10-419Council File# 10-419
Green Sheet # 3107876
RESOLIJTlON
�ITY �OF
� n n
�AUL, MINNESO�A
Presented by
0
1 WHEREAS, Chapter 13 of the City Code of Ordinances establishes the Department of Emergency
2 Management and outlines Yhe responsibilities of the Department and Director; and
3
4 VJIIEREAS, one of those responsibilities is that "The Director shall prepare a comprehensive
5 general plan for emergency management activities with the city that addresses all phases of emergency and
6 disaster management..." (Sec 13.04 (c)), (Ch.9, Sec. 9A.02); and
7
8 WHEREAS, additional State and Federal Laws and Regulations require the City to have a
9 comprehensive Emergency Operations Plan in place; and
10
11 WF3EREAS, The Deparhnent of Emergency Management has created the 2010 Emergency
12 Operafions Plan (EOP) and supplements; and
13
14 WHEREAS, The Emergency Operations Plan has been reviewed by the appropriate local, regional,
15 and state entities and has been found to be in compliance with the state and federal planning requirements;
16
17 NOW THEREFORE BE IT RESOLVED, that the City Council of the City of Saint Paul approves
18 and adopts the 2010 Emergency Operations Plan and Supplements as the official Emergency Operations
19 Plan for the City of Saint Paul.
20
Bosffom
Carter
Stark
Adopted by Council: Date
Adoption Certified by Co il Secretary
By: n� / �d
Approv by Date �3 Z{'j _
By:
Requested by Department of.
By:
Approved b e O of Financial Services
By:
Approved by City Attorne,y
� l� By: l,�/SGi_ ,!� .
—�
Approved by Mayor for Submission to CouncIl
B ��� y�3 �o
10-41
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DepartmenUOfFce�Council: Date Initiated:
EM—EmergencyManagement �APR2010 Green Sheet NO: 3107876
Contad Person S Phone- Department Sent To Person Initial/Date
RiCk LB�kin 0 me enc Man emeot 0
26FYS49� 1 me encvMao ement De artmentDirector �,.
Assign 2 ' Attofn¢ C5 Attor11 __�_�_
Must Be on Council Agenda by (Date): Number
28-APR-10 For 3 a or's OSce Ma or/ASSistant
Routing 4 ooncil Ci Cooncil
Doa Type: RESOLUTION Order 5 ' Clerk Cti Clerk
E-Document Required: Y
Document ConWCt:
Contact Phone:
Total # of Signature Pages _(Clip All Locatio�s for Signature)
Action Requested:
Adopting the 2010 Emecgency Operations PIan and Supplements as the official Emergency Operations Plan for the City of Saint Paul
Recommendations: Approve (A) or Reject (R): Personal Service Contracts Must Answer the Following Questions:
Planning Commission t. Has this person/firm ever worked under a contract for this department?
CIB Committee Yes No
Civil Service Commission 2. Has this personffirm ever been a city employee?
Yes No
3. Does this person/firm possess a skill not nortnally possessed by any
curtent city employee?
Yes No
Explain all yes answers on separote sheet and attxfi to gree� sheet.
Initiating Problem, Issues, Opportunity (Who, What, When, Where, Why):
Advantages If Approved:
Disadvantages If Approved:
DisadvanWges If NotApproved:
ToW I Amount of
Transaction: CostlRevenue Budgeted:
Funding Source: Activity Number:
Financial Information:
(Explain)
April 22, 2010 12:54 PM Page 1
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CITY OF SAINT PAUL
EMERGENCY OPERATIONS PLAN
Basic Pian
Overview
Basic Plan
The Saint Paul Emergency Operations Plan (EOP) is designed to address
natural and man made hazards that could adversely affect the City and considers
ali relevant hazards as identified in the Saint Paul Hazard Analysis. The EOP
applies to all city government departments and agencies that are tasked to
provide assistance in a disaster or emergency situation. It describes the
fundamental policies, strategies, and general concepts of operations to be used
in control of the emergency from its onset through the recovery phase.
The City of Saint Paul has adopted the National Incident Management System
(NIMS). NIM lends itself to integrate the capabilities and resources of various
jurisdictions, incident management and emergency response disciplines, non
governmentai organizations and the private sector into a cohesive, coordinated
and seamless framework for incident managemeni. Consistent with the model
provided in the NIMS, the EOP can be partially or fully activated in the context of
the threat, anticipation of a significant event, or the response to a significant
event. Selective impiementation through the activation of one or more of the
plans components allows for maximum flexibility in meeting the unique
operational and information sharing requirements of the situation and enables
effective interaction between various city and non city entities.
The EOP is an all hazard plan that address evacuations, sheltering, post disaster
response and recovery; deployment of resources; communications, and warning
systems. The EOP also defines the responsibilities of city departments and
volunteer organizations.
The EOP describes the basic strategies, assumptions and mechanisms through
which the City of Saint Paul will mobilize resources and conduct activities to
guide and support city emergency management efforts through preparedness,
response, recovery and mitigation. To facilitate effective operations the EOP
adopts a functional approach that groups types of assistance to be provided into
17 Emergency Support Functions (ESF). The 17 EOP — ESF s mirror the
National Response Plan (NRP).
The Basic Pian provides an overview of emergency organization and polices. li
describes the overall approach to disaster response, recovery operations and
assigns responsibilities for emergency tasks. The ESFs detail the organization,
roles and responsibilities of city and cooperating agencies for coordinating
emergency response and recovery efforts. Special Incident Annexes are
designed for those emergency response and recovery activities unique to a
particular hazard.
The document has been developed as a guide for emergency operations during
a disaster, not for day-to-day actions. It is understood that events might take
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place that would make it impossible and not advisable to proceed in a manner
that would jeopardize tives and property at the expense of this document. It is
further understood that individuals who have responsibilities within this plan must
have the freedom to augment those actions that in their best judgment, will
neutralize and bring the situation back to normalcy using resources that are
available within the time frame of pre-emergency, warnings, emergency
response and recovery.
Each ESF is coordinated by a Primary agency or organization, which has been
selected based on authorities, resources, and capabilities in that functional area.
The primary agency appoints an emergency representative to manage that
function in the Saint Paul Emergency Operations Center (EOC).
Introduction
The City of Saint Paul is the second most populated city in Minnesota and the
home of the state capitol. In addition, it is the only city of the first class in the
most densely populated county in the state. This plan is above all, intended to
serve the citizens of Saint Paul. Its framework is intended to account for
resources and procedures which will allow for the effective response to an
emergency or disaster. Its foundation lies in that city departments must respond
in a coordinated fashion, and in special cases, have to coordinate response and
recovery with state and federal agencies.
Reason for Plan
The City of Saint Paul is subject to natural disasters such as tornadoes, floods,
and blizzards. In addition, other disasters such as train and/or plane mishaps,
explosions, infectious disease outbreaks, release of hazardous materials, and
foreign or domestic terrorism are constant concerns. An emergency plan is
needed to articulate the management of a given emergency or disaster.
Purpose of Plan
The EOP describes the basic strategies and mechanisms through which the City
of Saint Paul will coordinate resources and provide policy measures to guide and
support emergency management efforts. The EOP is designed to coordinate
resources to:
• Sustain life and property
• Effectively respond to an emergency of disaster
• Ensure the continuity of government
• Ensure the continuity of city seroices
The Saint Paul EOP using the National Incident Management System (NIMS),
establishes a framework for an effective system of comprehensive emergency
management.
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Scope and Applicability
The EOP covers a full range of complex and constantly changing requirements in
anticipation of, or in response to threats and acts of terrorism, major disasters,
and other emergencies. The EOP also provides the basis to initiate long-term
community recovery and mitigation activities.
The EOP
• Establishes policies, program strategies, and assumptions for a city-wide
comprehensive emergency management program.
• Establishes a method of operations that spans the direction and control of
an emergency from initial response through recovery and mitigation
• Assigns specific functions to appropriate departments, agencies and
organizations, as well as outfines methods to coordinate with private
sector and vofuntary agencies.
• Identifies the actions that the City of Saint Paul will initiate, in coordination
with the county and the state as appropriate, regardless the size of the
disaster.
Incident Management Activities
The EOP addresses the full spectrum of activities related to incident
management, including prevention, preparedness, response, and recovery
actions. The EOP focuses on those activities that are directly related to an
evolving incident or potential incident rather than the preparedness or readiness
activities conducted in the absence of a specific threat or hazard.
It is in the best interest of those agencies with responsibilities associated with this
plan have the freedom to augment those actions that, in their best judgment, will
neutralize a situation and bring it back to a state of normafcy. Cooperation
between response agencies both within the city and the outside the city is
essential, therefore it is necessary the use and functions of the Incident
Command System (ICS) is used by all agencies with responsibilities within this
plan.
Authorities
Various statutory authorities, regulations, resolutions and policies provide the
basis for actions and activities in the context of local emergency management.
Nothing in the EOP alters the existing authorities of individual departments and
agencies. The EOP establishes the coordinating structures, processes, and
protocols required to integrate the specific statutory and policy authorities of
various loca�, state, and federal agencies in a collective framework for action to
include mitigation, preparedness, response, and recovery activities.
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Local
• St. Paul City Code, Chapter 13, Emergency Management
State
• Minnesota Statutes Chapter 12, Emergency Management, as amended
• Minnesota Statutes Chapter 299K.05, Local Emergency Plan
• Minnesota Statutes Chapter 299J, Pipeline Safety Act
• Minnesota Statutes Chapter 299K, Emergency Planning; Community
Right-to-Know Act
Federal
• National Response Framework
• Homeland Security Presidential Directive 5
• Homeland Security Presidential Directive 8- National Preparedness.
• Homeland Security Act of 2002, Public Law 107-296, 116 Stat.
• Robert T. Stafford Disaster Relief and Emergency Assistance Act of 1988,
as amended, 42 U.S.C., Public Law 93-288 as amended by Public Law
100-707 -
• Emergency Management and Assistance, 44 C.F.R., Chapter 1-(Oct. 1,
1992).
• Emergency Planning and Community Right-to-Know Act of 1986 -(Public
Law 99-499, October 17, 1986), Title III of the Superfund Amendments &
Reauthorization Act (SARA)
Situations
Depending on the severity of the hazard/disaster the residents, population,
business, and economic characteristics of the city can be affected in a variety of
ways.
Characteristics — the following are the general characteristics of the City of Saint
Paul. These characteristics are divided into three main categories: geographic,
demographic, and economic.
Geographic —
The City of Saint Paul is a part of one of the major metropolitan areas in
the United States. It is the largest city in the most densely populated
county in the state. As of 2002 the City of Saint Paul estimates the
approximate population at 288,000, contained in 56.2 square miles, of
which 52.8 are land and 3.4 are water. The lowest elevation is 692 feet
above sea level and the highest point is 1,107 feet above sea level.
The City is located along the Mississippi River, which runs along the
City's southern and western borders. A vibrant downtown and the state
capitol area are the anchors of the City of Saint Paul. In addition, Saint
Paul is a city of strong, well-known neighborhoods, including Summit,
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Payne-Phalen, and Como, each with its own character and community
organizations. Individual characteristics such as the numerous bluffs
running along the Miss+ssippi River, lakes, and parks add to the
dynamic geographical nature of the City of Saint Paul.
In addition, natural accents such as Harriet Island, which hosts numerous
events throughout the year and serves as a recreational destination to
people throughout the region. Furthermore, the City is dotted with a
number of caves and tunnels, which unfortunately have become extremely
dangerous in recent years.
2. Demographic —
The population of Saint Paul is quite diverse in age and ethnicity, and
grew at a modest rate of about 5.5% throughout the 1990's. Details of
demographics, demographic trends, ethnicity, housing and housing costs,
education, jobs, and income levels can be obtained from the Wilder
Research Center. A succinct report from that organization can be viewed
by clicking the link below:
The City of Saint Paul's total population has increased by 5.5% (rom 1980-
2000. With this increase and the projection of future increases,
particularly with ethnic and aging populations, the City of Saint Paul faces
great planning challenges in housing, development, public safety, and
transportation.
Baby Boomers
The population is growing older as the baby boomers age. This will result
in changes in housing, the workforce, and health care. According to the
Minnesota State Demographic Center, Minnesota's older population is
projected to grow rapidly in coming decades as members of the baby
boom generation pass their 65� birthdays. By 2015 there will be almost
800,000 elderly Minnesotans, and by 2025 more than 1 million, according
to State Demographic Center projections.
The City of Saint Paul currently has 29,647 persons over the age of 65 in
its populace. The elderly account for roughly 10 percent of the population,
and as stated above, the size of the elderly population will most likely
increase in the future.
Ethnic Population
In the last 30 years there has been a Iarge increase in immigrant
populations. These recent non-English-speaking residents present a
chaNenge; they, too must be provided with City services, notified of any
emergency and told what protective action to take.
As of the 2000 census, non-native born Saint Paul residents totaled
41,138. This accounts for approximately 14 percent of the populace. Of
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the 41,138 persons of non-native origin, according to the United States
Census, 31,346 of those persons speak English less than very well.
Assumptions
A disaster can occur with little or no warning, causing significant loss of life,
environmental and economic damage.
Local resources, available through public, private, volunteer and commercial
means will be utilized first. State and Federal support will augment ongoing
disaster operations. Local jurisdictions will enter into mutual aid agreements with
each other as necessary to use the most effectively their resources in response
to emergencies and disasters.
incident management activities will be initiated and conducted using the
principals contained within the National Incident Management System (NIMS).
Unconventional hazards require unprecedented response measures. Such
threats call for the deployment of more specific operational plans, which will
compliment the policies established in this plan.
Many resources needed are ava+lable IocaAy; however, shortfalls many dictate
the coordination of outside resources through the City of Saint Paul's Department
of Emergency Management. The principles and polices of NIMS will be adopted
in the city's emergency plan, and will be demonstrated through plan exercise
activities.
Roles and Responsibilities
City Government
The Saint Paul Department of Emergency Management is responsible for the
establishment, maintenance, and administration of a comprehensive emergency
management and homeland security program within the city. The Department of
Emergency Management conducts emergency operations according to
established plans and procedures to include:
• Maintain and emergency management program at the city level involving
all government, private and volunteer organizations which have
responsibilities in the comprehensive emergency management system
within the city.
• Coordinate the emergency management need of all departments wfthin
the city and work to establish mutual aid agreements to render emergency
assistance.
• Implement a broad-based public awareness, education and information
program designed to reach all citizens of the city, including those needing
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special media formats, non-English speaking, and those with hearing
impairment or loss.
• Execute mutual aid agreements within the city and state for reciprocal
emergency aid and assistance in the event of a situation beyond the city's
capability.
• Maintain and emergency management program that is designed to avoid,
reduce and mitigate the effects of hazards through the enforcement of
policies, standards and regulations.
• Maintain cost and expenditure reports associated with disasters, included
resources mobilized as a result of mutuai aid agreements.
• Assist in the coordination of pubtic information activities during an
emergency.
• Assist in the development and maintenance of procedures to receive and
shelter persons evacuating within the political jurisdiction and those
persons evacuating from outside into our jurisdiction with assistance from
MN VOAD.
• Ensure the city's ability to maintain and operate an 24-hour warning point
with the capability of warning the public.
The City of Saint Paul's disaster response resources are organized into ESFs.
Each ESF is comprised of numerous agencies/departments that manage and
coordinate specific categories of assistance common to all disaster/emergency
events. A primary agency/organization has been designated for each ESF to
ensure the coordination and delivery of good and servfces to the disaster area or
event.
The ESFs provide the structure for coordinating interagency support for both
man-made and naturai occurring disasters/emergencies. The following is a brief
sample of the purpose of each ESF. May or may not be limited to the items
listed.
ESF 1: Transporiation
1. Aviation/airspace management and control
2. Transportation Safety
3. Restorationfrecovery of transportation infrastructure
4. Movement restrictions
5. Damage and impact assessment
ESF 2: Communications
1. Coordination with telecommunications and information technology
industries
2. Restoration and repair of telecommunications infrastructure
3. Protection, restoration, and sustainment of cyber and information
technology resources.
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Basic Plan
ESF 3: Public Works and Engineering
1. Infrastructure protection and emergency repair
2. Infrastructure restoration
3. Engineering services and construction management
4. Emergency contracting support of life-saving and life-sustaining services
ESF 4: Firefighting
1. Support to wildland, rural, and urban firefighting operations
ESF 5: Emergency Management
1. Coordination of incident management and response efforts
2. issuance of mission assignments
3. Resource and human capital
4. Incident action plan
5. Financial Management
ESF 6: Mass Care, Housing and Human Services
1. Mass Care
2. Emergency Assistance
3. Disaster Housing
4. Ffuman Services
ESF 7: Logistics Management and Resource Support
1, lncident Logistics planning, management and sustainment capability
2. Resource support (facility space, office equipment and supplies,
contracting services, etc)
ESF 8: Public Health and Medical Services
1. Public health
2. Medical
3. Mental health services
4. Mass fatality management
ESF 9: Search and Rescue
1. Life-saving assistance
2. Search and Rescue operations
ESF 10: Oil and Hazardous Materials Response
1. Oil and hazardous materials (chemical, biological, radiological, etc)
response
2. Environmental short and long term clean-up
ESF 77: Agriculture and Natural Resources
1. Nutrition assistance
2. Animal and pfant disease and pest response
3. Food safety and security
4. Natural and cultural resources and historic properties protection and
restoration
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5. Safety and well being of household pets
ESF 12: Energy
1. Energy infrastructure assessment, repair, and restoration
2. Energy industry utilities coordination
3. Energy forecasting
ESF 13: Public Safety and Security
1. Facility and resource security
2. Security planning and technical resource assistance
3. Public safety and security support
4. Support to access, traffic, and crowd control
Basic Plan
ESF 14: Long-term Community Recovery
1. Social and economic community impact assistance
2. Long-term community recovery assistance to local and private sector
participants
3. Analysis and review of mitigation program implementation
ESF 15: External Communications
1. Emergency public information and proteCtive action guidelines
2. Media and community relations
State Government
As the State's Chief Executive, the Governor is responsible for the public safety
and welfare of the people of the State of Minnesota. The Governor:
• Is responsible for coordinating State resources to address the full
spectrum of actions to prevent, prepare for, respond to, and recover from
incidents in an all-hazards context to include terrorism, natural disasters,
accidents, and other contingencies
• Under a Governor's declaration has powers to make, amend, and rescind
orders and regufations
• Provides leadership and plays a key role in c communicating to the public
and in helping people, businesses, and organizations cope with the
consequences of any type of declared emergency within State jurisdiction
• Encourages participation in mutual aid and implements authorities for the
State to enter into mutual aid agreements with other States, tribes, and
territories to facilitate resource-sharing
• Is the Commander-in-Chief of State military forces (National Guard when
in State Active Duty or Title 32 Status and the authorized State militias)
• Requests Federal assistance when it becomes clear that State or tribal
capabilities will be insufficient or have been exceeded or exhausted.
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Non-governmental and Volunteer Organizations
Non-governmental organization (NGOs) collaborate with first responders,
governments at all levels, and other agenc+es and organizations providing relief
services to susiain life, reduce physical and emotional distress, and promote
recovery of disaster victims when assistance is not available from other sources.
For example, the American Red Cross is an NGO that provides relief at the local
level and also coordinates the Mass Care element of ESF #6 at both the state
and federal level. Community-based organizations receive government funding to
provide essential public health services.
Federal Government
The federal government is responsible to:
• Provide emergency response on federally owned or controlled property,
such as military installations and federal prisons
• Provide federal assistance as directed by the President of the United
States under the coordination of the DHS, FEMA and in accordance with
federal emergency plans
• Identify and coordinate provision of assistance under other federal
statutory authorities
• Provide assistance to the state and local governments for response to and
recovery from a commercial radiological incident consistent with
guidelines as established in the current Federal Radiological Emergency
Response Plan and the National Response Plan (NRP)
• Manage and resolve all issues pertaining to a mass influx of illegal aliens
• Provide repatriation assistance to U.S. citizens evacuated from overseas
areas.
Private Sector
Primary and support agencies coordinate with the private sector to effectively
share information, form courses of action, and incorporate available resources to
prevent, prepare for, respond to, and recover from disasters and emergencies.
The roles, responsibilities, and participation of the private sector during an
emergency vary based on the nature of the organization and the type and impact
of the incident. Certain organizations are required by existing law and regulation
to bear the cost of planning and response to incidents, regardless of cause.
Unless the response role is inherently governmental (e.g., law enforcement, etc.),
private-sector organizations are encouraged to develop and maintain capabilities
to respond to and manage a complete spectrum of incidents and emergencies.
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Citizen Involvemeni
Strong partnerships with citizen groups and organizations provide support for
incident management prevention, preparedness, response, recovery, and
mitigation.
Concepts of Operations
Normal Operations
In natural disasters, the magnitude of the impact and depletion of resources at
each level of government trigger outside assistance. Local emergency
responders, with state support, carry out initial response to most emergencies
only as local resources become taxed. However, threats such as use of
biological agents or Foreign Animal Disease will trigger state and federal
response measures from the earliest possible phase, in order to control
dissemination and take appropriate eradication measures.
Emergency Operations
The Concept of Operations tocuses on afl policies that impact the management
of the overall disaster response and recovery efforts, the coordination of
response actions and the allocation of resources to return the situation to a state
of normalcy (or as close as possibie). As the framework for the management of
the disaster operations, this portion of the plan promotes the integration of all
response organizations (internal and external) into a command structure capable
of adapting to the magnitude of the situation.
Paramount to all other considerations is the fact that policies are set by elected
officials who have the ultimate responsibility for the safety and welfare of the
citizens of the City of Saint Paul. Based on the severity and magnitude of the
situation, the Mayor of Saint Paul may issue an Emergency Declaration for the
city.
The mechanics of response to any incident are set by the standard operating
procedures of the responding agencies. Critical to these efforts is the use of the
Incident Command System (ICS) that provides a standardized means to
command, control and coordinate the use of resources and personnel at the
scene of emergencies/disasters.
Incident Command System
The principles of the Incident Command System (ICS) and the National Incident
Management System (NIMS) will be used to guide and coordinate activities at
the disaster scene. The EOC will organize using ICS and NIMS principles in
support of field operations. Using the Incident Command System (ICS), there are
five functional sections as follows: (CFLOP)
• Command Section
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• Finance and Administration Section
• Logistics Section
• Operations Section
• Planning Section
Coordination, Direction and Control
City Level
In case of an emergency/disaster situation, the Saint Paul Department of
Emergency Management Department is the acting authorized department of the
City of Saint Paul Mayor wiil coordinate emergency response and recovery
effoRs within the political jurisdictions of the city.
The Incident Command System (ICS) and tVational Incident Management
System (NIMS) will be used to coordinate emergency response and recovery
operations at the disaster scene(s). The ICS/NIMS organization will maintain
open communications and close coordination with the EOC at all times.
To the extent possible, ail tactical and operational decisions will be made in the
field within an ICSlNIMS structure, while policy and coordination functions will be
accomplished from the EOC.
The ICS/NIMS provides a framework designed to standardize incident
management for all types of hazards and across all levels of government. If used
effectively, it should improve coordination between different agencies, levels
of government and the private sector.
ESF Coordinator, Primary and Support Agencies
The City of Saint Paul Emergency Management Director designates the primary
agencies for each ESF to coordinate the activities of that function. In some
cases, an ESF Coordinator may be assigned in addition to the primary and
support agencies. The following describes the roles of the ESF Coordinator,
Primary Agency and Support Agencies.
The ESF Coordinator has ongoing responsibility through the prevention,
preparedness, response, recovery, and mitigation phases of incident
management. The role of the ESF coordinator is carried out though a unified
command approach as agreed upon collectively by the designated primary
agencies. The responsibilities of the ESF Coordinator include:
• Pre-incident planning and coordination
• Maintain ongoing contract with ESF primary and support agencies
• Conduct periodic ESF meetings
• Coordinate efforts with corresponding private-sector organization
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Coordinate ESF activities relating incident planning and critical
infrastructure preparedness
An agency designated as an ESF Primary Agency will:
Basic Plan
• Provide staff for the operations functions
• Notify and request assistance from support agencies
• Manage mission assignments and coordinate with support agencies
• Work with appropriate private-sector organizations to maximize use of all
available resources
• Support and keep other ESFs informed of operational priorities and
activities
• Executive contracts and procuring goods and services as needed
• Ensure financial and property accountability for ESF activities
• Plan for short-term and long-term incident management and recovery
operations
• Establish and maintain procedures for agency personnel to be available
on a 24-hour basis for EOC staffing and emergency assignment and
provide this information to the Saint Paul Emergency Management
Department
• Maintain a current inventory of key agency personnel, facilities and
equipment, and establish procedures to ensure this information can be
accessed from the EOC
• Establish procedures for assessing damage to department facilities and
injury to personnel
• Maintain trained personnel to support inter agency emergency response
and support teams
Agencies designated as ESF Support Agencies will:
• Conduct operations, when requested using their own authorities, subject-
matter experts, capabilities or resources
• Participate in planning for short-term and long term incident management
and recovery operations
• Assist in the conduct of situational assessments
• Provide staff, equipment or other resource support as requested
• Provide input to periodic readiness assessments
• Participate in training and exercises
• identify new equipment or capabilities required to prevent or respond to
new or emerging threats and hazards
• Provide information or intelligence regarding their agency's area of
expertise.
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Mutual Aid
Mutual aid agreements and memorandum of understanding are essential
components of emergency management planning, response, and recovery
activities. These agreements provide reciprocal emergency aid and assistance
during an emergency or disaster. They can increase available resources and
improve response and recovery efforts.
Emergency Management Assistance Compact (EMAC)
The EMAC is a mutual aid agreement and partnership among states to allow for
the exchange of resources when state and local resources are overwhelmed and
federal assistance is inadequate or unavailable.
Requests for EMAC assistance are legally binding, contractual arrangements
which requires soliciting states to be responsible for reimbursing all out-of-state
costs and be liable for the actions and safety of out-of-state personnel. Providing
assistance to other states through EMAC is not an obligation.
Communications
ESF2 (Communications) provides information and guidance concerning available
communications systems and methods in Saint Paul. Included are all actions
taken for the dissemination of emergency information to response organizations
and government (notification), information flow and management to and from the
Emergency Operations Center, communications interoperability among response
units, primary and backup communication systems, telecommunications and
information technology resources, and emergency warning and notification.
ESF 15 (External Affairs/JIC) provides information on the dissemination of
information to the public for the purpose of protective action guidance and
ongoing emergency information. This information is focused on the minimization
of confusion, misinformation, and rumors during times of an emergency/disaster.
Communications and warning are vital to effective and efficient preparedness,
response and recovery activities during emergency operations. This will help to
facilitate quick and timely response since most emergency situations allow a
certain amount of lead time. During an emergency/disaster, all levels of
government are responsible for keeping the public informed of the situation as i
develops. Brief, but detailed information will require the establishment of
procedures prior to the event as to the necessary actions the public needs to
take to ensure their safety and survival.
This section describes incident management actions ranging from initial threat
notification to early coordination efforts to assess and disrupt the threat, to
preparatory activation of the ESF structure, to deployment of state resources in
support of incident response and recovery operations. These actions do not
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necessarily occur in sequential order; many may be undertaken concurrently in
response to single or multiple threats or incidents.
Notification and Assessment
Initial notification of incidents at the local level are accomplished in a variety of
ways including public safety radio, television, radio, broadcast fax, etc.
Responsibility for notification of most incidents is accomplished through the
Ramsey County Emergency Communications Center.
Other agencies with responsibilities for notification include the National Weather
Service, Ramsey County Emergency Management and Homeland Security, MN
Department of Homeland Security.
Plans and procedures for the receipt or notification of specific facilities,
departments, special needs groups, etc. are referenced in ESF 2
(Communications).
Preparedness
Preparedness activities include:
• Plan development and maintenance
• Public information and education
• Training and exercises
Plan Development and Maintenance
The Saint Paul Department of Emergency Management is responsible for
coordinating, publishing, and distributing this EOP.
The Saint Paul Department of Emergency Management in conjunction with the
Saint Paul Emergency Management Council (EM Council) will be responsible for
the maintenance and exercising of the EOP.
Review and maintenance of the EOP will be conducted annually by Emergency
Management and EM Council, in accordance with HSEM 4 year planning review
cycle.
Public Information
The Ramsey County Emergency Communications Center (RCECC) provides
communications essential tor most of the cities (and county) to communicate with
all governmental entities. This information is then passed along to the public via
sirens, tefevision, radio, through the governmental agency.
The media assumes a vital role in dispersing information to the public. Saint Paul
Emergency Management works closely with local media providers to ensure
timely and accurate information is provided to the public.
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The City of Saint Paul has also developed a strong PIO program with in the city,
each department has a PIO for their specific department, if not, there is a city
designated PIO.
Training and Exercises
Training and exercise components of the emergency response function of this
plan are the responsibility of the various emergency response agencies.
Emergency situations, whether natural or man made, will subject citizens to
undue hardships. The situation would be compounded by the fact that a lack of
trained personnel and prepared citizens would seriously handicap response and
recovery efforts.
An effective training program aids persons in developing the skills required to
handle situations once they arise. The "testing" of pfans is accomplished through
a regularly scheduled program of exercises. It is essential that agencies with
responsibilities for the safety of lives and property be given the chance to
address potential remedial issues related to their training and planning efforts
prior to the occurrence of such events.
All agencies are required to use Homeland Security Exercise and Evaluation
Program (HSEEP) modeling for training and exercising if using federal dollars to
fund their exercise or training.
All agencies provide the MN Department of Homeland Security and Emergency
Management with an outline of their 4 year plan for drills and exercises.
After Action Reports (AAR) will be completed following each exercise or drill and
plans will be updated to reflect those Iessons learned.
Response
City Response
The city must be prepared to respond quickiy and effectively on a 24-hour basis
to developing events. When an event or potentia� event is first detected, the EOC
is activated to a Ievel appropriate to the magnitude of the threat. The state's
response effort is then initiated through the ICS System with emergency
representatives from local agencies and volunteer organizations. These
emergency representatives are authorized to use the resources of their
respective agency or organization to carry out response and recovery missions
that are assigned by function.
The Saint Paul City Attorney's Office will provide legal services to support the
jurisdiction during emergency situations.
All local agencies and volunteer organizations are grouped into 17 ESF's
Functions to carry out assigned missions. Each ESF is comprised of one or more
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primary agency(ies) serving as lead and several other agencies and
organizations providing support.
Local Disaster Deciaration
Basic Plan
Based on the complexity, severity, duration or resource needs of the event, the
Saint Paul Emergency Management Director, or designee, may advise the Mayor
to declare a local emergency.
If at any point during a developing emergency, officials determine the situation
requires resources beyond local capabilities (including those obtained through
mutual aid), assistance may be requested through the MN HSEM.
The Saint Paul Emergency Management Director, or designee, will serve as a
liaison with HSEM and DHS/FEMA for coordinating state and federal assistance.
Regardless of the level of assistance provided by outside entities, overall
direction and control remains the responsibility of the city.
Emergency Operations Center (EOC)
The EOC is the primary location from which emergency operations witl be
conducted under the direction and control of Emergency Management Director.
State Disaster Decfaration
When an emergency or disaster has occurred or is imminent, the Governor may
issue an Emergency Disaster Declaration proclaiming the existence of a State of
Emergency or activate the emergency response, recovery and prevention
aspects of state, local and inter-jurisdictional disaster p�ans.
State assistance will be provided if it is available and deemed appropriate. If
state resources are inadequate, the Governor may request federal assistance
through the Department of Homeland Security/Federal Emergency Management
Agency (DHS/FEMA).
RecoverV
Presidential Disaster Declaration
Requests for federal disaster assistance will be predicated on the requirements
outlined in the Robert T. Stafford Disaster Relief and Emergency Assistance Act
(Public Law 93-288). After local government conducts a rapid disaster
assessment and reports to the State Emergency Operation Center (SEOC),
based on the data, a preliminary damage assessment (PDA) may be scheduled
that includes the Federal Emergency Management Agency (FEMA) and the
Small Business Administration (SBA). The Public Assistance (PA) Program may
deploy teams to inspect those areas affected that meet the PA Program criteria.
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Pubiic Assistance (PA) Activities
A Presidential Disaster Declaration initiates a process that begins with applicants
filing a Request for Public Assistance at an applicanYs briefing. These briefings
are pubiicized through the media and notifications to county emergency
management directors in accordance with 44 CFR-206 Subpart G& H.
• Project worksheets are prepared for eligible emergency costs and eligible
costs for restoration of damaged facilities
• The federal share for reimbursement under most federal declarations is 75
percent. The 25 percent nonfederal share is normally provided from a
combination of State and local sources in accordance with policies
established by the Executive Office of the Governor and the MN Legislature
• In addition, the federal government does provide for an administrative cost
allowance for each eligible project that is 100 percent federally funded.
• The State serves as the Grantee and eligibfe applicants are Sub-grantees
under the federal disaster assistance program.
• Contractual agreements with HSEM are executed with applicants with all
reimbursements coming through HSEM, record keeping, inspections, and
final closeouts are overseen and approved by HSEM.
Individual Assistance (IA) activities
Once a Presidential Declaration has been issued that authorizes IA, the State IA
Officer will coordinate with a federal counterpart on all related individual
assistance programs, as defined and prescribed in 44 CFR, Part 206, Subparts
D, E, and F.
• The primary means of applying for IA will be made through a National Tele-
registration toll-free number.
• Disasters that do not support the criteria tor requesting IA as part of a
Presidential Disaster Declaration may meet the criteria for other federal
assistance.
Mitiqation
State Mitigation programs (pre-disaster)
The National Flood Insurance Proqram (NFIP) — The NFIP provides flood
insurance to communities that agree to implement land use planning and
construction requirements to reduce flood damage in their jurisdiction. These
land use and construction requirements apply to all new construction and
substantial improvements to existing structures in the community's Special Flood
Hazard Areas (SFHAs).
The Community Rating System (CRS) is an integral part of the NFIP. Through
reduced flood insurance premiums, the CRS provides incentives to communities
that go beyond the minimum flood plain management requirements established
through the NFIP.
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The Flood Mitiqation Assistance Proqram (FMAP) — HSEM administers the
FMAP. This program makes federal funds available pre-disaster to fund
mitigation projects in communities participating in the NFIP. These funds have a
25 percent non-federai match requirement. The overall goaf of the FMAP is to
fund cost effective measures that reduce or eliminate the long-term risk of flood
damage to NFIP insurable structures. This is accomplished through the reduction
of the number of repetitively or substantially damaged structures.
State Hazard Mitigation Planning - The State Hazard Mitigation Plan is updated
annually or in the aftermath of a disaster at the direction of the State Hazard
Mitigation Officer (SHMO) as necessary. Additionafly, the mitigation staff
continues to provide technical assistance to communities on the development,
implementation, and maintenance of local mitigation strategies.
State Mitigation activities (post-disaster)
Post-disaster mitigation activities at the Joint Field Office (JFO) require a well-
orchestrated and coordinated effort among the various levels of governments.
This PA Program assures that the mitigation opportunities provided under
Section 404 of the Stafford Act are realized. Also, Section 406 of the Stafford Act
provides for direct tederal assistance for repairs and '+mprovements to eligible
damaged public facilities. Mitigation measures (improvements) must be identified
in the Project Worksheets (PW's). The award of Section 406 hazard mitigation
projects is at the discretion of the FEMA Regional Director.
Succession of Authority
The ultimate responsibility for all emergency management functions belongs to
the City of Saint Paul Mayor and City Council as efected local government
officials. Although these officials are Iegally responsible for all policy level
decisions, the Director of the City of Saint Paul, Department of Emergency
Management is empowered by the Mayor to direct and control all emergency
management activities in the City of Saint Paul.
The lines of succession of authority and command for the City of Saint Paul are
as follows:
The interim emergency successors to the office of mayor shall be first, the acting
(deputy) mayor and then members of the council, and they shall succeed to that
office after the president of the council and the vice-president of the council, in
order of seniority of uninterrupted service on the council. In case two (2) or more
members of the council have equal seniority, the older or oldest in age shall be
deemed the senior member.
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Basic Plan
In the event that vacancies occur on the council such that a quorum could not be
met, the person holding the office of mayor, be it elected, acting or interim
successor, shall appoint a sufficient number of persons to the council as interim
emergency appointees such that a quorum is met, and said appointees shall
serve until the vacancy is filled pursuant to the Charter of the City of Saint Paul.
Delegation of Emergency Authority
The chief elected officials of the City of Saint Paui are responsible for all policy-
level decisions. In order to provide the best leve{ of service to the citizens of Saint
Paul in the event of a disaster, the Mayor and City Council has empowered the
City of Saint Paul Director of Emergency Management, by resolution, to direct
and control all emergency management activities in the city, according to this
plan.
Emergency Actions
Emergency actions are those actions that are essential to protect lives and
property from immediate threat. Such actions may include:
Evacuation
Sheltering in place advisories
These actions wiil be undertaken based upon the type of threat and at the
request of the InCident Commander.
Additional information is covered in ESF 1(Transportation), ESF 6(Mass Care)
and ESF 5(Emergency Management) and the SARA Title III Supplement.
Preservation of Records
lt is the responsibility of tasked agency officials to ensure that important
documents are safeguarded in accordance with agency SOP's and county
records management policies.
A. The Office of Gity Clerk is responsible for storing laws, ordinances, and
city counsel files.
• Records from 1997 to the present are stored on an onsite database
server and offsite on a backup server.
• Records from the 1950s to 1997 are stored on microfilm.
• Records before the 1950s are hard (paper) copies stored at the
History Center.
B. The Ramsey County Department of Records and Revenue is responsible
for storing tax records.
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C. The Public Health Department stores birth and death records
Basic Plan
• Records after the 1900s are stored on microfitm and hard copy
• Records before the 1900s are hard copies
D. Department of Safety and inspection (DSI) stores records on an onsite
database server and an offsite database server.
Protection of Government Resources
The business of the government, at all levels, must continue in order to provide
security, protection and assistance for recovery. Reasonable efforts have been
made to protect government resources through the following methods:
• Plans and procedures
• Backup of computer data
• Off site storage of computer files
� Backup generators
• Memorandums of Understanding
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Local Declaration
Declaration Criteria
The Saint Paul Emergency Operations Plan (EOP) is based on the concept that
emergency functions for tasked agencies will generally parallel their normal, day-
to-day functions. During times of emergency or disaster situations, each agency
will provide, to the extent possible, all possible resources necessary to cope with
the situation. Efforts normally required for day-to-day functions will be redirected
to the accomplishment of emergency tasks.
2. EOP Implementation
This plan is based on a response at the lowest level of government. A local state
of emergency will be declared by the Mayor upon the recommendation of the
Emergency Management Director, when a situation requires the response of
numerous local emergency agencies or when it appears that numerous lives and
or property are in danger. The principle deciding factor will be the decision on
how close the city will come to exhausting all of its resources.
Funding
During local state of emergency actions, the monetary support for logistical and
administrative support will be funded out of each agency's budget. Agencies
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Basic Plan
may, however, request reimbursement or additional funds be provided through
the city's general funds or other legal funding mechanisms available to the local
jurisdiction (non-funded warrants, etc.) if an agency's outlay exceeds their
budget. It has been the experience of the city to fund disaster related expenses
through the general fund by means of a specially assigned tracking number or
special line number. Verify with finance how funding will be handled as each
instance may be different.
Subsequent to a local emergency declaration, local government will be
empowered to procure any public resources and supplies essential to emergency
operations, in accordance with current laws.
In the event of a federal declaration, some expenses and/or reimbursements are
available to affected agencies through Public Assistance Grants.
4. Tracking Local Disaster Costs
In the event of a non-federally declared disaster, the Department of Emergency
Management may ask the City's Financial Director to assign a special project
number or line item to track all event-related expenses.
Acquisition and Control
The acquisition, control and distribution of food products and other essential
personal items will be as directed by local government.
Relief Assistance
All individual relief assistance will be provided in accordance with the policies set
forth in state and federal provisions. All local assistance will be provided in
accordance with the policies set forth in the provisions of the local organization
providing such assistance.
Consumer Protection
Consumer complaints pertaining to alleged unfair or illegal business practices will
be referred to the State Attorney General's Consumer Protection Division.
8. Non-discrimination
There will be no discrimination on grounds of race, color, religion, nationality,
gender, age or economic status in the execution of this emergency plan and the
functions of the emergency management system. This policy applies equally to
all leveis of governmeni, contractors, and labor unions with responsibilities in the
response, recovery, mitigation or preparedness activities associated with the
implementation of this plan.
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9. Use of Local Firms
When major disaster assistance activities may be carried out by contract or
agreement with private organizations, firms or individuals, preference will be
given to the extent feasibie and practicable, to those organizations, firms and
individuals residing or doing business primarily in the affected areas.
10. Agreements and Understandings
All agreements and understandings entered into for the purchase, lease, or
otherwise use of equipment and services will be in accordance with the provision
of state law and procedures. The declaration of a local emergency, issued by
the EOC or the Mayor of Saint Paul, may suspend selected rules and regulations
that impede emergency response and recovery operations.
13. Mutual Aid
The City of Saint Paul recognizes that mutual aid agreements are considered to
be part of the local resources and does not request aid from HSEM until these
avenues of support are exhausted.
State Declaration
Support
Requests for state or federal assistance will be made through the MN
Department of Homeland Security and Emergency Management HSEM.
Exceptions to this are detailed in federal, hazard-specific contingency plans and
procedures.
2. Declaration Criteria
If a situation exceeds the capacity of the City of Saint Paul to respond to an
emergency situation, a state of local emergency will be deciared by the Mayor.
The Director of Emergency Management, will then notify by telephone and/or fax,
the MN Division of HSEM.
State Emergency Operations Plan implementation
Upon notification of a local state of emergency MN HSEM will take appropriate
action according to its current policies and practices.
4. Resources
During a Iocal or State disaster, all available State resources will be requested
via MN HSEM.
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5. Procurement
A Disaster Declaration allows local government to circumvent bidding procedures
when the nature of the disaster requires expedient response.
Reports and Records
Upon determination of need, the Governor or MN HSEM may authorize and
impose additional emergency recording and reporting requirements applica6le to
local governments and state agencies.
Federat Declaration
Declaration Criteria
When the emergency exceeds the State's capability to respond, assistance may
be requested from the Federal government through the Federal Emergency
Management Agency (FEMA). Requests may be for specific Federal agency
assistance, or for a Presidential Disaster Declaration to allow supplemental
Federal financial and technical assistance.
2. National Response Plan (NRP) Implementation
The declaration process under the NRP will be carried out under P.L. 93-288, as
amended, and as prescribed in 44 C.F.R, Part 205. Based on the severity and
magnitude of the situation, the Governor wifl request the President to declare a
major disaster or an emergency for the State, and the President will issue a
declaration, as warranted.
For certain situations, the President may declare an emergency with or without a
Governor's request, as specified in Title V of P.L. 93-288, as amended. Under
Title V, the President may direct the provision of emergency assistance, either at
the request of the Governor (Section 501. (a)), or upon determination by the
President that an "emergency exists for which the primary responsibility rests
with the United States... ("Section 501.(b)).
3. Coordination
State and Federal assistance support local disaster operations. The City of Saint
Paul will retain the jurisdiction over the disaster area, except for crime scenes on
Federal facilities. Saint Paul however, has the responsibility for coordinating
disaster operations in all oiher areas of the city affected by the disaster.
Resources
Federal Resources, such as grants, equipment and expertise, become available
upon approval of a Federal Disaster Deciaration. Without such declaration,
limited Federal resources, such as technical expertise and guidance, may be
obtained by the Saint Paul Emergency Management Director through HSEM.
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For radio�ogical emergencies (even without a disaster declaration), assisiance is
avaifable from Heaith and Human Services and federal agencies under the
Federal Radiological Emergency Response Plan (FRERP). FRERP assistance is
normally without cost, but shouid be coordinated through HSEM and DHS.
Expenditures and Record keeping
Deliberate financial tracking is required to help ensure state and federal
reimbursement in the event oT a Presidential disaster declaration.
During disaster operations, all agencies will:
• Maintain records of all expenditures to provide clear and reasonable
justification for budget requests or reimbursement
• Develop procedures to ensure financial records clear and unambiguously
identify disaster-related expenditures
• Use available resources and personnei as reasonable to cope with the
emergency situation
• Maintain sight of the mission identified in this EOP when taking actions and
incurring costs
Under the provisions of EMAC, Minnesota is responsible for the reimbursement
of expenses incurred by responding states during the delivery of mutual aid or for
the out-of-state sheltering or repatriation of Minnesota residents. Minnesota is
likewise responsible for the computation and submission of bills for
reimbursement of expenses incurred while responding to a requesting state.
After Action Review
In consultation with appropriate support agencies, the agency having primary
lead responsibility will develop a written critique report following the conclusion of
a significant emergency evenUincident or exercise, which will be provided to the
Emergency Management Director.
The critique conducted will entail both written and verbal input from a{I
appropriate participants, including field personnel.
Plan Development, Maintenance and Execution
A11 tasked agencies wifl be responsibfe for the devefopment and maintenance of
their respective responsibilities of the plan. Tasked agencies are responsible for
maintaining internal plans, standard operating procedures, and resource data to
ensure prompt and effective response to an incident of significance.
The Saint Paul Emergency Management Director is responsible for coordinating
an annual review of the EOP by all agencies involved. Tasked agencies will
make notification of necessary changes.
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