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HV 551.5 .C2 M39 1989 Emergency Preparedness Protection civile Canada Canada EMB-G(4AU LfBRARY ! B1BL1GTFftQUE PSEPC/SPPCC SEP 1 2009

OTTAWA ( ONTARIO) KIA 0Pg d I EP'C' 1-011 I

I May I extend to each of you a warm welcome to the Cana- dian Emergency Preparedness College and express the hope that I your stay here will be both pleasant and informative. Conferences of Mayors and Elected Municipal Officials have taken place here for many years and have proven benefi- I cial to those attending and participating in our programmes. We, at the College, consider it an honour to play host to you and look forward to this as one of the highlights in i our annual training schedule. I R.H.C. Gamble, Director, I Training and Education, I EPC.

^ Canadï'

EPC 1010 EMERGENCY PREPAREDNESS CANADA CONFERENCE MAYORS AND MUNICIPAL OFFICIALS TABLE OF CONTENTS

REFERENCE TITLE

1011 Foreword Il 1010 Table of Contents Map of Arnprior I 1000 Aim and Scope Agenda II Critique 'JEPP Joint Emergency Preparedness I Program Fact Sheet Annex A EPC Regional Directors List Ill, Provincial Emergency Planners List 806 Emergency Preparedness in Canada II 1004 Group Discussions 512 Operational Planning Principles II 514 Estimate of the Situation 715 Briefings 11 803 Evaluation of Peacetime Disaster Hazard 805 Commonality of Characteristics of Peacetime Disasters II 808 Human Reaction to Disasters 810 Social Assistance Agencies II 812 Prerequisites to Emergency Operations 825 Emergency Planning in Municipalities II 1002 Suggested Briefing Notes 1003 Suggested Municipal By-law 1009 Fourteen Steps to Readiness 1303 The Emergency Operations Centre !Irla February 1989 EMERGENCY PREPAREDNESS CANADA

114,111,"Y'CIIIREES AND ELECTED OFFIC=ALS CONFERENCE

I CONFERENCE NO - EPC 1 O 5 5

BU2LD=NG 3-2

I I I I

C E P C COURSE OF1F2CER

E - A - CLEMAN

I EMERGENCY PREPAREDNESS CANADA MAYORS AND ELECTED OFFICIALS CONFERENCE

CONFERENCE NO. EPC 1055 AGENDA

BUILDING 12

OCTOBER 23 - 26, 1989

MONDAY, OCTOBER 23, 1989 8:45 Welcome R.H.C. Gamble Administration and Director, Training Registration & Education, EPC (Worthington Hall) H.S. Bloom (with EPC 1056 & EP 1057) College Admin. Officer CEPC 9:00 Aim & Scope of Course E.A. Cleman Courses Director, CEPC 9:30 Film "Winds of Terror" H.E. Cook Training & Education Lecturer 10:10 Morning Break 10:30 Emergency Preparedness in A.R. Paquette Canada Education Officer CEPC 11:10 Phases and Characteristics W.G. Radlein of Disasters and Planning Education Officer Priorities CEPC 12:00 Photos E.A. Cleman 12:20 Lunch

1:30 Phases and Characteristics W.G. Radlein of Disaster and Planning Priorities (cont'd) 2:15 Case Study - Sudden H.E. Cook Emergencies I

MONDAY, OCTOBER 23, 1989(cont'd) ilile 3:00 Afternoon Break S.M. Willmott (Return Transportation) CEPC 3:30 Problems and Discussion H.E. Cook 1 (cont'd)

I TUESDAY, SEPTEMBER 19, 1989 8:30 Transportation of Dangerous H.E. Cook I Goods 10:00 Morning Break I 10:15 Direction & Control, W.G. Radlein Peacetime Disasters Slide Tape: I Storm Warning 1 11:30 Plans and the Planning W.G. Radlein Process: The Development I of Emergency Plans Ite 12:00 Lunch 1:30 Case Study C: Slowly H.E. Cook Developing Emergency I 3:00 Afternoon Break 3:15 Case Study Atlantis H.E. Cook I (cont'd) 4:30 Case Study Atlantis H.E. Cook I Debriefing

1 WEDNESDAY, OCTOBER 25, 1989 8:45 Flood Risk Mapping: A Tool P. Hess for Municipal Planning Flood Damage Reduction I Program Environment Canada I

1P I I 3

WEDNESDAY, OCTOBER 25, 1989 (cont'd)

9:15 Communications in Peacetime A. Prawzick Disasters Emergency Planning Officer, City of Cornwall 10:00 Morning Break I 10:15 Communications in Peacetime A. Prawzick Disasters (cont'd) I 11:00 Video: Emergency Stress H.E. Cook Ramifications: Dr. Jeff Mitchell I 12:00 Lunch 1:30 Media Relations During a J.A. Burnell and Disaster P. Fallu I Multicom Inc. 3:00 Afternoon Break

3:15 Tour of Emergency Site R.H.C. Gamble I Management and Emergency Public Information r Activity Centres 4:45 End of Tour R.H.C. Gamble Questions and Answers

III 6:00 Hors d'oeuvres in Elm Room R.H.C. Gamble E.A. Cleman

I 7:00 Reception & Dinner R.H.C. Gamble E.A. Cleman I THURSDAY, OCTOBER 26, 1989 9:00 The Threat: Glasnost & L. Joudrey Perestroika and the Municipal Counsellor I Prognosis for East-West Annapolis County, N.S. Relations I 10:00 Morning Break 10:30 Evaluation

I 11:00 Summary of Conference R.H.C. Gamble Presentation of Certificates E.A. Cleman I 12:00 Lunch io 1:15 Departure I I. CANADIAN EMERGENCY PREPAREDNESS COLLEGE 1 COMENTS AND SUGGESTIONS

CONFERENCE NO. DATE:

Please comment on the conference yvu just attend as follote:

1. Reception on Arrival.

2. Accommodation and Meals.

I. 3. Content, Presentations and Exercises.

1 1

1 4. General Comments.

I e Additional Cbmments Over EMERGENCY PREPAREDNESS CANADA EPC 1000 MAYORS AND ELECTED MUNICIPAL OFFICIALS CONFERENCE

AIM To assist Mayors and municipal officials in their responsibilities for the development of plans and the implementation of preparations to meet emergency situations.

SCOPE The conference will involve lectures, demonstrations, case studies, discussions, planning, operational concepts and practices designed to emphasize the significance of municipal responsibilities and the extent of local contributions in emergencies.

September, 1987

T SHEET FACT SHEET FACT SHEET FACT SHEET FA ACT SHEET FACT SHEET FACT SHEET FACT SHEET

Jonc EMMGENCT PI.ANMG PROGRAM

I In October 1980, the federal government initiated a Joint Emergency Planning Program (JEPP), through which the federal government, in consultation and in cooperation with the provincial and territorial governments, undertakes or contributes to projects which enhance the I national emergency response capability. The program is financed at an annual rate of approximately $6 million.

I JEPP was conceived to encourage cooperation between the federal government and the provincial/territorial governments in working toward an enhanced national capability to meet emergencies of all types with a reasonably I uniform standard of emergency services across the country. Projects must involve resource commitments by both the federal and provincial governments. The federal contribution is negotiated in each case and the amount of money I provided depends on the nature of the project, other projects under consideration, and the amount of funds available. r To be eligible for federal funding, JEPP projects must: a. have a clear objective which supports priorities aimed at enhancing I the national and provincial emergency response capability; b. have an agreed, identifiable beginning and and and measurable I progress points; c. include a statement of the nature and extent of federal involvement and take into account how federal participation in to receive and recognition; visibility

d. include provincial/territorial cosmitment to the project in funds or in kind, or to ongoing operations and-maintenance costs, or any appropriate combination thereof; and

e. conform to applicable terms and conditions prescribed by the federal Treasury Board.

JEPP projects are normally submitted by a province or territory and frequently relate to areas of interest to federal departments of government (e.g. Health and Welfare Canada would be interested in projects which relate to health and/or welfare, as would the Department of Communications

•../2 CanadIt I to communications related projects). In this circumstance, officials of interested departments ara invited to comment on projecto and this activity is coordinated by Emergency Planning Canada. Projects must be supported by a proposal signed by the Provincial Minister responsible for Emergency Planning (or his delegated official) and countersigned by the appropriate Federal Minister (or his delegated official) as evidence of federal approval. Proposals must describe the proposed project and demonstrate compliance with: a. the general criteria for JEPP; b. the terza and conditions as stipulated by the federal Treasury Board; and c. specific conditions pertinent to the project itself. Progress payment: may be made as the project proceeds. Claims for such payments are based on attainment of pre-identified progress points and financial records maintained by the province/territory in accordance with generally accepted accounting principles and practices. The recipient's accounting records will be subject to post audit by its provincial or territorial auditors. Emergency Planning Canada or its agents may perform an additional audit, if this is considered desirable.

JEPP funds may not be used to fund functions or equipment puréhases of federal departments or agencies for activities considered to be part of their normal responsibilities.

September 1983

.. , r , Appendix• A Distribution of JEPP Funds 4 Fiscal Year 1988/89*

Province/Territory Description of Project Financial Split ($)

British Columbia Public Information - directory inserts Fed. 5,000 Prov. 10,000 Alberta Public protection, continuity of government and resource Fed. 36,000 management plans for wartime arrangements Prov. 12,000 Alberta Disaster services division - computer Fed. 21,000 Pro. 41,000 Alberta City of Leduc - response vehicle Fed. 125,117 Pro\ . 125,117 Alberta APSS library research development Fed. 11,952 Pro. 11,952 Oberta Dangerous goods emergency response improvements Fed. 126,000 Prov. 189,000 Alberta Disaster health display's for the emergency hospital Fed. 2,100 Prov. 700 Alberta Emergency hospital exercise Fed. 4,080 Pro■,.. 2,720 • Alberta Regional communications system - District #17 (West) Fed. 25,075 Prov. 25,075 Alberta City of Grande Prairie - hazardous materials equipment Fed. 11,720 Prov. 11,720 Alberta Regional communications system - District of Provost Fed. 42,300 Prov. 42,300 Alberta Field services sub-program - validation and model developmentdeve Fed. 15,550 Prov. 15,550 Alberta Village ofFed. Cayley - generator and rescue vehicle 4,317 Pro'. 4,317 Alberta Village of Strome - communications equipment Fed. 2,580 Prov. 2,580 berta Town of Fox Creek - rescue equipment Fed. 7,850 Prov. 7,850 lberta County of Athabasca - rescue vehicle and communications Fed. 17,070 equipment Prov. 17,070

rookprt a 'rrviun Af riificimilru - nismrnlIrtinntirtnr dadsbt:rsertiant PPel '7 S(1") rta Town of SdAtâO(./t fl - communications equipment Fed. 7,502 Prov. 7,502

Listing only includes those funds committed by the end of 1988 calendar year. Actual expenditures ma> differ from the amounts shom n, but the> will never exceed the allocated federal contribution. I F u

I I

Province/Territory Description of Project Financial Split (S) F Alberta Town of Turner Valley - rescue and communications equipment Fed. 13,378 Prov. 13,378 I Alberta Village of Vdarner - communications equipment Fed. 2,975 Prov. 2,975 Alberta Village of Clyde - communications equipment Fed. 6,226 P Prov. 6,226 Alberta Town of Drayton Valley - communications equipment Fed. 3,460 Prov. 3,460 I Alberta County of Forty Mile - rescue vehicle Fed. 11,250 ProV. 11,250 Alberta Town of Rimbey - communications equipment Fed. 18,1114 A Prov. 18,114 Alberta Town of Sundre - communications equipment Fed. 7,721 Prov. 7,721 I Northwest Territories Fifth year of a five-year program to develop and maintain an Fed. 107,100 emergency response capability throughout the N.W.T. Terr. 107,100 Northwest Territories Petroleum contingency plan Fed. 10,500 I Terr. 19,500 Northwest Territories Rankin Inlet - communications system Fed. 21,832 Terr. 14,555 1 Northwest Territories Fort Smith - communications system Fed. 23,617 Terr. 15,745 Northwest Territories Yellowknife - communications equipment Fed. 11,990 I Terr. 11,990 Northwest Territories Baffin Regional Emergency Response Committee - rescue Fed. 45,585 equipment Terr. 30,390 I Northwest Territories Alternate emergency communications system Fed. 8,922 Terr. 5,948 Yukon I Fifth year of a five-year program to enhance Yukon's emergency Fed. 62,920 planning and response capabilities Terr. 33,880 Saskatchewan Fourth year of a five-year program to enhance the province's Fed. 201,513 overall state of emergency preparedness I Prov. 220,516 Saskatchewan Prince Albert - chemical suits Fed. 4,000 Prov. 4,000 Saskatchewan Shaunavon - response vehicle Fed. 6,000 Prov. 6,000 I Province/Territory Description of Project Financial Split (S)

Saskatchewan Parkland Mutual Aid Area - communications system Fed. 4,708 Prov. 4,708 Saskatchewan Moose Jay,. Mutual Aid Area - rescue equipment Fed. 19,372 Pro. 19,372 Saskatchewan Tisdale - mobile command post Fed. 6,767 ProN,. 6,767 Saskatchewan Last Mountain Mutual Aid Area - communications system Fed. 28,818 Prov. 28,818 d Saskatchewan Gardiner Dam Mutual Aid Area - communications system Fed. 43,340 Pro. 43,340 Saskatchewan South Central Mutual Aid Area - communications system Fed. 42,818 Pros'. 42,818 Saskatchewan Quill Plains Mutual Aid Area - rescue equipment Fed. 9,296 Pros'. 9,296 Saskatchewan Prince Albert - communications equipment Fed. 2,568 Pro. 2,568 Saskatchewan Humbolt Mutual Aid Area - communicatims equipment Fed. 1,045 Pros'. 1,045 Saskatchewan Meadow Lake Mutual Aid Area - rescue equipment Fed. 4,573 Pros'. 4,573 Saskatchewan Pilot Butte Mutual Aid Area - rescue equipment Fed. 6,557 Pros'. 6,557 Saskatchewan Gardiner Dam Mutual Aid Area - emergency response Fed. 8,669 equipment Pros'. 8,669 Saskatchewan North Saskatoon Mutual Aid Area - rescue equipment Fed. 7,365 Prov. 7,365 Saskatchewan Hanley Mutual Aid Area - communications project Fed. 23,502 Prov. 23,502 Saskatchewan Maple Creek Mutual Aid Area - communications system Fed. 24,605 Prov. 24,605 Saskatchewan Esterhazy Mutual Aid Area - extrication equipment Fed. 10,830 Prov. 10,830 Manitoba Fifth year of a five-year program to enhance the province's Fed. 264,300 overall state of emergency preparedness Pro. 492,000 Manitoba Lynn Lake - rescue equipment Fed. 5,297 Pros'. 5,297 Province/Territory Description of Project Financial Split (S)

Manitoba Erikson - communications equipment Fed. 3,800 Prov. 3,800 Manitoba Town of Selkirk - response vehicle Fed. 30,310 Prov. 90,931 Manitoba Harrison - communications equipment Fed. 5,628 Prov. 5,628 Manitoba Sherridon - communications equipment Fed. 4,900 Prov. 4,900 Manitoba Portage la Prairie - communications equipment Fed. 6,197 Prov. 6,197 Manitoba Town of Birtle - communications equipment Fed. 6,945 Prov. 6,945 Manitoba Town of The Pas - rescue and communications equipment Fed. 34,421 Prov. 34,421 Manitoba R.M. of Hannover - chemical suit and breathing apparatus Fed. 2,814 Prov. 2,814 Manitoba City of Brandon - response vehicle Fed. 8,171 Prov. 8,171 I Manitoba R.M. of Archie - response vehicle and equipment Fed. 2,799 Prov. 2,799 Manitoba Town of Neepawa - communications equipment Fed. 3,504 'I Prov. 3,504 Manitoba Village of Hamiota - rescue equipment Fed. 9,037 Prov. 9,037 1 Manitoba Village of Riverton - rescue equipment Fed. 3,263 Prov. 3,263 Manitoba City of Brandon - emergency operations and communications Fed. 46,713 I centre Prov. 46,713 Ontario Fourth year of a five-year program to enhance provincial and Fed. 1,900,000 municipal planning and response capabilities Prov. 1,900,000 1 Quebec First year of a six-year integrated communications project Fed. 1,500,000 Prov. 1,833,333

-- i^ Province/Territory Description of Project Financial Split ($)

Quebec Ice cutting machines Fed. 86,400 Prov. 105,600 New Brunswick First year of a five-year wartime emergency planning program Fed. 34,500 Prov. 11,500 New Brunswick EMO video production No. 3 Fed. 47,000 Pros'. 31,330 New Brunswick Emergency Rescue Vehicle Southeastern N.B. Fed. 90,000 Pros'. 90,000 Nova Scotia First year of a fi‘e-year communications project Fed. 400,000 Pros'. 400,000 Nova Scotia First year of a five-year wartime emergency planning program Fed. 12,500 Prov. 4,500 Prince Edward Island Second year of a five-year provincial emergency preparedness Fed. 102,636 program Pro. 70,350 Prince Edward Island Second year of a five-year training program for volunteer Fed. 27,150 firefight ers Prov. 10,300 Prince Edward Island Second year of a five-year public protection, continuity of Fed. 32,250 government and planning wartime arrangements program Pros'. 10,750 Prince Edward Island Second year of a three-year integrated mobile radio project Fed. 700,000 Pro. 700,000 Prince Edward Island Crapaud Mutual Aid Area - response vehicle Fed. 33,485 Pros'. 33,485 Prince Edward Island Upgrading of the provincial shelter plan Fed. 62,861 Prov. 15,715 Prince Edward Island Emergency generator for the Souris hospital Fed. 22,500 Prov. 52,500 Prince Edward Island Charlottetown Mutual Aid Area - response vehicle Fed. 31,204 Prov. 31,204 Newfoundland First year of a five-year emergency wartime planning program Fed. 30,000 Prov. 10,000 Newfoundland Town of Burin - rescue equipment Fed. 10,428 Prov. 5,615

I. ion Province/Territory Description of Project Financial Split ($)

Nem.'foundland Town of Grand Bank — diesel generator Fed. 19,250 Prov. 11,088 Newf oundland Deer Lake — emergency communications system Fed. 16,633 Pros'. 11,088 Nevefoundland Labrador City — emergency response vehicle Fed. 41,700 Pro. 27,800 Newfoundland Marystown — emergency preparedness package Fed. 37,532 Pros'. 25,021 Newfoundland Port aux Basques — generator and rescue equipment Fed. 12,785 Pros'. 8,523 Newfoundland Town of Wedgewood Park — emergency generator and pump Fed. 5,346 Prov. 3,564 Newfoundland Town of Windsor — communications project Fed. 8,839 Pro. 5,893 Newfoundland Stephenville — Civil Defence Team project Fed. 10,458 Prov. 6,972 Newfoundland Grand Falls — emergency rescue equipm.ent Fed. 13,477 Pro. 8,985

SI 4.7i\ IIMFRGENCY PREPARFIDNFSS CANADA

RDGIQNAL DIREC'IbRS

Mr. F.D. Cooper, Mr. A. Tremblay, I Regional Director, Regional Director, Emergency Preparedness Canada, Emergency Preparedness Canada, P.O. Box 10,000, Room 701, ^ VICIORIA, B.C. St. Laurent Bldg., V8T 4Z8 259 Grande-Allée West, Phone - Area Code 604 388-3621 QUEBEC, P.Q. G1R 2H4 r Phone - Area Code 418 648-3111

1 Mr. J.M. Hoffman, Mr. J.P.D. Boiteau, Regional Director, Regional Director, Emergency Preparedness Canada Emergency Preparedness Canada, I 10420 - 157 St., P.O. Box 534, EDMONTON, Alta . 590 Brunswick St., T5P 2V5 FREDERICTON, N.B. E3B 5A6 I Phone - Area Code 403 495-3005 Phone - Area Code 506 452-3020

a Mr. H.F.E. Swain, Mr. R.B. O'Sullivan, Regional Director, Regional Director, Emergency Preparedness Canada, Emergency Preparedness Canada, 850 Avord Towers, Suite 801, 2002 Victoria Ave., 6009 Quinpool Poad, REGINA, Sask. HALIFAX, N.S. S4P OR7 B3K 5J7 I Phone - Area Code 306 780-5005 Phone - Area Code 902 426-2082

1 Mr. A.J.K. Rasmussen, Mr. J.E. Ayers, Regional Director, Regional Director, Emergency Preparedness Canada, Emergency Preparedness Canada, 1 Suite 306A, Roans 210, 391 York Ave., 2nd Floor, Dominion Building, WINNIPEG, Man. 97 Queen St., R3C OP4 P.O. Box 1175, I Phone - Area Code 204 983-3760 CHARLOTTET(NiN, P.E.I. C1A 7M8 Phone - Area Code 902 566-7047 rI I 2

Mr. H.H. Sampson, Mr. D. Snow, Regional Director, Regional Director, Emergency Preparedness Canada, Emergency Preparedness Canada, Suite 812, 150 York St. P.O. Box 13430, Station A, TORONTO, Ont. . ST. JOHN'S, Nfld. MLEH 3S5 AlB 437 Phone - Area Code 416 973-6343 Phone - Area Code 709 772-5522

Yukon is handled through the Regional, Director, Victoria, B.C., and Northwest Territories is handled through Regional Director, Edmonton, Alta. I/

11 April 1989

1 EMERGENCY PREPAREDNESS CANADA

LIST OF PROVINCIAL EMERGENCY PLANNING OFFICERS

AREA PROVIi4CE NAME APPOINIMENT CODE OFFICE

B. C. M. Stewart Director 604-387-5956 L.G. Meckbach Manager of Training 24 HOURS 1-800-663-3456 N. Coward Zone Manager Victoria Zone 604-387-5956 1 B.C.E. Akehurst Zone Manager Courtenay Zone 604-334-2778 J. Consiglio Zone Manager Vancouver Zone 604-660-3723 F.G. Clegg Zone Manager Chilliwack Zone 604-795-6408 S. Patch Zone Manager Kelowna Zone 604-861-7328 N.E. Dyer Zone Manager Kamloops Zone 604-828-4357 (24hr) 604-372-3213 1 G. Hartley Zone Manager - Nelson Zone 604-354-6395 B. Kelly Zone Manager - Prince George Zone 604-565-6115 (24hr) 604-565-6130 1 A. Waddy Zone Manager - Terrace Zone 604-638-3514 i ALTA. I.D.M. Egener Managing Director {HQ) 403-427-2772 R. Langnan Executive Director, Disaster Preparedness and Response (HQ), r R. G. 1,blsey Executive Director 403-427-2772 Transportation of Dangerous Coods Control (HQ) r S.K. Bricker Director of Training (Training Centre) 403-422-0346 J.H. Tanchak Grande Prairie District Officer 403-538-5295 K. Morris Edmonton District Officer 403-422-1909 t P. Riopel St. Paul District Officer 403-645-2533 S. Harbin Camrose District Officer 403-679-1237 G.O. Abrey Red Drer District Of f icer 403-340-5102 L. E. Sales Calgary District Officer 403-297-6440 G. 17alker I Lethbridge District Officer 403-381-5222 SASK. M.G. Hegan Executive Director 306-787-9563 A.T. Auser 1 Director 306-787-9564 J. McMillan Municipal Advisor 306-787-9563 J. 6bltman Municipal Advisor 306-787-9563

MAN. F. Zeggil A/Coordinator 204-945-4789 Manager of Municipal Services 204-945-4790 M. Bennett Supervisor, Planning and Research 204-945-4791 H.E. Glanfield Planning and Research Officer 204-945-5030 K. Grant Planning and Research Officer 204-945-5031 t ...2 2

AREA 1111" PROVINCE NAME APPOIN'IMENT CODE OFFICE

MAN. L. Gwiazda Supervisor-Training-Education Officer 204-945-4792 (cont'd) J.M. Bruyere Training-Education Officer 204-945-5032 W.R. Davidson stern Region Officer (Brandon) 204-728-7000 Ext. 369 H. McLauchlan Eastern Region Officer(Fortage la 204-857-9711 Prairie) Ext. 347 Northern Region Officer (Thompson) 204-778-4411 Ext. 823 24-Hour Emergency Number 204-945-5555

ONT. K.J.W. Reeves Coordinator 416-965-6932 J.L. Ellard Deputy Coordinator 416-965-6708 F.B. Ali Plans and Operations )

It QUE • G. Halley Director General, Bureau of 418-644-3052 Quebec Civil Protection A. Lauzier Secretary - 418-646-7949 L. Côté Asst. Director General to Ragions 418-646-3256 M. Lavallée Asst. Director of Plans, Operations 418-646-7935 and Training A. Lauzier A/Director of Research/Developeent 418-646-7949 A. Parent Director, Administration 418-643-3258 J. Vaillancourt Regional Director - Pegion 1 418-722-3592 M. Tremblay A/Regional Director - Region 2 418-547-0772 B. Tremblay A/Regional Director - Region 3 418-643-3244 P. Lemire A/Regional Director - Region 4 819-375-4703 P.E. Tremblay Regional Director - Region 5 819-569-3631 J.-P. Morin Regional Director - Region 6 514-747-7581 P. Saint-Pierre Regional Director - Region 7 819-778-3737 M.L. Rowan Regional Director - Region 8 819-764-5107 R. Leduc A/Regional Director - Region 9 418-589-7903

...3

P S 3

AREA PROVINCE NAME APPOINTMEPIT CODE OFFICE N.B. J.O. Stith Director 506-453-2133 U.S. Alchorn Corrmunity Preparedness - Planning Officer R. LeBlanc Canmunity Preparedness - Planning Officer A.L.R. Skaling Plans & Operations - Planning Officer 1 R. Dcloison Plans & Cperations - Planning Officer G.E. Stairs Plans & Operations I - Planning Off icer

N.S. M.R. Lester Director 902-424-5620 I J.E. Perkins Zone Controller 902-424-5620 W. Musgrave Cape Breton Zone Controller 902-563-2093 J.E. Saunders Central Zone Controller 902-895-4848 J.A. Andersen Western Zone Controller 902-678-4079 24-Hour Etnergency Nuriber 902-424-5620 r P.E.I. J. Arsenault Director 902-436-9191 D. MacKinnon Program Officer I C. McNeill Administrative Assistant NFLD. J.K. Greer Director 709-722-2107 r R. Corbett TDG Coordinator

Y[7KON A.F. Dunn Coordinator 403-667-5220 i L.R. Hipperson Fire Marshal/Manager 403-667-5217 Protective Services

WI' H.J. Gerein Assistant Deputy Minister, 403-920-6355 Municipal & Community Affairs E. Bussey A Program Manager, E?nergency Services 403-920-6133 M. Rispin Coordinator, Energency Services 403-873-7083 I 24-Hour F7nergency Number 403-873-7554

February, 1989 i EPC 806

EMERGENCY PREPAREDNESS CANADA

CANADIAN EMERGENCY PREPAREDNESS COLLEGE

EMERGENCY PLANNING IN CANADA

Historical Background

1. Federal involvement in the emergency planning field dates back to the creation, in 1938, of a civil defence organization known as the Air Raid Precautions Committee. It waL responsible to the then Department of Pensions and Na- tional Health for the development of a national warning system, the development of protection against incendiary and gas attacks and the creation of an organization to treat casualties. The Air Raid Precautions Committee virtually ceased to exist by the end of 1945.

2. It was replaced, in 1948, by a new civil defence organization that answered first to the Department of National Defence and then to National Health and Welfare. The aims of Civil Defence were basically the same as they were for the Air Raid Precautions Committee. In 1957, a second civil emergency planning organization, known aà . the Emergency Mea- sures Organization, was formed under the Privy Council Of- fice; this organization was mainly responsible for the development of war-oriented programs and its main role was to assure the continuity of government in case of nuclear war. The Emergency Measures Organization and the Civil Defence Branch of National Health and Welfare coexisted until 1959 when the latter was abolished and the former became the responsibility of the Prime Minister's Office. From then on, the Emergency Measures Organization assumed the entire responsibility for initiating and coordinating the civil aspects of defence policy. It was subsequently shuffled from department to department, but its role remained the same. In March 1974, it was reorganized to form the National Emergency Plan- ning Establishment and an emergency planning secretariat was set up in the Privy Council Office. It is at this time that NEPE received the task not only to do the planning for war, but also to do the planning related to peacetime natural and man-made disasters. Under the federal identity program, NEPE became known as Emergency Planning Canada and when a minister responsible for emergency planning was designated, the emergency planning secretariat was functionally integrated as part of EPC. In July of 1988, the name was changed to Emer- gency Preparedness Canada.

-1- EPC 806

Current Policy ii{

3. Now, let's look at the current federal emergency planning policy; the federal government, aware of the increasing risks of emergencies occuring and of the public's expectation for effective government response, decided more attention should be paid to the standard of emergency preparedness in Canada so that all emergencies might be met with a prompt and effective response.

4. The objectives of this new policy, which was approved by Cabinet at the end of 1980, are as follows:

a. to provide leadership in working towards improved emergency planning in general;

b. to develop a credible national capability to meet emergencies of all types;

C. to work towards adequate and reasonably uniform standards of eme'rgency services across the country;

d. to be sensitive to humanitarian concerns; and also

e. to enable the nation to be pldced swiftly and effectively on an appropriate footing to meet the civil requirements arising out of hostilities involving Canada.

5. Cooperative planning with the provinces and contingency planning within the federal government are identified as two key approaches to the achievement of these goals. With respect to governmental participation in peacetime natural and man-made emergencies, the policy statement re-affirmed the expected sequence of responsibility. It is assumed that municipal government will respond initially to the limit of their resources, provincial governments will provide assistance when requested to do so, and the federal government will lend a hand upon receipt of a provincial request for aid or in situations where the emergency clearly falls within federal jurisdictions. Examples of this could be an oil spill at sea or a flood affecting more than one province.

6. The policy statement stressed that all levels of government have a responsibility to plan and prepare for emergencies for which it is unlikely that an adequate response could be mounted with private resources. That means not only making preparations to deal with peacetime disasters, but also

-2-- Ii EPC 806

determining what additional measures might be required to make a timely transition to the state of preparedness necessary to handle a war emergency.

7. At the time of enunciaton, several steps were taken to implement this new policy. First, a new emergency planning order was issued by the Privy -Council Office, a joint emergency planning program was established and federal/provincial negotiations with respect to the drafting of memoranda of It understanding in emergency planning were started. 8. The emergency planning order that was issued by the Privy Council Office explained how the federal government 1 would look after emergency situations where they had a responsibility in dealing with the situation. It also called for the creation of National Emergency Agencies (NEA) to operate during peacetime emergencies, as well as during war. The emergency planning order has been replaced by two new legislations that will be explained later. However, the NEAs have been kept and a list of the NEAs and the departments 1 responsible for elaborating them follows.

NATIONAL EMERGENCY AGENCY MINISTER RESPONSIBLE r Food Agriculture 1 Telecommunications Communications Human Resources Employment and Immi- I gration Energy Energy, Mines and Resources

Financial Control Finance I Health and Welfare Services Health and Welfare Industrial Production Industry, Trade and Commerce

Public Information Prime Minister I Construction Public Works Housing and Accommodation Canada Mortgage and 1 Housing Corporation Transportation Transport IP EPC 806

9. The Joint Emergency Planning Program: This program was approved in October 1980. It provides for the expenditure of $6 million dollars per year to allow the federal government to contribute or undertake, jointly with the provinces, emergency planning projects which enhance the national emergericy response capability.

10. Under this program, the projects submitted by the provinces must meet the following criteria to be eligible for funding. They must:

a. have a clear objective which supports joint priorities aimed at enhancing the national emergency response capability;

b. have an agreed, identifiable beginning and end, and measurable progress points;

c. include a statement of the nature and extent of federal involvement and take into account how federal participation is to receive visibility and recognition;

d. include provincial commitment to the project in funds or in kind, or to ongOing operations and maintenance costs, or any combination thereof; and

e. conform to applicable terms and conditions prescribed by the Treasury Board.

11. This program is generally oriented towards projects which involve resource commitments by both the federal and provincial governments. The federal contribution is negotiated in each case, and depends upon the nature of the project, other projects under consideration, and the amount of funds available. Some of the projects that have been approved lately are as follows:

a. PEI used JEPP funds to develop 10 provincial and 5 regional emergency plans;

b. Manitoba constructed a provincial-municipal Emer- gency Operations Center in Winnipeg;

c. New Brunswick has purchased four chemical protection suits equipped with breathing apparatus; and

d. the N.W.T. has received funds to assist in the purchase of emergency standby generators for several remote communities in the far north.

-4- EPC 806

12. Now, as far as the Memoranda of Understanding are concerned, the federal government is currently conducting negotiations with the provinces regarding this. The aim is to enhance the state of emergency preparedness in Canada by setting out principles of joint planning and identifying the duties and functions best undertaken by each order of government.

13. New legislation. Two new bills were passed by Parlia- ment in the summer of 1988 that deal with how the federal government will handle emergencies. The first one passed was the Emergency Preparedness Act. This Act sets out what the role, responsibilities and mandate of Emergency Preparedness Canada (EPC) are and, in fact, it establishes EPC as an i independent agency of the federal government; it also establishes the emergency planning responsbilities of federal ministers generally, it recognizes the interests of the pro- 1 vinces in relation to federal assistance provided during a provincial emergency and it sets out guidelines on how the federal government in general will respond to emergency 1 situations. 14. The other Act, the Emergencies Act, will, for all in- tents and purposes, replace the War Measures Act. This new to Act will enable the federal government to"fulfill its consti- tutional responsibility to provide for the safety and security of Canadians during national emergencies; this Act will be ^ subject to the Canadian Charter of Rights and Freedoms and the Canadian Bill of Rights. It has been drafted in consultation with the provinces and contains appropriate safeguards for provincial interests. The Act identifies four types of r emergency:

a. Public Welfare Emergencies: including severe na- 1 tural disasters or major accidents affecting public welfare, which are beyond the capacity or authority of a province to handle.

1 b. Public Order Emergencies: which constitute "threats to the security of Canada" are so serious as to be national emergencies and are beyond the I capacity or authorty of a province to handle.

c. International Emergencies: which arise from acts I of intimidation or coercion or the use of serious force or violence that threaten the sovereignty, security or territorial integrity of Canada or any I of our allies. d. War Emergencies: which include real or imminent armed conflict against Canada or its allies. 01 -5- I EPC 806

Safeguards have been included in the Act and they place a number of constraints on the government's use of special temporary powers. These inc1ude:

a. a provision that, in the case of public welfare or a public order emergency where the effects of the emergency are confined to a single province, the federal government may declare an emergency only after the province concerned has indicated that its capacity to cope has been exceeded;

b. a time limit and a geographical limitation on the application of the powers, and the emergency measures authorized by such powers;

c. a requirement to return to Parliament, with full justification, for Parliamentary approval of a continuation or amendment of the Act's application; and

d. a requirement to consult the provinces before declaring an emergency.

15. EPC is involved in many other programs; let me just list a few here without elaborating;

a. EPC administers the Disaster Financial Assistance Arrangement;

b. EPC is responsible for ensuring that arrangements are made to guarantee the continuation of responsible government in a decentralized fashion, during and after a nuclear attack;

c. EPC must coordinate civil emergency planning obli- gations with NATO and maintain a close working relationship as far as civil emergency planning is concerned with the United States;

d. EPC must keep the general public aware of emergency planning; and many other projects of less importance. Organization

16. To carry out all these duties, EPC has a staff of about 100 and an annual budget of approximately 5 million dollars. Administrative services are provided by the Department of National Defence.

-6- EPC 806

17. EPC is headed by the Executive Director for Emergency Planning, who reports to the Minister, the Honourable Perrin Beatty, on emergency planning matters. He is in turn supported by two Directors General, one in charge of the Plans Branch and the other responsible for Operations.

18. The Plans Branch is tasked with:

a. analysing trends and conditions that might have emergency implications;

b. formulating emergency policy;

c. developing and coordinating national emergency plans;

d. evaluating the state of emergency preparedness in Canada on a regular basis;

e. training key federal and provincial officials in their emergency functions;

f. coordinating Canadian aspects of international emergency planning; we have one member at NATO Headquarters; and

g planning national exercises and Canada's participation in similar international events (v1INTEX, BOLD STEP, HILEX).

19. The Operations Branch is responsible for:

a. identifying operational objectives and priorities, and developing federal crisis management procedures;

b. coordinating federal/provincial emergency preparedness activities through negotiations with provincial officials;

c. administering the JEPP program and the Disaster Financial Arrangement on behalf of the federal government;

d. providing the physical facilities necessary for continuity of government in time of war; e. developing an ongoing information program to ensure public awareness of potential emergencies; and

-7- I

EPC 806

f. directing the provision of administrative services for the entire organization.

20. To fulfill these operational responsibilities the Direc- tor of Operations relies on 10 regional directors located in I the provincial capitals.

21. In addition to gathering information on impending emergencies, and coordinating the federal emergency response when 1 required, these regional directors keep in close touch with federal government representatives in their respective regions to ensure a coordinated approach to federal emergency 1 planning. They also maintain a close liaison with provincial officials to ensure that federal plans are compatible with those prepared by other levels of government. I CONCLUSION

22. As can be seen, EPC has a large mandate to fulfill to- 1 wards the citizens of our country. We have to ensure that the plans are ready, that the resources are adequate and that the personnel is trained before a disaster takes place. When ! one of these happen, we have to coordinate the federal help to the provinces and to the municipalities until a lead department is appointed. And after the disaster is over, we administer, for the Federal government, the Disaster Finan- r cial Assistance Arrangements which can provide funds to help municipalities and provinces recover from the shock of the disaster. 1 1 I

September, 1988

-8- I EPC 1004 EMERGENCY PREPAREDNESS CANADA

MAYORS AND ELECTED MUNICIPAL OFFICIALS CONFERENCE GROUP DISCUSSIONS

In most courses, conferences and symposia, a favourite method of arriving at solutions or bringing out the ideas of all members is to break up into small groups or teams. These smaller groups retire to separate rooms, discuss a particular subject with the aim of arriving at a specific result or conclusion in a given time period. The results concluded by the various groups are then often reported centrally. This method is used extensively in all activities conducted at the College. To facilitate the conduct of the group discussions or team tasks and hopefully to make them more fruitful, the attached notes on group discussion, leadership and membership, have been included in your manual.

September, 1987

111 ANNEX A TO EPC 1004

GROUP DISCUSSION

CHAIRPERSON'S ROLE

1. Establish themself as Chairperson/leader, etc.

2. Establish simple rules:

• one at a time

• simple courtesy I • control by Chairperson 3. Appoint a secretary or recorder. I 4. Have a plan of action but be flexible. 5. Review the facts, nominate a member, define the problem, 1 get agreement on problem. 6. See that all are given an opportunity to contribute. I 7. Don't rebut suggestions - you are the co-ordinator and leader first - then a contributor. ào 8. Watch for and curb unwarranted assumptions. 9. Keep the discussion on track.

1 10. Bring together divided opinion (most difficult task). 1, 11. Sum up at intervals and at end. 12. Move discussion along to meet time deadline. I 13. Ensure a solution is arrived at with support of majority. 14. Report decision of majority and minority. I I September, 1987 r1 I ANNEX B TO EPC 1004 GROUP DISCUSSION MEMBER'S ROLE

1. Assist the Chairperson in arriving at and following simple operating rules.

2. Contribute to problem identification - and solution. 3. Identify yourself with group task and accept commitment for conduct of the group. 4. Listen with a sincere desire to understand other members' points of view.

5. Don't carry on side discussions. 6. Avoid monopolizing the discussion. 7. Assist the Chairman in summarizing group discussion. 8. Give wholehearted support to group discussion.

September, 1987

I. ANNEX C TO EPC 1004

PRINCIPLES OF GROUP DISCUSSION LEADERSHIP

l. Never compete with group members.

2. Listen to group members.

3. Don't permit anyone to be put on defensive.

4. Use every member of the group.

5. Keep the activity level high. 1 6. Keep members informed of progress. 7. Watch the strong members. 1 8. Do not manipulate people. 9. Work hard at the technique of chairman.

I 10. Remember you are not permanent. 1 to I I I 1 September, 1987 t I r I EMERGENCY PREPAREDNESS CANADA EPC 512 EMERGENCY READINESS EDUCATION PROGRAM

OPERATIONAL PLANNING PRINCIPLES

AIM To discuss the principles to be applied in operational planning. DEFINITIONS Planning. To plan, is defined as to devise a method or course of action. Planning is an anticipation of that something which has yet to be achieved. It is the line of action to be followed, the logical step to be taken and the system to use. In a practical, simple sense, it is the thinking about, the knowledge of, and the doing of what is necessary to achieve the mission. Planning, in relation to emergency situations, may be defined as the process of anticipating the need for the application of resources and manpower and determining the methods of obtaining and applying these resources to the right place at the right time to achieve the mission. Operations. Operations is the process of applying resources to events in order to achieve specific objectives or missions. In reality, this is a continuation of the planning process.

Operational Plan. An operational iplan is a description of the action to be taken in the face of an anticipated situation and the method or scheme for taking co-ordinated action to meet the needs of that situation. It describes the actions to be taken (the who, what, where, when and how) on the basis of assumptions, mission and capabilities. Assumptions. An assumption is a substitute for some missing fact and, unlike a fact, it can never be proven or demonstrated. It is nothing more than a best estimate of a probable situation or happening based on accumulated knowledge and analysis of known fact

PRINCIPLES OF OPERATIONAL PLANNING Sound planning for any operation or endeavour must be based on close adherence to the following principles: • Selection and maintenance of the mission. . Knowledge of resources. . Foresight. EPC 512 - 2 I

. Imagination.

. Concentration.

. Economy. . Co-operation. I . Lines of Authority. . Legal Authority. I Since selecting the mission must precede any further thought, this principle must come first. The remaining principles are not given in any particular order since their I relative importance will vary according to the nature of the operation in question.

Selection and Maintenance of the Mission. The selection and maintenance of the mission must continue to be considered the Master Principle. Prior to planning any operation and how it will assist in the attainment of the ulti- a, mate aim. Every mission, once selected, must be tested by its bearing on the supreme aim or mission. Once the mission has been'decided, all efforts must be directed to its attain- r ment until a changed situation calls for a reassessment of the circumstances and probably the selection of a new mission. In all cases, the mission must:be clear-cut, direct and concise.

Knowledge of Resources. A thorough knowledge of the availat,le resources in manpower and material is essential in I order to carry out effective operational planning. An intimate knowledge of the organization and capabilities of the various emergency services and supporting agencies; the loca- I tions, quantities, accessibility and operability of resources such as equipment, supplies, sources of energy, fuels, food stuffs, transport and machinery is imperative. i Foresight. Planning is always concerned with future events. Forecasts of these future events provide the planner with information upon which planning decisions can be reason- I ably based. It is therefore most important that these forecasts be as accurate as possible and based upon the best obtainable information. Thus, by the use of foresight, a I concept of operations can be evolved, requirements can be estimated, timings and actions can be anticipated, problem areas foreseen and plans adjusted accordingly. 1 Imagination. Closely allied to foresight is imagination. The imaginative use of available resources to replace resources which are required but not available, may eliminate - 3 - EPC 512 a great loss of time and effort. The imaginative use of organizations and agencies may eliminate a duplication of the effort or repetitive action or both. Imagination should be tempered with common sense. Concentration. As applied to planning, this principle of concentration means the massing of available resources, particularly with regard to the elements of time and manpower, to achieve the end result which is the operational plan. It means also having resources so disposed that the maximum effort may be achieved with the force available in the minimum of time. Economy. Economy of effort implies a judicious balance which must be established when weighing the forces and resources available against the mission to be accomplished and using only the amount which will adequately accomplish the mission as with imagination, reason and common sense enter here as well.

Co-operation. Co-operation is based on team spirit and entails the co-ordination of all organizations so as to achieve the maximum combined effort from the whole. Above all, good will and the desire to co-operate are essential at all levels. The increased interdependence of all organizations and agencies has made co-operation between them of vital importance.

Line of Authority. It is imperative that a recognized line of authority be established early and set out clearly in the planning stage. The responsible Headquarters or authority must be firmly established at the onset with the lower echelons and subordinates placed in their positions in the chain of responsibility and control. The limits of authority and control of all elements must be clearly laid down or the actions of some subordinate, operating without control, may jeopardize the overall plan. Legal Authority. Statutes and laws control our whole democratic way of life. Legal enactments and policies, at all levels, control and set limits on the actions and scope of governing bodies and committees, including emergency planners. It is essential that legal authority, in the way of local or provincial enactments, be made to establish parameters within which emergency planners may operate. For additional examples of principles, see Annex A attached.

June, 1988 ANNEX A TO EPC 512

SELECTED EXTRACTS ON PLANNING

These extracts are taken from the Royal Bank of Canada Monthly Letter Vol. 40, No. I entitled Planning for Efficiency.

SELECTION OF THE MISSION

"It has been proven under all conditions of war and peace that people succeed best who form definite ideas of what they are going to do before they start to do it. But no precept is more generally neglected. We drift into situations, and find ourselves at the mercy of circumstances. Planning is not a virtue in itself, but it brings many virtues in its train. It is one way to avoid entropy, which is the tendency of all created things to seek rest, to "run down". Planning, which involved looking ahead, takes us out of the complacency that accompanies seeing things only as they are, not as they might be. It protects us from thinking that this is the final chapter in our business career, our personal relationships, or our happiness. People who set themselves to succeed in a project by planning its course are greatly helped because so many have no aim or plan. The planners take the Measures necessary to as influence and make sure of the fulfillment of their aims. The only link between desire and its realization is the blue- print showing the parts needed, how they are put together, and the order in which to handle them. Fvery sector of industry involves planning. If you are going to build a new railway you cannot send your engineers out to survey a stretch of land; they must know where the terminus is to be and at what towns you wish your trains to /11 call on the way. If you are operating a factory you need to schedule every process, from delivery of raw materials through the machines to laying down your product at your customer's doorstep."

MAINTENANCE OF THE MISSION

"The person who wishes to plan ahead will first of all make sure of where he is now, and where he wishes to go. Then, if he takes the advice of Field Marshal Montgomery, he will work backward from his object to ensure that he starts his advance in the way best suited to the needs of the master plan. He will foresee difficulties, and he will not minimize them. He will keep track day by day or week by week of how fast he is going, in what direction. et ANNEX A - 2 TO EPC 512

The planner will keep his vision clear. He will not become so enamoured by devices and gadgets and paper work that he loses his perspective. Too many of us become hypno- r' tized by methods. Like the philosopher in Francis Bacon's Advancement of Learning, we gaze upwards to the stars and fall into the water, but looking aloft we could not see the water in the stars.

The executive in particular, but all of us in general, must cultivate the habit of paying attention to one project at a time. We may develop this habit along the lines used by a filing clerk. When we plan something, file it away under the date when it is to be taken up, close the file drawer on it, as it were, and go on with a clear mind to something 1 else.

Every plan should have two parts; strategy and tactics. 1 A comprehensive scheme is needed, within which you may manoeuvre to meet changing circumstances. If you are an executive, you may assign responsibility for various actions, 1 but you must not allow any subordinate to tinker with your master plan. If your plan is a personal one, you have great liberty in shifting ground tactically, but you should think seriously and thoroughly before allowing you grand strategy 1 to be upset.

Perhaps no blunder is so common as that which arises r from missing the proper moment for action. But how are we to recognize the moment unless we have prepared our minds by looking ahead? A Greek orator of two thousand years ago put t it to the men of Athens like this: "Philip, knowing his own designs, pounces on whom he pleases in a moment; we, when we hear that something is going on, begin to bustle and pre- I pare." Planning allows us to make a wise alliance with circumstances. When our plan brings success, we are in position to I follow it up; if it fails, we are ready to screen retirement while we put an alternative plan into action."

1 FORESIGHT

"It may be said that, as a general rule, any event suc- I ceeds or fails in proportion to the thoroughness of the preparation given it. Sketchy suggestions and half-baked plans do not appeal to the wise executive, and they should not find 1 a place in the planning of persons or committees engaged in rI -3- ANNEX A TO EPC 512 education, church work, service associations, or any other sort of responsible activity. When a group is struggling toward a decision, the man who will take the pains to think out and elaborate his plan in a clear consistency is likely to have his suggestion gratefully embraced. His planned ideas will dominate the undisciplined thoughts of his co-workers. He has examined the facts, he tells what they mean, and he recommends what should be done about them.

Consider the planning done by Captain Gabe Bryce, former pilot in the King's Flight, who took the 122-foot-long Vanguard airliner off its 1,260-yard runaway for the first time in December and guided it through the only gap in the encircling hills. For two years he rehearsed every move, did his finger exercises in the cockpit of the prototype every day, invented emergencies and met them. Only after planning in detail is a man ready to take the risks of important actions. Troubles are less if we have anticipated them and planned how to meet them. Even if we seem to be surrounded by difficulties, looking ahead enables us to balance alternatives. We say to ourselves: "If I take this road, or that road, such-and-such issues will confront me; if I stand still, these other things will come upon me." Then we make a choice based upon exact knowledge. The mere act of putting things down on paper - the what, when, where, why and who of any problem or project - will of itself give us guidance and generate ideas. Our personal analysis of adequate facts, brushing aside the non- essentials, will give us a clear-eyed view, so that we may plan our course and estimate the time and energy and material needs. In this appraisal it is the most necessary to ask repeatedly: does this really matter? The question tends to sharpen our opinion about the relative importance of factors. Nothing can be more significant in planning than assur- ance that the facts are accurate, properly interpreted, cor- rectly linked together, and free from bias. To make this judgment, we need background. Before entering tomorrow, let's turn on the light in the back room and look at what useful records and memories we have stored there. A business man compares today's assets and liabilities with yesterday's, and make plans for tomorrow by studying the movement thus indicated in conjunction with the conditions of today. Choosing facts upon which to base plans is not a matter of pecking like fowl in a barnyard, finding a grain of fact here and there. We must be selective, to isolate essential actualities from the opinions and rubbish in which they may be imbedded. ANNEX A - 4 TO EPC 512

Some facts are incidental, unimportant: merely good for casual conversation. Others are vital to our master plan. If they are part of or affect anything within the circle of our strategy, we must pay attention to them. if they are outside that area we should not dissipate energy and r attention on them." PUTTING PLANS TO WORK

"And then, having collected facts, analysed them and considered various paths that might be followed, and formed a plan from it all, there remains to make something of it: action."

Just as plans for the city beautiful will never see the light of day as buildings, parks and roads without physical I effort on the part of countless people, so plans for a business project or for happiness in life will come to nothing unless we use our energy to carry them out. An objective to I which we have planned our course is something to work toward, and the emphasis now is upon the word "work". Ella Wheeler Wilcox remarked wisely in one of her poems: "The fault of the age is a mad endeavour to leap to heights that were made 1 to cllmb."

A highly successful executive will tell you that he has I* to do more than bring forth ideas. H&, has to plan how to make the ideas effective, but, most important, he has to push I the plans through to successful completion. In this part of his work he will meet many frustrating experiences. His assistants may be unimaginative, unable to catch the spirit of his plan. His workmen may be incompe- I tent, lazy or careless. Many unhappy occurrences, business and private, may discourage him. But his master plan will have included the bringing of all controllable circumstances I up to the peak required for satisfactory performance of the duties needed for success of his plan.

Just as soon as the plan is launched it must be ready 1 to sail. Much trouble was caused during the war by what the naval experts called "teething troubles" in gun mounts, whereby ships went into action with incomplete firepower. A t new plan, like a new ship, must be ready to fire at once and with all its armament. As Captain Russell Grenfell remarks in The Bismark Episode: "It is no use a ship streaming into I action flying a kindergarten flag meaning 'I am still in the infancy stage. Please only fire half your guns at me.'" Ir ^ EMERGENCY PREPAREDNESS CANADA EPC 514 EMERGENCY READINESS EDUCATION PROGRAM ESTIMATE OF THE SITUATION

AIM

To present a logical process of analysing a situation and reaching a sound conclusion. GENERAL

To term "estimate of the situation", as it is called, means nothing more than an orderly sequence of reasoning leading logically to the best solution to a problem. An estimate of the situation is a well ordered and sensible way of dealing with any problem. It is a systematic process for anticipating requirements, determining resources, and selecting methods of applying resources to accomplish objectives. A written estimate of the situation will normally be produced: • Because a person in authority wishes to clear his mind in order to choose between conflicting advice and come to an objective conclusion, or

• to present the reasoning that led to the coice of a course of action.

The training given in the preparation of estimates of the situation aims at giving practice in a form of writing used by executives and staff officers. It helps one to think and write, logically and clearly. FORM

There is no rigid style or format for use when writing an estimate of the situation. A suggested format is given in Annex A attached. This can be used as a guide for most estimates. It may be adapted as necessary to fit the particular situation or problem under consideration. Many written articles require exactly the same reasoning as an estimate of the situation, but they are written in the form of a brief, a paper or a summary. Whatever the form, the aim is to produce a reasoned and logical argument which will enable one to arrive at a sound conclusion. EPC 514 - 2 -

METHOD

Some hints which will be of assistance in writing an estimate of the situation are as follows:

. Never attempt to write out an estimate of the situation in full at the first attempt. Your thought processes will be slowed down and many valuable factors or deductions forgotten. Record your thoughts I in note form in rough as they occur. In this way, you will be able to review all the factors with complete impartiality. Later you can arrange them in the correct sequence. . In lengthy discussions be prepared to summarize or t recapitulate at intervals, otherwise the argument may be hard to follow. This is useful when conclud- ing your estimate of the situation and arriving at your recommendations. 1

A sketch map often helps to explain your arguments, particularly when it is desired to show clearly the a situation at the time of writing, and as it would be later if the plan were put into effect.

SEQUENCE AND HEADING 1

Estimates of the situation should.be developed in the following sequence: N The aim or mission to be attained. i Factors which effect the attainment of the aim.

. The courses open or considerations of methods of action including alternative courses. 1 . The plan. t THE AIM The value of the estimate depends primarily upon the I correct definition of the aim.

The aim must be within the bounds of immediate planning. There can only be one aim and a good deal of prelimin- I ary thought will usually be necessary before it can be determined. The aim should give, in simple terms, a full picture of the desired result. The author must, therefore, carefully t sift the various data or premises before him and divide them carefully in to the following categories:

I - 3 - EPC 514

• Those that are fixed and beyond his power to alter. These are part of the aim.

• Those which practical alternatives can clearly be found. These are factors and must be fully debated in the body of the estimate of the situation. Inevitably there will be other conditions affecting the aim, such as the time by which it is to be achieved, the method of operation and the forces or resources available. The methods of carrying out the Aim and its limitations will be fully explored under Factors, and the plan which finally emerges must fully satisfy the Aim and its limitations. Every limitation, whether stated in the aim paragraph, or elsewhere, is therefore, considered under Factors. The final point about the aim, plus its limitations, is that together they constitute the bones of the problem to which an answer must be given in the plan. If the aim has a time limitation, the plan must satisfy it. The AIM must answer the following questions:

• What have I got to do? • Are there any limitations? FACTORS Consideration of the factors which affect the attainment of the aim involves a general study of all information which can be obtained from all sources. Having decided what factors affect the plan, they should be arranged in logical sequence.

The factors to be considered will vary with every situation, but there are a few which will dominate the others. A factor is defined as "a circumstance , fact or influence, Contributing to a result". Factors which lead to no conclusion should not normally be mentioned. Deductions. When drawing deductions, go through each factor in turn, look at it closely and see what deductions may be drawn from it. There are many ways of doing this. Some say - "So what", or "therefore", after each factor. Others ask themselves "How does this affect me?" and "What can I do about it?" It does not matter what system is used provided: • Each deduction is made in relation to the aim. EPC 514 - 4

. Each factor is "squeezed dry" of every deduction that has a direct bearing on the aim.

Undue weight is not given the deductions from one factor that allow it to influence the estimate toward any definite course of action until all the others have been studied and their combined influence has been assessed. I . The conclusions are true deductions and not assumptions .

Vague, indecisive deductions are of no use whatever; deductions must be clear, definite and appropriate to the problem.

Summary of Major Deductions. If the estimate is long or includes a large number of factors, it is useful to summarize the most important deductions. All major deductions I must be included in the summary even though they may appear -to contradict one another. No new deductions should be introduced, but two or three deductions may be combined into one. It can then be seen at a glance which are going to 11 affect the possible courses of action and the plan. COURSES 1 Having looked at the summary of deductions it should be clear that there are several methods of âccomplishing the aim or objectives. These courses or methods should now be exam- M ined and alternative courses analysed and compared. The advantages and disadvantages of each course of action are weighed and compared until it is obvious that one course of I action has more advantages or fewer disadvantages than the others. This is the course that should be adopted.

PLAN 1

Finally, the plan must be the logical outcome of the consideration of the relevant factors and the various I courses. It should not introduce any matter that has not been considered in the estimate. It must fully achieve the aim. I The plan should be given in sufficient detail for an executive or staff of f icer to draft the necessary orders to I put it into effect. It should include the mission, the allotment of forces or resources, and main timings. Routine matters of administration and inter-communication may be omitted. t

I -5- EPC 514

CONCLUSION

This precis is not a complete guide to the writing of estimates of the situation, but it is important that you approach a problem logically and systematically if a sound solution to the problem is to be found. Remember the sequence: AIM, FACTORS, COURSES and PLAN.

September, 1987

ANNEX A TO EPC-514

SUGGESTED FORMAT FOR AN ESTIMATE OF THE SITUATION

ESTIMATE OF THE SITUATION

by (Name of Author) at (Name of place) at (Hour and date)

MAPS: (Details of maps or sketches used) 1. AIM (The exact aim of the estimate of the situation with limitations, if any.)

2. FACTORS (Consideration of factors which affect the attainment of the aim.)

3. COURSES (The courses open must be discussed and a conclusion reached.)

4. PLAN (The plan must be the logical outcome of the considerations of the relevant factors and the various courses and give an outline of the concept of operations.)

September, 1987 I EPC 715 EMERGENCY PREPAREENESS CANADA

EMERGENCY PREPAREDNESS PROGRAM

BRIEFINGS

INTRODUCTION I 1. A briefing is a frequently used method of keeping people informed of a project or situation. It is a gathering together of a selected group of individuals or workers who I have a common interest in a project or situation. 2. The aim of a briefing is to inform these people of - the project and its current status or of changes to a pre- 1 viously agreed on plan of action. 3. A briefing may be carried out or presented by one person in the entirely or by a group of people each of whom 1 presents expert advice or technical information concerning some aspect of the project or situation.

4. As planners, in most cases, our proposals are subject to approval by some higher authority. This higher authority quite often will be a group of elected officials. Most of I these people are busy individuals who have a limited amount of time to listen to our proposals or reports. Our presentation, therefore, must be as clear and concise as possible if N we are to be successful in selling our ideas. 5. Since a briefing may be thought of as a training ses- sion as well as a sales pitch, the success of a briefing is I dependent on the application of some of the principles and techniques of good instruction, as well as on the personality I and capability of each person assisting in the presentation. PRINCIPLES OF GOOD INSTRUCTION

6. Various authorities in the educational field have I drawn up lists of principles of good instruction. The following meets our need: I Selection and maintenance of the aim. Careful planning and preparation. Create and maintain interest. I Correct use of senses. Promote maximum and purposeful activity. Simplicity in explanations. Consideration of human factors. I Confirmation.

The items in this list are reminders to people preparing briefings that when consideration is given to those principles which apply to their particular situation, then the briefing is more likely to be a success than if those principles are ignored. I EPC 715 7. The two most important principles, in order of priority are: Selection and maintenance of the aim, and Careful planning and preparation. 411-11 The selection and maintenance of the aim is of prime importance. Determine where you wish to go and keep headed in that direction. If you don't, you are unlikely to reach your goal. Once you have decided what it is you wish to accomplish, then by careful planning and preparation and by using the techniques and training aids available to you, you will succeed in your aim. TECHNIQUES 8. There are a variety of techniques you may use, in making your presentation. These range from a simple verbal presentation made by one person to a team approach employing sophisticated audio-visual equipment. A well planned and executed presentation will ensure your success. TRAINING AIDS 9. There are also a variety of training aids you may use, but you will often be limited in the time and resources available for their production.

10. One of the easiest training aids to prepare and use is the "Flip Chart". You should limit the amount of information on any one page; keep it clear, visible and readable by your audience.

11. We are inclined to use abbreviations (revu for revo- lution) and acronyms (EMO for Emergency Measures Organiza- tion) in our speech and when preparing training aids because we understand their meanings. However, one misunderstood abbreviation or acronym may destroy the whole point of a presentation. When in doubt, explain any terms so there can be no misunderstanding. PREPARATION

12. When you are preparing your presentation ask yourself a number of questions, such as: What is the purpose of the briefing? What are the major points I want to bring out?

Who are the people to be briefed and what do they know already? EPC 715

When and where is the briefing to be held?

What method of presentation will best suit the group?

What administrative points must be considered?

13. The answers to the planning questions, what, where, I when, who, how and why will set the parameters of the briefing for you.

14. Having done this continue with your preparations by selecting all your material, assembling your facts and figu- res, deciding how you will organize your time and your pre- I sentation and selecting your audio visual aids. When you have your presentation outlined, carry out rehearsals; correct, add and delete material as required, until the presen- I tation meets your aim. 15. The presentation of your briefing must proceed with the smoothness and perfection of a well rehearsed stage show, 1 nothing will detract more than a training aid that doesn't work, a slide in the wrong way, a word misspelled in a sign. Blunders like these divert the attention of your audience I from the message you are trying to get across to them. They remember instead, the briefing officer who couldn't spell, the projector that didn't work and the chart that was upside M down. 16. Thorough preparation is the key to success. Sir Winston Churchill once said "every minute of a speech repre- I sents one hour of planning, preparation and rehearsal". He also said "every pregnant pause, every gesture and each epic phrase was planned and rehearsed beforehand". This is how 1 experts become great. STAGING AND CONDUCT

I 17. The location chosen for your briefing is important. Conducting an operational briefing in the operations room of a headquarters adds to the impact of the message because of 1 the realistic surroundings. Other considerations include: room size, seating, t lighting, ventilation, I acoustics.

I EPC 715 ON THE PERSONAL SIDE 18. a. It is essential the person or persons conducting a briefing have a thorough knowledge of all aspects of the subject. Nothing destroys a spea- ker's credibility faster than the inability to answer questions quickly and accurately. Be po- sitive and be right. b. It is not natural for an individual to stand in front of a group of people and address them. In this situation, it is natural to be nervous, accept this and you have gone a long way toward overcoming those nervous mannerisms (playing with the chalk, talking to the floor, etc, etc, etc) which distract an audience. SUMMARY

19. Conducting a briefing is like staging a play: Define your purpose, Gauge your audience, Assemble the necessary data, Prepare your script and training aids, Rehearse your cast and assistants, Announce the program,. Put on a well prepared and well rehearsed performance, and you will make a successful presentation.

April, 1988 EPC 803

EMERGENCY PREPAREDNESS CANADA

EMERGENCY READINESS EDUCATION PROGRAM

EVALUATION OF PEACETIME DISASTER HAZARD r INTRODUCTION

The increasing concentration of people in small and large urban centres, and the higher dependence on modern technology in our society have increased the effects of disasters on individuals and communities. However, the effects of a disaster can be mitigated by planning to meet the emergency situations caused by the disaster.

The purpose of this paper is to provide guidance for 1 the evaluation of peacetime hazards to a given community. The awareness of the presence of hazards and the likelihood of their occurrence serves as a basis for assigning priori- I ties in the planning for peacetime disasters. I DEFINITIONS Hazard evaluation is for our present purpose defined as the systematic collection and analysis of past and present data relating to natural and manmade disaster events, aimed N at estimating the future peacetime disàster hazard. Simi- larly, a disaster is an event producing extreme danger to or loss of life, and or extensive material damage, all of which I are beyond the capability of a single jurisdiction to deal with. I ANALYSIS PREPARATION The analysis of the vulnerability of a segment of the population to a hazard requires the collection and evaluation I of a number of data. Such data will include population information in general terms; type and location of "important industries", type, distribution and location of transporta- I tion facilities; meteorological, geographical and natural features of the area as well as of adjacent areas, etc. Data on past disasters are also needed in order to estimate the likelihood of future occurrences. The detail to which such I data are required will be discussed and possible sources of data indicated in the following.

I Population. The concern for the population within the area considered is the main reason for carrying out an evaluation of hazards. A description of the population in I the area at risk to any particular hazard is therefore required. The following information is needed: 1P I EPC 803 - 2 -

• number • distribution • habitat • seasonal variation in above Industries. A listing of the most "important industries" must be prepared. In this sense "important" shall be understood to mean that an industry is listed for consideration because it is directly or indirectly a major provider of income for the area and/or because it constitutes a potential hazard to the area. The information required for such industries includes: . size (monetary, physical) . location . number of employees • hazardous products produced • hazardous products used in production • methods of storing and shipping hazardous products • seasonal variation in above Transportation. The various transportation systems can be vital sources of income or the population may depend upon them for life necessities. The systems can also constitute a hazard. This hazard is created by the possibility of crashes and/or escape of hazardous products. The data needed are:

• types of systems encountered

. location of terminal or storage facilities • hazardous cargoes carried . procedure for handling and/or re-routing such cargoes . traffic density . essential goods carried to area • seasonal variation in above -3- EPC 803

Natural Features. The knowledge of the geographical and natural features of the area under consideration are of importance when evaluating natural hazards and their effects. The features that should be considered include the characteristics of coasts, rivers, lakes, other waters, mountains, valleys and plains. The weather patterns of the area will give an indication of the likelihood of floods, droughts, hurricanes, etc.

Historical Data. The history of actual damaging events in the area should be evaluated with an emphasis on such factors as timing, duration, geographical extent, community organization, economic losses, and type of destruction. These factors are more significant in terms of human losses and response than detailed geographical variables and are also common measures for the most damaging events. EVALUATION METHODS

To obtain a better picture of the hazard potential of an area it is desirable to make estimates of the likelihood of occurrence of disasters.

In the natural environment there is an underlying pattern of magnitude and frequencies that can be measured and estimated within a certain margin of error. Furthermore, nature remains fairly constant over decades and even cen- turies, so that the record of the past yèars will give a fair indication of what may be expected in the future. Estimates of return frequencies for hazards of natural origin can, therefore, be made based on a study of the history of the area.

The same cannot be said of human activities. The frequency of hazards related to "human error" leading to disasters is not easily measuL-ed or predicted. Even if the frequencies for "human error" could be established, the cons- equences of an error vary dramatically with the circumstances in which it occurs. A large factor here is the technology being employed, as new, more advanced and complex industrial and transportation systems make larger disasters possible. The lack of understanding of all the variables in human behaviour and the great uncertainty regarding the conse- quences of a human error makes it clear that the record of the past years cannot provide the same kind of guide to the future as it does for natural hazards. However, under the present circumstances there is no justification for discard- ing the records of the past years. They may not provide very good guides, but they are the best we have in the absence of anything more reliable. EPC 803 - 4

EVALUATION PROCEDURE

The peacetime hazard evaluation begins with an evaluation and description of the background of the community. This information will include a description of the geo- graphic, demographic, economic and industrial features of the area, thus outlining that which might be exposed to disasters. The meteorological data for the area, with additional I indication of past extremes, will provide a guide to the type of natural hazards that can be expected. The description of this background will form the introduction to the report, and I should be supported by maps marked to show key features, such as dam sites, flood prone area, hazardous man-made installa- tions, etc. I The identification of potential hazards is based on three approaches: I Historical Record - The records of the past relating to natural and man-made disasters are re- viewed to determine what the experience of the 1 community has been. Some of the sources will be found at local government offices, newspaper files, utility compar,ies, meteorological stations, and from interviews with long time residents. I

Analogical Method - Entails a study of the historical records of, or the hazard analyses performed M by other similar communities, and transferring them, with necessary change, to the community under consideration. Sources must be found in I archives or at the other communities.

Industrial Survey - A survey of the industrial composition of the area, including transportation I routes for hazardous products and major changes affecting natural processes, can form the basis for a rough establishment of the risk magnitude of I each industrial activity. Information sources include local planning and utility departments, transportation companies and local industry. I The confidence one would have in a result is not independent of the approach used. The historical approach is considered more "accurate" than the other two, unless for 1 example the hazards of industrial activities have been assessed by an expert in that particular field. For this reason the results of the last two methods will be given a lower weight in comparison with the result obtained by using the historical records.

1 1 - 5 - EPC 803

A standard form, "Form A" has been prepared for the evaluation of natural and man-made peacetime hazards. The form is used to identify all hazards that pose a potential threat to the community.

If a hazard has occurred or could occur it is given a rating in accordance with the following rating scales:

Historical (Column 1) 1 One or two occurrences; slight damage; few persons involved; few probLents; easily handled. 2 Few occurrences; minor damage; more persons involved; some difficult problems; minor expense. 3 Several occurrences; some major damage; many persons involved; several problems; major expense. 4 Frequent occurrences; very heavy damage; large number of victims; many problems; heavy expense.

5 Frequent occurrences; very heavy damage; large number of victims; many complex problems; very large expense.

NOTE: If a specific hazard has never occurred in the community, leave the Historical column blank.

Change in Conditions (Column 2) • The rating of this column varies from minus three (-3) through zero (0) to three (3). It is a measure of the influence of changes in conditions on the historical rating. If no relevant changes have taken place, the rating is zero (blank) increasing to three in cases where major changes have made the community more susceptible to hazards than indicaLed in column (1). Similarly a rating of down to minus three would indicate that changes have alleviated the risk of a hazard.

Effects from Other Areas (Column 3) Ratings in column 3 are based on the same scale as column 2 above.

Lack of Ability to Cope (Column 4) Ratings from zero (0) up to three (3) in a community itself and the other closer communities EPC 803 - 6 1

do not have the ability to cope with the effects of the potential hazard.

The sum of the ratings forms the basis for the assignment of a planning priority to the various potential hazards. I I

I I « I

September, 1988 1 -7- ANNEX A TO EPC 803

PEACETIME DISASTERS

RATINGS OF COMMUNITY DISASTER PROBABILITY Name of Community: Date:

Name: Position: 1. How would you rate the probability of the following events in your community, within this coming decade? Please rate them in terms of the following six point scale by circling the appropriate number. 0 - Not applicable to my community 1 - Not probable 2 - Low probability 3 - Moderate probability 4 - High probability 5 - Nearly certain AVALANCHE 0 1 2 3 4 5 BLIZZARD OR MASSIVE SNOWSTORM 0 1 2 3 4 5 CHEMICAL CONTAMINATION OR SPILL 0 1 2 3 4 5 DAM BREAK 0 1 2 3 4 5 DROUGHT 0 1 2 3 4 5 EARTHQUAKE 0 1 2 3 4 5 ELECTRIC POWER BLACKOUT - 0 1 2 3 4 5 EPIDEMIC 0 1 2 3 4 5 FLASH FLOOD 0 1 2 3 4 5 FOREST OR BRUSH FIRE 0 1 2 3 4 5 FREEZING ICE STORM 0 1 2 3 4 5 HURRICANE 0 1 2 3 4 5 MAJOR FROST AND FREEZE 0 1 2 3 4 5 MAJOR GAS MAIN BREAK 0 1 2 3 4 5 MAJOR HAIL STORM 0 1 2 3 4 5 MAJOR INDUSTRIAL EXPLOSION 0 1 2 3 4 5 MAJOR WATER MAIN BREAK 0 1 2 3 4 5 MASSIVE AUTOMOBILE WRECK 0 1 2 3 4 5 METEORITE FALL 0 1 2 3 4 5 MINE DISASTER 0 1 2 3 4 5 MUD OR LANDSLIDE 0 1 2 3 4 5 OIL SPILL 0 1 2 3 4 5 PIPELINE EXPLOSION 0 1 2 3 4 5 PLANE CRASH IN COMMUNITY 0 1 2 3 4 5 RADIATION FALLOUT 0 1 2 3 4 5 RIVER FLOOD 0 1 2 3 4 5 SAND/DUST STORM 0 1 2 3 4 5 SEVERE FOG EPISODE 0 1 2 3 4 5 SHIP DISASTER IN HARBOUR OR NEARBY COAST 0 1 2 3 4 5 SMOG EPISODE 0 1 2 3 4 5 SUDDEN WASTE DISPOSAL PROBLEM 0 1 2 3 4 5 ANNEXA -8 TO EPC 803

TORNADO 0 1 2 3 4 5 TSUNAMI OR TIDAL WAVE 0 1 2 3 4 5 VOLCANIC ERUPTION OR FALLOUT 0 1 2 3 4 5 WATER POLLUTION 0 1 2 3 4 5 WATER SHORTAGE 0 1 2 3 4 5

2. Which organizations or groups in your community, if any, have major responsibility for the following tasks in connection with a large scale disaster? a. Pre-disaster overall community emergency planning:

b. Warning: c. Stockpiling emergency supplies and equipment:

d. Search and rescue: e. Evacuation: f. Compiling lists of missing persons: g. Care of the dead: h. Maintenance of community order: j. House victims: k. Providing food and clothing to victims: 1. Establishing a pass system: m. Overall co-ordination of disaster response:

OTHER REMARKS 9 - ANNEX B TO EPC 803

PROVISIONAL LIST OF POTENTIAL EMERGENCIES

FOR DEVELOPING FEDERAL CONTINGENCY PLANS

The following definition of an emergency will be used in the development of federal contingency plans:

An emergency is an abnormal situation which, to limit damage to person's property or the environment, requires prompt action beyond normal procedures.

In the interest of providing a uniform interpreta- tion, the definition of an "essential system" as indicated in the list is as follows:

"Any system through which disruption or loss would prejudice lives an:y property."

The list of emergencies provided below is not exhaustive: it will be amended as required to meet changing or new situations and demands. Departments and agencies may form I their own more detailed lists: GROUP EMERGENCY

M ENVIRONMENTAL Pollution - Air - Land I - Water Endangering a species I NATURAL Avalanches Landslides I Blizzards I Snow Hail I Frost and Freeze-ups Ice Storms I Cold Wave I Droughts io I ANNEX B - 10 - TO EPC 803

NATURAL (cont'd) Floods - Predictable - Flash - Dam Burst Torrential Rain Hurricanes

Tornadoes High Winds Severe Thunderstorms Heat Wave Magnetic Storms Fog Earthquakes Tidal Waves (Tsunami) Sea and Lake Surges Crop Disasters Forest Fires INDUSTRIAL Urban Fires Power Failures Explosions Mine

Nuclear Reactor Accidents Structural Collapse Hazardous Chemicals (in plant) Dam Bursts

TRANSPORT Transportation - Rail - Ship II - Air - Road - il - ANNEX B TO EPC 803

TRANSPORT (cont'd) Hazardous Materials in Transit

Ice Jams in Shipping and other Critical Areas I POLITICAL AND SOCIAL Assassinations Air Piracy I Bombs and Bomb Threats Civil Disorders

1 Disturbances - Riots

Insurrections

Sabotage 1 Strikes Subversion

I Terrorists N INTERNATIONAL War Events occurring in or outside of Canadian Terri- ^ tory whi.ch endanger Canadi- an interests or the interests of another country.

' OFF-SHORE EMERGENCY Events occurring in the waters contiguous to Canada or on the continental shelf , which endanger Canadian national interests. I ESSENTIAL SYSTEMS FISHERIES EMERGENCIES I FOREST DISEASES AND INSECT INFESTATIONS t EPIDEMICS Human Disease Animal Disease

Plant Disease

I 111111 1/11 Ole OM WM MI 111/11 111. 1111111

PEACETIME HAZARD EVALUATION

MUNICIPALITY FORM "A"

RATING FOR POTENTIAL* . Sum of Planning POTENTIAL HAZARD Priority Historical Change in Effects from Lack of (1) to (4) Conditions Other Areas Ability to Cope (6) (1) (2) (3) (4) (5)

. , *Rating to be entered in column (1) is based on a scale ranging from 0 (no potential) to 5 (high potential based on historical evidence. Rating in columns (2) and (3) is based on a scale ranging from -3 (great improvement) through 0 (no improvement) to +3 (deterioration) from historical records. -3> Rating in column (4) is based on a scale ranging from 0 (no change) to 3 (high effect) on hazard Oz potential. trl z

œC) I - '2 - ANNEX D TO EPC 803

EXAMPLE EVALUATION OF PEACETIME HAZARDS

FOR ASHGROVE, ONTARIO

BACKGROUND

Ashgrove, Ontario is a city with a population of about 500,000 with 60% living in single family dwellings. The city has developed over the last century around the Welland and Thames Rivers. Consequently the building structures consist of a mixture of old type and new high rise type buildings.

The city has a major airport accommodating jumbo jets at a rate of about 20 a day. There are not important industries in the area. The city is traversed by the Trans-Canada Highway and road transport through the city is extremely I dense and contains loads of dangerous products. Ashgrove is subjected to annual floodings and heavy snowfalls. Occasionally it has experienced windstorms of I hurricane magnitude. HAZARD EVALUATION

M The ratings for disasters shown in Form "A" has been arrived at as follows:

I . Hurricane, Tornado, Windstorm Ashgrove has experienced severe windstorms that so I far only have led to minor damage. The rating of 1 (one) in Column 4 indicates that there exists a fair capability for coping with such events.

I . Flash Flooding

Flash flooding occurs mainly at the same time of the year as normal flooding. Therefore, it has been assessed generally low, with the main impact shown under flooding.

Flooding

Annual floods occur in Ashgrove involving many persons. The flooding is, at times, aggravated by extensive rains causing high water levels at the centre portion of the city. New land development and changes affecting the drainage basin may increase the probab-:lity. I ANNEX D - 13 - 1 EPC 803

. Blizzard, Heavy Snowfall Past weather records form the basis for this rating. 1 Earthquake

The National Building Code (Supplement No. 1) indicates that Ashgrove is situated in a Seismic Zone 2. Accordingly, although no historical data of earthquakes occurring in the city exist, the rating has been set as shown. Remainder 1 The remainder of the potential hazards have been assessed and rating shown in the cases where there 1 are a potentiality for the hazard. No other hazards than those shown were applicable for this city. 1 Result The planning priority ranking for Ashgrove should 1 be: Flooding tim Fires Airplane crash 1 Dangerous goods in transit 1 Blizzards Earthquake 1 4 • PEACETIME HAZD EVALUATION

MUNICIPALITY Ashgrove FORM "A"

RATING FOR POTENTIAL* Sum of Planning POTENTIAL HAZARD Historical Change in Effects from Lack of (1) to (4) Priority Conditions Other Areas Ability to Cope (1) (2) (3) (4) (5) (6)

Fires (Bldg,Industria l) 4 2 - 1 7 1

Explosions

Dangerous Products in Plant

Dangerous Products in 3 1 - 1 5 3 Transit

Airplane Crash 2 2 - 2 6 2

Train Accident 2 1 - 1 3

Motor Vehicle Accident 3 - - - 3

Boat Accident 2 - - - 2

Pollution 1 1 - - 2

Structural Collapse 2 1 - - 3

Utility Failure 2 - 1 - 3

*Rating to be entered in column (1) is based on a scale ranging from 0(no potential) to 5 (high potential) based on historical evidence. Rating in columns (2) and (3) is based on a scale ranging from -3 (great improvement) through 0(no improvement) to +3 (deterioration) from historical records. Rating in column (4) is based on a scale ranging from 0(no change) to 3 (high effect) on hazard potential. OMMI umme 111111 MR MOM Mlle MI Mie PEACETIME HAZA D EVALUATION

MUNICIPALITY Ashgrove FORM "A"

RATING FOR POTENTIAL* Sum of Planning POTENTIAL HAZARD Historical Change in Effects from Lack of (1) to (4) Priority Conditions Other Areas Ability to Cope (1) (2) (3) (4) (5) (6)

Hurricane, Tornado, 2 - - 1 3 Windstorm

Flash Flooding 1 - - - 1

Flooding 3 1 1 2 7 1

Blizzard, Heavy Snowfall 3 - - 2 5 3

Earthquake 2 - - 3 5 3 Droughts

Landslide, Avalanche 2 1 - 1 4 Tidal Waves, Tsunami

Epidemics (Man, Animal, 1 - - 1 2 Plant) Animal or Plant Invasion

*Rating to be entered in column (1) is based on a scale ranging from 0 (no potential) to 5 (high potential based on historical evidence. Rating in columns (2) and (3) is based on a scale ranging from -3 (great improvement) through 0 (no improvement) to +3 (deterioration) from historical records. Rating in column (4) is based on a scale ranging from 0 (no change) to 3 (high effect) on hazard potential. EPC 805

EMERGENCY PREPAREDNESS CANADA

EMERGENCY READINESS EDUCATION PROGRAM

COMMON CHARACTERISTICS

OF PEACETIME DISASTERS

The attached papers will illustrate some of the common characteristics of various peacetime disasters. Annex "B" lists a number of Peacetime Disasters showing possible major effects, potential actions at the scene, the Agency likely to be responsible, the types of equipment likely to be needed to meet the disaster, and the likely source of such ! equipment. Annex "A" portrays the same information in the form of a Matrix which more easily illustrates those elements 1 which are common to one or more types of disaster. They may A be used in a municipality as a planning tool. r It y I I 1

April, 1988

ANNEX A TO EPC 805

TYPES OF DISASTERS

• ... 1 •P . •5 i C C i g k ,... 4. g le W , g C g ! iel..:8: rI 5 .,. i L. : 5 t., Il 7 ° 7 4 t 1. PEACETIME DISASTER PLANNING .., es .0 7 E «E• "E' « 0 . 0 1 ... e, t .=.' 5 : 7:, 7, "..:' t t .t .t e.?, ,-ie r....: te_ t,... ,., : r5 ■ 2A r â. â ..:.• .7. ... , Ê â : L, t ..5. L. 8 ! 2

SERIAL POTENTIAL ACTIONS ASCDEP 0 MJ ELMNOPQR S General Actions 1 Warning of Imminence X X X X

2 Reconnoitre and obtain accurate XXXIX XXIX X X X XXXXX X ssssss ment 3 Warn other areas that may become X XXIX X involved 4 Determine jurisdiction and responsibility for 'pecific action (a) XXXXXXXXXXXXXXXX X X 5 Establish lines of authority X X X X X X X X X X X XXXX X X X 6 Establish emergency headquarters XXXX X X X X X X X X X X X X X X 7 Establish adequate communications X X X X X X X X X X X X X X X X X X 8 Determine special equipment required (b) X X XXXX X X X X X X X X X X X X 9 Establish a local danger area X X X X X X X 10 Eliminate hazards from damaged utilities X X X X X X X X X X X 11 Rescue X X X X X X X X X X X 12 Provide for volunteer control X X X X X X XXXX X 13 Arrange for additional manpower X X X X X X X X 14 Arrange for feeding and lodging of workers X X X X X X X X X X X X . x 4- Health Actions 15 Determine number of casualties X X X X X X X X X X X X X X X X X 16 Determine number of deaths X X X X X X X X X X X X X X X X X 17 Determine number of missing X X X X X X X X X X Notify hospitals of casualties 1118 including numbers and types X X X X X X X X X X X X X /F19 Request medical assistance and ambulance service XXXX X X X X X X X X X 20 A danger to public health X X X X X 21 Establish emergency medical facilities X XXXXXXXXX X X 22 Establish first aid posts X X X X X X X 23 Establish a morgue X X X X X X X X X X X Welfare Actions 24 Provide emergency lodging XXXX X X X X X X X X X X X 25 Provide emergency feeding X X X X X X X X X X X X X X X 26 Provide emergency clothing 1 X X XXXX X X X X X x X X 27 Set up registration and inquiry service X X X X X X X X X X X X X 28 Provide personal services X X X X X X X X X X X X X X X 29 Establish special assistance for eged, infirm and home patients X X X X X 30 Arrange for evacuation of population XXXX X I I X X 31 Arrange for evacuation of livestock X I I X X X I X X

Police and Fire Actions 32 Police requirements XXXXXXXX XXXXXXXXXX 33 Fire fighting requirement' X X X X X X X X I X 34 Crowd control st scene of disaster I X X X X X X X X X X 35 Evacuation of threatened population X X X X 36 Traffic control including emergency routes XXXXXXXX X I X I XXXX ANNEX A TO EPC 805

TYPES OF DISASTERS

C n n PEACETIME DISASTER PLANNING O L M L L ^ O Ç ti z . 4 ^ ^ O ^ L ÿ a• G 4 O ç 0. â e C v 3 C C C SERIA POTENTIAL ACTIONS F ^ A 8 C D 0 F I C il L M N 0 P : Q R Miscellaneous Actions 37 Protection of property X X 38 Determine security X X 39 Securé diaaster ares for sub- X x x x n equent investigation x x x ^ 40 Determine special t x X 1 x X cargo problems x 41 Specialhandliog of radioactive X X X •aterial x x 42 Special handling of dangerous Rases X x r 43 Prevént further escape of gases X X 44 Determine possible concamination X 1 X problems X X 45 Determine transportation requirements 1 X X X 46 Requenr relief transportation x X X X X -^-^ -F---T X 47 Storage of furnishings and X equipment X X 48 Establish priority for essential requirements f I x 49 Establish salvage operations of special items x x so Provide and control auxiliary G power x Reatore normal power X X X Provide e^ergency lighting X x X X X X X X X X X X X X X X X X Public Information Actions Establish a news release system X x x X X X X x x x Keep public inforsed x X x X X x x x X X x x x x x x x Set up an inquiry service x X X X x x x x (a) Examole of special federal involvement t DOT (Air) X DOT (Marine) Coastguard X RCAF ( Search and Rescue) X Nations Narbours Roar X St. Lawrence Seaway X ^ Authority x (b) List of possible special equiDment n 8ailer gulldosers 1 Cranes Torches Wrecker/Tover Special clothin S Yater Trucks 6eaters Caa n asks Resuscitating e 9ui Pmen larricades Power aavs Sandbags/sand Drills Shovels Generatora Radiac equipmant pumpa Llghting equipment Picks

1 April. 1975 ^ 1 ANNEX B TO EPC 805 PEACETIME DISASTERS

E A AIRCRAFT CRASH (URBAN) OUTSIDE OF AIRPORT . Possible Major Effects 1. Casualties 2. Deaths 3. Fire 4. Explosion 5. Damage to property 6. Nuclear cargo problems 7. International implications 8. Special cargo problems 9. Sudden hospital requirements 10. Disruption of traffic and communications 11. Disruption of utilities

B. Potential Actions at the Scene Agency Responsible 1. Establish an emergency headquarters incal government/EMO 2. Establish adequate communications Police/EMO 3. Define a working area and establish Police a control perimeter 4. Secure disaster scene for subsequent Police investigation 5. Rescue and fire fighting Fire department/Rescue Services 6. Establish routes for emergency Police • vehicles 7. Notify hospitals of casualties Medical/Police including number and type 8. Establish temporary morgue Coroner/Police 9. Disposition of nuclear or special Police/Industry cargoes 10. Establish traffic control Police 11. Establish crowd control Police 12. Eliminate hazards from damaged Engineering/Utilities utilities 13. Protect property and valuables Police 14. Establish a news release system Airline authorities fi (if commercial plane) 15. Set up an inquiry service Social Services le . Equipment Source 1. Fire fighting and rescue equipment Fire/Engineering/EMO 2. Ambulances Medical/Transportation/ 1/ Police 3. Communication equipment Police/EMO

4. Auxiliary lighting Engineering/Utilities 5. Barricades Engineering 11 6. Mobile public address equipment Police/Fire/EMO/Radio Stations Ole ANNEX B a TO EPC 805 PEACETIME DISASTERS

TYPE B CONSTRUCTION A. Possible Major Effects 1. Casualties 2. Deaths 3. Trapped 4. Disruption of traffic 5. Disruption of utilities B. Potential Actions at the Scene Agency Responsible 1. Establish an emergency headquarters Local government/EMO 2. Establish adequate communications Police/EMO 3. Rescue Contractor/Fire/Rescue service 4. Notify hospitals of casualties Medical/Police including number and type 5. Define a working area and establish Police a control perimeter 6. Establish traffic control Police 7. Provide emergency lighting Police/Engineering Dept/ if required Utilities/EMO 8. Eliminate hazards from damaged Engineering/Utilities utilities 9. Establish welfare services Social Services 10. Establish a news release system Construction company authoritiès 11. Set up an inquiry service Social Services C. Equipment Source 1. Rescue equipment Fire/Engineering/EMO 2. Ambulance Medical/Ttansportation/Police 3. Communication equipment Police/4O 4. Auxiliary lighting Engineering/Utilities 5. Mobile public address equipment Police/EMO 6. Powerful cranes Contractors 7. Welfare equipment Social Services 8. Barricades Engineering ANNEX B TO EPC 805

PEACETIME DISASTERS

DANGEROUS GASES

1. Casualties 2. Deaths t 3. Tendency of people to disperse 4. Disruption of traffic 5. Explosions and fire ^ 6. Hazards to humans and livestock 7. Disruption of business and industrial activities 1 8. Evacuation B. Potential Actions at the Scene Agency Responsible

I ! 1. Establish an emergency headquarters Local government/ENO 2. Establish adequate communications Police/Fire/EMO 3. Rescue and fire fighting Fire Department/Rescue Services 1 4. Determine nature and effects of Police/Medical/Industry the gas 5. Warn adjacent areas and define area Police of risk 1 6. Evacuate area Police 7. Eliminate further escape of gases Engineering/Industry 0 8. Notify hospitals and casualties Medical/Police including number and type 9. Establish temporary morgue Coroner/Police 10. Establish a news release system Local government authority t including instruction to the public 11. Establish welfare services Social Services 12. Establish traffic control Police 13. Establish evacuation routes Police/EMO 1 14. Set up an inquiry service Social Services

I C. Equipment Source

1. Ambulances Medical/Police 2. Fire fighting and rescue equipment Fire/Police/Rescue services including respirators and resuscitators / 3. Communication equipment Police/EMO 4. Decontaminating equipment Industry/Fire/QN0 5. Mobile public address equipment Fire Department/Police/EMO I 6. Barricades Engineering 7. Anti-gas clothing if necessary Rescue services/Police/Fire 8. Emergency feeding facilities Social Services ANNEX B TO EN 7805

PEACETIME DISASTERS

TYPE D EARTHQUAKE

A. Possible Major Effects

1. Casualties 2. Deaths 3. Trapped It 4. Damage to property 5. Material damage - roads and bridges, utilities, buildings 6. Fires, explosions and fire hazards 7. Escape of gases 1, 8. Flooding 9. Slides anO/or seismic waves 10. Panic I 11. Dangers to public health 12. Evacuation of population and livestock 13. Jurisdictional problems I

B. Patential Actions at the Scene Agency Responsible

1. Establish an emergency headquarters 1 Local government/EMO 2. Mobilize necessary Human resources Local government/EIC and equipment 3. Request outside assistance Local government I 4. Rescue Police/Fire/Rescue Services 5. Establich adequate communication Police/EMO (internal and external) 6. Establish medical facilities Energency Health Services 7. Establish emergency welfare services Social Services 8. Establish temporary morgue Coroner/Police 9. Establish control of population Police J 10. Co-ordination and administration of Local government incaning aid 11. Establish a news release system Province/EMO 1 including instructions to the public 12. Set up an inquiry service Social Services/ Volunteer agencies 1 13. Eliminate hazards from damaged Engineering/Utilities utilities 14. Establish salvage operations of Police essential items if necessary I

C. Equipment Source

1. Transportation vehicles Road/Rail/Air authorities 2. Rescue equipment all types All agencies 3. Public service maintenance vehicles Engineering/Utilities 4. Mobile generators, lighting and 1 Province/Fire/EMO communications equipment 5. Medical units and supplies Health Services 6. Ffiergency feeding facilities Social Services 7. Piping for emergency repairs to water Engineering/Industry and sewage facilities 8. Tank cars for potable water supplies Utilities/Railways 9. Mobile public address equipment Police/Fire/EMO/Radio stations 11 ANNEX B TO EPC 805 PEACETIME DISASTERS

IliI1_ LE E EXPLOSION Possiblessible Major Effects

1. Casualties 2. Deaths I, 3. Panic 4. Property Damage 5. Fires 6. Release of dangerous gases, chemicals, etc. 7. Disruption of traffic 8. Disruption of utilities 18 B. Potential Actions at the Scene Agency Responsible 1. Establish an emergency headquarters Local government/EMO 2. Establish adequate communications Police/Fire/EMO 3. Rescue and fire fighting Fire Department/Rescue Services 4. Protection of property Police 5. Define a working area and establish Police a control perimeter 6. Eliminate hazards from public Engineering/Utilities utilities 7. Establish routes for emergency Police vehicles 8. Notify hospitals of casualties Medical/Police including number and type 9. Establish temporary morgue Coroner/Police 10. Establish traffic control Police 11. Establish crowd control Police 12. Arrange for specialists to deal with Police/EMO hazardous substance 13. Estimate possible further hazards Specialists 14. Establish welfare services Social Services/ Volunteer Agencies 15. Establish a news release system Owner of property 16. Set up an inquiry service Social Services ItC. Equipment Source 1 • Ambulances Medical/Ambulance Service 2. Fire fighting and Rescue Fire Department 3. Communication equipment Police/Fire/EMO 4. Auxiliary lighting Police/Fire/EMO 5. Barricades Engineering 6. Equipment to repair public utilities Engineering/Utilities 7. Special equipment associates with Supplier type of hazard 8. Emergency feeding facilities Social Services ANNEX B TO EPC 805

PEACETIME DISASTERS

TYPE F FIRE - RURAL - MAJOR (Fire could last two days plus)

A. Possible Major Effects 1. Casualties 2. Deaths 3. Fire 4. Damage to property 5. Disruption of traffic and communication 6. Disruption of utilities B. Potential Actions at the Scene Agency Responsible

1. Establisn an emergency headquarters Province/EMO 2. Establish adequate communications Telephone company/EMO 3. Define a working area and establish Police a control perimeter 4. Rescue and fire fighting including Fire Department/Rescue fire breaks Services/Engineers 5. Establish proper jurisdiction Government 6. Notify hospitals of Casualties Medical/Police including number and type 7. Warn and mobilize required Province additional service personnel 8. Warning of spread of fire Police/NeWs media 9. Establish a news release system Local government authorities 10. Set up an inquiry service Social Services 11. Establish welfare service Social Services 12.Make decision regarding evacuation Municipal authority of community 13. Determine need and make arrangements Fire Department/ for supplementary water supplies Transportation/Agencies 14. Establish traffic control Police 15.Establish volunteer registration Social Services control 16. Eliminate hazards from damaged Engineer/Utilities utilities C. Equipment Source 1. Fire fignting and rescue equipment Fire Department/ (normal and supplementary) Provincial government 2. Water tankers Railway/Road authorities 3. Relay pumps Engineer Department 4. Communication equipment Fire Department/Police/EMO 5. Auxiliary lighting Engineer Department 6. Blankets and food Social Services/ Volunteer agencies 7. Medical supplies Emergency health services • 8. Mobile public address equipment Police/Fire/EMO 41% ANNEX B TO EPC 805

PEACETIME DISASTERS

PE G PIRE - URBAN (M '

. Possible Majors Effects

1. Casualties 2. Deaths I 3. Fire 4. Damage to property 5. Sudden hospital requirements It 6. Disruption of traffic and communication 7. Explosions and other hazards 8. Collapse of buildings 9. Disruption of buildings 1 10. Evacuation

I B. Potential Actions at the Scene Agency Responsible

1. Establish an emergency headquarters Local government/ENO 2. Establish adequate communications Police/Fire/EMO 3. Define a working area and establish Police I a control perimeter 4. Secure disaster scene for subsequent Police investigation t 5. Rescue and fire fighting Fire Department/Rescue Services 6. Control panic in fire fighting area Police ^ 7. Establish routes for emergency Police vehicles 8. Notify hospitals of casualties Medical/Police including number and type 9. Establish temporary morgue if Coroner/Police 1 required 10. Establish traffic control Police 11. Establish crowd control Pol ice l 12. Eliminate hazards from damaged Engineering/Utilities utilities 13. Warning of spread of fire Police/News Media 1 14. Establish a news release system Local government authorities 15. Set up an inquiry service Social Services 16. Establish a welfare service Social Services i C. Equipment Source

1. Fire fighting and rescue equipment Fire Department ^ 2. Ambulances Private/Hospitals 3. Water tankers, i.e. street cleaners Engineering 4. Relay pumps Engineering I 5. Communication equipment Fire Department/Police/EMO 6. Auxiliary lighting Engineering/Utilities/Fire Department 1 7. Blankets and food Dnergency/Social Services 8. Mobile public address equipment Police/Fire/EMO ANNEX B TO EPC 805

PEACETIME DISASTERS TYPE H FLOOD

A. Possible Major Effects 1. Disruption of the community 2. Damage to property 3. Contamination of normal water supplies 4. Casualties 5. Evacuation of the population 6. Dangers to public health 7. Loss of local economic activities B. Potential Actions at the Scene Agency Responsible 1. Warning of imminence: Provincial flood authority a. long term Meteorological services b. short term Police/EMO 2. Establish an emergency headquarters Province/EMO 3. Mobilize necessary Human resources Province/EIC and equipment 4. Establish adequate communications Police/EMO 5. Establish jurisdiction Government 6. Establish traffic control Police 7. Establish dyking as required Engineering 8. Check stocks of sand and sandbags Engineering 9. Eliminate hazards from damaged Engineering/Utilities utilities 10. Protect property and relocate Police/Industry resources where necessary 11. Establish emergency welfare services Social Services 12. Evacuation of personnel, livestock, Social Services/Volunteer etc. agencies/Agriculture 13. Storage of furnishings and eqpipment Province/EMO 14. Establish a news release system Province/Municipality 15. Set up an inquiry service Social Services/Volunteer agencies 16. Establish emergency health facilities Health services C. Equipment Source 1. Transportation Rad/Rail/Air authorities 2. Communication equipment Province/Police/EMO 3. Dyking equipment Engineering/In3ustry 4. Heavy equipment (bulldozers, etc.) Engineering/Industry 5. Auxiliary lighting equipment Engineering/Utilities 6. Auxiliary power facilities Engineering/Utilities 7. Medical and health supplies Health Services 8. Food and lodging Welfare/Social Services 9. Pumps Engineer department 10. Storage facilities for equipment, Province furnishings and livestock 11.Mobile public address equipment Police/Fire/EMO/Radio stations ANNEX B TO EPC 805 le PEACETIME DISASTERS

E3 FOREST FIRE (Major and in Remote Areas) . Possible Major Effects 1. Casualties from fire or smoke 2. Deaths 3. Damage to property 4. Disruption of traffic and communication 5. Disruption of utilities (Power lines, etc.) 6. Losses to local economy B. Potential Actions at the Scene Agency Responsible 1. Establish an emergency headquarters Province (Lands and Forests) 2. Control traffic and access routes Police/Lands and Forests 3. Recruit fire fighters Province/Police/EIC 4. Fire fighting Province/Forest Industry 5. Rescue Rescue services 6. Establish emergency communications Province 7. Establish water points Province/Lands and Forests 8. Establish transportation requirements Road/Rail/Air and obtain vehicles 9. Warning of spread of fire Lands and Forests/News media/ Province 10. Establish a news release system Lands and Forests/Police/EMO 11. Establish welfare services Social Services 12. Establish first aid posts Lands and Forest/Medical IIC. Equipment Source 1. Light portable fire fighting Lands and Forests 'equipment 2. Water boers Province 3. Bulldozers Province/Industry 4. Tankers Province/Industry 5. Power saws, shovels, axes, back tanks Province/Industry and other hand tools for fire suppression 6. Establish emergency welfare services Social Services 7. Communication equipment Province/Industry/EMO 8. First aid kits Health Services à'

e ANNEX B TO EPC 805

PEACETIME DISASTERS

TYPE K HURRICANE/TORNADO/WINDSTORM

A. Possible Major Effects

1. Casualties 2. Deaths 3. Disruption of cornmunity 4. Disruption of utilities 5. Damage to property 6. Disruption of traffic 7. Disruption of communication t

B. Potential Across at the Scene Agency Responsible

1. Warning of imminence Meteorological service/CBC/Other news media 2. Establish an emergency headquarters Municipal government/EMO 3. Establish adequate communications Police/EMO 4. Define a working area and establish Police a control perimeter 5. Establish routes for emergency Police vehicles 6. Notify hospitals of casualties Medical/Police including number and type 7. Rescue Fire/Police/Rescue Service 8. Establish a temporary morgue Coroner/Police 9. Eliminate hazards from damaged Engineering/Utilities utilities 10. Establish a news release system Police/EMO 11. Protection of property Police 12. Establish emergency welfare services Social Services i 13. Establish an inquiry service Social Services 14. Provide auxiliary power Engineering/Utilities 15. Clear debris Engineering It C. Equipment Source

1. Rescue equipment i Police/EMO 2. Fire equipment Fire department 3. Ambulances Medical/Transportaticn/Polioe 4. Road clearing equipment Engineering 5. Barricades Engineering 6. Auxiliary generators Various sources 7. Mobile public address equipment Police/EMO/Radio stations 8. Welfare equipment Social Services 1

I ANNEX B TO EPC 805 PEACETIME DISASTERS E M MINE DISASTER

. Possible Major Effects

1. Casualties 2. Deaths 3. Trapped or buried alive 4. Fire - explosions - lethal gases - la ck of oxygen 5. Loss to local economy 6. Permanent closure of mine B. Potential Actions at the Scene Agency Responsible It 1. Establish an emergency headquarters Mine authorities/EMO 2. Establish number of missing Mine authorities 3. Organize and direct mine rescue Mine authorities/Rescue teams Services 4. Request medical assistance and Mine authorities ambulance service 5. Define a working area and establish Police a control perimeter 6. Establish traffic and crowd control Police 7. Welfare facilities for families and Social Services/Volunteer rescue teams agencies 8. Notify hospitals of casualties Medical/Police including number and type 1/1" 9. Establish a news release system and Mine authorities/Police/EMO arrange briefing for dependents 10. Establish a temporary morgue Coroner/Police 11. Establish routes for emergency Police vehicles 12. Establish an inquiry service Mine authorities/Social Services/Volunteer agendes C. Equipment Source 1. Mine rescue equipment Mine authorities/Police/Fire Departments 2. Drilling equipment for shafting Drilling companies 3. Auxiliary lighting Police/Fire department/EMO 1 4. Communications equipment for rescue Fire Department/EMO team 5. Barricades Engineering 6. Emergency feeding and lodging Social Services 7. Clothing Social Services 8. Specialist manpower Drilling companies/Other mines/ EIC 1 9. Ambulances Medical/Transportation/Police ANNEX B TO EPC 805

PEACETIME DISASTERS

TYPE 0 POWER FAILURE

A. Possible Major Effects

1. Casualties - indirect effects due to lack of power 2. Deaths - as above 3. Panic - real danger in crowded areas 4. Disruption of traffic 5. Disruption of utilities 6. Trapped persons

B. Potential actions at the Scene Agency Responsible

1. Establish a headquarters for Power authorities ! restoration of power 2. Establish a headquarters for Local government/EMO emergency services to community 1 3. Restore power Power authorities 4. Establish a priority for essential Local government/EMO requirements 5. Control the allocation of auxiliary Power authorities/EMO 1 power 6. Establish a new release system and Power company authorities keep population informed J 7. Establish traffic control Police 8. Protection of property by requesting Pol i ce assistance in law enforcement 9. , Establish special assistance to aged, Health infirm and home patients 10. Establish an inquiry service Social services/ Volunteer age nci es l 11. Establish adequate emergency Telephone/Radio facilities communications 12. Organize an emergency transportation Engineering department/EMO i pool 13. Ascertain the status of water and Social Services/Engineering food and arrange distribution 14. Release trapped persons in 1 Specialists electrically operated devices 15. Assess danger to public health and Health provide emergency services C. Equipment Source t 1. Auxiliary power Engineering department/Any other source of supply 2. Auxiliary heaters Engineering department:/Any other 1 source of supply 3. Mobile public address equipment Police/EMO 4. Auxiliary lighting Engineering/Police/Fire department/Stores, etc. 5. Emergency lodging and feeding Social Services and voluntary organizations r ANNEX B TO EPC 805 PEACE TIME DISASTERS

TE Q TEATRANSPORTATION - RAIL

A. Possible Majors Effects 1. Casualties 2. Deaths 3. Fires that may be started 4. Disruption of rail traffic 5. Disruption of railway communications I/ B. Potential Actions at the Scene Agency Responsible 1. Warn other traffic Trainmen or first on scene 2. Establish an emergency headquarters Railway staff (at the scene or divisional point) 3. Establish adequate communications Railway staff 4. Request a relief train Railway staff 5. Give an accurate and complete report Railway staff of accident 6. Request police, ambulance, doctors Railway staff and heavy equipment when reporting accident. 7. Organize rescue parties as required Railway staff 8. Notify hospitals of casualties Medical/Police including number and type. Arrange temporary reception area Medical/Welfare for casualties. 1/11,9.10. Despatch ambulances to ensure proper Medical/Police distribution of casualties 11. Establish control routes for Police emergency vehicles 12. Define a working area and establish Railway staff/Police a control perimeter. 13. Establish a temporary morgue Coroner/Police 14. Restrict entrance to work area if Railway staff/Police accident involves radioactive containers or other hazardous materials. 15. Establish a news release system Railroad Company authorities 16. Set up an inquiry services Social Services/ Volunteer agencies ItC. Equi pment Source 1. Relief train Railway authorities 2. Ambulances Medical authorities 3. Fire fighting equipment Fire department 4. Heavy recovery equipment Railway authorities/EMO including cutting torches 5. Special equipment may be required Suppliers/EMO if radioactive material or other hazardous cargo is involved. 6. Auxiliary lighting Police/Fire/EMO/Railway staff 7. Mobile public address equipment Police/EMO lie 8. Emergency feeding facilities Social Services ANNEX B TO EPC 805

PEACETIME DISASTERS

TYPE R TRANSPORTATION - ROAD/BUS

A. Possible Major Effects

1. Casualties 2. Deaths 3. Fires and explosions I 4. Trapped 5. Disruption of traffic

B. Potential Actions at the Scene I Agency Fesponsible

1. Establish an emergency headquarters Police/EMO 2. Establish adequate communications Police/EMO 3. Request additional police assistance Police 4. Establish routes for emergency Police vehicles 5. Request doctors, ambulances, Police wreckers, fire truck and heavy equipment as required 6. Notify hospitals of casualties Medical/Police 1 including nurrber and type 7. Define a working area and establish Police a control perimeter 1 8. Establish temporary morgue if Police/Coroner required 9. Special precautions needed when Police/Industry/EHS r radioactive container or dan3erous gases, chemicals, etc. are involved 10. Establish a news release system Police/ÉMO 1 C. Equipment Source I. Wrecker/tower equipped with cutting Police/Garage 1 torches 2. Fire fighting equipment Fire department 3. Barricades to control traffic Engineer department 4. Radiac test equipment if accident i Industry/EHS/EMO involves radioactive material 5. Test equipment for dangerous gases Industry/Fire/EMO/EHS where applicable It I I ANNEX B TO EPC 805 .PEACETIME DISASTERS

. E S TRANSPORTATION - WATER Ile (at sea or adjacent to land) A. Possible MajorMaior Effects 1. Casualties 2. Deaths 3. Fire/explosion 4. Panic 5. Disruption of shipping traffic in a narrow channel 6. Property damage if in harbour 7. Hazardous cargo It B. Potential Actions at the Scene Agency Responsible 1. Establish an emergency headquarters Coast guard/Port authority, St. Lawrence Seaway Authority 2. Establish adequate communications Police 3. Organize and direct search and rescue Coast guard/Search & rescue (CF)/Port authority 4. Determine cargo Port authority 5. Organize a shore-based reception Port authority/Coroner/Welfare/ centre to include: welfare services, Social Services/Health/ ambulances, medical staff, temporary Immigration morgue, passenger dccks have built-in reception areas 6. Notify hospitals of casualties Medical/Piclice/Coast guard including number and type 7. Define a working area and establish Police a control perimeter 8. Establish routes for emergency • Police vehicles 9. Establish traffic control Police 10. Establish a news release system Port authority/EMO 11. Set up an inquiry service Social Services/ Volunteer agencies 12. Determine responsibilities of: Agencies involved/EMO National Harbours Board, DOT, Coast Guard Service, CF, Search and Rescue Provinces, etc. C. Equipment Source

11 1. Air/Sea Rescue equipment as provided All agencies involved by Coast Guard, DOT, RCMP, Police, Search & rescue (CF) 2. Special equipment may be required Supplier/EMO if radioactive material or other hazardous cargo is involved 3. Limited medical supplies at reception Medical centre 4. Fire fighting equipment Fire department 5. Communication equipment Agency invcaved/EMO Ille 6. Barricades Engineer department 7. Mobile public address equipment Police/Fire/EMO "April, 1988 ! EMERGENCY PREPAREDNESS CANADA EPC 808 EMERGENCY READINESS EDUCATION PROGRAM

HUMAN REACTION TO DISASTER

The object of this paper is to describe briefly the reactions to disaster by individuals, groups and organizations. It 1 GENERAL If disaster plans are to be effective, they must be based on correct assumptions concerning the affected population, and the typical response of different types of organizations to disaster. There are certain myths about the ► response of people to disasters. These myths, if accepted as being true, can adversely affect disaster planning and organ- I izational response. i TIME AND SPACE CHARACTERISTICS OF DISASTERS To analyse the behaviour and functions of individuals and organizations in disaster more readily, the area involved 1 can be divided into zones and the duration of disaster events into time phases. The zones may overlap, as may the time phases, but such a classification enables us to focus on particular events and to plot in an orderly.manner the ways in i which people react to and cope with disasters.

Space characteristics. A disaster area can be divided 1 into five areas, as depicted by the concentric circles in the figure hereunder. (These areas are seldom if ever neat and 1 circular and are only meant to be illustrative): f 1

I t r I EPC 808 - 2

• Total Impact Area. The area which has experienced the full destructive fury of the disaster. There may not be total destruction in the area, and indeed in some disasters there have been relatively few casualties. However, there is usually much more destruction as compared to adjacent areas. More- over, the area of impact is usually fairly apparent to the victims, as well as to helpers from outside. • Fringe Impact Area. The area adjacent to the area of total impact. It usually has suffered only minor damage and few or no serious casualties. Some people in this area may suffer minor shock. Their first reaction is usually to check their families and damage to their own property, after which they may investigate the impact area and begin rescue work. If the impact area is a continuing source of danger (e.g. from fire or flooding), they will evacuate their families. . Filter Area. This area has suffered no casualties or damage. It is typically a source of help and services as well as the area through which traffic and information must pass back and forth between the impact area and the outside world. . Organized Community Aid Area. This will most probably involve a number of areas nearby where there are organized community resources. • Regional Aid Area. These are distant areas in the country, from which aid may be sent to alleviate the disaster. Time Characteristics. The reactions of people in the different areas is also a function of the particular time phase (of the occurrence). Five major time phases can be distinguished:

• Pre-Disaster Phase. This is really the period before the disaster and is included because of its importance in determining the effect of and response to, the disaster. Pre-disaster conditions include such factors as the extent of disaster planning, training and other preparations, communications facilities, the populations' previous experience with disasters. The time of day the disaster occurs will often determine the personnel and material resources immediately available to deal with it. - 3 - EPC 808

• Warning Phase. This phase covers that period from the first appearance of possible danger signs to the moment of impact. It may be subdivided into an early warning or alert phase and a late warning or threat phase. . The Alert Phase. Typically involves vague and ambiguous signs, and partial information indicat- ing the possibility of a disastrous event, at some time and some place. Some precautionary behaviour might occur, such as bringing the chil- dren home from school, closing windows, turning off electricity and preparing to take shelter or evacuate if the danger becomes imminent. People usually react with anxious scanning and checking for further information and clarification of the situation. The warnings are likely to apply equally to those in the impact, fringe, filter and even the community aid areas of disaster space.

• The Threat Phase. This involves clues and information which are not ambiguous. It is usually short and is followed by impact or by awareness that the danger has passed. Threat clues are typically an urgent indication for immediate protective and survival action. • The Impact Phase. This is thé period during which the disaster agent causes death, injury and destruction. The force of the disaster agent is usually confined to the total impact area and people in this area are well aware that they have been hit. Some may be largely immobilized and literally "holding on", others may be frantically active as they seek shelter, try to close doors and windows and protect family members. Impact may last for only a few seconds or minutes (e.g. explosions, tornado), or may be prolonged (e.g. windstorm, flood). People in the fringe area may also think that they have been hit, and indeed may suffer minor injuries, shock and property damage. People in the filter area will usually know.that a disaster has occurred and have a fair idea of its location. They are unlikely to suffer shock but may be somewhat breathless and excited because they realize that they were "near- misses". At the time of impact the community and regional aid areas may be largely unaware that a disaster has occurred and are seldom sure of its precise location. There is a time lag before they receive the relevant information which will enable them to mobilize their resources and move in to provide assistance. 4 - EPC 808

Emergency Phase. This phase begins at the end of impact and continues to the time when the dead have been removed, the injured cared for, secondary threats like fire and "hot" wires dealt with, and the survivors cared for with temporary shelter, food and clothing. It is the emergency period which presents the most difficult and pressing problems in disaster. Physical destruction may interrupt the supply of electricity and water, damage the sewage 1 pipes, damage or destroy sources of food and fuels, or damage the means by which they are transported. Injury and death may deprive the community of emer- I gency personnel like repairmen, firemen, doctors, etc. Damage to communications facilities may prevent people from calling for or offering assistance and from otherwise co-ordinating their efforts. Deaths and injuries, and the general threat of the situation may turn some people from their jobs and responsibilities. Lines of authority tend to break A down. The emergency phase may be subdivided into two parts.

. The Isolation Phase. During this period the survivors are on their own. It lasts until organized and professional assistance comes in from t outside the Total and Fringe Impact Zones. This phase varies from minutes to hours and in some cases, even days. Although the behaviour of individuals during this period appears disorgan- ized and unco-ordinated, and the resulting scene may be one of apparent chaos, a great many of the survivors are engaged in purposeful behaviour as I they help themselves, look after family members and care for those needing assistance. Indeed, the survivors often do most of the rescue work following a disaster, albeit in an unco- t ordinated, frantic and rather inefficient manner.

. The Assistance Phase. A disaster-stricken area is seldom completely isolated for very long. Friends, relatives and volunteer helpers, together with emergency personnel from the outer Fringe and Filter areas move in rather quickly, I and in force. This is followed later by assistance from the Community and, if necessary, the Regional Aid areas. The early help in this Phase 1 tends to be unco-ordinated. The helpers, struck by the devastation and the urgent needs of the survivors, try to do something about each immedi- ! ate problem they meet. Thus they forget about their organization roles, like that of firemen, and policemen, and instead rescue or attempt to - 5 - EPC 808

rescue victims, give first aid, etc. With the arrival of organized emergency agencies and professional personnel from outside, usually from the community aid and regional aid areas, the disaster operation begins to become more orderly, but even then, it takes hours (or days at most) to work out some overall direction and control organization. Recovery Phase. The primary tasks in the recovery period are relief, relocation, reconstruction and general rehabilitation. The speed with which this phase is completed depends on the extent of the disaster, the availability of money, supplies and labour, plus the adequacy of planning and organization. PANIC

Definition. In the context of disaster response, "panic" is used to refer to uncontrolled fear-motivated flight behaviour, which occurs without concern for others. "The Panic" Me.h. The belief that people panic in a disaster situation is deeply entrenched in the thinking of many persons and is constantly reinforced by journalists, mass media presentations and literary accounts. The "panic" myth implies the general expectation of rather widespread chaos and pandemonium at both the individual and group level. Situations have occurred where persons in positions of responsibility did not evacuate an area because they were afraid of setting off a wild, hysterical flight; futhermore, time, energy and resources are sometimes spent planning on how to prevent such reactions. This myth not only exists but is often the basis for action. However, available research evidenz suggests that most anticipated "panic" behaviours are not too likely. People seldom flee wildly. In fact, the opposite is often more of a problem -- that of getting people to leave their homes or neighbourhoods, even when danger is visible.

When Panic Occurs. Although "panic" reaction to disaster has been greatly exaggerated, this response by individuals or groups can occiir under certain conditions: • When people perceive or believe there is an immediate, sever and increasing danger. • When they perceive or believe that there are a limited number of escape routes. EPC 808 - 6 ^

. When they perceive or believe that the escape routes are, or may be closing.

. When there is no effective leadership and a lack of sound, correct information. I An example where the above conditions pertained was the Iroquois Theatre fire in Chicago, in 1903. In fact, the theatre was not burned and was damaged so little that per- formances could have been resumed within two days. However, the crowd in the theatre perceived the danger, and then when a few panicked and headed for what seemed to be a limited 1 number of exits, there was a stampede in which 602 died. LOOTING AND EXPLOITATION 1 The "Looting" Myth. This notion seems to be even more deeply ingrained in the thinking of people than the "panic" myth and appears to be based on a Jekyll and Hyde conception I of human beings. The fact of the matter is just the opposite; looting is extremely rare - almost totally non-existent by residents of the area involved in the disaster. Such rare lootin; as occurs tends to take place after the immediate emergency period and it is often undertaken by non-local security forces brought in to prevent it. Often the term I "looting" is mistakenly applied to petty pilfering and souvenir hunting following a disaster. This again is typically carried out by outsiders, during the late emergency and early recovery period. 40

When Looting Occurs. There is strong evidence that widespread looting sometimes does occur in major riots. This I has been particularly true of the racial riots in the U.S.A. during the past few years. The important difference to note, however, it that in this type of emergency the rioters and looters are the cause rather than the victims of the disas- li ter.

Exploitation. Experience has shown that survivors in a 1 disaster area are not inclined to engage in exploitive behaviour in the early emergency period. However the situation may be different somewhat later on as a variety of people I from outside converge on the area (in the later Emergency Phase and Recovery Phase). Exploitation is often attempted in the form of getting relief supplies, pay and assistance under false pretences. I Should there be a real or rumoured threat of future privation and shortages of supplies, it is likely that this kind of behaviour would increase in frequency, and it could develop into a black market phenomenon. 1 i 1 - 7 - EPC 808

THE CONVERGENCE PHENOMENON Disasters in NorthNortl America are almost invariably Ile followed by convergency bebehaviour: • Internal convergence, as survivors move en masse toward hospitals, morgues, government offices, radio and TV Stations, and to rescue, relief and other treatment centres • External convergence, as people and supplies stream in from outside and as communications networks are

jammed...... with enquiries and offers of assistance 1r INTERNAL CONVERGENCE Very soon after a disaster occurs, internal convergence begins to create problems within the disaster zone. There is movement of injured - under their own power or assisted by others - to treatment centres, hospitals and clinics. There is a notable tendency to go to the best known hospital or 11 clinic and to forget about others that may be nearer or more approachable. In some cases, the less well known hospital has received virtually no victims while the better known has been grossly overloaded. At the same time, other survivors from the impact area together with people from the fringe area descend on hospitals, police stations, communications centres and morgues to take or seek information about the whereabouts and welfare of family members, relatives or neighbours, or simply to offer their help or satisfy their curiosity. EXTERNAL CONVERGENCE

Convergence of People. The people who take part in the external convergence phenomenon can be classified into the following five types according to their motives. (Frequently some have a combination of two or more of these motives).

• The Anxious. Those who are motivated by anxious concern for family members, relatives, friends, neighbours, possessions and property. Most in this category are'from the impact area itself, with a few more coming from the adjacent filter and fringe areas. They are often obsessed with the single purpose of finding a particular person and may be quite oblivious to other problems around them.

. The Helpers. These wish to help the victims and assist in handling the many problems which have been created. A large proportion in this category come from the fringe and filter area adjacent to the EPC 808 - 8

impact area. Others move in from farther afield, and a proportion of survivors assume this role after they have cared for themselves and their families.

. The Exploiters. Some move in from outside with the pure selfish motive of petty pilfering, looting, souvenir hunting or other types of exploitation.

. The Returnees. These are the people wishing to return to their home ground.

. The Curious. Mass news media and the automobile 1 have been instrumental in getting hordes of people in this category to converge on disaster scenes in North America, thus compounding the problems for the authorities involved in the emergency operations. 1

Convergence of Material. At the same time as masses of people converge on a disaster area, a flood of materials and f supplies starts to occur. A large proportion of this material is unsolicited, much of it is useless. It comes in a most unplanned and unco-ordinated manner. The result is an over- 1 load of goods, some useful and some not, which congests the area and requires the efforts of many of the emergency personnel to sort, distribute, and otherwise dispose of.

Convergence of Messages. The problems created by the convergence of people and material goods.is compounded by an overload of messages and inquiries on communication systems. M These are originated by two major sources: Hundreds and maybe even thousands of people send I inquiries about the personal welfare of people in the area, and those within also seek to contact friends and relatives on the outside to tell them about the situation.

. News media personnel make inquiries from the outside or descend on the disaster area and send out reports 1 of the situation. This early news coverage is typically over-dramatic, inaccurate and insuffici- ently specific and merely tends to compound the dif- ficulty by: , 1

. Triggering more and more inquiries by people outside the disaster area I

. Putting more of the "curious" convergers on the roads leading to the area I Adversely affecting the mood and morale of the survivors -9-. EPC 808

• Causing hasty and erroneous decisions and actions by authorities outside the disaster area ORGANIZATIONAL RESPONSE TO DISASTER

During the impact phase and early into the emergency period, the nature of the tasks and the sphere of responsibility for each organization is undefined and confused. In spite of this confusion, there is a great urgency to act. This leads to false starts where, for instance, resources are allocated to one organization that may not retain responsibility for the tasks involved. As well, the mobilization of added resources including manpower, in anticipation of increased tasks, changes previously established areas of responsibility, the decision-making pattern and disrupts authority relationship by expanding responsibilities. As well, established organization often find themselves dealing with new or unfamiliar organization that have acquired importance because of the disaster. REACTION IN THE RECOVERY PHASE Studies conducted by the Ohio State University Disaster Research centre have included a revisit to areas a year or longer after a disaster. The centre has usually found that lessons learned, and recommendations made, during and immediately following disasters, are more often than not acted upon within organizations, but recommendations involving inter- organizational procedures, are far less' likely to be implemented.

September, 1987 EMERGENCY PREPAREDNESS CANADA EPC 810

EMERGENCY READINESS EDUCATION PROGRAM

SOCIAL ASSISTANCE AGENCIES

A community which fails to develop its capacity for survival in time of crisis and allows itself to become a bur- den on higher levels of government, avoids its responsibilities and neglects the welfare of its citizens. Few municipalities in this country have fully developed their potential for the preservation of life and the protection of property I during and after the impact of an emergency. Most municipalities in Canada have many public-spirited citizens, service clubs and social agencies who are prepared to provide a wide variety of manpower and equipment to assist in emergency response in time of crisis. These people may be used to provide direct assistance or to augment established health and welfare services when needed. A list of such organizations is shown at Annex "A".

Some community social organizations have national and international affiliations. They are prepared to provide 1 emergency relief world-wide.

Arrangements for the integration of these citizens and organizations into the overall response must be made during the development of the community emergency response plan. Time lost seeking assistance, during the period of disorgani- zation and confusion following the impact of an emergency, may result in further loss of life and destruction of property.

RECOGNITION AND STATUS

It is essential that social agencies and non-governmental organizations be recognized by civic officials and their role in the municipal emergency response plan defined. Legal and financial liabilities may then be recognized by municipal and provincial authorities.

It is also important that members of these organizations be recognized by the public as part of the organized relief effort. The insignia and uniforms of the Red Cross, St. John Ambulance and Salvation Army workers alert people to their identity, purpose and role. 2 - EPC 810

CANADIAN RED CROSS SOCIETY

The Canadian Red Cross Society is a national organization affiliated with the International Red Cross. Its charter reads, in part, "In time of peace or war to assist in work for the improvement of health, the prevention of disease and the mitigation of suffering throughout the world." In Canada it consists of a national headquarters with ten provincial divisions and some 840 local branches in commmunities of all sizes across the country. In accordance with agreements reached with each province and territory the Red Cross is prepared to render relief during the immediate emergency period in the form of food, shelter, clothing, medical assistance, registration of evacuees and victims and answering welfare inquiries.

ST. JOHN AMBULANCE BRIGADE The St. John Ambulance Brigade is headed by a Chief Commissioner whose national headquarters is located in Ottawa. Twelve headquarters which include the Territories and a Federal District each headed by a Provincial Commis- sioner, control a number of Area commands, Corps and Divi- sions. The strength of the Brigade is approximately 12 000 trained people in some 441 Divisions across Canada. Being a national organization devoted to First Aid and Home Nursing, the St. John Ambulance Brigade is prepared to take an active part in the relief of suffering during any emergency. It has considerable capability to do so.

SALVATION ARMY

The Salvation Army is well known and respected for its dedication to the relief of the poor and lonely in our day- to-day life for its response in time of emergency. The uniform of the "Sally Ann" is familiar to us all. The organization consists of over 1800 trained officers in 14 Divisions across Canada.

ROYAL CANADIAN LEGION

The Royal Canadian Legion is organized in 10 semi-auto- nomous Provincial Commands with hundreds of Branches of various sizes from coast to coast. Branch members and the Ladies Auxiliary can provide transportation and feeding resources while club rooms and meeting halls can be used as welfare centres or collection agencies. 1

3 - EPC 810 I OTHER AGENCIES Among the other social agencies listed in Annex A are the Ministerial and Parish Associations, the Mennonite and Seventh-Day Adventist organizations. The members of these I groups respond generously and spontaneously in disaster situations and are prepared to work long and hard to help the 1 community. Of special note is the assistance which can be provided to communities by specialist groups and clubs such as Amateur Radio Clubs whose members, using their own equipment, can augment the communications resources of the community, the Yacht Clubs for water rescue teams, the Ski Clubs and Snow- mobile Clubs for over snow rescue and patrols, the Scuba I Diving Clubs whose members can conduct underwater searches. Other organizations normally found in communities such t as Service Clubs, Chambers of commerce, Auxiliary police and firemen, Boy Scouts and Girl Guides all form organized pools M of manpower which can be tapped in time of need. I I 1

I September, 1987 I I t r 1 ANNEX A TO EPC 810

TYPICAL COMMUNITY SOCIAL AGENCIES AND ORGANIZATIONS

The Canadian Red Cross Society St. John Ambulance Salvation Army Royal Canadian Legion Ministerial and Parish Organizations Mennonite Disaster Organizations

Amateur Radio Clubs Seventh-Day Adventists

Service Clubs (Kinsmen, Optimist', tc.) Chambers of Commerce Auxiliary Police Volunteer Firemen Boy Scouts/Girl Guides Boat, Ski Patrol, Snowmobile and Scuba Clubs

September, 1987 EPC 812

EMERGENCY PREPAREDNESS CANADA EMERGENCY READINESS EDUCATION PROGRAM

PREREQUISITES TO EMERGENCY OPERATIONS

AIM The aim of this paper is to briefly review some of the steps which should be taken by municipal officials so that their community is prepared to face any emergency situation or conduct such emergency operations as may be necessary to head-off or mitigate the effects of an emergency. NORMAL PEACETIME CONDITIONS These are plans which can be activated at the onset of the potential disaster season if such can be predicted. The municipality should check its plans periodically to ensure that they are current and reflect any changes required to correct deficiencies in the plan when it was last exercised. The plans should also reflect any changes in Federal or Provincial preparedness measures, changes to mutual aid pacts which have been negotiated with other jurisdictions, or changes in the personnel, equipment or government structure that may have a bearing on disaster operations. The local EOC, Communications systems, and other methods of direction and control should be tested frequently to ensure their operability. Exercises should be used to train key personnel in their function in an emergency operating role. ALERT STAGE

Pt the start of the season in which disaster can be most expected or when the weather bureau advises the possibility of an impending disaster (flood, hurricane, etc.) the operations plan should be activated. The alert stage actions are those items which are used to increase the readiness of the local jurisdiction to carry out its responsibility of providing the greatest good for the greatest number of people, places and things. These would include anything which would help to ensure a graduated response to the slowly developing threat of rising streams, tropical storms, or forest fires which are still some distance away. This may include such action as: • bring plans up to date • accelerate preparedness measures • advise the public EPC 812 - 2

. mobilize resources

. activate the EOC if required

. preliminary mobilization of people

. activate reporting systems

If the disaster develops more rapidly than antici- 1 pated, it may be necessary to move forward more rapidly and move directly into the mobilization phase or even the evacuation phase depending upon the type of disaster. 1 MOBILIZATION STAGE

This stage includes those actions required to acti- 1 vate the personnel and equipment necessary to save lives and property or to minimize the effects of an impending disaster. This stage may be activated by decision based on warnings and ^ forecasts based on present events. From advisory bulletins released by the weather bureau or other agency, the local jurisdiction will have to decide whether their area will be I affected by the impending disaster and if so whether they must mobilize their forces to combat the effects. Specific warnings can be expected to give 12 - 18 hours notice before impact on a slowly developing situation. This should give a 1 municipality time to be fully mobilized and able to take immediate action to evacuate its citizens and take other measures to counter the effects of an impending disaster. 40, A summary of events in this phase:

. brief key officials I . all facilities to readiness 1 maintain contact with all key organizations update service plans i staff EOC

. advise industries and utilities of alert status 1 . deploy emergency forces 1 . suspend non-emergency functions . warn public I . staff shelters if available - 3 - EPC 812

• institute traffic control

• place hospitals on alert notice EVACUATION PHASE

When the decision has been taken to evacuate the area, another facet of the plan will be activated and actions taken to implement it. Some of these actions will be:

• fully staff EOC • advise HQ or next level up • advise population in affected area to move • advise communities in transit and reception • activate traffic control

If your jurisdiction is planned to act as a reception community for evacuees from other areas you will have to Lake actions as follows:

• activate EOC

• activate traffic control • activate shelter plan • expand medical and welfare/social services • expand communications system for control • expand municipal services • report to higher HQ on status and state

• preparation for return phase of operations

SURVEY OF EFFECTS The goal of any community struck by a disaster is to return to normal operations. To effect this aim, actions must be taken to determine the effects and decisions must be taken to allow the inhabitants to return as soon as possible. Actions will include:

• survey by all available units in area to determine extent of damage EPC 812 - 4 1 . report results to high HQ

. request reports on damage in neighbouring jurisdictions

. request specific help required for surveying from 4 higher HQ . advise evacuees to remain in reception areas until I safe to return home COUNTERMEASURES I While the survey is underway the municipality must take action to counteract the effects of the disaster so that people may return and resume normal activities. Some actions I are: . rescue of survivors 1 . protection of people and property from further damage 1 . evacuation of severely damaged areas . first aid to injured 1 . request additional aid from:

• higher HQ II • Adjacent areas - Mutual Aid Pacts 1 • Non-governmental agencies . report damages to higher HQ 1 . assess damages

. survey public utilities 1

issue authority for clean-up of areas and rehabilitation of personnel I REHABILITATION PHASE t This will include actions taken to repair, build and recover from the effects of a natural disaster so that the municipality can function without assistance and that people may get personal recovery assistance. The extent of the work I and assistance which will be required is a result of the severit,- of the disaster so that pre-planning in this case is necessarily vague. Nevertheless, general plans should be I IN -5- EPC 812 prepared for the rehabilitation phase and aid which may be available.

Some actions which should be taking place at this stage include:

• establish emergency sanitation and health facilities • undertake repairs within budget limits • demolish and clear unsafe structures • establish control of distribution of supplies

• request aid from higher HQ if available

TOTAL PLANNING INTEGRATION AND CHECKLISTS The total plan starts with the pre-planning at the start of the disaster season and ends with the recovery after the rehabilitation of the damaged area. By breaking the plan into phases, it is possible to use only those parts of the plan which are required for the particular disaster. For instance, the disaster may occur close by and we may not have to evacuate but may have to control the flow of evacuees through our jurisdiction. Thus we will not be concerned with the evacuation phase or the reception phase. In each case a checklist for the actions to be taken should be made out in advance. This will allow the persons concerned to get on with the job at hand in an orderly fashion.

June, 1988 EPC 825

CANADIAN EMERGENCY PREPAREDNESS COLLEGE

EMERGENCY PREPAREDNESS CANADA

PLANS AND OPERATIONS PEACE COURSE

EMERGENCY PLANNING IN MUNICIPALITIES

INTRODUCTION

1. The development of a community emergency plan is not something that can be written overnight nor can it be developed in isolation. A community plan is people oriented. Its purpose is to provide a standard through which community response and support services can effectively respond to a major emergency. For this reason, it is essential that know- ledgeable representatives from all sectors of the community are invited to participate in the plan development.

2. The role of the planning officer, throughout the development phase, is to act as a depository for ideas, demands, concerns, and to conciliate areas of dispute between contributors. The planner must also be prepared to guide and direct the plan through to a s;iccessful completion.

THE COMMUNITY EMERGENCY PLAN - STAGE 1

3. Before any work can begin on a.-.community emergency lie plan, the planning officer must first determine the need as well as establish support for the emergency plan. Both justification and support will be required in order to obtain I from council the authority and budget necessary for the deve- '.crment of the plan. 1 4. A knowledge of a community's vulnerability to an emergency is necessary to justify the need. The planning of- iicer should know for example:

1 - the industrial areas of the community and the types of commodities either manufactured or I stored, - major road networks and the types of hazardous I materials being transported, - railway lines, freight or passenger, running through the community (the higher the traffic vol- I ume the higher the risk), - airport, private or commercial, with aircraft over r flying the communit,i on take off or landing, -1- io ^ EPC 825 - the potential for and frequency of summer or win- ter storms, flooding, etc.

5. Having established the need, it is now necessary to find individuals or organizations who understand and support the né;sd for a community emergency plan. Pressure and suppor t may come from:

- local elected officials

- emergency response services and agencies - the media

- the public 1

6. Remember, a community emergency plan implies a response from the entire community , for this reason, you need a community plan organized. The emergency planner may, with confidence, justify the need before Council and obtain the necessary authority and budget to proceed.

THE COMMUNITY EMERGENCY PLAN - STAGE 2

7. The emergency planner, armed with the authority of Council to proceed, must now begin the next important stage leading to a •comprehensive community plan. This phase of development will involve one on one interviews with response services, the establishment of emergency preparedness es committees, and the opening of channels of communications from Council down through response and support services to the community at large.

8. Response Agency Interviews: Informal one on one interviews are necessary in order for the planner to understand the role, responsibilities, resources, and limitations of response agencies. The interviews may also serve to identify other support services and the present level of inter-agency co-operation. A list of questions prepared in advance will ensure that the desired results are achieved. Questions to be answered might include:

- What is the ROLE of the department/agency? - What are the departmental/agency RESPONSIBILITIES? - Does your department/agency have an EMERGENCY PLAN? - Is there a LEGISLATED EMERGENCY MANDATE? etc.

-2- EPC 825 9. Establish Committees: The following illustration will serve as an example of the organizational structure required for the development, approval, and ongoing support of a community emergency plan.

MUNICIPAL COUNCIL

SPECIAL COMMITTEE OF COUNCIL ON EMERGENCY PLANNING (ELECTED)

EMERGENCY PLANNING OFFICER

EMERGENCY PLANNING COMMITTEE (STAFF)

10. The ultimate authority ror overseeing the development of and grant final approval to the community emergency plan is the municipal council. Council must be provided with progress reports on a regular basis. If necessary, its advice sought or a decision requested on emergency response procedural differences or policy issues. 11. The establishment of a special committee of council is not necessary in all cases. The size and complexity of the municipal structure will determine the need. Large municipalities, metropolitan areas, counties or regions will want to establish such a committee. Small municipalities will not. 12. The special committee of council is responsible for providing council input on all matters related to emergency planning and response. The benefit is that the emergency planning officer has a small interested and dedicated team of elected officials who are conversant with the issues and can speak intelligently on the subject at council. The ongoing support needed in the months and years ahead for the maintenance of the plan is also assured. The emergency planning officer will be the principle spokesperson at all meetings of the special committee.

-3- EPC 825

13. What is now required is a working group of staff to be known as the Emergency Planning Commiti-ee and chaired by the Emergency Planning Officer.. This committee is responsible to provide expert guidance to the Emergency Planning Officer on all aspects of emergency response activities. q Membership on this committee will be restricted to senior personnel from emergency response services and support agencies. Members will have many years experience in their res- r pective fields and will possess a sound knowledge of their operational roles, procedures, resources, and have the authority to make decisions on behalf of their department or agency. i

14. A planning committee with a very large membership will be slow moving and cumber6,,me. conversely, a small com- I mittee will not be effective because it will not be representative and will lack the required expertise. A balance can be achieved with the recognition that not all services and/or agencies need be represented during all planning sessions. A 1 sub-committee consisting of police, fire, engineering, and ambulance services is recommended. In this way, the core response services are always present and other committee re- 1 presentatives are invited to participate when items in their field of expertise are being discussed. However, the minutes of all sub committee meetings will be circulated to all mem- t bers of the emergency planning committee.

15. The first meeting of the emergency planning committee will be devoted to the adoption of the ôbjective, in general terms the concept of operations, and a timetable for the development of the plan. Subsequent meetings will be called in order to confirm the work of the sub-committee and to forward 1 to the special committee of council a progress report with recommendations. I 16. With the committee structure and reporting procedure in place, the channels of communication are now open. The challenge is to keep those channels open. Periodic progress reports sent to the media will help to maintain a high pro- I file for the emergency plan.

17. The Emergency Planniny Officer is now in a position 1 to begin the planning process in earnest. The detailed hazard analysis will also be getting under way. The more obvious areas of hazard, like those associated with chemical or t petroleum storage and transport, will be known to emergency services. This is the reason plan development and hazard analysis can be done simultaneously. Specific contingency procedures will be prepared later based on the results of I

-4- I EPC 825 the analysis. Remember, the hazard analysis will provide the emergency planner with information on: - complexity and magnitude of the hazards; - the need for specialized expertise; - the type and quantity of resources. THE COMMUNITY EMERGENCY PLAN - STAGE 3 18. Stage 3 in the development of a community emergency plan would normally provide an example of a format and details on the content. Since this information has already been provided to you, this paper will focus primarily on the responders, problems, and resources related to the planning process. 19. Police, fire, ambulance, and engineering services are immediately recognized as responders to an emergency. There are others who may not be so easily recognized or accepted. These might include a local van club, communication group, social services department or representatives from a local manufacturing firm. Depending on the size, complexity and magnitude of the emergency, responders may come from: • • - municipal, provincial or federal governments, - industry, - volunteer organizations. 20. As an emergency planner, it is important that you understand a potential responders role, responsibility, and the type of contribution that can be made. The list is deliberately not complete nor are the responsibilities assigned to eah participant exhaustive. Municipal Services Fire Department Responsible for fire supression, search and rescue, and fire prevention. They have legal authoirty to act in time of emergency especially under life threate- ning conditions where the senior fire officer, at the site, may order the evacuation of a building or well definded area. Fire departments are also a good source of resources both human and material. -5- I EPC 825

Police Force Responsible for the protection of life and property, crowd and traffic control, search and rescue, law enforcement, and investigations. They have legal autho- q rity to act in time of emergency. Po- lice Forces are an excellent source of human and material resources.

Engineering Engineering is defined here as meaning all engineering services including utilities that would normally be found in a municipality. Legal authority to act under emergency conditions does exist e.g. a roads department may close a road t or highway to all traffic when in their opinion a threat to public safety exists. They may also prevent entry or use of any structure considered unsafe. 1 Engineering services is the primary source of a municipal resource base. 1 Health Health services implies all services with a role to play in the care, management or transport of casualties. These will include hospitals, clinics, homes t of the aged, nursing homes, ambulance services and other specialized transport. Also included are facilities de- N dicated to the prevention of and control of disease. There is a wide range of emergency powers vested with health services. They are a good source of human 1 and material resources.

Social Services In some instances, social services or 1 welfare are the forgotten response agencies. Social services must be considered as a front line response agency. 1 They can organize and direct the provision of: t Emergency Feeding - for workers and evacuees Emergency Lodging - for the homeless 1

Emergency Clothing - for those who have lost everything I Personal Services - counselling and words of comfort for those in need -6- i I EPC 825

Registration and Inquiry - possibly one of the difficult services to organize and operate efficiently, required on a local, national, and international level.

21. The municipal planning and finance departments should also be considered as a response agency. A good deal of planning may be necessary during the post emergency period. Your planning department will provide that expertise. During plan development and hazard analysis, the planning department can provide valuable information on population distribution, proposed new developments, and information on industrial areas.

22. The finance department can provide assistance prior to the emergency by assisting the development of emergency accounting and procurement procedures. They can also provide advice on where, when and how of funding for pre-emergency, emergency and post emergency situations.

23. The municipal public information officer (P.I.0.) is one person who must be involved right from the beginning. The P.1.0. is a key person during the planning stages. through the preparation and dissemination of regular progress reports, the media and others are kept informed. A central focal point for acquiring information oh emergency and post emergency ectivities is absolutely essential. In order to fulfill this role successfully, the P.I.O. must be seen by the media as an integral part of the municipal emergency response. Industry

24. Industry within the community is very often forgotten or ignored during the development of the emergency plan. They are corporate citizens and when an emergency strikes, they too will be affected. Industry is concerned with manufacturing, servicing, processing and transportation. In some instances industry is the very cornerstone of the economic stability of the community. Industry is a source of specialized expertise and other resources which you will need during an emergency.

25. The media is also an industry. They can be friend or foe, depending on how they are treated. Getting the media involved early and keeping them informed with regular progress reports will pay dividends when an emergency occurs. A well informed media person who understands your program, who has confidence in your timely and accurate

-7- I EPC 825

information, is unlikely to create problems for you during an emergency. Get to know the iocal members of the media; get them on your side and keep them informed.

Volunteers

26. Volunteers are one of the great untapped resources of the community. In most instances volunteers are only thought I of as a last resort or not at all. Volunteers are often considered to be thrill seekers or glory hounds, unprofessional and unreliable. The opposite is generally true. Volunteers as a rule are very dedicated to their 1 cause, public spirited, dependable and willing to assume almost any task. I 27. You, as an emergency planner should be familiar with the volunteer organizations within your community. The following is a list of some of the organizations that may already exist within your community. This list is not f complete. Other community oriented groups may already be established. Find out who they are and what they do. I Red Cross Salvation Army St. John Ambulance Service Clubs Church Groups Boy Scouts I Girl Guides Ethnic Associations Parent-Teacher Assoc. Radio Clubs Van Clubs (4 X 4) •Snow Mobile Clubs Ski Clubs Search and Rescue M Divers

28. The thing to remember about volunteer associations is 1 that they are organized, willing, and can be controlled. Identify a role, assign a responsibility. Recognize volunteers by writing them into the plan. Train volunteers and provide the opportunity to exercise. i Provincial and Federal Services I 29. Provincial and Federal Government departments and agencies are very much involved in the field of emergency planning and response. Departments like Natural Resources or i Environment have a legislated mandate in certain types of emergencies and must be notified. In some instances, their authority extends to control over the emergency response. Know the roles and responsibilities of Provincial and Federal 1 departments and agencies within your community. Get them involved early in the planning process. Whenever you contemplate involving the Federal Government, you must first I obtain the authority to do so from your Provincial Government. The following is a list of departments that may

-8- I EPC 825 be found at either one or both the provinical or federal level. The list is not exhaustive and is only intended as an illustration. )1111e Natural Resources - forest fires, flooding, landslides Environment - chemical spills, water pollution, flood and weather forecasting, flood control Highways - highway closures, source of resources Police - communications, authority, resources Fire Marshal - investigations, mutual aid, training Health - relocation of medical facilities, authority, resources Social Services - funding, resources Energy Board - investigations, authority Solicitor General - resources

Local Conditions and Problems 30. As the plan co-ordinator, you must be prepared to deal with people. People will react in different ways to what you are trying to achieve. You are going to feel ?RUSTRATED because people do not always understand or do not care, or do not have time, or they just feel threatened by what you are trying to do. 31. You are going to have to deal with APATHY from the some very senior staff. These people will use almost any excuse to avoid their responsibilities because they simply do not care. 32. The EMPIRE BUILDERS are going to feel threatened. They want to be in control, are reluctant to accept change, and may try to undermine your efforts. 33. There are also those who suffer from something called POMPOSITY. These people are all wrapped up in their own self importance. They do not need you except on their own terms. Do not expect co-operation, and if you get it be sus- picious.

-9- t.

EPC 825 34. The POLITICIAN can be a very frustrating person to deal with. Remember, they may have their own project to sponsor and other priorities already established. The key to working with politicians is to convince them that emergency planning is important to the community and must be a high priority item. Get them on your side and keep them there with regular progress reports.

35. JURISDICTIONAL DISPUTES have a habit of erupting at the wrong time, usually during an emergency. These disputes are the result of an overlap in responsibilities or mandates which have been legislated or otherwise assigned to response services. Jurisdictional disputes need never arise. The emergency planner should review the responsibilities of all responders. Where overlaps exist, these should be resolved with the services concerned. 36. There is a COST associated with the development of a community plan. Initially, a budget will be necessary for time and reproduction. Other costs such as the purchase of specialized resources will have to be budgeted later. The emergency planner may have to plan capital cost acquisitions over a period of tow to five years. 37. LEGAL AUTHORITY to act in time of a major emergency is restricted to that which already exists in your provinical emergency legislation. When formulating your municipal emergency by-law make sure you review yogr provincial legislation. For example, if your municipality wishes to to include mandatory evacuation in the by-law, it can only be done if that provision exists at the provincial level. 36. Do not let PUBLIC RELATIONS become a liability. There is nothing secret about a community emergency plan. It's success depends on people knowing the plan. 39. Did you know that you can be held LIABLE for action taken or lack of action during an emergency? Are you protected by your municipality or through your provinical emergency legislation? If not, why not? Resources

40. Very few people have a real appreciation of the actual size of the resource base available within their own community. It can take as long, or longer, to document your community resources as it will to develop the emergency plan. 1 41. The resource base of a community may be defined as all human and material resources under the control of:

-1 0- •11 I EPC 825 Government Municipal Provincial Federal

Industry Volunteers I Neighbouring Municipalities Mutual Aid

42. Documenting resources will require a concentrated I effort over a long period of time. Keeping the manual up to date may take a lot more time. Names, addresses, and telephone numbers are in a state of constant change. Someone must be responsible for making these amendments.

43. Municipalities with population of under 100,000 will find a manual system of recording manageable. Municipalities with populations over 100,000 will find it advantageous to use some form of automated system.

Training

44. It has taken possibly one year to finalize the community emergency plan. The fact remains that it will be of little value unless people are made aware of the contents of the plan and trained accordingly. People cannot be expected to react in an anticipated way, to follow procedures, to use contingency plans, or to find resources if they have not been trained to do so. Establish a training program and ensure that all departments, agencies or individuals identified in the plan receive training. do not forget that you must also make the community aware of their role and responsibilities under the plan.

Exercises

45. The only way to determine if your new plan will work, is to test it under simulated emergency conditions. Do not attempt a major community exercise untilyour training program is well under way and a series of small individual paper exercises have been conducted. Failure to do this can result in the plan being condemned, when in reality the fault may be attributed to a lack of knowledge on the part of the participants.

46. Ensure that all those mentioned in the plan have the opportunity to participate in an exercise. Do not misuse participants by assigning exercise roles that are not in keeping with those assigned in the plan e.g. having the Red Cross make lunches instead of establishing a Registration and Inquiry.

-11- I EPC 825 SUMMARY

47. Remember that the development of the community emergency plan cannot be done overnight. Take your time and do it right the first time.

Obtain Authority Open Channels of Communications Involve People in the Planning Process Understand the Role of Others Assign Responsibilities Keep People Informed PLANNING PROCESS FLOW CHART 48. You will find attached to this paper a Flow Chart that clearly illustrates the critical path that you must follow and which was described in the paper. This Flow Chart will be useful to you in your planning process.

Attachment: Annex A to EPC 825 a

'September 1988 •

-12- M- .Bmlr m m m m i ^ il m m m ! ^ ^ mir wt -

FLOW CHART PLANNING PROCESS

EMENGENCY ROLE IN PL ANNING OVERALL COMMITTEE POSSIBLE PROV'L PLAN ESTABLISHED OUTSIDE DETERMINED RESOURCE S } DETERMINED DRAFT 3 RISK BY-LAW AIM OF PLAN PLANNING OBJECTIVES

ANALYSIS ESTABLISNED PROGRAM NO SET PASSE 1) PREPARED

LOCAL COORD E%ISTING PROV. RESOURCES APPOWTED i FED.DIRECTIVES i GUIDANCE SURVEYED EXAMINED

PLANNING PEACETIME COMMITTEE SOP• DETAILED PLANING DISASTER APPROVES FOR SELECTED 3 CTOORD PREPARED DRAFT PLANS PLAN PEACETIME PREPARES COMPLETED DISASTERE :ONTINGENCY PLANS MUNICIPAL 3 COMMENCED PLANNING ANNUAL DIVISION PLAN EMERGENCY COUNCIL' RESULTS COMMITTEE T PLAN OF PLANNING APPROVES EXERCISED EXERCISES f1• COORDINATES EVALUATED COMPLETED TASKS DETAILED PLANNING DEPT HEADS FOR WAR PREPARE NO WAR EMERGENCIES EMERGENCY DEPT'L PLANS COMMENCED PLAN COMPLETED T1 RE VISION REVISION

REVISION

NOTE

1. THE ABOVE SHOWS ONLY THE PLANNING PROCESS AND DOES NOT INCLUDE SUCH ORGANIlAT1ONAL MATTERS AS THE DEVLOPMENT OF NEW EMERGENCY SERVICESI.9 RADEF)

THE SELECTION OF PERSONNEL,EMERGENCY SITES. ETC. OR THE TRAINING OF HO AND OPERATIVE PERSONNEL.

2. EMCC-MUNCIPAL EMERGENCY MEASURES CONTROL COMMITTEE

3. SELECTED PEACETIME CONTINGENCY PLANS WILL BE DERIVED FROM THE RISK ANALYSIS EPC 1002 EMERGENCY PREPAREDNESS CANADA

MAYORS AND ELECTED MUNICIPAL OFFICIALS CONFERENCE SUGGESTED NOTES FOR BRIEFING YOUR COUNCIL MEMBERS

FELLOW MEMBERS OF COUNCIL: A short time ago I had the privilege of attending the Mayors and Elected Municipal Officials conference at the Federal Study Centre at Arnprior, Ontario. At this three and one-half days' Conference some elected officials of communities from coast to coast met and discussed peacetime disasters and nuclear war emergencies. The emphasis was on peacetime emergencies which were high- lighted by two case studies, one on a flood situation, the other on fire. The aim of this Conference was to assist Mayors and municipal officials in their responsibilities for the development of plans and the implementation of preparations to meet emergency situations. It was brought to our attention, clearly and forceful- ly, that it is up to us, the elected members of government, to meet all disasters or threats of disasters, with three basic aims in mind. Firstly, we must plan for the preservation of the lives of the people and the protection of their property. Secondly, we must ensure the continuity of civil government at all levels. And finally, we must ensure the control and conserva- tion of all available resources with which to meet the crisis and assure the recovery of the community, the province or the country. We quickly realized that these aims applied equally well to either a peacetime emergency or a wartime threat. In a nuclear war situation, following the declaration of the War Measures Act, direction and control of operations would begin at the federal level where nationwide directives and regulations would be put into effect. These, in turn, would be passed to provincial and then on to municipal government officials. Governments at all levels would assist, without stint, all the people of the country. 2 - EPC 1002

In a peacetime situation, because peacetime disasters usually occur with the jurisdiction of a municipal or local government, it is up to the members of the local government to meet the crisis situation the best way possible using local resources. I If, in the event, it finds that it cannot cope with the situation, the Mayor or other senior elected official must appeal to the next higher government for assistance. The costs of such assistance would usually be I settled mutually between the two levels of government. If jurisdiction, then an appeal is passed to the federal government who will assist the province and the municipality as 1 requested. Again, cost and other forms of assistance in peacetime are negotiated between the province concerned and the federal government. I During discussions on emergency planning at the Centre it was brought out quite clearly that the threat of disaster was with us most of the time. They type and severity of 1 disaster varied with the size and location of communities but in each case a community with a disaster plan designed to combat each type was better prepared to overcome the disaster I than one less well prepared.

Although the threat of nuclear war is more remote now than heretofore, nevertheless, it still remains a possibility I and all communities should take steps to plan now, in peacetime, to meet such an eventuality. Each step of preparation, from the planning stage to the conduct ôf exercises, better r prepares the community to face what might be a real situation later on. 1 Through an exchange of ideas and experiences, each member increased his/her knowledge in the field of e.mergency preparedness and this has resulted in a keener awareness of our responsibilities to our citizens. I

We do have a choice. We can hide our heads in the sand and hope it won't happen here, or we can face reality and e accept our responsibility as elected officials and plan to meet these eventualities the same way we plan for other future developments in our community. Not just as an adjunct to our responsibilities but as a normal function of our l government.

All aspects of civil emergency measures are worthy of I your consideration for trie safety and preservation of our people. I ask your serious consideration of the task of civil emergency planning for our community and that you give I your utmost consideration and cooperation to our civil emergency measures coordinator who is charge with assisting the planning committee in the development of emergency plans to meet both peacetime disasters and nuclear war. - 3 - EPC 1002

After disaster has struck our community, let it not be said that our municipal council failed to plan ahead to meet just such a contingency and that we were ill-prepared and ill-equipped to meet and overcome the emergency, whatever it r proved to be. 8

September, 1988 1

• 1 I EPC 1003 EMERGENCY PREPAREDNESS CANADA

MAYORS AND ELECTED MUNICIPAL OFFICIALS CONFERENCE

A SUGGESTED MUNICIPAL BY-LAW

BY-LAW NO.

1 A By-law of the Corporation of the to establish civil emergency planning. 1 Passed Whereas a state of international tension continues to exist 1 which could be a threat to the survival of Canada; And whereas the threat of a major peacetime disaster in or 1 near the municipality will continue to exist; And whereas the Government of Canada has encouraged the development of civil emergency plans by its departments and agencies by provincial governments and by municipal govern- 1 ments;

And whereas the Governmenl- of the Province of has 1 enacted

And whereas it is desirable that such civil emergency plans r be prepared in peacetime to meet emergencies created by major peacetime disasters or emergencies of war; 1 And whereas it is desirable to endure the continued function- ing of the government of the municipal corporation of during both peace and wartime emergencies and whereas the costs of establishing and maintaining an organization for 1 civil emergency planning is shared by the Governments of Canada and the Province of I And whereas it is desirable that the population comprising the municipal corporation be informed of the emergency measures they should undertake. or which are to be 1 undertaken on its behalf; Therefore the Council of the Corporation of I enacts as follows: . There shall be a committee to be known as the.Civil t Emergency Executive Committee; . The civil Emergency Executive Committee shall be responsible for: 1io 1 - 2 - EPC 1003

• the appointment of an Emergency Measures Co- ordinator and such other employees as may be required • the review of all plans, programmes and expenditures relating to emergency planning • submission to council of estimates of expenditures for the maintenance and operation of the Emergency MeaL>ures Organization • submission to council at least twice per year of a progress report of activities • submission to council, for approval, of a munici- 1 pal 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 Executive committee to formulate a municipal emergency plan. The Chairman of the Planning Committee shall be the (Clerk or EMO Co- ordinator) Each department of 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 develop upon them during a major peacetime or wartime emergency. The Emergency Measures Organization of the municipal corporation of shall be comprised of the Mayor, the Civil Emergency Executive Committee,

the office of the Emergency Measures Co - ordinator and all departments and emergency services of the Corporation. No employer 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 purpose of emergency measures or national survival without the specific authority of the Council following a recom- mendation by the Chairman of the Civil Emergency Executive Committee to the Council. al - 3 - EPC 1003

. The Emergency Measures Co-ordinator will: • co-ordinate the emergency plans created by departments and emergency services • provide advice and assistance to heads of departments and emergency services on planning, organization and training • prepare annually, estimates of expenditures for the operation and maintenance of the emergency measures organization • prepare and carry out a training programme and such studies or exercises as are required • prepare and carry out a continuing programme of public information • make such recommendations as are deemed necessary for the economy and effectiveness of civil emergency planning to the Chairman of the Executive Committee • develop emergency organizations and plans in those areas of emergency measures not normally the'responsibility of an existing municipal service • provide advice and assistance to individuals or private organizations on emergency measures • Subject to the approval of the Council, Executive Committee may negotiat agreements with other municipal corporations for the purpose of mutual aid or for the formation of joint organizations; and with the federal and provincial governments. Subject to the approval of Council, the Executive Committee may enter into agreements with 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. If the municipality does not have the resources to deal with the emergency, the Chairman of the Execu- tive Committee shall request from the Minister of for the Province of to obtain the necessary resources to contain the emergency. 4 - EPC 1003

. Salaries, honoraria, accounting, budgeting, audit- ing, personnel, administration, contracting, administrative procedures of the Emergency. Measures Organization shall be in accordance with existing by-laws, regulations and resolutions of the municipal corporation of

NOTE: Municipal Solicitors should check form and wording. 1 1 I I 1 I

September, 1988

1 , I I 1 I EPC 1009

EMERGENCY PREPAREDNESS CANADA

MAYORS AND ELECTED MUNICIPAL OFFICIALS CONFERENCE

FOURTEEN STEPS TO READINESS

One of the stated purposes of EMO/Civil Defence on the Federal and Provincial levels is to promote and nurture the development of an optimum capability to meet and deal with disaster and emergency situations at the local level. What is an optimum capability and when is a community, as well as possible, prepared to meet disasters and civil emergencies?

According to reports from people doing disaster research and from those who have had practical disaster experience, the basic requirements for a reasonable level of emergency preparedness are as follows: 1. Identify all potential disaster situations in the community.

2. Identify and inventory all available resources in the community, i.e. equipment, supplies, facilities, and human resources.

3. Assess the situation and list aIl foreseeable needs.

4. Prepare definite and functional plans for the most efficient and effective use of resources in time of emergency.

5. Determine where and how to get outside help quickly in the event that the demands of an emergency situation exceed the capability of available local resources. 6. Assign emergency responsibilities to specific positions or functions.

7. Establish definite rules of procedure for all those with emergency responsibilities.

8. Establish proper lines of authority for emergency operations.

9. Establish a line of succession for the senior executive and key personnel, i.e. Mayor, Council, Mana- ger, and department and agency heads. 2 - EPC 1009 1

10. Arrange for any necessary training of officials and personnel with emergency responsibilities.

11. Enlist and train volunteer auxiliaries for all potential personnel deficiencies.

12. Arrange for auxiliary equipment and emergency supplies in vital areas, e.g. power, communications, I medical.

13. Exercise the emergency plans and procedures to assure their practicability. I

14. Publicize the plans and procedures so that the resi- dent public will know what is expected of them and what they can expect of their local government in time of emergency. I These Fourteen Steps of Readiness are sound and practical. How does your community measure up against this cri- terion? I I M I I I I I September, 1988 I EPC 1303

EMERGENCY PREPAREDNESS CANADA EMERGENCY OPERATIONS COURSE THE EMERGENCY OPERATIONS CENTRE On the Plans Operations Peace you heard that the initial effect of a sudden disaster is the chaos caused by the convergence of people, including Emergency Personnel rushing to the scene, the overloading of radio channels as in the San Diego collision/crash of the Cessna and the 727 and finally the telephone system collapsing under the load of too many calls. The overall aim of an emergency plan it was then agreed, was to reduce to a minimum, the length of time between the onset of the chaos and the start of coordinated response.

The "5 W's" were suggested as a prescription to impose direction and cohesion to operations as follows:

WHY? - Reduce chaos to 0. WHO? is required to direct operations. WHERE? are they to be located. WHAT? are the resources available. WHEN? As soon as possible.

HOW? - modus-operandi; means available. The answers to these questions provided the framework for a municipal emergency operations center. WHY?

The impact of a disaster especially a sudden unexpected disaster with great palpable impact has a predictable effect on the individual and the community. The dramatic nature of the onset of the catastrophy provokes equally dramatic but ineffectual reaction.

The covergence of people, incuding emergency units responding pellmell, the frequently conflicting action or duplication of effort the sudden upsurge in communication traffic add up to a confusing period, a period characterized as one with "lots of motion", "little action". This period of confusion, dramatically called "the first vital minutes" is usually the period of greatest danger - to allow it to persist only increase losses.

• • • 2 The aim of the "All Contingency Emergency Plan", is to minimize, if not eradicate these "first minutes". The Plan in effect promotes the implementation of concerted meaningful action in as short a time as levels of competence and rehearsals allow. WHERE While the location of the EOC may be influenced by practical reasons, the choice of location must meet the following criteria. Space and Accommodation: Once activated the EOC operates round the clock until stand down. Feeding arrangements, a suitable rest area, adequate toilet facilities and where possible, sleeping arrangements for decision makers who remain "on call" when relieved are a bare minimum. Working space for the EOC and the support staff must of course be as comfortable as possible.

SECURITY

Personnel manning the EOC must be immune from the effects of the disaster agent. To that end, alternate sites in different parts of the city must be earmarked for relocation of the EOC if necessary. Access should also be controlled.

AUTONOMY Because the EOC must continue to operate even after services in the town are no longer available, it must be self-sustaining. Light and heat must be generated on the premises and food, water and other necessities must continue to be available after interruption of usual sources.

COMMUNICATION The root of effective coordination is in effective communications. The locating of the EOC must cater to the need for good communication. It would be a great advantage to use functional communications system if only because the antenna location has proved itself. Many cities use their communication centers, others use the Fire Station, Police Headquarters and even the Public Works garage. Communications, operating from a proven location often removes the need for relays to counter dead spots.

• • •3 ■ 3

WHO

One of the recurring weaknesses in municipal organizations is the ambivalence about the identity of the person in charge of Emergency Operations. The decision to choose the Police Chief over the Fire Chief or over the City Manâger has been knowed to be deferred permanently.

It goes without saying that the Municipal Government I embodied in the Mayor and Council is the ultimate authority. On the other hand, it is not stretching a point to say that the Mayor may not be the best qualified to coordinate the Municipal I Emergency Response. The complexity of such operations involving the employment of the various specialties in the community requires the active interaction of people very at east with specific organization, equipment, personnel, their employment, I and limitations. To that end, the Fmergency Operations Center Group has been formed.

I The EOC group is the WHO. Its composition is dictated by the size of the municipality and the nature of the emergency. Its function is to concert, make decisions about the I overall municipal operation and coordinate the response. They provide the technical and tactical knowledge necessary to shape decisions by the municipal government in dealing with the situation or to buttress political decisions taken in the same M circumstances. They become the Operatio`nal City Council, a sort of municipal Emergency Operations Cabinet.

1 Although the nature of the emergency may require the inclusion of extraneous expertise within the EOC group, there are, in any municipality, certain people or positions who would I be involved in all emergencies. The Police, Fire, Public Works are some that come to mind. The "Always Included" form the "core group". There would always be a representative from these departments, with enough familiarity with his department rushing I to the EOC once it was activated. It is they who would decide to include somebody from the local Environment Canada, a representative from the harbour or airport or even an officer from the local refinery, pulp and paper or chemical factory in the EOC group.

The tasks of the EOC group is to provide input into the I decisions dealing with the municipal response. The intimate knowledge of the resources, capabilities, modus operandi, even the quirks and peculiarities of their respective branches and I departments provide substance to the decisions. To all intent and purposes the EOC group are detached from their departments. 1 Detached but not divorced: there is no reason why they cannot r ...4 I I 4

pick up the telephone or the microphone to expedite a query as issue directives instruction to their respective departments. However, their role as a member of the EOC group would be impaired if they continued to run their departments from the EOC. The role of the core members, though difficult to explain is easily and naturally implemented.

HOW?

In Emergency Operations, coordination is enhanced by I the sharing of information. The most effective communication system would be useless if the information it carried did not reach the decision maker. I Further, a decision making process that feeds on inputs from various specialists or experts would be more efficient if I information received was made available to all.

This sharing is accomplished through the function of Operations Information. This Operations information is the link I between the information conveyors and the decision makers. It is the point at which the information is handed from the SERVICE to the USER. Once passed from the communications to the operational I function, "Communication" can be labelled "Information" to emphasize the responsibilities of the Ops Info these are:

a. Prompt routing action to relevant specialist or M expert.

b. Wide sharing by: I

1) distribution of information copies throughout EOC. 1 2) updating of: a) event boards b) resource boards. I I I I January, 1987

I If you wish to receive the Emergency Preparedness Digest regularly, please complete the following:

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Please give the completed form to a member of the EPC Staff, or mail to: EDITOR, Emergency Preparedness Digest 2nd Floor, Jackson Building 122 Bank Street OTTAWA, Ontario KlA OW6 PSEPC/SPPCC LIB/BIBLIO I

HV Mayors and elected offici6, 551.5 conference. .C2 M39 1989 DATE DUE I I I I r I I GAYLORD I PRINTED IN U S A

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