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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.