COUNTY OF SACRAMENTO EMERGENCY OPERATIONS PLAN · This plan is designed to establish the framework...

COUNTY OF SACRAMENTO EMERGENCY OPERATIONS PLAN

DECEMBER 2008

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LETTER of PROMULGATION

December 2008

To: Officials and Employees of Sacramento County

The preservation of life and property is an inherent responsibility of all levels of government. As disasters occur in devastating form at any time, Sacramento County must provide safeguards, which will save lives and minimize property damage through planning, preparedness measures and training. Sound emergency plans carried out by knowledgeable and well-trained personnel can and will minimize losses.

The Sacramento County Emergency Operations Plan (EOP) establishes an Emergency Management Organization and assigns functions and tasks consistent with California’s Standardized Emergency Management System (SEMS) and the National Incident Management System (NIMS). It provides for the integration and coordination of planning efforts of multiple jurisdictions within Sacramento County.

This plan was developed for each Sacramento County department, local special districts with emergency services responsibilities, and the cities within the county. The content is based upon guidance approved and provided by the Governor’s Office of Emergency Services (OES) and the Federal Emergency Management Agency (FEMA). The intent of the EOP is to provide direction on how to respond to an emergency from the onset, through an extended response, and into the recovery process.

Once adopted, this plan is an extension of the California Emergency Plan. It will be reviewed and tested periodically and revised as necessary to meet changing conditions.

The Sacramento County Board of Supervisors gives its full support to this Emergency Operations Plan (EOP), and urges all public employees and individuals to prepare for times of emergency before they occur.

Chair, Board of Supervisors Sacramento County

Date Seal of the Clerk of the Board

RECORD OF REVISIONS

(Note: File each revision transmittal letter behind this record page.)

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Credits and Acknowledgements

There are numerous individuals who have contributed their time, efforts, insights and resources towards the completion of this version of the Sacramento County Emergency Operations Plan (EOP). The strategies, guidance, and information in this plan represent the diligent work of numerous persons in the County of Sacramento.

Thanks go to all the persons who extended their time and energy into developing this Plan. Of special note is Ms. Brenna Howell, who developed this project on behalf of the County’s Emergency Operations Office (EOO), under the direction of Ms. Teresa Stahl. Thanks also go to those persons who contributed during the planning meetings, provided insights and data, and supported the development of the plan.

The opinions, findings, and conclusions or recommendations expressed in this publication/program/exhibition are those of the author(s) and do not necessarily reflect the views of the California Office of Homeland Security or the U.S. Department of Homeland Security.

This project was supported by Award No. 2006-0071 and 2007-0008 to the Sacramento County Emergency Operations Office, from the 2006 Homeland Security Grant Program awarded by the California Office of Homeland Security (CA OHS) Grants Management Unit on behalf of the U.S. Department of Homeland Security (DHS).

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TABLE OF CONTENTS

Letter of Promulgation

Record of Revisions

Table of Contents

Foreword

PART ONE – BASIC PLAN

Section/Content

1.0 Plan Administration Purpose Scope Authorities & References

Planning Process & Format

Plan Activation

Plan Approval & Promulgation

Plan Maintenance & Responsibility

Review and Updating

2.0 County Hazards Overview Hazards Overview

Hazards and Planning Considerations

3.0 Emergency Management Principles Assumptions Emergency Management Priorities, Goals & Objectives Emergency Management Activities

4.0 Preparedness & Readiness General

Community Preparedness & Awareness

Continuity of Government Operations

Readiness

5.0 Concept of Operations Standardized Emergency Management System & Mutual Aid National Incident Management System Emergency Management Activation Emergency Management Operations Action Planning

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6.0 Sacramento County Emergency Management System County Emergency Management Organization County Emergency Management Functions County/OA EOC SEMS Organization County Roles and Responsibilities

7.0 Alert, Warning & Emergency Public Information Alert and Warning

Emergency Public Information

8.0 Post Disaster Recovery General Assumptions

Short Term Recovery Long Term Recovery Hazard Mitigation

9.0 Training and Evaluation After Action Reporting

Readiness Training

Exercise & Evaluation

PART TWO – EOC PROTOCOLS AND POSITION CHECKLISTS

Section/Content

1.0 EOC Alert and Notification

2.0 EOC Operations EOC Protocols

EOC Coordination with Government Levels EOC Reporting EOC Briefings Deactivation

3.0 Action Planning Planning Requirements

Plan Elements Planning Responsibilities Planning Process Planning Considerations Planning Cycle Documentation and Distribution



4.0 Resource Management Resource Priorities Resource Requests EOC Web RIMS

5.0 Expenditure Tracking Purpose Eligible Expenses Record Keeping Requirements

6.0 Position Checklists All Position Checklist Management Section Checklists

Operations Section Checklists Planning Section Checklists Logistics Section Checklists Finance Section Checklists

PART THREE – RECOVERY

Section/Content

1.0 Recovery Operations Concept of Operations Short Term Recovery Long Term Recovery Recovery Operations Responsibilities Recovery Planning Checklist

2.0 Before Disaster Strikes Introduction

Documentation

3.0 Hazard Mitigation Introduction Hazard Mitigation Planning Mitigation Plan Requirements Mitigation Planning Checklist

4.0 Funding for Pre-Disaster Mitigation Overview Authority and Administration Applicant Eligibility Planning and Project Grants



5.0 Funding for Flood Mitigation Overview

Authority and Administration

Applicant Eligibility

Planning and Project Grants

FEMA Technical Assistance Grant

6.0 When Disaster Strikes Introduction Emergency Proclamations/Declarations Safety Assessment Damage Assessments Local Assistance Centers (LACs) Disaster Recovery Centers (DRCs)

7.0 Disaster Assistance Programs and Requirements Introduction

Types of Assistance

How to Access Assistance

The Application Process PA & IA

Applicant Briefings

Project Approval Process

Expedited Funding

Individuals and Households Program

SBA and USDA

8.0 Post-Disaster Hazard Mitigation Overview

HMGP Authority and Administration

PART FOUR – SUPPORTING DOCUMENTS

Acronyms Glossary of Terms Legal Documents Forms


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Foreword

The Sacramento County Emergency Operations Plan addresses the county's planned response to extraordinary emergency situations associated with natural disasters, technological incidents and national security emergencies in or affecting Sacramento County, including acts of terrorism. This plan does not apply to normal day-to-day emergencies or the established departmental procedures used to cope with such emergencies. Rather, this plan focuses on operational concepts relative to large-scale disasters which can pose major threats to life, property and the environment requiring unusual emergency responses.

This plan accomplishes the following:

• Establishes the emergency management organization required to mitigate any significant emergency or disaster affecting Sacramento County.

• Identifies the roles and responsibilities required to protect the health and safety of Sacramento County communities, public and private property and the environmental effects of natural and technological emergencies and disasters.

• Establishes the operational concepts associated with a field response to emergencies, the County Emergency Operations Center (EOC) activities and the recovery process.

This plan is designed to establish the framework for implementation of the California Standardized Emergency Management System (SEMS) and the National Incident Management System (NIMS) for Sacramento County. It is intended to facilitate multi-agency and multi-jurisdictional coordination, particularly between Sacramento County and local governments, including special districts, state agencies, and the federal government, in emergency operations through the structure of the Sacramento Operational Area (OA). This plan will be used in conjunction with the State Emergency Plan and the National Response Framework.

Each element of the emergency management organization is responsible for assuring the preparation and maintenance of appropriate response plans and current standard operating procedures (SOPs), resource lists and checklists that detail how assigned responsibilities will be performed to support implementation of this plan and to ensure successful response during a major disaster.

Mandatory elements to be addressed in SOP's are: • Arrangements for the provision of direction and control within the agency. • Specific emergency authorities that may be assumed by a designated successor

during emergency situations. • Circumstances under which successor emergency authorities would become

effective, and when they would be terminated.



• Current internal personnel notification/recall rosters and procedures to implement them. This should include a 24-hour communication system with the capability to notify and call-out personnel designated by the agency for emergency response.

• Designation and establishment of a work/control/dispatch center or Department Operations Center (DOC) to manage organizational resources and response personnel and maintain contact with the EOC during emergencies.

• Designation of a representative to report to the EOC during an emergency to advise decision makers and coordinate the agency's response effort with other responding entities.

• Reporting of appropriate information (casualties, damage observations, evacuation status, shelter status, chemical exposure, etc.) to the EOC during an emergency.

• Support of cleanup and recovery operations during disasters.

• Training of assigned response staff to perform emergency functions.

It is the County’s intent to fulfill the policies described herein, within the capabilities and resources available at the time of an emergency or disaster event.

EMERGENCY MANAGEMENT GOALS

• Provide effective life safety measures and reduce property loss. • Provide for the rapid resumption of community services and businesses. • Provide accurate documentation and records required for cost recovery efforts.

COUNTY FACTS Sacramento County was incorporated in 1850 as one of the original 27 counties of the State of California. The County's largest city, the City of Sacramento, is the seat of government for the State of California and also serves as the county seat. Sacramento became the State Capital in 1854. The County is the major component of the Sacramento Metropolitan Statistical Area ("SMSA") which includes Sacramento, El Dorado, and Placer Counties.

Sacramento County encompasses approximately 994 square miles in the middle of the 400-mile long Central Valley, which is California's prime agricultural region. The County is bordered by Contra Costa and San Joaquin Counties on the south, Amador and El Dorado Counties on the east, Placer and Sutter Counties on the north, and Yolo and



Solano Counties on the west. Sacramento County extends from the low delta lands between the Sacramento and San Joaquin rivers north to about ten miles beyond the State Capitol and east to the foothills of the Sierra Nevada Mountains. The southernmost portion of Sacramento County has direct access to the San Francisco Bay.



QUICK FACTS

• Average Annual Maximum Temperature - 73.6 degrees • Average Annual Minimum Temperature - 49 degrees • Average Rainfall - 19.6 inches • 36.87 miles of light rail system • 3 mainline railroad tracks • 7.4 million passengers annually through Sacramento International airport • Port of Sacramento ships 870,000 short tons of cargo annually • 14 Regional Parks Districts • 6 million trees • 19 major public & private colleges & universities • 16 public school districts • 15 major art and historical museums • 26 public libraries • 10 hospitals • 69.6% of eligible voters are registered to vote • Persons per square mile - 1,252 • Leading agricultural crops include: milk, wine grapes, Bartlett pears, field corn, turkeys



Sacramento County is the eighth most populous county in California. As of January, 2007, the State Department of Finance estimates the following population breakdowns for Sacramento County:

City/County Population Estimates with Annual Percent Change January 1, 2006 and 2007

State/County/City Total Population Percent Change 1/1/2006 1/1/2007

SACRAMENTO TOTAL 1,387,771 1,406,804 1.4 CITRUS HEIGHTS 87,018 87,017 0.0 ELK GROVE 131,081 136,318 4.0 FOLSOM 69,544 70,835 1.9 GALT 23,017 23,469 2.0 ISLETON 814 815 0.1 RANCHO CORDOVA 56,470 59,056 4.6 SACRAMENTO 458,001 467,343 2.0 UNINCORPORATED AREA 561,826 561,951 0.0



GOVERNMENT The Board of Supervisors is the governing body of the County and a number of special districts. Within the limits of state law and county charter, the Board is empowered to adopt ordinances, establish programs, levy taxes, appropriate funds, appoint certain officials, and zone property in the unincorporated area. The five members of the Board are elected on a non-partisan basis to serve four-year terms. Each is elected from one of the five supervisorial districts of the County. The County Executive is the chief executive officer of the County and is responsible for implementing Board policies, administering County departments not headed by an elected official, and preparing budgets, reports and proposals for Board consideration. He/she is appointed by a majority vote of the Board and may be removed by a 4/5 vote.



HISTORY 1839 Captain John A. Sutter arrives in Sacramento 1848 Gold is discovered at Sutter's Mill (January 24) 1850 First Sacramento volunteer Fire Department is organized 1857 Sacramento City and County governments merge 1860 Pony Express begins run between Sacramento and St. Joseph, Missouri 1863 Track for the first continental railroad is laid in Sacramento 1863 Sacramento City and County governments are separated 1955 Folsom Dam is completed


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SECTION 1: PLAN ADMINISTRATION

PURPOSE The Basic Emergency Plan addresses Sacramento County's planned response to extraordinary emergency situations associated with natural, technological and human caused emergencies or disasters within or affecting Sacramento County.

This plan is the principal guide for Sacramento County’s response to, management of, and recovery from real or potential emergencies and disasters occurring within its designated geographic boundaries. Specifically, this plan is intended to:

• Facilitate multi-jurisdictional and interagency coordination, particularly between local government, operational area (geographic county boundary), and state response levels, and appropriate federal agencies, in emergency operations.

• Serve as an operational plan as well as a reference document and may be used for pre-emergency planning as well as emergency operations.

• To be utilized in conjunction with applicable local, state and federal contingency plans.

• Guide users through the four phases of emergency management: mitigation, preparedness, response, and recovery.

• Identify the components of an Emergency Management Organization (EMO), and establish associated protocols required to effectively respond to, manage and recover from major emergencies and disasters.

• Establish the operational concepts and procedures associated with field response to emergencies, Emergency Operations Center (EOC) activities, and the recovery process.

• Establish the organizational framework for implementation of the California Standardized Emergency Management System (SEMS), and the National Incident Management System (NIMS), within Sacramento County.

Allied agencies, private enterprise, and volunteer organizations having roles and responsibilities established by this plan are encouraged to develop operating protocols and emergency action checklists based on the provisions of this plan.

SCOPE This plan applies to any extraordinary emergency situation associated with any hazard, natural or human caused which may affect Sacramento County and that generates situations requiring planned, coordinated responses by multiple agencies or jurisdictions.



The provisions, policies, and procedures of this plan are applicable to all agencies and individuals, public and private, having responsibilities for emergency preparedness, response, recovery, and/or mitigation in Sacramento County. The city governments within the County of Sacramento maintain their own emergency operations plans. The cities’ plans are consistent with the policies and procedures established by this plan.

AUTHORITIES

FEDERAL • Robert T. Stafford Disaster Relief and Emergency Assistance Act of 1988, 42 U.S.C.

5121, et seq., as amended.

• Homeland Security Presidential Directive 5, Management of Domestic Incidents, February 28, 2003.

• Homeland Security Presidential Directive 8, National Preparedness, December 17, 2003

• The Code of Federal Regulations, Title 44, Chapter 1, Federal Emergency Management Agency, October 1, 2007

STATE • California Emergency Services Act

• California Disaster Assistance Act

• California Code of Regulations Title 19, (Standardized Emergency Management System)

• California Disaster and Civil defense master Mutual Aid Agreement

COUNTY • Sacramento County Emergency Services/Ordinance, Chapter 2.46 of the Sacramento

County Code.

o Establishes a County Disaster Council and specifies its role; o Defines an Emergency; o Requires an Emergency Operations Plan; and o Establishes an Emergency Operations Office o Identifies the roles and responsibilities of the Director o Identifies the organization and responsibilities of the Emergency Management

Organization



• Sacramento County Resolution adopting the California Master Mutual Aid Agreement.

• Sacramento County Resolution adopting the approved Emergency Operations Plan.

• Agreement for Participation in the Sacramento Operational Area Organization which provides Sacramento County lead agency responsibility.

• Resolution adopting SEMS & NIMS

REFERENCES

FEDERAL • National Response Framework (As revised)

• National Incident Management System (NIMS)

• Comprehensive Preparedness Guide (CPG) 101

STATE • California State Emergency Plan (As revised)

• Standardized Emergency Management System (SEMS)

• California Disaster Assistance Act

• California Law Enforcement Mutual Aid Plan

• California Fire and Rescue Mutual Aid Plan

• Continuity of Government in California (Article IV, Section 21 of the State Constitution).

• Preservation of Local Government

COUNTY • Yolo County Emergency Operations Plan

• City of Folsom Emergency Operations Plan

• City of Sacramento Emergency Operations Plan

• Sacramento County website www.saccounty.net


http:www.saccounty.net


• Sacramento County Region IV Multi-Casualty Incident and Medical/Health Disaster Plan

• Sacramento County Area Plan to Emergency Response of Hazardous Materials Incidents

PLANNING PROCESS & FORMAT The plan is divided into four elements that contain general and specific information relating to county emergency management operations.

Part One - Basic Plan This section provides the structure and organization of the Sacramento County Emergency Management Organization; identifies individual roles and responsibilities; describes the concept of emergency operations; and identifies how the local cities and the state integrate with Sacramento County in the Standardized Emergency Management System (SEMS) and the National Incident Management System (NIMS).

Part Two – EOC Protocols and Position Checklists This section provides general guidelines and specific procedures for the activation and extended operations of the EOC.

Part Three – Recovery This section provides information that more clearly defines the roles and responsibilities of those assigned to the Recovery effort in Sacramento County.

Part Four – Supporting Documents This section contains supporting materials to the overall Emergency Operations Plan.

PLAN ACTIVATION The Sacramento County Emergency Operations Plan may be activated by the Director of Emergency Operations (County Executive), Chief of Emergency Operations or designated alternates under any of the following circumstances:

• On the order of the Director of Emergency Operations as designated by local ordinance, Chapter 2.46 of the Sacramento County Code.

• Upon proclamation by the Governor that a STATE OF EMERGENCY exists in an area of the state including Sacramento County

• Automatically on the proclamation of a STATE OF WAR EMERGENCY as defined in California Emergency Services Act (Chapter 7, Division 1, Title 2, California Government Code)

• Upon declaration by the President, of the existence of a National Emergency



• Automatically, on receipt of an attack warning or actual attack on the United States, or upon occurrence of a catastrophic disaster that requires immediate government response.

PLAN APPROVAL & PROMULGATION Upon concurrence of the Board of Supervisors, the plan will be officially adopted and promulgated. The approval date will be included on the Title Page. The plan will be distributed to those county departments, local jurisdictions, and supporting allied agencies and community organizations having assigned primary functions or responsibilities.

PLAN MAINTENANCE RESPONSIBILITY The County Emergency Operations Office (EOO) has the primary responsibility for ensuring that necessary changes and revisions to this plan are prepared, coordinated, published, and distributed.

REVIEW AND UPDATING This plan and its supporting documents will be reviewed annually, with a full document update conducted minimally every five (5) years. Additional changes occurring within the five-year cycle of review will be acted upon independently and brought to the Board of Supervisors as necessary to maintain functionality and to meet state and federal requirements.

Changes to the plan not requiring formal adoption will be published and distributed to all involved agencies and organizations. Recommended changes will be received by the County Emergency Operations Office (EOO), reviewed and distributed for comment on a regular basis. Non-adoption elements of this plan may also be modified by the EOO any time state or federal mandates, operational requirements, or legal statute so require. Once distributed, new editions to this plan shall supplant older versions and render them inoperable.


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SECTION 2: COUNTY HAZARDS OVERVIEW

HAZARDS OVERVIEW In 2004, Sacramento County's Emergency Operations Office worked with a consortium of community stakeholders to complete the Sacramento Multi-Hazard Mitigation Plan. The purpose of this analysis was to identify and discuss the natural and technological threats confronting the Operational Area communities and the mitigation efforts that might address those threats. For a more detailed explanation please refer to the Sacramento County Multi-Hazard Mitigation plan.

The County of Sacramento is vulnerable to a wide range of threats. In the last decade it has experienced severe winter storms, flooding, hazardous materials releases, freezes, drought, civil unrest and power shortages. An all-hazards threat perspective, although focused on riverine flooding due to the confluence of the Sacramento and American Rivers, must include a complete range of threats including emerging and increasing technological factors (e.g., the increased transportation of numerous hazardous materials on the state highways, roads and interstates going through the County). It is important to consider past events for future planning, with the consideration that the location and scope of hazards changes over the years.

Sacramento County is subject to a complete range of threats to public health and safety, infrastructure and the environment. There are three broad categories of hazard threats: natural, technological and human-based security threats. Additionally, casualties, and high financial losses have occurred throughout the history of the County in the last fifty years, but human losses continue to decline, especially in proportion to the growth in the population as growth increases near existing and emerging hazards. This decrease in the loss of life may be due to a combination factors including risk communication, better overall community planning, and a high community sense of readiness.

The hazards that might impact Sacramento County communities include the following:

Natural Hazards • Severe Weather • Flood • Earthquake • Wildland fire • Drought • Freeze • Disease Outbreak • Landslide/Subsidence • Volcanic Ash from Volcanic Eruption



Technological Hazards • Hazardous materials accident • Transportation accidents (MCI) • Dam failure • Loss of utilities (phone, power, potable water) (see extreme Weather) • Airplane crash

Human-Based Hazards • Civil Disturbance • Terrorism



HAZARDS AND PLANNING CONSIDERATIONS

SEVERE WEATHER Almost all of Sacramento County’s disaster declarations are a direct result of extreme weather conditions. For this plan, severe weather is discussed in the following subsections:

• Heavy Rain/Thunderstorms • Tornadoes • Fog

HEAVY RAIN/THUNDERSTORMS Severe storms/thunderstorms in the planning area include heavy rains often accompanied by strong winds, lightning, and hail. Tornadoes may also occur during these storms. Thunderstorms can produce a strong rush of wind known as a downburst, or straight-line winds which may exceed 120 miles per hour. These storms can overturn poorly secured mobile homes, tear roofs off houses and topple trees. Often, downed trees fall across power lines or winds topple the power poles, causing power outages.

Approximately 10 percent of the thunderstorms that occur each year in the United States are classified as severe. A thunderstorm is classified as severe when it contains one or more of the following phenomena: (1) hail, three-quarters inch or greater, (2) winds gusting in excess of 50 knots (57.5 miles per hour), or (3) a tornado.

Lightning is defined as any and all of the various forms of visible electrical discharge caused by thunderstorms. Cloud-to-ground lightning can kill or injure people by direct or indirect means. Objects can be directly struck and this impact may result in an explosion burn, or total destruction. Or, the damage may be indirect when the current passes through or near it.

As discussed further in the following sections, heavy rains and severe storms occur in the planning area primarily during the late fall, winter and spring seasons.

In Sacramento County, precipitation occurs mostly as rain. Snow is a rare occurrence. The bulk of the rain occurred during the months of November through March. From 1941 through 2003, annual rainfall averaged 17.22 inches, but it can be quite variable. The highest recorded annual rainfall is 33.44 inches in 1983 and the highest recorded rainfall for a given month is 12.64 inches in December 1955. For a 24-hour period, the record high rainfall was 3.77 inches on October 13, 1962. The lowest annual rainfall total was 6.25 inches in 1976.

The temperature generally ranges from an average maximum temperature of low 50’s to mid 90’s and an average minimum temperature range of high 30’s to high 50’s. The highest daily extremes included a high of 115 on June 15, 1961 and a low of 18 on December 22, 1990.



The prevailing winds in Sacramento are Southerly at approximately 5-15 miles per hour. Winds from the North are generally dry. Pre-weather front winds generally come from the Southwest. Severe weather and thunderstorms are likely to continue to occur annually in the Sacramento County area.

TORNADOES (AND OTHER SEVERE WIND EVENTS) Tornadoes are another weather-related event that affects the planning area. Tornadoes are rotating columns of air marked by a funnel-shaped downward extension of a cumulonimbus cloud whirling at destructive speeds of up to 300 miles per hour. They usually accompany a thunderstorm. Tornadoes are the most powerful storms that exist. They can be comprised of the same pressure differential that fuels 300-mile wide hurricanes across a path only 300 yards wide or less.

Sacramento County has experienced four tornadoes:

• 02/07/1978 Magnitude F2, Property Damage $250-500K



• 04/24/1998 Magnitude F0, Property Damage $10K

There have been four tornadoes during the 52-year period of record, or one tornado every 13 years on average. This equates to an annual probability of occurrence at 7.69 percent. There are no official recurrence intervals calculated for tornadoes. However, if one assumes a tornado affects only one square mile and there are 965 square miles in Sacramento County, the annual probability of a tornado hitting any particular square mile in the planning area is .07 in 965, or a 0.0001 percent (.000001) chance.

FOG Fog results from air being cooled to the point where it can no longer hold all of the water vapor it contains. For example, rain can cool and moisten the air near the surface until fog forms. A cloud-free, humid air mass at night can lead to fog formation, where land and water surfaces that have warmed up during the summer are still evaporating a lot of water into the atmosphere – this is called ‘radiation fog’. A warm moist air mass blowing over a cold surface can also cause fog to form-this is called ‘advection fog’. The National Climate Data Center (NCDC) data shows severe fog incidents in 1997, 1998, and 1999. In these three events there has been one death, 38 injuries, and $403,000 in property damage. Primarily, these incidents have been multi-vehicle pileups on the Interstate Highways.



FLOODING History clearly highlights floods as the most frequent natural hazard impacting Sacramento County. Floods are among the most costly natural disasters in terms of human hardship and economic loss nationwide. There are three different types of flood events in the Sacramento area: flash, riverine and urban stormwater. Regardless of the type of flood, the cause is often the result of severe weather and excessive rainfall, either in the flood area or upstream reach.

The term ‘flash flood’ describes localized floods of great volume and short duration, generally in less than four hours. In contrast to riverine flooding, this type of flood usually results from a heavy rainfall on a relatively small drainage area. Precipitation of this sort usually occurs in the spring and summer. Dam failures also often result in flash flooding. However, dam failures are addressed separately later in this section.

Riverine flooding occurs when a watercourse exceeds its ‘bank-full’ capacity and is the most common type of flood event. Riverine flooding occurs as a result of prolonged rainfall that is combined with saturated soils from previous rain events, or combined with snowmelt, and is characterized by high peak flows of moderate duration and by a large volume of runoff. Riverine flooding occurs in river systems whose tributaries drain large geographic areas and can include many watersheds and sub-watersheds. The duration of riverine floods varies from a few hours to many days. Factors that directly affect the amount of flood runoff include precipitation amount, intensity and distribution, soil moisture content, channel capacity, seasonal variation in vegetation, snow depth and water-resistance of the surface due to urbanization. In Sacramento County, riverine flooding can occur anytime during the period from November through April. Flooding is more severe when antecedent rainfall has resulted in saturated ground conditions. Urbanization may increase peak flow runoff as well as the total volume of stormwater runoff from a site. The increase is dependent upon the type of soil and its topography compared to the proposed development. The Soil Conservation Service (now known as the Natural Resources Conservation Service) has surveyed the soil types in the county. Much of the county is tight soil with low permeability.

In Sacramento County, there are three main rivers, the Sacramento, American and Cosumnes Rivers. The Sacramento and American Rivers and several tributaries to the east, north, and west all flow toward the City of Sacramento. The watersheds of these two main rivers drain most of northern California and part of southern Oregon for a total of some 26,000 square miles. The third, the Cosumnes River, flows southwesterly through the southern portion of the County and into the delta region.

All surface water originating in or passing through Sacramento County discharges to the ocean via the Sacramento and San Joaquin Rivers, which join at the head of Suisun Bay, the easternmost arm of San Francisco Bay. With a combined tributary drainage area of approximately 60,000 square miles, these rivers provide most of the freshwater inflow to San Francisco Bay.



High water levels along the Sacramento and American Rivers are a common occurrence in the winter and early spring months due to increased flow from storm runoff and snowmelt. An extensive system of dams, levees, overflow weirs, drainage pumping plants, and flood control bypass channels strategically located on the Sacramento and American Rivers has been established to protect the area from flooding. These facilities control floodwaters by regulating the amount of water passing through a particular reach of the river. The amount of water flowing through the levee system can be controlled by Folsom Dam on the American River and the reserve overflow area of the Yolo Bypass on the Sacramento River. However, flood zones in Sacramento County are still extensive. Several areas of the county are still subject to flooding by the overtopping of rivers and creeks, levee failures, and the failure of urban drainage systems that cannot accommodate large volumes of water during severe rainstorms.

High flows on the Cosumnes River are less frequent, as the river is essentially dam free and has little in the way of flow regulation. Flooding along the river, such as in 1997, has been due to high water coupled with the failure of non-standard, poorly constructed private levees.

EARTHQUAKES There has never been a recorded earthquake that occurred in Sacramento County. Faults have been identified that traverse the Sacramento County area however, and historic earthquakes both to the west and the east have been felt in the county and generated damage-producing ground motions. There have been no earthquake disasters declared in Sacramento County.

In 1892, an earthquake centered between Vacaville and Winters caused minor structural damage in nearby communities, including Sacramento (and the State Capitol) and Lincoln (in neighboring Placer County.

In 1906, the estimated 8.0 plus Richter magnitude San Francisco earthquake, on the northern segment of the San Andreas Fault, damaged the State Capitol, the full extent of which was not discovered until the mid-1970s.

December 16, 1954, a series of earthquakes, particularly the major 7.1 Richter magnitude earthquake at Fairview Peak, Nevada (about 100 miles east of Carson City) caused some damage in Sacramento while virtually no damage occurred in Reno.

August 1, 1975, a moderate magnitude earthquake 5.7 occurred near Oroville on the Cleveland Hills fault and was felt in Sacramento.



Earthquakes have been felt and ground motions recorded in Sacramento from more recent events including:

• 1980, the Livermore/Green Valley • 1980, Mammoth Lakes • 1983, Coalinga • 1989, Loma Prieta • 1992, Petrolia and • 2004, San Simeon.

Both the San Andreas Fault and the closer Hayward Fault have the potential for experiencing major to great events. The US Geological Survey recently (February 2004) estimated that there is a 62 percent probability of at least one 6.7 or greater magnitude earthquake occurring that could cause widespread damage in the greater San Francisco Bay area before 2032.

Another potential earthquake source are the faults associated with western edge of the Central Valley, recently defined as the Coast Range Central Valley (CRCV) boundary thrust fault system. Various documents define portions of this little known system as the Midland Fault Zone or the Dunnigan Hills fault where the 1892 Vacaville-Winters earthquake occurred. A southern part of the CRCV system may have been the source of the 1983 very damaging Coalinga earthquake.

Intense ground shaking can also create the phenomenon of liquefaction, where the soil looses its shear strength. The greatest possibility for liquefaction in the County occurs where structures may be placed upon inadequate soils or fill material.

The County has adopted the Uniform Building Code and California Building Code standards to ensure that construction of any new structures meet the most stringent requirement for the Seismic Zone qualifications.

WILDLAND FIRES Generally, from June to October of each year, much of the County faces a serious threat from wildland fires. The California Department of Forestry and Fire Protection has rated much of the northern side of the American River Parkway as "Very High" under its Fire Hazard Severity Classification System. The eastern 1/3 of the county has been rated as "Moderate" and due to the volume and nature of the fuels, this area has the greatest history of fires in the county.

There are currently 12 fire protection jurisdictions located within the county of Sacramento. These jurisdictions represent both paid professional and volunteer departments. All of the fire agencies within the county have standing reciprocal Automatic Aid Agreements in place. Additionally, the California Department of Forestry and Fire Protection is responsible for providing wildland fire protection on all State Responsibility Area (SRA) watersheds and rangelands in Sacramento County.



Prevention and awareness are critical to reduce losses due to wildfire. The County enforces codes in compliance with State of California Government Code 1270, which provides regulations for fire safe standards applicable to CalFire “fire responsibility areas.” Sacramento County has also adopted the “Firesafe Requirements of Public Resources Code 4290.” This code provides for wildland/urban interface fire safety controls. The County also adopted requirements for Class A roofing. In addition the County adopted a fire implementation plan for Eastern Sacramento County.

DISEASE OUTBREAK Massive disease outbreaks may be a major risk for the County as it has become more urban. The County Health Department completes a regular surveillance of diseases reported in the area. The County Health Officer would take early, direct actions to isolate and treat virulent, communicable diseases should they appear in the County. The most likely source for such outbreaks would be from tourists or people fleeing an outbreak area elsewhere. The outbreak of most concern would be a pandemic flu, as occurred during and just after WWI. A terrorist act could also be the source of a serious communicable disease.

VOLCANIC ERUPTION There are a number of volcanoes in California that could become active. Special planning considerations are necessary if these volcanoes are within 100 miles of the County. This planning should be discussed with all emergency services in local government, as well as the private sector, non-profits, and the public. A Mono County volcanic eruption could impact Sacramento County government operations. In select geographic locations, depending on the wind, volcanic ash may cause health and equipment operation problems. Ash from the Mount St. Helens explosion in 1980 affected government operations as far as three states downwind. Although the Long Valley Caldera is some 130 miles southeast of Sacramento, it still offers a major threat. The Caldera can produce pyroclastic flows, ash clouds, and major earthquakes.

The last major volcanic explosion in California was Mount Lassen in 1914. Mount Lassen is still considered potentially active and is also about 130 miles northeast of Sacramento.

HAZARDOUS MATERIALS A hazardous material is any substance that is flammable, combustible, corrosive, poisonous, toxic, explosive or radioactive. Hazardous materials require special care in handling and storage due to the harm they pose to public health, safety and the environment. Many government agencies inspect these facilities to ensure facilities are in compliance with State and Federal regulations.

There are approximately 5400 businesses in Sacramento County that store, handle or use hazardous materials, hazardous waste and/or have underground storage tanks. This total includes a wide variety of small size businesses to large-scale industries. In addition, there are approximately 85 facilities that store, handle or use extremely hazardous materials. These facilities are regulated under the California Accidental Release Prevention (Cal-ARP) program and are subject to enhanced oversight.



Most of the Cal-ARP sites located within Sacramento County are water well facilities that have chlorine gas or refrigeration units that use anhydrous ammonia.

Sacramento County has several major transportation arteries that traverse the region such as Interstates 5 and 80 as well as Highways 50 and 99. Hazardous materials and hazardous waste are transported daily along these routes as well as via rail lines that are located throughout the county. The Sacramento County Area Plan to Emergency Response of Hazardous Materials Incidents addresses how any accidents or situations will be handled.

The Sacramento County Environmental Management Department (EMD) is the local regulatory agency which collects and disseminates to the fire departments the Hazardous Materials Business Plan prepared by facilities that store or manage hazardous materials or generate hazardous waste in quantities greater than statutory threshold amounts. This plan contains chemical inventory sheets, site map, emergency contingency plan and other information needed by first responders. EMD staff performs inspections of these facilities to ensure public health and the environment is not at risk.

In addition, EMD’s Hazardous Materials Response Team works closely with HazMat units from the Sacramento Fire Department and the Sacramento Metropolitan Fire District in handling incidents such as spills on the highway, emergencies at businesses, abandoned containers, and clandestine drug labs.

The various agencies that respond to incidents operate according to the Sacramento County Area Plan to Emergency Response of Hazardous Materials Incidents. This plan delineates the roles and responsibilities of each responding agency.

Most releases of hazardous materials are in relatively small quantities and are quickly contained and isolated. In the event of a major release, especially involving a Cal-ARP facility, evacuations involving large areas could be required. Physical damage is generally limited to the immediate surroundings. However, the health threat potential could be extensive depending on climatic conditions.

TRANSPORTATION EMERGENCIES AND MULTI-CASUALTY INCIDENTS (MCI) Interstates 5 and 80, and State Highways 99 and 50, are the primary transportation access routes through Sacramento County (see Map 15). The County is primarily susceptible to transportation emergencies involving major truck/auto accidents. Many of these emergency situations may cause ancillary emergencies such as hazardous materials spills, which may require evacuation and sheltering efforts (especially in urban areas).

Major trucking routes include Interstates 5 and 80, and State Highways 99 and 50. Hazmat traffic has steadily increased due to increased local and adjacent county development. Many trucks transport hazardous materials along the interstates and highways, including propane, anhydrous ammonia and military armaments. Motor carrier transportation of hazardous materials, principally corrosives and other hazardous materials are generally transported along these routes.



A countywide public 9-1-1 paramedic transport system and private ambulances, as well as busses from public transit and local schools would be primary sources of transportation for a mass casualty incident (MCI). Several regional helicopter ambulance services are available to airlift the most severely injured patients. These resources have proven extremely effective in the past for managing the large number of local MCI’s encountered. Law enforcement, fire, medical personnel work closely during MCI events, which can include the application of mutual aid from other counties, as outlined in the Region IV MCI and Medical Health Disaster Plan.

AIRPLANE CRASH The impact of an aircraft creates the potential for multiple explosions, resulting in an intense fire. The crash may cause injuries, fatalities, and the destruction of property at and adjacent to the impact point, including the ignition of a wildfire. The time of day when the crash occurs may have a profound effect on the number of dead and injured due to exposure. It can be anticipated that the mental health needs of survivors, surrounding residents, and emergency responders will greatly increase due to the trauma associated with numerous casualties.

There are five airports within the Sacramento County area. They are:

• Sacramento International Airport • McClellan Airport • Mather Airport • Sacramento Executive Airport • Franklin Field

Aircraft Rescue Fire Fighting (ARFF) teams are present at all of these airports with the exception of Franklin Field. At each of the airports the Airport Department has a planned Unified Command between Fire Departments/Districts and airport law enforcement departments. This Unified Command structure is not available at Franklin Field. At Sacramento International Airport the County maintains its own fire department. The City of Sacramento supports the ARFF team at Sacramento International in the event that mutual aid is required. McClellan has an ARFF team that is supported by the Metropolitan Fire District. Metro Fire maintains a fire station at the McClellan Airport. In the event of an Aircraft incident at McClellan Airport, Sacramento International Fire Department would send a Battalion Chief for command purposes to the scene at McClellan Airport.

The County Airport Department maintains plans with Sacramento City Fire Department and Metropolitan Fire District to handle an offsite crash at any of our airports. Once a year the County staff schedules a meeting with the two fire Departments to ensure the plans remain up to date and that all parties are in agreement regarding the activation of the response plans.



Four of the five airports can receive small aircraft as well as commercial jets. Franklin Field is the only exception. Air Force pilots from Beale Air Force Base routinely conduct touch and go take offs and landings at Sacramento International Airport.

Despite the public’s concern about airline safety, air travel is the safest way to travel within the United States and abroad. The picture of an Airliner crash landing and tipping end over end is a very remote possibility. The more likely scenario is a short landing, where the commercial airliner lands short of the runway and ends up in the dirt; a long landing where the commercial airliner runs off the end of the runway and ends up in the dirt or a declared in-flight emergency by the pilot. Rarely, if ever, is fog a factor in commercial airline mishaps.

The Aircraft Rescue Fire Fighting teams (ARFF) will respond to all in-flight emergencies called by pilots coming in and out of the airports. An in-flight emergency could include fire in the cockpit or any part of the airplane. In the case of a fire in the airplane, the pilot has the requirement to land the airplane as quickly as possible. If the pilot’s only alternative is to land on a field or perhaps on a freeway, that is the pilot’s decision.

DAM FAILURE Dam failure is the collapse or failure of an impoundment that causes significant downstream flooding. Flooding of the area below the dam may occur as the result of structural failure of the dam, overtopping, or a seiche, similar to a tidal wave but usually in a fully enclosed body of water. The principle consequences of dam failure are injury, loss of life, and significant downstream property damage. The collapse and structural failure of dams in Sacramento County may be caused by a severe storm, earthquakes, internal erosion of piping caused by embankment and foundation leakage. Seismic activity may also cause inundation by the action of a seismically induced wave that overtops the dam without causing failure of the dam, but significant flooding downstream. Landslides flowing into a lake may also cause failure or overtopping.

The loss of some of these dams can be life threatening, and can be the source of an interruption of local potable water, interruption of power generation, some road blockage, and localized flooding in populated areas of Sacramento County. In some cases there are consequences downstream, outside of the County, for populations outside of the authority of this emergency plan.

CIVIL DISTURBANCE Civil disturbances include incidents that are intended to disrupt a community to the degree that law enforcement intervention is required to maintain public safety. Civil disturbances are generally associated with controversial political, judicial, or economic issues and/or events.

The effects of a civil disturbance are varied and are usually based upon the type, severity, scope and duration of the disturbance. The effects of civil disturbances include traffic congestion or gridlock, illegal assemblies, disruption of utility service, property damage, injuries and potentially loss of life.



Although the County Emergency Operations Office is prepared for such events, including automatic aid agreements with adjacent Counties, the fact remains that the County of Sacramento has had few large-scale civil disturbances that would even begin to compare with the LA Riots. There are currently few events that are planned on a regular basis that are anticipated to develop civil unrest, e.g., the last day of the State Fair at CalExpo.

TERRORISM Terrorism involves a struggle between competing principles and ideologies below the level of conventional war. According to the Federal Emergency Management Agency (FEMA) publication Principle Threats Facing Communities and Local Emergency Management Coordinators, most terrorist activities are bombing attacks. Principal targets include military personnel and facilities, commercial establishments, and federal government buildings and property.

The effects of terrorist activities can vary significantly, depending on the type, severity, scope, and duration of the activity. Terrorist activities may result in disruption of utility services, property damage, injuries and the loss of lives.

To date, terrorism has been targeted primarily against United States of America interests abroad. However, the events of September 11, 2001, as well as the previous World Trade Center bombing in New York and the Oklahoma City bombing, are reminders that terrorist attacks may occur anywhere in the United States. Although no known terrorist attacks have occurred in Sacramento County, the County and the jurisdictions within the County are still vulnerable to the threat of terrorism. Numerous critical infrastructure sites as well as major public events are potential targets for attack. The primary concern with Sacramento County is the after affects of an attack on high population zones in the Bay Area. The influx of the survivors, or those in fear, could easily overcome local resources. In the case of bioterrorism, it could bring highly communicable diseases.

The County has identified the primary threats to the county and its vulnerabilities through the self-assessment tools provided by the Office for Domestic Preparedness under the Department of Justice and U.S. Department of Homeland Security. Through a series of these assessments, and grants to upgrade response equipment, training, and testing, the County continues to increase its terrorism consequence management capability. The County has also completed a bioterrorism response plan through the Public Health Division of the Sacramento County Health and Human Services Department.

CRITICAL INFRASTRUCTURE FACILITIES VULNERABLE TO HAZARDS During a disaster that affects the County of Sacramento, there are certain facilities within the County that may be more at risk than other facilities, or that have a high profile for impacts on the public health and safety of the residents. The following locations are considered as primary sites to protect when a hazard threatens to reach the emergency or disaster level:

• Hazardous materials storage sites, water treatment facilities and

transportation/equipment yards—to include explosives storage



• Water treatment and sewage treatment facilities • Large dams and their spillways (Folsom) • County, State and federal administration offices • Critical data centers • Court Building • Utility lines, including water distribution pipelines • Utility distribution hubs (transmitters, transformers, pumping stations) • Critical bridges • Water impoundments for public drinking water • Major tourist sites/attractions.

MEDICAL FACILITIES There are many hospitals located within Sacramento County. There are also many nursing facilities or rest homes in the County. These facilities are subject to major disruption from flood, disease outbreak, earthquake, utility interruptions, hazardous materials releases, and terrorist acts.



TELECOMMUNICATIONS Telephone systems may be affected by system failure, overloads, loss of electrical power and possible failure of some alternate power systems. Immediately following a serious earthquake, a large riverine flood, specific flash flooding or severe winter storms, and fires beneath lines or near relay stations, numerous failures may occur, compounded by system use overloads. This will likely disable up to 80% of the telephone system for at least one day, although a week of interruption could occur. Radio systems are expected to operate at 40% effectiveness the first 12 hours following a major earthquake, increase to 50% for the second 12 hours, then begin to slowly decline to approximately 40% within 36 hours. Microwaves systems will likely be 30% or less effective following a major earthquake. Heavy winter storms and wildfires are capable of complete damage to these systems, which may cause longer interruptions to allow for repairs. The emergency services agencies depend on a series of radio frequency repeaters and telephone landlines that cross into the county.

ELECTRICAL POWER Transmission lines are vulnerable to many hazards, due to their length and remoteness of the lines. Damage to generation/ substations may cause outages. Earthquakes have intense effects on high voltage equipment such as power plants. Damage to substations affects delivery. Repairs to electrical equipment require physically clearing roadways, and movement of special equipment. Restoration of local electrical power will be coordinated with regional and local utility representatives. Up to 60% of the system load may be interrupted immediately following the initial earthquake shock wave. Much of the affected area may have service restored in days however, a severely damaged area's underground distribution system may create longer service delays.

NATURAL GAS There are major natural gas distribution lines in the County. When these are damaged there may be service interruptions as well as the threat of fires and explosions. The use of propane is also common. Propane tanks are susceptible to physical damage from impact, earthquake, and fires. They may also explode during wildfires or when displaced by flash flooding. The primary threats are directly to homes with propane tanks in their yards. There are several propane storage yards within the County that could expose large numbers of residents to danger.

POTABLE WATER Water availability and distribution for supporting life, and treating the sick and the injured is of major concern to the County of Sacramento. The primary source for water in much of the County is from rivers. Water system distribution can be highly susceptible to earthquake activity. Treated potable water systems could be impacted if treatment stations and/or the pipelines that distribute potable water are damaged. Water treatment facilities could also be severely impacted by high water runoff from flash flooding, or riverine flooding, as occurred in the 1997 floods.



TRANSPORTATION Significant damage or blockage can occur on the primary arteries through Sacramento County. Interstates 80 and 5 and Highways 50 and 99 all have passes and bridges that, if impeded, would restrict travel in the County. There are also rail systems, airports, harbors and substantial mass transit systems in and nearby Sacramento County.


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SECTION 3: EMERGENCY MANAGEMENT PRINCIPLES

ASSUMPTIONS Certain assumptions were developed during the development of this plan. These assumptions translate into basic principles associated with conducting emergency management operations in preparation for, response to and recovery from major emergencies.

• Emergencies or disasters may occur at any time, day or night, in populated, as well as remote, areas of Sacramento County.

• Major emergencies and disasters will require a multi-agency, multi-jurisdictional response. For this reason, it is essential that the Standardized Emergency Management System (SEMS), and, in many cases, a Unified Command, be implemented immediately by responding agencies, and expanded as the situation dictates.

• Sacramento County is primarily responsible for emergency actions in the County unincorporated area and will commit all available resources to save lives, minimize injury to persons and minimize property damage.

• Large-scale emergencies and disasters may overburden local resources and necessitate mutual aid from neighboring jurisdictions.

• Large-scale emergencies and disasters and the complex organizational structure required to respond to them pose significant challenges in terms of warning and notification, logistics, and agency coordination.

• Major emergencies and disasters may generate widespread media and public interest. The media must be considered an ally in large-scale emergencies and disasters; it can provide considerable assistance in emergency public information and warning.

• Large-scale emergencies and disasters may pose serious long-term threats to public health, property, the environment, and the local economy. While responding to significant disasters and emergencies, all strategic decisions must consider each of these threats.

• Disasters and emergencies may require an extended commitment of personnel and other resources from involved agencies and jurisdictions.



EMERGENCY MANAGEMENT PRIORITIES, GOALS & OBJECTIVES

Priorities County government will consider the following priorities in evaluating the mission, goals, objectives and operational strategies during response to each emergency:

• Protect human life and rescue those in immediate danger including the timely dissemination of warning information

• Save human lives and prevent further injuries

• Maintain the continuity and sustainment of essential government operations

• Safeguard and maintain critical infrastructure operations

• Protect public and private property

• Provide for the needs of survivors and those directly impacted

• Restore essential services

• Provide emergency public information

• Restore normal operations

EMERGENCY MANAGEMENT ACTIVITIES

County Government Responsibilities In accordance with CGC § 8607, Sacramento County functions as part of SEMS. Local government emergency operations, including mutual aid activities are to be conducted and coordinated using SEMS, as appropriate. Sacramento County responsibilities include:

• Manage county government’s preparedness for, response to and recovery from major emergencies and disasters that may impact unincorporated areas of Sacramento County

• Function as the central point of contact between all local government entities and state government on matters associated with emergency management operations

• Provide a single point of contact for information on an emergency, as well as resource requirements and prioritization

• Act as a single ordering point for response resources, including mutual aid forces through the respective Operational Area coordinators



Operational Area Responsibilities The Operational Area emergency organization in almost all counties, including Sacramento County, is the same as the designated county emergency management organization. An operational area is used by the county and the political subdivisions comprising the operational area for the coordination of emergency activities and to serve as a link in the system of communications and coordination between the state's emergency operation center and the operation centers of the political subdivisions comprising the operational area. When activated, the county/OA EOC will establish contact with all local government jurisdictions, including incorporated cities, special districts, and major state agencies operating within the Sacramento OA.

As the designated Operational Area coordinating agency, county government will work closely with all other responding jurisdictions and agencies to:

• Serve as the single focal point for the centralized coordination of priorities, resources and information, during a disaster or emergency affecting Sacramento County

• Serve as a communication link to the state for all cities within the Sacramento Operational Area.

• Provide a facility (Emergency Operations Center) from which the county serves as the Operational Area.

• Coordinate the request for and prioritize the distribution of mutual aid resources received through the state and other out-of-county jurisdictions.


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SECTION 4: PREPAREDNESS & READINESS

GENERAL Preparedness is a community-wide function and responsibility. It requires organizational preparation as well as individual awareness and action. Individuals, community organizations, industry, and government must join and act together to prepare for, respond to and plan the recovery from the effects of disaster.

Readiness is a governmental responsibility that addresses planning and coordination for response to and recovery from disaster. Readiness is an ongoing, constantly changing process that requires a collaborative effort at all levels of government to ensure that any emergency or disaster would be dealt with in most effective possible.

It is critical that the community and government at all levels assume responsibility for community survival prior to, during and following disaster.

COMMUNITY PREPAREDNESS & AWARENESS

General Provisions The public's response to any emergency is based on an understanding of the nature of the emergency, the potential hazards, the likely response of emergency services, and knowledge of what individuals and groups should do to increase their chances of survival and recovery.

Public awareness and education prior to an emergency or disaster will directly affect Sacramento County’s emergency operations and recovery efforts. For this reason, the County Emergency Operations Office will make emergency preparedness information from county, state and federal sources available to the Operational Area (OA) member jurisdictions and the citizens of Sacramento County.

Preparedness Actions In identifying general preparedness actions, county government works with community based organizations, faith-based organizations, local governments, private industry, preparedness groups, and other entities to provide information relating to individual and group preparedness.

Government is limited in its ability to provide endless services and support during times of disaster, so public preparedness is essential for ensuring individual and organizational safety and protection. The County will continue to work with all members of the community to achieve a higher level of individual and organizational preparedness, using available resources and methods of communication including:

• Presentation of preparedness materials for individuals and groups • Presentation of information seminars • Sponsoring community preparedness training • Dissemination of preparedness information through the media



• Collaboration with community organizations on preparedness activities • Sponsorship of community-based emergency response teams (CERT) • Development of school-based preparedness education for families • Specialized preparedness assistance to institutions and groups representing

populations at risk or non-English language cultures

CONTINUITY OF GOVERNMENT

Introduction A major disaster could result in great loss of life and property, including the death or injury of key government officials, the partial or complete destruction of established seats of government, and the destruction of public and private records essential to continued operations of government and industry.

In the aftermath of a major disaster, during the reconstruction period, law and order must be preserved and, so far as possible, government services must be maintained. This can best be done by civil government. To this end, it is particularly essential that the local units of government continue to function.

Applicable portions of the California Government Code and the State Constitution (listed in Paragraph 6) provide authority for the continuity and preservation of state and local government.

Responsibilities Government at all levels is responsible for providing continuity of effective leadership and authority, direction of emergency operations, and management of recovery.

PRESERVATION OF LOCAL GOVERNMENTS

Succession of Local Officials Sections 8635 through 8643 of the Government Code:

1) Furnish a means by which the continued functioning of political subdivisions can be assured by providing for the preservation and continuation of (city and county) government in the event a State of Emergency or Local Emergency is declared.

2) Authorize political subdivisions to provide for the succession of officers (department heads) having duties related to law and order and/or health and safety.

3) Authorize governing bodies to designate and appoint three standby officers for each member of the governing body and for the Chief Executive, if not a member of the governing body. Standby officers may be residents or officers of a political subdivision other than that to which they are appointed. Standby officers take the same oath as regular officers and are designated Nos. 1, 2, and 3.

4) Authorize standby officers to report ready for duty in the event of a State of Emergency, or Local Emergency at the place previously designated.



5) Authorize local governing bodies to convene as soon as possible whenever a State of Emergency, or Local Emergency exists, and at a place not within the political subdivision. Authorize that, should all members, including all standbys, be unavailable, temporary officers shall be appointed as follows:

• By the Chairman of the Board of the county in which the political subdivision is located, or

• By the Chairman of the Board of any other county within 150 miles (nearest and most populated down to farthest and least populated), or

• By the mayor of any city within 150 miles (nearest and most populated down to

farthest and least populated).

Temporary County Seats Section 23600 of the Government Code provides that:

• Boards of Supervisors shall designate alternative temporary county seats which

may be outside the county boundaries.

• They cannot purchase real property for this purpose.

• Their resolution is to be filed with the Secretary of State.

• Different sites can be designated subsequently if circumstances require.

Temporary Seat of Government The temporary seat of government in the event the normal location is not available because of emergency conditions will be the county’s primary EOC site.

The temporary seat of government site will be:

Sacramento Regional Homeland Security and Emergency Training Center 3720 Dudley Road McClellan, CA 95652

The secondary site will be:

La Sierra Community Center

5325 Engle Road

Carmichael, CA 95608



Suspensions and Appointments Section 8621 of the Government Code:

The code specifies that during a State of War Emergency, in the event that any officer of a political subdivision or employee of a state agency refuses or willfully neglects to obey an order or emergency regulation, the Governor may suspend that person and designate a replacement.

Preservation of Essential Records Essential records are defined as those records that are necessary to:

• Protect the rights and interests of individuals. Examples include vital statistics, land and tax records, license registers, and articles of incorporation.

• Conduct emergency response and recovery operations. Records of this type include utility system maps, locations of emergency supplies and equipment, EOPs, and personnel rosters.

• Reestablish normal governmental functions. Included in this group are charters, statutes, ordinances, court records, and financial records.

Each level of government down to the departmental level is responsible for designating a custodian for essential records, and ensuring that essential records storage and preservation is accomplished. Essential records storage methods that might be utilized include, but are not necessarily limited to:

• Overhead sprinkler systems.

• Fireproof containers.

• Vault storage (both in and out of the jurisdiction).

The County Clerk-Recorder is the designated custodian of vital records.



STANDBY OFFICERS FOR THE LOCAL GOVERNING BODY

Lines of Succession and Alternate Officials 1. The Board of Supervisors has provided for the preservation of county government

in the event of an emergency. The board may designate standby officers to reconstitute itself in the event of disaster-caused vacancies.

2. A successor to the position of Director of Emergency Operations (County Executive) is designated by the Emergency Operations Ordinance. Should the director be unable to serve, the Assistant Director (Sheriff) shall succeed. An individual serving as Acting Director shall have the authority and powers of the Director.

3. The alternates to key positions in units of the emergency organization are shown in the Emergency Communications Manual.

4. The alternates to key positions in the non-response departments and agencies of government, or of business and industry, are shown in executive or administrative orders (or the equivalent) issued by department or agency authorities.

READINESS

Planning County government, within the established Emergency Operations Office (EOO) and other departments and agencies (Sheriff, DHA,DHHS, DOT, etc.), conducts a wide array of emergency planning activities. Planning efforts include development of internal operational documents as well as interagency response plans having multi-jurisdictional participation.

In addition to the planning activities conducted by EOO, the departments mentioned above and many other county agencies develop internal preparedness and contingency plans to ensure provision of government services and maintenance of departmental functions during disasters. The Department Operations Plan (DOP) is an integral supporting component of the master Emergency Operations Plan (EOP).

Emergency readiness cannot be conducted within a vacuum. The County, as the Operational Area coordinating agency is responsible for working with all other local government jurisdictions, special districts, and government agencies considered a component of the Sacramento Operational Area. Such coordination extends to the following activities:

• Interagency plan development • Interagency training coordination • Interagency exercise development and presentation • Interagency response management • Interagency emergency public information activities



Response Readiness In addition to planning and interagency coordination functions, the emergency management program also involves other readiness functions such as resource procurement, EOC maintenance, county personnel training, communications enhancements, mobilization exercises, situation assessments, and volunteer coordination.

The Emergency Operations Office maintains for preparedness reasons an Emergency Communications Manual and an Emergency Resource Directory to obtain public and private sector resources.

These resources include those that might be needed in the initial stages of an emergency response such as: sand, sandbags, barricades, buses, heavy equipment, sanitation equipment, pharmaceutical supplies, and building materials.


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SECTION 5: CONCEPT OF OPERATIONS

STANDARDIZED EMERGENCY MANAGEMENT SYSTEM California Government Code § 8607 (the Standardized Emergency Management System or SEMS) governs how cities, counties, special districts, and the State respond and coordinate emergency response and recovery operations. SEMS identifies how each level of the emergency organization responds, whether by the actual direction of field forces, or by the coordination of joint efforts of public and private agencies. The National Incident Management System (NIMS), as required by Homeland Security Presidential Directive (HSPD) 5 supports the use of the Incident Command System (ICS) in the field and establishes operating standards for local government.

Organizational Structure and Function

Field Utilizing the Incident Command System (ICS) field responders establish command of the scene, develop appropriate incident action plans, notify appropriate response agencies, and request and deploy resources as needed, in accordance with identified incident objectives.

Local Government Local government consists of the county, cities and special districts. Each level of local government provides response to the emergency with the required available resources. As needed, the impacted Local Government entity may request assistance from the next level of response, the Operational Area.

Operational Area (OA) The Operational Area is a level of support and coordination above that of the local jurisdiction. Boundaries of Operational Areas are coincident with geographical county boundaries. The Sacramento Operational Area (SacOA) includes all the cities within the county (i.e. Citrus Heights, Elk Grove, Folsom, Galt, Isleton, Rancho Cordova and Sacramento), all special districts, (i.e. fire, school, reclamation, etc.) and the unincorporated regions of Sacramento County.

If the county requires emergency resources beyond that obtainable through normal mutual aid agreements, then the Director of Emergency Operations will activate the Operational Area. The Operational Area will be the focal point for information transfer and support requests by cities, special districts and the unincorporated areas within the county.

Requests for support that cannot be handled within the Operational Area will be made to the State Office of Emergency Services, Inland Region. Information will be provided to the Region on a regular basis so they may appropriately allocate resources between Operational Areas.



Mutual Aid Region The State of California Office of Emergency Services divides the State of California into three (3) administrative regions, which encompass six Mutual Aid Regions. Sacramento County is in Mutual Aid Region IV, administratively part of the Inland Region. A Regional Administrator heads the emergency management staff of the Inland Region. The regional emergency management staff will coordinate and support local emergency operations at the request of Operational Area Coordinators. The regional staff will submit all requests for support that cannot be obtained within the region, and other relevant information, to the State Emergency Management Staff.

State The State Emergency Management Staff is headed by the Director of the State Office of Emergency Services (acting as a representative of the Governor), or designated representative, and assisted by coordinators provided by state agencies. When activated, the State staff will be responsible for coordinating statewide emergency operations, to include the provision of mutual aid and other support and the redirection of essential supplies and other resources to meet local requirements.

Federal The National Response Framework (NRF) identifies the methods and means for the federal resources to provide support to the state and local government. The resources would be accessed via the SEMS process through the mutual aid region and state operations center.


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