CITY OF PORTLAND, OREGON

BASIC EMERGENCY OPERATIONS PLAN

PORTLAND OFFICE of EMERGENCY MANAGEMENT

November 2005

City of Portland

Tom Potter

Mayor

November, 2005

Promulgation

To All Bureau Managers:

The City of Portland has made significant progress in developing plans to prepare, mitigate, respond, and recover from, any type of disaster. We are well on our way to becoming a disaster resilient City.

The partnerships between counties, cities, agencies, and disciplines ensure that well trained and equipped first responders are ready to react to any disaster.

The cooperation between the private and public sector has created shared action plans for mitigation measures that will ultimately save lives and property.

Portland’s Citizen Corps Council is formed to engage the populations that might need extra considerations in disaster. Organizational leaders are deciding upon communication linkages that will reach our diverse populations and help us protect our greatest asset, our citizens.

Your leadership and your responsibility to create bureau plans, to promote employee preparedness, to participate in city wide training, exercises and planning sessions, is the key element in institutionalizing emergency management in our City’s development as a disaster resilient City. Through your leadership and involvement, great progress has been made.

Every year we update The Basic Emergency Operations Plan that verifies through resolution, each bureau’s responsibilities, our actions as a City in disasters, and our authorities to act. Title 15, the Emergency Code, outlines the powers of the Mayor and successors; successors who could be responsible to uphold the law and to implement actions necessary to save valuable lives under unfathomable constraints. This Basic Emergency Operations Plan is the backbone of all other plans and annexes that are part of emergency management.

Our City’s all hazard approach to emergency planning joins the Emergency Support Functions necessary to sustain a city under any circumstance and hazard specific annexes into an adaptable and expandable process for implementation during an event. Response plans for specific hazards of snow and ice, flood, wild land urban interface fire, and terrorism outline responsibilities and key actions needed to respond to each of these hazards Emergency Support Functions identify resources that can augment the City’s and can be summoned when needed. Annexes outlining the systems of transportation, communications, medical, water, law enforcement and firefighting are continually updated as lessons are learned and agreements unfold. The Basic Emergency Operations Plan outlines the in depth Comprehensive Emergency Management Plan.

Portland is a great City consisting of valuable assets that we need to cherish, protect and preserve. It is with earnest that I urge Portland’s public servants to set as a priority their personal and family preparedness, their business continuity planning, the continual upgrade of emergency plans and Emergency Support Functions. Our goal is to be a “Disaster Resilient City.”

It is hereby directed that review of this Basic Plan and all emergency responsibilities by all City bureau managers be accomplished annually, or as indicated through plan activation or exercise. Thorough familiarity with this Plan will result in the efficient and effective execution of emergency responsibilities and better service to the citizens of Portland, Oregon.

Government entities complying with this Plan shall not be liable for injury, death, or loss of property except in cases of willful misconduct or gross negligence.

_______________________________________

Tom Potter, MAYOR, CITY OF PORTLAND, OREGON

COMMISSIONERS, CITY OF PORTLAND, OREGON

1)__________________________________________

2)__________________________________________

3)__________________________________________

4)__________________________________________

CITY AUDITOR, CITY OF PORTLAND, OREGON

5)___________________________________________

Basic Emergency Services Plan /Policy Document

TABLE OF CONTENTS

Page

PROMULGATION    2    

TABLE OF CONTENTS    4

PURPOSE            5

DISTRIBUTION LIST    5

FOREWORD    7

DEFINITIONS    7

Levels of Emergency

ASSUMPTIONS    8

Limits to Liability

General

Execution of Operations

CONCEPT OF OPERATIONS    10

General

Incident Command System

Disaster Declaration

ORGANIZATION & ASSIGNMENT OF RESPONSIBILITIES  11

 Chart

 Incident Commander Relative to Disaster

Event EOC Responders

Emergency Response Functions 10minutes to 2weeks

 Emergency Support Functions, Annexes & Updates  

AUTHORITY AND REFERENCES  19

PURPOSE

The purpose of the City of Portland Basic Emergency Operations Plan is to outline the process and policies by which Portland City government operates in a disaster to minimize the adverse effects to life, property, the environment and the community infrastructure from natural, technological and human-caused disasters.

DISTRIBUTION LIST

1.  Mayor

2.  Commissioner #1

3.  Commissioner #2

4.  Commissioner #3

5.  Commissioner #4

6.  Cable Communications & Franchise Management

7.  City Attorney

8.  City Auditor

9.  Development Commission

10.  Development Services

11. Emergency Communications (BOEC)

12. Environmental Services

13. Fire and Rescue

14. Management & Finance

 Financial Services

   Grants Compliance Program

 Human Resources

 Technology Services

   Communications & Networking (ComNet)

 Purchases

 General Services

   Facilities Services

   Fleet Services

   Printing & Distribution

   Risk Management Bureau

14. Housing and Community Development

15. Neighborhood Involvement

16. Parks and Recreation

Urban Forestry

17. Planning Bureau

18. Police Bureau

19. Transportation

Maintenance

 Traffic Systems Management

20. Sustainable Development

22. Water Works

Basic Plan Liaison Distribution

1.  American Medical Response

2.  American Red Cross  

3.  Bonneville Power Administration

4.  Civil Air Patrol

5.  Clackamas County Emergency Management

6.  Clark Regional Emergency Services Agency

7.  Columbia County Emergency Management

8.  Consolidated Emergency Management of Washington County

9.  Federal Bureau of Investigation

10.  Gresham Emergency Management

11.  METRO

12.  Multnomah County Drainage District

13.  Multnomah County Emergency Management

14.  Multnomah County Health

15.  Multnomah County RFPD 30

16.  NW Natural

17.  Oregon Emergency Management

18.  PacifiCorp

19.  Portland General Electric

20.  Portland Public Schools

21.  Port of Portland

22.  Tri-Met

23.  US Army Corps of Engineers

24.  Qwest

25.  US Coast Guard

26.  Veteran Administration Medical Center

FOREWORD

Disaster Organizational Chart

In a disaster the command in control follows the Incident Command System (ICS) as outlined in National Incident Management System (NIMS) and made relevant to Portland through this document.

ORGANIZATION AND ASSIGNMENT OF RESPONSIBILITIES

Title 3 .125 outlines the duties and responsibilities of the Office of Emergency Management, the Mayor, the Disaster Policy Council and the Emergency Management Committee. (An extensive outline is included in the Disaster Policy Guide for Public Officials and in the EOC Activation Guide)

Incident Annexes will be made available to staff for reference of actions and details specific to hazards to the area. Portland has specific Incident Annexes for Wildland Urban Interface Fire, Snow and Ice, Flood, Earthquake and Terrorism. National Response Plan Incident Annexes are made relevant to Portland as a part of the information in the incident annex summary.

Title 15.08 states that “Upon the declaration of a state of emergency, the Mayor shall assume centralized control and shall have authority over all bureaus, departments, and other City offices as among other powers.”  

DEFINITIONS

Levels of Emergency

Level 1 Emergency – Normal Operations achievable by a single bureau assigned and trained to respond such as a police, fire, water or transportation emergency.

Level 2 Emergency – This is determined by the Incident Commander (IC) and could require two or three bureau coordination. The IC could activate the City Emergency Operations Center (EOC) on a limited basis to provide an non-emergency phone bank, enhanced radio communications and the ability to track an ongoing threat to the City or to assist other agencies and/or jurisdictions.

Level 3 Emergency - Is defined by City Code as a Disaster and is Triggered by the imminent threat to the City of wide spread or severe damage, injury or loss of life or property resulting from any natural or person-made cause. This could require a full activation of the Emergency Operations Center. Level 3 Emergency is termed “State of Emergency” and is officially declared by the Mayor or designated City Official in charge.

In the case of a change in the Homeland Security Threat Level, Bureaus will be advised by the Mayor regarding appropriate actions to be taken.

ASSUMPTIONS

Limits to Liability

The Oregon Revised Statutes (401.515) provides that “during the existence of an emergency, the state and any local government, while complying with 401.015 to 401.105, 401.260 to 401.325 and 401.355 to 401.580 or any rule promulgated under those sections, shall not, except in cases of willful misconduct, gross negligence or bad faith, be liable for the death or injury of any person, or damage or loss of property, as a result of this activity.

It is impossible to anticipate all varying factors, which may occur in an emergency situation. This Basic Plan is a guide to approaching emergency situations. No provision in the Basic Plan and its supporting chapters is intended to be mandatory. This plan may be carried out in a flexible manner. This plan should not be interpreted as a guarantee that any specific task will be done in a specific order or that any specific task will be done at all. The Basic Plan represents, what appears to be, at the time of its adoption, an optimal approach to an emergency situation. It does not create a right to rely on the city, its employees, officers or agents to carry out the plan in any particular manner or at all.

Property owners, citizens and visitors should not rely on this plan to assure the operation or availability of any public service. Individual property owners should develop an emergency plan to prevent property damage or loss of life.

Property owners should not rely on this plan to protect their property from damage or destruction. Property owners should develop their own plan for dealing with emergency situations.

Any emergency situation will most likely involve other units of City, County, State or Federal government. Other units of government should not rely on this plan to be implemented.

General

During an emergency, the City will work to maintain and restore any services, which it provides and which it deems to be essential. Pre-designated and trained responders from various City bureaus will staff the City Emergency Operations Center. The Portland Office of Emergency Management will assist the incident command and the responders to accomplish the objectives of the event.

As many resources as the City may deploy to address an emergency situation, it is possible that certain needs will go unmet for some significant time. Therefore, citizens should be prepared to take care of their own needs for at least 72hours.

During an emergency, volunteer organizations and the private sector will respond as set forth in their own emergency plans. Some disasters may be of such magnitude and severity that County, State and/or Federal assistance is required; such assistance may be obtained through the Disaster Declaration Process.

Execution of Operations

The Mayor or successor shall have ultimate responsibility for the resolution of conflicts regarding the application of limited resources to a variety of concurrent emergency situations.

The Mayor’s authority and responsibility is outlined in Title 15 of the City Code. As emergency conditions permit, citizens will be provided with information to assist them in addressing their needs. Such information may be provided by the City’s Public Information Officer (PIO) and/or by use of the Emergency Alert System.

 The authority to operate and staff the Portland EOC will come from the Mayor,

 The Emergency Management Director, an Incident Commander, Chief of the

 Portland Bureau of Fire & Rescue, Chief of the Portland Police Bureau, either

 director in charge of the Water or Maintenance Bureaus, any of their designees

or the staff of the Office of Emergency Management.

 It is the responsibility of POEM to notify appropriate bureaus and offices of both

 the activation and deactivation of the Emergency Operations Center (EOC).

The strategic objectives of the City during an emergency period will be to:

a.  Preserve life.

b.  Stabilize the incident.

c.  Protect community infrastructure.

d.  Minimize property loss.

e.  Restore essential facilities and services.

CONCEPT OF OPERATIONS

General

This Plan is based upon the concept that emergency functions for various bureaus or agencies involved in emergency management will generally parallel normal day-to-day functions. To the extent possible, the same personnel and material resources will be employed in both cases. The resources of all bureaus will be directed to accomplish the objectives established by the disaster’s incident action plan, Incident Commander and through the authority of the Mayor.

Incident Command System (ICS)

Portland will structure its response to and management of a disaster by using the

Incident Command System in alignment with the National Incident Management

System (NIMS) and the National Response Plan.

Disaster Declaration  

The Mayor or next in the line of command may declare a local state of emergency. The effect of the declaration is to authorize the furnishing of aid and assistance. When the emergency has the potential of exceeding local government capability to respond, assistance will be requested from neighboring jurisdictions in accordance with existing mutual aid agreements, from Multnomah County government and in-turn the county will affect a declaration of a state of emergency and request aid from State government (Title 15.04.040). Finally the Federal government will be called upon by the state when all state resources are expended and the state declares a state of emergency. The City declaration requests will be coordinated through the City EOC and the Portland Office of Emergency Management.

ORGANIZATION & ASSIGNMENT OF RESPONSIBILITIES

 Incident Commander Relative to Disaster

The listings here are for Incident Commanders for the various hazards that our community faces.

P = primary U = unified

     Disaster

Bureaus listed as Primary, in the chart above, are responsible for:

1)  Maintaining the plans for the specific disasters

2)  Being the incident command for the operation of the disaster

3)  Working with organizations outside of the City jurisdiction that are involved with response, mitigation, preparation or recovery planning as determined by the disaster.

POEM is responsible for facilitating the development of the plans.

A list of all plans collected is located on pages 17 & 18.

Event EOC Responders

All bureaus listed provide support personnel in any event. Within some sections of the incident command system are personnel especially trained to take the lead or primary role within that section. P= Primary S= Support. Bureaus with their own satellite EOC’s are bolded.

       Incident Command Sections

EMERGENCY RESPONSE FUNCTIONS 10 MIN. TO 2 WEEKS

The Prioritized Bureau Response Functions matrix was amended for terrorism upon advisement of bureau directors and subject matter experts. This matrix was developed to show the activities of each agency in response to terrorist acts within the first 72hours. These are a compilation of the responses to three scenarios, one chemical, one biological and one explosive. Initially the scenario of an earthquake was used to develop the matrix in relation to most City bureaus. Their action in response to a terrorist event would not be much different. Other information is available in the Emergency Operations Center Activation Guide.

  It is understood that the first action within each bureau is to secure family first.

EMERGENCY SUPPORT FUNCTIONS, ANNEXES & UPDATES

The following is the organization of the annexes under support functions. This identifies future planning efforts needed and coordination of City and area agencies in emergency management. Current plans are in a three volume set located at the EOC, POEM and Bureau offices.

This outline of reports is in the process of change due to the development of the National Response Plan and a new methodology of planning practice. The intent is to have one document.

TABLE OF CONTENTS Essential Support Functions (ESF)

AUTHORITY AND REFERENCES

This Plan is issued by the Portland City Council pursuant to the provisions of Chapter 401, Oregon Revised Statutes (ORS); Title 15 City Emergency Code of the City of Portland; The Charter of the City of Portland, Oregon (Chapter 2; Article 1, Section 2-105a, 2-206a,f, g; & Chapter 8, Section 8, 104&105).

The Portland City Council and the Portland Office of Emergency Management, pursuant to the provisions of the City Emergency Code, Resolution __36067_, Oregon Revised Statutes, Chapter 401 and references noted, issue this Plan.

A.  Authority

 1. Oregon Revised Statutes, Chapter 401, 1999 Edition, as amended.

 2. Emergency Code, Title 15 of the Code of the City of Portland, as amended.

3. Chapter 2, Article 1, Section 2-105a of The Charter of the City of Portland, Oregon as amended 1994

4. Chapter 8, Article 1, Section 8-104 & 105 of the Charter of the City of Portland, Oregon as amended 1994

5. Chapter 3.124, 3.125, and 3.126 Portland Office of Emergency Management , Disaster Policy Council and Emergency Management Committee Respectively

B.  References

 1. Federal

     a. Civil Defense Act of 1950 (PL 81-920), as amended.

     Disaster Relief Act of 1974 (PL 93-288), as amended    

b.  Emergency Management & Assistance (Code of Federal

 Regulations – Title 44)

c.  Public Law 93-288 “Robert T Stafford Disaster Relief & Emergency Assistance Act.”  

d. National Response Plan 2004, Department of Homeland      Security

   e. National Incident Management System, HSPD-5  

 2. State

   a. Oregon Emergency Management Plan, 2001, as amended.

     b. 2002 Oregon State Fire Service (annual) Plan as

amended.

   c. Oregon Revised Statutes 401.270

 3. County

a. Multnomah County Emergency Management Plan 2002  

 4. City

     a. Title 15 of the City Code – Emergency Code

b.  Title 14 of the City Code – Law Enforcement

c.  Title 3 of the City Code – Administration

MUTUAL AID

Emergency Management Assistance Compact (EMAC)

Provides legal agreement and standard operating procedures for states to

receive interstate aid in a disaster. Passed through Public Law 104-321

approved 1996

Office of Management & Finance, Communication Division:

Intergovernmental agreement as a multi-agency provider; Agreements with Qwest.

Portland Office of Emergency Management:

Agreements with Liaison Agency members

Bureau of Fire & Rescue:

The Fire Bureau has mutual aid agreements with all neighboring fire departments as well as the State Department of Forestry.

Bureau of Police:

Agreements with 15 law enforcement agencies, City, County, Departments, Port, State & Federal

Policy 631.30 Cooperation with other agencies

File #9894; 1996 empowers law enforcement agencies to request assistance from other units of government listed in the agreement

Bureau of Maintenance:

Written Public Works Cooperation Assistance Agreements with Multnomah Co., Gresham & Multnomah Co. Drainage Districts, State Highway Division, and others.

Bureau of Environmental Services:

Agreements with Consolidated Drainage Districts (MCDD, Peninsula Drainage

District Nos. 1 & 2, and Sandy Drainage District)

Bureau of Water Works:

Agreements with Army Corp of Engineers, Multnomah County Drainage District, water utilities in Oregon and Washington and other public and private sector agreements for the restoration of water service.

Comments and/or Changes

Submit to Patty Rueter

Portland Office of Emergency Management

1001 SW 5^th Ave., Ste. 650

Portland OR 97204

Inter – Office 108/650

Email – prueter@ci.portland.or.us

Phone – 503-823-3809