Disaster Preparedness:

Recommendations 2

• R1
  Discussion-based exercises are tabletop simulations, seminars, or workshops. They are used to familiarize participants with plans and procedures.
• R2
  Operations-based exercises are drills, which can be either functional or full-scale. These test plans, policies, agreements and procedures, clarify roles and responsibilities, and identify resource gaps in an operational environment. There are three types of operations-based exercises: • Drills: A coordinated, supervised activity usually employed to test a single, specific operation or function within a single entity, such as a fire department conducting a decontamination drill. • Functional Exercises: These exercises examine the coordination, command, and control between various multi-agency centers such as an emergency operation center or a joint field office. A functional exercise does not involve first responders or emergency officials responding to an incident in real time but does allow participants to physically run through elements of the response to become familiar with it. • Full-Scale Exercises: A multi-agency, multi-jurisdictional, multi-discipline exercise involving both emergency operations centers and rehearsed emergency responses (e.g., multiple departments in the field doing live activities and communicating results and resource needs to their emergency operation centers). Many of the exercises, especially if funded by federal grants, are required to be conducted in accordance with FEMA’s Homeland Security Exercise and Evaluation Program. In order for a jurisdiction to be considered compliant with these principles it must conduct annual training and exercises, submit after-action reports, and take corrective actions. The grand jury found that the cities of Alameda, Hayward, Newark, Piedmont, San Leandro and Union City performed no emergency training exercises within the last two years. Other cities, including Albany, Emeryville, and Pleasanton only performed tabletop exercises. The city of Berkeley conducted the most exercises (27), both functional and tabletop, and the county of Alameda conducted 18 exercises, both functional and tabletop. It should be noted some exercises included numerous jurisdictions. Notably, the Urban Shield multi-jurisdictional exercises conducted in September of 2018 included a full-scale earthquake and other emergency scenarios. Participants included Cal OES, various state departments, the county of Alameda, and five of the 14 cities in the county: Berkeley, Dublin, Fremont, Livermore, and Oakland. It should be noted, however, that funding for these exercises, provided by the Department of Homeland Security, was lost when the county board of supervisors ignored warnings of the Alameda County Sheriff’s Office and set conditions in its application that were unacceptable to the grant funders.1 Other exercises, such as “The Great Shakeout,” the “Big Wave” (for tsunamis), and “Mass Care” (to deal with the care of the displaced) were also attended by a number of cities. The Alameda County Public Health Department sponsored two exercises anticipating an emerging infectious disease outbreak: a tabletop exercise in October of 2018 and a functional exercise in November 2018. The purpose was to understand individual and coordinated response roles for the public health department and other local agencies and healthcare providers. Participants included various county agencies including the department of emergency services and a large number of healthcare providers, including Kaiser Permanente, Sutter Health, and a number of assisted and senior care centers. The only city to participate was Berkeley, which alone among the cities in Alameda County has its own public health agency. As we have seen with the coronavirus pandemic, the public response to the outbreak (such as ordering citizens to shelter-in-place) was made at the county level by the county public health department, as well as by the city of Berkeley public health office. The after-action reports for both of these outbreak exercises found strengths and areas in need of improvement and recommended further free FEMA courses for healthcare providers. The grand jury recommends that these exercises be repeated on a regular basis and after-action reports be prepared to assess the readiness of what would be a wide-ranging collection of healthcare providers responding to an outbreak. The Alameda County Grand Jury did an investigation into the loss of this funding in its 2018-2019 report: “County Mismanagement Loses Millions for Terrorism and Disaster Training.” 76 Emergency Operations Center Activation Activation of an emergency operations center occurs when an emergency or civic event requires a response or monitoring. Such activation gives the jurisdiction a chance to test the system and see its capabilities and the need for any changes. The level of activation is determined by the director of emergency services in consultation with field responders or emergency management staff. There are three levels of activation: • Full activation (Level One) involves a full activation of all organizational elements likely requiring help from the state or Federal government, such as a major earthquake resulting in significant damage. • Partial activation (Level Two) is for emergencies or planned events requiring greater staffing, such as during PG&E’s planned power outages in 2019. Representatives from other jurisdictions may be requested to assist or provide mutual aid in some aspects of a partial activation. • Minimum activation (Level Three) is for situations which initially require minimal staffing, e.g., alerts of anticipated storms or tsunamis; or monitoring of a low-risk planned event such as a parade. No jurisdiction in Alameda County had a full activation of its operations centers during the last two years. Ten jurisdictions conducted partial activations and two conducted minimal activations. Three cities, Emeryville, Newark, and Piedmont have not performed any activations at any level over the last two years, again because there were no emergencies that triggered them. This emphasizes the need for training and exercises, specifically functional and full-scale exercises for emergency centers and staff. However, in 2020, Alameda County and Berkeley initiated a full activation to deal with the COVID-19 crisis to support their public health officers and departments. For the other jurisdictions, some had partial activations to support the care and sheltering operations. All agencies, special districts, and other state and federal agencies participated in a daily conference call with the public health officers and Alameda County Office of Emergency Services. Emergency Operation Training Courses Cal OES states that training, tests, and exercises are essential to ensure that officials, emergency responders, and the public are operationally ready, and recommends that personnel with emergency responsibilities complete courses described by SEMS and NIMS. Cal OES provides courses for emergency managers and first responders. Some of these courses are available online 77 for free. Advanced courses are available through FEMA’s Emergency Management Institute, Bay Area Urban Area Security Initiative, and the California Specialized Training Institute. The following agencies were identified as having participated in limited training in SEMS or NIMS in the last two years: • Hayward had one training on violent intruder response in 2017 and one all-hazards incident leadership class in 2018. • Oakland had two training sessions on mass care and sheltering in 2019. Grant Funding and Support for Training and Exercises The grand jury recognizes that disaster preparedness programs require financial resources and staff support to plan, develop, and implement. All jurisdictions have limited resources and each jurisdiction should take advantage of grant opportunities to enhance their emergency operations training and exercises. For example, in 2018 some of the Alameda County jurisdictions participated in the Urban Shield training that provided a rare opportunity to test the care and sheltering plans and emergency operations centers in the county. Examples of available grants that could assist each local agency include: • Emergency Management Grant • Urban Area Security Initiative Grant (as noted above, the county has lost this funding) • State Homeland Security Program • Homeland Security National Training Program • Hazard Mitigation Grant After-Action Reports California regulations require that an after-action report be completed whenever the local agency has declared a state of emergency. These reports should make recommendations for correcting problems discovered during a response/recovery effort, or during exercises and training. The Sonoma County Complex Fires report is a good example of this. After a comprehensive review of the fires, the response by emergency personnel, and an overview of the emergency operations center organization, the report made 68 detailed findings and 55 recommendations ranging from changes to the operation of the emergency centers, to increased training and preparation, to clarification of roles of elected officials. The grand jury found that not all entities in Alameda County provided documentation for the lessons learned from their exercises or Emergency Operations Center (EOC) activations. Six cities reported completing no reports at all despite numerous activations and exercises. Only the city of Emeryville provided after-action reports and improvement plans for all their exercises. The grand jury strongly recommends that all jurisdictions prepare after-action reports and corrective action plans. Templates for after-action and improvement plans are available from FEMA’s Homeland Security Exercise and Evaluation Program website. Table 1: Responses Regarding Emergency Operations Plans (EOP), Emergency Operations Center (EOC) Activations, Training and Exercises 2018―2019 Jurisdiction EOP EOC EOC After- EOC Notes Plan Exercises Activation Action Training Date Reports (AAR) Alameda City 2019 4 Several None Yes Notification drills for city staff. notification partial and drills monitoring Alameda 2012 18 exercises, 3 partial Yes 26 EOP will be updated in 2020; County functional Sessions no AAR for partial activations; and tabletop participated in 2018 statewide infectious disease functional exercise. Coordinated 2018 Urban Shield. Albany 2018 1 tabletop; 3 partial Yes Yes EOC monitor status for PGE drill shutoff (PSPS) and civic events. Berkeley 2016 27 exercises 5 partial Yes 39 EOC Participated in 2018 statewide functional and 3 training infectious disease functional and tabletop monitoring sessions exercise and Urban Shield. Conducted drills and training for the health and public works departments. Dublin 2004 2 functional 2 partial and None Yes EOP to be updated 1st quarter 1 tabletop 1 monitoring 2020. Participated in 2018 Urban Shield. Emeryville 2014 4 tabletop None Yes Yes Established a disaster reserve fund of $3.45 million Fremont 2020 1 tabletop, 2 partial and Yes Yes One EOC communications 1 functional 1 “virtual” training class in 2019, 12 classes from 2017―2018; Urban Shield. Hayward Un- None 2 partial Yes Notes Several exercises in 2016; dated training in violent intruder and all hazard incident leadership Livermore 2018 2 tabletop, 10 partial None Yes All employees required taking 1 full scale NIMS and SEMS training. Assigned staff receives advanced EOC training annually. 2018 Urban Shield. 79 _ ___________________________________________________________________________________ Table 1, Continued: Responses Regarding Emergency Operations Plans (EOP), Emergency Operations Center (EOC) Activations, Training and Exercises 2018―2019 Jurisdiction EOPP EOC EOC After- EOC Notes Plan Exercises Activation Action Training Date Reports (AAR) Newark 2013 None None None Yes Oakland 2012 1 functional 6 partial None Yes Activation for PG&E PSPS, 2 civic activities; AAR for PG&E PSPS in development. 2018 Urban Shield. Piedmont 2015 None None None Yes EOP to be updated in 2020. One EOC training class for all employees. Pleasanton 2018 3 tabletop 2 partial Yes Yes San Leandro 2015 3 drills 2 partial Yes Yes EOP in process of update; AAR for one drill. Drop, Cover and Hold and Evacuation drills. Union City 2014 1 tabletop 1 partial None Yes Activation for cyber outage and PG&E PSPS Standby Officers Standby officers are officials designated to fill the post of any member of a governing body who is unavailable during a state of emergency. Such standby officers would serve either until the elected members return or until the next election. Although not mandatory by state law, it is prudent and a best practice to appoint standby officers for each member of a governing body in Alameda County before a disaster occurs to ensure continuity of government and representation of the electorate during a crisis. Having no standby officers means that should the regular members of the governing body be unable to fulfill their duties during an emergency (e.g., incapacitated during a pandemic, injured or burned out of their homes) there would be no one to take their places during that emergency. In Alameda County, the cities of Berkeley and Emeryville have adopted resolutions designating standby officers for their elected governing bodies. The city of San Leandro identifies standby officers by assignment to specific commissions according to the elected official’s date of appointment. San Leandro should modify their designated standby officer list to be specific to the individual councilmember in succeeding order. All other jurisdictions including the cities of Alameda, Albany, Dublin, Fremont, Hayward, Livermore, Oakland, Piedmont, Pleasanton, 80 ____________________________________________________________________________________ Union City, and Alameda County should adopt resolutions designating up to three standby officers for each member of the governing body in succeeding order. Elected Official Training To effectively deal with an emergency and for the proper management of an emergency operations center, it is important to have the governing body and standby officers trained in advance of a disaster. They will be better informed when making funding decisions related to stockpiling essential supplies (e.g., gloves, masks, ventilators), and they will know which experts to rely on when making emergency decisions such as closing schools and public areas. During any crisis, they will have the responsibility to communicate with the public. Inconsistent or false information can complicate relief efforts. As we have seen during the recent COVID-19 crisis, a slow response or misinformation by public officials can cause dangerous delays and even loss of life. The grand jury found that eight cities have not FEMA and the state of California offer free training for elected had emergency officials. The Sonoma County Complex Fires report noted that training for their “elected officials were not effectively integrated into the elected officials during the past emergency management organization and emergency operations two years. center functions” and recommended developing an elected official’s disaster handbook, along with training specifically for elected officials. Given the turnover in elected officials, it is likely that numerous officials have had no training at all and would presumably not know what actions to take in a disaster. Director of Emergency Services Line of Succession A line of succession for the director of emergency services needs to be identified in the emergency operations plans. The California Emergency Services Act recommends that a line of succession of three persons be identified in succeeding order to ensure a designated person can provide direction should the director be unavailable. Without a line of succession for the director of emergency services, the emergency operations center staff could be left leaderless. The grand jury recommends that since Dublin, San Leandro, and Union City do not have established lists for their directors of emergency services identified in their emergency operations plans, they need to identify alternates. Albany identifies the line of succession as the “police chief or fire chief” but this should be amended to designate a specific line of succession for alternates. Hayward lists only one alternate (fire chief) to succeed the city manager, and the city should therefore modify their emergency operations plan to identify three individuals in succeeding order. 81 ____________________________________________________________________________________ Table 2: Responses regarding Standby Officer List, Elected Official Training, and Director of Emergency Services Lines of Succession Jurisdiction Standby Elected Director Notes Officers Officials Line of Training Succession Alameda City No No Yes Succession plan for mayor only. Alameda County No Yes Yes Albany No Yes Yes Line of Succession is not in specific order for Director of Emergency Services (Police or Fire Chief) Berkeley Yes February Yes 2018 Dublin No April 2018 No and April 2019 Emeryville Yes 2015 Yes City Council training scheduled for 2020 Fremont No Yes Yes Standby Officers to be addressed in Spring of 2020 Hayward No No Yes Only 1 Director alternate – Fire Chief Livermore No Yes Yes Elected officials required to take SEMS training Newark No No Yes Oakland No No Yes Piedmont No No Yes Pleasanton No No Yes San Leandro Yes No No Lists standby officers using commission; need to modify Union City No No No Alameda County Emergency Operations Center The grand jury visited the Alameda County Emergency Operations Center in February of 2020 to see what is in place to be activated in the event of an emergency or disaster requiring an immediate response. The Alameda County Sheriff’s Office operates the center in Dublin, California. Created in 1996, the center maintains a two-hour response capability. The center consists of a central operations room with tiers of desks, phones, and computers for such stakeholders as Cal OES, public works, volunteer organizations (such as the Red Cross), and PG&E (which also has its own emergency center). The center also has a wall of TVs showing news, weather, and other strategic information. This room is surrounded by other rooms dealing with such things as fire rescue, public works, social services, and logistics, as well as a media room that keeps track of ongoing public information such as TV news and social media. A radio dispatch center provides a backup radio system that may be used in an emergency. The center also has a backup power generator. 82 ____________________________________________________________________________________ In addition to its standby status for emergencies, the county emergency center also conducts training and information sessions. According to the Alameda County Sheriff’s Office, it is one of the busiest emergency centers in the state. The Alameda County Emergency Operations Center is important to local emergency and disaster response for two reasons. First, the county’s center will coordinate with the state and regional emergency operations centers in responding to an emergency, as well as with other entities such as cities and water districts within its jurisdiction. Second, as noted by several of the smaller cities in their responses to the grand jury inquiry, a major disaster may overwhelm local emergency centers and responses, and those jurisdictions may rely heavily on the county for support and resources to respond to the Alameda County Emergency Operations Center emergency. Public Preparedness The grand jury emphasizes the public’s role in all emergency preparation, whatever the anticipated disaster. Residents play an important role in emergency management by ensuring they and their families are well-prepared. Before an emergency occurs, citizens can assist the emergency management effort by taking first aid, Ham radio or Community Emergency Response Team training, maintaining home emergency supplies, and being prepared to evacuate or shelter-in-place for several days or weeks. During an emergency, citizens should monitor emergency communications by signing up for the Alameda County Emergency Alert Notification System (AC Alert) and carefully follow directions from authorities. By being prepared, citizens can better serve their families and communities and reduce demands on first responders. Many local government agencies, particularly county offices of emergency services, have individual, family, and community preparedness initiatives. California Volunteers is a state office that provides information and tools to support individual and community emergency planning and matches volunteers to opportunities. Cities can also prepare their communities by creating community-based emergency scenarios. For example, the cities of Berkeley and Albany conducted a drill with residents in 2019 to develop and test their evacuation plans. The public health departments of Alameda County and Berkeley conducted mass vaccination and point-of-distribution drills simulating the delivery of supplies in the case of a pandemic event. 83 ____________________________________________________________________________________ CONCLUSION We are all aware that disasters can happen, but most of us are unaware of how an emergency can affect our daily lives. Emergencies range in unpredictability and in the amount of time they allow us to prepare ourselves. We can see epidemics start overseas, develop into worldwide pandemics, and when it reaches our shores, we can only hope that the government is prepared to help us deal with it. We know that wildfires are endemic to our region, but we forget the speed with which they can move and that they can leap eight-lane freeways with ease and wipe out neighborhoods in minutes. And the earthquake that will wreak massive destruction, cause a large loss of life, and change our cities and our way of life for years, will be the last thing on anyone’s mind moments before it happens. Faced with these potential disasters, the one thing that can help us is preparation. The jurisdiction that will have the greatest responsibility to deal with any disaster or emergency is the County of Alameda itself. As the operational area coordinator, they will Faced with these have to support not only the unincorporated areas of the potential disasters, county, but also the 14 cities in the event of a regional the one thing that disaster. Alameda County has a state-of-the-art emergency can help us is preparation. operations center and coordinates training programs that are attended by not just local cities, but also by water and utility districts, hospitals, and other stakeholders. Two cities—Emeryville and Newark—indicated they will likely be overwhelmed by any large disaster and intend to rely on the county in an emergency. In truth, major disasters will require all the jurisdictions to rely on the State and Federal government to provide resources and staff to respond to and recover from an emergency. Prior to the COVID-19 pandemic there had not been an emergency or disaster of sufficient magnitude in the last several years to require a full level activation of any local emergency operations center. Furthermore, as our investigation showed, three cities—Emeryville, Newark, and Piedmont—had no activations at all in the last two years. Eight cities conducted no training of their elected officials who will be called upon to make decisions in times of crisis. It is imperative that all jurisdictions hold frequent exercises and training, involving not just employees but also elected officials. Decisions that they make during their time in office must be informed by an understanding of what can happen when disaster strikes and what we must do to prepare for a major emergency. Only two cities in Alameda County have designated standby officers, and while this is optional, it is an easy step to take. The emergency director line of succession is also easy to establish, and although only three cities failed here, one city was less than clear on the actual order of succession, and another city only had one alternate. Given the relative simplicity of these 84 ____________________________________________________________________________________ matters, it is surprising that all the cities and the county have not designated emergency stand- by officers and a line of succession for their directors of emergency services. The grand jury calls upon individual cities and the county to update emergency plans; conduct regular exercises; establish standby officers for elected officials; and create lines of succession for the directors of emergency services. In addition, the grand jury recommends that the cities and county make available online all emergency operations plans, after-action reports for activations and exercises, and other materials related to emergency preparation.