Final Report - 2005 - 2006

Recommendations 22

• R1

  Page 70
  The CAO should allocate staff resources and funds to OEM to expand efforts that address resident preparedness.
• R2

  Page 71
  OEM should employ social marketing approaches to design and acquire the needed resources for a strategy that will be effective in inspiring Los Angeles County residents to prepare for emergencies. The County CAO should revise current budget allocations to fund this effort. The Board of Supervisors should allocate funds to OEM for training in, design of, and grant development for social marketing to support resident compliance with emergency preparedness guidelines. In addition, the Los Angeles County Internal Services Department (ISD) should develop a master agreement with social marketing firms.
• R3

  Page 260
  DPSS should require by incorporation in the APP contract daily parental sign-in and sign-out sheets.
• R3a

  Page 72
  The County CAO should reallocate staff resources and funds to provide resources to OEM to prepare basic information materials in more languages, supplementing the efforts under way through Public Health. OEM should explore using translation resources available in Los Angeles County such as: • Working with community colleges to acquire translators from their ESL programs • Working with LAUSD, who has an extensive emergency preparedness program and a multi-lingual capacity • Accessing the translators who work for the City and County of Los Angeles 311 and 911 systems • Seeking assistance from countries which maintain consulates in Los Angeles • Working with churches, temples, mosques, and other faith-based organizations to reach out to immigrant and foreign language-speaking communities.
• R3b

  Page 72
  Public Health should enter into translation contracts that will permit a four-hour turnaround of message translations in the event of a public health emergency.
• R4

  Page 73
  Both City and County Administrative Officers should establish and pursue policies and programs that encourage employees to have emergency plans and supplies in place for their families.
• R5

  Page 261
  DPSS should review the DPSS-APP contracts and agreements to ensure that child health and safety requirements are addressed by both the APPs and child care providers.
• R5a

  Page 73
  The County CAO should ensure that responsible County departments strengthen arrangements for pre-emergency purchase and distribution of food, water, and clothing in the event of an emergency. Local resources include stores, department stores, pharmacies, restaurants, grocery stores, schools, places of worship, and social clubs. 2005-2006 County of Los Angeles Civil Grand Jury 57
• R5b

  Page 74
  OEM should develop and disseminate materials designed to assist animal owners in an emergency.
• R6

  Page 74
  The City and County Administrative Officers should expand the resources that support citizen volunteers who provide assistance to their neighbors and emergency responders. 58 2005-2006 County of Los Angeles Civil Grand Jury COMMUNICATION IMMEDIATELY BEFORE AND DURING AN EMERGENCY BACKGROUND Southern California prepares for earthquakes, fires, floods, landslides, civil unrest, and terrorist acts. These occur without warning. Federal guidelines now call for the development of all-hazards planning. Local agencies have identified several mechanisms to communicate with local residents during an emergency. If electricity, roads, and radios are in place, mechanisms to communicate include: • Providing consistent access and messages through a Joint Information Center (JIC), which acts as a single centralized location for media to receive press advisories • Using each agency’s Public Information Officer (PIO) to coordinate the dissemination of information in response to media requests • Working with the Los Angeles Sheriff’s Department to use the Emergency Alert System to disseminate messages. If infrastructure levels are relatively intact, the County of Los Angeles and other organizations will use, as necessary: • Preemptive dialing – using telephonic or web-based systems to send an emergency message to designated phones in an identified area • Amber Alert Notification System, which uses roadway changeable message signs operated by Caltrans • Voice or text messages sent to cell phones registered for that purpose with police • Mobile signs from Los Angeles County Department of Public Works. • Public announcements from law enforcement cars, fire vehicles, and public works vehicles • Messages on buses: “Stop this bus if you have an emergency” so the driver can radio for help in the event of telephone outages • Variable messages signs in commercial locations. In the event of a public health emergency, the communication infrastructure will not be initially compromised. Public Health has prepared a variety of messages in twelve languages to be released to media. In addition, bilingual and multilingual DHS employees have received media training to provide event response messages in their native languages. 2005-2006 County of Los Angeles Civil Grand Jury 59 If infrastructure is badly damaged or destroyed, tools to spread information to local residents include: • Emergency responder equipment: o Helicopters, police cars, and other vehicles with loudspeakers o Ham radio communications networks • Satellite telephones • Local loudspeakers that can broadcast messages transmitted from police or other emergency services vehicles • Flyers and leaflets distributed to homes or posted in common areas. LASD is in the conceptual stage of a Community Advisory Broadcast (CAB) system which uses the internet, cell phones, Personal Digital Assistants, pagers, air-raid sirens, changeable message signs, and preemptive dialing. Funding has not yet been allocated to develop and implement this program. 60 2005-2006 County of Los Angeles Civil Grand Jury COMMUNICATION BETWEEN AGENCIES BACKGROUND Emergency responders in the County are justly proud of their emergency preparedness. The California Fire Service has been a leader in the development of mutual aid agreements that have saved lives and property by establishing a framework for organized and disciplined cooperation among fire departments throughout California. LAPD, LAFD, LACFD, and LASD are national leaders in planning and implementing local agreements. Jurisdictions and agencies in Los Angeles County were instrumental in developing the Incident Command System (ICS) that was adopted statewide as the Standard Emergency Management System (SEMS) and nationally as the National Incident Management System (NIMS). The U.S. Department of Homeland Security has set NIMS as the national standard for the organization of emergency response. In Los Angeles County, there are: • 52 law enforcement agencies • 35 fire departments • Multiple state and federal organizations, including: o California Department of Transportation (Caltrans) o State of California Department of Health o Federal Bureau of Investigation o U.S. Coast Guard o U.S. Customs Department o U.S. Department of Immigration o U.S. Bureau of Alcohol, Tobacco & Firearms o U.S. Drug Enforcement Agency o U.S. Secret Service Each organization uses different radio equipment and has control of different frequencies: • LAPD uses digital UHF for voice and data • LAFD uses analog 800MHz for voice and digital UHF for data • LASD uses analog UHF for voice and data • LACFD uses analog UHF for voice and data • California Highway Patrol uses VHF for voice and data 2005-2006 County of Los Angeles Civil Grand Jury 61 • The Countywide Integrated Radio System (CWIRS) on 800 MHZ is used by other County of Los Angeles responders. Public Health has funded additional repeaters for the CWIRS network so that there are fewer gaps in coverage. Within The County of Los Angeles Department of Health Services, the Emergency Medical Service (EMS) manages a 24-hour operation responsible for monitoring hospital emergency room capacity, and directing public and private ambulances to available facilities. EMS uses LACFD radios to communicate. In a multi-casualty incident, EMS also sends medical teams to the emergency site. County of Los Angeles Department of Health Services - Public Health is a national leader in its field. Public Health uses CWIRS to communicate and has provided radios to the LACFD Health Hazards Materials Unit to facilitate communication during emergencies. Public Health communications systems support rapid diagnosis and pinpointing of the source of health threats. Two critical communication systems link to hospitals and clinics: • ReddiNet - connects via the internet all emergency receiving hospitals and the Department of Health Services EMS • Hospital Emergency Administrative Radio (HEAR) - provides a voice backup for communication to hospitals and between clinics in disasters The Department of Homeland Security SAFECOM Program’s “Interoperability Continuum” defines communication interoperability in five areas: governance, operating procedures, technology, training and exercises, and usage. (Appendix C) Cooperating city and county agencies in Los Angeles designed the Incident Command System (ICS) to address the need for multiple agencies and jurisdictions to develop and jointly communicate a tactical response to an emergency. The unified command at the command post of an emergency site includes representation from all disciplines and jurisdictions involved in a particular incident. The lead individuals for each agency remain in radio contact with their operational staff and ensure that tactics are communicated and executed. The capacity to patch individuals together, the radio equivalent of a conference call, is provided through fixed and mobile dispatch centers. The ICS is supported by face-to-face, telephonic, and radio communication among agencies and jurisdictions. ICS also provides for communication to and from the command post and the department operations centers and emergency operations centers. LAPD is also providing multiple command areas with satellite phones. Other jurisdictions also have satellite phones for emergency communication when radios, cell phones, and the landline phone system are not operational. 62 2005-2006 County of Los Angeles Civil Grand Jury Los Angeles Regional Tactical Communications System (LARTCS) To provide additional means of interoperable communications, public safety agencies in Los Angeles County established the Los Angeles Regional Tactical Communications System (LARTCS). LARTCS is the result of a cooperative agreement to develop the capacity to communicate among responding departments at incidents. The Board of Supervisors, with support from California and U. S. Department of Homeland Security grants, primarily funds the LARTCS infrastructure. No funding for staff has been allocated. LARTCS is governed by an executive committee consisting of representatives from: • Los Angeles Sheriff’s Department LASD (serves as Chair) • Los Angeles County Fire Department • Los Angeles County Department of Health Services • Los Angeles Area Fire Chief’s Association (Vice-Chair) • Los Angeles County Chiefs of Police Association • Los Angeles Police Department • Los Angeles Fire Department • U.S. Secret Service (representing all federal agencies) • California Highway Patrol (CHP) This interagency, inter-jurisdictional committee has contracted for the development of radio controllers: Advance Communication Unit (ACU) 1000 and portable Interoperability Communications Unit (ICU) equipment that facilitate emergency communication. Los Angeles Regional Tactical Communications System (LARTCS) enables a variety of different agencies operating from different frequencies to communicate with one another. To date, 45 local police departments and 28 local fire departments have signed the LARTCS Memorandum of Understanding. In addition, 14 allied agencies participate, including the California Highway Patrol, California Army National Guard, Orange County Sheriff, and Ventura County Sheriff. Los Angeles Sheriff’s Department, Los Angeles Fire Department, and Long Beach have vehicles with communication interoperability equipment to deploy in the region in the case of emergencies. Testing of LARTCS is conducted twice each week. An important contributor to the success of this program has been the agreement by all participants to use plain language. Currently, the County of Los Angeles is implementing LARTCS Phase II - a $47 million program to build a County-wide network of repeater towers with equipment that will operate in the UHF, VHF, and 800 MHz bands. This network will permit communication among agencies on different frequency bands. 2005-2006 County of Los Angeles Civil Grand Jury 63 Interagency Communications Interoperability System (ICIS) The Interagency Communications Interoperability System (ICIS) was started in Glendale, as the first link of what is intended to be a network of multiple independent trunked radio systems that act as linked cells. Individual units roam any cell within the system, maintaining contact with their home system while roaming. Participating cities signing on to the network maintain control of their own radio systems. Since the inception, additional cities have joined ICIS including, Beverly Hills, Culver City, El Segundo, and Montebello. Standards-Based Shared Platform The optimal level of communication interoperability, as described in the SAFECOM continuum, is a standards-based shared platform. This platform would permit emergency responders to transmit on a channel as simply as turning a dial. It is a user- friendly means of communication interoperability. As applied to Los Angeles County, this would call for each local jurisdiction in the County to agree to use a single set of frequencies to transmit voice and data. A standards-based shared platform has been proposed by consultants in a report on communication interoperability. The report calls for a trunked system in which radio channels are shared by multiple users. Participating jurisdictions would contribute their frequencies. The proposed system would use UHF for voice transmission and 800 MHz for data. The barriers to implementing a standards-based shared platform in the Los Angeles County area include: • A system would cost hundreds of millions of dollars • A system would require agreement by more than 85 agencies • A system would require several years to put in place • Each local agency is in a different state of satisfaction with its equipment; some agencies have recently upgraded their equipment • Governance issues are significant: how to pay for the system, who makes decisions about upgrades and maintenance, what protocols will be used for the system, is central dispatch possible • Not everyone agrees that firefighters and law enforcement officers need to speak with one another regularly • There is no agreement on communication interoperability standards among manufacturers. Once a system selection is made, purchasers are dependent on the selected manufacturer for parts and support • A system would be difficult to install because it would require expansion of existing sites and many more towers and repeaters than in the current analog systems due to the shorter range of digital signals 64 2005-2006 County of Los Angeles Civil Grand Jury In 2005, the Radio Interoperability Steering Committee (RISC) was formed to monitor and evaluate a consultant’s study of a proposed County-wide consolidated radio system. RISC membership includes the leaders of: • Los Angeles Fire Department • Los Angeles Police Department • Los Angeles City Administrative Office • Los Angeles County Fire Department • Los Angeles Sheriff’s Department • Los Angeles County Chief Administrative Office • Los Angeles County Department of Health Services • Los Angeles Area Fire Chief Association • Los Angeles County Chiefs of Police Association • California Contract Cities Association (local representation) • Independent Cities Association (local representation) Radio Interoperability Steering Committee (RISC) has agreed to develop a strategic plan for the construction of a shared voice and data radio system for all public safety users in jurisdictions within Los Angeles County. RISC recommends a governing board to propose the operational, technical, and financial aspects of the system. This regional structure is endorsed by the Department of Homeland Security. Emergency Data Communications Systems Jurisdictions within Los Angeles County are also improving their emergency data communication: • Emergency Management Information Systems (EMIS) is a system established and maintained by OEM, is used by jurisdictions within the County for emergency data communication. EMIS gathers input from local jurisdictions and emergency responders to a single web-based database that provides information for requesting Federal and State assistance. Participating jurisdictions input status including damage assessment, capacity to handle the emerging situation, and the need for additional resources. This system transmits data between the EOC and DOC. In the event of internet failure, a dedicated satellite-based, computer network will provide the information. EMIS links all 88 cities, 103 school districts, and all County of Los Angeles departments with the EOC. • Emergency Business Information System (EBIS) established by the City of Industry is a database on every business in the City of Industry, and which includes: hazardous materials risks, floor plans, plot plans, number of employees, time of operations, and emergency contacts. 2005-2006 County of Los Angeles Civil Grand Jury 65 Emergency Business Information System (EBIS) is administered by the City of Industry and used by both Los Angeles County Sheriff’s Department (LASD) and Los Angeles County Fire Department (LACFD). LACFD is interested in expanding the system to other locations in the County. EBIS is currently being used in East San Gabriel Valley communities. EBIS includes many of the features used in Tacoma, Washington’s “Rapid Responder” program. Rapid Responder uses internet and computer technology to provide vehicle-mounted computer access to such items as mapping, blueprints, photos, and hazardous materials location data. (Appendix B) • The Los Angeles Regional Common Operational Picture Program (LARCOPP) is a cutting-edge development in the early stages of deployment. This sophisticated system provides rapid, clear data communication to and from an incident command post. LARCOPP is funded and recognized by the Department of Homeland Security as a benchmark program. A Geographic Information System (GIS) provides a website that displays information on maps in emergency operations centers. LARCOPP transfers data through the use of Department of Homeland Security satellite resources, which allows it to function in the face of severe damage to the County’s communication infrastructure. LARCOPP allows incident commanders to share information with other commands and headquarters quickly and accurately. Data sources for LARCOPP include forward deployable unmanned wireless cameras. Plans for future implementation are to provide field commanders with real time information on the location and status of responders. • Public Health’s Emergency Information Systems (EIS) inform identified health partners, including 80 hospitals and clinics and more than 30,000 doctors. EIS includes: • A website for both the public and identified private health partners - www.labt.org • Health Alert System Training and Education Network (HASTEN) – a secure communication portal for healthcare professionals and emergency response partners • Pagers, broadcast fax, cell phones, and satellite phones to alert community partners 66 2005-2006 County of Los Angeles Civil Grand Jury Related Issues While current systems have served the area needs to date, there is interest in migrating to a standards-based shared platform. This trend is affected by several related issues, including: • Replacing elements, such as radios, data terminals, or repeaters, of a communication system is expensive. Some jurisdictions extend the life of equipment even when it is approaching obsolescence. As examples: o Some equipment used by County of Los Angeles departments is 30 years old with an estimated remaining life of 12 to 18 months. Parts are no longer available. The County obtains cast-off equipment from other jurisdictions for replacement parts. o The Sheriff uses Mobile Data Terminals (MDTs). This equipment does not have the robust capacity of the Mobile Data Computers that are now the standard for law enforcement vehicles. Transmission of data, such as pictures or fingerprints, is not possible with MDT’s. o Los Angeles Police Department (LAPD), in 2004, completed a nine-year, $250 million project to upgrade its radio and data equipment to digital. LAPD, in 2006, identified the need to acquire new equipment because the manufacturer announced that it will cease providing parts and support in 2007. Under the umbrella of the Consolidated Fire-Sheriff Communication System, the County is developing a Request for Proposals for a single County radio voice and data system. U.S. Department of Homeland Security guidelines for grants to purchase radio and data communication equipment require enhanced regional communication interoperability. Los Angeles has been designated to administer the U.S. Department of Homeland Security Urban Areas Security Initiative (UASI) grant for the Los Angeles-Long Beach region. The County of Los Angeles has been designated to administer the State Homeland Security Grant Program (SHSGP) for the Los Angeles County Region Operational Area. (Appendix D). • Capital funding is usually limited to equipment acquisition, installation, and initial training. Operations, maintenance, and ongoing training costs are not covered and are not always funded. Training for technical specialists to install, operate, and maintain equipment is central to effective use of equipment. Training for law enforcement officers, firefighters, and other emergency responders is expensive, mandatory, and difficult to schedule. 2005-2006 County of Los Angeles Civil Grand Jury 67 • There are hurdles to be overcome with 800 MHz communications. Cell phones and walkie-talkie features interfere with emergency responders’ radios when used near cell phone towers. In return for receiving the former emergency responders’ channels, Nextel has agreed to pay the costs for moving public safety equipment to one end of the 800 MHz spectrum. The Los Angeles area will not begin negotiations on this issue until the end of 2006. Decisions to replace equipment will need to take into consideration the need to move to new 800 MHz frequencies. In addition, there have been reports of frequency conflicts with stations in Mexico, which will have to be resolved by the U.S. State Department. This may further delay the relocation. • The Federal Communications Commission (FCC) has announced that it will establish the 700 MHz band as a public safety band. Implementation of this band will not happen before 2009. • FCC is requiring agencies to transmit in a narrow band, increasing the number of available channels. The requirement will go into effect in 2013 for channels 500 MHz and below. Although narrow banding can be either analog or digital, most new equipment is digital. 68 2005-2006 County of Los Angeles Civil Grand Jury
• R7

  Page 85
  The City and County Administrative Officers should offer incentives and encourage programs that capitalize on the talents and interest of ham radio operators
• R8

  Page 86
  The Los Angeles County Board of Supervisors and the Mayor of Los Angeles should ensure that the Governance Board proposed by Radio Interoperability Steering Committee (RISC) is adopted and should pursue the development of county-wide communication interoperability, using a standards-based shared platform.
• R9

  Page 86
  LASD and LAPD should ensure the completion of Phase II of LARTCS and continue to request funds for the acquisition of LARTCS equipment, maintenance, training, and operations.
• R10

  Page 86
  The LACFD Chief, LAFD Chief, LAPD Chief, and the Sheriff should continue to pursue the adoption of promising communication technology. 70 2005-2006 County of Los Angeles Civil Grand Jury
• R11

  Page 87
  The City and County Administrative Officers require that proposals for new communication systems or major system improvements specify the life cycle cost of operations, maintenance, and training, and allocate funds as required.
• R12

  Page 87
  When Los Angeles City and County purchases new communication equipment, bid documents should require suppliers to offer maintenance parts, training, and related services throughout the life of the system. 2005-2006 County of Los Angeles Civil Grand Jury 71 72 2005-2006 County of Los Angeles Civil Grand Jury APPENDICES 2005-2006 County of Los Angeles Civil Grand Jury 73 APPENDIX A ORGANIZATIONS REVIEWED • City of Industry • Lancaster • Long Beach • Los Angeles Emergency Preparedness Department • Los Angeles Fire Department • Los Angeles County Office of Emergency Management • Los Angeles County Fire Department • Los Angeles County Sheriff’s Department • Los Angeles County Department of Public Works • Los Angeles County Internal Services Department • Los Angeles County Department of Health Services – Public Health • Los Angeles Police Department • Pasadena Unified School District • Disaster Management Area D • San Diego County • New York State Emergency Management Agency • Orange County Emergency Operations 74 2005-2006 County of Los Angeles Civil Grand Jury APPENDIX B BEST PRACTICES Portland Oregon Emergency Management is distinguished by efforts to involve the community in emergency preparedness from the beginning. For example: • An online forum for the community to respond to the Draft Hazard Mitigation Plan • Several POEM sponsored/encouraged community organizations that focus on emergency preparedness • Informative and interactive website (http://www.portlandonline.com/oem) which includes online publishing of the Portland Hazard Mitigation Plan • Neighborhood Emergency Teams (NET) for which POEM offers 26 hours of free NET training • The Portland Citizen Corps Council that commenced on January 21, 2006 Emergency Management Municipal Outreach Program, Orangeburg County, SC is an outreach program developed to reach the 17 municipalities in the County to improve their understanding of the County’s and the state’s emergency management programs, policies, principles, and procedures. It is an effort to equip the municipalities to prepare themselves for dealing with emergency situations and improve their abilities to respond to an emergency or disaster in their area. The program also provides for enhanced communications and collaboration among the County emergency management program and the municipal leaders before, during, and after a disaster. Additional benefits of the program are improved warning capabilities for the small municipalities and help for the municipalities to develop their own local programs, plans, and procedures. The program provides: • Technical assistance • Development of prototypes, templates, and guidelines for emergency plans and procedures for the municipalities • Technical assistance in the use of an internet-based crisis management program that provides real-time, emergency-event related information to the municipalities Animal Disaster Preparedness Education and Response Unit, Volusia County, FL: Animal Control Services remodeled a 14-passenger public transportation bus that is taken to schools and special events to teach the importance of animal disaster preparedness. The facilitator can take children and adults on board and teach them how to prepare at home or, if they must evacuate, what they need to take with them. This program is put on year round to all the residents of Volusia County. The bus also serves as a mobile command unit during an event to coordinate resources and the County's Animal Life Emergency Response Team (ALERT). 2005-2006 County of Los Angeles Civil Grand Jury 75 Immigrant Emergency Communications Program, Orange County, NC: The Immigrant Emergency Communications Program was jointly created by Orange County Emergency Management and Orange County Health Department to reduce injury and deaths within the non-English speaking community as a result of disasters. This program was created in response to the December 2002 ice storm that led to many deaths within many Latino communities in North Carolina due to carbon monoxide poisoning. The program implements services designed to introduce emergency preparedness and response information in the native language of the community, such as emergency preparedness training, printed emergency information in the population’s native language, interpreter training for emergency shelter volunteers, paid radio advertisements with emergency preparedness information, and meetings with organizations that serve these populations to share information on how best to improve their services. The Immigrant Emergency Communications Program’s success is evidenced by the increased number of Latinos that have used the emergency shelters during winter storms since the December 2002 storm. Community Emergency Response Team (CERT) Neighborhood Recognition Program, York County, VA: The Community Emergency Response Team (CERT) Program focuses on an organized neighborhood with subdivisions that have identifiable associations. Neighborhoods who meet the program criteria can participate and receive recognition for their efforts with the CERT NEIGHBORHOOD sign. The CERT neighborhood recognition program provides distinction to neighborhoods that are committed to train, organize, and prepare for disasters. Through this program, the goal is to create self-sufficient neighborhoods in disasters. General Populace Emergency Evacuation Signage, Okaloosa County, FL: The purpose of the program is to improve emergency evacuation procedures for residents and tourists during hurricane seasons. Essentially, the County marks specific roadways with low cost, easy to install signage that can be quickly replaced if stolen or lost in high wind conditions. This program fills a gap by the state. State roadways are marked as evacuation routes, but County-maintained/owned roads are without signage. This program fills that gap and resolves confusion that might otherwise result during evacuation along County roads. Media Contact Training- Sarasota County, FL: First-responder training was provided to the media contacts responsible for communicating with the public during a disaster in Sarasota, Florida. Participants were trained in language choice and other techniques designed to provide information to keep the public calm and focused. 76 2005-2006 County of Los Angeles Civil Grand Jury Community Emergency Preparedness Workbook and Guidelines, Macomb County, MI: A workbook and guideline publication was developed that addressed the call of Secretary Tom Ridge of the Department of Homeland Security with his Citizen Preparedness "Be Ready" Campaign to "Make a Kit, Make a Plan, and Be Informed." This workbook and guide addresses all of the planning and preparedness issues that citizens must undertake to ensure that they are prepared, not only for terrorist attacks, but for any disasters. Easy to follow steps lead the reader through the many issues of home, car, and work preparedness; understanding the security advisories; and suspicious activity guidelines. A follow-up of personal visits to distribute and explain the booklet was then implemented to ensure the proper application of the information as per the guidelines. Citizen Corps, Platte County, MO: The primary focus of the Citizen Corps is to establish communication among local elected officials, emergency response organizations, charitable groups, and residents. In 2002, Platte County organized the region’s first Citizen Corps meeting. The Citizen Corps was derived from President Bush’s Freedom Corps initiative as a way to involve community volunteers after 9/11. Essentially, the Platte County Citizen Corps allows the County to call on community volunteers in time of crisis to augment or expand government services. At its most basic level, Citizen Corps presents a quarterly meeting place for key elected officials and emergency response organizations to communicate. Since the initial meeting, the Citizen Corps has expanded its focus to prepare residents against more common events, such as weather-related disasters. In 2004, it will host several CERT training courses focused on fire suppression, disaster medical techniques, and search-and- rescue operations. By providing this training, the Citizen Corps hopes to increase the number of residents who are ready to respond to unexpected events. Pierce County Neighborhood Emergency Teams, Pierce County, WA: PC-NET (Pierce County Neighborhood Emergency Teams) is a neighborhood-oriented approach to emergency response. Major disasters stretch County resources to their limits. It is estimated that regular emergency services will be unable to respond to most calls during the first 72 hours following a major disaster, such as a severe earthquake. The number of people who will need help and the inaccessibility of many neighborhoods, due to damage and debris, will prevent immediate aid. If individuals and their neighbors are prepared to assist each other during these critical hours, lives can be saved, property can be spared, and emergency services can be freed to respond to the most devastated areas. PC-NET’s overall purpose is to enable neighborhoods to be self-sufficient for a minimum of 72 hours following a major disaster. This will be accomplished partly by organizing block groups into six disaster response teams: communications, damage assessment, first aid, safety and security, light search and rescue, and sheltering and special needs. A County whose population is prepared at home will see a reduction in the need for police, fire, and emergency response. 2005-2006 County of Los Angeles Civil Grand Jury 77 Innovative Emergency Preparedness Tools, City of Tacoma, WA: Tacoma, Washington, has employed a Web-based emergency response solution that allows police, fire, and emergency personnel to access and analyze critical information (such as floor plans, photos, utility, or shut-off locations) for government facilities, commercial buildings, and any site frequented by large groups of people. They can access this information via a wireless internet connection and a laptop computer. The product (called “Rapid Responder”) also allows emergency responders to create incident command and control plans and communicate in real time among local, state and Federal agencies on a regional or national basis via a secure internet connection. A prototype of the Rapid Responder product was initially developed by Pierce County, Washington, in a joint public-private venture. The County teamed up with local security application company, Prepared Response, Inc. The company has since redeveloped the product, and is now licensing its Rapid Responder product to a variety of municipalities and government jurisdictions. Rapid Responder is a software system that uses existing internet and computer technology to provide multi-agency, first responders with instant vehicle-mounted laptop and desktop computer access to: • On-line mapping and directions to specific emergent incidents • Building floor plans and blueprints • Digital interior, exterior site photos to disseminate on-site • Incident plans and logistical information including site evacuation plans in the event of violence or natural disasters, such as earthquakes, tornadoes, and floods. • Use of the Incident Command System (ICS) • Local, regional, and national real time communication via secure connection • Emergency contact information • Hazardous materials database (including handling and exposure treatment protocols) • Hospitals and other medical services regarding patient condition and bed availability for small and mass casualty events • Collapse zone assessments around major structures to help protect responders and residents • Pre-incident fire planning as required by local and state laws Immediate access to this type of information can help emergency responders quickly contain and mitigate life and property threatening incidents. In fact, an early version of the Rapid Responder product was instrumental in containing an incident at a local high school where a live hand grenade was found in a locker. From floor plans and digital photos available through Rapid Responder, the bomb squad pinpointed the grenade's location and determined that their bomb disposal robot could access the location. 78 2005-2006 County of Los Angeles Civil Grand Jury WXGM Radio Agreement, York County, VA: York County, Virginia, is a coastal community prone to a number of natural hazards, such as hurricanes and winter storms. Getting information to County residents during any of these emergencies has been a persistent problem. The media becomes overwhelmed with all the information from various jurisdictions during emergencies. Because the media condense and summarize information and actions being taken within the larger jurisdictions in their markets, the residents of the smaller jurisdictions often wonder about services and emergency status in their communities or make assumptions based on information intended for residents of other communities. Although the local radio station WXGM is located in a neighboring jurisdiction, its broadcast signal is strong enough to reach all of York County’s residents. York County coordinated with the Station Manager to draft an agreement between the two parties on some specific emergency operational details. WXGM agreed to broadcast during their regular news program the times that York County residents can tune in to get York County specific messages during emergencies or disasters. Los Angeles County Topanga Emergency Preparedness Project: In April 2001 the Los Angeles County Office of Unincorporated Area Services (OUAS) selected Topanga Canyon as a location to pilot emergency management planning for unincorporated areas. Topanga Canyon is a community of more than 10,000 people uniquely vulnerable to fast-moving wildfires, earthquakes, floods, and land slides. Since early 2004, approximately 60 community members and personnel from County of Los Angeles and California agencies have worked to develop a joint emergency management plan that is customized for Topanga Canyon. This plan included two communications elements that are best practices. Emergency Notification Systems In Topanga Canyon, there is a Topanga Coalition for Emergency Preparedness hot line, web site, and Family Radios Service (FRS). Note: FRS radios are compact, handheld, wireless, two-way radios that provide clarity over a relatively short range. FRS radios operate on any of 14 dedicated channels, designated by the Federal Communications Commission expressly for FRS radio use in neighborhoods. Community Alert Networks and FRS combine to alert residents to emergency situations. 2005-2006 County of Los Angeles Civil Grand Jury 79 Communication and Education Plans For Topanga Canyon, the communication process to the community included several methods of communication. The first is “The Topanga Disaster Survival Guide.” This graphically appealing booklet was distributed to all residents and businesses in the Canyon. It contains emergency preparedness information that is customized to the Topanga Canyon community and includes emergency evacuation routes and procedures, as well as maps illustrating the Community Safety and Neighborhood Survival Areas. Another communication vehicle is the web site www.topangasurvival.org. This site provides additional copies of the Survival Guide, as well as copies of the forms to be used to develop individual family emergency plans. Key portions of the Survival Guide are available in Spanish on the web site. Future plans for the web site include establishing links to emergency preparedness and other resource organizations, as well as articles providing more detail about specific topics in the Survival Guide, including preparation for equine and other animal evacuation. In addition, the Survival Guide has become a vehicle to further neighborhood conversations and planning. Neighborhood meetings, conducted by both community representatives and first responders, have been held throughout the Canyon. The results of these meetings are organized plans for each neighborhood. In September 2005, the Survival Guide was announced at a press conference held during a community emergency preparedness fair. Several hundred people enjoyed the displays, demonstrations, and materials provided by public agencies and private vendors. Additionally, the local newspaper has given significant coverage to planning efforts and the emergency preparedness messages. A column titled, “Topanga Tim,” offers advice weekly to residents through vignettes. 80 2005-2006 County of Los Angeles Civil Grand Jury APPENDIX C SAFECOM INTEROPERABILITY CONTINUUM CURRENT PRACTICES OF LOS ANGELES AREA AGENCIES Minimal Optimal Level (cid:205)===================================================(cid:206) Level Governance Individual Agencies Informal Key Multidiscipline Regional Committee Working Coordination Staff Collaboration on Working w/a Statewide Independently Between a Regular Basis Interoperability Committee Agencies (cid:122) Sheriff’s Dept. (cid:122) Regular (cid:122) Multiple incident (cid:122) California has set up a Managers meet networking planning exercises Golden Guardian weekly for 2-3 going on occurring on Program, not yet fully hours to discuss among all regular basis implemented. security and agencies. among agencies. emergency (cid:122) California has an planning. operational SIEC http://www.npstc.org/sie c/siec.jsp Standard Individual Agency Joint SOPs for Regional Set of National Incident Operating SOP Planned Events Communications Management System Procedures SOPs Integrated SOPs (cid:122) NIMS is implemented – based on Calif. agencies design. Technology Swap Radios Gateway/Shared Proprietary Shared Standards-based Shared Channel Systems (PSS) Systems (cid:122) Police (cid:122) All agencies (cid:122) County will be (cid:122) Potential long-term Department radio can share preparing a direction. Many financial in each Fire channels at Statement of work and administrative Department emergency to develop an RFP hurdles to overcome. vehicle. sites with for a common 15+ years to fully either dispatch County-wide implement. assistance or system. Conservatively ICU mobile estimated at $400 van. (cid:122) May end up to be million; most believe standards based well in excess of that. (cid:122) ACU 1000 rather than based proprietary. (cid:122) Governance model LARTCS missing for radio provides a (cid:122) ICIS is a six-city upgrading, sophisticated example of an maintenance, and Countywide existing PSS within channel and trunk gateway the County. assignment. County of system. Los Angeles Fire Department has drafted a model for consideration by agencies. 2005-2006 County of Los Angeles Civil Grand Jury 81 Minimal Optimal Level (cid:205)========================================================(cid:206) Level Training & General Orientation Single Agency Multi-Agency Full Regular Comprehensive Exercises on Equipment Tabletop Functional Exercise Regional Training Exercises Involving All Staff Exercises (cid:122) LAPD 3 hours (cid:122) LAFD, LAPD Drill (cid:122) Regular multi- agency training together weekly. drills are taking place; Sergeant’s issues in scheduling to school, 2 hours (cid:122) Pasadena agencies avoid redundancy. training in Watch. do “joint” tabletop exercises to work on coordination. (cid:122) Twice a week, 90 users participate in a test of LARTCS. Includes ambulances, US Coast Guard, National Guard, and Federal Agencies. Usage Planned Events Localized Regional Incident Daily Use Throughout Emergency Management Region Incidents (cid:122) Multi-jurisdictional (cid:122) No regular use of incident command shared platform in LA centers used County. regularly per NIMS. (cid:122) No regular use of shared platform in LA County. 82 2005-2006 County of Los Angeles Civil Grand Jury APPENDIX D U. S. DEPARTMENT OF HOMELAND SECURITY GRANT FUNDING PROGRAMS URBAN AREAS SECURITY INITIATIVE AND STATE HOMELAND SECURITY GRANT PROGRAM The U.S. Department of Homeland Security provides emergency preparedness grant funding via State Homeland Security Grant Program (SHSGP) and the Urban Areas Security Initiative (UASI). The SHSGP consists of the County of Los Angeles and the 88 incorporated cities in the Los Angeles Operational Area. The UASI includes the County of Los Angeles, Long Beach, Los Angeles, and 16 other contiguous cities. The approval structure for both funding streams consists of two levels: SHSGP Grant Planning Task Force UASI Urban Area Working Group with 22 voting members with 14 voting members_____ LA City Fire Department LA City Fire Department (2) LA City Police Department LA City Police Department (2) LA City Emergency Preparedness LA City Emergency Preparedness Department Department Fire Chiefs Association Fire Chiefs Association Police Chiefs Association Police Chiefs Association LA County Department of Public Works LA City Department of Water and County Sheriff’s Department Power County Office of Emergency Management County Office of Emergency Management LA County Department of Health Services LA County Department of Health Services LA City Department of Airports LA City Harbor Department LA County Terrorism Early Warning Group LA Department of Airports LA County Fire Department LA County Fire Department LA County Coroner LA County Sheriff’s Department Disaster Management Area Coordinators (8) Los Angeles County Contract Cities Assoc. And one non-voting member Governor’s Office of Emergency Services 2005-2006 County of Los Angeles Civil Grand Jury 83 The Task Force and Working Group each make recommendations to an Approval Authority: SHSGP with five voting members: UASI with nine voting members: LA County Sheriff LA City Chief of Police LA County Fire Chief LA City Fire Chief LA County Public Health-EMS LA County Sheriff Fire Chiefs Association LA County Fire Chief Police Chiefs Association LA City Dept of Airports – Chief of Police and three non-voting members: LA City Harbor Dept-Chief of Police LA County Dept of Health Services LA City Police Department Chief Police Chiefs Association LA City Fire Department Chief Fire Chiefs Association County Chief Administrative Officer Communications is a current funding priority at all levels of government U.S. Department of Homeland Security: “Strengthen communications capabilities” is number six of fourteen priorities. Governor’s Office of Homeland Security: “Strengthen interoperable communication capabilities” is number one of fourteen priorities. Los Angeles Operational Area: “Strengthen flow and security of real-time data, voice, and video across agencies, disciplines, and jurisdictions” is number two of six priorities. Recently issued fiscal year 2006 changes in application guidelines include: “All applications must include a 10% allotment for training purposes, specifically on equipment that was purchased and successful courses that have been developed.” 84 2005-2006 County of Los Angeles Civil Grand Jury APPENDIX E GLOSSARY OF ABBREVIATIONS CAB Community Advisory Broadcast - program in early design stage to coordinate a variety of media to communicate with the public CAN Community Alert Network - used in Topanga Canyon to inform residents of emergencies CEOC County of Los Angeles Emergency Operations Center - operated and maintained by OEM CERT Community Emergency Response Team - volunteers trained to provide assistance to their neighbors CWIRS County-Wide Integrated Radio System - radio system used by County departments other than Fire and Sheriff (e.g., DHS, ISD, DPW) DHS County of Los Angeles Department of Health Services DOC Department Operations Center - established to coordinate departmental responses to emergencies DPW County of Los Angeles Department of Public Works EBIS Emergency Business Information System - database with plans and hazardous materials information on businesses, first established by the City of Industry EMIS Emergency Management Information System - established and maintained by OEM, an internet-based database for gathering input from local jurisdictions and emergency responders on conditions and needs during an emergency EMS Emergency Management Service - Los Angeles County Department of Health Services operation responsible for directing ambulances to available hospital emergency rooms EOC Emergency Operations Center - established to coordinate responses to emergency; OEM operates the County EOC, called CEOC ESP Emergency Survival Program - with materials developed and prepared by OEM FCC Federal Communication Commission - regulates the use and allocation of frequencies in the United States FEMA Federal Emergency Management Administration GIS Geographical Information System HASTEN Health Alert System Training and Education Network - secure communication portal for healthcare professionals and emergency response partners HEAR Hospital Emergency Administrative Radio - a voice backup for communication to hospitals and clinics in disasters 2005-2006 County of Los Angeles Civil Grand Jury 85 ICIS Interagency Communications Interoperability System - network of multiple, independent, trunked radio systems used by Glendale and four other cities in Los Angeles County ICS Incident Command System - model approach to coordinating the activity of emergency responders ISD County of Los Angeles Internal Services Department JIC Joint Information Center - deployed at emergencies to coordinate media interactions LACFD Los Angeles County Fire Department LAFD Los Angeles Fire Department LAPD Los Angeles Police Department LARCOPP Los Angeles Regional Common Operational Picture Program – system in early stages of deployment that provides transmission of data relevant to emergency to and from the command post to DOCs and among DOCs and the CEOC LARTCS Los Angeles Regional Tactical Communications System - a radio system that can patch various agencies together across different radio channels and frequencies LAUSD Los Angeles Unified School District MDT Mobile Data Terminal - largely obsolete technology used by LASD to transmit information to and from vehicles MHz Megahertz NIMS National Incident Management System – a Federal approach to SEMS, based on ICS, to coordinate the activity of emergency responders OEM Office of Emergency Management OUAS Office of Unincorporated Area Services RISC Radio Interoperability Steering Committee SAFECOM Federal program that focuses on wireless Safety Communications interoperability SEMS Standard Emergency Management System - State of California approach, based on ICS, to coordinate the activity of emergency responders; NIMS is based on SEMS, and is now the nationwide approach SIEC Statewide Interoperability Executive Committee UASI Urban Area Security Initiative UHF Ultra high Frequency VHF Very high Frequency 86 2005-2006 County of Los Angeles Civil Grand Jury HALL OF JUSTICE Adele Coy, Chair Regina Block, Vice Chair Octavio E Chavez, Jr Marilyn Holley 2005-2006 County of Los Angeles Civil Grand Jury 87 88 2005-2006 County of Los Angeles Civil Grand Jury 2005-2006 County of Los Angeles Civil Grand Jury 89 90 2005-2006 County of Los Angeles Civil Grand Jury HALL OF JUSTICE: THE MONEY PIT? EXECUTIVE SUMMARY The Hall of Justice (HOJ), located at 211 West Temple Street, was built in 1925 and is now considered an historic building. The HOJ was evacuated and abandoned after the Northridge earthquake in January 1994 and red tagged as “unsafe”. Thereafter, all employees and offices were relocated around the County with operating leases put into effect. During re-inspection in 1998, the building was found to have been red tagged in error; all damage was superficial and/or cosmetic. It was determined that with proper retrofitting, repair, and renovating much of the historical integrity of the structure, the HOJ could again be occupied. Following the 1994 earthquake, Los Angeles County was awarded a Federal Emergency Management Administration (FEMA) Grant of $16 million specifically for seismic retrofitting and hazard mitigation of the HOJ. Due to non-compliance with FEMA requirements, the County has not received any money to date from the Federal Government. The FEMA Grant will expire in 2006. Urgent compliance with the FEMA Grant is necessary so that $16 million is not lost. Hundreds of thousands of dollars have been spent attempting to set a plan in motion for the expenditure of hundreds of millions of dollars for an unknown project. The exact amount of monies spent to date and those needing to be spent in the future, to either repair the building or sell it, must be determined and a firm project plan must be put in place. 2005-2006 County of Los Angeles Civil Grand Jury 91 METHODOLOGY Interviews were conducted with employees of the Chief Administrative Office (CAO) and the Department of Public Works (DPW), and documents were reviewed. The County of Los Angeles Civil Grand Jury was given a tour of the entire building and observed first hand the deterioration as well as artistic and functional attributes. PURPOSE • To investigate reasons the HOJ has been left vacant for twelve years • To investigate what efforts have been made by the County to rehabilitate and use the building or sell it • To determine how much money has been spent in all previous attempts to rehabilitate the property for county use or other purposes • To determine how much money is needed in order to make the HOJ habitable HISTORICAL Built in 1925, the oldest structure in the civic center was designed in the architectural style known as Beaux Arts. This was a combining of classical Greek and Roman Architecture with Renaissance ideas, which was the favored style of its time for grandiose public buildings. The grand entrance hall with its marble walls and floors, chandeliers, fine polished woods, majestic staircases and polished brass banisters made an impressive statement for all who entered the building. In its tenure it housed the famous and infamous, during life in its upper floor jails, and during death in its Coroner’s Office. It was the site of many sensational trials such as Bugsy Siegel, Charles Manson and Sirhan Sirhan. The Coroner’s Office processed the likes of Marilyn Monroe and Robert Kennedy. The building was further renowned as a site location for many movies and TV shows. This was the home of the criminal courts and Sheriff’s Department for many years. It was also the home of the Coroner’s Office, Detective Bureau, narcotics evidence holding area, illegal firearms confiscation holding area, and home to all records for these respective departments. 92 2005-2006 County of Los Angeles Civil Grand Jury
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  DPSS should develop and implement an enhanced welfare fraud detection and investigation training program for employees in the Welfare Fraud Prevention Section in conjunction with the Los Angeles County District Attorney and receive periodic State and local training. Personnel trained and employed by this program should be compensated commensurate with their increased responsibilities.
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  If the parent is working for cash or for relatives, the payer should sign, under penalty of perjury, certifying the hours, the amount paid, and the work accomplished. A cross check between child care provider services and IHSS services, requiring copies of tax returns, and random field checks at the employment location should be mandatory. DPSS should eliminate child care allowance if employment legitimacy cannot be determined.
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  Any paid child care in excess of ten hours per day for 5 days per week or 12 hours per day for 4 days per week should be monitored and verified on site by DPSS.
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  Trustline Registry Form background check must be approved and received by DPSS prior to any authorization for child care (including License-exempt and Trustline Exempt). DPSS should work with the State to expedite the Trustline Registry Form.
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  The definition of “own children” should be limited to only the biological or legally adopted children of the child care provider. A limit should be placed on the number of children cared for by one child care provider, based on the capacity of the provider and the site, to provide safe and healthy child care. 248 2005-2006 County of Los Angeles Civil Grand Jury
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  Contract agency employees should be required by DPSS to undergo the same background checks required of DPSS employees in the same job category. CONCLUSION The Los Angeles DPSS CalWORKS program, with a budget in excess of one billion dollars, is huge and complex. The California Department of Education Error Study Report statistics, interviews with individuals convicted of welfare fraud, and the continuing multiple arrests by the District Attorney’s office confirm the need for immediate tightening of program controls. As currently administered by DPSS, the CalWORKS program invites fraud estimated at 50% by some DPSS and APP personnel. Fraud is less likely to occur in a program with increased supervision, regularly-scheduled training, and checks and balances for each step of the process. The citizens of Los Angeles County deserve better so their tax dollars are used wisely and more eligible parents and children can be helped. 2005 – 2006 County of Los Angeles Civil Grand Jury 249 GLOSSARY APP Alternative Payment Provider (State and County) CACI Child Abuse Central Index (State) CaIWORKS California Work Opportunity and Responsibility to Kids (State and County) CAO Chief Administrative Office (County) CDE California Department of Education (State) CDSS California Department of Social Services (State) DOC Department of Corrections (State) DPSS Department of Public Social Services (County) DSS Department of Social Services (State) FBI Federal Bureau of Investigation (Federal) GAIN Greater Avenues to Independence (County) GEARS Gain Employment Activity and Reporting System (County) HIP Home Interview Program (County) IHSS In Home Support Services (County) 250 2005-2006 County of Los Angeles Civil Grand Jury RECYCLED WATER Myra Kendall, Chair Franki Horne Sidney Munshin Arnie Spears 2005 – 2006 County of Los Angeles Civil Grand Jury 251 252 2005-2006 County of Los Angeles Civil Grand Jury RECYCLED WATER EXECUTIVE SUMMARY Water recycling is an umbrella term encompassing the process of treating wastewater, storing, distributing, and using the recycled water. Recycled water is defined in the California Water Code to mean “water which, as a result of treatment of waste, is suitable for a direct beneficial use or a controlled use that would otherwise not occur.” Water recycling is viewed as an important component in the State’s overall water supply solution as it is a reliable local resource that would help lessen the region’s dependency on imported sources. In the last ten years, the Metropolitan Water District of Southern California (MWD), the City of Los Angeles Department of Water and Power (DWP), the Los Angeles County Department of Public Works (DPW), and the Sanitation Districts of Los Angeles County (SDLAC) have cooperated in studies and in developing projects for producing, saving and using recycled water. However, too much of treated water still goes to the ocean unused, leaving the more expensive imported water to be used for projects that could be utilized with recycled water. A consistent water policy regarding the permit procedure, regulations, and education of the public concerning recycled water is needed. BACKGROUND Ten years ago the Los Angeles County Civil Grand Jury did an investigation of water usage after a drought which created a water shortage. The 2005-2006 Civil Grand Jury thought it feasible to see what is now happening in the area of recycled water. This report includes current information provided by the four entities listed above. PROCEDURE This committee met with personnel from all four of the entities listed above. We visited some of their facilities and talked with managers and technicians to gain some knowledge of their operations. The following section will be divided into the four entities. There may be some overlap of departments within each section.