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2024 COMPREHENSIVE EMERGENCY MANAGEMENT PLAN024 Comprehensive Emergency Management P Clearwater Comprehensive Emergency Management Plan 2024 City of Clearwater 2024 Comprehensive Emergency Management Plan Clearwater Division of Emergency Management 1140 Court Street Clearwater, Florida 33756 Clearwater Comprehensive Emergency Management Plan 2024 Contents RECORD OF SIGNIFICANT CHANGES 4 Introduction 5 Purpose 5 Scope 5 Objectives 5 Assumptions 6 Threats and Hazards Identification and Risk Assessment 7 CEMP Development Methodology 7 Emergency Management Coordinating Committee 7 The Emergency Management Planning Team 7 The Basic Plan 8 Functional Annexes 8 Concept of Operations 8 EOC Activation 8 EOC Activation Conditions 9 EOC Organizational Structure 9 Physical Space 10 Organization of Personnel 11 Battle Rhythm 15 Documentation 15 Demobilization 15 Clearwater Comprehensive Emergency Management Plan 2024 RECORD OF SIGNIFICANT CHANGES Date Description of Change Page or Section Clearwater Comprehensive Emergency Management Plan 2024 Introduction Located along the gulf coast of central Florida, the City of Clearwater is a full-service city with a council- manager form of government and 19 departments servicing an area of over 25 square miles. Clearwater is home for over 118,000 permanent residents, thousands of annual visitors, a robust business community, several cultural and community institutions, a regional supplier of natural gas and one of the most popular beaches in the United States. These stakeholders expect their government to provide awareness, planning, resources, and assistance in the event of disasters and emergencies. The preparation for, and management of, disasters is an ongoing and complex responsibility of the city, requiring close coordination between all levels of government, public, and private organizations. Purpose This CEMP will provide, in coordination with Pinellas County Emergency Management, uniform policies and procedures for the effective execution of coordinated actions necessary to prepare for and respond to the wide range of disasters and emergencies which might affect the safety, health, and welfare of Clearwater stakeholders. This plan will ensure that all city departments, agencies, and partners are aware of their responsibilities to the following: • Prepare for the full range of potential disasters and their impacts. • Identify the capabilities and related resources needed to prepare for, respond to, and manage disaster conditions. • Constitute their functions to continue normal operations as soon as possible after a disaster. • Provide post -disaster recovery and reconstitution support to the community. • Establish policies and procedures for the conduct of emergency operations that are consistent with and supporting of the governing laws, disaster policies and plans of the State of Florida, Pinellas County, and the City of Clearwater. • Assist in anticipation, recognition, prevention, and mitigation of emergencies that may be caused or aggravated by inadequate planning for, and inadequate regulation of, public and private facilities and land use, among other causes. Scope The City of Clearwater Comprehensive Emergency Management Plan is designed to be implemented to manage the consequences of any natural, technological, or man-made disaster (other than war) affecting the City of Clearwater, its citizens, businesses, and other stakeholders. For the purposes of this Plan, a "disaster" is defined as an event that causes or threatens to cause multiple and concurrent emergencies and a significant disruption to public services. A disaster also has the potential to cause large loss of life and mass property damage. Objectives This CEMP: 1. Establishes fundamental policies, program strategies, and assumptions concerning the various potential hazards delineated in the Pinellas County Hazard Vulnerability Analysis. This includes procedures for disseminating warnings and for determining, assessing, and reporting the severity and magnitude of such disasters. 2. Establishes a concept of operations spanning the direction and control of an emergency or disaster from an initial monitoring through post -disaster response, recovery, and mitigation. Clearwater Comprehensive Emergency Management Plan 2024 3. Defines intra governmental coordination and intergovernmental coordination mechanisms to help facilitate delivery of immediate assistance, including direction and control of intra city, inter -city, county, state and federal response and recovery assistance. 4. Assigns specific functional responsibilities to appropriate city agencies and organizations, identifies where Pinellas County will take the lead role in emergency support functions, identifies training needed to support the CEMP, and outlines methods to coordinate with city departments, county agencies, private sector agencies, and volunteer organizations. This includes: • Defining the responsibilities of elected and appointed City officials and department directors. • Identifying and assigning the emergency responsibilities and functions of City departments and agencies. • Defining the responsibilities and functions of the Emergency Management Coordinating Committee. 5. Incorporates all supporting municipal department annexes required herein, which establishes the framework for the expeditious, effective, and coordinated deployment of City resources in response to disasters. 6. Outlines procedures for requesting aid when the magnitude of the disaster has exhausted city resources. 7. Assigns priorities to specific tasks for restoration of all municipal services disrupted by a disaster. 8. Prescribes ongoing public education and notification efforts to be undertaken by the city to inform the public about evacuation and preparation procedures to be followed prior to and in the event of a hurricane or potential or actual disaster. Assumptions 1. The City of Clearwater, as a community, has developed the capability to execute this plan to save lives, mitigate suffering, minimize the loss of property, and recover from the effects of an emergency. 2. The necessary Mutual Aid Agreements (MAA) and Memoranda of Understanding (MOU) have been negotiated with other political jurisdictions and private organizations by the city, Pinellas County, and by organizations that have functional responsibilities in this Plan. 3. Elements of Pinellas County and the State of Florida government have certain expertise and resources that may be utilized in relieving emergency or disaster -related problems that are beyond the capabilities of the City of Clearwater. County support capabilities and access arrangements for county assistance are described in the Pinellas County CEMP. State support capabilities and access arrangements for both state and federal assistance are described in the current state CEMP. 4. When an emergency threatens the City of Clearwater, applicable provisions of this Plan will be applied, the Emergency Operations Center (EOC) will be activated, and a State of Local Emergency (SLE) declared as appropriate to the severity of the situation. 5. Should city resources be inadequate to cope with a disaster, a resource request can be made through Pinellas County Emergency Management via Web EOC or its successor. All requests for State and Federal assistance should be forwarded through the Pinellas County Emergency Operations Center, where they will be analyzed and forwarded to the State Division of Emergency Management in Tallahassee. At the state level, they will be handled in accordance with the Statewide Mutual Aid Agreement. 6. This Plan will be used as the basis for specific implementing procedures and complimenting plans (SOP) developed by functional entities. Clearwater Comprehensive Emergency Management Plan 2024 Threats and Hazards Identification and Risk Assessment The Threats and Hazards Identification and Risk Assessment (THIRA) is a three- step risk assessment process, completed every three years. This assessment requires communities to identify threats and hazards that illicit the most concern and evaluate their ability to address core capabilities. A regional THIRA comprised of partner governments throughout the Tampa Bay region is utilized for this analysis. Capability targets identified in the regional THIRA are used to complete the Stakeholder Preparedness Review (SPR). The SPR allows communities to evaluate current capability levels, gaps in capabilities, ways to close these gaps and funding considerations. THIRA and SPR reports are independent support documents, specific data can be found in each of those plans. CEMP Development Methodology CEMP development is a continuous process that involves all areas of municipal government, other agencies and private stakeholders. The CEMP is comprised of several elements that share a common format to facilitate inter- agency use and to provide compatibility with the Pinellas County CEMP. Plan development and maintenance is a primary functional responsibility of the City's Emergency management Coordinator. Active and on-going participation in the emergency planning process, Plan production, and evaluation is required for members of the Emergency Management Coordinating Committee. Emergency Management Coordinating Committee The Emergency Management Coordination Committee (EMCC) consists of designated and empowered representatives of government agencies having operations in both the City of Clearwater and in Pinellas County. The City of Clearwater emergency management team meets twice a year to discuss planning, training, and operational needs to support their emergency management activities. In consultation with the core team, the Emergency Management Coordinator drafts the basic plan and revisions thereto, defining the plan, purpose, scope, and objectives, providing analysis of hazards and resource management issues as well as the other elements of the Basic Plan. The Emergency Management Planning Team The Emergency Management Planning Team (EMPT) consists of representatives from the EMCC and is responsible for meeting on an annual basis after the end of the Atlantic hurricane season to review the CEMP basic plan and its functional annexes to determine if changes need to be made based on new planning requirements, identified gaps, or identified areas of improvement. Changes are subsequently made to keep the plan current and functional utilizing the following processes. 1. The Lead Agency in conjunction with the Emergency Management Coordinator, drafts an Annex for each functional area. This is done in coordination with the agencies that have support roles in that functional area. Each draft Functional Area Annex is reviewed by all affected agencies to advance overall coordination and understanding. In the Annex drafting and review process, the Basic Plan also undergoes scrutiny for adequacy of policy, content, coverage, and concepts. The result of this reiterative draft -and -review activity is production of a final draft Basic Plan with Annexes. 2. The final draft Basic Plan with Annexes is reviewed by the City Attorney, the City Manager, city department and agency principles, and Pinellas County Emergency Management for official written concurrence before presentation to the City Council for adoption. Recognizing that the planning process is unending, Plan adoption may be undertaken even though some elements may be incomplete. Clearwater Comprehensive Emergency Management Plan 2024 3. Standard Operating Procedures (SOP) will be developed by each Department to support the Plan. Some SOPs will be developed concurrently with development of the Basic Plan and the Annexes; others will follow its formal adoption. 4. Copies are distributed for official record, for users, and for public access. Obsolete plans and plan elements are recovered in exchange for new editions. A signature of the Department Head or Agency Representative on the signature sheet indicates receipt of the new Plan. Any changes to the Plan after initial distribution will be sent to all parties on the distribution list/signature sheet. 5. Complete rewriting and reprinting of the CEMP and submission to the City Manager for formal adoption, unless by exception, is recommended every 5 years, or following the County's CEMP. 6. The signature list reflecting distribution of Plan copies is kept on file in the Clearwater Clerk's office. The Basic Plan The Basic Plan section of the CEMP describes, in general terms, how the City of Clearwater will mitigate, prepare for, respond to, and recover from the impacts of a large-scale emergency or disaster. It contains sections that address areas such as: the responsibilities of the city government, method of operations, financial policies that will be adhered to during times of emergency or disaster, and continuity of government. The Basic Plan also describes how the City of Clearwater will manage large scale emergencies and disasters in accordance with the National Incident Management System (NIMS). Additionally, this Plan contains a section that addresses recovery issues to ensure a rapid and orderly implementation of rehabilitation and restoration programs for persons and property affected by an emergency or disaster. Functional Annexes The Functional Annexes sections organizes each city departments' emergency response plan into an organized and easily accessible format. Each annex will provide reference to a specific Emergency Support Function (ESF). Any ESF not referenced at the department level are addressed within a separate annex. Concept of Operations Florida statute 252.38 provides municipalities the legal authority to create emergency management programs. As a result, the City of Clearwater has adopted Chapter 15 Emergency Management into its code of ordinances. The provisions of this chapter are activated upon a local declaration of a state of emergency. The city manager shall perform the function of director of emergency management, and shall implement, manage, and report on all actions authorized and taken under the provisions of this chapter. During a declared emergency the membership of the Emergency Management Coordinating Committee assumes the role of the city's emergency management agency. EOC Activation The City of Clearwater maintains its own emergency operations center to support the municipal response and coordinate efforts and resources with other agencies. EOCs are a component of the command and coordination structure found in the National Incident Management System (NIMS). The primary functions of EOCs include collecting, analyzing, and sharing information; supporting the needs, allocation, and tracking of resource requests; coordinating plans and determining current and future needs; providing operational coordination and policy direction; and coordinating the recovery effort. City departments may elect to activate department operation centers (DOCs) to manage the tactical level activities involved with the disaster response and recovery effort. These DOCs provide situational awareness to the city's primary EOC. The primary EOC will coordinate resource utilization and remedy any conflicts among the DOCs. Clearwater Comprehensive Emergency Management Plan 2024 EOC Activation Conditions EOC activations vary based on the needs of a jurisdiction. Common circumstances that may trigger an activation include multiple jurisdictions or agencies involved in an incident; activation by the IC/UC, or an appoint or elected official; similar activations in the past; an imminent incident; or the anticipation of a significant impact on the population. EOC activations are categorized on the following numeric scale. • Level 3 — Normal Operations — No specific incident or hazard is active. Emergency management personnel maintain operational readiness; conduct routine coordination with partners; develop and maintain plans; develop and implement training activities; and maintain facilities and equipment. • Level 2 — Partial Activation — Certain EOC staff positions may be filled based on the type, and complexity of an incident or hazard. • Level 1 — Full Activation — The initial incident or hazard has grown in complexity and requires additional EOC staff to perform essential disaster response and recovery functions. EOC Organizational Structure The EOC structure defines the rolls and position types utilized during EOC activation. The National Incident Management System recognizes five types of structures, the Incident Command System -like Structure, the Incident Support Model Structure, the Departmental Structure, Emergency Support Functions (ESF) Structure, and the Community Lifeline Structure. Due to unique needs and conditions, the city's EOC utilizes a hybrid structure, combing the ICS -like, the Departmental and the Emergency Support Function models (Figure 1). CMO IC?UC PIO DEPARTAfENT OPS • Fire dt Rescue • Finance • Gas • Library • Marine & Aviation • Parks & Rec • Plan & Dev • Police • Public Utilities • Public Works • Solid Waste Figure 1 Full Build Out LOGISTICS • General Services • Debris Contract PLANING • Pluming. Section • Doc unit • PDMG Contract COMMUNICATIONS • IT • Radio Comas • Aux Comms CO2 itNITY • Whole Community • Mass Care Clearwater Comprehensive Emergency Management Plan 2024 Physical Space The City of Clearwater Emergency Operations Center was constructed in 2016 and is located on the Clearwater Fire Rescue training campus at 1716 N. Belcher Rd. During level 3 - normal operations the EOC footprint is contained within the operations room addition. This room houses a data center, dispatch center, operations room, and operations conference room. As the EOC activation level increases, the training classroom facility, training office, adjacent driveways, and parking lots are reassigned and incorporated into the EOC footprint. Based on the complexity of the incident, the campus may expand to host evacuation transportation vehicles, push team heavy equipment and a logistics staging area. Each physical space of the campus is assigned a specific purpose to support the incident (figure 3 & figure 4). In addition to equipment, personnel present in the expanded EOC may include evacuation transportation staff waiting for assignment, personnel responsible for preparing EOC meals, and personnel assigned to the debris push team. Mens Locker Storage Womens Locker/ Bunk IT `Restrooms Mens Bunk Room Push Team Bunk Room Figure 2 Interior Layout Kitchen Planning/ Breakroom Logistics Mech Breakout Room Closet Entrance IT Dispatch Center Ops Room Ops Conference Room Clearwater Comprehensive Emergency Management Plan 2024 Figure 3 Campus Layout Organization of Personnel The City of Clearwater Emergency Operation Center utilizes a modular approach to address staffing needs. Positions within the EOC staffing structure are activated by the Incident or Unified Command (IC/UC) based on the complexity of the incident. The IC/UC position will be filled for all levels of EOC activations; however, not all subordinate positions may be filled. The City of Clearwater EOC organizes the operational period around a twelve-hour rotation; therefore, it is ideal that each activated position has two personnel to fulfill the role. All EOC positions have assigned seating within the EOC operations room (figure 4) are generally described in Table 1. D PD I Rese`ce I r nri_ I Loaialca. I Pla®m! I Ram= I PIO PD Gat I Mama %. I Palo I Mom Caro Ixeserte IFaience I MOM. I Plante,: I Solid I Debris I PbbRtele I Pik `Moira I IT [=1 Figure 4 Desk Positions Rbole Likrary I Istorm. Clearwater Comprehensive Emergency Management Plan 2024 Position Responsibility Matrix Table 1 Position Responsible Party Essential Elements IC/UC As assigned Coordinate the EOC Liaison between the city and other agencies/jurisdictions Set the operational priorities PIO Clearwater Public Communications Department Coordinate with the IC/UC on public messaging Manage the Citizen Information Center Documentation As assigned Support the Planning Section Support the PDMG Contract Administration Clearwater City Management Office Liaison between the EOC and City Council Provide policy guidance to the EOC Coordinate with IC/UC on operational priorities Legal documentation and guidance Police Clearwater Police Department Provide essential department information/needs to the EOC Coordinate the barrier island re-entry program Coordinate security at public shelters Coordinate evacuation activities Coordinate with Traffic Engineering on roadway intersection management/road closures Logistics Clearwater General Services Department Coordinate fuel needs Coordinate fleet needs Coordinate pre -impact hardening of city facilities Coordinate the post impact inspection of city facilities for re-entry Coordinate with EOC on resource needs Order and store resources Clearwater Comprehensive Emergency Management Plan 2024 Planning As assigned Complete situation reports and incident action plans and other documents Update GIS tools Coordinate the Documentation Unit and the PDMG Contract Complete information entries into WEB EOC Complete service requests to Pinellas County EM via Web EOC Track all resources Fire & Rescue Clearwater Fire and Rescue Provide essential department information/needs to the EOC Coordinate EMS service to select public shelters Coordinate evacuation transportation Coordinate with Pinellas County on damage assessments Monitor and update the Special Needs Application Gas Utility Clearwater Gas System Provide essential department information/needs to the EOC Coordinate gas service needs/facility issues Marine & Aviation Clearwater Marine and Aviation Department Provide essential department information/needs to the EOC Coordinate the use of facilities for response and recovery operations Parks & Recreation Clearwater Parks and Recreation Department Provide essential department information/needs to the EOC Coordinate the use of facilities for response and recovery operations Manage and operate the Point of Distribution sites ESF #6 Mass Care Clearwater Gas System / Parks and Recreation Department Coordinate the feeding of staff at the EOC and staff shelter Manage the staff shelter at the Morningside Recreation Center Coordinate with debris contactor on camp requirements Finance Clearwater Finance Department Provide essential department information/needs to the EOC Coordinate financial requirements of resource orders Provide the EOC with financial and procurement guidance Clearwater Comprehensive Emergency Management Plan 2024 PDMG Contract Tetra Tech Coordinate with the EOC on the collection of essential elements of information for FEMA PA reimbursement Planning & Development Clearwater Planning and Development Depaitment Provide essential department information/needs to the EOC Coordinate with Pinellas County EM to complete detailed damage assessments Coordinate post -disaster permitting services. Solid Waste Clearwater Solid Waste Department Provide essential department information/needs to the EOC Coordinate with the debris contactor on first push and debris management activities Debris Contract Crowder Gulf Coordinate with the EOC on first push and debris management activities Provide data for PDMG representative Public Works Clearwater Public Works Department Provide essential department information/needs to the EOC Coordinate with the debris contactor on first push and debris management activities Coordinate with PD on roadway intersection management and road closures Coordinate sandbag operations Public Utilities Clearwater Public Utilities Provide essential department information/needs to the EOC Library Clearwater Public Library System Provide essential department information/needs to the EOC Coordinate with PIO on staffing needs for the Citizen Information Center Coordinate Recovery Resource Center Whole Community As Assigned Coordinate with EOC on spontaneous volunteers Coordinate with EOC on donations Coordinate with EOC on community organizations Clearwater Comprehensive Emergency Management Plan 2024 Battle Rhythm The EOC daily schedule is known as the Battle Rhythm. The Battle Rhythm coincides with key activities throughout the duration of the operational period. These activities are based on the complexity of the incident and may include operational briefings from internal and external partners; mealtimes; operational period times; and deadlines for information collection related to various planning products (i.e., Incident action plan, situation report). It is the responsibility of the Planning Section to ensure EOC personnel are aware of the Battle Rhythm. Documentation The City of Clearwater has adopted the Florida Recovery Obligation Calculation (F -ROC) program. This program requires the use of pre -scripted forms for various documentation requirements. Currently, the city utilizes the following F -ROC forms: • Daily Activity Reports • First Push Activity Log Additionally, the city has published a combined incident action plan/situation report form used to capture data during the operational period. Demobilization Demobilization occurs when the complexity of the incident has reduced, and certain resources are no longer needed. The IC/UC will demobilize assets and functions based on the evolving needs of the incident. The goal of demobilization is the safe, orderly, and efficient return of resources to their original locations and status. Demobilization for EOCs may include a combination of a reduction in the facility footprint; a reduction in active personnel; or a reduction in operational period duration. These changes will influence the level of EOC activation. Long-term recovery operations may require the EOC to maintain a partial activation either in the physical facility or through remote or virtual means. The demobilization of assets or deactivation of the EOC does not equate to the ceasing of all incident -related activities. Personnel activated during the incident should expect follow-up contact with the city's emergency management staff for support of the federal cost claim process and after -action review. Radio Communications Clearwater Radio Division Provide essential department information/needs to the EOC Support radio communication needs Coordinate radio communication needs with mutual aid agencies and contractors. IT Clearwater Information Technology Department Provide essential department information/needs to the EOC Support Information Technology and Telecommunication needs Aux Corns Clearwater Auxiliary Communications Coordinate with EOC to send and receive information via amateur radio network Maintains auxiliary communication between Clearwater EOC, the Ross Norton Shelter, and Pinellas County EOC Battle Rhythm The EOC daily schedule is known as the Battle Rhythm. The Battle Rhythm coincides with key activities throughout the duration of the operational period. These activities are based on the complexity of the incident and may include operational briefings from internal and external partners; mealtimes; operational period times; and deadlines for information collection related to various planning products (i.e., Incident action plan, situation report). It is the responsibility of the Planning Section to ensure EOC personnel are aware of the Battle Rhythm. Documentation The City of Clearwater has adopted the Florida Recovery Obligation Calculation (F -ROC) program. This program requires the use of pre -scripted forms for various documentation requirements. Currently, the city utilizes the following F -ROC forms: • Daily Activity Reports • First Push Activity Log Additionally, the city has published a combined incident action plan/situation report form used to capture data during the operational period. Demobilization Demobilization occurs when the complexity of the incident has reduced, and certain resources are no longer needed. The IC/UC will demobilize assets and functions based on the evolving needs of the incident. The goal of demobilization is the safe, orderly, and efficient return of resources to their original locations and status. Demobilization for EOCs may include a combination of a reduction in the facility footprint; a reduction in active personnel; or a reduction in operational period duration. These changes will influence the level of EOC activation. Long-term recovery operations may require the EOC to maintain a partial activation either in the physical facility or through remote or virtual means. The demobilization of assets or deactivation of the EOC does not equate to the ceasing of all incident -related activities. Personnel activated during the incident should expect follow-up contact with the city's emergency management staff for support of the federal cost claim process and after -action review. Clearwater Comprehensive Emergency Management Plan 2024 Clearwater Comprehensive Emergency Management Plan April 2024 Edition CITY OF CLEARWATER, FLORIDA By: Jenner City Manager Jijon Graham Division Chief of Emergency Management Attest: Dae Date Rosemarie Call City Clerk