HomeMy WebLinkAboutExhibit 2CITY OF MIAMI OFFICE OF EMERGENCY MANAGEMENT
City of Miami
Basic Plan
Comprehensive Emergency Management Plan
Basic Plan
The Basic Plan contains the following sections:
I. Introduction
II. Situation
III. Concept of Operations
IV. Responsibilities
V. Financial Management
VI. References and Authorities
VII. Attachments:
A. Primary/Support Matrix
B. Glossary of Terms, Acronyms
C. Declaration of Emergency -Comparison of Florida Statutes
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Basic Plan
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City of Miami
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CITY OF MIAMI OFFICE OF EMERGENCY MANAGEMENT
Basic Plan
I. Introduction
I. INTRODUCTION.
This plan provides:
Guidance in mitigating, preparing for, responding to, and recovering from emergencies and di-
sasters threatening life or property within the City of Miami.
A framework that will guide organizational behavior (response) during emergency(ies) or
disaster(s).
A framework of interagency and community -wide cooperation to enhance disaster mitigation,
preparedness, response and recovery.
Each Department and participating Agency is to become familiar with this plan to ensure efficient and
effective execution of emergency responsibilities. Each Department and participating Agency must de-
velop and maintain Standard Operating Procedures (SOPs). By being prepared we can better serve the
citizens of Miami.
This is a strategic document that will continue to be evaluated, updated, and refined to meet our changing
needs. City Departments have contributed to this plan. Miami Office of Emergency Management will
continue to coordinate input and updates to this plan and to work with Departments and Agencies in the
continuing emergency planning process.
A. PURPOSE (MISSION).
1. The City of Miami Office of Emergency Management, in cooperation with City Administration, City De-
partments and other members of our community and in an effort to maximize the efficiency and effective-
ness of available resources, endeavors to mitigate, prepare for, respond to, and recover from natural and
man-made disasters which threaten the lives, safety, or property of the citizens of Miami by:
• Identifying natural and man-made hazards threats to life, property and/or the environment that are
known or thought to exist.
• Assigning emergency management responsibilities and tasks.
• Describing predetermined actions (responsibilities, tasks) to be taken by City agencies and other co-
operating organizations and institutions to eliminate or mitigate the effects of these threats and to
respond effectively and recover from an emergency or disaster.
• Providing for effective assignment and utilization of City employees.
•
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April, 2005
Documenting the current capabilities and existing resources of City agencies and other cooperating
I - 3
I. Introduction
City of Miami
organizations and institutions which must be maintained to enable accomplishment of those predeter-
mined actions.
Providing for the continuity of City government during and after an emergency or disaster.
Enhancing cooperation (mutual aid agreements and memorandums of understanding) and coordina-
tion with cooperating community agencies, neighboring jurisdictions, and county, state, and federal
agencies.
Providing for a City emergency planning team comprised of representatives from all departments as
identified and utilized through this plan development for: Continuing review and revision of the plan;
Exercise planning and evaluation; Reviewing and offering recommendations on Miami emergency
management initiatives.
2. To provide guidance for:
Mitigation, preparedness, response and recovery policy and procedures.
Disaster and emergency responsibilities.
Training and public education activities.
B. SCOPE.
1. This plan is "operations and task" oriented, and addresses:
Coordinated regional and interregional evacuation, shelter, and post -disaster response and recovery.
Rapid deployment and pre -deployment of resources.
Communications and warning systems.
Annual exercises to determine the ability to respond to emergencies.
Clearly defined responsibilities for Miami departments through an Emergency Function (EF) ap-
proach to planning and operations.
2. This plan describes the basic strategies, assumptions and mechanisms through which Miami will mobilize
resources and conduct activities to guide and support local emergency management efforts through re-
sponse and recovery. To facilitate effective intergovernmental operations, this plan adopts a functional
approach that groups the type of assistance to be provided under Emergency Functions (EFs) to address
emergency functional needs at the City, county and state levels. Each EF is headed by either a Miami or a
Miami -Dade County lead agency, which has been selected based on its authorities, resources, and capabili-
ties in the functional area. The EFs serve as the primary mechanism through which assistance is managed
in an emergency/disaster affected area.
3. Definitions. (As used in F.S. 252.31-252.60)
I - 4
The term "Emergency" means any occurrence, or threat thereof, whether natural, technological, or
man-made, in war or in peace, which results or may result in substantial injury or harm to the popula-
tion or substantial damage to or loss of property.
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City of Miami
I. Introduction
"Disaster" means any natural, technological, or civil emergency that causes damage of sufficient
severity and magnitude to result in a declaration of a state of emergency by a county, the Governor, or
the President of the United States.
C. METHODOLOGY.
1. This plan was developed by a planning process coordinated by Miami Office of Emergency Management.
2. This plan is promulgated by resolution pursuant to the City Charter, see letter this section.
3. Departmental letters of acknowledgment accepting the planning process and the plan responsibilities are
on file in the City's Office of Emergency Management.
4. A distribution list containing Department/Agency names and the number of copies of the Comprehensive
Emergency Management Plan (CEMP) they were issued are on file in the City's Office of Emergency
Management.
5. Plan maintenance and record of changes. (See Record of Changes Form, this section.)
Miami Office of Emergency Management ensures that necessary changes and revisions to the plan are
prepared, coordinated, published and distributed.
• The plan will undergo revision whenever:
It fails during an emergency.
Exercises, drills reveal deficiencies or "shortfall(s)."
City government structure changes.
- Community situations change.
State requirements change.
Any other condition occurs that causes conditions to change.
• Miami Office of Emergency Management will maintain a formal distribution list of individuals and
organizations who have copies of the plan. Those on this list will automatically be provided updates
and revisions. Plan holders are expected to post and record these changes. Revised copies will be
dated to show where changes have been made.
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I. Introduction
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City of Miami
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I. Introduction
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City of Miami
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City of Miami
NATURE OF CHANGE
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RECORD OF CHANGES
DATE OF CHANGE
PAGE(S) AFFECTED
I. Introduction
CHANGES MADE BY (SIGNATURE)
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I. Introduction
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City of Miami
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CITY OF MIAMI OFFICE OF EMERGENCY MANAGEMENT
Basic Plan
IL SITUATION.
A. POTENTIAL EMERGENCY CONDITIONS.
II. Situation
A major natural, technological or terrorism related emergency will overwhelm the capabilities of the City
of Miami to provide prompt and effective emergency response and emergency short-term recovery mea-
sures. Transportation infrastructure may be damaged and local transportation services could be disrupted.
There is the potential for widespread damage to commercial telecommunications facilities which would
impair the ability of governmental response and emergency response agencies to communicate.
Homes, public buildings, and other critical facilities and equipment may be destroyed or severely dam-
aged. Debris may make streets and highways impassable. The movement of emergency supplies and re-
sources could be seriously impeded. Public utilities may be damaged and either fully or partially inoper-
able. Some municipal (and county) emergency personnel would be victims of the emergency, preventing
them from performing their assigned emergency duties. Numerous separate hazardous conditions and other
emergencies as a result of the major event can be anticipated.
Thousands of emergency victims may be forced from their homes and large numbers of dead and injured
could be expected. Many victims will be in life -threatening situations requiring immediate rescue and
medical care. There could be shortages of a wide variety of supplies necessary for emergency survival.
Hospitals, nursing homes, pharmacies and other health/medical facilities may be severely damaged or
Natural
Hazards Affecting the City of Miami
(Bold = MostSignifcant)
Technological
• Cold, Extreme
• Drought/Water Shortage
• Epidemic, Human
• Flooding
• Heat, Extreme
• Hurricane/Tropical Storm
• Landshifl, Subsidence
(sink holes)
• Search/Rescue Emergency,
Aircraft, Marine, Medical
• Tornado/Thunderstorm
•
•
•
•
•
Communication Failure
Energy Emergency,
Fuel/Resource Shortage
Fire, Explosion
Fire, Structural
Hazardous Materials, Fixed
Facility
Hazardous Materials, Trans-
portation
Nuclear Accident
Power/Utility Failure
Transportation Accident, Aircraft,
Marine, Motor Vehicle, Railroad
(mass casualty)
Human/Societal
• Civil Disturbance: Riot,
Demonstration, Violent
Protest, Illegal Assembly
• Hostage Situation
• Mass Immigration
• Military Conflict
• Strike
• Terrorism: Bomb Blast,
Economic, Incendiary,
Sabotage, Prolonged/
Multiple Hostage
• Terrorism, WMD: Biologi-
cal, Chemical, Nuclear
• Workplace violence
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II - 3
II. Situation
City of Miami
destroyed. Medical and health care facilities that remain in operation will be overwhelmed by the number
of victims requiring medical attention. Medical supplies and equipment will be in short supply.
Damage to fixed facilities which generate, produce, use, store or dispose of hazardous materials could
result in the release of hazardous materials in to the environment. Food processing and distribution capa-
bilities may be severely damaged or destroyed. There could be minimal to total disruption of energy sources
and prolonged electric power failure.
B. HAZARD ANALYSIS.
1. A City "Hazard Vulnerability Analysis (HVA)" is published separately. It describes the potential threats to
the City of Miami, identifies hazard effects and impacts, and proposes mitigation strategies.
2. Hazard Overview:
Due to its location and geological features, the City of Miami is vulnerable to the damaging effects of
certain hazards. A list of these hazards is found in the chart below.
3. Disaster response efforts are often hampered by equipment and facility damage, communication failures,
inclement weather, responder injury and death, and many other limiting factors. In the event of an emer-
gency or disaster that exceeds the available resources, the public should expect and be prepared for a
minimum 72 hour delay for emergency response services.
C. VULNERABILITY ANALYSIS.
1. Miami has a population estimated at approximately 362,000 people (2000 Census). Miami could easily
experience a loss of life and property of catastrophic proportion from a series of potential hazards.
2. Specific hazard impacts to people, property, the economy and environment are detailed in the City HVA.
D. PERSONS WITH SPECIAL NEEDS.
II-4
Currently, there are approximately 100 persons registered as people with special needs for evacuation
assistance throughout the City. It is anticipated that there will be more people actually requiring assistance
than are currently registered.
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City of Miami
II. Situation
Catastrophic
Critical
Limited
Negligible
HAZARD RATING SUMMARY
• WMD: Nuclear,
Chemical,
Biological
• Terrorism -
Explosive
• Hurricane:
Category 4 & 5
• Nuclear Power
Plant Accident
• Infrastructure
Sabotage
• Hurricane: Cat 2 &
• Tornado
• Mass Immigration
• Transportation
Accident
3
• Hurricane: Cat 1
• Tropical Storm
• Extreme Heat
• Extreme Cold
• Lightning
• Structural Fire
• Civil Disturbance -
Riot
• Tropical Depression
• Floods
• Drought
• HazMat:
Transportation
• Cyber Terrorism
Not Occurred
Low
Frequency
High At least one occurrence every 1 - 4,years.
Medium At least one occurrence every 5 r 10 years,
Lew At least one occurrence every 11 =.100 years,
N/O Has not occurred; but for planning purposes,
should be evaluated as part of jurisdietions'HVA.
Medium
Nigh
;severity
Catastrophic: More than 50 deaths/injuries; Complete shut-
down of critical facilities for 30 days or more;
More than SO% property damage; .Severe
longterm effects on economy; Severely af-
fects state/local/private seetors capabilities
to begin or sustain recovery activities; Over-
whelms local and state response resources.
Critical: 10-50 deaths/injuries; Shutdown of critical
(Major) facilities for 8-30 days; 25-50% property
damage; Short-term effect on economy; Tem-
porarily (24-4.8 hours) overwhelms response
resources,
Limited:Less than 10 deaths/injuries; Shutdown of
critical facilities for 3-7 days; 10-25% prop-
erty damage; Temporary effect on economy;
No effect on response system.
Negligible: Minor injuries, no deaths; Shutdown ofenu
cat facilities for less than 3 days;' Less than
10%..property damage; No effect on
economy; No effect on response system.
Note: The Category of Severity is used lithe houndresulle in one or more of the qualViers.
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II-5
a)
Hazard Category
Excessive Wind
NATURAL
Cold, Extreme
Drought
Epidemic, Human
Flood, Coastal/Interccoastal
Excessive Water
X
Damaging Hail
Soil/Beach Erosion
x
Electric Power Outage
X
Summary of Projected Impact Potential
X
x
Sewer System Outage
X
Human Health & Safety
0
0
Q
0
0
0
0
W
Toxic Releases
0
0
m
0
w
a
0
m
c a
ran
X
X
X
X
X
X
X
X
x
X
x
x
X
X
X
X
X
X
X
X
x
x
X
X
X
X
X
Flood, Urban
Heat, Extreme
Hurricane
Landshift, Subsidence
(sink holes)
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X X
X
X
X
Lightning, Thunderstorm
Search/Rescue Emergency,
Aircraft, Marine, Medical
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
x
X
X
X
X
x
x
X
X
X
C)
m
o13
col
V
Hazard Category
Tornado
Excessive Wind
X
Excessive Water
'Damaging Dail
X
Soil/Beach Erosion
Electric Power Outage
X
X
X
Sewer System Outage
X
X
Human Health & Safety
X
Psychological Hardship
X
Economic Disruption
X
X
X
X
X
X
Toxic Releases
X
X
Tropical Storm
Water Shortage
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
TECIL\OLOGICAL
Communication failure
Energy Emergency, Fuel/
Resource Shortage
Fire, Explosion
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
Fire, Structural
X
X
X
X
X
X
X
X
Hazardous Materials, Fixed
Facility
Hazardous Materials,
Transportation
X
X
X
X
X
X
X
X
X
X
X
X
X
Nuclear Accident
X
x
X
X
X
X
INT
0
I1
Ot
3
N
nt
.-t
0
m
00
Hazard Category
Excessive Wind
Power/utility failure
Excessive Water
Damaging Hail
Soil/Beach Erosion
Electric Power Outage
X
Sewer System Outage
Human Health & Safety
X
Psychological Hardship
X
Economic Disruption
X
X
Toxic Releases
'Transportation Accident,
Aircraft, Marine, Motor
Vehicle, Railroad (Mass
Casualty)
HUMAN/SOCIETAL
X
X
X
X
Civil Disturbance: Riot,
Demonstration, Violent Protest,
Illegal Assembly
Hostage Situation
Mass Immigration
X
X
X
X
X
X
X
X
X
X
X
X
X
X
Military Conflict
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
X
Strike
X
X
X
X
Terrorism: Bomb Blast,
Economic, Incendiary, Sabotage
Prolonged/Multiple Hostage
X
X
X
X
X
X
X
X X X XX X X X
0
0
3
UOIpflhIS '11
Sn
of Projected;
act Potential
Hazard Category
Excessive Wind
Terrorism, WMD: Biological,
chemical, Nuclear
Workplace violence
Excessive Water
Damaging Hail
Soil/Beach Erosion
X
X
X
X
Sewer System Outage
X
X
Human Health & Safety
X
X
Psychological Hardship
X
X
Economic Disruption
X
X
X
X
X
u,
X
Toxic Releases
X
•
uogWnl!S .11
Sun and sand, salsa and style,; Miami: is distinctlydif-
ferent from any other city in America — or any city in
Latin America; for that matter. This is no sleepy little
beach outpost, no drowsy southern town:.
Both logically and geologically, the city. of Miami
shouldn't even be here. Way back when, it was not much
more than a swamp between the Everglades and the At-
lantic Ocean. The first inhabitants were the Tequesta,
who called this area home long; before Spain's:gold-
hungry treasure ships sailed along the Gulf Stream a
few miles offshore. They werefollowed by the Semi -
role, who learned how to prosper in the local ecosys-
tem, Eventually: the Seminole skedaddled, less' likely
because :of"the floods and hurricanes than because of
Andrew Jackson.
The end of the 20th century brought big changes to Mi-
ami. In the early 1980s,Miami Beach was; an oceanside
geriatric,: ward. Today's South Beach residents have a
hip that doesn't break. The average age of locals dropped
from the mid -sixties in 1980 to a.youthful early forties
today.
At night, the revitalized Lincoln Road Mall gets into
full swing as crowds descend on its restaurants, cafes,
galleries, and theaters - - but the Road also suffers from
the vacancies that come with rapidly rising rents; Those
who have seen how high rents can crush a dream aCe
heading to the northern. beaches and to the southern
reaches of South Beach, whose derelict buildings, once
a flashback to the pre -renaissance days of the 1980s,
are being refitted as affordable apartments and boutique '.
hotels. This is where the Miami Beach revival is taking
place.
In Miami (as opposed. to Miami Beach), boom times
started in the 1970s for a small group of Latin Ameri-
can drug dealers. These "Cocaine Cowboys," as they
were known, made and: spent millions n Miami, invest-
ing in real estate and launching major construction
projects.: Their clay ended in the 1980s, but by then eco-
nomic development had its own — legal — momen
tum. Today, 150 plus U.S. and multinational companies
have their Latin American headquarters here.:: Greater.
Miami is hometo more than. 40 foreign bank agencies,
11 Edge Act banks, 23 foreign trade offices, 31'bina-
tional chambers of commerce,' and 53 foreign GonSu-
later;
Excerpts
taken from. Fodor:'s
11. Situation
City of Miami
E. MIAMI GEOGRAPHICAL INFORMATION
As North America's gateway to the Southern Hemisphere
and Latin America, Miami has beeotne'a multicultural>
metropolis that works and plays with vigor and that in-
vites the world to celebrate its diversity, Miami', is largely
Cuban, as a result of two major waves of immigration,
one in the early 1960s then another in the 1980s, No
matter: where you spin your radio dial, virtually every
announcer punctuates his harangue with an emphatic
"COO-BAH!"_Look around and you'll see Spanish on
billboards, hear it in elevators, and pick it up :on the
streets, Newsweek: called Miami : "Americans
Casablanca," and theeomparison may be apt. Many
Cuban Americans straddle the Cuba -.America divide,
maintaining ties with their families back home and cre-
ating a culturally rich life in Miami.
In addition to the Cuban population, there are also resi-
dents from Brazil, China, Colombia, El Salvador, Ger-
many, Greece, Haiti, Iran, Israel, Italy, Jamaica, Lelia-
non, Malaysia, Nicaragua, Panama, Puerto Rico, Rus-
sia, Sweden, and Venezuela --gall speaking in thei own
tongue and carrying on their own traditions, Miami:
semis to know it will remain a montage ; of nationalities,:
and it celebrates the cultural diversity at festivals, world -
music performances, and a wealth of exotic restaurants..',
Thanks to a booming film industry and Miami's appeal.
to fashion magazines, year-round movie and photo
shoots.: attract squadrons of beautiful people, filling up
chic restaurants and VIP lounges of' SoBe clubs.
With an emphasis on its cultural heritage, many old
neighborhoods are being rediscovered and revivified
through special monthly events, such as Little Havana's
Cultural Fridays, Homestead's Friday Fests, and Coral
Gables's Gallery Nights Other up-and-coming areas are
emerging - lively Brickell Village in the financial dis-
trict, the trendy Miami Design District and the residen-
tial Morningside and Belle Meade. Districts north of
Downtown, where gracious; homes are being restored
and antiques shops are replacing blighted storefronts
along Biscayne, Boulevard. Equally impressive are of--'
forts to shed, for once and for all, Miami's image as a
cultural backwater. The long delayed Performing Arts',
Center, with a concert hall, ballet and opera house, and .''.
black box theater, has finally secured funding and is
expected to revitalize die Omni area, just north of Down-
town, In Miami Beach, the Collins Park Cultural Center
will eventually be returned to a: park with an ocean view.
— as it incorporates the renovated Bass Museum and
he new Miami City Ballet.'.
11.10
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City of Miami
IL Situation
F. DEMOGRAPHICS.
Resident Population Characteristics (2000 Census).
Population:
Male
Female
Ethnic Gmups: White
Black
Hispanic
Other
Age Distribution. 1-19
20-44
45-59
60-74
75+
Median Age:
38
G. ECONOMIC PROFILE.
Employment Ry Sectors:
Glass of Worker:
Total Households:
Median Household Income:
Household Size:
Median Home Value:
Major Employers:
362,470
180,194
182,272
I2%
22%
66%
2%
24.4%
36.8%
I7,2%
I3,8°4
8.1
Retail Trade
Educational
Professional
Construction
Miscellaneous Statistical Information.
General:
Date of incorporation:
Form of government:
Arca square miles:
Number of Fire stations:
Building Permits issued:
Tourism in 2001:
Average January temperature:
Average July temperature:
Annual rainfall:
Other:
1896
Mayor/Commissioner
34.5
14
2386 Commercial
3603 Residential
7,275,796
67 degrees
83 degrees
56.1 inches
Percent high school graduate +: 52.7%
11.0% Finance, Insurance & Real Estate
15.0% Manufacturing
11.8% Transportation & Public Utilities
Wholesale Trade
Agriculture, Forestry & Fishing 0.5%
Private Wage
Government
134,198
23,483 (1999)
2.84
120,100
82.4%
10.6%
Miami -Dade Public Schools
Miami -Dade County Government
Federal Agencies
State Government
Jackson Memorial Hospital
Bell South
City of Miami
37,500
30,000
18,276
18,100
10,000
8,240
3,734
6.8%
7.4%
2.7%
5.5%
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April, 2005
II. Situation
H. EMERGENCY MANAGEMENT SUPPORT FACILITIES.
City of Miami
1. The elements listed on the "Essential Services, Critical Facilities and Infrastructure" chart, comprise the
likely available emergency management support facilities. Miami has identified certain "critical facilities"
that may be either emergency incident sites due to disaster impacts, or could be used as emergency manage-
ment support facilities given that they are not impacted. Miami will strive to maintain certain "essential
services" and maintain/restore the community's "infrastructure" during times of disaster.
Essential Services
Critical Facilities
• Alert and Warning
• Commodities Distribution
• Communications
• Community EOC
• Continuity of Government Services
• Emergency Medical Services
• Emergency Public Information
• Energy/Utilities
• Financial Services
• Fire
• Food/Water Distribution
• Health
• Law Enforcement
• Mass Care
• Public Works/Engineering
• Search and Rescue
• Shelter
• Support to Special Populations or High Oc-
cupancy Structures, Facilities, Special Events
• Transportation
Infrastructure
11-12
• Airports
• Computer Systems
• Electrical
• Natural Gas
• Radio/TV/Print Media
• Railroad
• Roads/Highways
• Telephone
• Water/Sewer
Waterways, Navigable: Salt & Fresh Water
•
•
•
•
•
•
•
•
•
•
•
•
Airport
Amusement Park/Zoo
Banks/ATMs/Credit Unions
Bridges/Freeway Overpasses
Business Establishments
Campgrounds/Parks/Recreation Areas
Computer Data Bases/Service Centers
Convention Center
Emergency Operations Center (EOC) Room/
Building
Fire Stations/Dispatch Center
Food Storage Facilities
Fuel Storage
Government Offices
High Occupancy Structures
Hospital/Nursing Homes/Clinics/Pharmacies/
Ambulance Stations
Hotels/Motels/Resort Complexes
Kitchens
Light Industry
Microwave Towers/Satellite Ground Terminals
Public Assembly Areas: Theaters/Civic Center/
Concert Hall
TV/Radio Stations
Police Station/Jail/Dispatch Center
Power Plant/Sub Stations
Railroad Yards
Restaurants
Schools
Shopping Malls
Stadiums/Sports Arenas
Telephone Switching/Relay Stations
Warehouse/Equipment Storage Complexes
Wastewater/Sewage Treatment Facilities
Water Treatment Facilities/Pumping Stations
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April, 2005
CII. Situation City of Miami
2. This chart provides a "situation summary" of the City of Miami's essential services, critical facilities and
infrastructure. These are defined as follows:
• Essential Services: Community services normally provided on a daily basis. Each of these services
are dependent upon certain critical facilities and infrastructure. Miami will also strive to provide these
services during disasters through activation of Emergency Support Functions (ESFs) as appropriate.
• Critical Facilities: Specific Miami structures or facilities that support the delivery of essential ser-
vices.
Critical facilities can also be defined as locations having large concentrations of people either tempo-
rarily or permanently such as high occupancy structures, special population facilities, or special com-
munity events. These situations can cause an "overload" on the community's essential services (spe-
cial events themselves could be considered a hazard), or cause an immediate focusing of essential
services when disaster occurs (response to schools, day care centers, hospitals, etc.). We have in-
cluded community support to these situations as an "essential service."
• Infrastructure: "Systems" upon which critical facilities, and hence, essential services are dependent.
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April, 2005
II-13
11. Situation
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City of Miami
CEMP
April, 2005
CITY OF MIAMI OFFICE OF EMERGENCY MANAGEMENT
Basic Plan
Concept of Operations
Basic Plan
Concept of Operations
III. CONCEPT OF OPERATIONS.
A. GENERAL.
1. The primary objective for emergency management in Miami is to provide a coordinated effort from all
supporting City departments in the preparation for, response to, and relief from injury, damage and suffer-
ing resulting from either a localized or widespread disaster. The Miami Emergency Manager is the focal
point for City emergency management activities. However, emergency management responsibilities ex-
tend beyond this office, to all City government departments, and ultimately, to each individual citizen.
2. Citizen and Government Roles. Basic responsibility for emergency planning and response lies with indi-
viduals and heads of households. When the situation exceeds the capabilities of individuals, families and
volunteer organizations, a City emergency exists. City officials will implement the City's and/or department's
emergency plans and procedures to alleviate the emergency and relieve suffering and protect lives, prop-
erty and resources. Pre-existing mutual -aid agreements between the various government jurisdictions within
and adjacent to City boundaries may be invoked as appropriate. City officials may declare a civil emer-
gency (Florida Statutes, Chapter 252.38 (2)) to expedite access to local resources needed to cope with the
incident. If the needed response exceeds these local capabilities, a disaster situation exists. City officials
may declare a state of local emergency under Florida Statutes, Chapter 252.38 (2) and/or Florida Statutes
870.043 (see Basic Plan, Attachments: Section D, for details). The City may further ask for county assis-
tance, or a gubernatorial declaration and state assistance through the county. The Governor, in turn, has the
option of asking for federal aid when it appears that the combined resources of City, other local, county and
state agencies will be inadequate.
3. Rplatis. In addition to the Emergency Man-
ager, emergency management is the day-to-day function of certain City departments, such as the Police and
Fire/Rescue Departments. While the routine functions of most City departments are not of an emergency
nature, pursuant to this plan, all officers and employees of the City will plan to meet emergencies threaten-
ing life or property. This entails a day-to-day obligation to assess and report the impact of an emergency or
disaster event. It requires monitoring conditions and analyzing information that could signal the onset of
one of these events. Disasters will require City departments to perform extraordinary functions (as per
Florida Statutes 252.38 (3)). in these situations, every attempt will be made to preserve organizational
integrity and assign tasks which parallel the norm. However, it may be necessary to draw on people's basic
capacities and use them in areas of greatest need. Day-to-day functions that do not contribute directly to the
emergency operation may be suspended for the duration of any emergency. Efforts that would normally be
required to perform those functions may be redirected to accomplish emergency tasks,
a. The Mayor and City Commission, through the City Manager, Emergency Manager and City depart-
ment heads, is responsible for the direction, control, and coordination of emergency management
activities in Miami.
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April, 2005
ill-3
Concept of Operations
City of Miami
B. EMERGENCY MANAGEMENT PHASES.
The City will meet its responsibility for protecting life and property from the effects of hazardous events by
acting within each of the following four phases of emergency management.
1. Mitigation. Mitigation efforts include activities that will prevent or reduce the impact of emergency/ disas-
ter results on people, property and environment, Efforts include building codes, land use planning, training
and education, structural and non-structural safety measures. Any actions accomplished to prevent an emer-
gency/disaster from occurring or to reduce the effects of an emergency/disaster is mitigation. City depart-
ments will enforce all public safety mandates of the Miami City Code to include land use management and
building codes; and recommend to the Mayor and City Commission, legislation required to improve the
"disaster resistance" of the community. (See Annex T; Mitigation Programs,)
2. Preparedness. City departments will remain vigilant to crises within their areas of responsibility. City emer-
gency service departments will prepare for emergencies by maintaining existing or developing detailed
emergency plans and procedures to enable first responders to accomplish the tasks normally expected of
them. All City departments will prepare for disasters by developing departmental plans and procedures to
accomplish the extraordinary tasks necessary to integrate the department's total capabilities into a City
disaster response. City departments will ensure that their employees are trained to implement emergency
and disaster procedures and instructions. Departments will validate their level of emergency readiness
through internal drills and participation in exercises selected by the City. Other government jurisdictions
within and outside City boundaries will also be encouraged to participate in these exercises. Exercise
results will be documented and used in a continuous planning effort to improve the City's emergency
readiness posture. This joint, continuous planning endeavor will culminate in revisions to this plan in the
constant attempt to achieve a higher state of readiness for an emergency or disaster response.
Preparedness consists of almost any pre -disaster action which is assured to improve the safety or effective-
ness of disaster response. Preparedness consists of thoseactivities that have the potential to save lives,
lessen property damage, and increase individual and community control over the subsequent disaster re-
sponse. (See Annex II; Preparedness Programs.)
3. Response. The active use of resources to address the immediate and short-term effects of an emergency or
disaster constitutes the response phase. This phase is the focus of department emergency and disaster stand-
ing operating procedures and instructions, mutual -aid agreements, and this plan. Emergency and disaster
incident responses are designed to minimize suffering, loss of life, and property damage, maintain essential
government services (continuity of operations) and to speed recovery and restoration of essential services.
When any City department receives information about a potential emergency or disaster, it will conduct an
initial assessment, determine the need to alert others, and set in motion appropriate actions to reduce risk
and potential impacts. Emergency response activities will be as described in departmental plans and proce-
dures, and may involve activating the Emergency Operations Center (EOC) for coordination of support.
City departments will support first responders by providing warnings and emergency public information,
and helping to save lives and property, supply basic human needs, maintain or restore essential services,
and protect vital resources and the environment. Responses to declared emergencies and disasters will be
guided by this plan. (See Annex III; Response.)
4. Recovery. Emergency and disaster recovery efforts aim at returning to pre -disaster community life. Recov-
ery activities include detailed damage assessments, debris management, restoration of essential services,
critical facilities and infrastructure, rebuilding of homes and businesses and financial assistance. There is
no definite point at which response ends and recovery begins. However, generally speaking, most recovery
efforts will occur after the emergency organization is deactivated and City departments have returned to
pre -disaster operation, and will be integrated with day-to-day functions. (See Annex IV; Recovery.)
III - 4
CEMP
April, 2005
City of Miami Concept of Operations
C. EMERGENCY / DISASTER RESPONSE AND MANAGEMENT OBJECTIVES.
The objectives of Miami's Office of Emergency Management program are to protect public health and
safety and preserve public and private property. During emergencies and disasters, the City will endeavor
to:
I. Save Lives: Save human lives; Treat the injured; Warn the public to avoid further casualties; Evacuate
people from the effects of the emergency; Direct people to shelter and congregate care; Save animals.
2. Protect Property: Save property from destruction; Take action to prevent further lose; Provide security for
property, especially in evacuated areas; Prevent contamination to the environment.
3. Restore the Community to Normal: Restore essential utilities; Restore community infrastructure; Help
restore economic basis of the community.
D. ORGANIZATION.
1. Daily Operations (pre -disaster). The City is governed by an elected Mayor and City Commission. A City
Manager administers the daily routine business of City Government in a manner consistent with policy
established by the Mayor and the City Commission. The City government is organized into functional
departments and divisions, created for the delivery of essential governmental services. (See section VII
Attachment: City of Miami Organizational Chart.)
2. Emergency Organization.
a. The Miami Emergency Manager implements, manages and reports on all actions authorized and taken
pertinent to any emergency action.
b. The Emergency Manager duties shall include the ongoing planning for and coordination of those
actions necessary for the creation and maintenance of an effective emergency response capability to
prepare for and manage emergency conditions.
c. By City government charter and commission policy, the Mayor and City Manager is delegated execu-
tive authority for all emergency operations and powers of emergency government.
• The line of succession for the Mayor's emergency powers is:
(1) Mayor.
(2) Mayor's designee.
(3) Head of City Commission.
• The line of succession for the City Manager's emergency powers is:
(1) Deputy City Manager.
(2) Police Chief (man-made disaster); Fire Chief (natural or technological disaster).
(3) Emergency Manager.
d. The Mayor and City Manager or his/her designee may order special, temporary personnel assign-
ments that require individuals to work outside their regular department or job classifications.
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Apr!!, 2005
ill - 5
g.
Concept of Operations
City of Miami
e. In the event the City of Miami is involved in a disaster, the chain of authority shall be as follows:
(1) City Manager.
(2) Deputy City Manager.
(3) Police Chief or Fire Chief.
(4) Emergency Manager.
f. All appointments and work assignments in an emergency situation shall be documented. Department
Heads will submit a complete emergency operational plan as to staffing allocation, equipment distri-
bution, and other emergency related needs as requested by the Office of Emergency Management.
This plan establishes the City emergency management program. All officers and employees of the
City are part of the emergency organization.
3. Incident Command System. This plan formalizes the Incident Command organization and structure.
4. Emergency Management Board (EMB). A City Emergency Management Board is established through
promulgation of this plan. The Board shall be composed of representatives or alternates from selected City
departments, plus other agencies or organizations as may be necessary. The Board shall formulate emer-
gency management policy recommendations to the City Manager.
E. CONTINUITY OF GOVERNMENT.
1. As per the City Charter, the line of succession for the Mayor due to absence or death is:
a. Temporary absence or disability [City Charter, Section 4, (g)(4)]:
(1) Mayor's designee.
(2) Member of City Commission appointed by Mayor (during his/her temporary absence or disabil-
ity).
(3) Member of City Commission elected by 4/5 vote of City Commission (if Mayor is unable to
make an appointment due to his/her temporary absence or disability).
b. Absence caused by death, resignation, or forfeiture. [City Charter, Section 12]
(1) Mayor's designee.
(2) Appointment by majority vote of City Commission.
or
(2) Special election called by City Commission.
(3) Special election by court order, if City Commission does not act.
c. If the Mayor dies and circumstance are such (widespread disaster) that the City Commission cannot
meet and act, the Governor appoints a temporary replacement.
2. As per the City Charter, the line of succession for the City Manager is:
a. City Manager.
b. Appointment by Mayor, subject to approval by City Commission majority vote. [City Charter, Sec-
tion 15]
III - 6
CEMP
April, 2005
City of Miami
3. The line of succession for the Emergency Manager is:
a. Emergency Manager.
b. Deputy Emergency Manager.
c. Deputy Fire Chief.
d. Deputy Police Chief.
Concept of Operations
4. The lines of succession for each City department and agency heads shall be in accordance with the SOPs
established by those departments and agencies.
5. Preservation of Records.
a. All City Departments will develop plans and procedures to guarantee the preservation of vital public
records, to include their reconstitution if necessary, during and after emergencies.
b. In general, vital public records include those: considered absolutely essential to the continued opera-
tion of City government; considered absolutely essential to the City's ability to fulfill its responsibili-
ties to the public; required to protect the rights of individuals and the City; and, essential to restoration
of life support services. Documentation of actions taken during an emergency or disaster is a legal
requirement.
c. Specific vital public records include: vital statistics, deeds, corporation papers, operational plans,
planning records, resources data, authorities, personnel and payroll rosters, succession lists, supplies
and equipment lists, laws, charters and financial records.
d. All appointments and work assignments in an emergency situation shall be documented. Department
Heads will submit a complete emergency operational plan as to staffing allocation, equipment distri-
bution, and other emergency related needs as requested by the Emergency Manager.
F. LEVELS OF DISASTER.
1. Minor Disaster. As per Florida Statutes 252.35(a), a minor disaster is defined as any disaster that is likely to
be within the response capabilities of local government and results in only minimal need for state or federal
assistance. The initial response will be from emergency personnel dispatched by normal procedures. Their
assessment of the situation will determine if additional resources are needed. City departments may be
called upon to provide additional resources. Mutual aid and the Miami -Dade County EOC may provide
additional support if resource needs are beyond existing Miami capability (see Sections M and N). Activa-
tion of the EOC may not be necessary during a "minor" disaster.
2. Major Disaster. Defined as any disaster that will likely exceed City capabilities and require a broad range of
county, state and federal assistance. The Department of Homeland Security/Federal Emergency Manage-
ment Agency will be notified and potential federal assistance will be predominantly recovery oriented.
Hurricanes are considered the most probable major disaster which could impact the entire City and adja-
cent areas. It is anticipated that a full activation of the EOC will be required to coordinate the City's re-
sponse.
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April, 2005
III - 7
Concept of Operations
City of Miami
3. Catastrophic Disaster. Defined as any disaster that will require massive State and federal assistance, includ-
ing immediate military involvement. Federal assistance will involve response as well as recovery needs.
4. Graduated Response. Most disasters will require a graduated response involving only those persons neces-
sary to handle the situation. For this purpose, the four levels of response utilized in the county and state
Emergency Operation Centers, will be used in Miami:
a. Level I. This is typically a "monitoring" phase. The responsibility for control of the incident rests with
the responding department. The Emergency Operations Center is at normal monitoring condition.
Notification will be made to those agencies and EF's who would need to take action as part of their
everyday responsibilities.
b. Level II, A limited department/emergency response team activation. All primary or lead EF's are
notified. The EOC will be staffed by Emergency Management personnel, key staff and selected EF
personnel. EOC may require 24 hour a day staffing. Contact is made with Miami -Dade County EOC.
c. Level III. A limited department activation of the EOC with 24 a day staffing, by primary emergency
response departments. A City of Miami representative is sent to Miami -Dade County EOC within 4
hours of activation. A declaration of a local state of emergency may not be in effect, but will be
anticipated. Level III is maintained during landfall of severe weather storm (hurricane).
d. Level IV. Full activation of all EFs with 24 hour a day staffing at the EOC and all other operational
facilities. A City representative is at Miami -Dade County EOC. Level IV is initiated after the impact
of a catastrophic event (hurricane). This level is maintained throughout the recovery phase until the
disaster is downgraded back to a Level I or III.
G. DEFINING DISASTER SEVERITY.
Defining the Disaster Severity. These categories were developed based on the City's capabilities. One of
the "Categories of Severity" is chosen if the hazard results in one or more of the qualifiers found within the
level chosen.
1. Negligible: Minor injuries, no deaths; Shutdown of critical facilities for less than 3 days; Less than 10%
property damage; No effect on economy; No effect on ecological system; No effect on response system.
2. Limited: Less than 10 deaths/injuries; Shutdown of critical facilities for 3-7 days; 10-25% property dam-
age; Temporary effect on economy; Temporary/minimal effects on ecological systems; No effect on re-
sponse system.
3, Critical: 10-50 deaths/injuries; Shutdown of critical facilities for 8-30 days; 25-50% property damage;
Short-term effect on economy; Short term effects on ecological systems; Temporarily (24-48 hours) over-
whelms response resources.
4. Catastrophic: More than 50 deaths/injuries; Complete shutdown of critical facilities for 30 days or more;
More than 50% property damage; Severe long-term effects on economy; Severe effects on ecological sys-
tems; Severely affects state/local/private sectors capabilities to begin or sustain recovery activities; Over-
whelms local and state response resources.
III.8
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April, 2005
City of Miami
H. EMERGENCY FUNCTIONS (EFs).
Concept of Operations
1. Emergency Functions (EFs) represent groupings of types of assistance activities that Miami's citizens are
likely to need in times of emergency or disaster. During emergencies, the City Emergency Manager, Crisis
Action Team and/or EOC determine which EFs are activated to meet the disaster response needs. See
Annex III: Response Functions, for further details.
2. The county and state Comprehensive Emergency Management Plans, and the National Response Plan, are
organized by related emergency functions, commonly known as "emergency support functions (ESFs)."
The county, state, and federal governments will respond to Miami requests for assistance through the ESF
structure. Within the county and state EOCs, requests for assistance will be tasked to the particular ESFs for
completion. A lead agency/department for each ESF is indicated, and will be responsible for coordinating
the delivery of that ESF to the emergency area. The lead agency/department will be responsible for identi-
fying the resources within the ESF that will accomplish the mission, and will coordinate the resource
delivery. State and federal efforts will be in "support" of the City.
3. This plan is based upon the concept that the emergency functions (EFs) for the various City organizations
involved in emergency operations will generally parallel their normal day to day functions. To the extent
possible, the same personnel and material resources will be employed in both cases. The day to day func-
tions that do not contribute directly to the emergency operations may be suspended for the duration of the
emergency. The efforts that would normally be required for those functions that will be redirected to the
accomplishment of emergency tasks by the departments concerned.
a. Only those City departments performing essential functions will be required to remain on duty during
the period of some emergencies. This determination will be made and announced by the City Manager
or Emergency Manager,
b. All City Departments, including those with functions declared nonessential to emergency operations,
will secure their facilities, records, and equipment against possible loss or damage, and take such
action as is necessary to insure the safety of assigned personnel.
4. A City department or agency is designated as "the lead or co -lead" for an Emergency Function (EF) due to
a statutory responsibility to perform that function, or through its programmatic or regulatory responsibili-
ties, the agency may have developed the necessary expertise to lead the EF. In some agencies, a portion of
the agency's mission is very similar to the mission of the EF, therefore, the skills to respond in a disaster can
be immediately translated from the daily business of that agency. The "lead" agency also has the necessary
contacts and expertise to coordinate the activities of that support function.
5. Upon activation of the City EOC, the activated EF lead agencies will designate representatives in the EOC
to coordinate the EF. It is up to the lead agency's discretion as to how many, if any, support agencies should
be represented in the EOC.
6. The lead department for the EF will be responsible for obtaining all information relating to EF activities
and requirements needed by the emergency and disaster response.
7. The City will respond to requests for assistance through the EF process. Within the EOC, requests for
assistance will be tasked to the appropriate EFs for completion. The lead agency will be responsible for
coordinating the delivery of that assistance.
a. With concurrence from the City EOC Management Team, EF #5 will issue mission assignments to the
lead agencies for each EF based on the identified resource shortfall.
CEMP
April, 2005
III-9
Concept of Operations
City of Miami
b. The lead department or agency for that EF will be responsible for identifying the particular resource
or resources that will accomplish the mission and coordinate the delivery of that resource.
I. EMERGENCY AUTHORITIES.
1. In the event of an emergency/disaster affecting the City, the Mayor issues an emergency declaration and the
City Manager assumes direct operational control over all or any part of the emergency management func-
tions within the City, delegating emergency authorities as he/she may deem prudent.
2. The Mayor may issue an order or proclamation declaring a local state of emergency if he/she finds an
emergency affecting the City has occurred or that the occurrence or the threat of an emergency affecting the
City is imminent. The duration of each state of local emergency declared is limited to 7 days; it may be
extended, as necessary, in 7-day increments until the Mayor finds that the threat or danger has been dealt
with to the extent that the emergency conditions no longer exist and he/she terminates the state of local
emergency by order or proclamation,
3. A order or proclamation of local state of emergency by the Mayor activates the emergency management
plan. In addition to any other power conferred upon the Mayor and City Manager by the City Charter and
notwithstanding anything in the City Charter to the contrary, upon the declaration of a local state of emer-
gency the Mayor and City Manager may:
a. Appropriate and expend funds, make contracts, obtain and distribute equipment, materials, and sup-
plies for emergency management purposes.
b. Provide for the health and safety of persons and property, including emergency assistance to the vic-
tims of any emergency, and direct and coordinate the development of emergency management pro-
grams in accordance with the policies and plans set by the County, state and Federal emergency
management agencies.
c. Appoint, employ, remove or provide, with or without compensation, coordinators, rescue teams, fire
and police personnel, and other emergency management workers.
d. Establish, as necessary, a primary and one or more secondary emergency operating centers to provide
continuity of government and control of emergency operations.
e. Assign and make available for duty the offices and agencies of the City, including the employees,
property, or equipment thereof relating to firefighting, engineering, rescue health, medical and related
services, police, transportation construction, and similar items or services for emergency operations.
f. Request state assistance or invoke emergency related mutual aid assistance by declaring a state of
local emergency in the event of an emergency affecting only one political subdivision. The duration of
each state of emergency declared locally is limited to 7 days. It may be extended, as necessary, in 7
day increments.
g•
III - 10
Performance of public work and taking whatever prudent action is necessary to ensure the health,
safety and welfare of the community. Under a "state of emergency" the City Manager may: Enter into
contracts; Incur obligations; Employ permanent and temporary workers; Utilize volunteer workers;
Rent equipment; Acquire and distribute, with or without compensation, supplies, materials and facili-
ties.
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April, 2005
City of Miami
J. DIRECTION AND CONTROL.
1. General.
Concept of Operations
a. The City Manager is responsible for establishing objectives and policies for emergency management
and providing general guidance for disaster response and recovery operations. During disasters, he/
she may carry out those responsibilities from the EOC.
b. The Emergency Manager (or designee) will provide overall direction of the response activities of City
departments. During major emergencies and disaster, he/she will normally carry out those responsi-
bilities from the EOC.
c. The Incident Commander(s), assisted by a staff sufficient for the tasks to be performed, will manage
the emergency response at an incident site(s).
d. The Emergency Manager (EM) is responsible for the proper functioning of the EOC and will also
serve as a liaison with state and federal emergency agencies and neighboring jurisdictions. The EM
will advise other emergency officials on courses of action available for major decisions.
e. During emergency operations, department heads retain administrative and policy control over their
employees and equipment. However, personnel and equipment will carry out mission assignments
directed by the incident commander or Emergency Manager. Each department and agency is respon-
sible for having its own operating procedures to be followed during response operations, but inter-
agency procedures, such a common communications protocol, may be adopted to facilitate coordi-
nated effort.
g•
Level of Authority is as follows:
(1) City Manager.
(2) Deputy City Manager.
(3) Police Chief or Fire Chief.
(4) Emergency Manager.
(5) Deputy Emergency Manager.
h. The Miami -Dade County EOC serves as the liaison and coordinating agency between the City, other
local governments, private not for profit (PNP) agencies, state government and federal government.
i. If county, state and/or federal resources are made available to the City, they will be under the opera-
tional control of the City's Emergency Manager and Incident Commanders.
2. Crisis Monitoring, Crisis Action Team (CAT).
a. The Miami Emergency Manager (EM) is responsible for monitoring and analyzing any situation that
may threaten public safety. As emergency situations threaten or occur, the EM may convene a "Crisis
Action Team (CAT)."
b. The Crisis Action Team (CAT) is an organizational unit that will have responsibility for assisting with
Crisis Monitoring and Emergency and COOP plan activations.
c. Members of the CAT are responsible for monitoring and analyzing any situation that may threaten
CEMP
April, 2005
Concept of Operations
City of Miami
public safety, City property or the City's reputation. As emergency situations threaten or occur, the
Emergency Manager may convene the CAT to facilitate the process of incident evaluation and plan-
ning, and possible activation and implementation of emergency functions and resources. The CAT
will also be used to support Incident Commanders in forward or field command posts.
d. The CAT is a flexible, supporting/coordinating service that could be:
• One person at home facilitating the coordination of personnel and resources to an incident scene;
• Several people convening to review an evolving threat; or,
• Many people in the Emergency Operations Center (EOC) or on -scene to assist the Incident Com-
mander as needed.
e. Core members of the CAT are drawn from the departments who provide primary support to emer-
gency functions (see primary support matrix.) However, any City of Miami department could be
called upon to provide a representative to the CAT. Exactly who is called and ultimately how many
people will serve on the CAT is dependent upon the situation and the functions that will be activated.
f. During EOC operations, CAT members can be integrated into the EOC organization or retained as a
separate unit. The CAT will serve in a policy and planning role, providing policy guidance and direc-
tion to the EOC and Incident Managers.
g.
CAT members should people at the "operational level" of the primary departments. Each department
should appoint a primary member and two alternates who can act in the absence of the primary mem-
ber.
h. CAT members include: Buildings; Capital Improvement Programs; City Attorney; City Manager;
Communications (PIO); Emergency Management; Fire/Rescue; Finance; Economic Development &
Asset Management; Employee Relations; Purchasing; Risk Management; Information Technology;
Municipal Services; Neighborhood Services; NET; Parks & Recreation; Police; Solid Waste; Strate-
gic Planning Chief (Primary for COOP).
i, Instantaneous events may trigger immediate full EOC activation through first responder departments,
such as the fire -rescue or police departments.
3. Miami On -Scene Management Incident Command System (ICS).
a. The City's on -scene response to emergencies follows the concepts of the National Incident Manage-
ment System (NIMS).
b. The person in charge at the incident is the on -scene Incident Commander who is responsible for
ensuring each agency on scene can carry out its responsibilities.
c. Miami emergency responders are likely to be the first on the scene of an emergency situation. They
will normally take charge and remain in charge of the incident until it is resolved or others who have
legal authority to do so assume responsibility. They will seek guidance and direction from local offi-
cials and seek technical assistance from county, state and federal agencies and industry where appro-
priate.
d. The first local emergency responder to arrive at the scene of an emergency situation will implement
the incident command system and serve as the incident commander until relieved by a more senior or
more qualified individual.
III - 12
CEMP
April, 2005
City of Miami
e. Upon arriving at an incident scene, the Incident Commander shall:
Concept of Operations
• Establish an incident command post, and direct the on -scene response.
• Isolate the scene.
• Assess the situation and identify hazards.
• Warn the population in the area of the incident; provide emergency instructions.
• Determine and implement protective measures (evacuation or in -place sheltering) for the popu-
lation in the immediate area of the incident.
• Implementing traffic control arrangements in and around the incident scene.
• Develop objectives (tasks to be done).
• Ensure appropriate safety and personnel protective measures.
• Develop an action plan and priorities.
• hi coordination with the CAT and/or EOC, contact appropriate agencies or personnel with exper-
tise and capability to carry out the incident action plan.
• Coordinate, as appropriate, with other first responder agencies.
• Request additional resources from the EOC.
f. When more than one agency is involved at an incident scene, the agency having jurisdiction and other
responding agencies shall work together to ensure that each agency's objectives are identified and
coordinated.
g•
Team problem solving should facilitate effective response. Other agency personnel working in sup-
port of the Incident Command system will maintain their normal chain of command, but will be under
control of the City on -scene Incident Commander.
h. The on -scene Incident Commander may designate a Public Information Officer to work with the news
media at an incident. This may include coordinating agency media releases and arranging contacts
between the media and response agencies. If additional support is needed, the Crisis Action Team
(CAT) and/or the EOC may be activated.
During widespread emergencies or disasters, emergency operations with different objectives may be
conducted at geographically separated scenes. Incident command will be established at each site.
When this situation occurs, it is particularly important that the allocation of resources to specific field
operations be coordinated through the EOC. Incident Command Post(s) will link to the EOC via radio,
telephone or cell phone.
In emergency situations where other jurisdictions or the state or federal government are providing
significant response resources or technical assistance, it is generally desirable to transition from the
normal ICS structure to a Unified Command structure. Principles of Area Command or Multi -agency
Coordinated Systems may also apply. This arrangement helps to ensure that all participating agencies
are involved in developing objectives and strategies to deal with the emergency.
4. Emergency Operations Center - Activation.
a. The Emergency Operations Center (EOC) is an essential tool for successful response and recovery
operations. With decision and policy makers located together, personnel and resources can be used
efficiently. Coordination of activities will ensure that all tasks are accomplished, minimizing duplica-
tion of efforts.
b. Depending upon the severity and magnitude of the disaster, activation of the EOC may not be neces-
CEMP
April, 2005
III - 13
Concept of Operations
City of Miami
Public
Information
Officer (PIO)
City of Miami
EMERGENCY OPERATIONS CENTER (EOC)
INCIDENT MANAGEMENT SYSTEM
EF# 14: Fub11c Information
- Rumor Control
Public Inquiries
-+ Media inquiries
- information & Instructions
- RACES
EOC
Support
Officer
Executive
Group
(Mayor, Commission)
City
Manager
Emergency
Manager
EP it 24: Public Frnlectinn (Warning, Evacuation, Sheller)
•-� Administrative Support
r Clerical
— Platting
- Maintenance
- Security
Communications
Deputy
Emergency
Manager
Legal
Officer
(City Manley)
Liaison
Officer
Safety
Officer
EF # 30: &eery
Operations
Fire -Rescue Branch
-EF#4: Firefighting
- EP#8.• Health
- UN 9: Search & Rescue
- UN 10: Hazardous Materials
-EF# 18r Special Medical Needs
-PEN 22: Emergency Medical Services
Police Branch
-EF # 13: Mlirary Support
-EP 4 16: Law Enjorce,nenl d Security
-EF# 17, Animal Protection
-EF # 26: Fataliry Management (Mass
- Fatalities)
EF # 27: Evacuation Traffic Management
Planning
Neighborhood Services
Branch
- EF# 1 Transportation & Fuels
-EF#I: Cus i real/uns
- EF N 3, Public Works & Engineering
- EEO 6: Mass Care (General Public)
-EF # 12.• Energy & Utilities
EP N 28: Debris Mmmgenreul
— Situation Analysts
EF # 20: Initial Disaster & Life Safety
Assessment
— Incident Planning
EF# 5: Information & Planning
- Documentation
- GIS
(Management information Systems)
- Extended operations Planning
Recovery Planning
- Technical Specialists
Damage Assessment
EP it 21: Damage A.asessmeni
COOP
'Logistics
Procurement Branch
- EF # 7: Resource Suppurl/Purchasing
- EFH 11: Fowl & Water
-EFH 15: Volunteers & Donations
-EFH 19: Business & Tourism
Assessment
- EF# 23: Employees Assistance and
Deployment
- EF# 29: lnfurmnlion Technology
Sernlces
Administration
Si Finance
EF# 25: Administrative & Financ
Finance Branch
Administration Branch
a/o 01 /20/05
III - 14
CEMP
April, 2005
City of Miami
Concept of Operations
sary, may only be partially required, or may require full activation. Partial activation would be dic-
tated by the characteristics of the disaster and would involve only those persons needing to interact in
providing the City's coordinated response.
• EOC activation levels will generally follow the "emergency levels" as described in Paragraph F
in this section.
c. The following individuals are authorized to activate the EOC:
• City Manager.
• Fire Chief.
• Police Chief.
• Emergency Manager.
• Deputy Emergency Manager.
• Crisis Action Team Member.
d. When the decision is made to activate the EOC, the Emergency Manager will notify the appropriate
staff members to report to the EOC. The EOC Management staff will take action to notify and mobi-
lize the appropriate organizations and operations centers which they are responsible for coordinating.
e. Additional notifications are made to the county and state as appropriate.
f. When the EOC is activated, it is essential to establish a division of responsibilities between the inci-
dent command post and the EOC. It is essential that a precise division of responsibilities be deter-
mined for specific emergency operations. Common EOC tasks include:
Assemble accurate information on the emergency situation and current resource data to allow
City officials to make informed decisions on courses of action.
Work with representatives of emergency services, determine and prioritize required response
actions and coordinate their implementation.
• Suspend or curtail government services, recommend the closure of schools and businesses, and
cancellation of public events.
• Provide resource support for the incident command operations.
• Issue community -wide warning.
• Issue instructions and provide information to the general public.
• Organize and implement large-scale evacuation.
• Organize and implement shelter and mass arrangements for evacuees.
• Coordinate traffic control for large-scale evacuations.
• Request assistance from the county, state and other external sources.
5. Emergency Operations Center (EOC) - Operations and Staffing.
Note: Complete EOC operational details, to include detailed job descriptions and checklists of tasks,
are contained in the Emergency Operations Center Operations Manual, published separately.
a. Overview.
CEMP
April, 2005
• The Management Structure is intended to be flexible and should be tailored by the "Emergency
Manager" and the "EOC Section Chiefs," to meet the demands of any particular situation.
III - 15
Concept of Operations
City of Miami
The Emergency Manager is responsible to the "City Manager" and will implement policy direc-
tives, and will have overall management responsibility for the incident.
The Emergency Manager directs EOC response actions to save lives and protect property and
recommends/instigates population protective actions. Within the framework of the Crisis Action
Team (CAT) or Emergency Operations Center (EOC), all available resources are identified and
mobilized as necessary. Tasks are prioritized and resources used within this priority framework.
b. Use of the National Incident Management System (NIMS) Incident Command System (ICS).
The Miami City EOC utilizes the scalable organizational structure of the NIMS ICS in the con-
text of both pre -incident and post -incident management activities. The EOC organization adapts
to the magnitude and complexity of the situation at hand, and incorporates the NIMS principles
regarding span of control and organizational structure: management, operations, planning, logis-
tics, and finance/administration. Although the EOC uses an ICS structure, the EOC does not
manage on -scene operations. Instead, the FOC focuses on policy decisions, providing support to
on -scene efforts, and conducting broader support operations that may extend beyond the incident
site.
c. Mayor/City Commission (Executive Group).
• The Mayor/City Commission ensures the necessary direction and policy decisions in support of
response actions to save lives and protect property and recommends/instigates population pro-
tective actions.
• The Executive Group will develop policy and strategy, disseminate policy guidance and direc-
tion through the City Manager, provide interface to the media and public, and liaison with state
and federal officials as required.
d. City Manager.
• The City Manager, is in charge of the incident, and is responsible for making decisions necessary
to meet the emergency/disaster impacts to include management of incident activities, develop-
ment and implementation of strategic decisions, and approving the ordering and releasing of
resources.
e. Legal Officer.
• The "Legal Officer" function is staffed by the City Attorney who:
Provides legal analysis of the emergency management program.
- Reviews existing plans and procedures.
- Advises on emergency declarations, resolutions, and ordinances.
- Provides legal advice.
f. Emergency Manager and Staff.
III - 16
The "Emergency Manager" position is staffed by the Emergency Manager or designee, and re-
ports to the City Manager. The Emergency Manager ensures that the EOC is adequately staffed
and that the appropriate EFs are activated to meet the emergency tasks and demands. The Emer-
CEMP
April, 2005
City of Miami
Concept of Operations
gency Manager implements the City Manager's decisions through the EOC process and ensures
that the EOC is structured to meet the emergency/disaster impacts. This element may include
such staff as required to perform or support the Emergency Manager function, and includes the
Public Information Officer, Safety Officer and Liaison Officer. Unless a Deputy Emergency
Manager is appointed, the Emergency Manager also supervises the Section Chiefs and EOC
Support Officer.
- The Emergency Manager is in charge of implementing EF #24: Public Protection. (See
Annex III: Response Functions, EF #24)
The "Public Information Officer (PIO)" reports to the EOC Manager, is staffed by the City Man-
ager, and is in charge of implementing EF #14: Public Information. (See Annex III: Response
Functions, EF #14). The PIO Section includes the following units: Rumor Control; Public En-
quiries; Media Enquiries; Information and Instruction.
The "Safety Officer" advises the EOC Director on EOC and operational safety issues, is staffed
by the Risk Manager who is in charge of implementing EF #30: Safety. (See Annex III: Response
Functions, EF #30)
The "Emergency Manager/Liaison Officer" (staffed or assigned by the Emergency Manager) is
the point of contact with other agencies, and:
Coordinates Agency Representatives assigned to the EOC as well as handling requests from
other agencies for sending liaison personnel to other EOCs.
- Functions as a central location for incoming Agency Representatives, and will provide work
space and arrange for support as necessary.
• The Deputy Emergency Manager is appointed as needed. If activated, the Deputy Emergency
Manager supervises the Section Chiefs and EOC Support Officer.
• The "EOC Support Officer" maintains the EOC readiness, is staffed by Emergency Management
personnel, and provides/coordinates the EOC administrative, logistical support, and communi-
cation support required during EOC operations.
g. EOC Section Chiefs.
• There four EOC Sections: Operations; Planning; Logistics; Administration & Finance.
• Each of these sections will have branches or units that will generally be functionally oriented.
The size and functions within this organization will be dictated by the magnitude and nature of
the emergency.
h. EOC Operations Section.
CEMP
April, 2005
• The EOC Operations Section is responsible for all tactical command and coordination of inci-
dent response assets.
• The Operations Chief position is staffed by either the Police Department or Fire -Rescue Depart-
ment depending on the event.
III - 17
Concept of Operations
City of Miami
• The Operation Section consists of the following branches:
- The "Fire -Rescue Branch," staffed by the Fire -Rescue Department, who is charge of imple-
menting: EF #4: Firefighting; EF #8: Health; EF #9: Search and Rescue; EF #10: Hazard-
ous Materials; EF #18: Special Medical Needs; EF #22: Emergency Medical Services.
The "Police Operations Branch," staffed by Police Department, who is in charge of imple-
menting: EF #13: Military Support; EF #16: Law Enforcement and Security; EF #17: Ani-
mal Protection; EF # 26: Fatality Management; EF #27: Evacuation Traffic Management.
The "Neighborhood Services Branch," staffed by NET, who are in charge of implementing:
EF #1: Transportation & Fuels; EF #2: Communications; EF #3: Public Works and Engi-
neering; EF #6: Mass Care (General Public); EF # 12: Energy and Utilities; EF #28: Debris
Management.
f, EOC Planning Section (EF #5: Information and Planning).
• The EOC Planning Section collects, evaluates, disseminates, and documents information about
the incident, status of resources, develops the Incident Action Plans, compiles damage assess-
ment, and develops recovery plans.
III. 18
• The Planning Chief position is staffed by Emergency Management or designee.
• The Planning Section consists of the following units:
The "Situation Analysis Unit," staffed by the Fire -Rescue Department and Emergency Man-
agement, who is in charge of implementing: EF #20: Initial Disaster and Life Safety As-
sessment.
The "Incident Planning Unit," staffed by Fire -Rescue Department and the Police Depart-
ment, and consists of the following sub -units: Documentation; GIS; Extended Operations
Planning; Recovery Planning and Technical Specialists.
- The "Damage Assessment Unit," staffed by Capital Improvement Programs, who is in charge
of implementing: EF #21: Damage Assessment.
The "COOP Unit" staffed by Budget and Strategic Planning.
EOC Logistics Section.
The EOC Logistics Section is responsible for providing all support needs to emergency incident
sites, and will order all resources, and provide facilities, supplies, and services.
The Logistics Chief position is staffed by the Purchasing Director or designee.
The Logistics Section consists of the Procurement Branch which coordinates the foIIowing Emer-
gency Functions:
- EF #7: Resource Support/Purchasing; EF #11: Food and Water; EF #15: Volunteers & Do-
nations; EF #19: Business and Tourism Assessment; EF #23: Employee Assistance and
Deployment; EF #29 Information Technology Services.
CEMP
April, 2005
City of Miami
k, EOC Administration and Finance Section.
Concept of Operations
• The EOC Administration and Finance Section is responsible for monetary, financial, and related
administrative functions.
• The Administration and Finance Chief position is staffed by the Chief Financial Officer or desig-
nee who is in charge of implementing EF #25.
• The Administration and Finance Section consists of two Branches: The Finance Branch and the
Administration Branch.
6. Controls, Continuity of Operations.
a. During emergencies, decision making authority and control of the emergency is retained by the City
of Miami. The field incident commanders are City officials, usually fire or police officers. The local
coordination and commitment authority for Iocal resources is retained by the City officials, and del-
egated as appropriate.
b. In a single site emergency, the Miami department with lead agency / primary operational control,
being best qualified to conduct the rescue, recovery and control operations, will have jurisdiction for
on -scene control. The department's Incident Commander will become the emergency on -scene com-
mander and will be responsible for the overall operation.
c. The Miami EOC, once activated, directs and controls a response to an emergency or disaster.
d. The EOC may be activated to coordinate support for an on -scene incident commander, without acti-
vating the full City emergency organization.
e. During the effective period of any declared emergency, the Emergency Manager directs and controls
all emergency response activities and employs all necessary emergency resources according to the
provisions of this plan.
f. Continuity of Operations.
• The EOC may be required to operate on a 24 hour basis for the duration of an incident or disaster.
• During a 24 hour operation, shifts will normally be 8-12 hours in length.
g•
• Each position in the EOC must have a total of at least two people designated for staffing during
24 hour operations.
EOC Operating Procedures.
• Operating procedures for the EOC are maintained by Emergency Manager and updated annually
on the anniversary of this plan, or when needed.
7. Facilities,
a. Incident Command Post (ICP).
CEMP
April, 2005
Ill - 19
Concept of Operations
City of Miami
The tactical -level, on -scene incident command and management organization is located at the
ICE When multiple command authorities are involved, the ICP may be led by a Unified Com-
mand, comprised of officials who have jurisdictional authority or functional responsibility for
the incident under an appropriate law, ordinance, or agreement. The Unified Command provides
direct, on -scene control of tactical operations and utilizes a NIMS ICS incident management
team organization, typically including Operations, Planning, Logistics, and Finance/Administra-
tion Sections.
The ICP is usually located at or in the immediate vicinity of the incident site. The location is
selected by the agency having primary jurisdictional authority for managing the incident at this
level. Generally, there is one ICP established for each incident. Depending on the number and
location of incidents, there may be multiple ICPs.
b. Emergency Operations Center.
• The EOC is located in the Police Department Training Room. The Emergency Manager is re-
sponsible for the readiness and support of the EOC.
• The secondary, or alternate EOC is located at the City's Fire Training Center.
c. Department Operating Locations.
• Each City Department will be directed by the EOC to establish a primary Iocation and alternate
location from which to establish direction and control of its respective activities in an emergency
or disaster. This may be from the EOC, or other location, depending upon the circumstances.
d. Communications. (See Annex III: EF #2, Communications.)
• Fire and Police responders involved in disaster operations will maintain operations through their
Communications Centers.
• Any department operating from another location other than the EOC will maintain contact with
the EOC through direct redundant communications, such as telephone, radio and fax.
All departments are responsible to ensure that communication systems are in place between
EOC representatives and their departments.
Each department will bring to the EOC their own portable radio, charger, spare batteries, head-
sets, and cellular phones. Land phones will be provided at the EOC.
Communications to the general public will be through the media, coordinated by the on -scene
Public Information Officers (PIOs) and the EOC Information Officer. The Emergency Alert Sys-
tem (EAS) is accessed through the Miami -Dade County EOC.
A "disaster hotline" located in the Miami EOC will also be used to respond to public requests for
assistance and information.
e. Joint Field Office (JFO).
III - 20
• The JFD is a federal multi -agency coordination center established locally. It provides a central
CEMP
April, 2005
City of Miami
Concept of Operations
location for coordination of federal, state, local, tribal, nongovernmental, and private -sector or-
ganizations with primary responsibility for threat response and incident support. The JFO en-
ables the effective and efficient coordination of federal incident -related prevention, prepared-
ness, response, and recovery actions.
f. Joint Information Center (JIC).
g.
• The JIC is a physical location where public affairs professionals from organizations involved in
incident management activities work together to provide critical emergency information, crisis
communications, and public affairs support. The JIC serves as a focal point for the coordination
and dissemination of information to the public and media concerning incident prevention, pre-
paredness, response, recovery, and mitigation.
Disaster Recovery Center (DRC).
• When established in coordination with state and local jurisdictions, a DRC is a satellite compo-
nent of the JFO and provides a central facility where individuals affected by a disaster can obtain
information on disaster recovery assistance programs from various federal, state, local, tribal,
private -sector, and voluntary organizations.
8. Administration.
a. The City of Miami is responsible for establishing the administrative controls necessary to manage the
expenditure of funds and to provide reasonable accountability and justification for expenditures made
to support emergency operations. This shall be done in accordance with the established City fiscal
policies and standard cost accounting procedures. See Basic Plan, Section V, Financial Management,
for additional details.
K. ALERT AND WARNING.
I. Overview of City Warning System.
a. The Fire Alarm/Fire Dispatch Office is the City's Warning Point and has a continuous 24-hour warn-
ing system to alert key officials and the public.
b. Notification of Emergency Management is through telephone, radio or pagers.
c. Police and Fire have radio or pager systems which are activated by the Fire AlarmlFire Dispatch
Office.
d. Fan Out Alert.
• The fan out alert when initiated will be made by the City governmental staff. It will be the
responsibility of City government EF lead departments to notify their respective support agen-
cies, and division director, and/or staff under their span of control.
• Fan Out methods include: telephone, email blast list, and emergency meetings.
e. The Public is alerted by Emergency Alert System (EAS) broadcasts, door-to-door notification, emer-
gency information packets, and portable speaker systems.
CEMP
April, 2005
III - 21
Concept of Operations
City of Miami
• The EAS is accessed through the Miami -Dade County EOC.
f. In the event of an imminent or actual disaster, the City will initiate actions to warn local residents and
visitors by all means available. See Annex III: ESF #19: Public Protection, for details.
2. Pre -Incident.
a. The City prepares facilities, systems and procedures to activate warning and communication capabili-
ties. Systems to support these capabilities are:
Telephone, pagers, radio communications and email to notify public officials, EOC staff, and
emergency personnel.
• Local television, radio and newspaper services to assist in the dissemination of warning to the
public.
• Police and Fire and Rescue Services.
The Emergency Operations Center (EOC) Emergency Communications Center.
b. Emergency Management prepares SOP'S to receive and disseminate warning information to the pub-
lic and City agencies, as appropriate.
3. Notification.
a. The City may receive initial warning of a disaster or pending disaster from City departments, the
County EOC, the National Warning System, neighboring jurisdictions, the state EOC, the National
Weather Service, the National Hurricane Center, the news media, or the general public.
b. Significant incidents include but are not limited to the following:
• Any incident which may require a substantial evacuation and/or relocation of a given area.
• Any event posing a potential threat for a mass casualty incident.
• Any weather related watch or warning advisory.
• Any formation of tropical weather systems.
• Any incident which close or significantly block major roadways within the City or County.
• Any large or multiple structure fires.
• Any prolonged shutdown of public utilities.
• Any incident where public resources within Miami or Miami -Dade County are being deployed
out of the County except for emergency services mutual aid or any event posing a major environ-
mental threat.
c. See Section J.2 above for discussion of "crisis monitoring."
d. Upon the receipt of notification of any significant event the Fire Alarm/Fire Dispatch Office will:
• Notify Emergency Management.
• Activate the CAT paging and/or telephone alert warning system.
• Notify the County and state warning point.
• Notify designated City personnel and agencies.
• Initiate a partial or full fan out alert.
III - 22
CEMP
Aprll, 2005
City of Miami
4. Watch, Standby Procedures.
Concept of Operations
a. As recommended by the Crisis Action Team or the Emergency Manager, the City Manager will issue
a standby order if a pending disaster has the potential of affecting the City of Miami (i.e. a hurricane).
Departments will take the following actions:
• Review this document.
• Notify employees.
• Review department emergency plans.
• Insure that department vehicles and equipment are serviced and ready.
• Inventory existing communication equipment. Be prepared to collect and redistribute radios,
portable telephones, chargers, batteries, etc.
• Obtain maps, drawings, and other emergency aids.
• Continue to provide routine service to the public, but plan to change to emergency procedures
upon warning notification.
b. Recall procedures vary by department, and each department has the responsibility to inform employ-
ees of proper recall procedures. Employees who are recalled are expected to secure their families and
homes, and report promptly to their assigned positions.
c. Employees who are recalled should realize that the emergency may be several days or longer in
duration. Each employee should report to his/her emergency assignment with personal items neces-
sary for 72 hours (e.g. personal articles, toiletries, change of clothing, medications, special non -refrig-
erated dietary foods, blankets/sleeping bag, etc.)
d. The public will be notified that the City is in a "watch" situation through the media, and will be
advised to take appropriate preparedness measures.
5. Warning.
a. In the event of an imminent or actual disaster the Fire Alarm/Fire Dispatch Office will:
• Notify Emergency Management.
• Activate the CAT paging and/or telephone alert warning system.
• Notify the County and State warning point.
• Notify designated City personnel and agencies.
• Initiate a partial or full fan out alert.
b. The City will initiate actions to warn citizens and visitors by all means available. See Annex III: EF
24: Public Protection, for details. The general public receives warning information by:
• Local broadcasts (emergency alert system) or printed media.
• Door-to-door notification by emergency services personnel.
• Mobile sirens and public address systems.
• Weather alert radios.
c. Upon notification of a warning (imminent or spontaneous event), each department will initiate inter-
nal notification actions to:
CEMP
April, 2005
• Alert employees assigned to emergency duties.
• As appropriate to the situation:
III - 23
Concept of Operations
Suspend or curtail normal business activities.
Recall essential off -duty employees.
Send non -critical employees home.
Secure and evacuate the department's facilities.
City of Miami
• If requested, augment the City's effort to warn the public through use of vehicles equipped with
public address systems, sirens, employees going door to door, etc.
d. Special needs groups receive information by:
• Door-to-door warnings for handicapped, visually and hearing impaired.
• Foreign language media messages.
• Closed -caption television messages.
6. Emergency Public Information.
a. Rapid dissemination of information is essential and vital for health and safety protection during and
after emergencies and disasters. The primary means to do this is by direct contact with the media
through prepared statements by Emergency Management in coordination with the City Manager us-
ing phone and fax. See Annex III: EF #14: Public Information, for details.
b. It is impossible for government to do everything that is required to protect the lives and property of the
City's population. Citizens have the responsibility to prepare themselves and their families to cope
with emergency situations and manage their affairs and property in ways that will aid the government
in managing emergencies. The City will assist citizens in carrying out these responsibilities by provid-
ing public information and instructions prior to and during emergency situations.
L. DIVISIONAL EMERGENCY OPERATIONS CENTERS.
1, The Miami -Dade County Office of Emergency Management, in an effort to maintain a manageable span of
control and to facilitate effective coordination and communication between Miami -Dade County Emer-
gency Operations Center and its 34 municipalities, has grouped municipalities into seven divisions. Each
division has identified a host city to serve as the liaison with the Miami -Dade EOC during times of disaster.
The host cities are commonly known as "Divisional EOCs" and the cities within their division are com-
monly known as "Satellite EOCs."
a. Each of municipalities within Miami -Dade County is responsible for planning and responding to
events occurring within its jurisdiction. When emergencies or disasters occur in which municipalities
exhaust their resources, they may call upon the assistance of their Divisional EOC or Miami -Dade
County.
b. Miami -Dade County encourages its municipalities to participate in the statewide mutual aid agree-
ment for disaster response and recovery.
c. Municipalities must submit requests for mutual aid through the Miami -Dade EOC.
2. The City of Miami is a designated Divisional EOC, and as such, responsibilities include:
a. Monitoring and coordinating the response and recovery activities of its assigned municipalities.
b. Providing or coordinating requested support for its satellite municipalities.
III -24
CEMP
April, 2005
City of Miami
Concept of Operations
c. Anticipating upcoming needs and potential problems.
d. Informing satellite municipalities of executive decisions, actions, and instructions.
e. Establishing and maintaining a facsimile distribution network to its Satellite EOCs
3. The Satellite EOCs hosted by Miami are the municipalities of El Portal, Key Biscayne, Miami Shores and
North Bay Village.
a. The Satellite EOCs representatives are included in the Command Section of the Miami EOC. The
Miami Emergency Manager is responsible for interacting with Satellite EOC representatives and may
appoint a coordinator to assist with issues and requests.
b. As a Divisional EOC, Miami is not obligated to satisfy any requests for assistance its Satellite EOCs.
However, if Miami can satisfy a request, it will do so, and then communicate the information to the
Miami -Dade County EOC for coordination and record keeping purposes.
4. As appropriate, Miami will send a representative, capable of making key decisions, to the Miami -Dade
County EOC to facilitate communication. The representative sent to the Miami -Dade County EOC will
have a clear understanding of the Miami CEMP and a working knowledge of the Miami -Dade County
CEMP.
5. Landline telephones and landline facsimile machines are the primary source for communication from the
Miami -Dade County EOC to Miami, and from Miami to its Satellite EOCs.
a. Miami will establish alternative communication systems to maintain contact with the Miami -Dade
County EOC.
M. EMERGENCY EVENT ESCALATION.
1. Emergency Event Escalation.
a. The initial response to any routine emergency in Miami will follow standard operating protocol for
first response agencies. Emergency notifications originate through the 911 answering point and are
transferred to Police and/or Fire Rescue for response action. If a routine emergency advances beyond
normal response capability and meets any of the following trigger points, then the City Emergency
Manager is notified, triggering an escalation of the emergency event:
• Local resource capabilities may be exhausted and a request for external support is anticipated.
• An evacuation of multiple structures is required.
• Damage caused by the emergency event warrants a damage assessment.
• Augmentation of the command and control capability is desired to coordinate multiple respond-
ing agencies or multiple impacted jurisdictions.
• A legal/statutory threshold has been reached that requires notification of outside agencies.
b. Weather events that can be forecast and become a potential threat to Miami include tropical storms,
hurricanes, and flooding events. Based upon the potential threat to the City, these events also may
trigger an emergency declaration, implementation of the CEMP, and activation of the Miami EOC.
CEMP
April, 2005
III - 25
Concept of Operations
2. Activation of City CEMP.
City of Miami
a. When an emergency/disaster has occurred or is imminent, the Mayor may declare a state of emer-
gency, activating the emergency response, recovery, and mitigation aspects of the Miami CEMP that
apply to the affected area.
b. Portions of the CEMP (certain EFs) may be activated in support of a field incident commander for
smaller, single site, emergency events, without a formal emergency declaration by the Mayor.
c. The resources of all City departments and agencies are considered to be available to minimize the
effects of a natural disaster. Voluntary assistance to support City efforts may come from:
• Adjoining communities.
• Private business and industry.
• All other groups or individuals.
• Any additional assistance required at the county, state or federal level. Assistance should be
requested through Miami -Dade County Emergency Operations Center (EOC).
3. EOC Activation.
a. See "J - Direction and Control Paragraph 4" Emergency Operations Center - Activation.
b. When the decision is made to activate the EOC, the Emergency Manager will notify the appropriate
staff members to report to the EOC. When notified, Departments assigned to an EOC function will:
Call-up and dispatch their personnel to the Emergency Operations Center (EOC) as per their
department Standard Operating Procedure (SOPs).
Activate and ensure their emergency communication systems are functioning, especially inter-
nally to their key personnel (as per their SOPs) and from their key operating locations to the
EOC.
Activate their department's emergency response plan and be prepared to carry out their responsi-
bilities as indicated in this plan. Specific "how to" actions and tasking to perform indicated
responsibilities are found within each department's SOPs.
4, Emergency Proclamation.
a. A local "Emergency Proclamation" is the legal method which authorizes extraordinary measures to
meet emergencies and/or solve disaster problems. A proclamation allows for the emergency appro-
priation of monies, emergency use of resources (City personnel, supplies, equipment, materials, fa-
cilities), the by-passing of time consuming requirements such as hearings and the competitive bid
process, and activates extraordinary measures as outlined in this plan. A proclamation is usually a
prerequisite for state and/or federal assistance and made at the onset of a disaster to allow the City to
do as much as possible to help itself.
b. In preparing a proclamation, a description of the event and the necessary emergency authorizations
need to be documented. The Miami -Dade County EOC should be informed, and a news release made
as soon as possible when a Emergency Proclamation is signed.
III -26
CEMP
April, 2005
City of Miami
c. The Mayor may declare a State of Local emergency to expedite access to local resources needed to
cope with the incident. If the needed response exceeds these local capabilities, a disaster has occurred.
The Mayor may further ask for a gubernatorial declaration and state and federal assistance.
Concept of Operations
5. Request for Assistance.
a. In accordance with ES. Chapter 252.38(1), Miami -Dade County Office of Emergency Management
has jurisdiction over and serves the entire county during emergencies, including all municipal juris-
dictions contained therein, Extensive emergency preparedness, response, and recovery resources are
under the daily direction and control of municipal jurisdictions. These factors dictate an extensive
coordination effort between the county and municipalities during emergency response and recovery
operations.
b. If the situation is beyond local capability, a request for state assistance, and/or federal assistance may
be in the original proclamation or included in a second proclamation presented to the Governor through
the Miami -Dade County EOC and the State EOC. The "Local Proclamation" and the "Request for
Assistance" are two separate actions, although they may be combined. Part of this proclamation in-
cludes the Mayor proclaiming the City "a disaster area."
c. The Miami -Dade County EOC serves as the liaison and coordinating agency between Miami and state
government,
d. At the state level, decision making authority and commitment of state resources is retained at the state
EOC (SEOC) or by the state emergency response team (SERT) leader. The SERT leader may issue
mission assignments to state agencies (state ESFs) in support of local response needs. Mission assign-
ments and mutual aid agreements coordinated by the state, are tracked in the SEOC by staff reporting
to the SERT leader.
e. Should federal assistance be granted, a State Coordinating Officer (SCO) will be appointed to inter-
face directly with the federal government and to coordinate federal ESFs mobilized to support local
emergency operations.
f. A Federal Coordinating Officer (FCO) works with the SCO to identify requirements. A Joint Field
Office (JFO) may be established to coordinate federal resources. A Principal Federal Officer (PFO)
may be designated to coordinate federal interagency incident management efforts. See Section VII
Attachments: Overview of Initial Federal Involvement, for further details.
6. Resource Requests.
a. The Miami EOC must validate and approve all City resource requests and verify that local resources
have been exhausted, and that resources are not available from the local private sector. The decision
making and resource allocation process is illustrated on the following page.
b. The Miami -Dade County EOC will attempt to support all requests for resource support from locally
available resources, until these too have been exhausted. Municipal and county resource requests will
be consolidated and forwarded to the State. Resource/mission requests from the Miami -Dade County
EOC to the State EOC are funneled through the State Emergency Response Team (SERT) liaison
assigned to the Miami -Dade EOC.
CEMP
April, 2005
III - 27
Concept of Operations
Statewide Mutual Aid
Agreement Resources
Federal Emergency Response Team
Non- Profit
Organizations
State EOC
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r
County EOC
A
City of Miami
Emergency Mutual
Aid Compa ct
Private Sector
City of Miami
Decision making and resource allocation process.
7. Initial Response by City Departments.
a. It is the policy of the City that all departments and divisions maintain Standard Operating Procedures
(SOPs) as set forth in Section IV of this Basic Plan.
b. Tactical (departmental) operations are expected to be managed by the various City Departments and
Divisions controlling their personnel and resources in accordance with their Departmental SOPs. City
departments are directed to include the "Miami Departmental Initial Response Tactical Guidance and
Policy" (see page III-34, this section) in their "emergency plans" to their personnel.
8. Evacuation.
a. Evacuations within the City will be initiated following a decision by a City incident commander.
b. In the event of a multi -jurisdictional or regional evacuation, the Mayor may issue a declaration of a
local state of emergency and an evacuation order (in support of Miami -Dade County's or the State's
evacuation orders). This decision will be made following consultation with the City Emergency Man-
ager and/or the Police Chief or Fire Chief and representatives of the jurisdictions involved.
c. All City assistance and support of such actions will be coordinated from the EOC. Decisions on
issues, such as lifting tolls on toll facilities; locking down drawbridges; deploying and re deploying
personnel; determining evacuation routes; Directing people caught on evacuation routes to safe shel-
ter; ensuring the sufficiency of fuel, and addressing any matters relative to the ordered protective
actions will be made by the EOC Management Team in coordination with the County EOC.
9. Sheltering.
a. In the event of a local or regional evacuation, the City of Miami will support the County's sheltering
efforts for the local community or the State's and County's efforts to serve as a host sheltering commu-
nity.
III - 28
• Notification is made to the Miami -Dade County Chapter of the American Red Cross if their
designated shelter facilities are to be used. The opening of shelters is a coordinated effort be-
tween Miami -Dade County EOC and the American Red Cross.
CEMP
April, 2005
City of Miami
10. Debris Removal.
Concept of Operations
Miami -Dade County has been divided into debris removal areas and contracts are in place for the emer-
gency removal and disposal of debris in each of these areas. Staging, sorting, and disposal sites have been
identified throughout the county.
11. Mutual Aid.
Miami -Dade County is a participating county in the statewide mutual aid program. All City requests for
mutual aid will be submitted through the Miami -Dade EOC. The Director of the Office of Emergency
Management or his/her designee is responsible for the administration, coordination, and monitoring of all
mutual aid agreements within Miami -Dade County.
N. ROLE OF MIAMI-DADE COUNTY EOC.
1. The Miami -Dade County Emergency Operations Center (EOC) is the county's central coordination point
for a county wide response to an actual or imminent emergency or disaster. The EOC is located in the
Miami -Dade Fire Rescue (MDFR) headquarters facility. The Miami -Dade Office of Emergency Manage-
ment (OEM) is responsible for coordinating the county's response and may activate the EOC at any time.
2. In the event of a countywide emergency declaration, the corporate resources of the county and each of its
municipalities work together for the mutual benefit of all residents of Miami -Dade County.
3. The Miami -Dade Office of Emergency Management (OEM) is responsible for the coordination of all
countywide response efforts relative to disasters. The Miami -Dade County Emergency Operations Center
(EOC) is the facility in which all emergency and disaster preparations, response, and recovery activities are
coordinated among the participating agencies.
4. The Miami -Dade OEM is constantly monitoring the county for threats, unusual events, or situations. An
OEM Duty Officer is on -call 24 hours/day, 7-days/week, and is advised of any such events by the Miami -
Dade Alarm Office, State Warning Point, concerned citizens, or other agencies. The Duty Officer also has
the responsibility to monitor and follow-up on any threat, unusual event, or situation that has the potential
to impact Miami -Dade County (e.g., media reports, weather advisories, etc.). It is important to note that
although the OEM is constantly monitoring the progression of events within the county, the EOC is consid-
ered "activated" only when operating at a Level I or greater. Thus, during day-to-day operations where no
specific situation is occurring, the EOC is not activated.
5. The Miami -Dade EOC utilizes a bottom -up approach in all phases of emergency management, with emer-
gency activities being resolved at the lowest appropriate level of government. The resources of departmen-
tal, agency, municipal, county, state, and the federal governments are utilized in this sequential order to
insure a rapid and efficient response.
6. The Miami -Dade EOC's response to, and recovery from, a disaster is carried out through the organizational
structure depicted on the following page.
CEMP
April, 2005
III - 29
Concept of Operations
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III - 30
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Miami -Dade County EOC Organizational Chart
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CEMP
April, 2005
City of Miami Concept of Operations
O. INITIAL RECOVERY ACTIONS. (See Annex IV: Recovery for detailed information.)
I. Once the emergency has passed, coordination of recovery operations will be in such as search and rescue
operations, mass casualty activities, the provision of emergency supplies, preliminary damage assessment,
emergency debris removal, and emergency restoration of utilities. The City EOC will continue to direct
management and coordinating of all emergency functions. The primary initial local coordinating agency
for requesting resources and relief from County, State and Federal sources and allocating such supplies
within the City will be the Emergency Manager. County, State and Federal Emergency Response Teams
will be established, and sent as soon as possible after the emergency. Ideally, these Emergency Response
Teams will be located in Miami at or near the City EOC and will carry out all State coordination and
assistance functions until the Federal Joint Field Office (JFO) is established.
2. Requests for immediate relief supplies and resources will be made by the City to the County EOC. The
County EOC will consolidate all City requests into a County request for immediate relief resources. The
county request for outside resources will be made to the State.
3. Disaster Information and Referral Centers (DIRCs).
a. Miami -Dade OEM has established sites that are strategically located throughout the county and will
serve as Disaster Information and Referral Centers (DIRCs). The purpose of these centers is to pro-
vide disaster relief information and referral services to the affected residents of Miami -Dade County.
Additionally, if the disaster is of a catastrophic nature causes widespread damage throughout several
segments of the Miami -Dade County, the information and referral services may be augmented to
include other disaster relief services such as distribution of food, water, disaster relief supplies and
donated goods.
b. If a presidential declaration is issued or one is expected, DIRCs may be established for the period prior
to the opening of Disaster Recovery Centers (DRCs). Whenever possible, DIRC Iocations will be
converted to DRCs.
4. The recovery phase will begin during the response phase, and will focus on:
• Damage assessment.
• Recovery, restoration of the City.
• Administration of programs to mitigate the consequences of future disasters.
5. Initial actions that may be taken include:
• Assemble, brief, deploy damage assessment teams. (See Annex III: EFs #20 and #21, for details)
• Compile, analyze disaster impact.
• Work with county, state, federal representatives to identify locations for the Joint Field Office (JFO)
and Disaster Recovery Centers (DRCs).
• Obtain information on current recovery program, eligibility requirements, etc.
• Identify recovery support departments, personnel.
• Maintain liaison with Miami -Dade County EOC.
• Identify any mutual aid and private resources needed to support the recovery.
6. Continuing actions may include:
• Coordination with county, state, and federal recovery staff.
• Support and staff JFO and DRCs.
CEMP
April, 2005
III - 31
Concept of Operations
City of Miami
• Monitoring of post disaster conditions.
• Coordinate requests for state and federal disaster assistance programs.
• Activation of a City Recovery Action Team and development of a City Recovery Action Plan.
P. OVERVIEW OF INITIAL FEDERAL INVOLVEMENT
This overview illustrates actions Federal agencies likely will take to assist State and local governments that
are overwhelmed by a major disaster or emergency. Key operational components that could be activated
include the Interagency Incident Management Group (IIMG), National Response Coordination Center
(NRCC), Regional Response Coordination Center (RRCC), Emergency Response Team —Advance Ele-
ment (ERT A), National Emergency Response Team (ERT-N), Joint Field Office (JFO), and Disaster Re-
covery Center (DRC).
1. The Department of Homeland Security Homeland Security Operations Center (DHS HSOC) continually
monitors potential major disasters and emergencies. When advance warning is possible, DHS may deploy
and may request other Federal agencies to deploy liaison officers and personnel to a State Emergency
Operations Center (EOC) to assess the emerging situation. An RRCC may be activated, fully or partially.
Facilities, such as mobilization centers, may be established to accommodate personnel, equipment, and
supplies.
2. Immediately after an incident, local jurisdictions respond using available resources and notify State re-
sponse elements. As information emerges, they also assess the situation and the need for State assistance.
The State reviews the situation, mobilizes State resources, and informs the DHS/EPR/FEMA Regional
Office of actions taken. The Governor activates the State emergency operations plan, proclaims or declares
a state of emergency, and requests a State/DHS joint Preliminary Damage Assessment (PDA) to determine
if sufficient damage has occurred to justify a request for a Presidential declaration of a major disaster or
emergency. Based upon the results of the PDA, the Governor may request a Presidential declaration and
defines the kind of Federal assistance needed. At this point, an initial assessment is also conducted of losses
avoided based on previous mitigation efforts.
3. After the major disaster or emergency declaration, an RRCC, staffed by regional personnel, coordinates
initial regional and field activities such as deployment of an ERT-A. The ERT A assesses the impact of the
event, gauges immediate State needs, and makes preliminary arrangements to set up operational field fa-
cilities. (If regional resources appear to be overwhelmed or if the event has potentially significant conse-
quences, DHS may deploy an ERT-N.)
4. Depending on the scope and impact of the event, the NRCC, comprised of Emergency Support Function
(ESF) representatives and DHS/EPRIFEMA support staff, carries out initial activation and mission assign-
ment operations and supports the RRCC from DHS/EPR/FEMA.
S. A Federal Coordinating Officer (FCO), appointed by the Secretary of Homeland Security on behalf of the
President, coordinates Federal support activities. The FCO works with the State Coordinating Officer (SCO)
to identify requirements. A Principal Federal Official (PFO) also may be designated as the Secretary's
representative to coordinate overall Federal interagency incident management efforts.
6. The ERT works with the affected State and conducts field operations from the JFO. ESF primary agencies
assess the situation and identify requirements and help States respond effectively. Federal agencies provide
resources under DHS/EPR/FEMA mission assignment or their own authority.
7. The IIMG convenes when needed to provide strategic -level coordination and frame courses of action re-
garding various operational and policy issues. The HSOC supports the IIMG and coordinates with the JFO.
III - 32 CEMP
April, 2005
City of Miami Concept of Operations
8. Teleregistration activates a toll -free telephone number individuals can call to apply for disaster assistance.
A toll -free disaster helpline is established to answer common questions. One or more DRCs may be opened
where individuals can obtain information about disaster assistance, advice, and counsel. Individual appli-
cants are processed at the DHS/EPR/FEMANational Processing Center. Inspectors verify losses and pro-
vide documentation used to determine the types of disaster assistance to be granted to individuals and
families.
9. As immediate response priorities are met, recovery activities begin. Federal and State agencies assisting
with recovery and mitigation activities convene to discuss State needs.
10. Public Assistance Applicant Briefings are conducted for local government officials and certain private
nonprofit organizations to inform them of available assistance and how to apply. Applicants must first file
a Request for Public Assistance. Eligible applicants will be notified and will define each project on a
Project Worksheet, which details the scope of damage and a cost estimate for repair to a pre -disaster condi-
tion. The Project Worksheet is used as the basis for obligating funds to the State for eligible projects.
11. Throughout response and recovery, mitigation staff at the JFO examine ways to maximize mitigation mea-
sures in accordance with State hazard mitigation administrative plans. Grounded in the local risk, and with
State priorities and mitigation plans in place, DHS/EPR/FEMA and State officials contact local officials to
identify potential projects and suggest which ones should be included in an early implementation strategy.
The strategy focuses on viable opportunities to provide funds, technical assistance, and staff support to
incorporate mitigation into the overall community recovery, to include the repair and replacement of dam-
aged or destroyed housing and infrastructure.
12. As the need for full-time interagency coordination at the JFO ceases, the ERT plans for selective release of
Federal resources, demobilization, and closeout. Federal agencies then work directly with their grantees
from their regional or HQ offices to administer and monitor individual recovery programs, support, and
technical services.
CEMP
April, 2005
III - 33
Concept of Operations
Ill - 34
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CEMP
April, 2005
City of Miami
Concept of Operations
REPARTMENTALJNITIAkR SPONSE ACTICAL.GIJIDANCE & POLICY,
It is the policy of the City of Miami that all departments and divisions maintain Standard Operating Procedures. (SOPs) as set forth in
Section IV of this Basic Plan, and will ensure their emergencyactivation procedures conform to this "Departmental Initial Response
Tactical Guidance and Policy."
Tactical (departmental) operations are expected to be managed by the various City Departments and .Divisions controlling their
personnel and resources in accordance with their Departmental SOPs: City departments, divisions and Tor agencies are directed to
include the following in their "emergency plans" to their personnel:.
1. General information to be reported from the field (or incident sites)
should include:
• What has happened?
What can be done?
What is needed?
Should Emergency Operations Center (EOC) be activated?
Partial or full activation?
Note: Recommendation should be made to Emergency Manage-
ment Coordinator; Fire Department, or City Manager.
Additionally, immediate, .specific .information should include the
status of (name of department):
• Personnel.
• Equipment.
• Vehicles. .
Communications capabilities.
Facilities.
Miami managers, supervisors are expected to report this informa-
tion (above) and: information on damages, and tasks to be done (if
applicable) to Emergency Management Coordinator, Fire Depart-
ment, and/or to the Emergency Operations Center (EOC) by what- A•
ever. means. possible,
As soon as. possible, Miami departments will dos "role call" of all
personnel to determine status. .
On duty personnel in thefield shall evaluate their own condition
and situation, and if possible, evaluate their surroundings by milk-
ing a quick "windshield survey" of their area. Communicate this
information to .. (who and how).
5. If a unit is unable to communicate with their command or dis-
patch, they should:
• Attempt to contact other mobile units (state how),'
• Contact Emergency Operations Center (EOC), (state how),
Contact (list who).
• OR report to (list location or locations).
6 If required, off -duty personnel will be recalled to duty through
normal methods or by (give detail and / or list how), :
10,
If it is apparent thata major disaster has occurred, disrupting nor-
mal communications channels, off -duty personnel are instructed
to make contact with (name of primary agency) for in-
structions (state how). OR, who (tell which other agency
they could report to).
Note: Employees are encouraged to make provisions ahead of
time forthe safety and well-being: of their family and home.
Further detailed response instructions and action checklists will
be found within each Miami department's response plans/proce-
dures;
Mutual Aid- External. (With entities outside of the City). It is the
policy of Miami that City personnel sent to assist other jurisdic-
tions will maintain their own supervision and chain of command.
They will accept mission assignments through a supervisor who
will coordinate with the command structure of the requesting
agency. It is anticipated that other jurisdiction's personnel who
respond to requests for assistancefrom Miami will operate the
same way,
Public Information. The various Miami infonnation.officers may
act as spokespersons for their agency, but will take direction and
coordinate with the Emergency Operations Center (EOC) Public
Information section (ESF #14).
Other Issues;
a. The Incident Command System (ICS), will be used to
manage incident sites. The person in charge of an incident
site is identified as the "Incident Commander." The per-
son in charge of the FOC is identified as the "EOC Man-
ager,"
b, At the incident site, if the "command" function is trans-
ferred, there must be both a formal declaration that the
"command" is being transferred, and a formal acceptance
by theperson/agency assuming "command."
c. All Miami departments, divisions will track, compile docu-
mentation of their disaster costs for potential reimburse-
ment from state or federal disaster assistance.
List/detail any operational policies specific to your depart -
merit.
CEMP
April, 2005
III - 35
Concept of Operations
III - 36
Blank Intentionally
City of Miami
CEMP
April, 2005