Basic Plan Appendix A –

Essential Emergency Functions Matrix amended for terrorism is also applicable to measures that agencies would take in an earthquake.  This matrix is a compilation of the responses to three scenarios, one chemical, one biological and one explosive.   The scenario of an earthquake was used to develop the matrix in relation to most City bureaus.  The advantage of using this tool is to understand actions of other agencies that the City would need to interface with in the region.

 

 

 

 

 

“ Earthquakes are a part of the environment here because we live at an ‘active margin’ of the North American plate, which is moving westward and hitting the easterly-moving Juan de Fuca plate about 200 miles off the coast.  The Juan de Fuca plate is forced under the North American plate, eventually melting and returning to the surface as the beautiful volcanoes of the Cascade Mountain.

 

Movement on faults in the North American plate can produce earthquakes up to magnitudes of 6.5.  Earthquakes also can be generated under us in the Juan de Fuca plate, with magnitudes reaching 7.2.  The ‘Big One’ earthquakes may exceed 9.0 magnitude and are generated every 400 to 500 years at the intersection of the North American plate and the Juan de Fuca plates.  These are called subduction zone earthquakes, and their epicenters would be along the coast.  Subduction zone quakes could cause the most damage in the Portland region.

 

Damage in the region would come primarily from three causes.  First, the steep, slopes would be prone to landslides.  Second, regions along the rivers where the sediments are mainly sandy and the ground water table is close to the surface are prone to liquefaction where the ground loses strength and flows.  The flood plains on the Columbia River near the airport, Swan Island , and Oaks Bottom are examples of high risk liquefaction sites.  Third, sites on thick sediments that overlie deep bedrock will amplify earthquake waves and cause more shaking.  Houses and buildings, especially brick ones, are more endangered.  The deepest sediment sites in the region are located at the centers of the Portland Basin (near the Portland Airport) and the Tualatin Basin (near the Hillsboro Airport).”

 

 

 

 

I.                     REFERENCES (In addition to those listed in the Basic Emergency Services Plan)

 

1.            Public Assistance Policy Digest, FEMA 321, October 1998

 

2.      Public Assistance Applicant Handbook, FEMA 323, September 1999

 

3.      Federal Executive Branch Continuity of Operations, FPC 65, July, 1999

 

4.      FEMA, SLG 101, September 1996

 

1.            State of Oregon, Disaster Recovery Assistance Guide(1996)

 

1.     City of Portland Basic Emergency Services Plans and Essential    Support Functions

 

2.            City of Portland Bureau Emergency Operations Plans

 

3.            Portland Fire Bureau Training Bulletin #28, Earthquake Emergency Operations

 

4.            Regional Hazard Mitigation Policy and Planning Guide, Metro, June 1999

 

1.          ATC 20-1 Post Earthquake Safety and Evaluation of Buildings.

 

2.          Department of Geology and Mineral Industries, Special Paper 29, 1999

 

3.          Liaison agency and organization Emergency Operation Plans

A.     The purpose of this annex is to outline how the City of Portland will coordinate response and recovery efforts after an earthquake.

 

According to local geologists, recent studies show the Portland metropolitan region to be the most seismically active region in Oregon.  Based on a 150-year historical record, six earthquakes of a Richter magnitude of 5.0 or greater have occurred within the greater Portland area.  Recent geophysical studies indicate the presence of at least three crustal faults beneath the Portland metropolitan area, which could generate damaging crustal earthquakes of 6.5 or larger.  Additionally, a convincing case has been made to indicate that the Cascadia subduction zone earthquakes up to a magnitude 9 have occurred in the prehistoric past and will occur again in the future.  It is said that it is not of matter of if earthquakes will   happen, but when.

 

         2.     LIFE LOSS AND SAFETY

masonry buildings, which could sustain minor to major

damage. This includes the possible collapse of these

buildings. Recent studies regarding the effects of an

earthquake in the downtown Portland area reveal a high loss

of life due to the lack of stability of the buildings. The greater

number of people affected the greater the need for additional

resources. This will include Incident Stress Debriefing for all

personnel involved with the incident. Additional procedures

and protocol regarding life loss can be found in the plans of

Mass Fatalities, Health, Medical and Mass Care within

ESF#8.

 

The City of Portland may be subjected to the effects of industrial/technological emergencies concurrently with or exacerbated by an earthquake; including fire and explosion, transportation, utility and hazardous materials catastrophes both acute and/or long term.

 

a.      Fire, explosions and collapse may occur in all types of structures as a result of an earthquake. (Refer to ESF #10 HazMat)

 

b.      Transportation emergencies may involve rail, motor vehicle and pipeline, and, to a lesser degree, air and water routes. This may also include the need to remove debris from damaged structures to re-establish transportation routes. Damage to the bridges over both the Willamette and Columbia Rivers as well as overpasses and ramps is also expected and will need to be considered. Streets could collapse or buckle depending upon the level of damage to underground systems or effect of quake. (Refer to ESF#1 Transportation)

 

c.            Utility emergencies may include failure of telephone, water, electrical power, natural gas, fuel oil, gasoline, sewer and/or sanitation systems. (Refer to ESF#3 Utilities)

 

4.         REGIONAL ENVIRONMENTAL AND TECHNOLOGICAL EMERGENCIES

The City of Portland and the region (Multnomah, Clackamas, and Washington, and Columbia counties) may be affected by environmental and technological emergencies crossing county lines, and, potentially, state lines into Washington State (Clark County).  The Portland Office of Emergency Management through Multnomah County Emergency Management will interface with the regional agency liaisons and governments when it is ascertained that additional resources or cooperative efforts are needed.

 

         The goal of the Portland Office of Emergency Management (POEM) before, during and after an earthquake is to safeguard life and property by making maximum use of all public and private resources to minimize the effects of the incident.  

 

         The community response at all levels of government, private industry, and volunteer groups will be as outlined in the essential support functions of thedraft Comprehensive Emergency Management Plan.

  

   V.     CONCEPT OF OPERATIONS

The basic operational concepts of the City are outlined in the Basic

Emergency Services Plan.

1.      When an earthquake-related emergency exists, all involved City Bureaus will put their emergency plans and standard operating procedures into limited or full operation.  This includes notifying the Emergency Operations Center of:

 

a.      Bureau operational and resource status.

b.      Changing conditions.

c.      Essential life and property -saving information.

d.           Damage sustained by their bureau

e.            Key contact names and numbers.

f.              Communication tools should be identified:

·        Landlines

·        Cell Lines

·        800MHz channels

·        Amateur radio frequency(s)

·        Satellite phones

·        Email (addresses)

 

         Normal Operations include incidents of limited magnitude that bureaus respond to on a regular basis, but may or may not constitute an emergency.  This may reduce the available resources to that bureau and may or may not cause the need for assistance from another bureau to effectively handle the situation.  i.e. a large main break or fire.

 

         Earthquakes of low magnitude that require response by more than one City Bureau and may require partial activation (Level II Activation) of the Emergency Operations Center.

 

            Earthquakes of high magnitude that require the coordinated response and recovery of all levels of government to save lives and protect the property of a large portion of the population and restore critical services.  Such earthquakes may cause a need for sheltering or relocation of a majority of the affected population.  Under such conditions full activation (Level III Activation) of the Emergency Operations Center will be required.

 

 

C.      COORDINATION AND CONTROL

         A Level I Activation may occur when the city has an event that may stretch the resources of a particular bureau or coordination needs to occur between several bureaus to successfully respond and recover from the event.  This could be a quake that occurred in another jurisdiction and causes bureaus to need to respond to public concern.

 

         When the City has sustained a minor earthquake, 5.5 magnitude, the Portland Office of Emergency Management will initiate a Level II Activation of the EOC responders by notifying the appropriate team on call. This will activate approximately 30 to 40 responders filling those critical positions deemed necessary by the Incident Commander and Section Chiefs.   They will follow the outline of duties found in the Emergency Operations Center Activation Guide.  They will also prepare the EOC for expansion to a Level III Activation if the situation becomes worse.

 

When the City has sustained a major earthquake, the Portland Office of Emergency Management will initiate a Level III Activation (full activation) of the Emergency Operations Center by notifying the appropriate team on call.  If there are no communication capabilities available to notify the teams, responders are to ensure the safety of their family and respond as soon as possible to the EOC. They will follow the outline of duties found in the Emergency Operations Center Activation Guide.  A “Local Emergency” will be declared for the City and a request will be made to the County to declare also. The Mayor will work with the EOC Staff and the Incident Commander to determine the total damage to the city and proceed to request “A State of Emergency” through the County to the State.  If deemed necessary once a State Emergency is granted, the Mayor and Incident Commander along with the County will ask the Governor to request a  “Presidential Declaration” through the Federal Emergency Management Agency.

 

         It is assumed that a major earthquake would cause widespread devastation and claim many lives.  Normal command and control systems will be difficult at best.  Centralized resource control will be a necessity.

 

         The first mission for the EOC responders is to prepare an estimate of the situation and report to the Mayor (or the line of succession according to Title 15).  This report will include a status of the City’s resources including structures.

 

         If the situation warrants such action, the Mayor may order the City divided into zones of operations and direct the City Incident Commander to establish a field Incident Command Post at a location within each zone.  All emergency operations and city personnel within a zone will come under the direction of the Zone’s field Incident Commander. The Commander will assign duties as deemed necessary. Note: This may include asking employees to perform tasks outside of their normal daily duties.

 

         The overall objectives of the EOC responders will be to:

1.                  Coordinate both response and recovery issues to best protect the citizens, City bureaus and private businesses.

 

2.                  Coordinate bureau response and recovery issues and re-prioritize if necessary.  Life safety and critical

restoration of services will be the determining factors.

 

3.                  Plan, coordinate and prioritize resources needed and

assigned to zones established in the city.

 

4.                  Assist designated agencies with the coordination and procurement ofoutside resources. Coordinate media releases and provide media briefings to the Mayor and other Policy Makers as necessary.

 

5.                  Coordinate damage assessment.

 

6.                  Assist in the maintenance of continuity of government

 

7.                  Maintain current situation and resource status.

 

8.                  Coordinate and communicate the new goals and objectives as the EOC switches from response to full time recovery issues.

 

(In addition to the items here please refer to the Emergency Operations Center Activation Guide for other section specific duties)

 

It is anticipated that it may be several days before the situation is fully understood and all incidents will have appropriate response teams working at their sites.

 

All field Incident Command Posts must keep the EOC advised of the situation within their Zones.  It is understood that a Field Incident commander will have to prioritize the operations within his Zone in order to save the most lives and restore services critical to the city.  Note: if deemed necessary by the EOC, field personnel will be moved from zone to zone in order to meet the overall objectives and priorities of the city.

 

The Mayor and Incident Commander will make the decisions and/or policy statements when necessary, for the allocation of scarce and critical resources between zones of Operation. The Mayor will also determine appropriate action to address such issues as price gouging, curfew etc. for the overall good of the city.

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Portland Office of Emergency Management

Patty Rueter, Program Coordinator 503-823-3809