Santa Rosa Emergency Operations Plan (Draft)

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Revised 8/04/2010

Santa Rosa Emergency Operations Plan (Draft)

August 12, 2011


Emergency Operations Plan

Part 1 – Basic Plan
I: Introduction 1
Supersession 1
II: Policy and Procedures 2
General 2

Command and Authority 2

Declaration of Local Emergency 2

Use of City Employees 2

Santa Rosa Emergency Operations Center (EOC) 3

Public Information and Joint Information System (JIS) 3

Shelter in Place and Evacuation 4

Access Control 4

Communications 4

Other Communications Assets 4

Citizens Organized to Prepare for Emergencies (COPE) 4

Mutual Aid Coordination 5

National Incident Management System 7

Sonoma County/Operation Area Responsibilities (NIMS-SEMS) 7

National Response Framework 8

Organization Flexibility – Modular Organization 9

Management of Personnel Hierarchy of Command/Span-of-Control 9

Mulit-Agency or Inter-Agency Coordination 9

EOC Action Plans 9

Coordination with Field 10

Coordination with Sonoma County Operation Area 10

Peace Officer Powers 10

Use of State Resources 12

Mass Care Facility Inspection/Operations 12

Safety Evaluation 13

Emergency Debris Clearance 13

Route and Utility Recovery 13

Utilization of Volunteers 13

American with Disabilities Act 14

Santa Rosa EOC Organization 15

III: Concept of Operations 16
Preparedness and Pre-Incident Phase 16

Initial Response 16

Extended Response 17

Recovery 18

IV: City Response to Disaster 19
Geographic Response 20
V: Hazards Analysis 23
Matrix of Potential Hazards – Frequency and Severity 23

VI: Continuity of Government 25
Functions/Department – Title/Position 25 Reconstitution of the Governing Body 26

Protection of Vital Records 26

VII: Authorities and Reference 27
VIII: Training and Exercising 27
IX: Glossary of Terms 28
Definitions 28

Functions/Department – Title/Position 30

X: Compendium of Pertinent Authorities and Reference 36
City of Santa Rosa’s Emergency Organization/Function Ordinance 38

Emergency Operations Plan

I – Introduction

The Santa Rosa Emergency Operations Plan (EOP) identifies the City’s emergency planning, organization and response policies and procedures. The plan also addresses the integration and coordination with other governmental levels and special districts as required.

This plan is based on the principles and functions of the California required Standardized Emergency Management System (SEMS), which is based on the FIRESCOPE Incident Command System (ICS), and identifies how the City of Santa Rosa fits in the overall state SEMS structure. In addition, the plan incorporates the additional required elements of the National Incident Management System (NIMS) as directed by Homeland Security Presidential Directive 5, issued February 28, 2003.

This Emergency Operations Plan (EOP) consists of a Basic Plan and Annexes:

  • EOP Basic Plan (Posted on City web page & distributed to staff)

  • Annexes

1. EOC Procedures Manual

2. Hazards Analysis

3. Department Resources Directories

4. Disaster Services for Vulnerable Populations

The Santa Rosa City Council will approve the policies and any updates to the EOP Basic Plan, as needed, and will grant authority to City Staff to update all annexes and other documents outlined in the EOP Basic Plan with the approval of the City Manager.


The plan addresses how the City will respond to extraordinary events or disasters, from preparation through recovery. The responsibilities of each department and EOC position are identified in the EOC Procedures Manual.

The City of Santa Rosa Emergency Operations Plan (EOP) Basic Plan must be approved and adopted by the City Council and signed by the Mayor. The Santa Rosa Emergency Services Coordinator is responsible for reviewing the entire plan on an annual basis and coordinating the revision of the plan with the city departments as required.

Each department director or manager is responsible for reviewing his/her departmental SOPs and checklists on an annual basis and coordinating the revision of the procedures with the Emergency Services Coordinator.

Special districts and the Utility Department and others serving the City of Santa Rosa are responsible for following this plan and developing procedures to fulfill their stated responsibilities. The Santa Rosa Emergency Services Coordinator will be responsible for maintaining a record of all revisions.


This plan is an update to the Santa Rosa Emergency Operations Plan adopted in 1999.

II – Policy and Procedures


The following general policies shall apply to all emergency operations occurring within the City of Santa Rosa. These policies conform with generally accepted practices within the city, county and state.

Command and Authority

The Director of Emergency Services (City Manager) is responsible for the administration, supervision and operations planning of all sections, branches and units of the City’s Emergency Management Organization, as designated in this plan. Daily administration of emergency planning is the responsibility of the Santa Rosa Emergency Services Coordinator position which is assigned by the City Manager and currently filled by the City of Santa Rosa Emergency Preparedness Coordinator who functions under the direction of the General Services Administrator in the Administrative Services Department. Emergency Management Section Chiefs are responsible for the administration, planning and supervision of units in their section and any mutual aid agencies operating within the jurisdiction at their request. Section Chiefs and other appointed representatives or coordinators shall confer with their respective Sonoma County Operational Area coordinators concerning any problem at hand. If an agreement cannot be reached to resolve necessary decisions, the final responsibility shall rest with the Sonoma County Operational Area.

Declaration of Local Emergency

The City Manager has the authority under Chapter 7 of the Santa Rosa City Code to declare the existence of a “Local Emergency” when an event has the potential to threaten life and/or property within the city. The declaration of such an emergency shall be communicated to and ratified by the City Council within 7 days of its issuance. The declaration of a “Local Emergency” shall also be communicated to the Sonoma County Operational Area as soon as possible after its issuance. All mutual aid requests will be coordinated from the Santa Rosa Emergency Management Organization through the Sonoma County Operational Area as required under SEMS.

Use of City Employees

Under the guidelines of California Government Code 3100, all city employees are designated Disaster Service Workers and as such are response personnel in the event of a disaster or emergency. Government Code 3100 states that the protection of the health and safety and preservation of the lives and property of the people of the State of California is of paramount importance requiring the responsible efforts of public and private agencies and individual citizens. As Disaster Service Workers, city employees are subject to such disaster service activities as may be assigned to them by their superiors or by law. (Stats. 1950 3d Ex. Sess., Ch. 7, as amended by Stats. 1971, Ch 38)

The city may use resources at hand during a declared emergency. However, each Section Chief and unit is encouraged to recruit and train permanent volunteers to supplement and support city emergency functions. Each section, unit, or department will be responsible for providing identification for these individuals once they are trained and certified by the responsible section, unit or department.

Reserves, activated retirees and auxiliary personnel should be used for low risk duties, i.e. security, traffic control, clerical and other similar duties, unless specifically trained and certifiedby the respective departments or Section Chiefs for particular functions. Security Patrols will be maintained in evacuated areas when feasible. Appropriate precautions will be taken to protect personnel from potential hazards. Only duty sworn or deputized personnel with appropriate training will be used for purely law enforcement activities.

Santa Rosa Emergency Operations Center (EOC)

The City of Santa Rosa will maintain and activate, as needed, an Emergency Operations Center to coordinate resources and make community policy decisions during declared local emergencies. These events would include earthquake, flood, fires, public health emergencies and terrorist incidents where a declaration of a “Local Emergency” has been made to protect life and property. The primary City of Santa Rosa Emergency Operations Center (EOC) is located at the Finley Community Center, 2060 West College Avenue. The EOC is equipped with phones and administrative supplies that will be set up by members of the Emergency Management Organization once a decision to activate the EOC has been made. Amateur and two-way radios will be utilized to communicate with Fire District Stations and field supervisors.

The City Manager, as the Director of Emergency Services by our local ordinance, will be the EOC Manager and head of the EOC Management Section. They will be supported under the Incident Command System (ICS) by the Operations Section, Planning Section, Logistics Section and the Finance and Administration Section to set policy and carry out emergency operations to serve the citizens and residents of Santa Rosa during response and recovery following any major emergency. The Emergency Management Organization will include all city departments and agencies and is consistent with the California Standardized Emergency Management System (SEMS) and the National Incident Management System (NIMS).

In the event that the Finley Center is not usable as an EOC, alternate facilities are available at the Transit Training Facility at 55 Stony Point Road. If that facility is not usable, a decision will be made by the EOC Management Group to utilize other city properties or to set up an EOC at another location as needed. All city departments and agencies will cooperate with the establishment and operations of the city EOC.

Public Information & Joint Information System (JIS)

The City of Santa Rosa Public Information Officer (PIO) and staff will serve the EOC Manager, EOC Management Group and other sections of the EOC to handle public information and media relations for the staff. Press releases will be coordinated with all city EOC Staff for timeliness and accuracy of information and will be approved by the EOC Manager prior to release. In large incidents, the PIO will also coordinate public information with the County PIO Office. In accordance with the NIMS provisions for the Joint Information System (JIS), the Sonoma County Operational Area EOC will serve as the Joint Information Center (JIC) for all of Sonoma County. PIOs from all jurisdictions will coordinate their press information and releases with the Operational Area PIO Staff prior to release to make sure that all jurisdictions have a coordinated and accurate message to the public. Copies of all press information & releases will be sent to the Operational Area PIO Staff. If necessary, the City of Santa Rosa may send a PIO to work in the Operational Area JIC to represent city matters and participate in press conferences as needed. Courtesy copies of press information and releases may be sent to other cities, special districts and select private sector partners as deemed necessary for the specific incident.

Shelter in Place and Evacuation

Shelter in Place

In a chemical spill or release of other harmful materials, a decision may be made by the Field Incident Commander(s) to have residents Shelter in Place. This involves remaining in homes, schools and commercial buildings, and shutting off all outside air intakes until the airborne release has passed by and has dissipated to safe levels. Residents will be advised by local media broadcasts when it is safe to go outdoors. The Emergency Operations Center, if activated, will assist field operations with manpower, equipment, public information and other support as needed.


If evacuation is ordered by the Field Incident Commander(s), priority shall be directed to relocating citizens from risk area(s) to facilities located in safe areas. Law Enforcement will handle evacuation details, supported by Fire, Public Works, Transit and other resources as necessary. Residents will be advised by local media broadcasts about the details of the evacuation. The Emergency Operations Center (EOC), if activated, will assist field operations with manpower, equipment, public information and other support as needed.

Access Control

If access control is established to facilitate perimeter control, public evacuation or return from/to an affected area, control points will be established by Law Enforcement to ensure that only authorized personnel are permitted to enter, pass through, or remain within the controlled areas. Provisions of Section 409.5 of the Penal Code as it applies to the closure of a disaster area, exclusion of individuals from entering a closed area and the permissive entry into a disaster area by the media, shall govern the access control operations.


Fire agencies share common frequencies and police have tactical frequencies for communicating with other departments within the county and state. The City of Santa Rosa EOC has radios to access agencies operating in the field. The EOC also has ACS Amateur Radio capabilities and Sonoma County Operational Area Low Band Radio to communicate with the County EOC. Fire Stations have ACS Amateur Radio capabilities as well. Law Enforcement and Fire have Command Post Vehicles with multiple channel radio capabilities to increase interoperability from the field to the EOC as well as with other agencies.

Other Communications Assets

Transit, Public Works, and Utilities radio frequencies are operated independently of other radio frequencies. The City EOC Communications section can communicate with all radio nets and may take control as needed. The City EOC may require realignment of frequencies to accommodate communication needs of other agencies.

Citizen Participation (COPE Program)

Citizens Organized to Prepare for Emergencies is a program established in the City of Santa Rosa to encourage family, neighborhood, and community preparedness for emergencies such as earthquake, fire, flood and other events that can affect the community. COPE trains individuals and families to be on their own after an emergency. COPE also educates participants to have food, water, tools and medical supplies to help family and neighbors survive even if electric, gas, water, phones and other utilities are disrupted for long periods. COPE Leaders will also support the City of Santa Rosa by doing damage assessments of each participating neighborhood and passing that information up to each Fire District Station where a COPE District Coordinator or designee will transmit the information to the City of Santa Rosa EOC by amateur radio. COPE Communicators will assist the District Coordinators in this task.

COPE participants who have determined that their neighborhoods are fine and being adequately cared for may volunteer to assist with parts of the city that are hardest hit by the emergency. They will be given instructions on local radio and other media on where to report to assist the community in response and recovery operations. Information on the COPE Program can be found at the City of Santa Rosa web page at

COPE includes many special needs individuals, senior populations, ethnic groups, families, local businesses, as well as faith-based, special needs, including the deaf community, and other community groups - all cooperating to help the city and community to respond to and recover from a major emergency event.

Current Mutual Aid Systems

Emergency service organizations are currently organized through a state-wide system. This includes police, fire, public works (engineering and construction) and other specialty functions.

Coordination of mutual aid support will be accomplished through established channels. The City EOC is responsible for processing and tracking all requests. Department Operation Centers (DOCs) are required to maintain their own records and to keep the City’s EOC informed.

City departments, sections, or units requesting mutual aid will assign a liaison officer to coordinate the arrival, assignment, operations and support of any mutual aid personnel. The city will assume responsibility for the support of mutual aid personnel and their equipment.

The California Mutual Aid System Under SEMS and NIMS

Requests for a mutual aid shall include the following information (as applicable):

  • Reason for request

  • Specific quantity of resources required, and type

  • Number of personnel needed

  • Reporting time and location

  • Name of the authority to whom they report

  • Access routes

  • Estimated duration of operations

In events where the County EOC is activated to support cities, all mutual aid will be requested and provided through the Sonoma County Operational Area in accordance with the mutual aid plan. The Operational Area EOC will coordinate resources outside of Sonoma County through the California Emergency Management Agency Master Mutual Aid Plan which is a part of SEMS. The California EMA regional EOC is located in Oakland and the State EOC is in Sacramento.

National Incident Management System (NIMS)

In response to the September 11th 2001 attacks on the World Trade Center in New York City, the Pentagon and Flight 93, President Bush, issued Homeland Security Presidential Directive-5. Released on February 28, 2003, HSPD-5 directed the Secretary of Homeland Security to develop and administer a National Incident Management System (NIMS). In September 2004, Department of Homeland Security (DHS) Secretary Ridge sent an official policy letter to all state Governors outlining the content and implementation strategy for NIMS. All states and political subdivisions are required to adopt and implement NIMS in FFY2006 and FFY2007. NIMS includes the following components:

  • Command and Management, including the Incident Command System (ICS)

  • Communications and Information Management

  • Preparedness

  • Resource Management

  • Supporting Technologies

  • Joint Information System (JIS)

  • NIMS Management and Maintenance

NIMS guidance produced by DHS is based in part on the California SEMS model. DHS acknowledges that California is the most NIMS compliant state in the nation. Through executive order S-2-05, The Governor ordered OES to provide guidance to counties, cities, and all response agencies on how to modify SEMS to comply with the requirements of NIMS. Sonoma County will follow guidance from OES as it is developed and implemented.

Sonoma County/Op Area Responsibilities under SEMS & NIMS

The cities and special districts participate in the Sonoma Op Area emergency management organization and system for coordination and communication within the operational area through a Joint Powers Agreement (JPA). The implementation of SEMS & NIMS is a cooperative effort of all departments and agencies within the County, cities, and special districts that have an emergency response role. The Department of Emergency Services - Emergency Management Division has the lead responsibility for SEMS & NIMS implementation and planning with responsibilities for:

  • Communicating information within the County/Op Area on SEMS & NIMS requirements and guidelines

  • Coordinating SEMS & NIMS training and development among departments and agencies

  • Institutionalizing the Incident Command System (ICS) into the EOP and field operations

  • Complete a National Incident Management Capability Assessment Support Tool (NIMCAST) baseline survey and submit to OES & DHS (completed April 2006)

  • Incorporating NIMS requirements into the EOP and County Code with adoption by the County Board of Supervisors

  • Identification of all departments and agencies involved in field level response

  • Identification of departments and agencies with Department Operations Center (DOC)

  • Coordinating with local governments, County/Op Area and volunteer and private agencies on development and implementation of SEMS & NIMS

  • Identification of special districts that operate or provide services within the County/Op Area. Determining the emergency role of these districts and making provisions for coordination during emergencies

  • Identification of local volunteer and private agencies that have an emergency response role. Determining their emergency role and making provisions for coordination during emergencies

All local government, County/Op Area staff who may work in the EOC, in a Department Operations Center (DOC) or at the field level will receive appropriate SEMS/NIMS/ICS training as recommended by the Department of Homeland Security. New personnel will be trained as they are hired. To validate preparedness and planning efforts, local governments will develop an exercise program that provides periodic exercises for EOC and DOC personnel under SEMS/NIMS/ICS guidelines.

Members of the Sonoma County Operational Area Emergency Coordinators’ Forum are responsible for the overall documentation of SEMS/NIMS/ICS training in the cities and special districts. Under the guidance issued by the Governor’s Office of Emergency Services, NIMS training and self-certification of personnel is the responsibility of individual Law, Fire, EMS, Public Works and others.

National Response Framework (NRF) Integration with the Emergency Operations Plan

The National Response Framework (NRF) is built upon the premise that incidents are typically handled at the lowest jurisdictional level. In the vast majority of incidents, State and local resources and interstate mutual aid will provide the first line of emergency response and incident management support. When State resources and capabilities are overwhelmed, Governors may request Federal assistance. The NRF provides the framework for Federal interaction with State, local, tribal, private sector and nongovernmental entities in the context of domestic incident management to ensure timely and effective Federal support.

The NRF is the core operational plan for national incident management, and establishes national-level coordinating structures, processes, and protocols that will be incorporated into certain existing Federal interagency incident- or hazard-specific plans. The NRF facilitates coordination among tribal, local, State, and Federal governments and the private sector without impinging on any group’s jurisdiction or restricting the ability of those entities to do their job. The NPF does not alter or impede the ability of first responders to carry out their specific authorities or perform their responsibilities.
The NRF and National Incident Management System (NIMS) are companion documents designed to improve the Nation’s incident management capabilities and overall efficiency. Use of NIMS enables Federal, State, local, and tribal governments and private-sector and nongovernmental organizations to work together effectively and efficiently to prevent, prepare for, respond to, and recover from actual or potential domestic incidents regardless of cause, size, or complexity. Together, the NRF, EOP, NIMS and SEMS integrate the capabilities and resources of various governmental jurisdictions, incident management and emergency response disciplines, non-governmental organizations, and the private sector into a cohesive, coordinated, and seamless national framework for domestic incident management.
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