water, roads and sewage functioning throughout an emergency. If no actual damage occurs, peacetime communications may be adequate. If an area is damaged, engineer services will require commun- ications between operating units and the MEGHQ or its subordinate (sector). Health and Welfare - In the alert phase, both Health and Welfare will be concerned with the evacuation of trained personnel from the target area in accordance with pre-arranged plans. Normal communications should be adequate for this purpose. If an attack actually occurs the heads of both these services, with their counterparts at zone headquarters, will move • mobile installations and mobile welfare teams 154 forward, as required in support of life- 0 saving operations and assured communications will be required for thesé ôperations. It is suggested that municipal emergency govern- ment headquarters should have several mobile sets on a common headquarters network for this and other unforeseeable commitments. If no attack takes place normal communications will serve. . Rescue - If the rescue service is brought into action in an attack situation it will probably be from communities outside the target area. Provision must be made for communications between the municipal headquarters and the operating rescue forces; perhaps on the common civil emergency radio network referred to above. . Transportation - In the pre-attack phase the transportation service will assist with voluntary evacuation of the public and welfare institutions according to a pre- arranged plan. Police communications might be used where co-ordination of these activities is required. The same principle would apply for a remedial evacuation. Civilian road transport required in a post- attack situation for life-saving operations and for the evacuation of casualties or movement of survivors will probably be drawn from resources outside the target area. Providers of road transport may well provide the necessary communications, if not, the police system could be used as above. Radiological Defence - If the area is attacked, monitoring posts which survive should have some means of communicating with municipal emergency government headquarters. If the area is not- attacked but receives fallout contamination, the RADEF service must have reliable.communica- tions from municipal-emergency government headquarters tô monitoring stations.- 0 155 • Other Services - All other municipal emergency services • can be served by a common civil emergency radio network comprising a headquarters base station and mobiles. A typical emergency communications diagram for a likely target area can be found on p. 168. Only two sectors have been shown for simplicity, although there may be as many as four. Three links have been shown for municipal emergency government headquarters through a relay station to the sector areas. The diagram represents what is considered desirable, though for financial reasons it may be necessary to start with one common link for all or part of these three links. It must be remembered that the police, fire and engineering services peacetime communications for their mobiles may not be organized to fit into this plan and may have to be re- arranged. For example, it is possible that each municipality within the likely target areahave police and fire communications on a different frequency, in which case the plan as shown on the diagram would not be feasible without changes in the equipment of a service. This change should enable all equipment to work on a common frequency which could be one of the municipal frequencies or a new one. A suggested alternative solution.on p. 169 woilld enable the services to control theieffibbiles with fewer changes in radio equipment. Areas Not Designated as Target Areas These areas can be classified into two groups which will have different tasks to perform. These two groups are: . Communities adjacent to target areas; and . Reception areas. The phases of an attack, the tasks to be accomplished and the services involved are set out in the following tables: Communities adjacent to target areas: Services Primarily Situation Tasks Concerned Pre-attack Instructions to the public Police phase Public Information Manning headquarters All services Mobilizing emergency services )) Contaminated by Control of public activity to radioactive minimize radiation exposure Radef fallout Public Information • Police 156 Communities adjacent to target areas: (cont'd) Services Primarily 0 Situation Tasks Côricèrrièd Remedial evacuation Radef Public Information Police Health Welfare Transportation plus Canadian Forces (if committed) Reception Areas: Services Primarily Situation Tasks Concerned Pre-attack Instructions to the public Police Public Information Manning headquarters ) Mobilizing emergency services All Services Reception arrangements Police Fire Engineer Health Welf are Transportation Supply Contaminated by Control of public activity Radef radioactive to minimize radiation fallout exposure Public Information Police Remedial evacuation Radef Public Information Police Health Welfare Transportation plûs 0 Canadian Forces (if committed) 157 • Communications requirements of the emergency services in communities not designated likely targets would nrobably be as folluws: • Police - The police should have emergency radio communications. • Radiological Defence - The radiological defence service must have communications from monitoring posts to the controlling municipal emergency government head- quarters. These communications may be by telephone. Where telephone communications cannot be assured, radio will be required. • Other Services - Where there is a requirement for radio communications, in addition to existing facilities, to co-ordinate emergency services in the area from an emergency municipal government headquarters, these services should be served by a common civil emergency radio network. The use of this radio network by the services would require priorities to be established between the services according to the situation. Such a network would comprise a headquarters base station and mobiles or hand portable stations as required, depending upon the size of the area and its emergency tasks. Normally, areas adjacent to target areas and those which are designated as reception areas would be the only ones requiring a common civil emergency radio network. . County or Area Organizations - Non-target areas are usually organized for emergency operations into county, area or district organizations comprised of several communities and/or rural municipalities. Where telephone communications would prove to be inadequate under emergency conditions, the county or area emergency head- quarters should have a base station and mobile out-stations at the emergency government head- quarters of each municipality in the county or area. In most areas it will be possible to combine these communications requirements with those mentioned above. This would depend upon the total number of stations required in the area concerned, For efficiency, an emergency radio network should not exceed ten stations. • 158 ORGANIZATION The Communications Officer In order to carry out emergency communications planning, a municipality should have a communications officer. In the larger municipalities it is desirable to have a full-time communications officer. For smaller communities, it should be adequate to have a part-time officer as long as he can devote enough time to the development of the organization. The communications officer should have equal status with the heads of other emergency services such as police, fire, etc. He should be a member of the Civil Emergency Planning Committee and, as such, would advise other service heads on emergency communication problems in their services. If necessary, he should head a communications sub-committee composed of himself and representatives from the services concerned. It is desirable for communications officers to have a communications background and it is essential that they have organizational and admin- istrative ability. Communications officers may be selected from radio amateurs, ex-military communications officers, employees of commercial communications companies or independently employed persons in the communi- cations field. Communications Personnel • Instructors - The communications officer must supervise the training programme. If he is unable to carry out detailed instruction in addition to his other duties, it is essential that a competent instructor be employed on a part-time basis. Amateur radio bperators or other;volunteers with a communications background should be suitable as instructors. • Operators - In an emergency the operating positions must be manned on a twenty-four hour basis and it is advisable to provide three persons per position. However, when an emergency occurs, all the trained operators may not be immediately available and it is therefore advisable to train enough operators to ensure that at least three will be available per position. Before the services of these people may be relied upon- in the evènt of an emergency, it should be ascertained that they will not be required tor other duties. Even if in reserved occupations, amateur radio operators fe71.11 still be available and extremely useful for organization and training in peacetime. Training All municipal personnel who have to communicate over the radiotelephone system in an emergency should receive training to the Restricted Radio- telephone Operators (RRO) standard. Telephone as well as radio operators 159 should know voice procedure and circuit discipline so that any operator is capable of operating any position. This can be accomplished by • training all communications personnel to the RRO standard. They should also be thoroughly familiar with message writing-and handling procedures. The Department of Communications Radiotelephone Operator Handbook should be used as the source document for operator training. (Refer also to Document EPC 9/78 - Civil Emergency Communications Operating Guide) Standing Operating Proc édures Procedures that can be put into effect automatically should be prepared in the form of standing operating procedures so that everyone employed on communications would know what they are to do and where they are to report. A telephone fanout system should be devised for alerting communications personnel. Likely Target Areas General - A likely target area may consist of a number of municipalities but must be treated as one unit for emergency communications planning purposes. A single municipal emergency government headquarters will be established outside this area to represent all the municipalities with a single executive body and a single head from each emergency service. Communications will be required from the municipal emergency government head- quarters to zone headquarters and down to each municipality within the target area. Existing Communications The Telephone System would be in operation before an attack. It should be considered the primary means of communication between fixed points in the pre-attack period. It would, however, probably become overloaded and a pre-planned system of ensuring the essential users Will have the ability to originate telephone calls should be developed, (Line Load Control) . Municipal Radio Networks - Police and fire networks would be fully occupied in carrying out the emergency roles of their departments. Networks of civic departments such as public utilities, public works, etc. should be examined. During the initial stages of an emergency, their mobiles might well be deployed to provide some of the emergency links required. . Amateur Radio Stations - Fixed amateur stations would be of little value in a likely target area. Amateur mobiles, however, could be extremely useful and could be deployed to provide communications. The amateur stations would have to operate in frequency bands that are available and allocated for municipal emergency use. • 160 • Commercial Radio Broadcasting Stations - will be invaluable to provide informa- tion to the public. They can also be of considerable use for control purposes where the various emergency groups are equipped with portable or car radios. • Taxi Radio Networks - Taxi mobiles could be deployed in the same manner as above if enough vehicles are available on a common frequency. They would be difficult to mobilize and control and are therefore less dependable. They should be considered only as a last resort for pre- attack emergency communications, but could prove extremely useful in the post-attàck period if arrangements were made for those getting out safely to rendezvous at a pre- determined place. • General Radio Service (CB) - Mobile stations could provide reliable short distance communi- cations if properly organized and trained in procedures. • Private Company Radio Networks - Private companies such as parcel delivery firms often have fixed and mobile radio networks. These could be put to uses similar to those envisaged for Taxi Company Systems. Additional Requirements • Municipal Networks - If the municipal plan requires the services of auxiliary police and firemen, the police and fire networks should be examined to determine whether or not they need to be supplemented. If it is decided to use the mobiles of other civic departments to pro- vide these emergency links, they may also require additional facilities. . Municipal Services Control - Police, fire and engineer services should preferably have their own emergency communications from municipal emergency government headquarters to sector headquarters where these exist, and sector head- quarters direct to police and fire mobiles within the sector. One method of establishing direct control from sector headquarters would be to convert all the existing police and fire radio equipment of the municipalities within the sector to dual-channel operation. The mobiles would then operate in the normal manner on their own municipal frequency in peacetime but switch to • 161 a common channel during an emergency and work direct to sector headquarters. The common channel would logically be the regular frequency of the municipality having the most mobiles. It should be possible to maintain control of the other regular and emergency services from sector head- quarters through a common civil emergency network. . Headquarters Control Network - If the likely target area is divided into sectors for decentralized control, an emergency government network will be necessary. A base station will be required at the municipal emergency government headquarters, working to mobile installations at sectors. A mobile attached to municipal emergency government headquarters could be part of this network and would provide the civil authority or his deputy with a means of moving about the target area and still retaining control. • Communications Within Sectors - The Civil emergency network should include the headquarters of each muni- cipality within the sector. The sets at these head- quarters should preferably be mobile. Other mobiles and/or hand transportables may be required within sectors to supplement existing communications or to set up links to the emergency service as required. They should not be assigned to a specific service. All such sets within a sector should be on a common frequency so that they may be controlled directly from sector headquarters. There is a requirement to select an emergency government headquarters outside the target area. Within this headquarters the communications officer must make provision for the following: . A Message Control Centre (MCC) - To control all message traffic for each network. To avoid confusion it is"wise to keep copies of all messages passed or at least a log-book at each MCC and at each mobile station. . Essential Records - It is essential that the following duplicate communications records should be located at the emergency headquarters as a part of the essential records program: • communications diagrams showing commun- ications available to the municipality and within the county (or appropriate area) and zone. . emergency Communications Guide , all relevant licences. 162 . lists of all communications personnel, giving names, addresses and telephone numbers. names, addresses and telephone numbers of the local representatives of pertinent commercial communications companies and electronic firms. . Stationery - Adequate stocks of stationery and message forms should be held. Areas Not Designated Likely Target Areas General - Municipalities in other areas will vary in size from small cities, to incorporated villages and rural areas. Many of the principles that apply to target areas may be applied to other areas. Where possible, the organi- zation should be based on a county or grouping of municipalities, with the emergency communications system serving the whole area. An emergency govern- ment headquarters must be established in the area so that the member municipal -ities may be represented by a single executive body and a head for each regular and emergency service. Secure and reliable communications will be required from the area emergency government headquarters to satellite municipal headquarters. Additional links may be required so that the emergency services of the municipalities may be co-ordinated and controlled from the emergency government headquarters. If these links are organized to take maximum advantage of existing facilities, additional facilities should not be required in most cases. Areas remote from likely target areas should consider commercial 'carrier systems as the primary means of communications from emergency government headquarters to the principal urban municipalities. Requirements for additional facilities would depend upon: . the size and population of the area; . its location in relation to the more likely target areas; . the emergency plan of the area; and the existing communications facilities which are available. Existing Communications May Be: . The Telephone System - which may vary from an extensive system in the larger municipalities to a meager facility in the smallest and should be examined to see whether it would be adequate for emergency purposes. . Municipal Radio Networks - would be Police, Fire, Engineer and other municipal services. Police and Fire would be fully occupied in carrying out their emergency roles. Mobiles of other civil departments, however, might be spared to set up some of the emergency links required. 163 . Amateur Networks - Fixed amateur stations in the major urban centres could be extremely useful in an area as 0 backup to a primary system or to provide temporary links to municipalities until a civil emergency network is established. Amateur mobiles could form a reserve to set up emergency links, as required, to municipalities or the emergency services. . Commercial Radio Broadcast Stations - For informing the public and the various emergency groups. Taxi Radio Networks - If there is reasonable assurance that these will be available when the emergency arises, they might be used to set up emergency links wherever required within an urban municipality but the municipality must be prepared to provide the additional operators required. . General Radio Service (CB) - These stations would be extremely useful. . Private Company Radio Networks - Used in the same manner as Taxi Network. Additional Requirements Municipal Networks - Police and fire networks should be supplemented if additional communications are required to ensure adequate control under emergency conditions. In smaller municipalities which do not have radio controlled services, it may be necessary to provide communications for a municipal service or to establish a common network serving all services. Municipal Services Control - Normally, the telephone system should be adequate. If the area is adjacent to a likely target area and/or there are good reasons for not depending upon the telephone system, leased lines might be considered for the link between the emergency government headquarters and the base stations of the services. Alternately, emergency radio links could be set up. The aim should be to provide for co-ordination and control of the emergency services of the area from the emergency government headquarters. . Civil Emergency Network - If adequate communications for area control and control of the emergency services cannot be provided by existing facilities, a civil emergency radio network should be considered. Such a network should provide: . links from the controlling municipal emergency government headquarters to the major satellite 40 municipal headquarters of the area; and 164 • a mobile reserve to be deployed as necessary to cover smaller satellite municipalities and/or the emergency services. In areas adjacent to likely target areas, radio sets at satellite municipal headquarters should either be mobile or have mobile capability. In other areas they could be fixed stations. In any event, they should remain in the municipalities and should be tested regularly, by municipal personnel trained to the RRO level. Co-ordination - No municipal communications plan can be considered entirely on its own. It must be tied in with the plan at the level immediately above and with the plans of neighbouring municipalities. Frequency co- ordination, to avoid possible interference, is particularly important and, on this, municipal communications officers should work closely with the zonal communications officer who will in turn take direction from the provincial communications officer. Essential Records and Stationery_ - The principles set out under likely target areas apply. PLANNING General Having determined the requirements of municipal emergency government head- quarters and the emergency services and considered in general the type of organization needed to meet the requirement, the next step is to develop detailed written plans for the emergency communications service. The following paragraphs show the logical steps for arriving at such a plan. Aim It is important to specify the aim clearly and concisely in order to develop the plan and, more particularly, to make sure that unnecessary or non- essential matters do not obscure the aim. Factors That Would Affect The Plan . Basic factors are: • what type of emergency control organization is to be established by the municipal plan? . what communications are required for the control organization? . what communications are required for the emergency services? . what are the existing communications and are they adequate in relation to: • location; • type, i.e., leased landline, radio-telephone, dispatch service, etc.: 165 0 . message handling capacity; . availability; and between what points in the emergency control organization can they be used? . what additional communication links are required? . Technical factors are: . what frequencies are required and are available for radio circuits? . what power supply arrangements are required? . what maintenance arrangements are required? . what arrangements are required for message handling? . what are the manpower and training requirements? . Administrative factors are: . what licensing arrangements are required for radio stations? . what accommodation and feeding arrangements are required for communications personnel at their emergency locations? . Operational factors are: . is existing accommodation with reasonable protection against radioactive fallout available? . what degree of mobility is required? . what arrangements are required for getting communications personnel to their emergency location? Possible Courses of Action Having considered the requirement and the factors, certain courses of action will suggest themselves, i.e.: . the existing communication systems may be considered adequate for emergency purposes; 166 • if so, there is no need to proceed further; but the processes of deduction that lead to this decision will have been of use in confirming that no additional emergency communications are required. if the factors show that additional communications are required, they will also indicate in what field, i.e.: for emergency government headquarters, for police, fire, etc. if additional communication networks are shown to be required they may be best met by an emergency government network, a network of amateur stations or a taxi radio network. in some cases, the addition of a leased landline circuit, telephone or teletype may prove to be the best solution. The Plan The next step is to complete the plan (which should be an annex to the municipal plari) to outline the proposals and how they should be accomplished. A guide for the content and sequence of a communications plan follows: . Aim - States the aim of the plan. • Introduction - Summarizes main points of the municipal plan that affect communications in relation to evacuation, reception, remedial evacuation, radiological defence, mutual aid, etc. . Emergency Control Organization - Outlines briefly the organization required to enable the municipality to control and direct survival operations. Includes peacetime and emergency headquarters, geographical breakdown for control purposes, (i.e.: sectors) and the command and control structure. • Emergency Communication Requirements - Outlines the communications required for the control organization to function. . Existing Communications - Shows departments and agencies that have communication facilities and lists types, including base stations and mobile radio; shows where these can be used for emergency communications and where they are inadequate. • 167 • • Additional Facilities Required - Shows facilities . required additional to existing communications that are suitable and available. • Additional Equipment Required - Describes equipment required to provide additional facilities. • Implementation of the Plan - Sets priorities on the communication links to be established and gives target dates for completion of phases, including fixed and mobile installations. • Other Tasks - Manpower requirements including recruitment and training program and covers essential records, etc. • Communications Organization - Lists names of communications officers and key personnel, with alternates in line of succession; describes method of mobilization of communications personnel. • Communications Diagram - Attached as an annex to the plan, showing, with symbols, how existing and planned facilities would be used in an emergency and the points in the control organization that will be linked by each network. (Pages 170 to 175 set out the symbols that would be used. • Supporting Data - Maps, charts, etc. that provide additional information should be attached as additional annexes. Approval of the Plan When the plan has been completed it should be submitted.to the Civil • Emergency Planning Committee, who will satisfy themselves that it meets their requirements and will then submit it to the Civil Emergency Executive or Control Committee for final approval. Once approved, copies of the final plan should be filed with the Provincial Emergency Measures/ Civil Defence authorities and with Emergency Planning Canada. • ZEGHQ RADIO RELAY MEGHG 0 EG . EMERGENCY COMMUNICATIONS for c m Oc 7---- ■ c E*-—G% A LIKELY TARGET AREA V cornprising A NUMBER of MUNICIPALITIES s • to • RESERVED ENGINEERED TO LOCAL EXCHANGE —1 TO ZEGHQ MLHQ RESERVED CLEARWATER TO EXCHANGE TO ESSENTIAL CIVIL CLEARWATER e2" SERVICES HOA THROUGH Sri-1" N LOCAL EXCHANGE .1 „.." TO BE ASSIGNED MUDBERG M_HQ TYPICZL"- !x HQ CLEARWATER - TYP. MUDBERG AREA ECHO m_HQ 100. TYP. \ _ \ OLIVERTOWN - • • e › „••••.' . •,"J • ...... ,---- ..- ...... ...... TWISTVILLE e \> .' \il A .' / TYP • 1 HQ [2)4 e-TYP. „../ .„." „„/ ,. ..„ . 1 . SUNSTROKE Icappr, ‹\ TWP ..> \ I ' NL HQ ,. i 111 Type \ , I MOONSH. I • CLEARWATER TWP EG PCHO NI- HQ 1110, i\ I NOTES; - ; \'‘ MUDBERG 1. Fire mobiles have dual frequency radio. Police and Engineer Mobiles PCHQ oi-TYp to be similarly equipped. I OLIVERTOÏN› 2. EG fixed network to be exercised I \ daily by municipal personnel trained PCHQ TYP4 to the RRO 0 3. Mobile Reserve to provide links for TWISTVILLE the emergency services as required. 0 PCHQ TYP. EMERGENCY COMMUNICATIONS CLEARWATER AREA Serial No ' Date Approved by 170 EMERGENCY COMMUNICATIONS DIAGRAMS Introduction The following sets out a method of representing emergency communicationssystem 0 for use by federal, provincial and municipal communications planners, which: . will show both existing and planned facilities in relation to the emergency organization to be served; . will be suitable for use on both block diagrams and maps or charts. They should be used, wherever possible, so that diagrams supporting emergency communications plans may be presented in a standardized form. Symbols Basic: ^_^ Military Ui^jL' ( e<^!.c2^^1i:>tmu^nt ^.^r k,ui!dinfr,) Cjvi].Ian Unit (c ,i_uhl tr,hmc°nt < r 1>uilcqnf;) Onerational Vehicle (mobile) Mobility: 0 0 Ground NYrrti Water Air Agency or. Function Dosignators: A Ar:ateur Radio AMBAmbt.► 1a.nce CT Cc)unty CD Civil Defence GRS Citizei-.:;' Band Radio 0 171 • Emergency E () Emergency Measures Organization Engineer Fire Service Fores try (3 Government Fi (1 Headquarters Health (medical) Highways Department Liaison lvi Mobile(s) MI Mobile Reserve Municipal F) C Police Provincial i? Public Utilities Public Works • Pw 172 V Radiological Defence 0 ^ Reconnaissance Rescue © Regional Taxi TC Traffic Control W E L Welfare z Zone TECHNICAL d Radio monitoring unit (receiver only) RC I Remote control unit Repeater ( automatic) ® Switchboard or exchange Telephone 0 Teleprinter ^ Two way radio (all types) 0 173 Amplitude modulated Continuous waves (code station) Frequency modulated Relay station (manual) Radioteletype Receive Single sideband Transmit Watts CIRCUITS Basic Landline (existing) Landline (planned) Radio (existing) Radio (planned) Landline variations engineered ._„ _ _ ,.,., _ , _ private to exchange 0 174 Procedures Basic Unit Blocks: • • Show within the basic unit block: • the organization or agency using the establishment or building; • the location; and • the communications facilities (existing and/or planned). • A headquarters unit may be indicated by extending the left vertical line of the unit block downward (flag on a pole). Vehicle Symbol: • Add the appropriate mobility symbol immediately under the basic symbol. • Place a figure to the left of the symbol to indicate the number of vehicles represented (if more than one). • Place within the symbol: . a designator to signify the agency or function; and . a symbol or symbols to represent the communications facilities. Radio Station Symbols: Position within one of the basic symbols to indicate a fixed or mobile station. Indicate a hand transportable by using the radio station symbol alone. Place within the symbol a designator to show the agency providing the station, and where practicable, a figure to indicate the output power in watts. Circuits: • Radio: Use solid zigzag lines for existing circuits; dotted or broken lines for planned circuits; specify the present and/or proposed frequency, and the type of emission. • Landline: Use straight solid lines for existing circuits; dotted lines for planned circuits; indicate the function by means of the terminating symbol and insert an explanatory word where necessary. Miscellaneous: • To signify equipment having no peacetime use other than for natural disasters and training use the designator EG (Emergency Government), EMO (Emergency Measures Organization) or CD (Civil Defence), whichever is applicable to your area. • Indicate a mobile acting as a base station by allowing the vehicle symbol to touch the basic unit symbol. • 175 • Symbols may be of any size but basic symbols should be of sufficient size so that all subsidiary symbols are clearly readable. • Symbols may be combined, e.g., MPEHQ (Municipal Police Emergency Headquarters) • Symbols and/or abbreviations should be explained in a legend. . Diagrams should: • include a title block; . provide a serial number block for provincial use; • have a one inch border; and . be folded to conform with the size of the paper used for the plan. • 176 0 0 177 Chapter 24 MUNICIPAL EMERGENCY TRANSPORTATION SERVICE General Road transport is the only mode of transport considered at any length in this chapter. However, coordination of other modes of transport, when required locally, is an important responsibility of the municipal road transport authority. Road Transport Planning Within its responsibility of making overall plans to be used in the event of a national emergency, every municipal government should make arrangements for the use of its road transport resources. At the outset of a national emergency, and until higher priority needs are indicated, municipal governments will have full use of the local resources, except, of course, for those committed to pre-arranged tasks away from the municipality. • Intercity - long haul vehicles, although not under the control of the municipality, may be requested through the Zone during planning or in the actual emergency. A high degree of flexibility in the final plans will be necessary, in order to cope with the many possible eventualities. It may assist planners in the process of developing emergency arrangements to consider the following activities: Planning . determine emergency staff, accommodation and administrative requirements; . designate personnel, beginning with key positions, and develop the manning plan; • record suitable and available vehicle resources together with corresponding contacts; • record vehicle repair shops, fuel, fire pumps, parking areas, etc.; in keeping with the overall municipal plan, determine and record the road transport required within the municipality in the event of a national emergency; • prepare an arrangement that will enable all tasks to be carried out; • inform drivers/owners of their responsibilities; • determine the local and adjacent traffic routes, as well as route capacities; 178 • determine and record the general facilities and contacts for the coordination of all modes of transport as may be necessary; • prepare a plan for the control and operation of the road transport of the municipality; • advise the Zone Controller Road Transport (CRT) of the preparations, including the road transport that can be provided as support to other areas. Should a municipality not be able to meet all anticipated tasks, request additional motor transport from the CRT. Such additional transport might be allotted from other municipalities or from intercity resources; and • ensure the road transport plan is included in the municipal plan, and that it is kept updated. At the time of disaster or crisis - . implement the local road transport emergency arrangements to the extent required by the emergency; . establish contact with the Zone Controller Road Transport (CRT); • establish contact with the Municipal Emergency Supply Service to ensure the availability of fuel and parts; • coordinate the use of other modes of transport when required; and • request support from and be prepared to give support to Zone with respect to road transport, when required. The Road Transport Control Organization Municipal authorities concerned with emergency planning should know the overall Road Transport Control Organization of which they will be a part and from which support will be available. The following outline is included for this purpose. In a national emergency, the overall responsibility for the control of air, rail, road and water transport will be vested in the General Transport Controller (GTC). The federal Minister of Transport will assume this position when authorized by the War Measures Act. Obviously, detailed control of the various modes of transport must be delegated to authorities down to the operational level. In the case of the emergency control of Road Transport, delegation of authority is made from the GTC 179 through a federal Road Transport Controller, to Regional Road Transport Controllers. Each Regional Road Transport Controller, with authority for the control over the Road Transport of a province, will delegate appropriate 0 authority to Zone and Municipal Road Transport Controllers. This arrange- ment conforms with the Federal Government emergency decentralized system of authority allowing a Road Transport component under operational control at each Emergency Government HQ. Each Road Transport Controller will head a component suitable to the function. Central Emergency Government - the concern for Road Transport will be with national policy, coordination and forward planning. Included in this might be embargoes, fares, rates, tariffs, international movement and restoration of facilities. Regions - the Regional Controller Road Transport at the REGHQ will be responsible for overall Regional Road Transport under the operational direction of the Regional Commissioner. Among his main duties will be the allotment of vehicles between Zones and the support of Road Transport by ensuring adequate provision of fuel, parts and drivers. He will also coordinate the Road Transport required for the movement of supplies and persons as may be required in the Region. The chart attached to this chapter shows the basic Road Transport organization in a Region. Zones - the Controller at a Zone has responsibility for the intercity as well as municipal transport. Intercity Transport - will be controlled as necessary through intercity transport representatives, using the normal organization. The numbers and locations of such representatives will depend upon the intercity transport vehicle population. In regions where Zones are not established, respon- sibilities for coordination of Municipal Transport and Intercity Transport will be assumed by the Regional Controller Road Transport. Municipal Transport - will be under the direct authôrity of the Municipal Road Transport Controller with whom the Zone Controller will have contact. Municipality Organization within the municipal emergency government, there must be a service capable in an emergency of coordinating and directing the road transport resources in the municipality for local tasks and assisting such operations as transportation of patients and evacuees, movement of essential supply items, and provision of transport required by Zones; the following is a suggested organization for a Municipal Emergency Road Transportation Service. 0 180 MUNICIPAL CONTROLLER OF ROAD TRANSPORT DEPUTY ROAD TRANSPORT OFFICER COORDINATOR OF ROAD TRANSPORT 0 Passenger Car Section Local Bus Section Section OFFICER Section OFFICER Assistant OFFICER(S) Assistant OFFICER(S) Local Trucks Section Logistics Section (Fuel, parts, repairs, etc. Section OFFICER Section OFFICER Assistant OFFICER(S) Assistant OFFICER(S) . This organization can be adapted to any local government according to the location, population and emergency tasks required, by increasing, decreasing or combining sections. For instance, if passenger cars are to be used extensively, the appropriate section could be augmented. In a local area of limited road transport resources, the sections would be combined accordingly. In some cases the logistics section might be placed under co-ordination. Additionally, peacetime transport administrative components may be adapted to these functions. . The transportation service must be capable of operation at short notice under either the emergency plan of the local government and/or the policies and regulations of the RTCO as authorized by the War Measures Act when so required. If the municipal government decides upon emergency action prior to the National Alert, the Municipal Emergency Road Transportation Service of the Municipality will participate solely as a municipal agency. Upon the National Alert and the declaration of the War Measures Act, the same Road Transportation Service will become part of the RTCO with full support through Zone HQ. It will however continue to provide transport within the municipal plan. Functions The main functions of the Municipal Emergency Road Transportation Service will be: to establish control of all road transport resources to the extent needed to meet the emergency; . to give information and advice on road transport matters to the municipal government; 0 . to provide road transport for all emergency tasks; 181 • to maintain a record of road transport within the municipality to enable the government to be aware of the capability; • to submit situation reports as required by the municipal government or Zone HQ; • to carry out the general direction of the municipal Government HQ and/or the technical direction of the Zone Road Transport Controller as required; • to coordinate all modes of transport required in the municipality for emergency use; and • to forecast and procure fuel and maintenance requirements. Planning Factors The following basic factors will apply to Rad Transport planning for municipalities: • Control - All road transport facilities in Canada, with the exception of those operated by or for the Canadian Forces, will be subject to the direction of the Controller Road Transport, under the authority of the General Transport Controller; • Road Transport Facilities - Within the meaning of emergency regulations, road transport facilities include cars, motor trucks including dump trucks, tractor trailers, buses and taxi- cabs, designed for the prime purpose of carrying persons or materials on roads and highways, and all property and equipment directly connected with the operation of such vehicles. NOT included are farm tractors, bulldozers, earth movers, mobile cranes and other special heavy equipment. New and used vehicle stocks held by manufacturers and dealers will be the responàibility of the National Emergency Agency (NEA) until issued to users; • Public Utility Vehicles - Vehicles operated by utility companies for the emergency maintenance of hydro, telephone, gas, water, sewage, etc., and for the distribution of essential mail will not normally be directed to other use. • Road Transport Industry - The industry, both for hire and private, will continue to operate its own equipment under the emergency regulations issued by the Controller Road Transport with the authority of the General Transport Controller. Government control will be exercised only to the degree necessary by the nature and severity of the emergency; 182 • Vehicles in Support of Industries - The priorities assigned by the National Emergency Agency (NEA) to the various types of industries throughout the country will, in general, be applied by the RTCO for the use of essential affiliated road transport; • Private Automobiles - The use of motor cars for personal reasons will depend for the most part upon the availability of fuel, parts and maintenance. Instructions by RTCO and NEA in this regard, will offer most of the control needed on non-essential use of cars; • Priorities - The priority use of vehicles will be established by the type of service to be performed. Top priority will be given to the support of survival operations; • Peacetime Allocation - Wherever possible, prior allocation of vehicles will be made for activities which will take place during the initial phase of an emergency and which can be identified and forecast in peacetime; • Shipping Procedures - It is not intended that the Road Transport Control Organization become a national dispatch service. Controls and priorities for the shipping of food stuffs, materials and manpower will be made known to shippers and carriers at the outbreak of a nuclear emergency or before. Within these controls and priorities shippers will continue to arrange transportation service direct with the carriers. • Local Road Transport Requirements - Local authorities will use local road transport as necessary, subject to policy and priorities from zone or region, as well as commitments made in peacetime planning. The use of intercity transport for local emergency needs will be arranged through Zone or direct with adjacent intercity terminals; • Personnel - Intercity personnel, drivers and management, will remain in their employment in accordance with the Canada Emergency Manpower Service regulations. Arrange- ments for drivers and management of local transport will be made with the nearest Canada Employment Centre. • • • 'MUNICIPAL EMERGENCY TRANSPORTATION SERVICE REGION REGIONAL CONTROLLER, ROAD TRANSPORT ZONE CONTROLLER, ROAD TRANSPORT ZONE CONTROLLER, ROAD TRANSPORT ZONE INTERCITY TRANSPORT OFFICE INTERCITY TRANSPORT OFFICE INTERCITY TRANSPORT OFFICE INTERCITY TRANSPORT OFFICEi MUNICIPALITY 1 MUNICIPAL CONTROLLER, MUNICIPAL CONTROLLER, MUNICIPAL CONTROLLER, MUNICIPAL CONTROLLER, ROAD TRANSPORT ROAD TRANSPORT ROAD TRANSPORT ROAD TRANSPORT 00 184 • 185 Chapter 25 0 MUNICIPAL EMERGENCY PUBLIC INFORMATION SERVICE General The aim of emergency public information is to ensure an informed public in peace and war. An essential part of municipal emergency preparations is a well-informed public, so that in an emergency individuals and families will know what to do for their own protection. Therefore, it is important that the public be given information about natur -al and man-made hazards and the precautionary measures that can be taken to ensure survival and lessen damage to property in emergencies. As long as the possibility of nuclear war exists, it should be stressed that survival is possible if sensible precautions are taken. The public should be kept informed of measures that have been taken for their protection and what self-help measures they can take themselves. The means by which the public would be informed in wartime must be planned in peacetime. Informing and educating the public about the necessity to plan ahead to meet the effects of all kinds of disasters is akin to taking out insurance: you hope you may never have to use it, but you would be unwise to be without it. It is essential to develop the capacity to provide information aimed at reducing casualties and maintaining morale in both peacetime and wartime emergencies. Federal Emergency Public Information Program (Peacetime) Principles When preparing a peacetime plan it is necessary to decide what information the public will need or expect. This information forms the content of the plan. The second step is to select the means by which the information will be delivered to the public. Content The content of the federal government's information plan can be summarized as follows: Self-help survival advice to meet the effects of many peacetime disasters; outline of the current threat of nuclear war; the effects which nuclear war would have on Canada and its people; federal government emergency plans and preparations; and sensible preparations individuals can make in peacetime to ensure survival in a nuclear war. 0 186 Means The following media have been selected as vehicles for dissemination of information: films and other audio-visua], presentations; booklets, brochures and fact sheets; newspapers and periodicals; television and radio; displays; public speakers. Within the general federal emergency public information program, each federal department is responsible for the public information aspects arising from its assigned emergency measures functions. In addition, Emergency Planning Canada provides public information concerning the specific responsibilities it has been given. PROVINCIAL EMERGENCY PUBLIC INFORMATION PROGRAM (PEACETIME) The provincial emergency public information program comprises two elements: distributing printed information to municipalities and informing them and the public of provincial emergency arrangements, parti- cularly those portions of the provincial plans needed for citizens to plan for their own survival (e.g. provincial survival planning guide for schools, industry, agriculture, health, welfare, etc.); distributing information aids made available by the federal government (such as films, slide-tape presentations, brochures). MUNICIPAL EMERGENCY PUBLIC INFORMATION PROGRAM (PEACETIME) Municipal information plans should be developed in concert with provincial plans. A review of municipal emergency plans to identify those details the public need to know in order to plan for themselves and respond effectively to assist the community, is the first step. This forms the basic content of the municipal plan. For example, residents of a community must be told the following: warning signals and their meaning; the emergency school plan for students (must be understood by both parents and students); what action to take in an emergency with water, power and gas ^ services; 187 . fire prevention and fire fighting methods; 0 . details of dispersal routes and traffic control; . details of the reception plan for evacuees; . what training courses are available and how to enrol. These and other aspects should be made available to the public. It is recognized that the degree of emphasis on various portions of the plan will vary from municipality to municipality. The means of disseminating information will depend, in part, upon the number of public information media available within the community. The principle to be followed is to carry out dissemination by all available media. In a small community this could mean a weekly newspaper, whereas in a large city several radio and television stations and two or more newspapers could be involved. In any community, use can be made of municipal notice boards, pamphlets, leaflets, telephone directories, displays and public speakers. Municipal OrganizaLion The Civil Emergency Executive (or Control) Committee and the Civil Emergency Planning Committee, will be the main sources of input into the information plan. Besides generating the information the public requires for personal planning, such committees will prepare news items for the media. Every municipality should have an emergency public information service, res- ponsible for gathering, processing and disseminating emergency public information in peace and war. The municipal emergency public information officer should be a member of the Civil Emergency Planning Committee, and should work closely with both the municipal co-ordinator and council head. The responsibilities of the municipalities of the municipal public information officer in emergency planning should include: advising the head of government, municipal officials and the co- ordinator on emergency public information matters; at the head of government's direction, drafting the annual emergency public information plan and executing the plan; co-ordinating the emergency public information activities of all municipal departments with survival planning responsibilities; co-ordinating the municipal emergency public information plan with the provincial plan; developing and maintaining the head of government's operational (wartime) emergency public information plan; and facilitating a flow of news about emergency measures to the public by assisting information media representatives. 0 188 Municipalities without a full-time public information officer should appoint well-qualified volunteers to carry out the emergency public information function. Depending on the size of the community, these volunteers may be drawn from information officers in the private sector or members of the public information media. In a small community, the head of the emergency public information service might be the editor or a senior member of the staff of the community's weekly newspaper. Character of the Peacetime Information Plan The peacetime information plan should develop awareness on the part of the public of the importance of the municipal emergency plan and actions which must be taken to provide adequate protection for themselves and their families. The information should be accurate, factual, and matter-of-fact. EMERGENCY PUBLIC INFORMATION PLAN (WARTIME) General During a period of deteriorating international relations and subsequent threat of nuclear attack, Canadianswill be informed by means of radio, TV and the written word about: Warning systems: what the sounds mean. . Where and how to take shelter, why it is important to remain there and what to take, including the importance of a battery-powered portable radio. The significance of radioactive fallout, and steps to take to reduce its effects. Information will be given in calm, reassuring tones, stressing that survival is possible, that the government has made arrangements to communicate with citizens before, during and after any attack, that even if part of Canada is isolated from another, properly constituted government will continue. People will be encouraged to listen to the radio for advice and information. Federal Wartime Emergency Public Information Service The federal emergéncy plan includes the formation of a special service to provide public information in wartime. This organization will be known as the Emergency Public Information Service (EPIS). At federal and regional emergency government facilities, representatives from Canada news agencies or media and the Canadian Broadcasting Corporation (CBC), will work with a small staff of federal EPIS officers. Instructions and advice to the public will be broadcast from protected sites. Municipal Wartime Emergency Public Information Service Under the plan for emergency broadcasting, in the initial stages all radio and television stations will operate as part of a national or regional network. • 189 Therefore, municipal planning for EPIS should emphasize provision of public information in printed form. It is anticipated that control of broadcasting • will be decentralized to some extent in the post-attack and recovery period. The head of the emergency public information service should be located at the municipal emergency headquarters to advise the head of local government. Space and facilities within the municipal emergency headquarters for representatives of newspapers serving the community may also be required. Communications from the headquarters to publishing and broadcast locations should be considered. Scheduled and special briefings by the operations staff, interviews with the head of government and elected representatives, and situation reports, would provide the main sources of information. These should be arranged by the municipal EPIS officer. Municipalities that may be in likely target areas should include in their plans the establishment of alternative communications to information outlets outside the likely target areas which could be used should plants within these areas be severely damaged or destroyed. To accomplish this the municipal EPIS plan should be co-ordinated with plans developed for an emergency by publishers and broadcasters not only within the community but in the outlying districts surrounding the likely target areas. 190 9 0 191 Chapter 26 MUNICIPAL RADIOLOGICAL DEFENCE SERVICE General While the term radiological defence commonly embraces all active and passive measures designed to reduce the effects of radioactive fallout, this Chapter is limited to the establishment of an effective area monitoring system capable of: • providing the basic information required for the guidance of the population under fallout conditions; • planning decontamination measures; and • the provision of monitoring resources for essential services. Responsibilities The Canadian Forces - The Canadian Forces are charged with the responsibility for warning the public of nuclear attack and radioactive fallout. To do this the Forces established the Canadian Forces Warning and Reporting System (CFWRS). The CFWRS is capable of providing only a limited picture of the fallout hazard because the monitoring posts, which are necessary to perform the service, are too far apart geographically to provide the detailed information which local authorities require to meet their responsibilities. Civil - One of the provincial and municipal responsibilities is to plan and administer emergency measures for public safety, which may involve imPosing restrictions on the movement of citizens while fallout conditions prevail. Consequently the radiological defence system (RADEF) has been planned to • enable communities to obtain the special information required to provide advice and instructions to the people and to continue effective emergency government operations. Functions Although RADEF is primarily a municipal service designed to provide specialized information about the radiological hazard to enable local authorities to impose the required restrictions on activities within the community, it is essential that there be some radiological staff at ZEGHQ and REGHQ for higher control. . Region - The REGHQ will have a radiological defence staff in the joint civil/military survival operations section. The REGHQ will be interested in a very general picture of the radio- logical hazard within the province. Its main source of radiological information will be its ZEGHQ or District HQs and the Provincial Warning Centre (PWC). • Zone - ZEGHQs and Districts will be concerned with gle the limitations 192 of activities required within the areas between municipalities and will have to make special arrangements to have such areas monitored using their own resources. Just how this will be done will depend largely on how the province concerned has delegated its responsibilities within the zones or districts; e.g., Ontario's basic unit is the county whereas in British Columbia the basic unit is the municipality. Organization . Basic Elements - RADEF organizations consist of three elements: . Monitoring Stations - Monitoring stations will be established at selected locations throughout the municipality where radiation readings will give an indication of the general fallout pattern. The stations should wherever possible; have a fallout protection factor (PF) of 100 but if this is not obtainable, the stations should be sited in the buildings with the best PF available. Monitoring stations will be equipped with portable RADIAC meters capable of measuring radiation in the general area and with dose recording instruments (dosimeters) for recording the amount of radiation to which the monitors have been exposed. . Emergency Services- These services are provided by those municipal employees who would be on duty during any emergency (police, fire, etc.). These persons will carry both RADIAC meters and dosimeters as they go about their duties. . Radiological Staff - Each headquarters will require a radio- iogical staff, the size of which will vary with the nature of the headquarters and the amount of information to be handled. The principal staff member is the Radiological Adviser or the Radiological Defence Officer whose responsibility it is to plan, organize, and train RADEF personnel and to direct the operations of the RADEF Section during an emergency. He is also the radiological defence advisor at his level of government and is responsible for interpreting the information gathered by the monitoring stations. To help him he will need personnel to carry out the following functions: • receive and plot information from monitors; . analyze information received; and • forward this information to higher levels of government (ZEGHQ or REGHQ). • Density and Siting of Monitoring Stations - The number of monitoring stations in a community is based on both population and land area. For most communities the following table provides a reasonable figure 193 for estimating the number of stations: 0 Population No. of Monitoring Stations Less than 500 See Note 1 500 - 1000 3 1000 - 2500 4 2500 - 50,000 4+ population = by 4,000 over 50,000 12 +.population by 10,000 Using these figures, a municipality embracing a population of 20,000 would require: 4 + 20000 - 9 posts and 18 monitors 4000 NOTE 1: In those cases where the population is less than 500 the distribution of the population will have an important bearing on the number of monitoring stations. Each small community will have to be considered 'separately to determine its particular requirements. Concept of Operations The primary purpose of monitoring is to determine the amount and location of fallout contamination to establish the effect it will have on opera- tions or instructions to the public within the municipality. General Principles - The following general principles apply to the development of the operational plan: it should not aim at collecting more radiological information than can be used. The tendency to gather unnecessary detail should be avoided; mobile monitors should not be used during the period when fallout i s descending; monitoring in an urban area produces different problems from monitoring in a rural area. The sys- tem should be designed to suit local conditions; and the municipal RADEF plan must be co-ordinated with the radiological officer at zone or provincial head- quarters to arrange methods by which each level of emergency government will help each other. Activation - In times of normal or relaxed international relations the monitoring station equipment will be stored under arrangements made by the municipal or provincial authority. During an emergency the equipment will be distributed according to established 0 procedures. 194 • Operations - RADEF in a municipality would operate as follows: • at the appropriate time monitoring stations will commence to monitor for radiation; • monitors may be required to carry out two functions: - measurement of the radiation intensity in the vicinity of their stations at pre-set intervals of time; and - after the radiation intensity has reached a relatively safe level for outside movement, measurement of the radiation intensity at specified locations over a pre-arranged route. • the information is passed to the radiological staff at MEGHQ where it is plotted and analyzed; • based upon the analysis, the radiological officer will advise the municipal authorities on the state of radiation throughout the municipality and recommend to them what precautionary measures should be put into effect. Measures may range from complete release of people from shelter where radiation is sufficiently low to a request for remedial evacuation of the population where it is unacceptably high; and • information would also be passed back to ZEGHQ and District HQs at pre-set times where it would be incorporated into emergency brôadcast instructions if required. • Transportation - Monitors should be provided with transportation to enable their routes to be covered in minimum time. In addition the driver may be usefully employed making any notes or minor calculations that are required. Provision should be made to have vehicles specially marked to facilitate movement during the emergency period. • -Communications - Monitoring stations will report to the MEGHQ by telephone. Radio back-up should be provided where possible. . Control Zones - Control of the population under conditions of fallout will be related to the measured intensity of the fallout and the potential dosage to individuals. It is anticipated that as soon as conditions permit a free zone will be established where people can move about at will. The remainder of the area affected by fallout will be known as a control zone in which the activity of individuals will be regulated according to the intensity of radiation in their locality. • 195 • Other Operations - After the survey is completed, monitors may be called • upon to provide monitoring assistance during decontamination operations or in support of other emergency measures. Equipment To reduce costs and simplify repair and maintenance the variety of radiation detection instruments has been kept to a minimum. The various types of instruments have been selected as the most reliable and suitable for the particular task in the RADEF system. . Types - The following types of instruments are included in the program: • Portable High-Range Gamma Survey Meter For use by the monitors in carrying out area radiation surveys; • Portable Low-range Gamma Survey Meter For use by the monitors in areas where the level of contamination is very low. It is also used as a contamination control instrument; . High and Low-range Self-reading Dosimeters For use wherever it is necessary for a person to keep a check on his own exposure during an operation, so he may take the necessary action to avoid exceeding the permissible limits; and • Dosimeter Charger Used to charge the self-reading dosimeters. 196 DECONTAMINATION MEASURES 0 General The purpose.of decontamination is to reduce contamination from radioactive fallout to an acceptable level with the least possible expenditure of labour and materials. Primarily decontamination will be undertaken to permit early reactivation of vital facilities. In general the principles of radiological decontamination are: . the nature of the surface to be decontaminated dictates the method to be used; . proceed from the easiest to the most difficult decontamination method; and . monitor frequently to test effectiveness of the method(s) used. Decontamination may be partial or complete. Partial decontamination involves the rapid, partial removal or covering of contamination to reduce the radiation dose rate as quickly as possible with reasonable safety. Complete decontam- ination may be accomplished subsequently to eliminate the radiation hazard'entire- 1y. The decision to undertake decontamination will be based on the relative importance of the contaminated areas or objects and on other considerations such as, manhours required, resources available, and alternative solutions. Priorities Vital areas, such as communication centres, emergency government facilities, essential public utilities, hospitals and equipment should receive priority for decontamination. Personnel decontamination should be initiated promptly. It should be possible to defer the decontamination of such items as agricultural land, non-essential vehicles and equipment'until later in the recovery phase. Methods of Decontamination The method of decontamination employed will depend on a variety of factors such as the extent of contamination, the type of surface contaminated, and the availability of decontamination personnel, materials, and equipment. The details of methods for decontaminating personnel, clothing, food, agricul- tural land, water, vehicles, vital areas and structures should be obtained from assigned,specialists in those fields. Provision of Manpower for Decontamination In a post-attack situation, trained teams from local government services, industry, public utilities will have responsibility for carrying out de- contamination operations. Substantial assistance may be provided by other emergency services such as fire departments and local construction companies. ^ Responsibility for the execution of decontamination operations should be given to the engineering department of the local government. 197 0 Each community should have a decontamination specialist who would be respon- sible for planning and implementing decontamination operations. Preferably he should be an engineer, such as a city engineer, public works engineer or other technically qualified person having some administrative experience. The decontamination specialist must be supported by decontamination workers such as firemen, sanitation and construction workers and by radiological monitors. These potential workers should be given brief orientation on weapons effects, fallout distribution, radiation hazards and general protection methods. Decontamination Plans Communities should be encouraged to prepare decontamination plans which will form part of the overall civil emergency plan. The plan should: select a decontamination specialist. List vital areas that would have to be operated under fallout conditions and plan the resources needed to keep them operable; . estimate resources required to carry out decontamination of personnel, streets, structures, essential utilities and equipment; . estimate manpower required and relate this to potential sources within the municipality; and plan a training program for potential decontamination workers. 0 198 SPECIAL MONITORING REQUIREMENTS General In addition to the monitoring capability required for the RADEF system there will be an urgent need for large numbers of trained monitors to work both within the contaminated area on low level survey work and out- side the contaminàted area on contamination control. The purpose of this annex is to indicate in a general way the monitoring resources which may be available to a municipality and how they might be employed. Monitoring Resources Following the explosion of a nuclear weapon RADEF monitors in the pre- dicted fallout zone will be required to carry out their normal duties in determining the intensity and extent of the radioactive contamination. These duties will engage most of the RADEF monitors for varying periods of time from days to weeks. There will be progressively more and more monitors and instruments released from RADEF monitoring as time goes by. The monitors so released will form a pool of trained staff available for any other monitoring duties as directed by the local radiological officer, provided that their total radiation exposure is within acceptable limits. Monitoring staff may also be directed by zone or district headquarters from municipalities outside the fallout area to work in critical or priority locations. It will probably be zone or district headquarters res- ponsibility to ensure that such resources are used as economically as possible, and that arrangements are made to release these monitors to their own communities if it appeared that they were threatened by fallout. Contamination control of evacuees moving from a fallout area to free areas will be the responsibility of those municipalities who by virtue of their location will not have to deal with fallout. Monitoring of all food stocks is the responsibility of the provincial departments of agriculture. These authorities are responsible for pro- viding whatever instrumentation and staff is required to determine the wholesomeness of food produced for human consumption. Provincial health departments are responsible for the safety of drinking water supplies. • 199 Chapter 27 MUNICIPAL RESCUE SERVICE Introduction Rescue is the emergency activity concerned with: • extrication of people trapped in vehicles, buildings, etc.; • provision of initial first aid to casualties; and . aiding, carrying or directing • injured people to medical attention, • other survivors to emergency aid. The blast and heat effects of nuclear weapons detonated on urban targets will cause widespread damage to structures, resulting in large numbers of casualties and trapped persons. Radioactive fallout is expected to result in high rad- iation levels over portions of these damaged areas, causing additional casualties and limiting access by rescue forces for many hours, particularly near and downwind of ground zero. General Concepts Although it is virtually impossible to forecast accurately the nature and scale of an enemy attack, and very difficult to visualize a rescue operation of the magnitude which might result, some basic concepts have been developed by studying past experience in conventional wars and relating these to projected scales of damage from present-day nuclear weapons. . It is appropriate to consider the worst case and assume that the number of casualties and trapped persons needing rescue will be very great in relation to the capability of rescue forces to deal with them; • It can be anticipated that persons who are trapped will attempt to free themselves and that untrapped survivors will go to their aid. Even in the fallout area, some self-help activity of this type may be possible in the short period before fallout forces people into shelters; • A concentrated effort to rescue trapped persons during the first few hours after attack will yield greater dividends in lives saved than any effort made later; • Although this action would seem to indicate the desirability of having a well-trained rescue force-in-being, the sheer magnitude of the potential problem precludes such action. No city could maintain a standing force capable of handling • the potential rescue workload; 200 . When large numbers of people require rescue and r resources are heavily taxed, the greatest dividend ► will be obtained from concentrating available forces on light rescue:* . Much of the actual work associated with light rescue operations requires little skill or training, e.g., carrying stretchers, assisting ambulatory casualties, moving light rubble, etc. By using trained rescuers only in supervisory and skilled rescue roles, it is possible to add large numbers of untrained workers to a trained nucleus and, thereby, rapidly expand an existing rescue capability; . In most cases, a great deal of assistance, perhaps even the larger portion of the rescue force, will have to be brought in from surrounding communities if our major urban centres are attacked. From the above, it can be deduced that: there must be a rescue capability in every municipality; and organizational and planning emphasis should be placed upon the development of a hard- core nucleus of trained rescuers which can provide a framework to which large numbers of volunteers can be added in an emergency. * Footnotes - The term "light rescue" might be applied to rescue which can be done by people within a damaged community using readily available equipment such as ropes, ladders, crowbars, stretchers and blankets. Studies of World War II rescue operations in the United Kingdom indicate that the effort required to effect a rescue varied from two manhours per "light rescue" to 20-40 manhours per "heavy rescue" where "light rescue" was defined as a rescue requiring movement by hand of a small amount of debris and "heavy rescue" as one requiring movement of large amounts of debris and use of specialized techniques such as debris tunnelling. • 201 Two other planning principles, which apply to civil emergency planning in general, also affect the approach taken to rescue planning: • that emergency services should be extensions of existing government services; and • that plans should make use of existing resources for emergency purposes, rather than providing and stockpiling, in peacetime, specialized items of equipment. Responsibility In 1969, the provinces agreed to accept responsibility for the conduct of lifesaving (rescue) operations in damaged areas. Generally, provinces should provide planning guidance and assist with training, but the rescue operations themselves would be controlled and conducted at the municipal level. The Canadian Forces, if available, would be employed in support of civilian authories, assuming the control function only when requested to do so. Organization Although the Zone Emergency Headquarters (ZEGHQ) may have to co-ordinate its municipalities, operational commitments to lifesaving requirements, oper- ational control of rescue operations will be executed at the municipal level. No rescue function as such exists at the ZEGHQ or above. The rescue organization should be based upon an existing municipal agency. Usually, rescue is performed by the fire or police department in normal times but, in view of the heavy workload which they would face in an attack situation, it is preferable to assign the wartime rescue task to another agency. For example, the local agency concerned with public works might be chosen, as it probably has the types of equipment and skilled workers which are required. The essential organizational elements of a local rescue service are: • a Rescue Chief or Director, to be responsible for organization and training in peacetime and to act as service chief and specialist adviser in the Municipal Emergency Government Headquarters (MEGHQ) during operations; • 8-man Rescue Teams, each composed of a Leader, Deputy- Leader and six rescuers, as the basic operating unit; • depending upon the organization of the parent service (e.g., public works department) and how the municipality • is subdivided (or grouped) for wartime operations, such 202 additional personnel as may be required to: • co-ordinate field operations of groups of Rescue Teams (e.g., Rescue Company Leaders); and • staff headquarters subordinate to the MEGHQ (e.g., Sector Rescue Chief). Concepts of Operations The lifesaving operation might be expected to develop along the following lines: . during peacetime, the development of a trained nucleus rescue organization based upon one of the regular municipal departments, with plans for its augmentation during a crisis period or following an attack; • during a crisis period short of actual war, acceleration of training, expansion of the nucleus organization and allocation of equipment, transport, etc., to increase capability and improve the ability to respond rapidly in the event of an attack; . following an attack, (lifesaving operations): • possible self-help activities by survivors, until arrival of fallout forces them to go to shelter; • reconnaissance by RADEF after fallout deposition to ascertain where rescue operations are possible and to determine the radiation hazard; • deployment of rescue units and other emergency services such as fire, engineers, etc. MEGHQ directs operational priorities and provides guidance regarding radiation doses (probable and permissable); • rescue commences upwind and crosswind of ground zero. Initial concentration of effort is on rescue of lightly trapped and "surface casualties", particularly in those areas threatened by fire. Rescuers direct injured to Casualty Collecting Posts (CCPs) established by Emergency Health Services (EHS). Evacuation of casualties and homeless commences; • rescue units are augmented by general manpower assigned by the MEGHQ and by survivors from the area of operations; • 203 0 . further augmentation of the rescue force and other services operating in the damaged area occurs, as units and manpower arrive from surrounding communities. ZEGHQ co- ordinates the inward flow of help and the outward flow of casualties and other evacuees; . the rescue operation gradually converges on the ground zero area, and eventually works around into the downwind area, as fires are extinguished, rescue efforts increase and radiation levels subside; and . as the requirement for light rescue decreases, some selected heavy rescue operations may be undertaken with assistance of the engineer service and their heavy equipment. As the Lifesaving task ends, the rescue forces may be redirected into salvage operations, to reclaim essential supplies and facilities. Training Members of rescue teams (the "nucleus" units) will require two units of training: basic rescue training, i.e., light rescue techniques; and basic first aid training, i.e., a standard St. John Ambulance or Red Cross first aid course. An outline of the basic rescue skills training required follows. I* 204 BASIC RESCUE TRAINING In addition to standard first aid training, each member of the rescue team should be taught: • the role of rescue within the local emergency plan and its relationship to the zone, provincial and national emergency plans; • the organization of the local rescue organization and the framework within which it will operate; • the types of knots used in rescue; • casualty handling, including: • general care; • blanketing, loading, lifting, and carrying a litter; • lashing a litter and use of litter sling; and • emergency lift methods. . location and removal of: • surface casualties; • lightly-trapped persons. . use, care and maintenance of roof and extension ladders in rescue operations; • methods of entering' damaged buildings; and • basement rescue methods • 205 0 BASIC RESCUE EQUIPMENT 8-man Team Scalé A= Personal (one set per man) Helmet Coveralls Gloves Flashlight Water bottle Knife No. 8 sashcord (15') Paper Pencil Individual First Aid Kit' Scale B - Rescue Team Stores (one set per team) Extension ladder * - 32' Roof ladder * - 15' (hooks) Litters (3) Blankets (6) Rope - 40' x Z" (12 lengths) Hardwood - 3' x 2" x 2" (2 lengths) Steel pickets - 30" x 1" Wrecking bars (2) Handsaw (crosscut) Sledge hammer Claw hammer Webbing bands (1 set of 4) Butcher twine (roll) First aid kit (2) Fire axe Packboard (2) Groundsheet (2) 0 * For peacetime training purposes, ladders must meet Workmens' Compensation Board (WCB) specifications. r i 206 • • 207 Chapter 28 9 THE ORGANIZATION OF EMERGENCY AIR SERVICES General The federal Department of Transport regulates the operation of all types of non-military aircraft. This chapter refers solely to the utilization of privately-owned aircraft and not to any type of aircraft operated for commercial purposes. During war emergencies all non-military aircraft would be subject to some form of federal control. However, the Department of Transport has indicated that providing private pilots were registered as part of a provincial organization for civil defence purposes, they would be able to particpate in emergency duties related to provincial responsibilities, subject of course to the general control which would be exercised by the federal government. Departmental Controls The federal Department of Transport maintains complete control over all aspects of civil aircraft operations. This control includes: the licensing of pilots and other persons concerned in the operation of aircraft; . the registration, identification, inspection, certification and licensing of all aircraft; the licensing, inspection.and régulation of all aerodromes; o the conditions under which aircraft may be used and operated; . the conditions under which goods, mail and passengers may be transported in aircraft; . the areas over which the aircraft may operate; . aerial routes, their use and control; and . the institution and enforcement of such laws, rules and regulations required for the safe operation of aircraft within Canada or its territorial waters. Air Service Tasks in an Emergency Having regard to the advantages and limitations of private aircraft, the most suitable emergency tasks for them would seem to be: . intercommunications, for carrying individual key personnel or urgent messages between points, especially across areas contaminated by radioactivity, or when other means of communications are disrupted; 0 208 . patrolling of important utility lines; • assistance to traffic control, in which the pilot could either be specially trained or fly a Traffic Control Officer; • transportation, using small multi-seat aircraft for small quantities of essential stores and small parties of personnel; and • reconnaissance, designed to assess damage, state of communications. or fire situations.' Organization The formation of an Air Service for Civil Defence may be initiated by provinces to complement existing services for civil defence purposes. The organization, control and operation of such a service will be the responsibility of the provinces and/or municipalities. The Air Service for Civil Defence is to be considered a volunteer service. Its function will be to carry out flying tasks, other than "Search and Rescue" to aid provincial and local authorities at the time of an emergency. Civilian air support to organizations for civil defence purposes will be organized and operated in the same manner as other services already organized for civil defence; that is, recruitment, training, organization, operation and administration should conform to the organization for civil defence within each province. Recruitment of flying personnel should be through the medium of recognized flying clubs and associations who will be responsible for ensuring that no person is accepted for enrolment as a volunteer pilot for civil defence unless he is properly qualified in accordance with Department of Transport Regulations. In addition, no pilot can be accepted as a volunteer pilot unless he can show evidence of having insurance covering third party liability and property damage. The amount of such insurance should be established by the provincial authority for civil defence. Coordination with Provincial EMO/CD Provincial Coordinators for Civil Defence/Emergency Measures may form an Advisory Committee, representative of the participating sections of the province and flying associations, to advise on all aspects of the service. Provinces may also wish to consider the appointment of a Chief of Air Services. Such a person should have current or past experience in the supervision of civil flying operations. The Operations Manager of a small flying organization or the manager or Chief Flying Instructor of a flying club or school are good examples of the type of person con- sidered to be suitable for this position. Provincial authorities will be responsible for designating zones or areas to which flying clubs will be affiliated for purposes of training, operation and administration. • 209 The pilot in command of each aircraft will be responsible for flight safety precautions necessary during flights conducted in the performance • of training for civil defence purposes. In all cases, training involving flying will be conducted in accordance with the rules and regulations as laid down by the Department of Transport. Training Provincial authorities will be responsible for the general civil defence training of all members of the Air Service within the framework of the provincial organization. Exercises or training involving flying must be approved initially by the provincial coordinator. 210 • • 211 Chapter 29 MUNICIPAL EMERGENCY PERSONNEL SERVICE General National Emergency Manpower Regulations will come into being when the War Measures Act is put into effect. The Canada Emergency Manpower Service (CEMS) of the Canada Employment and Immigration Commission will then mobilize and allocate manpower at the municipal level. To asist the CEMS and to handle personnel problems in peacetime, it is suggested that each municipality, or group of municipalities, organize a Municipal Emergency Personnel Service. Many of the larger municipalities already have a personnel staff and this staff would be the natural nucleus for the emergency service. Smaller localities which lack a peacetime personnel section would recruit trained persons from local businesses. Functions Pre-Attack Phase: During this phase the Municipal Emergency Personnel Service will assist the Municipal Planning Committee and assume the following duties: . maintain personnel records for employees recruited by each of the Emergency Services; . assist the services, if required, in their selection of personnel; . conduct orientation courses for personnel not yet assigned to a Service; • determine the needs of all services for extra manpower in time of emergency; and . ensure that the services do not recruit on their own. After the War Measures Act has been promulgated, and the National Emergency Manpower Regulations are invoked, the Municipal Emergency Personnel Service will: . inform the Canada Emergency Manpower Service (the local Canada Employment Centre) of the state of COMMITTED manpower within the municipality; • assist all municipal emergency services to requisition needed manpower from the CEMS; and . maintain close liaison with the CEMS. • 212 Organization 0 The size of the Personnel Service will depend on the size of the municipality. The following staff is suggested: . Municipal Emergency Personnel Officer - He will be a member of the Municipal Planning Committee during the pre-attack phase and a member of the Municipal Emergency Government when it is formed. He will act as Chief of his Service; Assistant Personnel Officer - He will act for his Chief when required; will be responsible for administering the service; and will assist in writing the Personnel Plan; and . Personnel Clerks - The number of clerks will depend on the size of the service. Their duties will include keeping personnel records, completing manpower requisitions and other clerical duties, as required. It is suggested that this type of personnel service would be useful in planning for peacetime as well as wartime emergencies. It would be part- icularly effective where a number of municipalities are grouped together under a single dmergency government. In peacetime, in places where a Canada Employment Centre éxists, the manager of the CEC should be invited to assist in developing plans. By doing this he will be in a good position to know the likely needs of the municipality before an emergency occurs. 0 213 Chapter 30 MUNICIPAL ESSENTIAL RECORDS Introduction The purpose of this chapter is to describe a system for the preservation of municipal records which would be required during the period of a war emergency by municipal emergency government headquarters and services. Such reports will assist them in effectively carrying out survival operations, during the immediate post-attack operations and subsequently to rehabilitate the comm- unity during the recovery phase. (See Guide to the Preservation of Essential Records - Document EPC 12/79) Categories Municipal records can be divided into three categories and the content of each is outlined in the following paragraphs. Category One: Operating records absolutely essential to the basic emergency function of the municipal government for the duration of the shock phase; for example: . The Provincial Operational Plan; . The Zone Operational Plan; and The Municipal Operational or Disaster Plan, which should contain the functions, plans and programs of all departments with emergency roles. Important parts of the municipal plan would be: . emergency legislation; . lists of key personnel and delegation of authority; . lists and/or master drawings, maps and charts showing locations and other essential information on emergancy facilities such as underground and surface public utilities, roads, bridges, etc.; . lists of key equipment and supplies (including specifications and operating instructions where applicable) such as fire apparatus, communications equipment, rescue equipment, heavy machinery, medical equipment and supplies, food and clothing stocks, etc.; hospital disaster plans; . lists of hospitals and their bed capacities ; . welfare plans ; and . shelter survey information including protection factors and capacity of private homes and larger buildings . lists of category two and three records and their location Category Two: Records required to restore municipal government and service operations to normal during the recovery phase. These would be: 0 . information on administration, procedure manuals, local 214 legistlation, by-laws, provincial legislation relating to local administration; • operational records required to carry on the normal business of municipal departments, minutes of Council, financial records; • technical and research records such as survey data, patents, maps and plans or charts of an important and irreplaceble nature. Category Three: Records essential to the preservation of the legal rights of the local administration and individual citizens. These would include: • agreements between governments other than those relating to an emergency, social security, superannuation, annuity, insurance, tax and similar records of financial operations of the local administration; records of municipally-owned property; and • personnel records including personal history cards, pay records, etc. Identification of Essential Records The key to identifying records of the Category One group is that only records necessary to the conduct of survival operations during and immediately following an attack are involved. Some of what most municipal employees do from day to day in peacetime would not be done in a war emergency. Therefore a careful study must be made of the actual tasks to be performed by municipal services under emergency conditions and a listing made of the records needed or to be created for this purpose. Care must be taken not to overlook the need to have essential information recorded which key individuals, particularly in smaller communities, often carry around in their heads, e.g. sources of heavy earth moving equipments, contact points and telephone listings, etc. The slight risk of random detonations in communities outside of the more likely target areas does not justify consideration of a program to protect records against the possibility of destruction from the direct weapon effects of blast and fire beyond the everyday care and maintenance programs. It is not expected that Categories Two and Three essential records would be required in the emergency government headquarters until the recovery phase. At this time it is presumed that the level of radiation would permit enough freedom of movement to use them in their peacetime location or move them elsewhere if necessary. Such records need not be removed from their ordinary files, but should be "flagged" and listed on a reference index. The consider- ation here is that someone unfamiliar with the details of administration may have to carry out this function. • 215 Most municipal emergency government headquarters would be in a protected area within the peacetime building location or complex of buildings. Wherever the location may be, Category One essential records must be readily at hand in the form in which they would be used during an emergency. They should be separated into those required by the municipal executive body, the operations room and individual heads of services such as police, fire, engineer, radiological defence, welfare, health, transportation, etc. Maximum use should be made of maps and charts to concentrate in single usable documents essential information which would ordinarily be found in peacetime in many files and complex card record systems. It is important that Category One essential records kept in the emergency headquarters be amended and kept up to date and the responsibility for and scheduling of this task must be fixed at the outset of the program. Safe Storage of Essential Records - Likely Target Areas Category One Essential Records of necessity must be arranged for MEGHQs in likely target areas. To ensure protection and security of Categories Two and Three essential records arrangements should be made in peacetime for safe storage outside the target area. Exercises Every opportunity should be taken during municipal exercises to examine and test the adequacy of the essential records program. Deficiencies should be reported promptly and rectified by the authority responsible. NOTE: Further discussion of an essential records program can be found in Document EPC 12/79 "Guide to the Preservation of Essential Records". or 216 • O 217 Chapter 31 • MUNICIPAL STATE OF READINESS CHECKLIST Warning Are arrangements ready for the dissemination of warning by telephone fanout or otherwise to all key elected officials, departmental heads and municipal employees? Have responsible officers been assigned to 24-hour duty to implement municipal plans on receipt of warning or orders to do so from provincial authorities? In the event that the crisis persists has a duty officer roster been prepared to continue the state of readiness mentioned above? Are the sirens or other local methods for alerting the public on receipt of warning operative and in a state of readiness? Has the public been advised what action it should take when the Attack Warning is sounded? Municipal Government Plans Has the municipal council been briefed on the situation and state of readiness of municipal plans? Have key elected officials and departmental officers been directed not to leave the community during the period of the crisis? Is the municipal emergency government headquarters manned on a skeleton basis? Are the plans for full manning of emergency government headquarters up-to-date and known by all the officials and employees concerned? Are the plans for assembly of municipal emergency services ready and have volunteers and employees been informed? Is the emergency government headquarters administratively ready for operational use? If the emergency government headquarters does not have a protection factor of 100 are there prepared plans to • increase it to 100? 218 Are emergency communications available to maintain secure contact with area, zone and provincial headquarters? Are the emergency communications for essential services such as police, fire, engineer, etc., operational? Have the detailed plans for the following emergency services been reviewed and brought up to date? • Communications • Engineering • Fire • Health • Personnel • Police • Public Information • Radiological Defence • Rescue • Supply • Transportation • Welfare Public Survival Plans Are the plans and procedures ready to facilitate the movement of those who choose to leave the likely target areas? Has the public been informed of the details of the pre-attack voluntary evacuation plan? Have reception plans been reviewed? Has the public in reception communities been informed of the details of the reception plan? Have plans been prepared for the remedial evacuation of the community in the event of serious fallout conditions? • 219 0 Has a municipal fallout shelter survey been completed? Has the public been informed of the fallout protection available in larger buildings? Have schools and other institutions prepared plans for the safety of occupants and have parents and others concerned been informed? Public Information Plans Have arrangements been made to man the peacetime EMO offices full-time to meet the anticipated increase in public enquiries? Are local stocks of publications adequate? Has the availability of additional stocks of publications from provincial authorities been checked? If it is expected that the demand for information by the public cannot be otherwise met, have arrangements been made for: . local reproduction of publications by the newspapers? assistance if necessary by local radio and TV stations? Have visual presentations, maps, etc. been prepared for use on TV? Have arrangements been made to meet the increased need for addresses to public meetings, service clubs, schools, etc., on personal survival measures? Has provision been made for the head of local government or Chairman of the Control Committee to make an announcement to the public on local radio or TV or through the press on the status of municipal emergency plans? 40 220 • e • Part IV • 221 FEDERAL PUBLICATIONS EMERGENCY PLANNING CANADA Available to the Public . Emergency Planning Digest (Quarterly Publication) . Booklets: . Who We Are and What We Do . 11 Steps to Survival . Basic Rescue Skills . Basement Fallout Shelter . Self-Help Advice pamphlets: • Floods • Hurricanes • Earthquakes • Winter Storms: You and Your Car Available to Emergency Planners • Document EPC 2/81 - Planning Guidance in Relation to a Nuclear Attack on Canada in the 1980s • Document EPC 3/79 - Guidelines for Developing Departmental Policy Revised 1980 and Procedures for Dealing with Bomb Threats • Document EPC 9/78 - Civil Emergency Communications Operating Guide : Document EPC 10/79 - A Guide to Civil Emergency Planning for Revised 1981 Municipalities • Document EPC 11/79 - Nuclear Weapons Effects Reprinted 1980 • Document EPC 12/79 - Guide to the Preservation of Essential Records If you would like further information please contact Public Information, Emergency Planning Canada or any of the Emergency Planning Canada Regional Offices listed below. BRITISH COLUMBIA QUEBEC Room 378 Suite 802 Customs House 250 ouest, Grande Allée 816 Government House Quebec, Quebec Victoria, B.C. G1R 2H4 V8W 1W9 Area Code 418 - 694-3111 Area Code 604 - 388-3621 ALBERTA, YUKON & NORTHWEST NEW BRUNSWICK TERRITORIES ls"t Floor, Room 10A . 1100B Liberty Building Federal Building 10506 Jasper Avenue 633 Queen Street Edmonton, Alberta P.O.Box 534 Area Code 403 - 425-7006 Fredericton, N.B. E3B 5A6 Area Code 506 - 452-3020 222 SASKATCHEWAN NOVA SCOTIA 850 Avord Tower Lower Level 0 2002 Victoria Avenue Halifax Insurance Building Regina, Saskatchewan 5670 Spring Garden Road S4P OR7 Halifax, N.S. Area Code 306 - 569-5005 B3J 1H6 Area Code 902 - 426-2082 MANITOBA PRINCE EDWARD ISLAND 602 Commercial Bldg. Room 5, 2nd Floor 169 Pioneer Avenue Dominion Building Winnipeg, Manitoba Queen Street R3C OH2 Charlottetown, P.E.I. Area Code 204 - 949-3760 C1A 7M8 Area Code 902 - 894-4633 ONTARIO NEWFOUNDLAND Suite 900 Room 617 60 St. Clair Avenue East Sir Humphrey Gilbert Bldg. Toronto, Ontario Duckworth Street M4T lN5 St. John's, Newfoundland Area Code 416 - 966-6343 A1C 1G4 Area Code 709 - 737-5522 These publications may also be obtained by writing to Emergency Measures Organization in yourprovince. DEPARTMENT OF AGRICULTURE . Fallout on the Farm go 223 PUBLICATIONS _HEALTH AND WELFARE CANADA EMERGENCY SERVICES A variety of precis and publications in emergency health are available to health personnel and planners by writing to the Director of Emergency Health Services in your province or to: Director, Emergency Services, 370 Catherine St. -.3rd Floor Health and Welfare Canada, Ottawa, Ontario KlA OL3 Requests should detail the specific field of interest, e.g., hospital, public health, etc. so that appropriate publications may be forwarded. Available to the Public • Welfare Tips for Survival . Your Emergency Pack • Disasters Do Happen . Prepare Yourself Available to Emergency Planners • Emergency Lodging Manual • Emergency Feeding Manual . Registration & Enquiry Manual • Emergency Clothing in Operations . Handbook - Development of Community Emergency Welfare Services . Survival Planning for Welfare Institutions • The Day Care Centre - A Community Resource in Emergency • Guidebook - For Managers and Educators in the Emergency Welfare Services Program . Emergency Planning Manual for Special Care Facilities . Institution Feeding in Emergency . The Welfare Centre Kit in Operations . Prototype for a Municipal EWS Plan . Emergency Welfare Services Program 224 e • (I, Part V • Glossary of Terms The following is a glossary of terms used in civil emergency planning. Some of the ternis in this glossary are not used in this Guide to Civil Emergency Planning for Municipalities, but they are terms used in overall emergency planning. Where abbreviations for terms are in common use, they are shown in brackets after the term. Term Definition Absorption The means by which radiation is reduced as it passes through a medium Advanced Treatment Centre (ATC) A mobile medical centre positioned out- side the Green Line to give treatment and life-saving surgery to casualties whose lives can be saved. Advance Party A group of departmental personnel with emergency duties who will leave to man the departmental emergency facilities ahead of others in order to organize the depart- mental area and render it operational. Air Burst The explosion of a nuclear weapon at such a height that the fireball does not touch the surface of the earth. Air Defence A term embracing all measures designed to nullify or reduce the effectiveness of the attack of hostile aircraft or guided missiles after they are airborne. Attack Warning A warning issued on the authority of the Federal Government after an enemy attack has been detected and identified. The Attack Warning is disseminated by an undulating siren signal, three minutes or more in duration, and by simultaneous radio broadcast. The siren signal means that enemy attack on the North American continent has commenced and the public should turn on radios and listen for emergency instructions. All Clear A state which may be declared after con- sultation with provincial authorities, when any area is considered to be free from direct enemy attack for a period of one hour or more, provided that the area is not in danger from fallout. This state will be passed to the public by radio broadcast and other suitable means. The ALL CLEAR cancels the TAKE COVER WARNING, but does not cancel an ALERT WARNING. Term Definition Alpha Particle A relatively heavy positively charged particle emitted by some radioactive elements. It is unable to pénetrate unbroken skin but hazardous internally if the element is taken into the body. Atom The smallest particle of an element which still retains the properties of that element. Atomic Bomb (Or weapon) A term sometimes applied to a nuclear weapon utilizing fission only. Atomic Cloud An all-inclusive term for the mixture of hot gases, smoke, dust and other particu- late matters from the bomb itself and from the environment, which is carried aloft in conjunction with the rising ball of fire produced by the detonation of a nuclear weapon. Attack Period The time during which Canada or any part thereof is under nuclear attack, real or apprehended, and including deposition of fallout from nuclear detonations in the USA, ending with the commencement of rescue operations. Attenuation Reduction in intensity of radiation, blast and heat by passage through any medium. Auxiliary Kitchen A feeding establishment which in an emergency would prepare and cook food to be served in another location. Ballistic Missile Early A complex of high power radar stations Warning System (BMEWS) situated in northern North America, Greenland and the U.K., designed to give early warning of the approach of Ballistic Missiles from Europe or Asia. Base Surge A cloud which rolls outward from the bottom of the column produced by a sub-surface explosion. Beta Particle A relatively light negatively charged particle emitted by some radioactive elements, hazardous to the body both externally and internally. Biological Warfare (BW) The employment of living organisms, toxic biological products and plant growth regula- tors, to produce death or casualties in man, animals or plants. Blast Damage The damage caused to structures by the blast wave, usually classified as A, B, C or D type damage in descending order of severity. Term Definition Blast Loading The loàding (or force) on an object caused by the air blast from an explosion striking and flowing around the object; the combina- • tion of overpressure (or diffraction) and dynamic pressure (or drag) loading. Blast Wave à pressure pulse in air, accompanied by winds, produced by a nuclear explosion. Blood Services An emergency service activated to recruit blood donors and to collect, handle and ship whole blood to medical units. Bomb Debris The residue of a bomb after it has exploded. It includes the material used in its cons- truction and unexpended fissionable materials. Breakaway The onset of a condition in which the shock front (in air) moves away from the exterior of the expanding fireball. Burst A nuclear detonation. Calibration As applied to radiation detection instruments; the process of checking the accuracy of the instrument against a source of known radiation intensity and adjusting the instrument if necessary. Canadian Forces Warning and A system provided for the dissemination of Reporting System (CFWRS) warning of the likelihood and imminence of attack or radioactive fallout. Case Index Card A two-part card, with a one-time carbon, (Personal Services) which would be filled out for each individual or family requesting assistance, at a Welfare Centre following the Survival Period. Casualty An individual incapacitated through injury or death. Casualty Estimation The appraisal of the effect of an attack on the population. Casualty List A list of killed, injured and missing persons. Central Emergency Government Several structures providing emergency head- Facilities quarters from which an essential core of the federal government will operate in a war emergency. Chemical Warfare (CW) The use of any substance, solid, liquid or 410 gaseous to produce death or disability by toxic, blistering or irritating effects. Term Definition Civil Defence A function of government, and the activities of delegated agencies at all levels, dealing with plans, preparations and organizations for those emergency measures which are primarily related to the survival of the popu- lation during the period of an emergency which may arise from war or a peacetime disaster. Civil Emergency Planning Planning undertaken by government departments and delegated agencies at federal, provincial and municipal level for those emergency measures which are required for the survival of the population and the continuity of govern- ment during a period of emergency arising out of a war or peacetime disaster. Clothing Depot The site within a reception community where new and used clothing will be assembled, sorted, sized, bundled and forwarded to Welfare Centres for distribution. Clothing Issue Voucher A three-part form used to record the type and quantity of clothing issued to an evacuee. Collecting Team The total personnel required to bleed 400 donors in an eight-hour period, either in a Shadow Depot or in a temporary quarters set up in a well-populated site some distance from the Shadow Depot. Collecting Unit Three collecting teams make up a Collection Unit. Working around the clock each Unit will have the manpower and supplies to bleed 1200 donors in a twenty-four hour period. Committee A group of persons appointed for a special function by and usually out of a larger body. Congregate Facility A building other than a private dwelling used for lodging. Congregate Lodging The lodging of a large number of evacuees, usually a special group, in a congregate facility. Contamination The deposit of radioactive material, biological warfare agents or chemical warfare agents on and by structures, areas, personnel or objects. Term Definition Continuity of Government The maintenance of uninterrupted leadership or control by elected representatives and government officials before, during and after a nuclear emergency. Control Staff Personnel who represent other organizations not participating in the exercise, but from which realistic responses are necessary for the conduct of the exercise. Damage Assessment The appraisal of the effect of attack on targets. Damage Criteria Standards or measures used in estimating specific levels of damage. Decay The natural decrease in activity of any radioactive material with the passage of time. Decay Rate The rate at which a radioactive element breaks down by the emission of alpha or beta particles and usually accompanied by gamma rays. Decontamination The reduction or removal of radioactive material, and biological or chemical warfare agents from persons, areas or objects. Departmental Situation A report, issued at given intervals, to pro- Report (DEPREP) vide the REGHQ, JOC with sufficient data from which s SITREP from the region can be compiled. Diffraction As it refers to blast, the passage around and the envelopment of a structure by the blast wave. Directing Staff (D.S.) Responsible for creating the situation required by the Outline of Events and ensuring that the objectives of the exercise are achieved. Directing Staff Instructions Exercise papers containing information and instructions for the Directing Staff only. These papers have a limited distribution to DS and Control Staff. Such papers should be reproduced on pink paper and classified "EXERCISE SECRET" for ready identification. Distant Early Warning Line A line of radar stations situated in Canada, (DEW) Alaska and Greenland, designed to give early warning of the approach of aircraft. Dose The total amount of nuclear radiation absorbed ^ by an individual, expressed in roentgens or milli-roentgens. Term Definition Dose Rate The rate at which radiation is absorbed by an individual per unit of time. It will be expressed in roentgens per hour (r/hr.) 0 and sometimes called the intensity. Dosimeter A portable instrument designed to measure the amount of radiation to which an individual is exposed. Emergency (or Emergency The situation or conditions which would exist Conditions) from the time of a warning of apprehended war or of a possible nuclear attack (the NATIONAL ALERT), through the Shock Phase, and through the Recovery Phase. Emergency Accommodation Emergency living space for persons who have evacuated a damaged or potentially dangerous area or whose homes have been destroyed. Emergency Change of Address A Post Office card to be used by evacuees Card in a war emergency as a postal locator card for undeliverable letter mail addressed to disaster areas. Emergency Clothing Service One of the five Emergency Welfare Services. This Service is responsible in an emergency for supplying clothing to those requiring it. Emergency Food Pack At least a seven-day (and preferably a fourteen- day) supply of emergency type food and liquid, packed in readiness as a self-help measure for evacuation or shelter living. Emergency Health Services (EHS) The organizations at federal, provincial and municipal level that will be formed in time of emergency to deal with health problems. At present this term refers to the emergency planning and training of health agencies of the health departments at all levels of government. Emergency Lodging Service One of the five Emergency Welfare Services. This Service is responsible in an emergency for the provision of immediate temporary accommodation to people requiring it. Emergency Measures Organization An organization created at the provincial (EMO) and municipal levels of government to co- ordinate and stimulate the development of civil emergency planning by government depart- ments and delegated agencies, and to undertake detailed planning in areas where responsibility is not specifically allotted to a department or agency. ^ Term Definition Emergency Period The period of time from the warning of a possible nuclear attack, through the Shock Phase, and the Recovery Phase. Emergency Planning Canada The primary role of Emergency Planning Canada is to co-ordinate federal government planning aimed at mitigating and recovering from the adverse effects of emergencies and to encourage emergency planning across Canada. Emergency Public Information An organization of government officers and Service (EPIS) civilian news media representatives respon- sible for origination and dissemination of public information during an emergency. Emergency Welfare Services (EWS) The five Services responsible for providing, in an emergency, those emergency welfare services which would be essential for the survival and well-being of people directly affected by the disaster (Emergency Clothing, Emergency Feeding, Emergency Lodging, Registration and Inquiry, Personal Services). Emergency Welfare Services The place to which the original copies of Central Registry (CR) registration cards and all inquiry cards for a specific target area are sent. Emergency Welfare Services The place in a reception community to which Local Registry all completed registration and inquiry cards are sent for processing. Evacuation The movement of people voluntarily or under direction from damaged, dangerous or potentially dangerous areas. Evacuation Route A main traffic artery out of a populated area along which it is planned to direct the movement of the population in an emergency. Evacuee A person who has left his normal place of residence voluntarily or by direction before or during an emergency. Exercise A practicing of an organization, in whole or in part, in its capability to carry out assigned tasks, to rehearse procedures and to increase operational capabilities. Exercise Instructions Exercise papers containing general informa- tion and instructions of particular concern to the Operating Staff although distribu- tion would include the Directing Staff and • Control Staff as well. Term Definition Fallout The fall back to earth of particles contami- nated with the radioactive material produced by a nuclear explosion. The term also applies in a collective sense to the contaminated particulate matter itself. Fallout Area The area on which radioactive materials have settled. Fallout Prediction Method A method of fallout prediction based on the sector principle, by which two zones are defined as probable areas of fallout of an intensity of significant proportions Fallout Report A message reporting radiation intensity, location of the station and time of measurement. Fallout Shelter A shelter specially designed to P rovide protection against the effects of radiation from fallout. Fallout Warning The warning issued at federal or provincial level when any community district or area is in danger from radioactive fallout of significant proportions. Fallout Warning Message A message warning of predicted fallout which includes time of burst, ground zero, bearing of left and right radiais; effective TAiindspeed, downwind distance of Zone 1, and the cloud radius of detonation. Family Meeting Place A place where members of a family have planned to reunite eventually should they be separated by disaster. Fanout, Telephone A warning system used within an organization, based on its members reaching others by telephone according to a prepared "pyramidal" plan where each one telephones two or more other members. Financial Assistance An agreement whereby the cost of approved Program (FAP) expenditures for civil emergency measures is shared by the federal, provincial and/or municipal levels of government. Final Party A group of senior departmental personnel (including Ministers) with emergency duties who will leave to man the departmental emergency facilities immediately prior to an attack. Term Definition Fireball The luminous sphere of hot gases which forms immediately with the nuclear explosion. Firestorm A stationary mass fire, in built-up areas, producing strong inrushing winds from all sides which prevent the fire from spreading outwards, while adding oxygen to increase the intensity. Flash Burn Burn caused by exposure of the bare skin to thermal radiation. Flash Heat The thermal radiation given off immediately following a nuclear explosion. Gamma Ray A high frequency electromagnetic radiation emitted from the nuclei of certain unstable atoms. General Transport Controller The official responsible for the overall (GTC) control in an emergency for all transport; air, rail, road, water and telecommunications, except that operated by DND. Ground Zero A point on the surface of land or water, at, or vertically below or above, the centre of the burst of a nuclear weapon. Half-Life The time required for the activity of a given radioactive material to decrease one- half its initial value due to radioactive decay. Half-Value Thickness The thickness of a given material which will absorb half the gamma radiation falling upon it. It is sometimes referred to as half- value layer. Health Supplies Officer A pharmacist responsible for the organization of the Emergency Health Supplies Service and its operation at all levels of control. Hospital Disaster Planning Plans through which any type of hospital can assign its staff and extend its facilities and supplies to accommodate the admission and early treatment of an unusually large number of casualties following a disaster. • Term Definition Hot Spot An area of a higher dose rate than its surrounding area. Improvised Feeding The preparation, cooking and serving of food in time of emergency by means of facilities other than those in private dwellings, commercial and non-commercial feeding establishments. Induced Radioactivity Radioactivity produced in certain materials by the capture of neutrons. Initial Radiation Radiation produced by a nuclear explosion. Essentially neutrons and gamma rays emitted from the fireball and cloud during the first minute following a nuclear detonation. Inquiry Card The card which is completed by a person inquiring about the safety and whereabouts of another person during the emergency period. Inquiry Kit A carton containing 750 Inquiry Cards and other equipment required for the taking of inquiries from evacuees. Institutional Care Bureau One of the four bureaux of Personal Services. The function of this bureau is to plan for the evacuation from probable target areas, or for the reception and care in reception areas, of people who are confined to welfare institutions. Intensity The rate at which radiation is emitted or absorbed. (The strength of radiation). Intercontinental Ballistic A missile which flies a ballistic trajectory Missile (ICBM) after guided powered flight, usually at velocities in excess of 20,000 ft. per second, and is capable of ranges in excess of 3,500 nautical miles. Intermediate Party A group of departmental personnelwith emergency duties who will leave to man the departmental emergency facilities prior to an attack, but after the departmental emergency facilities have been prepared to receive them. Intermediate Range Ballistic A missile which flies a ballistic trajectory Missile (IRBM) after guided powered flight, usually at velocities in excess of 20,000 ft. per second, and which is capable of a range of approximately 1,000 - 2,000 nautical miles. Term Definition Isointensity Line A line which joins points of equal radiation intensity as of a given time. 0 Kiloton (KT) One thousand tons. Kiloton Weapon A nuclear weapon, the yield of which is measured in terms of thousands of tons of TNT explosive equivalents, producing yields from 1 to 999 kilotons. Life-Saving Period The time covering rescue operations, evacuation from damaged areas and areas of very serious fallout, and initial reception arrangements in other communities. Lines of Succession Lists of key officials and their designated alternates named in the order in which they would be called to assume their emergency duties should the first official on the list not be available. Lodging Assignment Card A card used in the assignment of evacuees to private dwelling or congregate facility. Lodging Capacity (Emergency) The total number of evacuees to be accommodated in a private dwelling, or congregate facility, based upon the reception community's plan. Lodging Facility Card, Dwelling A card used to record detailed information about a private dwelling. Lodging Facility Card, Congregate A card used to record detailed information about congregate lodging facilities. Manpower Allocation The distribution and employment of manpower in a national emergency in accordance with government policy. Manpower Control The direction and utilization of manpower in accordance with government policy. Manpower Mobilization The function of creating a state of readiness for the use of manpower during the period of emergency. Mass Feeding The feeding of large groups of people in an emergency in contrast to feeding in private dwellings. Matching The process of assigning evacuees to compatible householders based on known factors and/or characteristics. I* Term Definition Matching Factors Those characteristics of people which will be considered in matching evacuees to householders. 0 Maximum Permissible Dose (MPD) The maximum total tolerable dose of nuclear radiation allowed. Median Lethal Dose (MLD) The amount of radiation received over the whole body which would be fatal to 50% of human beings, animals or organisms. Medical Centre An organized community health service developed around an existing hospital and identified by the name of the community. The Centre may comprise one or more of the following components: the district hospital, an emergency hospital (staffed by personnel evacuated from hospitals in target areas), a clinical laboratory, a blood shadow depot, public health services and clinics and health supplies storage depot. Megaton (MT) One million tons. Megaton Weapon A nuclear weapon the yield of which is measured in terms of millions of tons of TNT explosive equivalent upwards. Missing Person Form A police form on which identifying details of a person reported as missing are recorded. Mixed Fission Products The aggregate of radioactive isotopes resul- ting from the fission reaction, usually of uranium or plutonium, in a nuclear weapon or nuclear reactor. Monitor The operator of a radiac instrument used to detect and measure radioactivity. Monitoring The determination with instruments of the location and intensity of radioactive con- tamination. Likely Target Area Main centres of government, communications industry or port facilities, etc., which would likely be attacked if a direct attack of Canada were to take place. Term Definition Mosaic Assembly of two or more overlapping air photographs taken under similar conditions of height and angle. Movement Control The planning, routing, scheduling and control of personnel and supply movements. Also an organization responsible for these functions. Municipal Emergency Executive An executive or control committee composed of (or Control) Committee selected members of a municipal council which formulates municipal policy on civil emergency measures. Municipal Emergency Planning A planning committee composed of suitable Committee representatives of municipal departments having emergency responsibilities. National Emergency Manpower A body responsible to the Minister of Labour, Authority (NEMA) having the broad function of developing policy concerning the use of manpower in the emergency period. National Survival Actions taken prior to, during and following any attack on Canada to maintain or restore the political, social and economic fabric of the nation. Nautical Mile Unit of measure, 6,080 feet or equal to 1.1515 statute or land miles. Neutron An elementary nuclear particle which is elec- trically neutral. Nuclear Energy The energy released by nuclear fission. or nuclear fusion. Also applicable to the decay of radioactive substances. Nuclear Fission The process whereby the nucleus of a particular heavy element splits into at least two nuclei of lighter elements, with a release of substantial amounts of energy. Nuclear Fusion The process whereby the nuclei of light elements especially those of the isotopes of hydrogen, namely deuterium and tritium, combine to form the nucleus of a heavier element, with the release of substantial amounts of energy. Nuclear Radiation Alpha and beta particles, gamma rays and neutrons resulting from the breakdown of a radioactive element or fission process. Term Definition Open Stock - Stock Return Form A two-part form to record the total number of unpacked clothing items of all categories held in Clothing Depots and Welfare Centres. 0 Operating Staff Those who are participants in an exercise carrying out their emergency function, and this includes all personnel involved,with the exception of Directing Staff, Control Staff and observers. Operational Report (OPREP) A report, issued at given intervals, to indicate the state of operational readiness or capability of the REGHQ and the ZEGHQ. Overpressure Air pressure in excess of normal atmospheric pressure, expressed in pounds per square inch (PSI), when related to the blast effects of a nuclear explosion. Personal Services One of the five Emergency Welfare Services. This Service is responsible in an emergency for providing individual care in assistance through four bureaux: Reception, Unattached Children and Dependent Adults, Institutional Care (Welfare), Counselling and Emergency Aid. Pine Tree Line (PTL) A term used to identify the Canadian Forces Air Defence radars. Pre-Attack Phase This phase includes any period of deteriorating international relations up to the time of the National Alert Warning or the commencement of attack on this continent, which ever is first. Pre-Attack Voluntary Evacuation The movement of persons who choose to leave a potentially dangerous area. Predicted Fallout Pattern A prediction, made immediately following a nuclear detonation, of the area which will likely be affected by fallout. It is based on an estimation or measurement of the yield, on the height of burst of the weapon, and on a forecast of the upper wind conditions. • Term Definition Prepositioned Health Supplies Emergency Health supplies that are located in peacetime with the user organization at a • pre-selected site. Protection Factor (PF) It is a ratio of the amount of radiation that would be received by a person in an unprotected location compared to the amount he would receive in his actual position within the structure. Provincial Warning Centre PWC) A. Canadian Forces centre of the CFWRS located at each Regional Emergency Government Headquarters to provide warning of the likelihood and imminence of attack or radioactive fallout. Public Health Laboratory, A packaged laboratory that can be moved and set Mobile up quickly in a suitable building to perform routine Public Health work. It may be used to provide an improvised Public Health Laboratory, supplement existing laboratory, or provide' facilities to which a Public Health Laboratory from a target area may evacuate. Radiation Monitoring Periodic or continuous checking with instruments to detect and measure the location and intensity of radioactive contamination. Radiation Sickness Sickness caused by exposure to nuclear radiation. Radioactivity The spontaneous emission of nuclear radiation by an unstable nucleus. Radiological Survey See Monitoring Random Bomb A nuclear weapon which detonates at a place other than its intended target area. Readiness Plan A departmental plan, in manual form, designed to designate, in advance of the nuclear emergency, all those actions which would be taken by the department to meet the emergency. Reception Community A community in.a reception area designated to receive and care for evacuees. Reconnaissance (RECCE) Preliminary survey made by anyone for any purpose, e.g., the systematic search for information relating to damage, casualties, contamination and other significant after-effects of a nuclear attack. Recovery Phase The period of rehabilitation and reconstruction 410 subsequent to the Shock Phase. Reception Area A geographic area where evacuees are received and cared for in an emergency. Term Definition Refugee A citizen of a foreign country who arrives in Canada during an emergency. Region The first level in the emergency govern- ment system below the national headquarters with boundaries identical with provinces. Regional Emergency Government Emergency combined headquarters from which Headquarters (REGHQ) components of the federal government (includ- ing military representation) and the provincial government will operate within provincial boundaries in a war emergency. Regional Health Storage Depot Existing warehouse in which predetermined quantities of emergency health supplies are stored under federal Emergency Health Services control. Registration and Inquiry Team, One of the five Emergency Welfare Services. Mobile It has two functions: to reunite members of families separated by disaster, and deal with inquiries regarding the where- abouts and safety of persons. Registration Card The card on which information about evacuee families and individuals is recorded so that inquiries about them can be answered. Registration Kit A carton containing 500 Registration Cards and other equipment required for the registration of evacuees. Relocation Centre A town or municipality in which a relocation unit is located. Relocation Unit A building accommodating a group of selected departmental personnel who, in an emergency, would provide operational support to the elements of emergency government or to an RECHQ. A Relocation Unit may accommodate more than one departmental group. Remedial Evacuation Controlled evacuation directed by the autho- rities, designed to remove persons from an area made uninhabitable by radioactive fallout or some other continuing hazard. Reporting Centre A place or building where departmental personnel not assigned to essential functions will be asked to report to resume depart- mental operations or perform other duties. • Term Definition "Requisition to Supply Officer" A three-part form with carbon, which would be Form - energency Welfare Services used by each of the five Emergency Welfare 411 Services when requisitioning goods and equipment from the municipal or other designated Supply Officers. Rescue The process of freeing trapped persons, rendering first aid and evacuating the injured to medical care. Residual Radiation Nuclear radiation caused by fallout, radioactive material dispersed artificially or irradiation as a result of a nuclear explosion. Resource Analysis The determination of resources available after an attack by applying damage assessment techniques to the results of the resources survey. Resources 13-)ard A record of a survey carried out to determine the availability of accommodation, materials, equipment or personnel essential to the development of civil emergency plans. Road Transport Controller Th.e official at CEGF responsible for the overall control in an emergency, of all road transport except that operated by DND. The offi- cials responsible for road transport within a Region, Zone and Municipality are Regional Controller of Road Transport, Zonal Controller of Road Transport and Municipal Controller of Road Transport. Roentgen (r) A unit of exposure dose of Gamma (or X) radiation. Safety Notification Postcard A pre-printed Post Office card completed by evacuees in a war emergency to advise others of their condition and present location. Self-Help Group A group formed immediately after a disaster, to engage in first aid, fire fighting, rescue and other survival activities in the immediate area. Self-Help Preparations Preparations which individuals can make in peacetime for their survival in-an emergency. Separated Family A family in which one or more members have become separated from the other family members by a disaster. • Term Definition Shadow Depot An alternate nood.services depot, set up in a safer area than that in which the parent clinic now operates. Twenty-eight Shadow Depots will be established across the country for use in an emergency. Three collection units, each with three collecting teams, will operate from a Shadow Depot. At the Depot, all blood will be processed and prepared for delivery to medical units. Shielding Any material or obstruction which attenuates nuclear or the thermal radiation and tends to protect personnel or materials from the effects of a nuclear explosion. Shock Phase This phase includes the duration of the attack and the interval up to the time at which arrangements have been completed for the survival of the remaining population and government is well organized although using emergency powers. To assist in realistic planning it has been sub- divided into three periods. These periods can vary in different parts of the country. These periods are: 1. Attack Period 2. Life-saving Period and 3. Survival Period. Situation Report (SITREP) A report, issued at given intervals, summarizing the conditions prevailing in a stated area. Sorting The separation of patients into priority groups for evacuation on the basis of professional medical criteria, which will vary with the type and size of disaster. Standing Operating Procedure (SOP) A procedure designed to ensure the performance of a task or series of tasks according to a pre-arranged method. Strategic Warning Warning which might be given before an actual enemy attack is launched. Study Group An organized discussion session designed to investigate a particular subject or problem; usually held to promote planning or to develop Emergency Measures Doctrine. • Term Definition Subsurface Burst A nuclear burst with its centre beneath the surface of land or water. Surface Burst A nuclear burst in which the fireball at maximum brilliance touches the surface of land or water. Survival Kit, Three Day A kit, recommended as a self-help measure for survival. It consists of 1 lb. of candy (any kind except chocolate) a 20 oz. can of juice and a can opener. Survival Operations All operations undertaken by Provincial and Municipal governments and by the Canadian Forces in Canada, other than those by forces employed in direct defence of Canada or assigned to NATO Commanders, which contribute directly to national survival. Survival Period The time during which the necessary arrangements are completed to ensure the continued sustenance of the surviving population. During this period survivors would have to depend on immediately available resources such as transport, oil, communications, etc., because, except for areas undamaged and not subject to any fallout, new production and re-supply would be most difficult. Survival Planning Planning conducted by appropriate government departments and delegated agencies at all levels, as well as civil groups and individuals, which is directed toward the survival of the population during a period of emergency arising out of war or a peacetime disaster. Tactical Warning A notification that the enemy has initiated hostilities. Such warning may be received any time from the launching of the attack to an actual strike. Take cover Warning A rising and falling note on the sirens or short blasts on whistles, horns, etc., with simultaneous radio broadcasts, means danger of immediate attack, take cover immediately in the best shelter available; ,if possible listen to radio for instructions. Thermal Energy The heat energy emitted by a nuclear burst, usually expressed in calories per square centimeter incident on the target. Term Definition Thermal Radiation The heat rays emitted by the fireball in a nuclear explosion. Usually expressed in calories per square centimeter. Thermonuclear Refers to the process whereby high temperatures brought about by a fission explosion cause the fusion of light nuclei with an accompanying release of energy. A thermonuclear bomb is a weapon in which part of the explosion enerpy results from fusion reactions. Trusted Agents Personnel in smaller headquarters where staff is at a premium, who, in an exercise, may be required to act in a dual capacity, i.e., in their normal role in the headquarters and as directing staff. Type of Burst A classification used to define the height of nuclear bursts in general terms, e.g. air burst, , sutface burst, etc. Unidentified Person Form A form on which is recorded identifying details concerning persons either living or dead who cannot be identified. • Universal Transverse Mercator A standard method of position reporting, based System (UTM) on a projected rectangular system of equally spaced east-west and north-south lines, which provides a reference system made up of parallel grid lines. War Measures Act An Act of Parliament giving the Governor-in-Council wide powers in an emergency. Welfare Centre The building or group of buildings within a Welfare Centre Area from which the Emergency Welfare Services will be administered and provided. Welfare Centre Area A geographic area within a reception Community for which a specific Welfare Centre is responsible. Working Group A special group set up to study and make recommendations upon specific matters. Yield The energy released in nuclear explosion (expressed in equivalent weight of TNT). Zone An area within a region comprised of an aggregation of basic peacetime administrative areas, such as municipalities, counties, townships, or census divisions. It will constitute the lowest level at which the federal and provincial governments will operate a combined headquarters to exercise operational and administrative control in an emergency. Term Definition ^ Zoné Emergency Government A combined emergency.centre of civilian authority Headquarters (ZEGHQ) for the operational and administrative control of the zone duringan emergency, it will include federal and provincial components. 0 PSEPC/SPPCC LIB/B BLIO 000006851211111111 11 UA 929 .C2 G85 1981 A guide to civil emergency planning for municipalities DATE DUE SLIP F255 o • •