HomeMy WebLinkAboutRESOLUTIONS - 11292022 - 2022/412
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Table of Contents
Table of Figures ...................................................................................................................................... iv
Introductory Elements .......................................................................................................................... v
Preface ................................................................................................................................................ v
Letter of Approval .......................................................................................................................... 1
Approval and Implementation .................................................................................................. 2
Emergency Proclamations .......................................................................................................... 2
Roles and Responsibilities .......................................................................................................... 3
Emergency Services Policy Board (ESPB) ............................................................................ 3
Operational Area Council (OAC)............................................................................................... 4
Plan Concurrence ........................................................................................................................... 5
Record of Changes ......................................................................................................................... 6
Plan Distribution ............................................................................................................................ 7
Plan Development and Maintenance ............................................................................................... 8
Steps in the Planning Process.................................................................................................... 9
Planning Assumptions ................................................................................................................ 9
Mitigation ....................................................................................................................................... 10
Preparedness ................................................................................................................................ 10
Response ........................................................................................................................................ 11
Recovery ......................................................................................................................................... 11
Purpose and Scope .............................................................................................................................. 12
Purpose ........................................................................................................................................... 12
Scope ................................................................................................................................................ 12
Situation Overview .............................................................................................................................. 13
History ............................................................................................................................................. 13
Population ...................................................................................................................................... 13
Local Setting .................................................................................................................................. 13
Hazards in Contra Costa County ............................................................................................ 16
Probability and Impact ............................................................................................................. 17
Earthquake .................................................................................................................................... 19
Landslide ........................................................................................................................................ 20
Severe Weather ............................................................................................................................ 20
Wildland Fire ................................................................................................................................ 20
Dam Failure ................................................................................................................................... 21
Levee Failure ................................................................................................................................. 21
Flood ................................................................................................................................................ 21
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Sea Level Rise ............................................................................................................................... 22
Tsunami .......................................................................................................................................... 22
Drought ........................................................................................................................................... 22
Pandemic ........................................................................................................................................ 23
Capability Assessment .............................................................................................................. 23
Mitigation Overview .................................................................................................................. 24
PART I: BASIC PLAN ........................................................................................................................... 25
Concept of Operations ........................................................................................................................ 25
Standardized Emergency Management System (SEMS) Coordination Levels .... 26
Incident Command System (ICS) and National Incident Management System
(NIMS) ............................................................................................................................................. 28
California Emergency Support Functions .......................................................................... 28
Emergency Operations Center Organization ............................................................................ 33
Field/ EOC Communications and Coordination .............................................................. 33
Primary and Alternate EOC ..................................................................................................... 34
Response, Resource Coordination, and Mutual Aid ....................................................... 35
Operational Area (OA) EOC Activation ............................................................................... 35
Department Operation Center Activation ......................................................................... 36
EOC Reporting System .............................................................................................................. 36
Field Coordination with Department Operations Centers and EOCs...................... 37
Continuity of Government ................................................................................................................ 38
Vital Records Retention ............................................................................................................ 38
Recovery ................................................................................................................................................. 39
Overview ........................................................................................................................................ 39
Damage Assessment .................................................................................................................. 40
Documentation............................................................................................................................. 40
After Action Reporting .............................................................................................................. 41
PART II: SUPPORTING ELEMENTS ............................................................................................... 42
APPENDICES ................................................................................................................................. 43
APPENDIX A: Integrating People with Disabilities and with Access and
Functional Needs ......................................................................................................................... 43
Appendix B: Alert and Warning ............................................................................................. 44
Appendix C: Population Protection ...................................................................................... 45
Appendix D: Prevention and Protection ............................................................................ 46
Appendix E: Worker Safety and Health .............................................................................. 47
Appendix F: Public Information ............................................................................................ 48
Appendix G: Private Sector Coordination .......................................................................... 52
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Appendix H: Disaster Service Workers, Volunteers, and Donations Management
............................................................................................................................................................ 54
Appendix I: Training and Exercises ..................................................................................... 57
Appendix J: Authorities and References ............................................................................ 59
Appendix K: Individual and Family Emergency Preparedness ................................. 60
Appendix L: Emergency Management ................................................................................ 61
Appendix M: Glossary of Terms ............................................................................................ 62
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Table of Figures
Figure 1: Letter of approval ................................................................................................ 1
Figure 2: Emergency Services Policy Board record of concurrence ................................... 5
Figure 3: Record of revisions............................................................................................... 6
Figure 4: Record of distribution .......................................................................................... 7
Figure 5: The whole community approach describing access and functional needs ........ 8
Figure 6: Steps in the planning process .............................................................................. 9
Figure 7: The emergency management cycle ................................................................... 10
Figure 8: Population of communities in Contra Costa County ......................................... 14
Figure 9: Map of jurisdictions in Contra Costa County ..................................................... 15
Figure 10: Images of potential hazards............................................................................. 16
Figure 11: Examples of types of hazards .......................................................................... 17
Figure 12: Hazard probability and impact matrix from pg. 322 of the County LHMP ...... 18
Figure 13: Faultlines in Contra Costa County .................................................................... 19
Figure 14: SEMS management levels of response ............................................................ 26
Figure 15: SEMS Field and EOC functions ......................................................................... 27
Figure 16: Contra Costa County EOC Organizational Chart .............................................. 29
Figure 17: County emergency support functions table of roles and responsibilities ....... 32
Figure 18: ICS section responsibilities............................................................................... 34
Figure 19: EOC levels of activation ................................................................................... 36
Figure 20: EOC direction of control and coordination ...................................................... 37
Figure 21: Recovery support functions. See individual Recovery Support Function
Appendices for additional information............................................................................. 40
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Introductory Elements
These elements provide a record of plan development, approval, and maintenance.
Preface
This plan was developed and is maintained by the Contra Costa County Sheriff’s Office of
Emergency Services in collaboration with our emergency management partners. It facilitates
preparation, response operations, and short-term recovery activity for emergencies. The
plan includes guidelines supported by law, highlights emergency management best practices,
and provides a scalable and flexible approach to different types of incidents that may affect
Contra Costa County. However, this plan cannot anticipate all possible events and situations
in an emergency response. Conditions will develop in operations where standard methods
will not suffice. Nothing in this Plan shall be interpreted as an obstacle to the staff's
experience, initiative, and ingenuity in overcoming the complexities under actual emergency
conditions.
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Letter of Promulgation
This letter from the Contra Costa County (the County) Board of Supervisors serves as a dated
resolution recognizing and adopting this document as the County all-hazards emergency
operations plan (EOP).
Approval Date: November 1, 2022
To: Community of Contra Costa County
The preservation of life, property and the environment are an inherent responsibility of the local,
state, and federal government. Contra Costa County, in cooperation with the cities, towns,
special districts and partners in the county have prepared this emergency operations plan to
ensure the most effective response to emergencies.
This plan establishes the emergency organization, assigns tasks, specifies policies and general
procedures, and provides for the coordination of planning efforts of the various emergency staff
and service elements utilizing the California Standardized Emergency Management System
(SEMS).
The Contra Costa County Board of Supervisors gives its full support to this plan and urges all
officials, employees, and the residents, individually and collectively, to do their share in the total
emergency effort of Contra Costa County. The resolution adopting this plan supersedes prior
plans.
Contra Costa County recognizes the work by the many individuals and organizations that
collaborated to revise the Contra Costa County Emergency Operations Plan. Through the
coordinated efforts, this plan provides the framework for the best possible management of
emergencies and assistance to the residents of Contra Costa County when disaster strikes.
Chair, Board of Supervisors
Figure 1: Letter of approval
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Approval and Implementation
This section introduces Contra Costa County (the County) Emergency Operations Plan (the
Plan), describes how it applies to the County, and delegates authority for an emergency
proclamation. Circumstances under which an emergency may be proclaimed are reviewed.
The Plan will take effect upon the approval by the Contra Costa County Board of Supervisors.
The Plan will be officially adopted and promulgated. The Plan will be distributed to those
county departments, supporting agencies, and community organizations assigned primary
functions or responsibilities within Emergency Operations.
Emergency Proclamations
An emergency proclamation may serve multiple purposes depending on the incident and the
affected entity. Being a prerequisite for a Governor or Presidential Declaration of
emergency, an emergency proclamation:
• Provides for multi-agency or multi-jurisdictional coordination in response to an
event where County resources are insufficient
• Provides for the use of emergency powers and expenditures
• Offers legal protection for public employees serving as Disaster Service Workers
and governing bodies engaged in the response
• Allows for the issuance of orders and regulations to protect life and property
(e.g., curfews)
County Ordinance §42-2.802 clarifies the authority to proclaim an emergency. To the extent
that the County Ordinance may conflict with the provisions of the State Emergency Services
Act, §8558, the latter shall prevail. When the Board is not in session, the County
Administrator has the authority to proclaim a local emergency after conferring, if possible,
with one or more members of the Board, including the Board Chairperson. If a conference
with the Board Chairperson is impossible, a proclamation in writing is required. Proclaiming
authorities include:
• The Board of Supervisors
• Incorporated jurisdictions as provided under their municipal codes.
o The jurisdiction shall advise the Contra Costa County Office of the Sheriff's
Emergency Services Division of the proclamation. Health and Safety Code
§101080 authorizes the County Health Officer to declare a local health
emergency in, “situations involving the release or spillage of hazardous
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medical waste if the hazard or medical waste spilled is determined to be an
immediate threat to the public health, or whenever there is an imminent and
proximate threat of the introduction of any contagious, infectious, or
communicable disease, chemical agent, noncommunicable biologic agent,
toxin, or radioactive agent, the director may declare a health emergen cy and
the local health officer may declare a local health emergency in the
jurisdiction or any area thereof affected by the threat to the public health.”
When an emergency is proclaimed, the Contra Costa County Emergency Operations Plan
serves as the framework for guiding response, led by the Administrator of Emergency
Services (CAO), collaborating with the Director of OES or their designated alternates.
Roles and Responsibilities
The Director of the Office of Emergency Services (OES) or their designee oversees the
County’s Emergency Operations Center (EOC) (County Ordinance Code, Article 42-2.6). The
Director assumes the ultimate responsibility for implementing the Plan, and directs the
County’s emergency management organization, referred to as an Operational Area when
there is an emergency. The Director of Emergency Services, as supported by the Sheriff’s
Office of Emergency Services, has responsibility for the following:
• All phases of the emergency management cycle for the unincorporated areas of
the County
• Organizing, staffing, and operating the County Emergency Operations Center
(EOC)
• Coordinating emergency communications and messaging to the public
• Providing subject matter expertise and guidance to elected officials and other
organizations
• Maintaining information on the status of resources, services, and operations
• Obtaining support for the Contra Costa County Operational Area and providing
support to other jurisdictions as needed
Emergency Services Policy Board (ESPB)
The Contra Costa County Emergency Services Policy Board (ESPB) is an advisory body to the
County Administrator providing assistance and advice on emergency preparedness planning
efforts and the coordination of such planning efforts throughout the county. The ESPB
functions as the Contra Costa County Disaster Council. The ESPB reviews and makes
recommendations on the following as necessary for plan and agreement implementation,
Emergency Mutual Aid Plans and Agreements, Ordinances, Resolutions, and Regulations. The
County Administrator serves as the chair, and the Sheriff serves as the vice-chair of the ESPB.
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Operational Area Council (OAC)
The Operational Area Council is created as an advisory council to the ESPB and is coordinated
by the Sheriff’s Office, Office of Emergency Services. The Operational Area Council consists of
emergency managers from incorporated cities, special districts, key utilities, businesses, and
staff of the Sheriff’s Office, Office of Emergency Services.
The OAC meets at least quarterly to discuss and consider countywide emergency
management areas, issues, and to make recommendations to the ESPB through the Office of
Emergency Services. OAC members may meet more frequently during an emergency
operations center activation for increased situational awareness. These meetings may also
be called Multi-Agency Coordination (MAC) meetings.
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Plan Concurrence
This section demonstrates concurrence among County Agencies and represents agreement
with how the Plan assigns tasks among those agencies. It includes a distribution record and a
history of changes made to the Plan.
The following agencies represent the Emergency Services Policy Board of Contra Costa
County and agree with how this plan describes their tasks.
Figure 2: Emergency Services Policy Board record of concurrence
Agency
Signatory
Contra Costa County Administrator’s Office
Contra Costa County Office of the Sheriff
Contra Costa County Counsel
Contra Costa County Health Services
Contra Costa County Public Works
Contra Costa County Fire Protection District
Contra Costa County Risk Management
Contra Costa County Department of Conservation
and Development
Contra Costa County Employment and Human
Services
Contra Costa County Superintendent of Schools
Contra Costa County Department of Information
Technology
Contra Costa County Public Manager’s Association
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Record of Changes
The following table documents the revisions made to this plan. This plan should be reviewed and
updated annually.
Figure 3: Record of revisions
Revision Date Summary of Major
Changes Revised Sections
Revised By
(Name and
Organization)
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Plan Distribution
The following table documents when and to whom copies of the plan have been distributed.
Figure 4: Record of distribution
Date of
Distribution
Plan Version
(Date of Plan)
Method of Distribution (Email, Post
on Server, Provide Hard Copy, etc.)
Distributed To (Name and
Department/Organization)
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Plan Development and Maintenance
This section explains why the plan was developed and how it is maintained and implemented. An
overview of the planning process is provided. The County emergency management organization is
described, and planning assumptions are listed.
Contra Costa County’s emergency management organization brings together diverse stakeholders
with varied roles and responsibilities throughout all stages of the emergency management cycle.
County departments, incorporated
jurisdictions, special districts, private-
sector, and non-profit organizations
together comprise the Contra Costa County
Operational Area, under the direction of
the County Administrator’s Office and the
leadership of the Sheriff’s Office of
Emergency Services.
This plan was developed to guide the
County through all phases of the
emergency management cycle by outlining
underlying assumptions and providing a
framework for interagency and inter-
jurisdictional coordination. The document
represents a single component of the
emergency planning process, developed,
maintained, and administered through the
Sheriff's Office of Emergency Services as
described in this document's Approval and
Implementation section. The Sheriff's Office
of Emergency Services is responsible for
implementing revisions that keep this plan
current. Revisions will be documented on
the “Record of Changes” form in this plan.
Contra Costa County takes a “whole
community approach” to the development
and maintenance of the Plan. Whole Community encompasses individuals, private and public
sector partners, faith-based organizations, community groups, and all levels of government.
Access & Functional Needs
A Whole Community Approach
The Whole Community includes individuals,
including those who may have access or
functional needs. The California Office of
Emergency Services characterizes the
following individuals as having access or
functional needs:
•Live in institutionalized settings
•Are elderly or unaccompanied children
•Are from diverse cultures
•Have limited English proficiency or are
non-English speaking
•Are transportation or communication
disadvantaged
•Have no access to a shelter and/or may
need to be assigned a Functional Access
Service Team (FAST) member
•Have disabilities – temporary or lifelong
•Have sight or hearing impairments
•May require medical care or supervision
•Other situations that would ensure
maintaining independence
Figure 5: The whole community approach describing access and
functional needs
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Coordination with partners begins with this document and extends to all aspects of emergency
management in Contra Costa County.
Steps in the Planning Process
The planning process below is flexible and adaptable. Considerations should be made at each
step of the planning process regarding; training, exercises, equipment, and other requirements
within the jurisdiction.
Planning Assumptions
Planning assumptions are generally accepted facts that allow the EOP to be executed with a
shared understanding of what can happen in an emergency. The following assumptions were
considered in the development of this Plan:
• All incidents are local, may occur at any time with little or no warning, and may exceed
the capabilities of local government.
• Emergencies may cause casualties, fatalities, and population displacement.
• An emergency can cause damage to property, critical infrastructure, the environment,
and the economy.
• An emergency may interrupt public and private sector services.
• The more significant the complexity, impact, and geographic scope of an emergency,
the more multiagency coordination will be required.
• Mutual aid resources from outside the county may be required.
• Events affecting the Bay Area region may affect the availability of needed response
resources from outside Contra Costa County, including staff who work in Contra Costa
living outside the County.
Figure 6: Steps in the planning process
Step 1: Form
Collaborative
Planning
Team
Step 2:
Understand
the
Situation
Step 3:
Determine
Goals &
Objectives
Step 4: Plan
Development
Step 5: Plan
Preparation,
Review, &
Approval
Step 6: Plan
Implementation
& Maintenance
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• Contra Costa County’s Whole Community approach serves and integrates people with
Access and Functional Needs.
• This document will be utilized in coordination with applicable local, state, and federal
contingency plans.
• This plan does not supplant field incident command decisions or tactics in an
emergency.
Mitigation
Hazard mitigation refers to action taken to lessen or
eliminate long-term risk to people and property
from different hazards to which they may be
vulnerable. In addition to reducing the impact
of a disaster, mitigation activities help to
create safer communities by interrupting a
cycle of repeated damage and reconstruction.
Examples of mitigation activities include
projects to reduce risk, increase the strength
of critical infrastructure and identify and
protect lifelines into communities.
Preparedness
Activities related to developing and improving response and recovery capabilities are part of a
comprehensive preparedness program. Preparedness refers to a continuous cycle of planning,
organizing, training, equipping, exercising, evaluating, and taking corrective action to ensure
effective coordination during incident response. Examples of preparedness activities include
establishing mutual aid agreements, developing plans, training EOC personnel, and public
outreach and education. Within NIMS, preparedness focuses on the following elements: planning,
procedures and protocols, training and exercises, personnel qualification and certification, and
equipment certification.
Figure 7: The emergency management cycle
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Response
Response activities are those elements undertaken when a disaster occurs or threatens to occur.
Response activities include identifying goals and strategies, coordinating operations, public
notification, public information, mutual aid, and planning during a disaster.
Recovery
Activities aimed at re-establishing normalcy within affected communities to restore the county to
its pre-disaster condition are recovery activities. Examples of recovery activities may be short-term
when they focus on stabilizing the situation, removing debris, restoring services, and re -
establishing different community functions. Longer-term recovery activities grow out of short-
term recovery. They include facility and infrastructure restoration, community planning and
rebuilding assistance, and mitigation strategies into rebuilding efforts.
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Purpose and Scope
This section describes the purpose of the Plan and the scope of where it is applicable . The plan is
considered active upon approval. The conditions under which an emergency may be proclaimed are
described in the Approval and Implementation section.
Purpose
The Emergency Operations Plan is intended to:
• Provide the basis for coordination during all phases of the emergency management cycle
through an all-hazards, whole community approach.
• Establish operational concepts and standard operating procedures associated with
Emergency Operations Center (EOC) activities.
• Describe the relationship between EOC activities and other emergency response agencies.
• Establish the California Standardized Emergency Management System (SEMS) and the
National Incident Management System (NIMS) within Contra Costa County.
• Address the needs of people with disabilities and others with access and functional needs
who may be disproportionately affected during and after an emergency. See California
Government Code section 8593.3, which defines access and functional needs.
Scope
This Plan applies to all emergencies in unincorporated areas of Contra Costa County when
coordination is required between multiple organizations or county departments, or both. This plan
also applies to emergencies within incorporated areas as requested by those jurisdictions.
According to this document, county departments and special districts are responsible for carrying
out emergency planning. Local jurisdictions are responsible for carrying out local emergency
operations planning per the California Standardized Emergency Management System (SEMS). Local
jurisdictions, special districts, and emergency response agencies outside the Office of Emergency
Services are responsible for coordinating with the Office of Emergency Services for emergency
plans and standard operating procedure integration.
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Situation Overview
This section provides an overview of the hazards and threats that may affect Contra Costa County.
It summarizes the county’s locale, risks, and threats and justifies prioritizing emergency
preparedness and planning efforts for specific hazards.
History
Contra Costa County was founded in 1850 as one of the original 27 counties of California . It is one
of nine San Francisco Bay Area counties and is California’s ninth most populous county.
Population
According to the 2020 U.S. Census, Contra Costa County has 1,165,927 residents, of which more
than 77 percent are over the age of 18. The census report shows that 178,527 of those residents
live in unincorporated areas. Most of the county’s population resides along the urban corridors of
state highways 4 and 24 and interstates 80 and 680.
Local Setting
Contra Costa County encompasses 804 square miles, of which 716 are land, and 88 are water.
Contra Costa County’s physical geography is dominated by the bayside plain, the Oakland and
Berkeley hills in the west, agricultural land, and the Delta waterways in the east. In between are
several inland valleys and Mt. Diablo, which at an elevation of 3,849 feet, is the most notable
natural landmark in the central county area.
Parts of Contra Costa County are connected to neighboring counties by bridges; the Richmond/San
Rafael Bridge in the northwest, the Carquinez Bridge in the north, the Antioch Bridge in the
northeast, and the Middle River Bridge in the east. The Caldecott Tunnel in the west is another
primary transportation connector to neighboring Alameda County.
Martinez is the county seat and is in the northern central portion of the county. There are 19
incorporated jurisdictions in Contra Costa County and 34 unincorporated jurisdictions, divided
among 5 (five) supervisorial districts.
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Total County Population for Contra Costa County – 2020 Census
Incorporated Jurisdictions & Population Estimate Unincorporated Jurisdictions & Population Estimate
Antioch city 115,291 Acalanes Ridge 1,285
Brentwood city 64,292 Alamo 15,314
Clayton city 11,070 Alhambra Valley 805
Concord city 125,410 Bay Point 23,896
Danville town 43,582 Bayview 1,782
El Cerrito city 25,962 Bethel Island 2,131
Hercules city 26,016 Blackhawk 9,637
Lafayette city 25,391 Byron 1,140
Martinez city 37,287 Camino Tassajara 4,951
Moraga town 16,870 Castle Hill 1,271
Oakley city 43,357 Clyde 729
Orinda city 19,514 Contra Costa Centre 6,808
Pinole city 19,022 Crockett 3,242
Pittsburg city 76,416 Diablo 1,255
Pleasant Hill city 34,613 Discovery Bay 15,358
Richmond city 116,448 East Richmond Heights 3,460
San Pablo city 32,127 El Sobrante 15,524
San Ramon city 84,605 Kensington 5,428
Walnut Creek city 70,127 Knightsen 1,596
Total City 987,400 Montalvin Manor 3,099
For additional Census information, please go to:
https://www.contracosta.ca.gov/5342/Demographics
* Population-based on 2020 Decennial Census Results
Mountain View 2,622
Norris Canyon 1,313
North Gate 667
North Richmond 4,175
Pacheco 4,183
Port Costa 190
Reliez Valley 3,354
Rodeo 9,653
Rollingwood 3,015
San Miguel 3,591
Saranap 5,830
Shell Ridge 1,014
Tara Hills 5,364
Vine Hill 4,323
Other Unincorporated 10,522
Total Unincorporated 178,527
Figure 8: Population table by jurisdiction
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Figure 9: Map of jurisdictions in Contra Costa County
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Hazards in Contra Costa County
This section of the EOP consists of a series of threat summaries beginning with those threats
identified in the Contra Costa County Local Hazard Mitigation Plan. It describes the local area,
risk factors, and the anticipated nature of situations, which could threaten or occur in the
County.
If future APPENDIX or hazard mitigation plan development results in a more current or robust
hazard or threat analysis data, future EOP revisions will incorporate that data into this section.
Hazards are not mutually exclusive, and one or more of these events may co -occur. Action
accomplishments in response to
hazards and hazard details are
provided in this document's
Appendices, separate from this
Plan and department-specific
Standard Operating Procedures.
In 2018 Contra Costa County
prepared a hazard mitigation
plan in compliance with the
Disaster Mitigation Act (DMA -
DMA; Public Law 106-390)
passed in 2000. This analysis
aimed to identify and discuss the
natural threats confronting
Contra Costa County
communities and the mitigation
efforts. Figure 10: Images of potential hazards
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Contra Costa County is vulnerable to a wide range of threats. An all-hazards threat perspective
considers a complete range of threats including, but not limited to, natural hazards,
technological and structural vulnerabilities, biological and man-made threats. Emergency
planning should consider historical events and accommodate new planning assumptions as the
County population grows and threats evolve.
The Local Hazard Mitigation Plan utilizes Hazards United States (HAZUS), a nationally applicable
standardized methodology containing models and other specific disaster data, to estimate
potential losses from earthquakes, floods, tsunamis, and hurricanes.
Probability and Impact
The criteria below were used to evaluate hazards and identify the highest risk hazard in Contra
Costa County.
The probability of occurrence of a hazard is based on the likelihood of an annual occurrence.
The possibility of annual occurrence is assessed using past hazard events in the area and the
potential for changes in the frequency of these events due to climate change.
Hazard impact is assessed based on effects on people, property, and the local economy. The
following chart assigns the value based on the total population exposed to the hazard event. Natural•Earthquakes
•Landslide
•Wildfire
•Severe
Weather
•Drought
•Tsunami
•Sea Level Rise
Technological & Structural•Dam Failure
•Levee Failure
•Power Failure
•Radiological
or other
hazardous
substance
release Biological•Airborne
pathogens such
as COVID-19,
influenza,
tuberculosis, or
menengitis
•Foodborne
illnesse due to
contaminates
such as
salmonella, E.
coli, or botulism Man-Made•Arson
•Active shooter
•Terrost acts
•Cyber attacks
•Other criminal
threats or acts
that affect
groups or
populations
Figure 11: Examples of types of hazards
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Probability Impact
High – Hazard event is likely to occur within
25 years
High – 25 percent or more of the population
is exposed to the hazard
Medium – Hazard event likely to occur within
100 years
Medium – 10 percent to 25 percent of the
population is exposed to the hazard
Low – Hazard event not likely to occur within
100 years
Low – 10 percent or less of the population is
exposed to the hazard
Impact
Low Medium High Probability High Drought Flood
Landslide
Severe Weather
Wildfire
Earthquake
Medium Sea Level Rise
Tsunami Dam & Levee Failure
Low
Figure 12: Hazard probability and impact matrix from pg. 322 of the County LHMP
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Earthquake
Earthquakes are unpredictable. They vary significantly in size and intensity and can cause
devastation. Although infrequent, significant earthquakes have tremendous potential for loss of
life, property damage, and the environment.
Major fault lines that could potentially impact Contra Costa County and surrounding counties
include:
• The Hayward Fault, which runs along the west end of the County
• The Rogers Creek Fault is in the north-central area of the County and runs under the
Buchanan Airport
• The Concord Green Valley Fault, which is in the east end of the County
• The Mount Diablo Thrust Fault, along the southwest perimeter of Mount Diablo
• The Greenville Fault in the east end of the County and under several of the levee
protected islands
• The Calaveras Fault runs through the south-central corridor near the I-680 Freeway
• The San Andreas Fault is west of Contra Costa County
Critical petrochemical businesses located along the industrial corridor and other essential
facilities in the County can create additional hazards if severely damaged during a large
earthquake.
Figure 13: Faultline’s in Contra Costa County
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Landslide
The U.S. Geological Survey definition of landslides includes many ground movements, such as
rockfalls, profound failure of slopes, and shallow debris flows. Although gravity acting on an
over-steepened pitch is the primary reason for a landslide, other contributing facto rs exist.
Landslides commonly occur with other major natural disasters such as earthquakes, wildfires,
and floods. However, average seasonal rainfall, erosion, and occasionally wildlife may also
contribute to landslide events.
Landslides have occurred in conjunction with heavy rain events in Contra Costa County. There
are no records of fatalities attributed to mass ground movement in the county. However,
deaths have occurred across the west coast because of landslides and slope collapses.
Severe Weather
Severe weather refers to any dangerous meteorological phenomena that can cause damage,
severe social disruption, or loss of human life. It includes thunderstorms, downbursts,
tornadoes, waterspouts, snowstorms, ice storms, and dust storms. It is important to note that
when “severe weather” is used, it refers to many sub-hazards in aggregate. Severe weather
refers to dangerous conditions such as extreme hot or cold temperatures, high winds, or
excessive rainfall. All weather-related emergencies can cause damage, severe social disruption,
or loss of human life, especially amongst those experiencing homelessness, those considered
medically fragile, and the elderly population.
Wildland Fire
The combination of highly flammable fuel, long dry summers, and steep slopes create a
significant natural hazard of large wildland fires in many areas of Contra Costa County. A
wildland fire is a fire whose primary fuel is natural vegetation. Wildland fires can consume
thousands of acres of vegetation, timber, and agricultural lands. Fires ignited in wildland areas
can quickly spread to places where residential or commercial structures intermingle with
wildland vegetation. Similarly, fires that start in urbanized areas can grow into wildland fires.
The pronounced Wildland Urban Interface (WUI) significantly increases fire hazards in
populations with high structure densities adjacent to undeveloped open space areas with
narrow roads and dense vegetation. WUI fires may result in death, injury, economic loss, and a
significant public investment in firefighting activities. July through November have the greatest
potential for wildland fires as vegetation dries out, humidity levels fall, and offshore winds
blow. Weather, topography, and fuel are the top three factors that affect wildland fire
behavior. Such fires expose residential and other development within the County to an
increased risk of conflagration or extensive fire, which destroys a great deal of land or property.
21
Dam Failure
Although rare, dam failures can cause sudden and catastrophic flooding in communities
downstream, leading to injury, loss of life, and significant property damage. Some of the
primary causes of a dam's collapse and structural failure include severe storms, earthquakes,
internal erosion of piping, and foundation leakage. According to the 2013 State of California
Multi-Hazard Mitigation Plan, there have been nine failed Federally regulated dams in the state
since 1950, none of them in Contra Costa County. The most likely disaster-related causes of
dam failure in Contra Costa County are earthquakes, excessive rainfall, and landslides.
Levee Failure
Two types of levees are present in the San Joaquin -Sacramento River Delta area of Contra Costa
County:
• Project levees are part of an authorized federal flood control project on the
Sacramento-San Joaquin River Delta system. These levees deliver irrigation and drinking
water. The County maintains over 385 miles of project levees built to the highest level of
flood protection standards and inspected by the U.S. Army Corps of Engineers.
• All other levees in the Delta are "non-project" or "local" levels. These levees, totaling
730 miles in length, are maintained by local reclamation districts.
Levees are considered manufactured structures, usually earthen embankments, and are
constructed to contain, control, or divert a water flow to protect the land from peak flood
levels or to protect land below sea level. The most severe flood hazard in Contra Costa County
relates to the system of levees that protect the islands and adjacent mainland in the San
Joaquin-Sacramento River Delta area in eastern Contra Costa.
Flood
Flooding poses a severe risk to life, property, the environment, public health and safety, and
the economic impact of affected areas. The majority of the County's creeks and shoreline areas
are within the 100-year flood plain. During heavy rainstorms, water levels can rise quickly,
especially in small streams and near the headwaters of river basins. Flash floods can begin
before the rain stops falling. The most severe flood hazard in Contra Costa County relates to
levees that protect the islands and adjacent mainland in the San Joaquin -Sacramento River
Delta area in eastern Contra Costa County. Levees are subject to failure without warning;
however, the threat increases during an earthquake or severe flooding .
22
Sea Level Rise
Sea level rise is caused primarily by two factors related to global warming: the added water
from melting ice sheets and glaciers and the expansion of seawater as it warms. Sea level rise
will cause currently dry areas to be permanently or chronically inundated. Temporary
inundation from extreme tide events and storm surges also will change. Unlike many other
impacts resulting from climate change, sea-level rise will have a defined extent and location.
Although the magnitude and timing of sea-level rise are uncertain, assessing potential areas at
risk provides information appropriate for planning purposes .
Tsunami
A tsunami is a wave, or series of waves, generated by an earthquake, landslide, volcanic
eruption, or even a giant meteor hitting the ocean. What typically happens is that a sizeable
sub-marine earthquake creates an upward movement of the seafloor, lifting the overlying
seawater. This uplifted water then falls and radiates away from this center in all directions as a
tsunami. A tsunami can travel across the open ocean at about 500-miles per hour. As the wave
approaches land, the ocean shallows, slowing down to about 30 miles per hour and growing
significantly in height. While damaging tsunamis have occurred infrequently in California, they
are a possibility that our coastal communities must consider. The most likely site of tsunami
impacts in Contra Costa County is along San Pablo Bay.
Drought
The National Integrated Drought Information System characterizes drought as “a deficiency of
precipitation over an extended period (usually a season or more), resulting in a water
shortage.” Multi-year droughts may result in water shortages, impacting water available for
human consumption and agriculture production within the Coun ty.
Drought is a gradual phenomenon that often takes several consecutive winters with less than
average precipitation to produce a significant impact. Drought creates a complex web of
environmental and economic effects that spans many sectors. Drought imp acts include a
reduction in food crops, increased livestock and wildlife mortality rates, increased fire hazards,
and decreased water levels, leading to rationing. The consequences of these impacts illustrate
indirect effects. For example, a reduction in crops, rangeland, and forest productivity may result
in reduced income for farmers and agribusiness, increased prices for food and timber,
unemployment, reduced tax revenues, and an increase in crime.
Drought cycles typically occur every 7‐11 years. During periods of drought, emergency response
measures will consist of land use planning practices consistent with water conservation goals
and various water conservation measures.
23
Pandemic
A pandemic is an epidemic of an infectious disease that has spread across a large region, for
instance multiple continents or worldwide. Past viral pandemics have gravely impacted
economic systems, and overwhelmed health care systems.
Pandemics are unlike other public health emergencies or community disasters in that:
• There may be a minimal warning. Most experts believe that we will have between one
and six months before identifying a novel virus strain and the time that outbreaks begin
to occur in the U.S.
• Simultaneous outbreaks have a high probability of occurring throughout much of our
Country, preventing sharing of human and material resources that generally occur with
other natural disasters.
• The effect of the particular virus on individual communities will be relatively prolonged–
weeks to months–compared to minutes to hours observed in most other natural
disasters.
• Effective preventive and therapeutic measures will likely be in short supply.
Widespread illness in the community will also increase the likelihood of sudden and significant
personnel shortages in sectors that provide critical community services: healthcare workers,
military personnel, police, emergency medical technicians and paramedics, firefighters, utility
workers, child-care providers, and transportation workers are especially vulnerable.
Capability Assessment
A capability assessment provides part of the foundation for determining emergency
management, preparedness, and mitigation strategy. The assessment process also identifies
gaps or weaknesses that may need to be addressed through preparedness planning goals and
practical actions considering the jurisdiction’s capabilities to implement them. Finally, the
capability assessment highlights the positive measures that are in place or underway for
continued support and enhancement of the jurisdiction’s preparedness and response efforts.
Contra Costa County has implemented many capabilities to prepare for, respond to, recover
from, and mitigate the effects of an emergency or disaster. In addition to the county, cities, and
towns within the county maintain local response capabilities and mutual aid agreements to
assist when resources are exhausted.
As outlined in the County Ordinance Code §42-2.204, Contra Costa County has committed to:
24
• The preparation and effectuation of plans to protect persons and property in this county
in emergencies.
• The creation, direction, and operation of the county emergency organization.
• The coordination of the county’s emergency services and functions with those of other
public and private entities, organizations, and persons. (Contra Costa County Ords. 82-
55 §1, 72-83)
Mitigation Overview
Many jurisdictions have taken mitigation measures to minimize the impact likely to result from
the hazards. Contra Costa County’s Local Hazard Mitigation Plan identifies mitigation efforts to
reduce the likelihood that a defined hazard will impact our communities . As the cost of damage
from disasters increases, the County recognizes the importance of identifying effective ways to
reduce vulnerability to disastrous events.
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PART I: BASIC PLAN
Concept of Operations
This section explains the County’s intent during the response phase of the emergency
management cycle concerning emergency operations. It outlines the guiding frameworks within
which emergency management operations are carried out and assists in reviewing operational
priorities.
Local jurisdictions are responsible for protecting life, property, the environment, and
restoration of services. This is achieved through the Emergency Management Cycle: Disasters
do not appear one day – they exist throughout time and have a life cycle of occurrence . A series
of management phases match this cycle: establish strategies to mitigate hazards, prepare for
and respond to emergencies, and recover from effects.
The OES staff and EOC staff routinely monitor events and the environment to identify specific
threats that may affect the operational area. The increase in the awareness level of emergency
personnel and the community improves operational readiness when a threat is approaching o r
imminent.
Ongoing awareness allows operational area response agencies to enhance leadership decision-
making. Examples of readiness and response efforts include:
• Testing tools, such as the Community Warning System.
• Reviewing plans, procedures, and resource checklists.
• Preparing and disseminating information to the community.
• Briefing government officials.
• Activating emergency operations centers or department operations centers .
Incident goals govern resource allocation and the response strategies for the County and its
local jurisdictions during an emergency. Below is a list of operational priorities:
• Save Lives – The preservation of life is the top priority of emergency managers and first
responders and takes precedence over all other considerations.
• Protect Property – Efforts must be made to protect public and private property and
resources, including critical infrastructure, from damage during and after an emergency.
• Preserve the Environment – Efforts must be made to preserve Contra Costa County’s
environment and protect it from damage during an emergency.
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• Restore Essential Services – Power, water, sanitation, communication, transportation,
and other essential services must be restored as rapidly as possible to assist the
community in returning to normal daily activities.
Standardized Emergency Management System (SEMS) Coordination Levels
The Standardized Emergency Management System (SEMS) is required by Government Code
Section 8607(a) to manage emergencies involving multiple jurisdictions and agencies. SEMS
consists of five organizational sections (management, plans/intelligence, operations, logistics,
and finance/administration). These sections aid coordination and communication between the
five levels of the system (State, Regional, Operational Area, Local, and Field).
SEMS incorporates the Incident Command System (ICS), the Master Mutual Aid Agreement
(MMAA), existing mutual aid systems, the operational area concept, and multi-agency or inter-
agency coordination. Local governments must use SEMS to be eligible for funding of their
response-related costs under state disaster assistance programs.
•Manages State resources to meet emergency needs of other levels
•Coordinates mutual aid among regions and between regional and state levels
•Serves as the communication link between the State and Federal response system
State Level
•Manages and coordinates resources among operatonal areas
•Coordinates information sharing between operational areas and the State level
•Oversees State support for emergency response
Regional Level
•Encompasses the county and all political subdivisions in the county, including special districts
•Manages and coordinates information, resources, and priorities among local governments
•Serves as the coordination and communication link between local and regional levels
Operational Area
•Includes cities, counties, and special districts
•Manages and coordinates overall emergency response and recovery activities in their jurisdiction
Local Government
•Emergency responders carry out tactical decisions and activities in the direct response to a threat
•Requires the use of Incident Command System (ICS)
Field Response
Figure 14: SEMS management levels of response
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In compliance with the SEMS Regulations, the County has EOC staff to manage emergency
responses within the County’s jurisdiction. The EOC Director in collaboration with department
heads and OES staff requests team members, as needed, to the County EOC to carry out their
duties. The Contra Costa County EOC staff is responsible for coordinating resources, strategies,
and policy for any event in the Operational Area (OA) that exceeds the capabilities of first
responders. Tactical control remains the responsibility of field Incident Commanders (ICs) at all
times. SEMS is intended to:
• Facilitate the flow of information within and between levels of the system
• Facilitate coordination and communication among all responding agencies
• Improve the mobilization, deployment, utilization, tracking, and demobilization of
mutual aid resources.
SEMS Field and EOC Functions and how they relate are further illustrated in the following chart:
Figure 15: SEMS Field and EOC functions
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Incident Command System (ICS) and National Incident Management System
(NIMS)
The Incident Command System (ICS) is used for the command, control, and coordination of
emergency response. ICS incorporates personnel, policies, procedures, facilities, and
equipment, integrated into a common organizational structure designed to improve emergency
response operations of all types and complexities.
A few characteristics of ICS include:
• Span of control – one supervisor for every 3 to 7 staff members
• Personal accountability – identifying roles and responsibilities
• Common terminology – a language shared among agencies and jurisdictions
• Resource management – coordinated distribution of resources based on priorities
• Integrated communications – ensuring communication systems are interoperable
• First responders – tactical control remains the responsibility of field Incident
Commanders at all times
The National Incident Management System (NIMS) is a comprehensive, national approach to
incident management applicable at all jurisdictional levels and across functional disciplines. It is
intended to:
• Be applicable across a full spectrum of potential incidents, hazards, and impacts,
regardless of size, location, or complexity.
• Improve coordination and cooperation between public and private entities in various
incident management activities.
• Provide a common standard for overall incident management.
California Emergency Support Functions
The California Emergency Support Functions (CA-ESFs) are a grouping of functions with
activities and responsibilities, which lend themselves to improving the state’s ability to prepare
for, effectively mitigate, cohesively and collaboratively respond to, and rapidly recover from
any emergency. CA-ESFs unify a broad spectrum of stakeholders with various capabilities,
resources, and authorities to improve coordination for a discipline .
The County’s emergency management organization follows the Standardized Emergency
Management System (SEMS) structure and principles, including organization around Emergency
Support Functions (ESFs). The County also follows the Federal Incident Command System (ICS).
29
The daily planning process brings together partners and stakeholders through a whole
community approach under the ESF structure. During an emergency, the ESF format is
incorporated into an ICS response structure following SEMS.
Figure 16: Contra Costa County EOC Organizational Chart
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Contra Costa County uses CA-ESFs as a guide in local planning efforts. Each function is led by a
County department and supported by stakeholders who work within the scope of that function .
These include special districts, private, and non-profit organizations. Together, these ESFs are
responsible for developing functional plans and documentation.
The following table illustrates the CA-ESF’s and the appropriate county department leads:
Emergency Support
Function (ESF)
County Lead Description
ESF #1 Transportation County Department of
Public Works
Manages Contra Costa County transportation systems
& infrastructure, including roads, bridges, railways,
aviation, and marine.
Department of
Conservation &
Development
Further scope includes identifying movement
restrictions as well as damage and impact assessment.
ESF #2
Communications
County Department of
Information Technology
Provides resources, coordination, support, and
restoration of Contra Costa County voice and data
communications, including emergency
communications. County Office of
Emergency Services,
Community Warning
System
ESF #3 Construction &
Engineering
County Department of
Public Works
Provides technical advice, evaluation, management,
and inspection of critical infrastructure.
ESF #4 Fire & Rescue Contra Costa Fire
Protection District
Coordinates and supports wildfire, rural and urban fire
detection, and suppression.
Lends expertise and support in emergency scene
rescue (ground urban and rural search operations)
activities by providing personnel, equipment, and
supplies.
Urban Search and Rescue *Formerly ESF #9
ESF #5 Management County Office of
Emergency Services
Supports communicates and coordinates the collection,
analysis, and processing of information, ensures EOC
readiness.
County Administrator’s
Office
31
ESF #6 Care & Shelter County Employment and
Human Services
Coordinates and organizes disaster housing, emergency
food assistance, minor medical care, and family
reunification of displaced survivors.
ESF #7 Resources County Department of
Public Works
Coordinates and plans activities to locate, procure, and
pre-position logistical support such as space,
personnel, equipment, and supplies.
ESF #8 Public Health &
Medical
County Department of
Health Services
Responds to infectious disease outbreaks, human-
caused bioterrorism events, and health consequences
resulting from a disaster.
Oversees the restoration of medical facilities and
associated healthcare services.
Coordinates and deploys Disaster Healthcare
Volunteers including Medical Reserve Corp.
Coordinates all medical and behavioral health
programs and their mutual aid.
ESF #10 Hazardous
Materials
County Department of
Health Services, HazMat
Division
Provides a coordinated response to actual or potential
discharge and release of oil, chemical, biological,
radiological, or other hazardous substances in the
County.
ESF #11 Food &
Agriculture
County Department of
Agriculture
Performs animal, plant disease, and pest response.
Provides food safety and security and protection and
restoration of natural and cultural resources and
historic properties.
Manages weights and measures regulations.
ESF #12 Utilities County Department of
Public Works
Provides assessment and restoration of gas, electric,
water, wastewater, and telecommunications to include
energy industry coordination and forecast.
ESF #13 Law
Enforcement
County Sheriff’s Office Provides for public safety and security of property,
coordinates coroner activities, and supports access,
traffic, and crowd control.
32
Includes enforcement of state and local laws as well as
some Search and Rescue responsibility in addition to
evacuation operations.
Evacuation *Formerly ESF #16
Wilderness Search & Rescue *Formerly ESF #9
ESF #14 Long-Term
Recovery
County Administrator’s
Office
Performs social and economic community impact
assessment and analysis and review of mitigation
program implementation.
Recovery Plan to be developed utilizing the six FEMA
Recovery Support Functions:
• Community Planning and Capacity Building
• Economic
• Health and Social Services
• Housing
• Infrastructure Systems
• Natural and Cultural Resources
EF #15 Public
Information
County Administrator’s
Office
Supports the accurate, coordinated, timely, and
accessible release of information to affected audiences.
Performs media and community relations while
operating within a Joint Information System/Center.
ESF #17 Volunteer &
Donations
Management
County Public Works Coordinates the services of affiliated volunteers, non-
profit organizations and manages spontaneous
volunteers. Contains monetary and in-kind donated
goods.
County Human Resources
Office
ESF #18 Cybersecurity County Department of
Information Technology
Responsible for re-establishing a stable, safe, and
resilient cyberspace and the protection of secure cyber
network.
Figure 17: County emergency support functions table of roles and responsibilities
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Emergency Operations Center Organization
This section describes the organizational structure of the Emergency Operations Center (EOC).
Communications and coordination between the EOC and with operational area partner s are
outlined. The ways that the EOC coordinates resources and facilitates information sharing among
active area partners are described.
Incidents begin locally at the field level. Field personnel activate different organizational
components as incidents grow in complexity. Field offices, departments, department operations
centers (DOCs), and emergency operations centers (EOCs) activate in support of the field
operations. These principles adhere to the Standardized Emergency Management System (SEMS)
process. Local jurisdictions activate their EOCs based on the need for greater coordination in an
emergency. When activated, local EOCs help form a common operating picture of the incident by
collecting, analyzing, disseminating emergency information, and supporting field operations
through resource coordination. Local EOCs may activate in support of local departmental
operations centers (DOCs). Local EOCs may be established by cities, towns, and special districts.
This hybrid ICS and SEMS organizational chart describes the involvement of special districts, private
and non-profit agencies. Further explanation of the roles played by these groups within the County
Emergency Management Organization is provided in the ESF chart on pages 30-32.
Field/ EOC Communications and Coordination
The Field and EOC Communication and Coordination are further illustrated in the following chart:
ICS Section Functions
Command/Field
Management/EOC
• Overall EOC management
• Public information: provides for public safety communications
• Identification of a media center
• Rumor control and management of public inquiries
• Identification of a Safety Officer
• Facility security
• Agency liaison
• State/Federal field activity coordination
Operations • General warning
• Special population warning
• Authority to activate Emergency Alert System(s)
• Evacuation, including inmates, unique populations
• Traffic direction and control
• Debris removal
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• Evacuation and care for pets and livestock
• Access control of evacuated areas
• Hazardous materials management
• Coroner operations
• Emergency medical care
• Transportation management
• Crisis counseling for emergency responders
• Urban search and rescue
• Disease prevention and control
• Utility restoration
• Flood operations
• Initial damage assessments
• Safety assessments
• Shelter and feeding operations
• Emergency food and water distribution
Planning and
Intelligence
• Situation Status
• Situation Analysis
• Information display
• Documentation
• Advance Planning
• Technical Specialist
• EOC Action Planning
• Demobilization
Logistics • Field incident support
• Communications support
• Transportation support
• Personnel
• Supply and procurement
• Resource tracking
• Sanitation services
• Computer support
Finance and
Administration
• Fiscal management
• Timekeeping
• Purchasing
• Compensation and claims
• Cost recovery
• Travel requests, forms, and claims
Figure 18: ICS section responsibilities
Primary and Alternate EOC
OES designates the location of the Emergency Operation Center. The primary site is at the Contra
Costa Office of the Sheriff Administration building at 1850 Muir R oad in the City of Martinez.
Additional EOC space is available at the exact location. In the case of an inoperable primary EOC,
an alternate EOC may be identified and established based on the site, size, and scope of an
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incident. Day-to-day functions will be maintained in the most appropriate government facility
available with involvement from other organizations, special districts, private and nonprofit
entities.
Response, Resource Coordination, and Mutual Aid
During the response phase, emphasis is placed on saving lives, protecting property and the
environment, and restoring services to minimize the effects of the disaster. Below are key actions
to be taken:
• Alert and Notification - Local response agencies are alerted about an incident.
Notifications go out to first responders as well as the public.
• Mobilization - As an incident escalates and expands, additional resources are activated by
the Operational Area and mobilized to support the response. This includes resources from
within the county or, when resources are exhausted, from surrounding jurisdictions
through mutual aid agreements.
• Resource Coordination - The Contra Costa County EOC staff will coordinate resource
requests from the local municipalities within the Operational Area (OA). If demands exceed
the supply in the OA, the Operations Section will provide resources based on established
Operational Area priorities. If resources are not available within the OA, requests will be
made according to SEMS.
• Mutual Aid – Under California’s Disaster and Civil Defense Master Mutual Aid Agreement
(MMAA), statewide emergency assistance is provided voluntarily from one jurisdiction to
another at no cost to the receiving jurisdiction. Mutual aid ensures that adequate
resources, facilities, and other emergency support are provided to jurisdictions whenever
their resources prove inadequate to cope with a given situation.
• Documentation - Documentation is the key to recovering eligible emergency response and
recovery costs. Damage assessment documentation is critical in establishing eligibility for
disaster assistance programs. Responsibility for maintaining Emergency Operations Center
records rests with the entire Contra Costa County EOC staff.
Operational Area (OA) EOC Activation
The purpose of the OA EOC is to acquire and coordinate resources within the Operational Area as
requested by field operations, DOCs, or local EOCs. This may involve coordinating resources from
one local jurisdiction to another or coordinating resources from other operational areas, the state,
or the federal government. The Operational Area EOC may also activate to coordinate the
deployment of resources to other operational areas.
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The County EOC operates at different levels depending on the requirements of an incident :
Department Operation Center Activation
Departments within jurisdictions may activate DOCs based on the needs of field operations during
a disaster. Their primary function is to coordinate and control actions specific to that department
during an emergency event. DOCs may activate in conjunction with EOCs or may activate
independently.
EOC Reporting System
Contra Costa County currently has a web -based crisis management reporting system (Web EOC)
during emergencies. Web EOC aims to improve the county’s ability to respond to major disasters.
The county’s Web EOC includes all incorporated jurisdictions and special districts in the
Operational Area (OA). Web EOC assists in increasing the level of service and efficiency by
improving the county’s ability to respond to, manage, coordinate requests for resources, and
disseminate information throughout the emergency management process during a disaster.
Level 3 Activation
Active Monitoring
Incident is managed by
available local or
departmental resources
•EOC staff positions support
the incident by activly
monitoring through
situational awareness
•Communications will be
established with all
participating agencies
•Emergency Action Plan
(EAP) is not required
Level 2 Activation
Partial Activation
Incident extends
beyond the capabilities
of local resources
•EOC staff may report to
EOC
•Liasions may be assigned
to local EOC's or DOC's
•EAP may be required
•Coordination and
resource mobilization
may occur in support of
local jurisdictions and
county departments
•Communications will be
established with all
participating agencies
Level 1 Activation
Full Activation
Incident may involve
regional, state, or
federal resources
•EOC staff positions are
activated
•EAP is required
•Coordination, resource
mobilization and
prioritization, will occur in
support of local
jurisdictions and county
departments
•Communications will be
established with all
participating agencies
Figure 19: EOC levels of activation
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Field Coordination with Department Operations Centers and EOCs
Field units communicate their operational needs to their organization or department, DOC or EOC.
By liaising with other operational levels, a common operating picture is created.
Figure 20: EOC direction of control and coordination
DEPARTMENT OPERATIONS CENTERS
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Continuity of Government
Provisions for continuity of government and the retention of vital records are outlined in this
section.
Threats to Contra Costa County have a single common ality: the interruption of one or more critical
government functions vital to the public's health, safety, or welfare. The fundamental mission of
Contra Costa County is the reliability of service, particularly in times of emergency. Public trust is
based on the delivery of vital government services. Planning authority is accomplished by
preparing for a succession of officers, designation of standby officers, administration of oaths of
office, and continuation of duties of the governing body. See the county continuity of government
and department continuity of operations plans for additional information.
Vital Records Retention
In Contra Costa County, the County Recorder is responsible for preserving vital statistics.
Vital statistics are defined as those records that are essential to:
• Protect and preserve the rights and interests of individuals, governments, corporations ,
and other entities. 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, emergency supplies, equipment locations, emergency operations plans and
procedures, personnel rosters, etc.
• Re-establish normal governmental functions and protect the rights and interests of
government: constitutions and charters, statutes and ordinances, court records, of ficial
proceedings, and financial records.
Contra Costa County's vital records are routinely stored in the County Recorder's Office. Electronic
and computerized data is backed up nightly by an off-site vendor specializing in data protection
and recovery. Microfilmed records and other backup data are stored in an off-site vault with a
vendor specializing in information protection and recovery.
Contra Costa's birth and death records are managed and maintained by the Vital Registration
Department in Public Health. This information is coordinated with the Coroner's Office.
Each department within the county will identify, maintain, and protect its vital records. Protection
includes but is not limited to archival preservation, offsite storage, and maintaining redundant
39
backup copies.
Recovery
Overview
Recovery refers to re-establishing a new state of normalcy in the affected areas of the county. The
transition from response operations to recovery is a gradual shift to assisting individuals,
households, businesses, and governments in meeting basic needs and returning to self-sufficiency.
Recovery operations begin concurrently with or shortly after the commencement of response
operations. Short-term recovery activities intended to return vital life-support systems to operation
begin with restoring services after stabilizing the situation.
Long-term recovery focuses on rebuilding the community as outlined in the National Disaster
Recovery Framework (NDRF) and the California Disaster Recovery Framework (CDRF). Modeled
after the NDRF, the CDRF guides federal, state, local, private, community-based organizations, and
other nonprofit entities in effectively supporting disaster impacted jurisdictions to address gaps
and rebuild resiliently.
Recovery activities are categorized by the NDRF/CDRF designated Recovery Support Functions as
follows:
Recovery Support
Function
Description Example Responsibility
Community Planning
and Capacity
Building
Develops resources and
tools to support partner
agencies for managing and
implementing recovery post-
disaster.
Enact zoning variances County
Administrator’s
Office
Economic The ability to return
business activities and
develop new opportunities
that result in a sustainable,
viable community.
Identify temporary business
space, provide access to
financial assistance where
needed, assist in placement for
housing
County
Administrator’s
Office
Health & Social
Services
Support program
development which
addresses public health,
health care facilities,
coalitions, and essential
community needs especially
at-risk children and
vulnerable children,
Activate local assistance centers County Health
Services
Department
40
individuals, and families
affected by the disaster.
Housing Coordinates and facilitates
the delivery of resources to
implement adequate,
affordable, and accessible
solutions that effectively
support the whole
community’s needs and
contribute to resilience.
Needs assessments, identify
solutions and support required
County Health
Services
Department
Employment &
Human Services
Department
Infrastructure
Systems
Efficiently facilitates scalable
and collaborative restoration
of services and protects from
future hazards.
Damage assessment, debris
removal, open transportation
routes, issue permits, restore
power, water, sewer, and
communications, and initiate
temporary repairs
Department of
Public Works
Department of
Conservation and
Development
Natural & Cultural
Resources
Facilitates the integration of
capabilities to support the
protection of historic
properties through recovery
actions to preserve,
conserve, rehabilitate, and
restoration consistent with
community priorities and in
compliance with applicable
environmental and historic
preservation laws and
Executive orders.
Coordinate program assistance
for farmers and ranchers
Department of
Agriculture
Figure 21: Recovery support functions. See individual Recovery Support Function Appendices for additional information.
Damage Assessment
A jurisdiction’s Initial Damage Estimate (IDE) estimates the severity and extent of the damage
caused by the emergency. The Preliminary Damage Assessment (PDA) determines if an incident is
beyond the capabilities of the affected jurisdiction requiring both State and Federal assistance.
Documentation
Within the Planning and Intelligence Section, this functional unit is responsible for collecting,
distributing, recording, and safeguarding all documents relevant to an incident or within an EOC .
The Finance and Administration Section obtains the appropriate information to compile required
reimbursement applications.
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After Action Reporting
The After-Action Report (AAR) will serve as a source for documenting the County or local
jurisdictions' successes and areas needing improvement. Additionally, the AAR will effectively
identify resource gaps. County OES staff will assist in coordinating with appropriate operational
area jurisdictions in compiling an AAR after any emergency. All EOC staff are responsible for
participating in the AAR process. AARs lead to improvement plans and contain corrective actions
that are continually monitored and implemented to improve readiness. All After Action Review
documents for real life incidents are submitted to Cal OES via CALEOC, CAL OES’s web platform.
42
PART II: SUPPORTING ELEMENTS
The supporting elements are variations of functional components tailored to the Plan. While the
basic plan provides broad overarching information relevant to the Plan, these supporting elements
focus on specific areas requiring an emergency operation focus. Supporting Elements include both
Authorities and Appendices to the EOP.
Appendices may include additional critical operational functions, including Emergency Response
strategies that apply to a specific hazard.
Appendices include a glossary, references, definitions, and any supporting documentation.
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APPENDICES
APPENDIX A: Integrating People with Disabilities and with Access and Functional Needs
Contra Costa County takes a whole community approach to serve the needs of the residents. This
is accomplished by engaging critical stakeholders with expertise in transportation and sheltering.
Populations with access and functional needs include community members who may have
additional requirements before, during, and after an incident in functional areas.
Individuals in need of additional response assistance may include those who:
• Live in institutionalized settings
• Are elderly
• Are unaccompanied children
• Are from diverse cultures
• Have limited English proficiency or are non-English speaking
• Are transportation disadvantaged
• Have no access to communication devices
• Have no access to a shelter
• Have temporary and lifelong disabilities
• Have sight or hearing impairments
• Require medical care and supervision
• Other situations that would ensure maintaining independence
Lessons learned from recent emergencies concerning people with disabilities and other access and
functional needs have shown that the existing concepts of emergency planning, implementation ,
and response must meet the needs of these groups during an emergency. These lessons show four
areas that are repeatedly identified as most important to people with disabilities and others with
access and functional needs:
• Communications/Warning (See Appendix B: Alert and Warning)
• Sheltering
• Evacuation/Transportation
• Recovery
Essential facilities such as shelters, those facilities utilized during evacuations and movement of
the population, and alert and warning tools accommodate the Americans with Disabilities Act .
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Appendix B: Alert and Warning
The County’s Community Warning System (CWS) may provide time-sensitive alerts and warnings
to affected members of the public about imminent hazards to human life or health for which
specific protective action is recommended. These alerts and warnings include hazardous material
incidents, public health emergencies, law enforcement emergencies, fires threatening populated
areas, severe flooding, or “at-risk” missing persons. The most common protective actions for these
types of hazards are shelter in place/lockdown, evacuation/prepare to evacuate, or be-on-the-
lookout.
The Community Warning System automatically coordinates the transmission of alerts and
warnings over a variety of delivery systems, including:
• Sirens near major industrial facilities and in other special safety zones
• Telephone Emergency Notification System (TENS) that includes both landlines (Reverse
911) throughout the county, and pre-registered mobile devices (cell phones, text, and
email messages)
• CWS website and social media, including Facebook and Twitter
• California’s Emergency Digital Information System (EDIS)
• Federal Integrated Public Alert and Warning System (IPAWS)
▪ Emergency Alert System (EAS)
▪ NOAA weather radios
▪ Wireless Emergency Alerts (WEA)
The Community Warning System has predesigned templates for various warning messages to
expedite the message development process. Although templates exist for many of the hazards
common in Contra Costa County, it is essential to remember that all messages should include:
• What authority is issuing the warning
• What the hazard is
• A specific affected area for which the warning is in effect
• Who, specifically, is affected by this warning and what protective action they should
take
• How long the warning is in effect/when it expires
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Appendix C: Population Protection
Evacuations and “shelter-in-place” orders will be handled according to the Office of the Sheriff's
Policies and Procedures, with the Incident Commander balancing the immediate hazards
associated with remaining on the scene against the risks of moving people in a dangerous
environment.
• The Incident Commander or other authority will recommend a protective action based
on discussion with the appropriate personnel regarding the nature of the incident.
• The Incident Commander has the authority to initiate an evacuation or a shelter-in-
place order based upon their assessment of the situation.
• Area resources and, when available, additional resources, including personnel,
transport, etc., may assist with the evacuation effort to provide security and facilitate
an organized transition to a safe environment.
• Early/Advanced evacuations will generally be conducted by available law enforcement
working in the affected area.
• Unaccompanied minors will be evacuated to a safe, contained location and supervised
by a responsible adult/official until reunited with their parents.
• Parents will be directed to the evacuation location to pick up children.
• Area resources and, when available, additional resources may be allocated to provide
temporary security to at-risk groups when a credible threat to safety exists.
• Detention facility transportation units will move incarcerated individuals to pre-
determined, secure locations in the event of an evacuation.
• The Community Warning System may notify the public about existing hazards and
protective actions.
• At the request of the Incident Commander, by policies and procedures. The Community
Warning System can be used to notify the public at the end of a shelter-in-place action.
• Animal Control Services coordinates the care and shelter of evacuees’ pets considering
American Red Cross shelters’ location(s).
• California State Law does not provide language to support mandatory evacuations .
Residents have the right to make independent decisions about evacuation.
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Appendix D: Prevention and Protection
Prevention Activities
The Sheriff’s Office of Homeland Security Unit (HSU) is responsible for developing and maintaining
positive partnerships between the Sheriff’s Office, its infrastructure partners, and other local,
state, and federal agencies to share critical information to safeguard persons and property. HSU
reviews tips and leads to ensure appropriate agencies and resources are notified.
Protection Activities
The Northern California Regional Intelligence Center (NCRIC) position serves within the terrorism
liaison officer outreach program. This position also directly links to the FBI’s Joint Terrorism Task
Force (JTTF) and other state and federal agencies, facilitating information dissemination.
Eight Signs of Terrorism
Information
gathering by
suspicious persons
Tests of security by
suspicious persons
Suspicious financial
activity
Acquiring supplies
in preparation for
an attack
Suspicious persons
out of place
Dry or trial run to
test infrastructure
vulnerabilities
Surveillance of
critical
infrastructure
Deploying assets in
suspicious locations
near critical
infrastructure
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Appendix E: Worker Safety and Health
The County Risk Management Department guides each department on the OSHA worker safety and health
program, including injury illness and prevention protocols.
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Appendix F: Public Information
Purpose:
This supporting element is to establish uniform guidelines and practices for the effective
development, coordination, and dissemination of emergency information to the public in the case
of an emergency or disaster. It establishes the parameters for the Contra Costa County Joint
Information System procedures for:
• Rapid delivery of accurate information and instructions to the public and media
• Response to public and media inquiries
• Dissemination of critical information to internal and external partners
• Establishment of a Joint Information System (JIS) and Joint Information Center (JIC)
Assumptions:
During emergencies:
• The public and media will need information about the situation and instructions on what
actions to take.
• Residents will make better decisions if given updated information regularly.
• Local media can provide an essential role in delivering information and instructions to the
public; regional or national media may also play a role and need to be considered.
• Many communication channels exist, but not all may be available in an emergency. The
situation will drive the media and tools to be used.
• Monitoring of the media will require advanced planning to know which methods they are
using to disseminate information besides their primary channels.
• Social media will be the most challenging to monitor and control but have significant value
to the public.
• Perception is the key; Joint Information System team members must convey calm
presence, authority, and situational understanding to the media and the public.
Objectives:
• To guide public action as determined by the EOC Director in an Emergency Operations
Center or the Incident Commander if in the field.
• To gain public confidence by providing timely, accurate, credible , and actionable
information.
• To keep the public calm by building trust, providing them with the process to find answers,
specific actions to take, and reassuring them.
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• To meet the needs of the news media and social media influencers.
• To meet the needs of internal and external partners and stakeholders.
• To meet the needs of people with disabilities, others with access and functional needs, and
others who would be considered vulnerable in an emergency.
• To provide information to the public in coordination with the city, state, and federal
agencies and community-based and non-government organizations.
Practices and Guidelines:
• It is the policy of Contra Costa County to develop plans and procedures to address public
information needs during an emergency or disaster response within the County.
• The lead Public Information Officer (PIO) and additional designated PIOs will coordinate
efforts to provide timely and practical information before, during, and following a
significant emergency or crisis that affects public safety, public health, community well-
being, and continuity of operations.
• The PIO is responsible for disseminating accurate and timely information to affected
populations, considering people with access and functional needs.
• Multi-lingual support such as translation services and non -English broadcast media
cooperation may be explored to communicate more effectively with a diverse public.
• Information released to the media and public will be verified by the EOC Director's public
information staff.
• Contra Costa County will use the concept of a JIC to coordinate the release of information,
and a Joint Information System or virtual Joint Information Center when physically co-
locating is not possible or practical.
• A joint information center will be opened when more than one agency is involved or
impacted in an emergency incident.
Media Access:
• Media access to PIOs during an emergency/disaster will be provided through contacts
within the EOC or a field JIC. Physical access to the EOC will not be permitted without the
permission of the EOC Director, and a PIO must always accompany the media.
• Disaster and accident scenes may be closed to the public under the authority of 409.5(a)
P.C., which states, “…a menace to the public health or safety is created by a calamity such
as a flood, storm, fire, earthquake, explosion or other disasters….”
• It is essential to note that 409.5(d) P.C. states, “Nothing in this section shall prevent a duly
authorized representative of any news service from entering the area closed….” After being
advised of any existing danger, news media members are permitted free movement in the
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area if they do not hamper, deter, or interfere with law enforcement or public safety
functions.
Primary Responsibilities for the Public Information Officer:
• Evaluate the need for and, as appropriate, establish and operate a Joint Information
System.
• Establish a JIC as necessary to coordinate and disseminate accurate and timely information.
• Determine from the EOC Director or Incident Commander if limits on information available
and the release scope.
• Develop material for use in media briefings.
• Obtain approval of media releases.
• Inform the media and moderate media briefings, whether in person, conference call , or
other means.
• Arrange for tours, interviews, or briefings as needed.
• Maintain current information summaries and display boards about the incident.
• Maintain an Activity log for PIOs.
• Manage media and public inquiries.
• Coordinate emergency public information and warnings.
• Monitor media and social media reporting for accuracy and take corrective action where
needed.
• Ensure that all required agency forms, reports, and documents have been completed
before demobilizing a Joint Information Center or System.
PIO Roles and Functions within a JIC:
• Lead PIO with overall responsibility for Joint Information Center operations
• Information Gathering
• Information Verification
• Coordination and Production of Messaging
• Information Dissemination
• Media Monitoring
• Social Media Monitoring
• Liaison
• Provides coordinated communication with crucial program areas and other entities
involved in response and recovery operations
• Coordinates with elected officials, community leaders, VIPs, and other governmental and
non-governmental organization support agencies
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Documents available in the EOC go-box and PIO electronic go-materials:
• Lead PIO Checklist
• PIO Checklist by Role and Function
• PIO Contacts
• Media Contacts
• JIC Templates
Special Districts
A local government unit with authority or responsibility to own, operate, and maintain systems,
programs, services, or projects for natural disaster assistance. This may include joint powers
authority established in the California Code of Regulations.
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Appendix G: Private Sector Coordination
The involvement of NGOs, special districts, and private sector organizations with Contra Costa
County will vary according to the incident type, resources that may be made available, and the
types of resources needed. Some organizations may use internally established mutual aid
systems/arrangements in order to acquire needed resources. For example, the American Red
Cross will utilize the American Red Cross Disaster Services Human Resources System (DSHR) when
a disaster response requires greater resourcing than can be provided from the local chapter.
Volunteer agencies and private agencies may participate in the mutual aid system along with
governmental agencies. Some volunteer agencies such as the American Red Cross, Salvation Army,
Auxiliary Communication Services, Community Emergency Response Teams, Volunteer
Organizations Active in Disasters (VOAD), faith-based organizations and others are an essential
element of the statewide emergency response to meet the needs of disaster victims. Volunteer
agencies mobilize volunteers and other resources through their own systems. They also may
identify resource needs that are not met within their own systems that would be requested
through the mutual aid system.
Partnership Organizations: Non-Profit Agencies
• American Red Cross exists to provide compassionate care to those in need. The network of
donors, volunteers, and employees share a mission of preventing and relieving suffering
through disaster relief efforts. In addition, the Red Cross supports the EOC Care and Shelter
Branch.
• Volunteer Organizations Active in Disasters (VOAD) improve outcomes for people affected
by disasters by facilitating cooperation, communication, coordination, and collaboration
among nonprofit organizations, community-based groups, government agencies, and for-
profit companies.
• Community Emergency Response Team (CERT) programs educates people about disaster
preparedness for hazards that may impact their area. The program trains members in basic
disaster response skills, such as fire safety, light search and rescue, team organization, and
disaster medical operations. CERT members can assist others in their neighborhood or
workplace following an event when professional responders are not immediately available
to help. CERT members also are encouraged to support emergency response agencies by
taking a more active role in emergency preparedness projects in their community.
• Salvation Army is a ministry with a mission to meet human needs without discrimination. In
addition, they can provide feeding services in a disaster.
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• Saint Vincent de Paul Society is a nonprofit organization that provides direct assistance to
anyone suffering or in need. They offer a lifeline to those who want food and clothing, rent
assistance, medical aid, help with addiction or incarceration, employment, and shelter.
• Community Awareness and Emergency Response (CAER) is a nonprofit public benefit
corporation. CAER is a group of emergency response agencies, local government officials,
and businesses. CAER's mission is to actively enhance public health and safety for those
that store, handle, produce or transport hazardous materials. They support their mission
by focusing on:
o Facilitation of cooperative safety improvements of industrial plant operations
o Promotion of coordinated mutual emergency aid
o Provide emergency preparedness and response information to the public
o Communication to the public's concerns about the safety of industrial facility operations
o Offer credible facts and analysis on the efficacy of public policy related to public safety
issues and safe facility performance
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Appendix H: Disaster Service Workers, Volunteers, and Donations Management
Disaster Service Workers
Under California Government Code Sections 3100-3109, all public employees are required to serve
as Disaster Service Workers (DSWs). Public employees are all persons em ployed by any county,
city, state agency or public district in the State of California. Disaster Service Workers provide
services and support during declared emergencies or disasters.
In the event of a major emergency or disaster, the County has the power to assign employees to
serve as DSWs assisting with any Disaster Service Activity that promotes the protection of public
health and safety, promotes the preservation of lives and property, or is otherwise deemed
necessary by the County’s Director of Emergency Services in the execution of his or her duties.
Employees may be assigned by the County to fulfill emergency action needs outside the course
and scope of their regular job duties and job hours. When serving as a DSW, an employee may also
be directed to report to a different supervisor and/or to work at a different location than normal
in order to fulfill the DSW role. DSW’s may be asked to assist in support shelter operations, staff
the Emergency Operations Center, work at a logistics base in the field, etc.… Assignments may
require service at locations, times and under conditions other than normal work assignments.
Additional Disaster Service Worker designated individuals include medical personnel that may
provide medical services if an emergency has been declared, and as requested by a Contra Costa
County Official, and Volunteer Community Organizations Active in Disaster (VOAD) staff and
volunteers.
Under no circumstances will County employees that do not usually have a response role in their
day-to-day responsibilities be asked to perform duties or functions that are hazardous, that they
have not been trained to perform or that are beyond their recognized capabilities.
Volunteer and Donations Management
The Volunteer and Donations Management Unit is part of the Logistics Section of the County’s EOC
staff. Organized and trained volunteer groups and non -governmental organizations (NGOs)
provide critical services in a disaster. Although it is recommended that volunteers pre-affiliate
before any emergency, there may be spontaneous volunteers who will require processing. In
addition, organizations have been identified, which can assist with bulk/in-kind donations
processing and distribution, and monetary donations. Templates with public messaging exist to
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notify the community as to what items are needed and where the items can be brought to assist
with an emergency.
Governmental Volunteer Groups
Contra Costa County Area Agency on Aging provides leadership in addressing issues that relate to
older residents, to develop community-based systems of care that provide services that support
independence within our local community interdependent society, and which protects the quality
of life of older adults and persons with functional impairments, and to promote citizen
involvement in the planning and delivery of service.
Office of the Sheriff - Emergency Services Support Unit and Marine Patrol
The Emergency Services Support Unit (ESSU) manages volunteer groups that contribute
significantly to emergency operations. Activation of the Sheriff's volunteer programs is facilitated
through the Law Branch Mutual Aid Coordinator in the Emergency Operations Center. Groups
listed are managed by ESSU, except for the Dive Team, which is governed by the Office of the
Sheriff's Marine Patrol.
• Air Squadron – Pilots and observers provide air operations support to include
transportation, surveillance, logistics, and disaster response.
• Cadets – Young adults participate in public events, search and rescue, and traffic
enforcement.
• Communications Unit – Licensed amateur radio operators to provide alternate
communication to the operational area in support of an exercise or emergency.
• Chaplains – The chaplaincy program provides support, comfort, guidance, and counseling in
times of crisis to the law enforcement community and the public.
• Dive Team – Certified rescue divers are available to assist with evidence collection, victim
recovery, hazardous object removal, inspections, and disaster response .
• Food Service Unit – Volunteers support field operations during training and emergency
events by providing nourishing meals.
• Ground Search and Rescue Team – Volunteers are requested to assist in locating missing or
at-risk persons, evidence collection, public events, and disaster response .
• Reserve Deputy Sheriffs – Reserves assist with in-custody transportation, patrol and
detention duties, and special assignments such as DUI checkpoints, off-road activities, and
special events.
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• SAVES – Sheriff's All Volunteer Extended Services – This diverse unit of community
members with varying skill sets assist with the delivery of logistical and clerical support,
mostly in field operations and administrative assignments.
• Air Squadron Pilots and observers provide air operations support to include transportation,
surveillance, logistics, and disaster response.
Disaster Service Volunteer Groups
Contra Costa Health Services Medical Reserve Corps (MRC) was developed as part of the County's
emergency planning and response system. It addresses the need for additional medical
professionals to respond to a medical surge event or an event requiring the mass distribution of
pharmaceuticals. Oversight is provided by the Contra Costa County Emergency Medical Services
(EMS) as lead agency with support from Contra Costa Health Services.
MRC is a national network of unpaid volunteers, organized locally to improve the health and s afety
of their communities. In California, there are 35 MRC Units and 33 are in the Disaster Healthcare
Volunteers (DHV) System. These units can include both medical and non-medical volunteers that
support medical missions.
California Healthcare Volunteers (DHV) is a group of licensed healthcare providers, public health
professionals, or medical disaster response team members who volunteer for disaster service
work throughout the State.
Volunteer and donation groups can significantly enhance and supplement emergency response
personnel and materials.
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Appendix I: Training and Exercises
Training, tests, and exercises are essential to ensure public officials, emergency response
personnel, and the public are ready in an emergency. As part of the emergency management
training curriculum, it is recommended that personnel with emergency responsibilities complete
emergency management courses as described by the SEMS Approved Course of Instruction and
the NIMS integration criteria. The Governor’s Office of Emergency Services provides emergency
managers and first responders training through the California Specialized Training Institute. Each
agency maintains activity and exercise records that demonstrate self-certification and compliance
with SEMS and NIMS.
Preparedness Exercises
Exercises provide personnel with an opportunity to become familiar with the procedures, facilities ,
and systems that will be used in an emergency. County departments should plan for and
participate in an exercise program involving emergency management response personnel from
multiple disciplines and jurisdictions.
Exercises should:
• Be as realistic as possible
• Use the application of SEMS
• Be based on risk assessments
• Include non-governmental
organizations and the private
sector when appropriate
• Refer to state and federal
guidelines for other specifics
The County Office of Emergency Services updates the Multi-Year Training and Exercise Plan annually
to include several tabletop exercises, one functional EOC exercise, and ongoing in person and virtual
trainings.
Public Awareness
The County Office of Emergency Services provides public awareness and educational campaigns
continually. The Office of Emergency Services maintains a directory of websites for more in-depth
follow-up on emergency preparedness efforts such as Community Emergency Response Teams,
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fire safety, health and well-being, and hazardous materials. In addition, presentations,
consultations, and plan reviews are conducted routinely, along with research services and
pamphlet distribution. It is well documented that the better prepared our communities are in
advance of an emergency, the easier response efforts will be, and the sooner they can transition
to recovery.
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Appendix J: Authorities and References
The following references provide authority for the development and utilization of the Plan.
Local
• Contra Costa County Ordinance Code, Title 4 Health and Safety, Chapter 42-2 Disaster
Council and Emergency Services
• County Administrators Bulletin 115 Emergency Management Plan
• General Plan, Section 10 – Safety Element
• Sheriff’s Office Policies and Procedures 1.06.22 Emergency Activation of Personnel and
1.06.23 Major Disaster Response
State
• California Emergency Services Act, Chapter 7, Division 1, Title 2 of the Government Code
• Standardized Emergency Management System Guidelines, to include function-specific
handbook
• Cal EMA Guidance on Planning and Responding to the Needs of People with Access and
Functional Needs
• California Disaster and Civil Defense Master Mutual Aid Agreement
• California Coroner’s Mutual Aid Plan
• California Law Enforcement Mutual Aid Plan
• California Natural Disaster Assistance Act, Chapter 7.5, Division 1, Title 3
• State of California Emergency Plan
• California Public Health and Medical Emergency Operations Manual
• Regional Catastrophic Earthquake Plan
• Regional Emergency Coordination Plan (RECP)
Federal
• Civil Defense Act of 1950
• Robert T. Stafford Disaster Relief and Emergency Assistance Act of 1988
• Homeland Security Presidential Directive, HSPD – 5, NIMS
• Disaster Mitigation Act
• National Response Framework
• National Planning Scenarios
• National Response Recovery Framework
• Americans with Disabilities Act
• Comprehensive Planning Guide – CPG 101
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Appendix K: Individual and Family Emergency Preparedness
Preparation will increase survivability. Individuals and families should have the supplies and plans
in place to make it on their own. Everyone should be prepared no matter where they are when a
disaster strikes. Below are some ideas that can help prepare for the unexpected.
• Actions to take
• Have a kit of emergency supplies
• Plan for what you will do in an emergency
• Stay informed about what might happen
• Get involved in preparing your community
• Know your resources
• Partner with everyone (fellow parents, neighbors, church members, etc.)
• Be aware of assets near you; shopping centers, medical facilities, fire stations,
etc.
• Inventory your supplies often
• Know your hazards
• Flood zones where you work
• House near open space susceptible to fire or landslide
• Church located near a chemical plant
• Airport, rail, or other transportation hazards
• Understand protective actions
• Earthquake: Duck, cover, and hold
• Fire: Stop, drop and roll
• Flood: Evacuate to higher ground
• Hazardous Material release: Shelter in place, unless otherwise notified
• Severe weather: Stay indoors
Remain mindful of age-related needs for both children and seniors, and plan for those with unique
medical, physical, and emotional needs. Consider a plan and kit for pets.
Remember, attitude is everything! Rehearse in your mind, have documents in order, and physically
practice your plan.
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Appendix L: Emergency Management
The following is a list of questions that may help answer when responding to an incident.
Remember, not all questions are mandatory to answer in every situation. This is simply a list to
help those arriving at the EOC gain an understanding of the operating picture:
• What happened?
• What is the name of the incident? (Year/Month/Day/Location/Type)
• When did the incident start? (Date/Time)
• What type of incident is it?
• What is the severity of the Incident? (Low, Moderate, High, Catastrophic)
• What was the cause?
• Does the EOC require activation? If yes, what level? (Monitoring, Partial or Full)
• What is the current status of the incident? (Green, Yellow, Red)
• What is the prognosis? (Stable, Worsening, Improving)
• What is the location of the incident? (Address or Map Coordinates)
• Who is the lead agency?
• Who is the Point of Contact (Name, Phone Number, E-mail)?
Incident Summary:
• Who is affected?
• How many, injured, deceased?
• What is the property damage?
• Mutual aid needed?
• Public Information Messaging?
• Any other resources needed?
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Appendix M: Glossary of Terms
After Action Report (AAR): Documents identified successes during emergency operations and
described a plan to implement improvements.
California Disaster and Civil Defense Master Mutual Aid Agreement (MMAA): An agreement
entered into by and between the State of California, its various departments and agencies and
various political subdivisions, municipal corporations, and public agencies of the State of California
to assist each other by providing resources during an emergency. Mutual Aid occurs when two or
more parties agree to furnish resources and facilities and render services to each other in response
to any disaster or emergency.
California Emergency Services Act (CESA): An Act within the California Government Code to
ensure that preparations within the state will be adequate to deal with natural, man-made, or
war-caused emergencies which result in conditions of disaster or extreme peril to life, property ,
and the natural resources of the state and generally to protect the health and safety and preserve
the lives and property of the people of the state.
Continuity of Government (COG): Activities that address the continuance of constitutional
governance. COG planning aims to preserve and reconstitute the government institution and
maintain a department or agency’s constitutional, legislative, and administrative responsibilities .
This is accomplished through a succession of leadership, the pre-delegation of emergency
authority, and active command and control during response and recovery operations.
Continuity of Operations (COOP): Planning should be instituted (including all levels of
government) across the private sector and non-governmental organizations as appropriate to
ensure the continued performance of core capabilities and critical government operations during
any potential incident.
Critical Infrastructure: Systems and assets, whether physical or virtual, so vital to the operational
area that the incapacity or destruction of such systems and assets would have a debilitating impact
on security, local economic security, public health or safety, or any combination of those matters.
Department Operations Center (DOC): A facility used by a distinct discipline, such as flood
operations, fire, medical, hazardous material, or a unit, such as the Department of Public Works or
Department of Health. DOCs may be used at all SEMS levels above the field response level
depending upon the emergency needs.
Emergency Operations Center (EOC): The location from which centralized emergency
management can be performed. An agency or jurisdiction establishes EOC facilities to coordinate
the overall agency or jurisdictional response and support to an emergency.
Emergency Operations Plan (EOP): The ongoing plan maintained by various jurisdictional levels for
responding to a wide variety of potential hazards.
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HAZUS: A nationally applicable standardized methodology that contains models for estimating
potential losses from earthquakes, floods, and hurricanes. HAZUS uses Geographic Information
Systems (GIS) technology to assess disasters' physical, economic, and social impacts.
Incident: An occurrence or event, either human-caused or by natural phenomena, requires action
by emergency response personnel to prevent or minimize loss of life or damage to property and
the environment.
Incident Command: Responsible for the overall management of the incident and consists of the
Incident Commander, either single or unified command, and any assigned supporting staff.
Incident Commander (IC): The individual responsible for all incident activities, including
developing strategies and tactics and ordering and releasing resources. The IC has overall authority
and responsibility for conducting incident operations and managing all incident operations at the
incident site.
Incident Command Post (ICP): The field location where the primary functions are performed. The
ICP may be co-located with the incident base or other incident facilities.
Incident Command System (ICS): A standardized on-scene emergency management concept
specifically designed to allow its user(s) to adopt an integrated org anizational structure equal to
the complexity and demands of single or multiple incidents without being hindered by
jurisdictional boundaries.
Information: Pieces of raw, unanalyzed data that identifies persons, evidence, events; or
illustrates processes that specify the occurrences of an event. It may be objective or subjective and
is intended for both internal analysis and external (news media) applications. Information is the
“currency” that produces intelligence.
Intelligence: The product of an analytical process that evaluates information collected from
diverse sources, integrates relevant information into a cohesive package, and produces a
conclusion or estimate. The information must be honest, accurate, and verified before it becomes
intelligence for planning purposes. Intelligence relates to the specific details involving the activities
of an incident or EOC and current and expected conditions and how they affect the actions taken
to achieve operational period objectives. Intelligence is an aspect of information. Intelligence is
primarily intended for internal use and not for public dissemination.
Interoperability: Allows emergency management/response personnel and their affiliated
organizations to communicate within and across agencies and jurisdictions via voice, data, or
video-on-demand, in real-time, when needed and when authorized.
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Joint Information Center (JIC): A facility established to coordinate all incident-related public
information activities. It is the central point of contact for all news media. General information
officials from all participating agencies should co-locate at the JIC.
Joint Information System (JIS): A JIS is the information network of all government, volunteer, and
private-sector organizations with operations directly related to the incident. A JIS coordinates
public information network with shared resources and agreed-upon procedures that link
participants through technological means when geographic restrictions, incident management
requirements, and other limitations preclude physical attendance at a central location. The JIS
allows public information staff to communicate effectively and make joint announcements as if
they were in the same facility.
Jurisdiction: The range or sphere of authority. Public agencies have jurisdiction over an incident
related to their legal responsibilities and authority for incident mitigation . Jurisdictional authority
at an incident can be political or geographical (e.g., special district, city, county, state, or federal
boundary lines) or functional (e.g., police department, health department, etc.).
Liaison Officer: A member of the Command Staff responsible for coordinating with representatives
from cooperating and assisting agencies. At SEMS EOC levels, a coordinator may perform the
function and report directly to the EOC Director within a section or branch.
Local Government: Means local agencies per Article 3 of the SEMS regulations. Government Code
Section 8680.2 defines local agencies as any city, city and county, county, school district , or special
district.
Mitigation: Provides a critical foundation to reduce the loss of life and property from natural and
man-made disasters by avoiding or lessening the impact of a disaster and providing value to the
public by creating safer communities. Mitigation seeks to fix the cycle of disaster damage,
reconstruction, and repeated damage. These activities or actions, in most cases, will have a long-
term sustained effort.
Multiagency Coordination System (MACS): The combination of personnel, facilities, equipment,
procedures, and communications integrated into a standard system. When activated, MACS are
responsible for assisting agency resources and support in a multi-agency or multijurisdictional
environment. A MAC Group functions within the MACS.
National Planning Frameworks: One for each preparedness mission area (prevention, protection,
mitigation, response, and disaster recovery), describe how the whole community works together
to achieve the National Preparedness Goal. The Goal is: “A secure and resilient nation with the
capabilities required across the whole community to prevent, protect against, mitigate, respond
to, and recover from the threats and hazards that pose the greatest risk.” The Goal is the
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cornerstone for the implementation of the Presidential Policy Directive / PPD-8: National
Preparedness.
Non-Governmental Organization (NGO): An entity with an association that is based on the
interests of its members, individuals, or institutions. A government does not create it, but it may
work cooperatively with the government. Such organizations serve a public purpose, not a private
benefit. Examples of NGOs include faith-based charity organizations and the American Red Cross.
Operational Area (OA): An intermediate level of the state emergency organization, consisting of a
county and all other political subdivisions within the geographical boundaries of the county.
Operational Period: The time scheduled for executing a given set of operation actions, as specified
in the Incident Action Plan. Operational periods can be of various lengths but typically last 12-24
hours.
Political Subdivisions: Includes any city, county, tax, assessment district, or other legally
authorized local governmental entity with jurisdictional boundaries.
Public Information: Processes, procedures, and systems for communicating timely, accurate, and
accessible information on the incident’s cause, size, and current situation; resources committed;
protective actions to take; and other matters of general interest to the public, responders , and
additional stakeholders (both directly and indirectly affected).
Regional Emergency Operations Center (REOC): Facilities found at Cal OES Administrative Regions.
REOCs coordinate information and resources among operational areas and between the
operational areas and the state level.
Resource Management: Efficient emergency management and incident response require a system
for identifying available resources at all jurisdictional levels to enable timely and unimpeded
access to resources needed to prepare for, respond to, or recover from an incident. Resource
management under NIMS includes mutual aid agreements and assistance agreements; the use of
special federal, state, tribal, and local teams; and resource mobilization protocols.
Resources: Personnel and equipment available, or potentially available, for assignment to
incidents or EOCs. Resources are described by kind and type and may be used in supervisory
capacities at an incident or EOCs.
Section: The organizational level with responsibility for a major functional area of the incident or
at an EOC (e.g., Operations, Planning/Intelligence, Logistics, Finance/Administration).
Situation Report (SITREP): Emergency Operations Centers are responsible for gathering timely,
accurate, accessible, and consistent intelligence during an emergency. Situation reports should
create a common operating picture and adjust the operational goals, priorities, and strategies.
Special District: A unit of local government (other than a city, county, city, and county) with
authority or responsibility to own, operate and maintain systems, programs, services, or projects
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(as defined in section 2900, subdivision (hh) of title 19 of the California Code of Regulations) for
purposes of natural disaster assistance. This may include a joint power of authority established
under Section 6500 et. seq.
Stafford Act: The Robert T. Stafford Disaster Relief and Emergency Assistance Act establishes the
programs and processes for the federal government to provide disaster and emergency assistance
to states, local governments, tribal nations, individuals, and qualified non-profit organizations. The
provision of the Stafford Act covers all hazards, including natural disasters and terrorist events.
Relevant provisions of the Stafford Act include a process for Governors to request federal disaster
and emergency assistance from the President. The President may declare a major disaster or
emergency.
Standardized Emergency Management System (SEMS): A system required by California
Government Code and established by regulations for managing response s to multiagency and
multijurisdictional emergencies in California. SEMS consists of five organizational levels activated
as necessary: Field response, Local Government, Operational Area, Region, and State.
State Operations Center (SOC): An EOC facility operated by the Governor’s Office of Emergency
Services at the state level in SEMS.
Unified Command (UC): Unified Command is a structure that brings together the Incident
Commanders of major organizations involved in an incident to coordinate an effective response
while at the same time allowing each to carry out their own jurisdictional, legal, and functional
responsibilities. The Unified Command links the organizations responding to the incident and
provides a forum for these entities to make consensual decisions. Under the Unified Command,
the various jurisdictions, agencies, and non-government responders should blend throughout the
Incident Command System to create an integrated response tea m. Members of the Unified
Command work together to develop a standard set of incident objectives and strategies, share
information, maximize available resources, and enhance the efficiency of the individual response
organizations.
OCTOBER 2022
Public Protection CommitteeEmergency Operations Plan Review
Emergency
Operations
Plan
CCC Emergency Operations Plan updated every five years
Plan is updated to meet new legislation, priorities or changes in response
Changes made as a result of lessons learned during emergency responses
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Purpose, Scope,
and
Assumptions
The plan is a guidebook
for the Contra Costa
Operational Area to be
used during all-hazard
emergency management
events
Facilitates coordination among agencies and jurisdictions in Contra Costa County
Emphasizes Emergency Management Best Practices
Is Scalable and Flexible in its approach
Establishes operational concepts and standard operating procedures associated with Emergency Operations Center activities
The plan:
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The Plan Complements the EOC Role
The Emergency Operations Center’s Role During Large-scale Emergencies:
•Incident Support
•Information Management and Public Information Dissemination
•Resource Coordination
•Multi-agency Coordination
•Policy & Strategic Objectives
•Disaster Recovery
•Supports interagency coordination and executive decision-making during incident response
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Updates and
Changes
Simplifies language and updates graphics
Enhances focus on Access and Functional Needs (AFN) planning
Enhances the “Whole Community Approach” to plan development
Outlines threats to include Natural, Technological, Biological, and Human Caused
Updates Climate Change/Sea Level Rise information
Clarifies EOC activation levels
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Plan Review
OES/Sheriff’s Office Staff
County’s Access and Functional Needs EOC Coordination Team
Cal OES
Local Emergency Managers (Danville, Concord, Richmond)
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Questions/ Next Steps
EOC FUNCTIONAL EXERCISE AUGUST 2022
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