FOREWORD

This document establishes the Emergency Operations Plan (EOP) for Provo City, Utah. This plan conforms to standards established by the National Incident Management System (NIMS) and provides the basis for a systematic approach to the solution of problems created by the threat or occurrence of any type of emergency situation. The EOP identifies the responsibilities, functions, operational procedures, and working relationship among the various City departments, outside governmental entities, and private support groups.

The EOP is divided into seven major sections: Basic Plan, Pandemic Influenza Response Plan, Departmental Annexes, Administrative Annexes, Operational Annexes, Business and Industry Annexes, and Specific Event Annexes. The following is an explanation of these sections:

 Basic Plan. The Basic Plan is an overview of Provo City’s approach to emergency management. It establishes the foundation for the City’s efforts in mitigation, preparation, response, and recovery in order to cope with an emergency situation. The plan cites the legal authority for emergency management, summarizes the City’s current situation, explains the general concept of operations, and assigns general responsibilities for emergency operations related to emergency situations.  Pandemic Influenza Response Plan. This plan describes the roles and responsibilities of City departments in a local response to an influenza pandemic including: disease surveillance, the dispensing of vaccines and antiviral medication, and communications activities.  Departmental Annexes. The Departmental Annexes provide specific information concerning the organization and response activities of individual City departments. These Annexes include the emergency operations plans of each department in a format that is similar to the City’s Basic Plan.  Administrative Annexes. The Administrative Annexes provide information used in the mitigation, preparation, and recovery phases of emergency management. They include the structure and organization of the City, equipment inventory, risk assessments, training schedule, and governmental contact information.  Operational Annexes. The Operational Annexes provide information that may be used during the response phase of emergency management. This information includes procedures, forms, emergency contact information, and maps.  Business and Industry Annexes. These Annexes contain information about the emergency plans of businesses and industrial companies located in the City. This information is provided to the City in an effort to improve response efforts in an emergency situation.  Specific Event Annexes. These Annexes describe activities that need to be taken by the responsible department during specific emergency events.

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RECORD OF CHANGES

CHANGE # DATE OF DESCRIPTION OF CHANGE CHANGE MADE BY CHANGE 1 06/10/14 Emergency Levels #3 is minimal Chris event, #1 is extraordinary Event

2 9/24/14 Addition of priorities on Section II, Chris A- 3 on page 9

3 9/24/14 Addition of Notification of PIO for Chris Level 2 & 3 Incidents

4 9/25/14 Addition of Council Executive Chris Director responsibilities

5 5-02-16 Change name of Emergency Chris Management Strategic Advisory Committee to Emergency Management Strategic Advisory Committee

6 5/19/17 Changed 4 phases of EM to 5 Chris Blinzinger Mission Areas of Emergency Management

6/26/18 Identified Mass Notification system Chris Blinzinger by name :Everbridge-IPAWS

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TABLE OF CONTENTS EXECUTIVE ORDER ...... ERROR! BOOKMARK NOT DEFINED. PROMULGATION STATEMENT ...... ERROR! BOOKMARK NOT DEFINED. FOREWORD ...... 1 RECORD OF CHANGES ...... 2 TABLE OF CONTENTS ...... 3 BASIC PLAN ...... 5 I. PURPOSE ...... 2 II. SITUATION AND ASSUMPTIONS ...... 5 A. Situation ...... 5 B. Assumptions ...... 9 III. CONCEPT OF OPERATIONS ...... 11 A. General ...... 11 B. Emergency Levels ...... 12 C. Emergency Operations Center ...... 16 D. Warning Systems ...... 19 E. Phases of Emergency Management ...... Error! Bookmark not defined. IV. ORGANIZATION AND ASSIGNMENT OF RESPONSIBILITIES ...... 22 A. General ...... 22 B. Organization ...... 23 C. Task Assignments ...... 23 V. DIRECTION AND CONTROL ...... 34 VI. CONTINUITY OF GOVERNMENT ...... 35 A. Succession of Leadership ...... 35 B. Preservation of Records ...... 35 VII. ADMINISTRATION AND LOGISTICS ...... 35 A. Administration ...... 35 B. Logistics ...... 38 VIII. PLAN DEVELOPMENT AND MAINTENANCE ...... 39 IX. AUTHORITIES AND REFERENCES ...... 39 A. Legal Authority ...... 39 B. References ...... 40 X. GLOSSARY / DEFINITION OF TERMS ...... 40 A. Acronyms ...... 40 B. Definitions ...... 41 PANDEMIC INFLUENZA RESPONSE PLAN ...... 43

3 TABLE OF CONTENTS ...... 43 1. PURPOSE ...... 44 2. GOALS AND OBJECTIVES ...... 45 3. SITUATIONS AND ASSUMPTIONS ...... 45 4. ORGANIZATION AND RESPONSIBILITIES ...... 48 5. CONCEPT OF OPERATIONS ...... 57 6. TASK ORGANIZATION AND RESPONSIBILITIES...... 61 7. DIRECTION AND CONTROL ...... 65 8. CONTINUITY OF GOVERNMENT ...... 66 9. PLAN DEVELOPMENT AND MAINTENANCE...... 67 10. AUTHORITIES AND REFERENCES...... 67 Appendix 1: Department Responsibilities during Pandemic Event ...... 69 Appendix 2: Acronyms ...... 72 Appendix 3: Policy and Planning ...... 73 Appendix 4: Command Structure Flow Chart...... 74 Appendix 5: In Home Emergency Kit ...... 75

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BASIC PLAN

I. PURPOSE

The purpose of this Basic Plan is to serve as a guide of actions and decisions needed for the various departments in Provo City for response to emergency situations: natural, man-made, and technological disasters. This Plan provides an all-hazards approach for emergency management activities with the intent that it can be used in any emergency situation that may occur in the City. It is an overview of the City’s methods of mitigation, preparedness, response, and recovery. As such, this Plan meets Federal and State guidelines as designated in Presidential Directives and other Federal Mandates.

The Basic Plan provides general guidance and acts as a framework for more specific functional Annexes which contain the emergency operations plans and standard operating guidelines of individual City departments. It is the intent of this Plan to identify responsibilities and delegate these responsibilities to the appropriate departments in the City in order to preserve life, property, and the environment. The Basic Plan also includes specific assignments and responsibilities that need special attention during emergency situations, which are outside the normal and routine daily operations of the City. II. SITUATION AND ASSUMPTIONS

A. SITUATION

1. Provo City is located in Utah County approximately 40 miles south of Salt Lake City. Surrounding communities include the cities of Orem, Springville, Spanish Fork, Pleasant Grove, and American Fork. Provo serves as the County Seat of Utah County. A 2012 estimate (based on the 2010 U. S. Census) shows the City to have a population of 118,581 residents. Estimates (based on the 2010 U.S. Census) also show Provo to have one of the highest birth rates in the nation, resulting in 33 percent of the City’s population under the age of 18.

2. Located at latitude 4013’59.84’’ North, longitude 11139’53.39’’ West, the City has an elevation of 4,537 feet above sea level at the Provo City Center Building and occupies an area of 43 square miles. It is bordered by a segment of the Wasatch Mountains on the East and Utah Lake on the West. The Provo River flows through the City from the mouth of Provo Canyon to Utah Lake. The City is located downstream from the Deer Creek and Jordanelle Dams on the Provo River. The reservoir created by the Deer Creek Dam has a storage

5 capacity of 149,700 acre feet of water while the reservoir created by the Jordanelle Dam has a storage capacity of 372,000 acre feet of water.

3. The Utah Transit Authority (UTA) provides mass transit service in Provo City. UTA Frontrunner provides rail transportation from Provo to Ogden. Major transportation routes through the City include: Interstate 15, US Highway 189 (University Avenue), US Highway 89 (State Street), and a railway. In addition to the transportation routes, Provo has two transportation hubs: the Provo Municipal Airport – which is the designated diversionary airport for the Salt Lake City International Airport – and the switching yard for the railroad.

4. Provo City is home to Brigham Young University (BYU) which enrolls approximately 34,000 students. In addition, some facilities of Utah Valley University (UVU) – based in neighboring Orem, Utah – are located in Provo City. UVU enrolls 28,000 students, with nearly 20 percent of those living within Provo City boundaries. Students at these institutions come from all 50 States and over 120 countries.

5. There are more than 10 elderly care facilities in Provo along with Utah Valley Regional Medical Center – a Trauma Level 2 facility – and numerous surgical centers. The Utah County Health Department is also located in the City.

6. In the City there is a commercial infrastructure ranging from small businesses to international companies. Services offered by these businesses include industrial manufacturing, research and development (including research for the U.S. government), and sales. The commercial infrastructure employs thousands of people from within and without Provo City. Customers and clients travel to and from these businesses on a daily basis. The City also serves as a technological hub for communications and other elements of critical infrastructure.

7. Every year there are special events that attract large numbers of people to the City. Those attending events are often concentrated in a relatively small section of the City, increasing the potential for mass casualties in the event of an emergency situation. Examples of these events include: America’s Freedom Festival in Provo (with Grand Parade and Stadium of Fire as main events), business conventions at the Utah Valley Convention Center, BYU special events (Education Week, Women’s Conference etc.), BYU sporting events, and other sponsored events (Utah Valley Marathon, various road races, community events etc.).

8. Due to its location and topography, the City is exposed to a variety of hazards, all of which have the potential for disrupting normal community activities, damaging or destroying property, and causing serious injuries and/or death.

6 The following is a brief description of identified hazards in the Provo City area. a. Chemical Weapons and Biological Agents:

Utah County is adjacent to Tooele County – home of the U. S. Army’s Deseret Chemical and Biological Research Depot – making it one of three Chemical Stockpile Emergency Preparedness Program (CSEPP) counties in the State. As a part of Utah County, all of Provo City is at some risk of exposure to harmful chemicals in the event of an emergency situation involving the chemical weapons stockpile at the Depot. b. Debris Flow:

Located at the base of a portion of the Wasatch Mountains and positioned below three frontal canyons (Provo Canyon, Rock Canyon, and Slate Canyon), the City is at risk of suffering damage to life and property from rock fall or other debris. Residential developments in the foothills and unstable hillsides due to wildfires increase the risk for a debris flow incident. c. Earthquake:

This is a seismically active region, with a Segment of the Wasatch Fault under Utah Lake and along the bench of the mountains on the City’s eastern border. Differing earthquake scenarios say that there is between a 1 and 30 percent chance of a major earthquake (6.5 or greater on the Richter scale) occurring on the Provo segment of the Wasatch Fault within the next 100 years. d. Flood:

The City is located downstream from the Deer Creek and Jordanelle Dams on the Provo River and below three canyons. This position leaves the portions of the city that surround the river and canyons (the river bottoms, etc. . . .) at high risk for flooding in the event of dam failure, seiche, or high water runoff. The Emergency Release capacity of each dam individually exceeds the current channel capacity of the Provo River. e. Hazardous Material Incident (fixed site):

The presence of hazardous materials in medical facilities, laboratories, and agricultural and industrial production sites within the City creates the risk of a hazardous materials incident. f. Hazardous Material Incident (transport):

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Major transportation corridors (highways and railways) through the City, the switchyard for the railroad companies and the increased volume of hazardous material transports put Provo at high risk for a hazardous materials incident. Due to the differing characteristics of hazardous materials, the degree of damage to life and property in such an incident would vary according to the material. g. Infectious Disease Pandemic:

With the City’s current age distribution, busy transportation routes, and a large transient population of students and business people, the City of Provo is at risk for being part of an infectious disease pandemic. Traditionally, infectious disease pandemics have the greatest effect on the young (under 18 years of age) and old (over 65 years of age) portions of the population. h. Natural Gas Incident:

With one high pressure natural gas pipeline and associated supply grid near its boundaries, the City is at risk for potential incidents associated with pipelines: a disruption in supply or an explosion. i. Severe Weather:

Severe weather events that pose a risk for damage to life and property in the City include microburst wind, a tornado, torrential rain, excessive heat or cold, flash flooding, harmful air quality levels from an inversion, high levels of snowfall limiting transportation and a blizzard. j. Terrorist Incident:

While the risk of a terrorist incident in Provo is low, the possibility does exist. The areas that are most likely to be affected are special events, transportation hubs, technology companies, and organizations performing research for the U.S. government. Possible terrorist incidents include bomb threats, technological disruptions, and hostage situations. k. Wastewater Treatment Disruption:

The City’s water reclamation facility has the capability of treating up to 21,000,000 gallons of wastewater per day from domestic, commercial, and industrial sources. Currently the facility treats an average of 14,000,000 gallons of wastewater daily. In the event of a flood, terrorist attack, or an earthquake, this treatment facility may be compromised resulting in a potential public health disaster.

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l. Water Supply Disruption:

The City’s culinary/potable water supply comes from spring sources in Provo and Rock Canyons. The supply system consists of these springs, water transmission lines, chlorinator stations, deep wells, booster pumps, pressure reducing stations, and storage reservoirs. There is a risk for this system to be damaged or disabled in the event of an earthquake or terrorist attack, leading to a potential public health disaster. There is also risk that a major system failure in the water supply system could also lead to a public health disaster. Extensive drought conditions could limit well production which could limit the ability to provide water to its residents.

m. Wildfire:

Provo has significant exposure to urban interface on the West and East sides of the City. The presence of residential and/or commercial structures along the mountainside or wetlands poses a risk of damage from wildfires. An additional risk comes from exposure to agricultural areas.

n. Dam Failure/ Flooding

Deer Creek and Jordanelle reservoirs are located upstream from the city of Provo. Both dams are susceptible to failure resulting in flooding in Provo and surrounding areas. While the dam structures remain intact, an emergency release may be required that will result in devastating flows into Provo. The high water flows that occur every Spring average about 1950 cfs. Jordanelle Dam is capable of releasing up to 9000 cfs.

B. ASSUMPTIONS

1. The location and extent of some emergency situations can be predetermined while other emergency situations may occur with little or no warning at unknown locations.

2. In compliance with the National Incident Management System, all City departments will operate within the Incident Command System while responding to any emergency situation.

3. During an emergency situation, some disruption of the City’s regular services can be expected. Rapid restoration of these services will be a high priority for the City.

9 4. City personnel will be available to respond to emergency situations. All departments will have the ability to call back their employees in the event of a situation in accordance with their Standard Operating Procedures (SOP). Is this accurate?

5. The City departments referred to in this plan will respond to fulfill their responsibilities in providing for public safety during the response phase and recovery phase of an emergency situation.

6. Individual City departments will function according to their own departmental emergency operations plans. These plans serve as Annexes to this Basic plan.

7. The responsible departments will be able to maintain the City’s critical infrastructure.

8. In the event of an evacuation, transportation routes will be maintained and an orderly evacuation will ensue.

9. When necessary, agreements with supply vendors will be activated.

10. During emergency situations, businesses within the City will activate their own emergency operations plans.

11. Emergency situations may require coordination and cooperation among governmental, private, and volunteer organizations in order to protect lives and property of Provo City residents.

12. A Volunteer Reception Center will be established and staffed to facilitate local and other spontaneous volunteers responding to an emergency situation.

13. When necessary and available, warning/ notification systems will be activated including: the Emergency Alert System and intra-city warning systems (Everbridge and IPAWS).

14. BYU and UVU have their own police departments. These institutions will take care of their students and employees in an emergency situation.

15. When response to an emergency situation has exhausted the resources of Provo City, assistance will be requested from other entities in this order: mutual-aid partners and coordinated through Utah County, State of Utah, and Federal Government.

16. In most cases, proper preparations and preventive measures will reduce damage and loss of life.

10 III. CONCEPT OF OPERATIONS

A. GENERAL

1. In the event of any emergency situation (levels 1, 2, and 3), The Mayor has ultimate responsibility and authority before, during, and after the event. The Mayor is supported and advised in this responsibility by the Chief Administrative Officer, the Emergency Management Strategic Advisory Committee, the Emergency Manager(s), the Incident Commander, and the Department Directors of specifically involved departments. The City’s Emergency Operations Plan will be used as a guide for all levels of emergency situations as needed.

2. Department Directors and their subordinates are responsible for functions as specified in this plan and its Annexes. For information concerning assignment of departments as the primary, secondary, or supportive role see Annex 2.6.

3. It can be expected that some disruption of regular services will occur in the event of a level 2 or level 3 emergency situations. Provo City will continue regular operations as soon as possible, with prioritization of response in the following areas: 1) life safety, 2) incident stability, 3) property conservation, 4) Continuance of Government, and 5) Preservation of Environment. To facilitate this, employees and departments not engaged in the resolution of the emergency will extend every effort to restore and maintain City services and functions to pre-emergency levels.

4. **It is the responsibility of Provo City to respond to any emergency situation that affects the City. If emergency operations exceed the capability of the City to respond, assistance will be requested by the Mayor, or the Mayor’s designee (i.e. the Incident Commander), from mutual aid partners and Utah County. If assistance beyond the capabilities of mutual aid partners and Utah County is required to resolve the emergency situation, the County will request this assistance from the State of Utah. Assistance from the Federal government to the State will be requested when appropriate.

5. **In the event of a level 1 emergency, the Mayor may declare a local “state of emergency”. See Annex 3.2.

6. When the situation requires it, the responsibility and authority for ordering an evacuation rests only with the Mayor, the Police Chief, and the Fire Chief. See Annex 3.4.

7. In compliance with the National Incident Management System (NIMS), the use of the Incident Command System (ICS) will be utilized by all departments to manage emergency and non-emergency incidents.

11 a. NIMS was developed by the Federal government to aid responders from different jurisdictions and disciplines to more effectively work together during response to emergency situations. NIMS benefits include a unified approach to incident management; standard command and management structures; and emphasis on preparedness, mutual aid and resource management.

b. **The nature and size of the incident will determine the level and complexity of the management structure. ICS is designed to expand or be reduced as needed. As an incident escalates, the span of control may become stretched. As the need arises, the other components of Incident Management System may be staffed. A full explanation is Not Necessary

8. The Emergency Operations Center (EOC) will be activated if the emergency situation requires its use. Coordination between the EOC and the Incident Command Post will follow guidelines established under the Incident Command System. The EOC will support the needs of the Incident Command Post and is responsible for recordkeeping of the incident regarding costs and resource requests.

B. EMERGENCY LEVELS

1. Level Three Emergency

a. Definition:

Any unexpected occurrence met with a single department’s normally available resources. “Normally available resources” may include the routine response or assistance from other City departments. This is the least serious response level.

b. Responsibility:

The department that would normally handle the situation is responsible for the decision making to properly resolve the incident.

c. Notification :

Although citywide action is not required, the appropriate supervisor will determine if further notification of officials is necessary. Notification can be channeled through the Public Safety Dispatch Center or by use of email, telephone, radio, notification system or pager.

d. Action:

12 The responsible department will establish an on-site command and initiate the Incident Command System as appropriate. All Hazmat incidents require a written Incident Action Plan. For other Level One emergencies, a written Incident Action Plan (IAP) is not necessary The Emergency Operations Center (EOC) will remain at “routine/stand by” status. Any press relations will be handled by the responsible department’s Public Information Officer (PIO). Additional resource requests will be directed to normally assisting departments.

2. Level Two Emergency

a. Definition:

Any unexpected occurrence requiring response by two or more City departments or outside agencies above a routine capacity. Such emergencies require a cooperative effort and a commitment of personnel, equipment, or resources that would be expected to upset the normal working routine of either or all of the responding departments. This may also be designated if confirmed intelligence is received that a civil disturbance, natural, technological, or intentional disaster is imminent.

b. Responsibility:

The primary decision making responsibility begins with the department that would normally handle the situation and will establish command. Command may be transferred to an Incident Commander of equal or increased experience and or ability to coordinate the response of all departments to the resolution of the situation. The ultimate authority over the incident resides with the Mayor who may appoint the Incident Commander as necessary.

c. Notification:

Appropriate Officials will be notified of a Level II emergency when appropriate as identified in the Notification Policies in **Annex 3.10. (Needs to be written) This includes Mayor, CAO, Emergency Manager, Public Information Officer (PIO), and Applicable Department Directors. Notification of County Emergency Management should also be considered when conditions exist that may require their assistance in response to the emergency. This notification can be channeled through the Public Safety Dispatch Center or by use of email, telephone, radio, or notification system.

d. Action:

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The responsible department will establish an onsite command post and activate the Incident Command System. The Incident Commander (IC) or designee will then notify all responding departments of the location of the command post. The IC will be responsible for the development of an Incident Action Plan detailing what will be done, who will do it, how long it will take, and what will be done if there is a change in the situation. For all Level Two emergencies, this action plan needs to be in writing. NIMS forms can be used to complete the written action plan.

The IC may also request a partial activation of the City’s EOC by contacting the Emergency Management Strategic Advisory Committee and the Emergency. The IC will initiate through the Public Safety Dispatch Center (or their department’s dispatch center) notifying the effected Department Directors or their designees. Consideration of EAS activation.

Provo Community Emergency Response Team (CERT) may be requested for response support. This notification is made through the Everbridge Notification System.

The following optional precautionary measures may be taken by City departments at this time:  Verify inventory supplies and resources  Verify distribution of current call-up list and contact information of key personnel  Activate provisions for emergency communications

3. Level One Emergency

a. Definition:

Any extraordinary occurrence of such magnitude that all, or most, City departments and resources must be utilized or where combinations of City departments and outside agencies are mobilized to handle the situation.

b. Responsibility:

The primary responsibility for decision-making rests with the Mayor or the Mayor’s designee. The incident commander is responsible for decisions necessary to protect life and property and to stabilize the situation. The Mayor and/or the Emergency Management Strategic Advisory Committee (see section IV:B:1 of this plan) will determine the priority response to the incident.

14 This level of emergency usually results in a declaration of a local “State of Emergency”** (see Annex 3.2) by the Mayor and invokes the emergency powers of that office. The declaration of the State of Emergency is sent to Utah County. The County will make a declaration to the Utah Division of Emergency Management who makes notification to FEMA Region 8 in Denver who makes notification to FEMA Headquarters in Washington D.C. c. Notification:

The initiating department shall have the responsibility for notification. Assistance may be provided by the Public Safety Dispatch Center.

The following personnel will be included in initial notification:  The Mayor  Members of the Emergency Management Strategic Advisory Committee  Emergency Manager(s)  Department Directors  Utah County Emergency Manager  PIO d. Action:

The ICS system will be initiated in accordance with NIMS. An Incident Commander (IC) will assume command and an onsite incident command post will be established. Notification of the post’s location will be given to all responding departments and the EOC. The IC will be responsible for the development of an Incident Action Plan detailing what will be done, who will do it, how long it will take, and what will be done if there is a change in the situation. The formalization of the Incident Action Plan will be done by the Planning Section Chief. For a Level One emergency, this action plan shall be in writing.

The initiating department may request full activations of the City’s EOC by contacting the Emergency Management Strategic Advisory Committee and the Emergency Manager(s). The Public Safety Dispatch Center will assist with communications functions as needed and as staffing allows. Call-back of City employees will be initiated following each department’s emergency operations plan and standard operating procedures.

All members of the Mayor’s administrative staff shall report to the Policy Group. All Department Directors will report to the Policy Group for an initial situation report and assignments.

15 A Joint Information Center will be established by the City’s Public Information Officer. Emergency information, warnings, advice, and action instructions for the public will be coordinated.

Provo Community Emergency Response Team (CERT) may be requested for response support. This notification is made through the Everbridge Notification System.

C. EMERGENCY OPERATIONS CENTER

1. Background Information

The Emergency Operations Center (EOC) is the facility from which those responsible for emergency management may coordinate their activities. Provo City maintains one fixed location to serve as the EOC with one alternate and one mobile facility option in the event that the permanent location is not suitable for use. The location of these is as follows:

a. Fixed site facility:

251 West 800 North – Provo City Power Building. Upstairs Conference Room and Adjacent room Latitude 40.24396 Longitude -111.66327

Alternate facility: 320 West 500 North – Provo City Rec Center- NE Classroom 40o 14’ 30.71” N 111o 39’ 48.38” W

b. Mobile facility:

Police Communications Van – Location specific to incident, will be designated when notifications are made.

2. Operation and Use

Whenever possible, the EOC will be located at the fixed site facility due to space and convenience factors. When in use, the EOC Manager will coordinate and oversee the operations and support EOC operations personnel assigned to the Center. The Logistics Section Chief will facilitate necessary arrangements for additional space needed for planning, press conferences, public meetings, and other needs. This will include cots, meals, drinks, etc. when necessary and directed by the EOC Manager

16 Management of the EOC is the responsibility of the Emergency Manager or designee. Management activities include ensuring that:

 Emergency power is available to provide minimal lighting, communications, and operating levels.

 Separate rooms are provided for the operations staff and the communication center functions.

 A policy room is available for use and the Council Chambers should be available for press briefings as needed. The classroom that shares the south wall of the EOC can be used as a policy room as well as the small library directly beyond the classroom.

 Radios in the EOC are operated by designated staff familiar with radio use according to the primary department’s plan.

 Maps, charts, engineering drawings, white boards, electronic media, etc. are available for use as needed in the EOC.

EOC Activation should be considered when an incident requires a Multi-Operational period response regardless of a Level 3, 2, or 1 event. The initial role of the EOC is to gather, organize and disseminate information to contribute to a Common Operating Picture of the Event.  Whenever possible, regular EOC briefing times will be established for an early morning and an evening status update for all necessary personnel including: Policy Group, Department Directors, Site Commanders, Planners, and other administrative responders. Information will be gathered, updated, and disseminated continually during routine operations and summarized in the next scheduled briefing. In accordance with ICS, Incident Action Plans will be updated during briefings at transfer of command.

 General, regular press briefings will be scheduled, and will typically follow EOC briefings. The press will not be allowed in the EOC, but be directed to the Joint Information Center.

Staff from the primary department involved in the event or (Facility Services) personnel, may be assigned to the communication center to coordinate necessary communications for City communications personnel to answer incoming phone calls and route them to the proper individual within the EOC. 311 representatives, Department and City PIO’s will be activated to the communications center. A Joint Information Center (JIC) may be activated when the incident requires it. The JIC will be located proximal to the EOC.

17 3. EOC Levels of Activation

There are three levels of activation status for the EOC: 3. Routine (stand by) status 2. Partial Activation status 1. Full Activation status The EOC’s level of activation will be determined by the Emergency Management Strategic Advisory Committee and the Emergency Manager(s). For activation of the EOC, see the Standard Operating Procedures in Annex 3.3.

2. EOC Establishment Responsibilities

a. Fixed Facility:

The Emergency Manager is responsible to maintain the fixed location for the EOC in a ready state. The Parks and Recreation Department, Energy Department, and Information Systems will assist with technical support.

Department Directors responding to the EOC Activation may bring staff to assist with staff functions. Food arrangements are determined by the level of response and the length of activation. b. Alternate Facility: (Temporary)

The Public Works Administration will maintain their training room in a ready state. They will schedule use of the room and will assist with relocating scheduled meetings if the space is pressed into service as the Emergency Operations Center. The Parks and Recreation Department, Energy Department, and Information Systems will assist with Technical support.

c. Mobile Facility:

Public Safety Dispatch currently maintains the Communications Van. It is stored in a response-ready condition. Technical support will be provided by Information Systems.

3. Other Centers

a. Department Command Centers:

In cases where the primary department (such as Energy) has access to a command center within their own facility, that center may be used prior to an emergency’s escalation to the point of activating the EOC. Once the

18 EOC is activated, the primary department will determine the need for operating concurrently from the Department Command Center and the EOC. Information is coordinated in the main EOC from field commanders and Department Command Centers, then released in scheduled briefings.

b. Utah County EOC:

The Utah County EOC, located at the Utah County Sheriff’s Office Complex in Spanish Fork, will be activated as needed. It may be necessary to assign a liaison representative from Provo City to assist with coordination. Utah County may also send a liaison to Provo City’s EOC.

c. State EOC:

The State will activate their EOC in the Department of Public Safety, Division of Emergency Services and Homeland Security as determined by the extent of the emergency, such as for statewide events. The State EOC will coordinate State aid requests and set priorities for the entire statewide effort.

D. WARNING SYSTEMS

1. Emergency Alert System

a. Background Information:

The Emergency Alert System (EAS) was established by the Federal Communications Commission in 1994 as a tool that the President and others may use to warn the public about emergency situations. The National Weather Service also has authority to use this system in order to publish weather advisories and alerts in affected areas in a timely manner. In Utah, this system provides statewide coverage by radio and television stations.

In the City of Provo, the Mayor (or the Mayor’s designee) may initiate activation of the EAS for day-to-day emergencies posing a threat to life and property by first contacting the primary emergency radio station for the State of Utah: KSL-AM 1160 KHz. The primary emergency radio station for Utah County is: KBYU-FM 89.1. If KSL-AM is inoperable, contact the backup statewide emergency radio station: KNRS-AM 570 KHz. Emergency information may also be broadcast on the statewide emergency frequency: VHF 155.025 MHz.

b. EAS Notification Information:

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Contact Description Number KBYU-FM 89.1 is the KBYU contact for primary EAS. Alert will also EAS: Supervisor 801-422-4037 go out on KBYU-TV channel on duty 11 Works even when BYU Emergency Hot Campus Network or power 801-812-0887 Line is out BYU Broadcasting Master Backup 801-422-3031 Control Fax Line To send data 801-422-8478 Office 801-422- 6964 Supervisor George Tate Cell 801-372- 5111 Office 801-422- Supervisor 1465 Lynn Edwards Backup 1 Cell 801-367- 1779 Office 801-422- Supervisor 4037 Simon Blake Backup 2 Cell 801-368- 5484 State Contact KSL TV-assignment Desk 801-575-5600 KSL Utah State Primary 801-575-6397 Number Utah County 801-851-4100

c. Notification:

Utah County Emergency Management requests notification when the EAS is activated for emergencies in Utah County. A call placed to Utah County Dispatch at 801-851-4100 can be transferred to the office, cell, or pager of the Officer on-call for Emergency Management.

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2. Intra-city Warning System

a. Description:

The Intra-city Warning System is composed of the following elements: Fire Department Alert Siren, Riverbottoms Early Warning System, Everbridge Notification System and the Energy Dept. IVR/ Outage Management System. The Alert Siren is located at Fire Department Headquarters in Downtown Provo (80 South 300 West). This siren can be activated by authorized personnel in an effort to warn those in the downtown area of an emergency situation.

 The Riverbottoms Early Warning System is a series of 3 loudspeakers located throughout the City’s Riverbottoms neighborhood. These loudspeakers can be used to convey information or sound an alarm in the event of an emergency situation.

Provo City will use any available warning and notification systems and tools to notify the public. Tools include Social Media, Emergency Alert System (EAS) contacts, Mayor Blog and the Everbridge Mass Notification System. For information regarding procedures for the activation and use of these tools of the Notification/Warning System, Contact Department/City PIO’s, Joint Information Center (JIC) located proximal to the EOC and refer to the EAS Contacts list included at the end of the Basic Plan and Contact to Dispatch to activate the Everbridge Mass Notification System. 801-852-62-10

b. Authorization:

At present, the following Provo City positions are authorized to activate the Intra-city Warning System:

1. Mayor 2. Chief Administrative Officer 3. Police Chief 4. Fire Chief 5. Public Works Director 6. City Attorney 7. Emergency Manager

E. 5 MISSION AREAS OF EMERGENCY MANAGEMENT

21 1. Prevention The Prevention mission area comprises the capabilities necessary to avoid, prevent or stop a threatened or actual act of terrorism. It is focused on ensuring we are optimally prepared to prevent an imminent terrorist attack within the United States.

2. Mitigation

Mitigation activities are those that eliminate or reduce the probability of a disaster occurrence. Also included are those long-term activities that lessen the undesirable effects of unavoidable hazards. Some examples include: establishment of building codes, flood plain management, insurance, and public education programs. Provo City will adopt the updated Hazard Mitigation Plan at the August 8, 2017 Council Meeting.

3. Preparedness

Preparedness activities serve to develop the response capabilities needed in the event of an emergency. Planning, exercising, training, developing public information programs and warning systems are among activities conducted under this phase.

4. Response

During the response phase, emergency services are provided during a crisis. These activities help to reduce casualties and damage to speed recovery. Response activities include warning, evacuation, search & rescue, and other similar operations.

5. Recovery

Recovery includes both short-term and long-term activities. Short-term operations seek to restore critical services to the community and provide for the basic needs of the public. Long-term recovery focuses on restoring the community to its normal, or improved, state of affairs.

The recovery period is also an opportune time to institute mitigation measures, particularly those related to the recent emergency. Examples of recovery actions would be temporary housing and food, restoration of non-vital government services, and reconstruction of damaged areas.

IV. ORGANIZATION AND ASSIGNMENT OF RESPONSIBILITIES

A. GENERAL

22 All departments in city government have emergency functions in addition to their normal duties. Consequently, each department is responsible for developing and maintaining its own emergency operations plan (see Annex 1) and standard operating procedures to fulfill these responsibilities. Specific responsibilities are outlined under “Task Assignments” and amplified in function-specific Annexes of the Emergency Operations Plan (EOP). As the City of Provo has adopted the NIMS model for operations during time of disaster, the organizational structure will conform to the NIMS Incident Command System structure.

B. ORGANIZATION

1. The Provo City Emergency Management Strategic Advisory Committee is comprised of the following members: the Mayor, the Chief Administrative Officer, City Attorney, Police Chief, Fire Chief, City Public Information Officer with the Emergency Manager as staff.

2. The Incident Commander assumes command or is appointed by the Mayor taking into consideration the nature of the incident, experience, and expertise needed for successful resolution of the incident.

3. Under the NIMS model, the command staff and general staff positions will be filled with properly trained and credentialed personnel.

a. Command Staff positions:  Public Information Officer  Liaison Officer  Safety Officer

b. General Staff positions:  Operations Section Chief  Planning Section Chief  Logistics Section Chief  Finance and Administration Section Chief

Under the NIMS model, the General Staff Section Chiefs will appoint Branch Directors who, in turn, will appoint Division/Group Supervisors. These Supervisors will appoint Unit, Taskforce, and Strike Team Leaders. See Annex 2.3.

Unified Command will follow the NIMS Incident Command structure.

C. TASK ASSIGNMENTS

23 MAYOR  Policy decisions  City response activities  Call for activation of the EOC  Activation of Warning Systems including:  Emergency Alert System  Intra-City Warning System  Approval of public notifications  Declaration of disaster emergency situation  Signing of Disaster Emergency Proclamation  Closure of City facilities and suspension of public services  Call for evacuation as needed  Chair of the City Policy Group Direction of City resources (may be assisted in these duties by the CAO and others as assigned)

CHIEF ADMINISTRATIVE OFFICER (CAO)  Support of the Mayor’s executive direction as assigned  Assistance with direction of City resources  Participation in policy decisions  Authorized to activate Warning Systems  Primary backup to the Mayor in the line of succession

PUBLIC INFORMATION OFFICER (PIO)  Operation of the Joint Information Center  Interface with the Joint Information System (County, State, Federal, and private sector)  Review of all information for release to the press  Distribution of incoming information for the EMSAC  Coordinates all aspects of press briefings with approval of Mayor (or designee).

24  Coordinates the exchange of information incoming and outgoing from EOC.  Responsible for sharing information to the Council Executive Director or designee.

COUNCIL EXECUTIVE DIRECTOR  Receive information from PIO and serve as communication link to City Council regarding incident

EMERGENCY MANAGEMENT STRATEGIC ADVISORY COMMITTEE (EMSAC)  Coordination of the four phases of emergency management:  preparation  mitigation  response  recovery  Management of EOC operations  EOC communications  EOC staff  Command post operation  Public information  Warning systems  Damage and needs assessment

EMERGENCY MANAGER

 The EOC Manager supports all EOC operations and ensures that the facility and resources required for EOC support are provided. This position works closely with the Policy Group and ensures that proper emergency and disaster declarations are enacted and documented.. The EOC Manager will set up the EOC and activate it using the positions and personnel to support field operations and to accomplish the mission. The EOC Manager reports directly to the Policy Group. The EOC Manager will fill positions in the EOC on an “as needed” basis.

 Coordination of City emergency training and education efforts

25  Point of contact (liaison) with other municipal, County, State, and Federal organizations  Point of contact and assistance to private business partners  Assistance in review and update City mutual-aid agreements  Evaluation and update of the City’s Emergency Operations Plan (EOP)  Coordination of department-specific emergency operations plans within the City included as Annexes to the City’s EOP  Advise and support the EMSAC  Coordination of the City’s plans with the County and State EOPs

PUBLIC SAFETY DISPATCH  Radio Communications  Activation of the Intra-city Warning System (excluding the Alert Siren at Fire Department Headquarters)  Mobile EOC (Police Communications Van)  Assistance with critical notifications

COMMUNITY DEVELOPMENT DEPARTMENT  Coordination of rehabilitation and relief efforts  Printing and distribution of warning information  Maintenance of current situation charts and maps (including EOC)  Statistical collection and correlation  Support of quarantine efforts  Development and coordination of a damage assessment system:  Preparation of damage assessment reports  Relay damage assessment reports to EOC  Local administration of National Flood Insurance  Vulnerability studies during normal operations and recommendations  Determination of structural safety of all buildings and public improvements in the disaster area

26  Identification, marking, and securing of buildings and public improvements that constitute safety hazards  Coordination with other City departments to repair or demolish hazardous structures  Work with the Landmarks Commission to identify any existing historic properties within a designated disaster area

MAYOR’S OFFICE OF ECONOMIC DEVELOPMENT  Liaison with business community  Vulnerability assessments and damage assessments for businesses  Economic data collection and correlation  Surveillance  Creation and distribution of printed public awareness information  Recommendation for assistance to or from businesses  Support of quarantine efforts  Deputy Mayor serves as backup to the Mayor and CAO

ENERGY DEPARTMENT  Energy distribution system  Critical infrastructure support  Damage assessment to public energy distribution system  Assistance with assessment of public utility systems  Restoration of electrical services  Assistance to public works department as resource availability permits including:  Debris and refuse clearance  Engineering  Temporary on-site emergency lighting and power  Identification of danger areas caused by downed power lines  Assistance with heavy search and rescue operations and first-aid

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ADMINISTRATION SERVICES DEPARTMENT  FACILITIES • Facility infrastructure restoration, operation and support  Rapid damage assessment and evaluation of City owned buildings and systems  Restoration of building electrical, HVAC, plumbing and security services  Assistance to various City departments for building restoration and occupation  Installs, operates, and maintains emergency generators at City facilities  Maintains readiness of City EOC and supports EOC operations (power, tele-data cabling, equipment etc.)  Coordination of private contractor support  Support and assist IS department in telecomm/network restoration to City buildings  Assistance with restoration of natural gas and electrical services to City buildings  Assistance with biochemical decontamination operations  Locating and shutting off utilities that serve City owned buildings  Confirm capacity of emergency fuel systems to generators  Participate as requested in mitigation and prevention, preparedness, response and recovery activities  Secure and protect departmental facilities and equipment  Report damage and status of City owned buildings  Begin immediate inspections for re-occupancy of City facilities  Identify life-threatening and other hazardous conditions for immediate abatement  Determine the cost and percentage of damage to all buildings, structures and properties

28  FINANCE  Accounting practices  Financial support and advice to other departments  Emergency procurement procedures  Vaccine procurement agreements  Material requests and distribution  Documentation needed for disaster relief  Tracking of material expenses  Recovery planning  Preservation and restoration of City records (City Recorder)  Coordination of loss claims with FEMA and insurance companies  Management of response budget

 HUMAN RESOURCES  Information about staffing or human resources  Development of recruiting, training, and workers compensation  Maintenance of City personnel information by skill category  Coordination of volunteer workers  Operation of a staffing pool to support other departments  Tracking of personnel hours utilized in disaster recovery in conjunction with the City’s Finance division  Maintaining liaison – communication with the families of City employees responding to the emergency  Insurance Documentation and administration

 INFORMATION SYSTEMS  Setup, maintenance and support of telephony (land line, cell phone, and air card) system(s).  Setup, maintenance and support of 800MHz Radio system(s).  Setup, maintenance and support of Data Network system(s).  Setup and maintenance of data backup system(s)

29  Setup, maintenance and support of public safety early warning system(s).  Technical support of EOC, mobile EOC and public safety dispatch technology including but not limited to, desktop computers, laptops, tablets, monitors, printers, network switches, radios and servers.  Creation and maintenance of the information systems disaster recovery plan.

FIRE DEPARTMENT  Fire suppression  Medical operations  Special operations and hazardous materials incident (hazmat) response  Supervision in mass casualty incidents  Assistance with medical support for disease epidemic control  Support the operation of the warning systems  Assistance with damage assessment  Authorized to initiate evacuations (Fire Chief)  Coordination of ambulance services  Liaison with medical facilities  Emergency first-aid and light rescue  Communication systems support  Report observations made in “windshield surveys” for relay to the EOC  Authorized to activate Warning Systems (Fire Chief or designee)

LEGAL DEPARTMENT (CITY ATTORNEY)  Legal advice to all elements of City government  Preparation of proposed ordinances, proclamations, and executive orders  Review of emergency contracts  Authorized to activate Warning Systems  OSHA Compliance and Safety issues  Safety Programs

30 LIBRARY DEPARTMENT  Printing of public information  Food and drink for emergency personnel  Support of EOC staff

PARKS AND RECREATION DEPARTMENT  Public mass care sheltering  Identify and supervise shelters  Establishment and management of morgue services and resources  Management of the Cemetery  Public building sanitary procedures  Contaminated material disposal  Posting of public information  Support of quarantine efforts  Immunization site locations  Assistance to Public Works department  Assistance with heavy search and rescue operations  Assistance with first-aid  Assistance to Community Development by performing damage assessments of all City-owned buildings  Assistance with communication support of the EOC  Installation, operation, and maintenance of emergency generators at city facilities  Assistance with restoration of services in damaged city facilities

POLICE DEPARTMENT  Enforcement of law and order including:  Quarantine enforcement  Traffic control  Patrol of evacuated areas  Control of access to restricted facilities

31  Security passes  Security of vital facilities  Security at disaster sites  Support of the Warning Systems  Authorized to activate the Warning Systems (Police Chief or designee)  Communications systems support  Liaison with other law enforcement agencies  May initiate evacuations (Police Chief)  Assistance with light search and rescue operations  Report observations made in “windshield surveys” for relay to the EOC  Assistance with morgue operation security and EOC security  Pandemic protection monitoring support

PUBLIC WORKS DEPARTMENT  Water  Water distribution system  Repair and restore water distribution system  Potable water for essential activities not serviced by primary system  Waste water system  Assure maintenance of sanitation and public health  Restore sanitation and public health  Public services  Airport  Activate airport emergency operations plan  Damage assessment of airport  Medical surveillance on all incoming flights  Management of on-site quarantine facilities  Debris and refuse clearance  Maintenance of roads and bridges  Fleet management and maintenance of all City vehicles and rolling stock

32  Fleet Manager to receive requests, coordinate, and provide all augmentation transportation (except for the provision of heavy construction equipment)  Fuel supplies including procurement and allocation of petroleum stocks  Manage and operate City fuel supply facilities  Engineering and engineering advice  Assistance with damage assessment of public property including roads, bridges, and the airport  Assistance with biochemical decontamination operations  Protection against damage by flooding  Repair and restore damage  Coordination of private contractor support  Mapping and statistical data  Maintenance of resource inventory  Assistance with restoration of natural gas and electrical services  Assistance with heavy search and rescue operations and first-aid  Authorized to activate the Warning Systems (Department Director)

33 V. DIRECTION AND CONTROL

. 1. The final responsibility for all emergency management belongs to the Mayor. . As Chief Executive Officer and head of the administrative branch of the City government, he shall execute the laws and ordinances and administer the government of the City.

2. The Emergency Management Strategic Advisory Committee (EMSAC) This group is the decision making group for all policy level decisions related to emergency management. During response operations, they will also be available to address non-routine matters.

3. The City Emergency Manager(s) is/are responsible for coordinating the emergency management program. He/she makes routine decisions and advises the EMSAC on alternatives when major decisions are required of that body. During emergency operations, he/she is responsible for the proper functioning of the EOC and its staff. The coordinator(s) also acts as a liaison with other local, county, state, and federal emergency management agencies.

4. Specific persons in the departments/agencies are responsible for fulfilling their duties as stated in this Basic Plan and the Annexes thereto. Department Directors will retain control of their employees and equipment during response operations. Standard Operating Procedures (SOP) are required of each department having responsibilities in this plan. These SOPs must include:

a. Recall of personnel during non-duty hours b. Contingences for short staffing c. Prioritization of tasks to guide recovery work d. Procedures to be followed when a deviation from normal operations is necessary e. Specific emergency authorities that may be assumed by the designated successor during emergency situations

5. During some periods of an emergency, Department Directors or designees will be required to remain in support of the Policy Group. The Directors are still responsible for directing their departments from that facility unless another qualified designee has been appointed.

34 VI. CONTINUITY OF GOVERNMENT

A. SUCCESSION OF LEADERSHIP

The line of succession for continuity of government for the City of Provo is as follows:

1. Elected Official (Mayor) John Curtis 2. Chief Administrative Officer (CAO) Wayne Parker 3. City Attorney Robert West 4. Deputy Mayor Dixon Holmes-

SUCCESSION of CAO 1. Deputy Mayor 2. Parks and Rec Director 3. Community Development Director

Line of succession for each department head is according to the department rules and/or standard operating procedures established by each department. See Annex 2.7.

B. PRESERVATION OF RECORDS

In order to provide normal government operations following a disaster, vital records must be protected. The principle causes of damage to records are fire and water; therefore, essential records will be protected accordingly in City Hall. This is the responsibility of the City Recorder. Each department is responsible for preparation of Annexes to this plan that will include protection of vital records.

If records are damaged during an emergency situation, the City Recorder will seek professional assistance to preserve and restore those records.

VII. ADMINISTRATION AND LOGISTICS

A. ADMINISTRATION

1. Emergency Authority

A summary of existing Federal, State, and Local legislation pertaining to emergency management is listed in Section IX of this plan.

2. Reports and Records

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a. Reports:

Reports are required from involved departments to provide elected officials, the Emergency Management Strategic Advisory Committee , the Emergency Manager(s), and other government officials with information concerning the nature, magnitude, and impact of an emergency situation. These reports will also be used in evaluating and providing the most efficient and appropriate response. Reports required include, but are not limited to:  Action Reports  Situation Reports  Declaration of a State of Emergency  Requests for Assistance  Damage Assessment Reports  Asset Reports: personnel and equipment  Other Reports

Required reports will be submitted to the appropriate authorities in accordance with State and Federal statutes. All written reports (hardcopies) relative to an incident will be maintained and secured. These will be available by means of an electronic database.

For emergency situations, all City departments participating in the emergency response shall maintain detailed reports of costs for emergency operations to include: 1) personnel costs, 2) equipment operations costs, 3) costs for leased or rented equipment, 4) costs for contract services to support emergency operations, and 5) costs of specialized supplies expended for emergency operations. These records may be used to recover costs from the responsible party or insurers as well as a basis for requesting financial assistance for certain allowable response and recovery costs from the State and/or Federal government. In addition, volunteer tracking reports will also be submitted.

b. Records:

As stated in Section VI of this plan, in order to provide normal government operations following a disaster, vital records must be protected. The principle causes of damage to records are fire and water; therefore, essential records will be protected accordingly in City Hall. The City Recorder has the responsibility of protecting and restoring these records.

3. Agreements and Understandings

Should City resources prove to be inadequate during an emergency situation, requests will be made for assistance from other local jurisdictions, higher levels of government, and other agencies in accordance with existing or emergency

36 negotiated mutual aid agreements and understandings. Such assistance may take the form of equipment, supplies, personnel, or other available resources. All agreements and understandings will be entered into by duly authorized officials and will be formalized in writing whenever possible. These agreements should be in place prior to the incident.

When emergency assistance activities are carried out by contract and/or agreement with private organizations, firms, or individuals; preference will be given to those residing in the City of Provo, previously doing business with the City of Provo, or those that have made prior agreement with the City of Provo.

4. Relief Assistance

All individual public assistance provided by the government will be administered in accordance with policies set forth by those Federal agencies providing such assistance.

5. Consumer Protection

Consumer complaints pertaining to alleged unfair or illegal business practices would be referred to the Utah Department of Commerce, Division of Consumer Protection.

6. Nondiscrimination

There will be no discrimination on grounds of race, religion, nationality, sex, age, disability, or economic status in the execution of disaster preparedness or disaster relief and assistance functions. The City of Provo conforms to all Federal and State laws as currently amended including, but not limited to: the Civil Rights Act of 1964, the Age Discrimination Act of 1975, and the Americans with Disabilities Act of 1990.

7. Administration of Insurance Claims

Insurance claims are normally handled on a routine basis by commercial insurance companies and their adjustment agencies. All City claims should be managed through the City’s Legal Department. For details see Provo City Code 3.10.

8. Preservation of Historic Properties

Consideration should be given to notify the Provo City Landmarks Commission in the event of an emergency situation. When applicable, the Community Development Director will arrange for the Landmarks Commission to identify any existing historic properties within a designated disaster area.

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9. Training

Training on the plan will be conducted each year with at least one simulated emergency exercise. These exercises can be conducted in cooperation with community partners. This will insure practical controlled experience to those tasked with emergency response duties outlined in this plan.

10. Legal Liability and Protection

a. Liability:

City employees may be subject to legal action because of injuries or damages resulting from their acts or omissions. Provo City employees may be personally liable for any of their acts or omissions that involve gross negligence, malice, or unlawful conduct. An emergency does not justify improper or unlawful conduct.

b. Protection:

A City employee may request legal representation from the Office of the City Attorney. As stated in Provo City code 3.05.010, the City shall conduct and pay the costs of the legal defense of any officer or employee of the City against whom a claim or suit is brought based on conduct occurring while the officer or employee was apparently acting within the scope of his or her employment or under color of authority as an officer or employee of Provo City.

B. LOGISTICS

1. Critical Infrastructure

The critical infrastructure of Provo is the physical and economic base of the City. Provo City will maintain an assessment of the critical infrastructure. This can be found in Annex 2.5.

2. Equipment Inventory

Provo City will regularly update and maintain an equipment inventory. This inventory is a record of all equipment that the City has at its disposal for routine daily activities and for emergency situations. See Annex 2.8.

3. Mutual Aid Agreements

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Provo City will maintain agreements with neighboring cities and government agencies. According to these agreements, Provo City will give or receive assistance when the situation requires it. Individual departments will determine the need for assistance. See Annex 2.10.

4. Emergency Response Providers List

Provo City will maintain a current list of area emergency response providers. This list is found in Annex 2.9.

VIII. PLAN DEVELOPMENT AND MAINTENANCE

The contents of this plan must be known and understood by those responsible for its implementation. The Emergency Manager is responsible for briefing staff members and city officials concerning their role in emergency management and the contents of this plan in particular.

Department Directors are responsible for development and maintenance of their respective segments of this plan (Department Annexes) and their appropriate supporting SOPs as stated here in this plan.

The EMSAC will insure an annual review of this plan is conducted by all officials involved in its execution. The Emergency Manager(s) will coordinate this review and any plan revision and distribution found necessary.

Training on the plan will be conducted each year with at least one simulated emergency exercise. These exercises can be conducted in cooperation with community partners. This will insure practical controlled experience to those tasked with emergency response duties outlined in this plan.

IX. AUTHORITIES AND REFERENCES

A. LEGAL AUTHORITY

1. Federal  Robert T. Stafford Disaster Relief and Emergency Assistance Act as amended Public Law 93-288  Emergency Management and Assistance, 44 U.S. Code

2. State  Utah State Code Title 63

3. Local  Provo City Code Title 2 (Mayor’s authority)

39  Provo City Code Title 3 (Administrative procedures: purchasing, public contracts, claims and lawsuits against city employees, reporting, risk management)  Provo City Code Title 16 (historic landmarks preservation)  Provo City Code Title 17 (Civil Liberties)

B. REFERENCES

Provo City Codebook

State of Utah Department of Public Safety, Division of Emergency Services and Homeland Security

U.S. Census Bureau

U.S. Department of Homeland Security, Federal Emergency Management Agency

U.S. Department of Labor, Civil Rights Center

X. GLOSSARY / DEFINITION OF TERMS

A. ACRONYMS

CAO Chief Administrative Officer EAS Emergency Alert System EMSAC Emergency Management Strategic Advisory Committee EOC Emergency Operations Center EOP Emergency Operations Plan FEMA Federal Emergency Management Agency Hazmat Hazardous Material IAP Incident Action Plan IC Incident Commander ICS Incident Command System NIMS National Incident Management System SOP Standard Operating Procedure

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B. DEFINITIONS

Incident Action Plan: A plan developed by the Incident Commander at an emergency situation detailing what will be done, who will do it, how long it will take, and what will be done if there is a change in the situation. Emergency Management: Refers to programs and capabilities designed to mitigate, prepare for, respond to, and recover from the effects of all hazards. Emergency Situation: This term is intended to describe a range of situations, from a level one to a level three emergency (see section III:B of this plan). It includes natural, man-made, or technological disasters. Federal Emergency Management Agency: Agency established to oversee federal assistance to individuals and local government in the event of major disasters. Also administers the Emergency Management assistance program, which provides emergency management funds to local governments through the states. Hazardous Materials: Any substance or material in a quantity or form which may be harmful or injurious to humans, domestic animals, wildlife, economic crops, or property when released into the environment. Liaison: A person that acts as a coordinator or communication link between two entities. Mutual Aid: A system designed to ensure that adequate resources, facilities, and other support are provided to jurisdictions whenever their own resources prove to be inadequate to cope with a given situation. Public Information Officer: An official responsible for releasing information to the public through the news media. Seiche: A standing wave in an enclosed or partially enclosed body of water. They can be caused by meteorological or seismic events.

41 EMERGENCY ALERT SYSTEM (EAS): Contact Tree

All of the following numbers and individuals need to be contacted when initiating the EAS

Contact Description Number KBYU-FM 89.1 is the primary EAS. KBYU contact for EAS: Alert will also go out on KBYU-TV 801-422-4037 Supervisor on duty channel 11 Works even when BYU Campus Emergency Hot Line 801-812-0887 Network or power is out Backup BYU Broadcasting Master Control 801-422-3031 Fax Line To send data 801-422-8478 Office 801-422-6964 Supervisor George Tate Cell 801-372-5111 Office 801-422-1465 Supervisor Backup 1 Lynn Edwards Cell 801-367-1779 Office 801-422-4037 Supervisor Backup 2 Simon Blake Cell 801-368-5484 State Contact KSL TV-assignment Desk 801-575-5600 KSL Utah State Primary Number 801-575-6397 Utah County 801-851-4100

42 PANDEMIC INFLUENZA RESPONSE PLAN

TABLE OF CONTENTS

1. Purpose 2. Goals and Objectives 3. Situations and Assumptions 4. Organization and Responsibilities 5. Concept of Operations 6. Task Organization and Responsibilities 7. Direction and Control 8. Continuity of Government 9. Plan Development and Maintenance

Appendix 1 - Department responsibilities during pandemic event Appendix 2 – Acronyms Appendix 3 – Policy Group Appendix 4 – Command structure flow chart Appendix 5 - In-home emergency kit Appendix 6 - Provo City priority vaccination scheme

43 1. PURPOSE

The purpose of this Pandemic Influenza Plan is to define the roles, responsibilities, and actions of key stakeholders before a pandemic and at each stage of a pandemic response. Specifically, the plan will describe the role of each individual department in coordinating a local response to an influenza pandemic including disease surveillance, vaccine and antiviral medication dispensing, and communications activities.

The paramount goal is stopping, slowing or otherwise limiting the spread of a pandemic in the City of Provo. Along with limiting the local spread of a pandemic and combating disease, suffering and death. Sustaining the critical infrastructure, mitigating impact to the economy along with the critical functioning of the city is of great importance.

Possible Impact to Provo City by an Avian Flu Pandemic

A flu pandemic affecting the City of Provo would have a devastating impact with illness and death on an elevated scale. Provo has a population of 118,581 not considering the student and transient population present at any given time. If we use the state model as outlined in the “Utah Pandemic Influenza Response Plan 2006” for projecting the effects of the flu on a population, the following calculations would reflect the impact to Provo City.

The “first wave” may have the following effects on the general population in Provo City (est.2009 population 118,581):

Clinically Ill (ILI Require Outpatient Require Fatalities: attack rate=25%): Care: Hospitalization: 12,078-19,326 6,039-12,078 181-483 48-193

The “second wave” may have the following effects on the general population in Provo City assuming 1918 severity (est.2009 population 118,581):

Clinically Ill (ILI Require Outpatient Require Fatalities: attack rate of 5%): Care: Hospitalization: 2,415-3,865 1,207-2,415 36-96 12-48

Total persons affected in Provo City for “1918-like” pandemic lasting one year: Clinically Ill: Require Outpatient Require Fatalities: Care Hospitalization > 48,315 > 24,157 > 724 > 193

44 As with any disease, the effects may be disproportional in the vulnerable population. The pediatric and elderly populations are generally at greater risk, due to their immune systems reduced ability to fight disease as well as their limited ability to care for themselves. Provo is comprised of a very large residential population including students. Along with the large residential population, Provo and Utah County have one of the highest birth rates in the country. We also have a business infrastructure that employs and draws a very large number of people from outside the city. An interstate highway, I- 15 runs through the town and is responsible for a significant transient exposure. There is no way of predicting the target population, however, the very young and elderly are usually more at risk for complications due to disease. Provo City’s residential population generally live in close proximity to one another, making the spread of disease somewhat enhanced.

2. GOALS AND OBJECTIVES

A. Ensure optimal coordination, decision-making, and communication between all levels of city government. B. Detect influenza symptoms through vigorous surveillance of city residents, city employees, and private business partners. C. Work closely with the Utah County Health Department to enhance efforts to combat the spread of the disease and support therapeutic efforts. D. Rapidly obtain vaccines that are licensed against the pandemic strain and request/obtain sufficient quantity to vaccinate the population. E. Implement a vaccination program that rapidly administers vaccine to priority groups and essential personnel. F. Implement measures to decrease the spread of disease guided by the epidemiology of the pandemic. G. Maintain all essential services and community services. H. Communicate effectively with the public, health care providers, community leaders and the media.

3. SITUATIONS AND ASSUMPTIONS

I. Situations

1. Influenza is a highly contagious respiratory virus that is responsible for annual epidemics in the United States and other countries. Each year, an average of 200,000 people are hospitalized and 36,000 die in the U.S. from influenza infection or as secondary complication.

2. Influenza viruses can undergo minor genetic variations each year. This occurs continuously, and is the reason the make-up of the influenza vaccine is changed yearly. Infrequently, the influenza virus will combine with animal viruses to cause a genetic shift and create a new virus to

45 which humans have little or no immunity. This type of shift has historically almost always created a pandemic.

3. Because of the potentially high degree of infectiousness of pandemic influenza, the number of persons affected will be high. The Center for Disease Control (CDC) estimates that up to 100 million people will be infected and between 89,000 and 207,000 will die in the United States. The threat of pandemic influenza is not a question of if, but rather a question of when.

4. Priority areas in pandemic influenza response are surveillance, delivery of vaccine and antiviral medication, emergency medical services, infection control, communication, and continued essential services.

5. The City of Provo will need integrated pandemic planning efforts with other ongoing emergency preparedness activities and periodically exercise parts of the plan at the local level. The plan should be updated annually and after every exercise.

A. Assumptions

1. An influenza pandemic is expected, but unpredictable and will arrive with very little warning.

2. Voluntary isolation of sick and contagious citizens will be justified and relied upon in the plan.

3. Restrictions may be placed on certain types and places of public congregation.

4. An effective response will be heavily reliant upon support for the ill, allowing them to remain at home when possible.

5. A formal joint agreement between public emergency responders, private health care entities, and public information providers will be put in place to assist all parties in cooperating with the response.

6. All City services will be maintained as long as conditions permit.

7. Essential services will be maintained through the duration of the pandemic.

8. An influenza pandemic in Provo City, will present a massive test of the emergency preparedness system. Advance planning could save lives and prevent substantial economic loss.

46

9. Although pandemic influenza strains have emerged mostly from areas of Eastern Asia, variants with pandemic potential will likely emerge in the United States and in Utah.

10. Provo City and our neighboring jurisdictions may be affected simultaneously preventing the availability of additional human and material resources that usually occur in response to other types of disasters.

11. A second wave of influenza is likely to occur several months after the pandemic appears to be over.

12. A pandemic will pose significant threats to human infrastructure responsible for critical community services due to widespread absenteeism.

13. Healthcare workers and other first responders may be at higher risk of exposure and illness than the general population, further straining the healthcare system.

14. Effective prevention and therapeutic measures, including vaccine and antiviral agents, will be delayed and in short supply.

15. A pandemic will have substantial impacts on the need for and delivery of other vital community services.

16. Persons who are ill but do not require hospitalization may need home healthcare services as well as other community support, such as delivery of prescription medications and possibly meals.

17. Providing a range of home care services will also be important, if isolation and quarantine are implemented as strategies to decrease the transmission of infection.

18. Other vital community services will also be affected by an influenza pandemic. A moderate pandemic could infect one-third of the population. Essential services such as fire, law enforcement, utilities, waste disposal, utility services, and transportation systems are likely to experience personnel shortages and potential disruption.

19. Reluctance to travel to affected areas may impact the delivery of food supplies and other essential materials.

20. There may be critical shortages of healthcare resources such as staffed hospital beds, mechanical ventilators, and other resources.

47

21. Systems designed to care for the dead may be overwhelmed. Morgue capacity may need to be augmented by using temporary holding sites with refrigeration for storage of bodies and other resources to properly care for the dead.

22. Assuming that prior influenza vaccination(s) may offer some protection (even against a novel influenza variant), the annual influenza vaccination program, supplemented by pneumococcal vaccination when indicated, will remain a cornerstone of prevention.

23. Surveillance of influenza disease and virus will provide information critical to an effective response.

24. State and Federal government will likely not assume all the costs for purchase of vaccines, antiviral medications, and related supplies.

25. Current computer capacity of many local health departments is not adequate for expedient dissemination of information and data.

26. An effective response to an influenza pandemic will require the coordinated efforts of a wide variety of organizations – private as well as public.

4. ORGANIZATION AND RESPONSIBILITIES

The Mayor or designee is responsible for the overall direction and control of personnel and resources committed to the control of an influenza pandemic at the local level. It is important, however, to delineate responsibilities of other levels of government to gain an understanding of what Federal and State agencies will and will not provide and the impact those provisions will ultimately have on the City. A pandemic influenza will evolve through the following series of phases although the rapid evolution of events during a pandemic will mean that phases may overlap.

48 Phase Description Overarching Public Health Goals

World Health Organization (WHO) Pandemic Phases

Inter-Pandemic Phases

Phase 1: No new influenza subtypes have been found in humans. An influenza virus subtype that has caused human infection may be present in animals. If present in humans, infection or disease is considered low. Phase 2: No new influenza virus subtypes have been detected in humans. However a circulating animal influenza virus subtype poses a substantial risk of human disease. Phase 3: Human infection (s) with a new subtype, but no human-to-human spread, or at most rare instances of spread to a close contact. Phase 4: Small cluster(s) with limited human-to-human transmission but spread is highly localized, suggesting that the virus is not well adapted to humans.

Phase 5: Larger cluster(s) but human-to-human spread still localized, suggesting that the virus is becoming increasingly better adapted to humans, but may not yet be fully transmissible (substantial pandemic risk).

Pandemic Period

Phase 6: Pandemic – increased and sustained transmission in the general population.

Post Pandemic Period – Return to the Inter-pandemic Period (Phase 1)

Source: WHO Global Influenza Preparedness Plan, 2005, at [http://www.who.int/csr/disease/influenza/pandemic/en/index.html].

1. Federal

The federal government is responsible for nationwide coordination of the pandemic influenza response. Specific areas of responsibility include the following: a. Surveillance in the U.S. and globally. b. Epidemiological investigation in the U.S. and globally. c. Development and use of diagnostic laboratory tests and reagents. d. Development of reference strains and reagents for vaccines. e. Vaccine evaluation and licensure. f. Determination of populations at highest risk and strategies for vaccination and antiviral use. g. Assessment of measures to decrease transmission (such as travel restrictions, isolation, and quarantine). h. Deployment of federally purchased vaccine. i. Deployment of antiviral agents in the Strategic National Stockpile. j. Evaluation of the efficacy of response measures. k. Evaluation of vaccine safety. l. Medical and public health communications.

49

2. State - Utah Department of Health and Human Services

a. Identify public and private sector partners needed for effective planning and response. b. Integrate pandemic influenza planning with other planning activities conducted under CDC and Health Resources and Services. c. Collaborate with local health departments to ensure coordination. d. Developments of regional and local plans and provide resources, such as templates, to assist in planning process. e. Maintain data management systems needed to implement components of the plan. f. Assist local jurisdictions in exercising plans. g. Coordinate with neighboring states. h. Organize a collaborative prioritization and utilization of private vaccine resources with the health care community.

3. Local County

Inter-pandemic Phase:

a. Evaluate adequacy of existing local infrastructure to respond to an influenza pandemic. b. Identify public and private partners to assist with preparedness activities (planning, training, and exercises) as well as local or regional response to an outbreak. c. Identify regional resources necessary to deliver vaccine and antiviral medications to all residents of the City. This includes identification of facilities, transportation, and storage resources with vendors capable of delivering key items immediately prior to or during a response. d. The identification and cooperation of community leaders to assist in disseminating emergency messages to specific populations. e. Identify, train, and equip staff to activate a pandemic influenza response upon notification. f. Identify databases to manage all resources and document/track all expenses in real time. g. Establish relationships with partner agencies capable of providing response assistance, particularly those that can assist with security and crowd control. h. Work with local health care facilities to assess and improve healthcare worker immunization levels. i. Where possible, enhance pneumococcal vaccination coverage levels in traditional high risk groups (to reduce the incidence and severity of secondary bacterial pneumonia).

50 j. Review current emergency plans for inclusion of provisions for mass vaccination campaigns. Review security aspects of plan with local law enforcement authorities. k. Conduct a county-wide space and site resource inventory. Determine the availability of shelters; including predetermined Red Cross shelters, schools, gymnasiums, nursing homes, day care centers, and other potential sites for aggregate care. Identify appropriate sites to serve as triage and treatment centers, mass vaccination sites or as holding areas for acutely ill patients not able to be admitted to an acute care hospital. l. In coordination with the State Department of Health and Social Services (DHSS), identify facilities/resources with sufficient refrigerated storage to serve as temporary morgues. If necessary, develop a plan for management of bodies when morgue capacity has been exceeded. m. Devise a plan for distribution and administration of public sector vaccine.  Conduct a county-wide inventory of emergency department capacity, number of hospital beds, number of intensive care unit beds, and quantity of ventilators, morgue capacity, and number of healthcare providers available to see outpatients. n. Educate staff about the nature and significance of pandemic influenza and the local response. o. Work with local private and volunteer organizations to develop and synchronize local response to a pandemic of influenza. p. Coordinate pandemic influenza planning with other local government agencies. q. Establish a means of rapid, two-way communication between the local health department (e.g., health officers and communicable disease coordinators) and hospitals (infection control practitioners and emergency department directors). r. Determine the ability to use ham radio and ham radio teams, as a means of two way communications.

Pandemic Alert Period – Phases 3 & 4:

a. Using CHIRP and other methods, notify hospitals and local private and public partners of novel virus alert. b. Notify emergency management directors and other City officials of novel virus alert. c. Maintain a current status report of hospital census. d. Review pandemic influenza response plans. e. In coordination with other agencies, provide updates to hospitals, EMS, local law enforcement, and local, private and public partners.

51 f. Convene regular meetings with county emergency management directors to formulate a regional action plan in the event the pandemic occurs.

Pandemic Alert Period – Phase 5:

a. The UCHD will activate the Health Departments Emergency Operations Center at Level I and appoint an Incident Commander, who will identify an Incident Management Team. b. The Incident Management Team will initiate communication with state and national counterparts as directed by the Incident Commander (IC). c. Review plan for distribution of public-sector vaccine. d. Provide Provo City and other local partners with lists of public vaccine distribution sites. e. Based on the activation level of the EOC, the Operations Section will activate enhanced surveillance and coordinate with Communications. f. Enhance procedures for the collection of clinical specimens and transport to the State Public Health Laboratory. g. Contact appropriate private partners to review their plans for distribution and administration of vaccine to the private sector. h. Administer vaccine, once vaccine is available. i. The Logistics Team will notify key officials and emergency management of the need for additional resources, if necessary. j. The Logistics Team will arrange for appropriate facilities use and additional staffing needs. k. All agencies will document expenses of a pandemic response.

Pandemic Period:

a. The Health Department’s EOC (Emergency Operations Center) should be fully operational at Level III and local emergency managers should consider activation of EOC’s (City Emergency Operations Centers). b. All public health and medical agencies will monitor staffing needs and report routinely to the EOC and the Health Department’s EOC by means of email, conference calls and written situation reports. c. UCHD will coordinate activities with neighboring Health departments in the neighboring areas, as well as other governmental agencies. d. The Incident Management Team will interface with appropriate counterparts at the state and national levels. e. The Logistics team will document expenses of pandemic response and report as directed to emergency management and the County Finance Office. f. Coordinate use of available local resources during a pandemic, including private, public and volunteer resources.

g. Report pandemic-related information regularly to UDOH.

52 h. Assess effectiveness of local response and available local capacity. i. Administer vaccine, once vaccine is available.

“Second Wave”:

a. Continue all activities listed under Pandemic phase. b. Review, evaluate, and modify as needed, the local pandemic response. Update the UDOH. c. Continue to vaccinate. d. Monitor resources and staffing needs.

Post-pandemic Period:

a. Assess local capacity to resume normal public health functions. b. Assess local capacity to resume normal health care delivery. c. Assess fiscal impact of pandemic response. d. Report results of assessment to local government authorities. e. Report results of assessment to DHSS.

4. Provo City

Inter-pandemic Phase:

a. Evaluate adequacy of existing local infrastructure to respond to an influenza pandemic. b. Identify public and private partners to assist with preparedness activities including planning, training, exercise, as well as local or regional response to an outbreak. c. Identify, train, and equip staff to activate a pandemic influenza response upon notification. d. Identify databases to manage all resources and document/track all expenses in real time. e. Establish relationships with partner agencies capable of providing response assistance, particularly those that can assist with security and crowd control. f. Work with local health care facilities to assess and improve immunization levels. g. Conduct a city-wide space and site resource inventory. Determine the availability of shelters, schools, gymnasiums, nursing homes, day care centers, and other potential sites for aggregate care. h. Identify appropriate sites to serve as triage and treatment centers, mass vaccination sites or as holding areas for acutely ill patients not able to be admitted to an acute care hospital. i. Educate staff about the nature and significance of pandemic influenza and the city’s response.

53 j. Work with local private and volunteer organizations to develop and synchronize local response to a pandemic of influenza. k. Coordinate pandemic influenza planning with other local government agencies. l. Establish a means of rapid, two-way communication between local health agencies (e.g., health officers and communicable disease coordinators) along with the UCHD.

Pandemic Alert Period – Phases 3 & 4

a. Notify EMSAC (Emergency Management Strategic Advisory Committee ), and other City officials of novel virus alert. b. Review pandemic influenza response plans. c. In coordination with other agencies, update EMS, local law enforcement, and local, private and public partners. d. Emergency management and the EMSAC will hold daily briefings with department directors. e. Maintain a current status report on critical infrastructure. f. Post public information on the City web site. g. Make necessary public information releases through all forms of media.

Pandemic Alert Period – Phase 5:

a. The EMSAC will activate the Emergency Operations Center at Level II and appoint an IC (Incident Commander) who will identify the Command Staff b. The IC will determine the need for general staffing positions c. The Incident Command Staff will initiate communication with County, state and national counterparts as directed by the IC. d. Review plan for distribution of vaccine. e. Provide local partners with lists of public vaccine distribution sites. f. Based on the activation level of the EOC, the Operations Section Chief will activate enhanced surveillance and coordinate with the UCHD. g. Administer vaccine, once vaccine is available. h. The IC will notify key officials and emergency management of the need for additional resources, if necessary. i. IC will arrange for appropriate facilities use and additional staffing. j. All department directors will hold briefings as needed for their respective staff personnel. k. All departments will document expenses of a pandemic response.

Pandemic Period: a. The Emergency Operations Center should be fully operational at Level III b. The Incident Command System will be fully functional as outlined under NIMS.

54 c. General Staff positions will be filled by the IC. d. The Policy Group will be briefed on a regular basis, and as may be additionally needed. e. The Policy Group will determine priority needs and advise the IC. f. All Departments will monitor staffing needs and send situation reports routinely to the EOC. g. The EMSAC will coordinate activities with the Utah County Health department and other governmental agencies. h. The Incident Command Staff will interface with appropriate counterparts at the County, state and national levels. i. All expenses related to pandemic response will be reported to emergency management and the Finance Section Chief. j. The IC will coordinate the use of available local resources during a pandemic, including private, public and volunteer resources. k. The Command Staff Liaison will report pandemic-related information regularly to the UCHD and private community partners. l. The Operations Section Chief will assess effectiveness of local response. m. The Operations Section Chief will arrange for the administration of vaccine, once vaccine is available. n. The PIO will establish a JIC (Joint Information Center) for the city in conjunction with the Utah County Health department. o. The PIO will hold daily press conferences to make available, relevant information to the public.

“Second Wave”:

a. Continue all activities listed under Pandemic phase. b. Review, evaluate, and modify as needed, the local pandemic response. Update UDOH. c. Continue to vaccinate. d. Monitor resources and staffing needs.

Post-pandemic Period:

a. Assess local capacity to resume normal functions. b. Assess the critical infrastructure for the rapid restoration of services. c. Assess local capacity to resume normal services delivery. d. Assess fiscal impact of pandemic response. e. Report results of assessment to EMSAC and the Policy Group. f. Report results of assessment to Utah County

55 Individuals

It is likely in the event of a pandemic that adequate supplies of effective medications (antiviral) will be in short supply, and that a vaccine for the particular strain of influenza virus causing the pandemic will not be available for some time, likely for several months. If this occurs, the public will have to use alternative means to protect themselves from becoming infected. Although the strategies outlined may seem to be basic, they are effective in reducing the risk of becoming infected with influenza and/or transmitting it to others.

Inter-pandemic Period:

a. Prepare a family communications plan that addresses how family members will reach each other in different situations. b. Be prepared to stay in one place, most likely at home. c. Watch television or listen to the radio to get as much information as possible. d. Prepare an in-home emergency kit containing at minimum, the supplies listed in Appendix 5 of this plan for as long as 1 month. Rotate supplies regularly to prevent product expiration.

Pandemic Alert and Pandemic Periods:

At this time, no specific recommendations can be made for well persons in the community (unvaccinated persons without symptoms) regarding the use of masks. There currently are no data available to demonstrate the effectiveness of masks in decreasing the risk of infection with influenza virus by the general public. Instead, the following practical practices should be followed, at least until a vaccine is available: a. Avoid crowded conditions. b. Wash hands often and well. c. Provide tissues and disposal receptacles for symptomatic family members, friends, and colleagues. d. Watch and listen for public health directives at the time of an outbreak for updated information on prevention recommendations, vaccine, and anti-viral agent availability.

It is likely that adequate supplies of effective medications (antiviral) will be in short supply, and that a vaccine for the particular strain of influenza virus causing the pandemic will not be available for some time, likely for several months. If this occurs, the public will have to use alternative means to protect themselves from becoming infected. Although the following strategies for persons with symptoms in non-healthcare settings may seem to be basic, they are effective in reducing the risk of becoming infected with influenza and/or transmitting it to others.

a. Use tissues to contain respiratory secretions, and after use, dispose of them in the nearest waste receptacle.

56 b. Cover mouth and nose when coughing or sneezing. c. Perform hand hygiene (e.g. wash hands frequently or use hand- sanitizer in the absence of soap and water) after having contact with respiratory secretions and potentially contaminated objects/materials. d. Remain at home until the fever is resolved and the cough is resolving to avoid exposing other members of the public. e. If a symptomatic person cannot stay home early in their illness, they should be sure to cover their cough with their hand and a tissue. Also, surgical masks can be worn by the infected person to help limit aerosol spread.

5. CONCEPT OF OPERATIONS

A. Provo City will activate the EOC and the Emergency Management Plan. B. Operations will be guided by the “Utah Pandemic Influenza Response Plan 2006” and Utah County Health’s Pandemic Response Plan. C. An important part of remediation efforts during and after a pandemic influenza will be the coordination of public, private, and volunteer organizations. D. Essential components to responding to an influenza pandemic: 1. Command and Control Procedures 2. Surveillance 3. Vaccine Delivery 4. Emergency Services 5. Controlling the Spread of Disease 6. Communication 7. Maintaining Critical Services

1. Command and Control Procedures

a. The complexities associated with responding to a pandemic influenza will necessitate the use of the Incident Management System (IMS). The City of Provo adheres to the National Incident Management System (NIMS) concepts as outlined in the City’s Emergency Management Plan (EMP). b. The Mayor or his/her, designee will appoint an Incident Commander using the protocols set forth under NIMS. Upon advisement from the Operations Chief (Communicable Disease Prevention Manager or designee), the Incident Commander will determine the need for personal protective equipment and make recommendations for field personnel. c. The nature of a pandemic influenza will necessitate increased coordination among local public health agencies, and the city of Provo. Therefore, a representative from both UCHD and the local health care system will be invited to the City’s Emergency Operations Center (EOC) for as long as is deemed necessary by the UCHD Director.

57 d. Incident management protocols will be combined with EOC operations. No field command post will be established and the Incident Commander will co-locate with policymakers and other decision makers in the EOC. e. There are legal concerns when responding to a pandemic, including licensure, burial, and quarantine laws. The Incident Commander will consult the UCHD Director and legal staff for guidance.

2. Surveillance

a The UCHD carries the primary responsibility for surveillance of providers within the Provo City limits. Activities include: notifiable disease surveillance, case investigation, outbreak investigation and other activities the Health Department conducts on a routine basis. UCHD is also responsible for sharing surveillance information with other area health organizations and municipalities. Any of these activities could reveal the first indication of the likelihood of an influenza pandemic. b The UCHD conducts public health surveillance activities under both local and state authorizations. Local and state authorizations establish lists of reportable diseases and conditions designate who is required to report said information, define the method(s) and timeliness of these reports, and the responsibilities of the receiving health department. c Provo City will establish surveillance for its employees and provide support to the Utah County Health department for surveillance of the city’s general population.

3. Vaccine Delivery

a. Upon CDC release of an effective vaccine, Provo City will request enough for its daytime population of 116,217. In cooperation with the UCHD Provo City will then implement a vaccination program that rapidly administers vaccine to priority groups and monitors vaccine effectiveness and safety by gathering information on whether vaccinated individuals test positive for influenza. This information will be compared to the UCHD vaccination database. b. In a pandemic, vaccine supply levels will change over time. c. When a pandemic first strikes, vaccine will likely not be ready for distribution. Because of this, antiviral drug therapy and preventive use in those not infected (prophylaxis), quality medical care, and interventions to decrease exposure and/or transmission of infection will be important approaches to decrease the disease burden and potentially the spread of the pandemic until vaccine becomes available.

58 d. Vaccine will require approximately four to five months to produce. Once the first lots of vaccine are available, there is likely to be much greater demand than supply. Vaccine will need to first be targeted to priority groups (see appendix 6 “Provo City priority vaccination scheme”) that will be defined on the basis of several factors. These may include: the risk of occupational infections/transmission (e.g., healthcare workers); the responsibilities of certain occupations in providing essential public health safety services; impact of the circulating pandemic virus on various age groups; and heightened risks for persons with specific conditions. Although the priority groups for annual influenza vaccination will provide some guidance for vaccine distribution for a pandemic, the risk profile for a pandemic strain and the priorities for vaccination may differ substantially and therefore will need to be guided by the epidemiologic pattern of the pandemic as it unfolds. e. Later in the pandemic, vaccine supply will approximate demand and vaccination of the full at-risk population can occur. f. Given the time required for vaccine development and vaccine production capacity, shortages may exist throughout the first pandemic wave.

4. Emergency Medical Services (EMS)

a. Provo Fire and Rescue will direct and coordinate the operation of the ground ambulance service between the disaster site and medical facilities. b. EMS staff will assume responsibility for disaster area triage and treatment under the guidelines set forth by Utah County response protocols. c. They will also assist with coordinating the delivery of patients to individual hospitals through the utilization of the EMSystem, UCAN Radio System and local medical channels.

5. Controlling the Spread of Disease

a. Response to a pandemic will call upon the expansion of ongoing disease control activities and functions within the public health and medical communities. It is the responsibility of the Utah County Health Department’s leadership to implement measures to decrease the spread of disease guided by the epidemiology of the pandemic. b. Infection control in hospitals and long-term care facilities prevents the spread of infection among high-risk populations and health care workers. c. Because influenza strains that cause annual outbreaks are effectively transmitted between people and can be transmitted by people who are infected but appear well, efforts to prevent their introduction into the

59 metropolitan region or decrease transmission in the community are likely to have limited effectiveness. d. If a novel influenza strain that is not as efficiently spread between people causes outbreaks in other areas, measures such as screening travelers from affected areas, limiting public gatherings, closing schools, and/or quarantine of exposed persons could slow the spread of disease. Decisions regarding use of these measures will need to be based on their effectiveness and the epidemiology of the pandemic. In Provo City, the UCHD director will determine the most appropriate measure to contain the spread and coordinate preventive measures with neighboring jurisdictions. e. When deemed appropriate, the Utah County Health Director will call upon the citizens and visitors to Provo City, to voluntarily limit unnecessary public exposure and to don appropriate protective gear (e.g. surgical masks) when public access is required.

6. Communications

a. It is essential that early communications be established to inform healthcare providers and the public about influenza disease and the course of the pandemic, instructions regarding the treatment of mild illness at home, the availability of vaccine, and priority groups for earlier vaccination. b. Communication will be important to ensure appropriate use of medical resources and avoid possible panic or the overwhelming of vaccine delivery sites. c. Effective communications with community leaders and the media is important to maintain public awareness, avoid social disruption and to provide information on evolving pandemic response activities. d. Each of these areas will be accomplished through activation of the Emergency Public Information System.

7. Maintaining Critical Services

a. It is essential to maintain critical services such as police and fire protection. Services critical to the infrastructure of Provo are also essential. Public services such as water, waste-water, waste removal and energy are vital to the citizens and Provo City. b. Training will be provided to fill in staffing to insure the continuation of critical services.

60 6. TASK ORGANIZATION AND RESPONSIBILITIES.

General:

Most of the departments within city government have emergency functions in addition to their normal duties. Consequently, each department is responsible for developing and maintaining its own emergency standard operating procedures to fulfill these responsibilities. Specific responsibilities are outlined under "Task Assignments" and amplified in function specific annexes in the City’s Emergency Management Plan. As the City of Provo has adopted the NIMS model for operations during time of disaster, the organizational structure will conform to the NIMS Incident Command structure.

Organization:

1. See Appendix 1 2. The Provo City Policy Group is composed of the Mayor, Chief Administrative Officer, City Attorney, Police Chief, Fire Chief, and City Public Information Officer, with the Emergency Manager as staff. 3. The IC (Incident Commander) is appointed by the Mayor taking into consideration the nature of the incident and experience and expertise needed for successful resolution of the incident. 4. The Emergency Services Coordination Group is composed of the following positions as assigned to the officials listed below: 5. Chief of Operations is selected by the IC 6. EOC Staff Coordinator: Emergency Manager (s) 7. Law Enforcement Service: Police Chief 8. Fire/Rescue Service: Fire Chief 9. Health/Medical Service: Fire Chief / EMS Director 10. Shelter/Mass Care Service: Parks & Recreation 11. Resources Management Service: Personnel Director 12. City Maintenance/Public Works: Public Works Director 13. School District Services: Provo Public Schools Superintendent. 14. Power: Energy Department Director. 15. Other Public Utility Services: Managers of companies that provide natural gas, electricity and telephone services within the city. 16. Manpower Services: Personnel Director. 17. Engineering Services: Public Works Director and Community Development Director.

A. Under the NIMS model the command staff and general staff positions will be filled with properly trained and credentialed personnel.

1. Command Staff positions  Public Information Officer  Liaison Officer

61  Safety Officer

2. General Staff Positions  Operations Section Chief  Planning Section Chief  Logistics Section Chief  Finance and Administration Section Chief

B. Under the NIMS model the general staff Section Chiefs will appoint Branch Directors who in turn will appoint division/group supervisors who in turn will appoint unit, task force and strike team leaders.

C. Unified Command will follow the NIMS Incident Command structure.

Task Assignments and Responsibilities.

A. The Mayor of Provo City is responsible for: 1. Declaration of Disaster Emergency situation 2. Signing of Disaster Emergency Proclamation 3. Closure of city facilities and suspension of public services 4. Chair of the Policy Group 5. Directing City Resources

B. The CAO of Provo City is responsible for: 1. Support of Mayor’s executive direction as assigned 2. Assists with direction of City resources 3. Participation in policy decisions 4. Authorized to activate Warning Systems 5. Primary backup to the Mayor in the line of secession

C. The PIO of Provo City is responsible for: 1. Operation of the JIC 2. Interface with the JIS (county, state, federal, and private sector) 3. Review of all information for release to the press 4. Distribution of incoming information to the EMEG

D. Provo City Council Liaison is responsible for: 1. Information exchange between the EOC and the council

E. The EMSAC (Emergency Management Strategic Advisory Committee ) is responsible for: 1. Coordination of all phases of emergency management and response 2. Determining priorities, levels of services to be provided.

62 3. Making assignments for effective interface with other governmental entities 4. EOC staffing, operations and communications 5. Assigns resources 6. Public Information 7. Management response budget 8. Command Post operations 9. Warning Systems 10. Damage and Needs assessment 11. Recovery Planning 12. Mitigation 13. Pandemic protection planning and monitoring

F. The Provo City Attorney is responsible for: 1. All legal document preparation 2. Proclamation and executive order preparation 3. Contract reviews

G. The Provo City Human Resource Division is responsible for: 1. All personnel policy related issues 2. OSHA compliance and safety issues 3. Safety programs 4. Payroll 5. Insurance documentation and administration 6. Employee awareness information and training

H. The Provo City Police Department is responsible for: 1. Maintaining law and order 2. Quarantine enforcement 3. Traffic control 4. Access control of restricted areas 5. Security of vital facilities 6. Support of the warning system 7. Communication system support 8. Pandemic protection monitoring support 9. Liaison with other law enforcement agencies 10. Search and rescue operation support

I. The Provo City Fire Department is responsible for: 1. Fire suppression 2. Medical operations 3. Special operations and hazmat 4. Assisting in medical support for epidemic control 5. Supporting the operation of the warning system 6. Search and rescue operations 7. Assisting in damage assessment

63 8. Communication system support

J. The Provo City Information Systems Division is responsible for: 1. Setup, maintenance and support of telephony (land line, cell phone, air card) system(s). 2. Setup, maintenance and support of 800MHz Radio system(s). 3. Setup, maintenance and support of Data Network system(s). 4. Setup and maintenance of data backup system(s) 5. Setup, maintenance and support of public safety early warning system(s). 6. Technical support of EOC, mobile EOC and public safety dispatch technology including but not limited to, desktop computers, laptops, tablets, monitors, printers, network switches, radios and servers. 7. Creation and maintenance of the information systems disaster recovery plan.

K. The Provo City Public Works department is responsible for: 1. Water a. Water distribution system b. Waste water system 2. Public Services a. Airport  Activate airport Emergency Operation Plan  Medical surveillance of all incoming flights  Management of on-site quarantine facilities b. Debris and refuse clearance c. Maintaining roads and bridges d. Fleet management e. Fuel supplies f. Engineering g. Providing engineering advice h. Assisting with damage assessment of public property i. Assisting with biochemical decontamination operations j. Mapping and statistical data

L. The Provo City Energy department: 1. Energy distribution system 2. Critical infrastructure support 3. Debris and refuse clearance 4. Engineering

64 5. Damage assessment to public energy distribution system 6. Assisting in assessment to public utility systems

M. The Provo City Community Development department is responsible for: 1. Coordinating rehabilitation and relief efforts 2. Printing and distributing warning information 3. Maintaining current situation charts and maps 4. Statistical collection and correlation 5. Supporting quarantine efforts

N. The Provo City Economic Development department is responsible for: 1. Liaison to business community 2. Supporting quarantine efforts 3. Surveillance 4. Economic data collection and correlation 5. Creation and distributing printed public awareness information

O. The Provo City Parks and Recreation department is responsible for: 1. Public building sanitary procedures 2. Providing public mass care sheltering 3. Immunization site locations 4. The cemetery 5. Morgue services 6. Contaminated material disposal 7. Supporting quarantine efforts 8. Posting of public information

P. The Provo City Finance division is responsible for: 1. Accounting practices 2. Vaccine procurement agreements 3. Emergency procurement procedures 4. Material requests and distribution 5. Documentation needed for disaster relief 6. Recovery Planning

Q. The Provo City Library has responsibilities for: 1. Printed public information 2. Support EOC staff

7. DIRECTION AND CONTROL

1. The final responsibility for all emergency management belongs to the Mayor and members of the EMSAC (Emergency Management Strategic Advisory Committee ). This group is the decision making group for all

65 policy level decisions. During response operations, they will also be available to address non-routine matters.

2. Executive responsibility for emergency management is vested in the Mayor. As Chief Executive Officer and head of the administrative branch of the city government, he shall execute the laws and ordinances and administer the government of the city. He is the Chief Executive Officer for the City, and during response operations, for the Emergency Policy Command Group.

3. The City Emergency Manager (s) is/are responsible for coordinating the emergency management program. He/she makes routine decisions and advises the EMSAC on alternatives when major decisions are required of that body. During emergency operations, he/she is responsible for the proper functioning of the EOC and its staff. The coordinator (s) also acts as liaison with other local, county, state and federal emergency management agencies.

4. Specific persons in departments/agencies are responsible for fulfilling their responsibilities as stated in this Basic Plan and the annexes thereto. Department Directors will retain control of their employees and equipment during response operations. Standing operating procedures are required of each department having responsibilities in this plan. These SOPs must include: a. Recall of personnel during non-duty hours. b. Contingences for short staffing c. Prioritization of tasks to guide recovery work. d. Procedures to be followed when a deviation from normal operations is necessary. e. Specific emergency authorities that may be assumed by the designated successor during emergency situations.

5. During some periods of an emergency, Department Directors will be required to remain in the EOC and direct their departments from that facility. During any large scale emergency, the EOC will in fact become the seat of city government for the duration of the crisis.

8. CONTINUITY OF GOVERNMENT

Succession of Leadership:

1. The line of succession for continuity of government for the City of Provo is as follows:

a. Elected Official (Mayor)

66 b. Chief Administrative Officer (CAO) c. Director of Economic Development d. Director of Public Works

2. Line of succession for each department head is according to the department rules and/or standing operating procedures established by each department.

Preservation of Records:

In order to provide normal government operations following a disaster, vital records must be protected. The principal cause of damage to records is fire and water; therefore, essential records will be protected accordingly in City Hall. This is the responsibility of the City Recorder.

9. PLAN DEVELOPMENT AND MAINTENANCE

1. The contents of this plan must be known and understood by those people responsible for its implementation. The Emergency Manager (s) is/are responsible for briefing staff members and city officials concerning their role in emergency management and the contents of this plan in particular.

2. Department Directors are responsible for development and maintenance of their respective segments of this plan and their appropriate supporting SOP's as stated here in this plan.

3. The EMSAC will ensure an annual review of this plan is conducted by all officials involved in its execution. The Emergency Manager (s) will coordinate this review and any plan revision and distribution found necessary.

4. Training on the plan will be conducted each year with at least one simulated emergency exercise. This will insure practical controlled experience to those tasked with emergency response duties outlined in this plan.

10. AUTHORITIES AND REFERENCES.

A. Legal Authority.

1. Federal. a. Disaster Relief Act of 1974, Pub. L. 93-288 as amended. b. Emergency Management and Assistance, 44 U.S. Code c. State of Utah compendium of state legislation related to emergency management.

2. Local.

67 a. Provo City Code

B. References. a. Provo City’s Emergency Management Plan. b. Utah Department of Health, “Utah Pandemic Influenza Response Plan” c. Utah County Health Pandemic Plan. d. U.S. Department of Health & Human Services

68 Appendix 1: Department Responsibilities during Pandemic Event

Task Primary Assist Access control of restricted Police Dept Public Works areas Airport Public works Fire Dept. Biological material disposal Parks & Rec. City administration Mayor CAO coordination City financial coordination Finance City legal coordination City Attorney Command post operations Emerg. Mgt. & EMEG Fire Dept., Police Dept. Command post planning Emerg. Mgt. & EMEG Fire Dept., Police Dept. Communications system IS, Emerg. Mgt. IS, Emerg. Mgt. operations Communications system Emerg. Mgt. & IS EMS, Fire Dept., Police Dept. planning Counseling Human Resources Red Cross , VOAD Damage assessment (private Emerg. Mgt. & Community Development prop) Engineering Damage assessment (public Emerg. Mgt. & Community Development prop) Engineering Damage assessment planning Emerg. Mgt. & Community Development Engineering Debris clearance Public Works National Guard, Public Utilities Deceased victims operations Parks & Rec. Medical Examiner Decontamination Fire Dept. Health Dept., National Guard Disaster coordination - overall Emerg. Mgt. & EMEG EMS, Fire Dept., Police Dept. Disaster declaration Mayor City Attorney, City Manager, City Clerk Emergency management Emerg. Mgt. & EMEG All Agencies planning Emergency medical transport Fire Dept. Emergency medical treatment Fire Dept. Emergency medical services Fire Dept. Health Dept. Engineering service & advice Community Development National Guard, Public Utilities, Public Works EOC communications Emerg. Mgt. & IS EOC operation Emerg. Mgt. & EMEG

69 EOC staff training Emerg. Mgt. & EMEG Human Resources Committee Epidemic control & Fire Dept. EMS Health Dept. coordination Fire prevention & education Fire Dept. Fire suppression Fire Dept. Funeral home coordination Parks & Rec. Medical Examiner Garbage disposal Public Works Hazardous materials operations Fire Dept. Hazardous materials planning Fire Dept. Law & order maintenance Police Dept National Guard Law enforcement mutual aid Police Dept Medical support coordination Fire Dept. EMS Health Dept. Morgue Parks & Rec. Public works Public buildings Parks & Rec. Public education Emerg. Mgt. & Library Public information PIO Liaison Reconstruction Economic Development VOAD Resource coordination - federal State EM Resource coordination - local Emerg. Mgt. & EMEG State EM Resource coordination - state County EM Emerg. Mgt. & EMEG Road & bridge maintenance Public Works National Guard Sanitary conditions - standards Parks & Rec. Health Dept. Search & rescue operations Fire Dept. Utah County , National Guard, State EM (FEMA USAR) Security of vital facilities Police Dept National Guard Severe weather observation Emerg. Mgt. & EMEG Sewage/storm sewer Public Works maintenance Shelter operations Parks & Rec. Red Cross Shelter planning Parks & Rec. Red Cross Traffic control Police Dept Public Works Transportation Economic development School District, United Way Vehicle maintenance Public Works Victim funds Red Cross DHS, State EM, VOAD Victim lodging Red Cross DHS, State EM, VOAD Victim provisions Red Cross DHS, State EM, VOAD

70 Volunteer manpower Economic development United Way , Red Cross, VOAD Warning system maintenance Emerg. Mgt. & IS EMEG Warning system Activation Emerg. Mgt. & EMSAC Fire Dept. Warning system planning Emerg. Mgt. & EMEG IS Water system operation Public Works Waste Water management Public Works Water distribution Public Works Water supply inspection Public Works

71 Appendix 2: Acronyms

A. CAO Chief Administrative Officer B. CDC Centers for Disease Control C. CHIRP County Community Health Incident Response Partners D. DHSS Department of Health and Social Services E. DOH Department of Health F. EMSAC Emergency Management Strategic Advisory Committee G. EMS Emergency Medical Services H. EMSystem Emergency Medical System I. EOC Emergency Operations Center J. EOP Emergency Operations Plan K. HAN Health Alert Network L. IC Incident Commander M. IS Information Systems N. JIC Joint Information Center O. JIS Joint Information System P. NIMS National Incident Management System Q. PIO Public Information Officer R. UCHD Utah County Health Department

72 Appendix 3: Policy and Planning

Emergency Mgmt Policy Group (EMSAC) Mayor CAO Emergency Police Chief ___ Management Fire Chief Coordinator City Attorney (Staff) PIO

Emergency Planning and Implementation Group (EPIG)

Emergency Manager, Chair Deputy Fire Chief Assigned Police Captain Others as assigned

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Appendix 4: Command Structure Flow Chart

Incident Unified Command Commander

Public Information

Officer

Liaison Officer

Safety Officer

Operations Section Planning Section Logistics Section Finance & Administration Chief Chief Chief Section Chief

Branch Branch Branch Branch Branch Branch Branch Branch

Groups Groups

Units Divisions Groups

Single Resource s

74 Appendix 5: In Home Emergency Kit

Water • At least a two-week supply of all • Store 1 gallon of water per person your prescription medicines and per day other medical supplies • Keep at least a three day supply of Other Items water • Toilet paper • Soap Food • Waterless hand sanitizer • Preferably, store foods that can be • Toothpaste, toothbrush, comb, kept at room temperature and are razor easy to prepare such as: • Feminine hygiene products o Canned fish, meats, • Plastic garbage bags vegetables, fruits, soups • Flashlight and batteries o Cereal • Portable radio o Peanut butter • Manual can opener o Dried beans, rice, and • Pet food pasta • Utility or pocket knife o Processed cheese • Duct tape o Ramen noodles • Waterproof matches • Diapers o Crackers • A backpack or large duffle o Dried milk bag o Food for infants or those • A pot, and eating/drinking on special diets utensils • Try to have a two-week supply of food in your house Other Things to Do Note: many of these foods can be high in sodium; eat them in moderation • Make a list of all of the people in your house and list: First Aid o Medical history • Sterile adhesive bandages (such as o All medications (by name) Band-Aids™) and dosages • Antiseptic lotion • Have a phone number of an out-of- • Pain reliever, stomach remedies, state family member to contact vitamins during an emergency. • Thermometer

Utah Department of Health Bureau of Epidemiology 5/30/2006

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