HomeMy WebLinkAboutMinutes - September 22, 2020 SSLODI CITY COUNCIL
SHIRTSLEEVE SESSION
CARNEGIE FORUM, 305 WEST PINE STREET
TUESDAY, SEPTEMBER 22, 2020
An Informal Informational Meeting ("Shirtsleeve" Session) of the Lodi City Council was held
Tuesday, September 22, 2020, commencing at 7:00 a.m.
Due to the COVID-19 pandemic and pursuant to Executive Order N-29-20, all Council Members
participated in the meeting via teleconference and the meeting was available for viewing by the
public via livestream at https://www.facebook.com/CityofLodi/ and
https://zoom.us/s/99156688900?pwd=MThFM09HbXdYQzkxMXpYdzJJb2gzQT09; the
opportunity for public comment was available through councilcomments@lodi.gov and
https://zoom.us/s/99156688900?pwd=MThFM09HbXdYQzkxMXpYdzJJb2gzQT09.
Present: Council Member Chandler, Council Member Mounce, Mayor Pro Tempore Nakanishi,
and Mayor Kuehne
Absent: None
Also Present: City Manager Schwabauer, City Attorney Magdich, and City Clerk Cusmir
Council Member Mounce joined the meeting at 7:24 a.m.
Fire Chief Gene Stoddart introduced this item and provided some background information
regarding the Emergency Operations Plan (EOP) and the activation of the Emergency Operations
Center (EOC) in March 2020, which increased operational support for the response to the
COVID-19 pandemic. Chief Stoddart commended staff on a successful EOC deployment.
Deputy Chief Ron Penix, of the Lodi Fire Department, provided a PowerPoint presentation
regarding the Emergency Operations Plan (EOP) update. Specific topics of discussion included
purposes of the EOP; background, goals; organization; elements; hazardous analysis; hazards;
emergency notifications; operational goals; Standardized Emergency Management System
(SEMS); National Incident Management System (NIMS); mutual aid; transition to recovery;
damage assessment; finance; plan development and maintenance; and preparedness, training,
and exercises.
Deputy Chief Penix stated that he would research and consider the addition to including an
appendix to the EOP to address weapons of mass destruction, in response to questions asked by
Mayor Pro Tempore Nakanishi.
Council Member Chandler asked if the EOP will include a response to cyber attacks. Deputy
Chief Penix answered that a plan to respond to cyber attacks may be included in an additional
appendix. Deputy City Manager Andrew Keys explained that in regards to cyber attacks, it may
not be necessary to activate the EOC and the City is in the process of developing Business
Continuity Plans to address cyber threats.
Chief Penix explained a drill was planned for Fall 2020, but due to the pandemic the drill will need
to be rescheduled, in response to a questions asked by Mayor Kuehne.
A.Roll Call by City Clerk
B.Topic(s)
B-1 Presentation Regarding Emergency Operations Plan Update (FD)
1
None.
No action was taken by the City Council. The meeting was adjourned at 7:35 a.m.
C. Comments by Public on Non-Agenda Items
D.Adjournment
ATTEST:
Jennifer Cusmir
City Clerk
2
City of Lodi
Emergency
Operations Plan
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LETTER OF PROMULGATION
September 14, 2020
To: Officials and Employees of the City of Lodi
The preservation of life and property is an inherent responsibility of all levels of government. As
disasters occur in devastating form at any time, the City of Lodi must provide safeguards, which will
save lives and minimize property damage through planning, preparedness measures and training.
Sound emergency plans carried out by knowledgeable and well-trained personnel can and will
minimize losses.
The City of Lodi Emergency Operations Plan (EOP) establishes an Emergency Management
Organization and assigns functions and tasks consistent with California’s Standardized Emergency
Management Systems (SEMS) and the National Incident Management System (NIMS.) Both systems
provide for the integration and coordination of efforts within Lodi. These systems were adopted by
both the State and Federal Government following disasters where lack of coordination resulted in
greater losses than necessary. It is very valuable to the City of Lodi that our plan works in conjunction
with SEMS and NIMS.
The City’s plan was developed for use by City of Lodi employees with emergency service responsibility.
Input was sought from agencies inside and outside of Lodi that have a coordination role in providing
emergency services. These include the San Joaquin County Office of Emergency Services, the California
Office of Emergency Services (Cal OES) and the Federal Emergency Management Agency (FEMA.) Our
plan provides direction on emergency response from onset, through an extended response, and into
the recovery process.
Once adopted, this plan is will be reviewed and tested periodically and revised as necessary to meet
changing conditions. A review and update of this plan shall not exceed a 2 year cycle.
The Lodi City Council gives its full support to this Emergency Operations Plan and urges all employees
to read the plan, understand it, know your role and be prepared to provide excellent service to the
citizens of Lodi when needed.
City Manager
City of Lodi
Date
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APPROVAL AND IMPLEMENTATION
Foreword
The City of Lodi Emergency Operations Plan (EOP) addresses the city’s planned response to extraordinary
emergency situations associated with natural disasters, technological incidents and national security
emergencies in or affecting the City of Lodi. This plan does not apply to normal day-to-day emergencies
or the established departmental procedures used to cope with such emergencies. Rather, this plan
focuses on operational concepts and would be implemented relative to large-scale disasters which can
pose major threats to life, property and the environment requiring unusual emergency responses.
This plan accomplishes the following:
• Establishes the emergency management organization required to mitigate any significant
emergency or disaster affecting the City of Lodi.
• Identifies the roles and responsibilities required to protect the health and safety of Lodi
residents, public and private property and the environmental effects of natural and technological
emergencies and disasters.
• Establishes the operational concepts associated with a field response to emergencies, the City of
Lodi Emergency Operations Center (EOC) activities and the recovery process.
As with any working plan, this document represents planning strategies understood as of the date of this
plan’s release. Our hope is that this plan provides effective tools, guidance and strategies in support of
emergency operations planning, preparedness, response, recovery and mitigation within the City of Lodi.
This document has been developed under the State of California, Department of Water Resources (DWR)
Flood Emergency Response Project - Delta Grant, through the San Joaquin County Office of Emergency
Services. The City of Lodi Hazard Specific Flood Response Annex was also developed as part of this project,
meeting California’s Water Code Section 9650 Safety Plan.
Plan Approval and Implementation
Upon concurrence of the City Council, the plan will be officially adopted and promulgated. The approval
date will be included on the title page. The plan will be distributed to those city departments, supporting
allied agencies and community organizations having assigned primary functions or responsibilities within
the EOP.
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Plan Activation
The City of Lodi Emergency Operations Plan may be activated by the Director of Emergency Services or
designated alternates under any of the following circumstances: Section 2.32.060 of the City of Lodi Code
of Ordinance.
• Upon proclamation by the Governor that a STATE OF EMERGENCY exists in the City of Lodi and/or
an area affecting the City of Lodi.
• Automatically on the proclamation of a STATE OF WAR EMERGENCY as defined in the California
Emergency Services Act (Chapter 7, Division 1, Title 2, California Government Code.)
• Upon declaration by the President, of the existence of a National Emergency.
• Automatically, on receipt of an attack warning or actual attack on the United States, or upon
occurrence of a catastrophic disaster that requires immediate government response.
Plan Modifications
Upon the delegation of authority from the Director of Emergency Services, specific modifications can be
made to this plan by the Emergency Services Coordinator without the signature of the City Council. This
April 2018 Emergency Operations Basic Plan, its Functional Annexes and Hazard Annexes supersede all
previous versions of the City of Lodi Emergency Operations Plan
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RECORD OF CHANGES
REVISION
NUMBER
ENTERED BY DATE REVISION
NUMBER
ENTERED BY DATE
1 21
2 22
3 23
4 24
5 25
6 26
7 27
8 28
9 29
10 30
11 31
12 32
13 33
14 34
15 35
16 36
17 37
18 38
19 39
20 40
(Note: File each revision transmittal letter behind this record page.)
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Table of Contents
LETTER OF PROMULGATION ......................................................................................................................... 3
APPROVAL AND IMPLEMENTATION ............................................................................................................. 5
Foreword ........................................................................................................................................................... 5
Plan Approval and Implementation .................................................................................................................. 5
Plan Activation .................................................................................................................................................. 6
Plan Modifications ............................................................................................................................................ 6
RECORD OF CHANGES ................................................................................................................................... 7
SECTION 1.0 BASIC PLAN; ........................................................................................................................... 14
PURPOSE, SCOPE, SITUATION, AND ASSUMPTIONS ................................................................................... 14
1.1 PURPOSE ................................................................................................................................................... 14
1.1.1 Planning Organization and Format .............................................................................................. 15
1.2 SCOPE ........................................................................................................................................................ 15
1.3 SITUATION OVERVIEW .............................................................................................................................. 17
1.3.1 City History ....................................................................................................................................... 17
1.3.2 Hazard Analysis Summary ................................................................................................................ 19
1.3.3 Capability Assessment ..................................................................................................................... 21
1.3.4 Mitigation Overview ........................................................................................................................ 21
1.3.5 Assumptions ..................................................................................................................................... 22
SECTION 2.0 CONCEPT OF OPERATIONS ..................................................................................................... 25
2.1 Goals, Priorities and Strategies ................................................................................................................. 25
2.1.1 Operational Goals............................................................................................................................. 25
2.1.2 Operational Priorities ....................................................................................................................... 25
2.1.3 Operational Strategies ..................................................................................................................... 25
2.2 Standardized Emergency Management System (SEMS) ........................................................................... 26
2.2.1 SEMS Organization Levels ................................................................................................................ 27
2.2.2 SEMS Functions ................................................................................................................................ 28
2.2.3 SEMS Components ........................................................................................................................... 31
2.2.4 National Incident Management System (NIMS) .............................................................................. 32
2.2.5 Mutual Aid ....................................................................................................................................... 34
2.2.6 Mutual Aid Coordination ................................................................................................................. 35
2.3 Sequence of Events During Disasters ........................................................................................................ 37
2.3.1 Before Impact ................................................................................................................................... 37
2.3.2 Immediate Impact ............................................................................................................................ 38
2.3.3 Sustained Operations ....................................................................................................................... 40
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2.3.4 Transition to Recovery ..................................................................................................................... 40
2.3.5 Proclaiming an Emergency ............................................................................................................... 41
2.4 Continuity of Government (COG) Operations .......................................................................................... 45
2.4.1 City of Lodi Emergency Operations Policy Statement ...................................................................... 45
2.4.2 Disaster Service Workers ................................................................................................................. 46
2.5 Continuity of Operations (COOP) General Guidance ................................................................................ 46
SECTION 3.0 ORGANIZATION AND ASSIGNMENT OF RESPONSIBILITIES .................................................... 48
3.1 Emergency Management Response Levels .............................................................................................. 48
3.1.1 National Emergency ......................................................................................................................... 48
3.2 City Department/Allied Agency EOC Organization Assignments .............................................................. 49
3.2.1 Director of Emergency Services ....................................................................................................... 50
3.3 Role of the Private Sector ......................................................................................................................... 50
3.3.1 Lodi Residents .................................................................................................................................. 50
3.3.2 Populations with Access and Functional Needs ............................................................................... 50
3.3.3 At-Risk Individuals ............................................................................................................................ 51
3.3.4 Businesses ........................................................................................................................................ 52
3.3.5 Volunteer Organizations .................................................................................................................. 53
3.3.6 Public-Private Partnerships .............................................................................................................. 54
SECTION 4.0 DIRECTION, CONTROL AND COORDINATION ...................................................................... 56
4.1 EOC Coordination with Other Government Levels and the Private Sector .............................................. 56
4.1.1 Coordination with Field Response Level .......................................................................................... 56
4.1.2 Coordination with San Joaquin Operational Area and Member Jurisdictions ................................. 56
4.1.3 Coordination with the County and Special Districts ........................................................................ 57
4.1.4 Coordination with the Inland Region Emergency Operations Center ............................................. 57
4.1.5 Coordination with State and Federal Field Response ...................................................................... 57
4.1.6 Coordination with Volunteers and the Private Sector ..................................................................... 57
SECTION 5.0 INFORMATION COLLECTION AND DISSEMINATION .............................................................. 59
5.1 Action Planning ......................................................................................................................................... 59
5.1.1 Planning Requirements .................................................................................................................... 59
5.1.2 Plan Elements ................................................................................................................................... 60
5.1.3 Planning Responsibilities.................................................................................................................. 60
5.2 EOC Reporting ........................................................................................................................................... 60
5.2.1 Preliminary Reports .......................................................................................................................... 61
5.2.2 Situation Reports ............................................................................................................................. 61
5.2.3 Flash Reports .................................................................................................................................... 61
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5.2.4 Documentation ................................................................................................................................ 61
5.2.5 Status Boards ................................................................................................................................... 61
5.3 EOC Reporting Systems ............................................................................................................................. 62
5.4 Emergency Public Information .................................................................................................................. 62
SECTION 6.0 COMMUNICATIONS ............................................................................................................. 64
6.1 Warning Responsibility ............................................................................................................................. 64
6.2 Warning and Alert Mechanisms ............................................................................................................... 64
6.3 Warning Conditions .................................................................................................................................. 64
SECTION 7.0 ADMINISTRATION, FINANCE AND LOGISTICS ................................................................. 66
ADMINISTRATION ........................................................................................................................................... 66
7.1 Damage Assessment ................................................................................................................................. 66
7.1.1 Initial Damage Assessment: ............................................................................................................. 66
7.1.2 Preliminary Damage Assessment (PDA): .......................................................................................... 66
7.2 Process ...................................................................................................................................................... 66
7.2.1 Windshield Surveys .......................................................................................................................... 66
7.2.2 Safety Assessment ............................................................................................................................ 67
7.2.3 Detailed Inspection .......................................................................................................................... 67
7.2.4 Engineering Assessment .................................................................................................................. 67
7.2.5 Damage Assessment Chronology Summary ..................................................................................... 68
7.3 Documenting and Reporting Damage Assessments ................................................................................. 69
7.3.1 Reporting ......................................................................................................................................... 69
7.3.2 Windshield Survey ........................................................................................................................... 69
7.3.3 Safety Assessment ............................................................................................................................ 69
7.3.4 Detailed Damage Assessment .......................................................................................................... 69
7.3.5 Engineering Evaluation .................................................................................................................... 69
7.3.6 Documentation ................................................................................................................................ 69
7.4 After Action Reporting .............................................................................................................................. 70
FINANCE .......................................................................................................................................................... 71
7.5 Expenditure Tracking .......................................................................................................................... 71
7.5.1 Eligible Expenses .............................................................................................................................. 71
7.5.2 Recordkeeping Requirements .......................................................................................................... 71
LOGISTICS ........................................................................................................................................................ 72
7.6 Resource Management ............................................................................................................................. 72
7.6.1 Resource Priorities ........................................................................................................................... 72
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7.6.2 Resource Requests ........................................................................................................................... 72
7.6.3 Emergency Resource Directory ........................................................................................................ 73
SECTION 8.0 PREPAREDNESS, TRAINING AND EXERCISES .......................................................................... 75
8.1 Preparedness Planning .............................................................................................................................. 75
8.1.1 Community Preparedness and Awareness ....................................................................................... 75
8.1.1 Preparedness Actions ........................................................................................................................ 76
8.2 Readiness Training ................................................................................................................................ 76
8.3 Exercise and Evaluation ........................................................................................................................ 76
SECTION 9.0 PLAN DEVELOPMENT AND MAINTENANCE ........................................................................... 79
9.1 Plan Development and Maintenance Responsibility ................................................................................ 79
9.2 Review and Updating ................................................................................................................................ 79
SECTION 10.0 AUTHORITIES AND REFERENCES .......................................................................................... 81
10.1 Authorities .............................................................................................................................................. 81
10.1.1 Federal ........................................................................................................................................... 81
10.1.2 State ............................................................................................................................................... 81
10.1.3 County ............................................................................................................................................ 81
10.1.4 City ................................................................................................................................................. 81
10.2 References .............................................................................................................................................. 82
10.2.1 Federal ........................................................................................................................................... 82
10.2.2 State ............................................................................................................................................... 82
10.2.3 County ............................................................................................................................................ 82
101.2.4 City ............................................................................................................................................... 82
GLOSSARY OF TERMS ...................................................................................................................................... 83
TABLE OF FIGURES
Figure 1 - Base Map of Lodi 18
Figure 2 - Hazard Analysis Summary 20
Figure 3 - SEMS Organizations Levels 27
Figure 4 - SEMS Functions 28
Figure 5 - Comparison of Field and EOC SEMS Functions 30
Figure 6 - Inland Region Mutual Aid 35
Figure 7 - Discipline Specific Mutual Aid Systems 37
Figure 8 - Flow of Requests and Resources 38
Figure 9 - Response Phase Sequence of Events 45
Figure 10 - Damage Assessment Chronology Summary Chart 68
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SECTION 1.0 BASIC PLAN;
PURPOSE, SCOPE, SITUATION, AND ASSUMPTIONS
1.1 PURPOSE
The purpose of the City of Lodi Emergency Operations Plan (EOP), its Functional Annexes and
Hazard/Threat Specific Annexes is to provide the basis for a coordinated response before, during and after
a disaster incident affecting the City of Lodi.
This plan is the principal guide for the City’s response to, and management of real or potential
emergencies and disasters occurring within its designated geographic boundaries. Specifically, this plan is
intended to:
• Facilitate multi-jurisdictional and interagency coordination, particularly between local
government, private sector, operational area (geographic county boundary), and state response
levels, and appropriate federal agencies, in emergency operations.
• Serve as a city plan, a reference document and when possible, it may be used for pre-emergency
planning in addition to emergency operations.
• To be utilized in coordination with applicable local, state and federal contingency plans.
• Identify the components of an Emergency Management Organization (EMO), and establish
associated protocols required to effectively respond to, manage and recover from major
emergencies and disasters.
• Establish the operational concepts and procedures associated with field response to
emergencies, and Emergency Operations Center (EOC) activities.
• Establish the organizational framework for implementation of the California Standardized
Emergency Management System (SEMS), and the National Incident Management System (NIMS),
within the City of Lodi.
Allied agencies, private enterprise, special districts and volunteer organizations having roles and
responsibilities established by this plan are encouraged to develop operating protocols and emergency
action checklists based on the provisions of this plan.
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1.1.1 Planning Organization and Format
The plan is divided into four elements that contain general and specific information relating to city
emergency management operations. Those four elements are as follows:
Basic Plan - This section provides the structure and organization of the City of Lodi Emergency
Management Organization; identifies individual roles and responsibilities; describes the concept of
emergency operations; and identifies how the City integrates into the Standardized Emergency
Management System (SEMS) and the National Incident Management System (NIMS).
Functional Annexes - The Functional Annexes will contain detailed descriptions of the methods that the
City of Lodi and its departments follow for critical functions during emergency operations.
Hazard or Threat-Specific Annexes - These Hazard or Threat-Specific Annexes will describe the City’s
emergency response strategies that apply to a specific hazard.
Supporting Documents - This section contains supporting materials to the overall Emergency Operations
Plan.
1.2 SCOPE
The scope of this plan applies to any extraordinary emergency situation associated with any hazard,
natural or human caused which may affect the City of Lodi that generates situations requiring planned,
coordinated responses by multiple agencies or jurisdictions.
The provisions, policies, and procedures of this plan are applicable to all agencies and individuals, public
and private, having responsibilities for emergency preparedness, response, recovery, and/or mitigation in
the City. The other governmental agencies within the City of Lodi maintain their own emergency
operations plans and those plans are consistent with the policies and procedures established by this plan.
Incorporating the FEMA Comprehensive Preparedness Guide (CPG) 101 Version 2.0 and State of California
Emergency Plan best practices, this plan is designed to be read, understood and exercised prior to an
emergency and establishes the framework for implementation of the California Standardized Emergency
Management System (SEMS) and the National Incident Management System (NIMS) for the City. The Lodi
EOP is intended to facilitate multi-agency and multi-jurisdictional coordination, particularly between the
City of Lodi and its jurisdictions, including special districts, utilities, major businesses, the American Red
Cross, community groups, State Agencies, and the Federal Government. Emergency operations in Lodi are
coordinated through the structure of the Emergency Operations Center. This plan is used in coordination
with the State Emergency Plan and the National Response Framework.
This plan is part of a larger framework that supports emergency management within the State of
California. Through an integrated framework of emergency plans and procedures involving all
stakeholders in the emergency management community, the City of Lodi together with San Joaquin
County, the State of California Office of Emergency Services (Cal OES) and the Federal Government will
promote effective planning and coordination prior to an emergency, thereby ensuring a more effective
response and recovery.
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Each element of the emergency management organization is responsible for assuring the preparation and
maintenance of appropriate response plans and current standard operating procedures (SOPs), resource
lists and checklists that detail how assigned responsibilities will be performed to support implementation
of this plan and to ensure successful response during a major disaster.
Elements that shall be addressed in SOPs are:
• Arrangements for the provision of direction and control within the department/agency.
• Specific emergency authorities that may be assumed by a designated successor during
emergency situations.
• Circumstances under which successor emergency authorities would become effective, and when
they would be terminated.
• Current internal personnel notification/recall rosters and procedures to implement them. This
should include a 24-hour communication system with the capability to notify and call-out
personnel designated by the agency for emergency response.
• Designation and establishment of a work/control/dispatch center or Department Operations
Center (DOC) to manage organizational resources and response personnel and maintain contact
with the EOC during emergencies.
• Designation of a representative to report to the EOC during an emergency to advise decision
makers and coordinate the agency's response effort with other responding entities.
• Reporting of appropriate information (casualties, damage observations, evacuation status,
shelter status, chemical exposure, etc.) to the EOC during an emergency.
• Support of cleanup and recovery operations during disasters.
• Training of assigned response staff to perform emergency functions.
• It is the City’s intent to fulfill the policies described herein, within the capabilities and resources
available at the time of an emergency or disaster event.
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1.3 SITUATION OVERVIEW
This chapter describes a number of potential hazards that could affect the city upon their occurrence
which would warrant the activation of the City of Lodi Emergency Management Organization.
1.3.1 City History
The City of Lodi is located in the San Joaquin County Operational Area, the Inland Region of the State of
California. Lodi is a distinctive Central Valley Community along the Mokelumne River, adjacent to the
Sacramento Delta. It is a compact city surrounded by vineyards, with a
revitalized downtown. The City of Lodi covers an area of 13.8 square miles
(per the United States Census Bureau) in the Northern area of San Joaquin
County, with a population of approximately 63,000 + residents. Lodi was
founded in 1869 and was first called Mokelumne. In 1906, by a vote of two
to one, the citizens incorporated the city. Prior to this, government had
been provided by the county and township. The City is now home to many
agribusinesses, manufacturing and general service and plastics. It is also
known for its vineyards and wine productions.
The Lodi Unified School District embodies 350 square miles and serves the cities of Lodi, North Stockton,
and the communities of Acampo, Clements, Lockeford, Victor, and Woodbridge. Approximately 30,000
students are served by the Lodi Unified School District. The top five primary languages other than English
are Spanish, Hmong, Urdu, Cambodian and Vietnamese.
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Figure 1 – Base Map of Lodi
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1.3.2 Hazard Analysis Summary
The City of Lodi geographically located in an area that could be impacted by a wide range of threats. An
all-hazards threat perspective must include a complete range of threats including emerging and increasing
technological factors (e.g., the increased transportation of numerous hazardous materials on state
highways, roads and interstates throughout the City). It is important to consider past events for future
planning, with the consideration that the location and scope of hazards changes over time.
Although an attempt has been made to identify all major hazards and their respective impacts, it must be
remembered that we live in a time of emerging threats, and nature, coupled with humankind’s ongoing
development and tendencies toward violence ensures that the material contained within this document
will surely require modification over time.
The following hazards could be considered the most likely to occur in the City of Lodi:
• Flooding and dam failures via the Mokelumne River, the New Woodbridge Diversion Dam, owned
by the Woodbridge Irrigation District – Lodi Lake – Camanche Dam owned by East Bay Mud and
Beggs Dam owned by Robert Sprowls failures identified as Technological.
• Natural disasters such as, Animal Disease and agricultural disasters are potentially high for the
City of Lodi;
• Railroad derailments; adversarial and/or human-caused with potential for a hazardous materials
issue.
The San Joaquin County OA Local Hazard Mitigation Plan and Threat and Risk Assessment (THIRA) provide
additional details on local hazards, and a supplemental site-specific analysis. These plans support the City
of Lodi and can be used as a supplement to this EOP.
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Figure 2 - Hazard Analysis Summary
City of Lodi Hazard Analysis Summary
HAZARD PROBABILITY SEVERITY
NATURAL HAZARDS
Flood High High to Very High
Severe Weather Moderate Moderate to High
Public Health/Epidemic Moderate Moderate to High
Earthquake Moderate Moderate
Infestation/Pestilence Low Low
Landslide Very Low Low
TECHNOLOGICAL HAZARDS
Transportation Accident High to Very High High to Very High
Utility/Power Failure Moderate to High High to Very High
Hazardous Materials High High
Dam Failure Low High to Very High
Levee Failure Low High to Very High
Urban Conflagration
Moderate to High Moderate to High
Resource Disruption/Depletion Low Low
HUMAN CAUSED HAZARDS
Violent Encounter Extremely High High to Very High
Terrorism (Conventional) Moderate Moderate
Terrorism (CBRNE) Low to Moderate Low to Moderate
Terrorism (Agricultural) Low Low
Civil Disorder Moderate to High Moderate
Terrorism (Cyber) Low to Moderate Low
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1.3.3 Capability Assessment
As an established organization, the City of Lodi has the capabilities to perform the necessary emergency
response duties outlined in this EOP. The city has an established emergency management organization,
alert and warning & communication system and channels. As outlined in the Lodi Municipal Code: Section
2.32 – Emergency Services, Lodi has identified the response capabilities and resources (equipment,
personnel, etc.) to provide a response to an emergency situation. San Joaquin County in coordination with
the City of Lodi, maintains a database that lists available vendors, supplies, and equipment that can be
available during a disaster situation.
1.3.4 Mitigation Overview
The City of Lodi has taken a number of mitigation measures for each identified hazard to minimize the
impact that is likely to result from an emergency. Some of those mitigation measures are as follows:
General:
• As a jurisdiction within San Joaquin County, the City of Lodi is included in the County Local Hazard
Mitigation Plan that provides hazard specific detail as to the mitigation measures taken to create
a safer community.
• In coordination with San Joaquin County, a Flood Mitigation Plan has been developed to provide
guidance to city departments responsible for protecting life, property, and livestock; involved in
land use planning; responsible for administering the Federal Emergency Management Agency
(FEMA) National Flood Insurance Program (NFIP), and responsible for responding to flood
emergencies within the City. The City of Lodi has a Hazard Specific Flood Response Annex to
provide a general description and overall concept of operations for the City of Lodi response to
flood emergencies. The Annex describes specific procedures in place that will guide public safety
response to areas affected by a flood emergency and how to coordinate operations with other
jurisdictions. For more information on the City of Lodi flood response, refer to the Hazard
Specific Flood Response Hazard/Threat-Specific Annex.
• The City of Lodi has a General Plan approved in April 2010 that includes a Safety section which
outlines all of the mitigation measures that have occurred and will occur regarding the safety of
the citizens and communities.
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Hazard/Issue Specific:
• Public Health – The San Joaquin County Public Health Department has an Emergency Response
Division which focuses on Citizen, Community and Environmental Health, public
information/preparedness outreach and planning.
• Agricultural/Animal Care – San Joaquin County has preparedness documentation for livestock,
horse and domestic pet preparedness.
• Resource Management –San Joaquin County Office of Emergency Services will assist with
emergency vendors, equipment and resources including shelters available during a disaster
situation to aid in response and recovery.
• Mass Care and Shelter Plan – San Joaquin County, has undertaken Mass Care and Shelter
planning efforts. The shelters are managed by the American Red Cross and government agencies.
• Access and Functional Needs – The Department of Homeland Security (DHS)
launched www.ready.gov in February 2003. It is a public service campaign designed to educate
and empower the public through promoting the Whole Community approach to preparedness. It
offers a host of information on planning for individuals with access and functional needs.
• Hazardous Materials Plan – San Joaquin County has developed documentation to provide
guidance to the Hazardous Materials Response Team (HMRT) in the event of a HazMat incident
within the County.
1.3.5 Assumptions
Certain assumptions were used during the development of this plan. These assumptions translate into
basic principles associated with conducting emergency management operations in preparation for,
response to and recovery from major emergencies. “Assumptions” provide context, requirements, and
situational realities that must be addressed in plan development and emergency operations.
• Emergencies or disasters may occur at any time, day or night, in populated as well as remote,
areas of the City of Lodi.
• Major emergencies and disasters will require a multi-agency, multi-jurisdictional response. For
this reason, it is essential that the Standardized Emergency Management System (SEMS), and in
many cases a Unified Command, be implemented immediately by responding agencies, and
expanded as the situation dictates.
• The City of Lodi is primarily responsible for emergency actions within the City Boundaries and will
commit all available resources to save lives, minimize injury to persons and minimize property
damage.
• Large-scale emergencies and disasters may overburden local resources and necessitate mutual
aid from neighboring jurisdictions.
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• Large-scale emergencies and disasters and the complex organizational structure required to
respond to them pose significant challenges in terms of warning and notification, logistics, and
agency coordination.
• Major emergencies and disasters may generate widespread media and public interest. The media
must be considered a partner in large-scale emergencies and disasters; this relationship can
provide considerable assistance in emergency public information and warning.
• Large-scale emergencies and disasters may pose serious long-term threats to public health,
property, the environment, and the local economy. While responding to significant disasters and
emergencies, all strategic decisions must consider each of these consequences.
• Disasters and emergencies may require an extended commitment of personnel and other
resources from involved agencies and jurisdictions.
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SECTION 2.0 CONCEPT OF OPERATIONS
2.1 Goals, Priorities and Strategies
During the Response Phase, emergency managers set goals, prioritize actions and outline operational
strategies. This plan provides a broad overview of those goals, priorities and strategies and describes what
should occur during each step, when and at whose direction.
2.1.1 Operational Goals
During the response phase, the agencies that are charged with responsibilities in this plan should focus
on the following five goals:
• Mitigate Hazards.
• Meet Basic Human Needs.
• Address Needs of People with Access and Functional Needs.
• Restore Essential Services.
• Support Community and Economic Recovery.
2.1.2 Operational Priorities
Operational priorities govern resource allocation and the response strategies for the City of Lodi and its
political subdivisions during an emergency. Below are operational priorities addressed in this plan:
• Save Lives – The preservation of life is the top priority of emergency managers and first
responders and takes precedence over all other considerations.
• Protect Health and Safety – Measures should be taken to mitigate the emergency’s impact on
public health and safety.
• Protect Property – All feasible efforts must be made to protect public and private property and
resources, including critical infrastructure, from damage during and after an emergency.
• Preserve the Environment – All possible efforts must be made to preserve California’s
environment and protect it from damage during an emergency.
2.1.3 Operational Strategies
To meet the operational goals, emergency responders should consider the following strategies:
• Mitigate Hazards – As soon as practical, suppress, reduce or eliminate hazards and/or risks to
persons and property during the disaster response. Lessen the actual or potential effects or
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consequences of future emergencies.
• Meet Basic Human Needs – All possible efforts must be made to supply resources to meet basic
human needs, including food, water, shelter, medical treatment and security during the
emergency. Afterwards provisions will be made for temporary housing, and support for re-
establishing employment after the emergency passes.
• Address Needs of People with Access and Functional Needs – People with access and functional
needs are more vulnerable to harm during and after an emergency. The needs of people with
access and functional needs must be considered and addressed.
• Restore Essential Services – Power, water, sanitation, transportation and other essential services
must be restored as rapidly as possible to assist communities in returning to normal daily
activities.
• Support Community and Economic Recovery – All members of the community must collaborate
to ensure that recovery operations are conducted efficiently, effectively and equitably, promoting
expeditious recovery of the affected areas.
2.2 Standardized Emergency Management System (SEMS)
The Standardized Emergency Management System (SEMS) is the cornerstone of California’s emergency
response system and the fundamental structure for the response phase of emergency management. SEMS
is required by the California Emergency Services Act (ESA) for managing multiagency and multijurisdictional
responses to emergencies in California. The system unifies all elements of California’s emergency
management community into a single integrated system and standardizes key elements. SEMS
incorporates the use of the Incident Command System (ICS), California Disaster and Civil Defense Master
Mutual Aid Agreement (MMAA), the Operational Area (OA) concept and multiagency or inter-agency
coordination. State agencies are required to use SEMS and local government entities must use SEMS in
order to be eligible for any reimbursement of response-related costs under the state’s disaster assistance
programs.
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2.2.1 SEMS Organization Levels
There are five SEMS organizational levels, as illustrated in Figure 3 - SEMS Organization Levels.
Field – The Field Level is where emergency response personnel and
resources, under the command of responsible officials, carry out tactical
decisions and activities in direct response to an
incident or threat.
Local Government – The Local Government level includes cities,
counties and special districts. Local governments manage and
coordinate the overall emergency response and recovery activities
within their jurisdiction. Local governments are required to use SEMS
when their Emergency Operations Center (EOC) is activated or a local
emergency is declared or proclaimed in order to be eligible for state
reimbursement of response-related costs.
Operational Area (OA) – An OA is the intermediate level of the state's
emergency management organization which encompasses a county’s
boundaries and all political subdivisions located within that county,
including special districts. The OA facilitates and/or coordinates
information, resources and decisions regarding priorities among local
governments within the OA. The OA serves as the coordination and
communication link between the Local Government Level and Regional Level. State, federal and tribal
jurisdictions in the OA may have statutory authorities for response similar to that at the local level.
Region – The Regional Level manages and coordinates information and resources among OAs within the
mutual aid region and also between the OA and the state level. The Regional Level also coordinates overall
state agency support for emergency response activities within the region. California is divided into three
California Office of Emergency Services (CalOES) Administrative Regions – Inland, Coastal and Southern –
which are further divided into six mutual aid regions. The Regional Level operates out of the Regional
Emergency Operations Center (REOC). See Figure 6 – Inland Region Mutual Aid.
State – The state level of SEMS prioritizes tasks and coordinates state resources in response to the requests
from the Regional level and coordinates mutual aid among the mutual aid regions and between the
Regional Level and State Level. The state level also serves as the coordination and communication link
between the state and the federal emergency response system. The state level requests assistance from
other state governments through the Emergency Management Assistance Compact (EMAC) and similar
interstate compacts/agreements and coordinates with the Federal Emergency Management Agency
(FEMA) when federal assistance is requested. The state level operates out of the State Operations Center
(SOC).
Field – The Field Level is where emergency response personnel and resources, under the command of
responsible officials, carry out tactical decisions and activities in direct response to an incident or threat.
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2.2.2 SEMS Functions
SEMS requires that every emergency response involving multiple jurisdictions or multiple agencies include
the five functions identified in Figure 4 - SEMS Functions. These functions must be applied at each level of
the SEMS organization.
Command/Management: Command is responsible for the directing, ordering, and/or controlling of
resources at the field response level. Management is responsible for overall emergency policy and
coordination at the SEMS EOC levels. Command and Management are further discussed below:
• Command: A key concept in all emergency planning is to establish command and tactical control
at the lowest level that can perform that role effectively in the organization. In the Incident
Command System (ICS), the Incident Commander (IC), with appropriate policy direction and
authority from the responding agency, sets the objectives to be accomplished and approves the
strategy and tactics to be used to meet those objectives. The IC must respond to higher authority.
Depending upon the incident’s size and scope, the higher authority could be the next ranking level
in the organization up to the agency or department executive. This relationship provides an
operational link with policy executives who customarily reside in the Department Operations
Center (DOC) or EOC, when activated.
• Management: The EOC serves as a central location from which multiple agencies or organizations
coordinate information collection and evaluation, priority setting and resource management.
Within the EOC, the Management function:
o Facilitates multiagency coordination and executive decision making in support of the
incident response
o Implements the policies established by the governing bodies
o Facilitate the activities of the Multiagency (MAC) Group
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• Operations: Responsible for coordinating and supporting all jurisdictional operations in support
of the response to the emergency through implementation of the organizational level's Action
Plans (AP). At the Field Level, the Operations Section is responsible for the coordinated tactical
response directly applicable to, or in support of the objectives in accordance with the Incident
Action Plan (IAP). In the EOC, the Operations Section Coordinator manages functional
coordinators who share information and decisions about discipline-specific operations.
• Logistics: Responsible for providing facilities, services, personnel, equipment and materials in
support of the emergency. Unified ordering takes place through the Logistics Section Ordering
Managers to ensure controls and accountability over resource requests. As needed, Unit
Coordinators are appointed to address the needs for communications, food, medical, supplies,
facilities and ground support.
• Planning/Intelligence: Responsible for the collection, evaluation and dissemination of
operational information related to the incident for the preparation and documentation of the IAP
at the Field Level or the AP at an EOC. Planning/Intelligence also maintains information on the
current and forecasted situation and on the status of resources assigned to the emergency or the
EOC. As needed, Unit Coordinators are appointed to collect and analyze data, prepare situation
reports, develop action plans, set Geographic Information Systems (GIS) priorities, compile and
maintain documentation, conduct advance planning, manage technical specialists and coordinate
demobilization.
• Finance/Administration: Responsible for all financial and cost analysis aspects of the emergency
and for any administrative aspects not handled by the other functions. As needed, Unit Leaders
are appointed to record time for incident or EOC personnel and hired equipment, coordinate
procurement activities, process claims and track costs.
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The field and EOC functions are further illustrated in Figure 5 - Comparison of Field and EOC SEMS
Functions.
PRIMARY SEMS
FUNCTION
FIELD RESPONSE LEVEL
EOCS AT OTHER SEMS LEVELS
Command/Management Command is responsible for the
directing, ordering, and/or controlling
of resources.
Management is responsible for facilitation of overall
policy, coordination and support of the incident.
Operations The coordinated tactical response of
all field operations in accordance
with the Incident Action Plan.
The coordination of all jurisdictional operations in
support of the response to the emergency in
accordance with the EOC Action Plan.
Planning/Intelligence The collection, evaluation,
documentation and use of intelligence
related to the incident.
Collecting, evaluating and disseminating information
and maintaining documentation relative to all
jurisdiction activities.
Logistics Providing facilities, services, personnel,
equipment and materials in support of
the incident.
Providing facilities, services, personnel, equipment and
materials in support of all jurisdiction activities as
required.
Finance/Administration Financial and cost analysis and
administrative aspects not handled by
the other functions.
Responsible for coordinating and supporting
administrative and fiscal consideration surrounding
an emergency incident.
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2.2.3 SEMS Components
Management by Objectives - The Management by Objectives (MBO) feature of ICS, as applied to SEMS,
means that each SEMS Level establishes for a given Operational Period, measurable and attainable
objectives to be achieved. An objective is an aim or end of an action to be performed. Each objective may
have one or more strategies and performance actions needed to achieve the objective.
Operational Period - The Operational Period is the length of time set by command at the Field Response
Level, and by management at other levels to achieve a given set of objectives. The period may vary in
length from a few hours to days, and will be determined by the situation.
Action Plans - Action planning should be used at all SEMS Levels. There are two types of action plans in
SEMS: Incident Action Plans and EOC Action Plans. The Incident Action Plans (IAP) are used at the Field
Response Level. The IAP can be either written or verbal although for documentation purposes the written
IAP is preferable. The IAP contains objectives reflecting the overall incident strategy and specific tactical
actions and supporting information for the next Operational Period. Incident Action Plans are an essential
and required element in achieving objectives under ICS.
EOC Action - Plans are crafted at Local Government, Operational Area, Region, and State EOC Levels. The
use of EOC Action Plans provides designated personnel with knowledge of the objectives to be achieved
and the steps required for achievement. EOC Action Plans not only provide direction, but also serve to
provide a basis for measuring achievement of objectives and overall system performance. Action Plans
can be extremely effective tools during all phases of a disaster.
Organizational Flexibility – A Modular Organization; The intent of this SEMS feature is that at each SEMS
Level, only those functional elements that are required to meet current objectives need to be activated.
All elements of the organization can be arranged in various ways within or under the five SEMS essential
functions.
The functions of any non-activated element are the responsibility of the next highest element in the
organization. Each activated element must have a person in charge; however, one supervisor may be in
charge of more than one functional element.
Organizational Unity and Hierarchy of Command - Organizational unity means that every individual within
an organization has a designated supervisor. Hierarchy of command/management means that all
functional elements within each activated SEMS Level are linked together to form a single overall
organization with appropriate span of control limits.
Span of Control - Maintaining a reasonable span of control is the responsibility of every supervisor at all
SEMS Levels. The optimum span of control is one to five, meaning that one supervisor has direct
supervisory authority over five positions or resources. The recommended span of control for supervisory
personnel at the Field Response Level and all EOC Levels should be in the one-to-three to one-to-seven
ratio. A larger span of control may be acceptable when the supervised positions or resources are all
performing a similar activity.
Personnel Accountability - An important feature to all SEMS Levels is personnel accountability. This is
accomplished through the Organizational Unity and Hierarchy of Command or Management features,
along with the use of check-in forms, position logs and various status forms. The intent is to ensure that
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there are proper safeguards in place so all personnel at any SEMS Level can be accounted for at any time.
Common Terminology - In SEMS, common terminology is applied to: functional elements, position titles,
facility designations, and resources. The purpose of having common terminology is to rapidly enable multi-
agency, multi-jurisdiction organizations and resources to work together effectively. This will vary from
level to level in terms of directing, controlling, coordinating, and resource inventorying. Procedures for
effective resources management must be geared to the function and the level at which the function is
performed.
Integrated Communications - This feature of SEMS relates to: hardware systems, planning for system
selection and linking, and the procedures and processes for transferring information. At the Field
Response Level, integrated communications are used on any emergency. At and between all SEMS Levels,
there must be a dedicated effort to ensure that communications systems, planning and information flow
are accomplished in an effective manner. The specifics of how this is accomplished at EOC Levels may be
different than at the Field Response Level.
More on the SEMS Regulations and SEMS Guidelines can be found on the CalOES Website,
www.caloes.ca.gov/cal-oes-divisions/planning-preparedness/standardized-emergency-management-
system
2.2.4 National Incident Management System (NIMS)
The terrorist attacks of September 11, 2001, illustrated the need for all levels of government, the private
sector, and nongovernmental agencies to prepare for, protect against, respond to, and recover from a
wide spectrum of events that exceed the capabilities of any single entity. These events require a unified
and coordinated national approach to planning and to domestic incident management. To address this
need, the President signed a series of Homeland Security Presidential Directives (HSPDs) that were
intended to develop a common approach to preparedness and response. Two HSPDs that are of particular
importance to emergency planners:
• HSPD-5, Management of Domestic Incidents, identifies steps for improved coordination in
response to incidents. It requires the Department of Homeland Security (DHS) to coordinate with
other Federal departments and agencies and State, local, and Tribal governments to establish a
National Response Framework (NRF) and a National Incident Management System (NIMS).
• HSPD-8, National Preparedness, describes the way Federal departments and agencies will
prepare. It requires DHS to coordinate with other Federal departments and agencies—and with
State, local, and Tribal governments to develop a National Preparedness Goal.
Together, NIMS, the NRF, and the National Preparedness Goal define what needs to be done to prevent,
protect against, respond to, and recover from a major event; how it needs to be done; and how well it
needs to be done. These efforts align Federal, State, local, and Tribal entities; the private sector; and
nongovernmental agencies to provide an effective and efficient national structure for preparedness,
incident management, and emergency response.
NIMS provides a consistent framework for incident management at all jurisdictional levels, regardless of
the cause, size, or complexity of the incident. Building on the ICS, NIMS provides the nation’s first
responders and authorities with the same foundation for incident management for terrorist attacks,
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natural disasters, and all other emergencies. NIMS requires the institutionalization of ICS and its use to
manage all domestic incidents.
NIMS integrates existing best practices into a consistent, nationwide approach to domestic incident
management that is applicable at all jurisdictional levels and across functional disciplines. Six major
components make up the NIMS system’s approach:
• Command and Management
• Preparedness
• Resource Management
• Communications and Information Management
• Supporting Technologies
• Ongoing Management and Maintenance
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2.2.5 Mutual Aid
California's emergency assistance is based on a statewide mutual aid system designed to ensure additional
resources are provided to the state’s political subdivisions whenever their own resources are overwhelmed
or inadequate. The basis for this system is the California Disaster and Civil Defense Master Mutual Aid
Agreement (MMAA) which is entered into by and between the State of California, its various departments
and agencies, and the various political subdivisions, municipal corporations, and public agencies to assist each
other by providing resources during an emergency. The agreement obligates each signatory entity to provide
aid to each other during an emergency without expectation of reimbursement. Under specific conditions,
federal and state funding may be appropriated to reimburse public agencies who aid other jurisdictions. If
other agreements, memoranda, and contracts are used to provide assistance for consideration, the terms of
those documents may affect disaster assistance eligibility and local entities may only be reimbursed if funds
are available. This plan promotes the establishment of emergency assistance agreements between public and
private sector agencies at all levels.
There are four approved, formal Mutual Aid Systems in California:
• Law Enforcement Mutual Aid Plan
o Law Enforcement
o Search and Rescue
o Coroner
• Fire and Rescue Mutual Aid Plan
o Urban Search and Rescue
• Public Health and Medical Mutual Aid System
• Emergency Management Mutual Aid Plan (EMMA) (resources not covered by the other three
systems)
Other informal mutual aid involves, but is not limited to the interchange of:
• Public Information
• Medical and Health
• Communications
• Transportation Services
• Facilities
• Hazardous Materials Mutual Aid System
• Volunteer and Private agencies
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California is divided into six mutual aid regions, which are
subdivisions of the state emergency services organization
established to facilitate the coordination of mutual aid and
other emergency operations within an area of the State
consisting of two or more Operational Areas. A map of Inland
Region is shown in Figure 6 - Inland Region Mutual Aid, which
details the Mutual Aid Regions III, IV & V, San Joaquin County is
located in Mutual Aid Region IV.
2.2.6 Mutual Aid Coordination
Formal mutual aid requests will follow specified procedures
and are processed through pre-identified mutual aid
coordinators. Mutual aid requests will follow discipline-specific
chains (i.e. fire, law enforcement, emergency manager, etc.)
from one level of government to the next. The mutual aid
coordinator receives the mutual aid request and coordinates
the provision of resources from within the coordinator's
geographic area of responsibility. In the event resources are
unavailable at one level of government, the request is
forwarded to the next higher level of government to be filled.
Field Level Requests: Requests for MMAA resources originate from the Field Level and are managed by the
Incident Commander (IC). If the IC is unable to obtain the resource through existing local channels, the
request is elevated to the next successive government level until obtained or cancelled.
Local Government Request: Local jurisdictions are responsible for the protection of life and property within
the municipal geographic boundaries. The local jurisdiction where the incident occurred should assess its
resource inventory and existing local agreements to determine if the requested resource is available. When
locally committed resources are exhausted and mutual aid is needed, the local official will request assistance
from the OA Mutual Aid Coordinator.
Operational Area Requests: The OA is a composite of its political subdivisions, (i.e. municipalities, contract
cities, special districts and county agencies). The OA Mutual Aid Coordinator assesses the availability of
resources within the OA and fulfills the resource request based upon that assessment. In the event resources
are unavailable at the OA level, the request is forwarded to the responsible Region Mutual Aid Coordinator
to be filled.
Region Level Requests: The state is geographically divided into six Mutual Aid Regions. For Law Enforcement
Mutual Aid, Region I is divided into two sub-regions. Each Mutual Aid Region is comprised of multiple
Operational Areas and has a Regional Mutual Aid Coordinator. The Region Mutual Aid Coordinator is granted
the authority to coordinate the mutual aid response of discipline-specific resources within the Region to
support a mutual aid request by a jurisdiction also within the Region. In the event resources are unavailable
at the Region level, the request is forwarded to the State Mutual Aid Coordinator to be filled.
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State Level Requests: On behalf of the Governor, the Secretary of CalOES has the responsibility for
coordination of state mutual aid resources in support of local jurisdictions during times of emergency. The
Secretary will analyze and coordinate the request by forwarding the request to an unaffected REOC or
tasking an appropriate state agency to fill the need. Figure 7 Discipline-Specific Mutual Aid Systems
documents the flow of information, resources requests and resources within specific mutual aid
agreement relative to the SEMS organization levels.
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Figure 8 – Flow of Requests and Resources depicts the resource management process for the state under
SEMS. In this model, the affected local government has the ability to access all stakeholders at all levels
of the system.
2.3 Sequence of Events During Disasters
Two sequences of events are typically associated with disasters: One involves the response and the other
involves emergency proclamations. The response sequence generally describes the emergency response
activities to save lives, protect property and preserve the environment. This sequence describes
deployment of response teams, activation of emergency management organizations and coordination
among the various levels of government. The emergency proclamation sequence outlines the steps to
gain expanded emergency authorities needed to mitigate the problem. It also summarizes the steps for
requesting state and federal disaster assistance.
2.3.1 Before Impact
Routine Monitoring for Alerts, Watches and Warnings: Emergency officials constantly monitor events
and the environment to identify specific threats that may affect their jurisdiction and increase awareness
level of emergency personnel and the community when a threat is approaching or imminent.
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Increased Readiness: Sufficient warning provides the opportunity for response agencies to increase
readiness, which are actions designed to increase an agency’s ability to effectively respond once the
emergency occurs. This includes, but is not limited to:
• Briefing government officials.
• Reviewing plans and procedures.
• Preparing and disseminating information to the community.
• Updating resource lists.
• Testing systems such as warning and communications systems.
• Precautionary activation Emergency Operations Centers.
Pre-Impact: When a disaster is foreseen as highly likely, action is taken to save lives and protect property.
During this phase, warning systems are activated, evacuation begins and resources are mobilized.
2.3.2 Immediate Impact
During this phase, emphasis is placed on control of the situation, saving lives and minimizing the effects
of the disaster.
Alert and Notification: Local response agencies are alerted about an incident by the public through 9-1-
1, another response agency, or other method. First responders are then notified of the incident. Upon an
alert, response agencies notify response personnel.
Resource Mobilization: Response agencies activate personnel and mobilize to support the incident
response. As the event escalates and expands, additional resources are activated and mobilized to support
the response. Activation and mobilization continue for the duration of the emergency as additional
resources are needed to support the response. This includes resources from within the City, or, when
resources are exhausted, from surrounding unaffected jurisdictions.
Incident Response: Immediate response is accomplished within the City by local responders. First
responders arrive at the incident and function within their established field level plans and procedures.
The responding agencies will manage all incidents in accordance with ICS organizational structures,
doctrine and procedures.
Establishing Incident Command: Incident Command is established to direct, order, or control resources
by virtue of some explicit legal, agency or delegated authority. Initial actions are coordinated through the
on-scene Incident Commander (IC). The Incident Commander develops an initial Incident Action Plan (IAP),
which sets priorities for the incidents, assigns resources and includes a common communications plan. If
multiple jurisdictions or agencies are involved, the first responders will establish a Unified Incident
Command Post (ICP) to facilitate multijurisdictional and multiagency policy decisions. The Incident
Commander may implement an Area Command to oversee multiple incidents that are handled by
separate ICS organizations or to oversee the management of a very large or evolving incident that has
multiple incident management teams engaged.
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Activation of the Multiagency Coordination System (MACS): Responding agencies will coordinate and
support emergency management and incident response objectives through the development and use of
integrated Multiagency Coordination Systems (MACS) and MAC Groups. This includes developing and
maintaining connectivity capability between ICP, local 9-1-1 Centers, local Emergency Operations Centers
(EOC), REOC, the SOC and federal EOC and NRF organizational elements.
Local EOC Activation: Local jurisdictions activate their local EOC based on the magnitude or need for more
coordinated management of the emergency. When activated, Local EOCs help form a common operating
picture of the incident by collecting, analyzing and disseminating emergency information. The local EOC
can also improve the effectiveness of the response by reducing the amount of external coordination of
resources by the Incident Commander by providing a single point of contact to support multiagency
coordination. When activated the local EOC notifies the OA lead that the local EOC has been activated.
The City of Lodi EOC is located at 215 W. Elm Street.
Communications between Field and the EOC: When a jurisdiction EOC is activated, communications and
coordination are established between the IC and the Department Operations Center (DOC) to the EOC, or
between the IC and the EOC.
Operational Area (OA) EOC Activation: If one or more Local EOCs are activated, or if the event requires
resources outside the affected jurisdiction, the OA EOC activates. The OA EOC also activates if a Local
Emergency is proclaimed by the affected local government. The OA EOC then coordinates resource
requests from the affected jurisdiction to an unaffected jurisdiction, or if resources are not available
within the Operational Area, forwards the resource request to the REOC and mutual aid coordinators.
Regional Emergency Operations Center (REOC) Activation: Whenever an Operational Area EOC is
activated, the CalOES Regional Administrator will activate the REOC within the affected region and notifies
CalOES Headquarters. The REOC will then coordinate resource requests from the affected Operational
Area to unaffected Operational Areas within the affected region, or, if resources are not available within
the affected region, resource requests are forwarded to the SOC for coordination.
State Operations Center (SOC) Activation: The SOC is activated when the REOC activates in order to:
• Continuously monitor the situation and provide situation reports to brief state officials as
appropriate.
• Process resource requests between the affected regions, unaffected regions and state agency
Department Operation Centers.
• Process requests for federal assistance and coordinate with Federal Incident Management
Assistance Teams (IMATs) when established.
• Coordinate interstate resource requests as part of the Emergency Management Assistance
Compact (EMAC) or Interstate Disaster and Civil Defense Compact.
• The SOC may also be activated independently of a REOC to continuously monitor emergency
conditions.
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Joint Information Center (JIC) Activation: Where multiple agencies are providing public information, the
lead agencies will work together to analyze the information available and provide a consistent message
to the public and the media. Where practical the agencies will activate a joint information center to
facilitate the dissemination of consistent information.
Department Operations Center (DOC) Activation: Each state agency may activate a department
operations center to manage information and resources assigned to the incident. If a DOC is activated, an
agency representative or liaison may be deployed to facilitate information flow between the two facilities.
FEMA Regional Response Coordination Center (RRCC) Activation: The FEMA RRCC may deploy a liaison
or IMAT to the SOC to monitor the situation and provide situational awareness to federal officials.
2.3.3 Sustained Operations
As the emergency situation continues, further emergency assistance is provided to victims of the disaster
and efforts are made to reduce the likelihood of secondary damage. If the situation demands, mutual aid
is provided, as well as search and rescue of, shelter and care for and identification of victims.
2.3.4 Transition to Recovery
As the initial and sustained operational priorities are met, emergency management officials consider the
recovery phase needs. Short-term recovery activities include returning vital life support systems to
minimum operating standards. Long-term activity is designed to return to normal activities. Recovery
planning should include reviews of ways to avert or mitigate future emergencies. During the recovery
phase, damage is assessed, local assistance centers and disaster recovery centers are opened and hazard
mitigation surveys are performed.
Local Assistance Centers: Local Assistance Centers (LACs) are opened by local governments to assist
communities by providing a centralized location for services and resource referrals for unmet needs
following a disaster or significant emergency. The LAC is normally staffed and supported by local, state
and federal agencies, as well as non-profit and voluntary organizations. The LAC provides a single facility
at which individuals, families and businesses can access available disaster assistance programs and
services. As more federal resources arrive, a state-federal Disaster Recovery Center (DRC) may be
collocated with the LACs.
Joint Field Office: The state coordinates with FEMA as necessary to activate a JFO to coordinate federal
support for the emergency. The state will appoint a State Coordinating Officer (SCO) to serve as the state
point of contact. A Federal Coordinating Officer (FCO) is appointed upon a Presidential Declaration of an
Emergency or Major Disaster.
Demobilization: As resources are no longer needed to support the response, or the response activities
cease, resources are demobilized. Demobilization includes provisions to address and validate the safe
return of resources to their original location and include processes for resource tracking and ensuring
applicable reimbursement. Where applicable, the demobilization should include compliance with mutual
aid and assistance provisions.
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2.3.5 Proclaiming an Emergency
The California Emergency Services Act provides for three types of emergency proclamations in California:
(1) Local Emergency, (2) State of Emergency and (3) State of War Emergency.
Emergency proclamations expand the emergency powers and authorities of the state and its political
subdivisions. They also provide a mechanism for unaffected jurisdictions to provide resources and
assistance to the affected jurisdictions. Although emergency proclamations facilitate the flow of resources
and support to the affected jurisdictions and local government, they are not prerequisite for rendering
mutual aid and assistance under existing agreements or requesting assistance from the American Red
Cross (ARC) or state agencies.
• Local Emergency Proclamation: A Local Emergency may be proclaimed by the Mayor, the
Director of Emergency Services, and the Lodi City Council (as an entity) as specified by the
adopted municipal code. A Local Emergency proclaimed by these individuals must be ratified by
the Lodi City Council (as an entity) within seven days.
The governing body must review the need to continue the proclamation at least every 30 days until
the Local Emergency is terminated. The Local Emergency must be terminated by resolution as soon
as conditions warrant. Proclamations are normally made when there is an actual incident or threat of
disaster or extreme peril to the safety of persons and property within the City of Lodi, caused by
natural, technological or human-caused situations.
The proclamation of a Local Emergency provides the governing body with the legal authority to:
o If necessary, request that the Governor proclaim a State of Emergency.
o Promulgate or suspend orders and regulations necessary to provide for the protection of
life and property, including issuing orders or regulations imposing a curfew within
designated boundaries.
o Exercise full power to provide mutual aid to any affected area in accordance with local
ordinances, resolutions, emergency plans, or agreements.
o Request state agencies and other jurisdictions to provide mutual aid.
o Require the emergency services of any local official or employee.
o Requisition necessary personnel and materials from any local department or agency.
o Obtain vital supplies and equipment and, if required, immediately commandeer the same
for public use.
o Impose penalties for violation of lawful orders.
o Conduct emergency operations without incurring legal liability for performance, or
failure of performance. (Note: Article 17 of the Emergency Services Act provides for
certain privileges and immunities.
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• Request for Cal OES Secretary’s Concurrence: Local governments can request cost
reimbursement from the state for certain disaster–related repair costs under the California
Disaster Assistance Act (CDAA) following the proclamation of a Local Emergency. The Secretary’s
concurrence with the local proclamation is required for this reimbursement. This step is not
required if a Governor’s Proclamation of a State of Emergency is received for the same event.
• Request for the Governor to Proclaim a State of Emergency: When emergency conditions
exceed or have the potential to exceed, local resources and capabilities, local government may
request the Governor Proclaim a State of Emergency. The formal request may be included in the
original emergency proclamation or as a separate document. The request must be received
within ten days of the event. In addition to providing access to reimbursement for eligible
disaster related response and recovery expenditures, a Governor’s proclamation can facilitate
other actions, such as waiver of State regulations impacting response or recovery operations.
• Initial Damage Estimate: The request for a Secretary’s concurrence or a Governor’s proclamation
should include a copy of the proclamation document and an Initial Damage Estimate (IDE) that
estimates the severity and extent of the damage caused by the emergency. An IDE may not be
immediately required for sudden emergencies with widespread impacts, emergencies of
significant magnitude, or during fast moving emergencies where immediate response assistance
is necessary.
• Analysis of Request: The request and the IDE are reviewed by the Cal OES Region and a
recommendation is made to the Governor through the Secretary of Cal OES.
• Proclamation of a State Emergency: The Governor proclaims a State of Emergency based on the
formal request from the local governing body and the recommendation of Cal OES. If conditions
and time warrant, the Governor drafts and signs a formal State of Emergency Proclamation. The
Governor has expanded emergency powers during a proclaimed State of Emergency. The
Governor:
o Has the right to exercise police power as deemed necessary, vested in the State
Constitution and the laws of California within the designated area.
o Is vested with the power to use and commandeer public and private property and
personnel, to ensure all resources within California are available and dedicated to the
emergency when requested.
o Can direct all state agencies to utilize and employ personnel, equipment and facilities for
the performance of any and all activities designed to prevent or alleviate actual and
threatened damage due to the emergency and can direct them to provide supplemental
services and equipment to political subdivisions to restore any services in order to
provide for the health and safety of the residents of the affected area.
o May make, amend, or rescind orders and regulations during an emergency and
temporarily suspend any non-safety-related statutes, ordinances, regulations, or rules
that impose restrictions on the emergency response activities.
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• Governor’s Proclamation Without a Local Request: A request from the local governing body is
not always necessary for the Governor to proclaim a State of Emergency. The Governor can
proclaim a State of Emergency if the safety of persons and property in California are threatened
by conditions of extreme peril or if the emergency conditions are beyond the emergency
response capability and capabilities of the local authorities. This situation is, however, unusual.
• Proclamation of a State of War Emergency: In addition to a State of Emergency, the Governor
can proclaim a State of War Emergency whenever California or the nation is attacked by an
enemy of the United States, or upon receipt by California of a warning from the federal
government indicating that such an enemy attack is probable or imminent. The powers of the
Governor granted under a State of War Emergency are commensurate with those granted under
a State of Emergency.
• State Request for a Presidential Declaration: When it is clear that State capabilities will be
exceeded, the Governor can request Federal assistance, including assistance under the Robert T.
Stafford Disaster Relief and Emergency Assistance Act (Stafford Act). The Stafford Act authorizes
the President to provide financial and other assistance to State and local governments, certain
private nonprofit organizations, and individuals to support response, recovery, and mitigation
efforts following Presidential emergency or major disaster declarations.
• Preliminary Damage Assessment: Upon submission of the request, FEMA coordinates with the
state to conduct a Preliminary Damage Assessment (PDA) and determine if the incident is of
sufficient severity to require federal assistance under the Stafford Act. This process could take a
few days to a week depending on the magnitude of the incident. FEMA uses the results of the
PDA to determine if the situation is beyond the combined capabilities of the state and local
resources and to verify the need for supplemental federal assistance. The PDA also identifies any
unmet needs that may require immediate attention. The PDA may not be required if immediate
response assistance is necessary.
• Federal Analysis of the State’s Request: The FEMA Regional Administrator assesses the situation
and the request and makes a recommendation to the President through the Federal Department
of Homeland Security on a course of action. The decision to approve the request is based on such
factors as the amount and type of damage, the potential needs of the affected jurisdiction and
the state, availability of state and local government resources, the extent and type of insurance
in effect, recent disaster history and the state’s hazard mitigation history.
• Federal Declarations without a PDA: If the incident is so severe that the damage is
overwhelming and immediately apparent, the President may declare a major disaster
immediately without waiting for the PDA process described above.
• Declaration of Emergency or Major Disaster: The President of the United States can declare an
Emergency or Major Disaster under the Robert T. Stafford Disaster Relief and Emergency
Assistance Act (42 USC §5121 et seq.), thereby providing federal government resources to
support the states’ response and recovery activities. While Presidential Declarations under the
Stafford Act release federal resources and funding to support response and recovery, federal
agencies may also provide assistance under other authorities or agreements that do not require a
Presidential Declaration.
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• The sequence of activities occurring for the emergency response and the proclamation process is
illustrated in
• Figure 9 – Response Phase Sequence of Events.
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2.4 Continuity of Government (COG) Operations
A major disaster could result in great loss of life and property, including the death or injury of key
government officials, the partial or complete destruction of established seats of government, and the
destruction of public and private records essential to continued operations of government and industry.
In the aftermath of a major disaster, during the reconstruction period, law and order must be preserved
and, so far as possible, government services must be maintained. This can best be done by civil
government. To this end, it is particularly essential that the local units of government continue to function.
Applicable portions of the California Government Code and the State Constitution provide authority for
the continuity and preservation of state and local government.
2.4.1 City of Lodi Emergency Operations Policy Statement
Limitations: Due to the nature of emergency response, the outcome is not easy to predict. Therefore, it
should be recognized that this plan is meant to serve as a guideline and that the outcome of the response
may be limited by the scope, magnitude and duration of the event.
Suspension of Routine Activities and Availability of Employees: Day-to-day functions that do not
contribute directly to the disaster operation may be suspended for the duration of an emergency. Efforts
normally required for routine activities may be redirected to accomplish emergency tasks. During an
emergency response, City employees not otherwise assigned emergency/disaster related duties will,
unless otherwise restricted, be made available to augment the work of their department, or other City
departments, if required.
Households of Emergency Response Personnel: City employees may not be at peak efficiency or
effectiveness during a disaster if the status of their households are unknown or in doubt. Employees who
are assigned disaster response duties are encouraged to make arrangements with other employees,
friends, neighbors or relatives to check on their immediate families in the event of a disaster and to
communicate that information to the employee through the City of Lodi Emergency Operations Center.
Non-Discrimination: All local activities will be carried out in accordance with Federal nondiscrimination
laws. It is the City’s policy that no service will be denied on the basis of race, religion, national origin, age,
sex, marital status, veteran status, sexual orientation or the presence of any sensory, mental or physical
disability.
Citizen Preparedness: This Plan does not substitute government services for individual responsibility.
Citizens are expected to be aware of developing events and take appropriate steps to respond in a safe
and timely manner. Since the City's resources and personnel may be overwhelmed at the onset of a
disaster event, individuals and organizations should be prepared to be self-sufficient following a disaster.
The City will make every effort to provide information to the public, via the media and other sources to
assist citizens in dealing with the emergency.
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2.4.2 Disaster Service Workers
Under California Government Code, Section 3100-3109, all public employees are obligated to serve as
Disaster Service Workers (DSW’s). Public employees (civil service) are all persons employed by any county,
city, state agency or public district in the State of California. Disaster Service Workers provide services and
support during declared emergencies or disasters.
In the event of a major emergency or disaster, city employees may be called upon to perform certain
duties in support of emergency management operations, such as: serve in a position in the EOC, support
shelter operations, or work at a logistics base in the field.
• City employees may be required to work at any time during a declared emergency and may be
assigned to disaster service work.
• Assignments may require service at locations, times and under conditions other than normal
work assignments.
• Disaster Service Worker assignments may include duties within the EOC, in the field or at another
designated location.
Under no circumstances will city employees that do not usually have a response role in their day to day
responsibilities be asked to perform duties or functions that are hazardous, that they have not been
trained to perform or that are beyond their recognized capabilities.
2.5 Continuity of Operations (COOP) General Guidance
A critical component of the City emergency management strategy involves ensuring that government
operations will continue during and after a major emergency or disaster. The ability to maintain essential
government functions, including the continuity of lawfully constituted authority is a responsibility that
must be provided for to the greatest extent possible.
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SECTION 3.0 ORGANIZATION AND ASSIGNMENT OF RESPONSIBILITIES
3.1 Emergency Management Response Levels
The City of Lodi Emergency Operations Plan (EOP) will be activated when an emergency occurs or
threatens to exceed capabilities to adequately respond to and mitigate an incident(s). The scope of an
emergency, rather than the type, will largely determine whether the EOP and EOC will be activated, and
to what level.
For planning purposes, the California Office of Emergency Services (Cal OES) has established three "levels"
of response to emergencies. The City of Lodi also employs this system to guide local response to
emergencies. Emergency Response includes the following three levels:
• Level Three EOC Activation: Level Three is a minimum activation. This level may be used for
situations which initially only require a few people, e.g., a short term earthquake prediction at
level one or two; alerts of storms, or tsunamis; or monitoring of a low-risk planned event. At a
minimum, Level Three staffing consists of the EOC Director, Section Coordinators, and a situation
assessment activity in the Planning and Intelligence Section. Other members of the organization
could also be part of this level of activation e.g., the Communications Unit from the Logistics
Section, or an Information Officer.
• Level Two EOC Activation: Level Two activation is normally achieved as an increase from Level
Three or a decrease from Level One. This activation level is used for emergencies or planned
events that would require more than a minimum staff but would not call for a full activation of all
organization elements, or less than full staffing. The EOC Director, in conjunction with the
General Staff, will determine the required level of continued activation under Level Two, and
demobilize functions or add additional staff to functions as necessary based upon event
considerations. Representatives to the EOC from other agencies or jurisdictions may be required
under Level Two to support functional area activations.
• Level One EOC Activation: Level One activation involves a complete and full activation with all
organizational elements at full staffing. Level One would normally be the initial activation during
any major emergency. The numbering sequence of EOC staffing progression is established in the
SEMS guidelines and is opposite of the NIMS numbering sequence. Given that the SEMS guideline
has been in place since the inception of SEMS, this plan recommends continuing the sequence as
established in the SEMS guidance documents.
The City EOC will be activated and staffed accordingly by City personnel and representatives from allied
agencies, jurisdictions, and organizations as appropriate.
3.1.1 National Emergency
In the event of a declared National Emergency, the City EOC could be activated and all elements of local
government organized to respond to the indicated threat. A National Emergency may occur due to a real
or potential act of terrorism or other catastrophic event that affects the country, including the City of Lodi
and surrounding jurisdictions.
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3.2 City Department/Allied Agency EOC Organization Assignments
In the event of an EOC activation, each City Department and selected allied agencies are assigned specific
functions to support emergency management operations. These assignments may involve direct
participation within the EOC or provide indirect support. See the Responsibility Matrix below for Primary
(P) and Support (S) roles for each City Department/Organization.
CITY OF LODI COUNTY OTHER
Administrative Services Fire Department Police Department Information Systems Division Community Services Community Development Public Works/EUD Human Resources County OES Office/County Administration Environmental Health Public Health Social Services Sheriff School District American Red Cross/Other NGOs State/Federal Agencies Action Planning P S
Alerting and Warning S S P S S S
Animal Care P S S
Care and Shelter P S S S
Construction & Engineering P
Coroner P
Damage Assessment S P
Debris Clearance S P
Evacuation P S
Facilities S P
Finance P
Fire and Rescue P
Flood Control S P S S
Hazardous Materials P S
I.T. & Telecommunications P
Law Enforcement P S
Legal Considerations P S
Management P S S S
Medical/Health P S
Personnel P
Procurement P
Public Information P S S S S
Public Works P
Services & Support P
Situation Status S S S S S P S S S S S S S S S S
Transportation S P
Utilities P
Vital Records P
Primary (P) and Support (S)
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3.2.1 Director of Emergency Services
During a local level emergency or disaster, the City Manager as the Director of Emergency Services
coordinates citywide emergency operations with the Emergency Services Coordinator and Lodi’s mutual
aid partners. During an emergency the City Manager, to the extent deemed necessary, has control and
direction over the City of Lodi Emergency Organization as stated in the Lodi Municipal Code. (Director and
coordinator, Lodi Municipal Code, Chapter 2.32, Emergency Services)
Lodi department personnel and resources as directed in the Municipal Code. (Lodi Code of Ordinances,
Chapter 2.32, Emergency Services)
3.3 Role of the Private Sector
3.3.1 Lodi Residents
The residents of Lodi are the primary beneficiaries of the City’s emergency management system. At the
same time, residents play an important role in emergency management by ensuring that they and their
families are prepared for disasters. Before an emergency, residents can assist the emergency
management effort by taking first aid training, maintaining supplies and being prepared to evacuate or
shelter in-place for several days.
Many residents join disaster volunteer programs such as Community Emergency Response Teams (CERT)
and remain ready to volunteer or support emergency response and recovery efforts. During an
emergency, residents should monitor emergency communications and carefully follow directions from
authorities. By being prepared, residents can better serve their family, their community and reduce
demands on first responders.
3.3.2 Populations with Access and Functional Needs
According to the U.S. Census of 2014, approximately 3.8 million (10%) Californians over the age of five
years have a disability. The state’s population of older adults is also growing and, according to the
California Department of Aging, in California there will be approximately 8.5 million people over the age
of 60 by 2020 (21%), and almost 12.5 million people over the age of 60 by 2040 (25%).
Most disaster response systems and plans are designed for people who can walk, run, see, drive, read,
hear, speak, and quickly respond to alerts and instructions. This presents challenges for adults and
children with disabilities and others with access and functional needs. This population may suffer severe
and less forgiving consequences without essential support. The margin of resiliency in emergencies is
smaller and the impact is higher.
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Part of any successful planning effort is to understand the impacted population(s). The legal requirements
are set forth in Government Code section 8593.3, and define access and functional needs as individuals
who have:
• Developmental, intellectual or physical disabilities;
• Chronic conditions or injuries;
• Limited English proficiency or non-English speaking;
Or individuals who are:
• Older adults, children, or pregnant;
• Living in institutional settings;
• Low income, homeless, and/or transportation disadvantaged; or
• From diverse cultures.
Lessons learned from recent emergencies concerning people with disabilities and older adults have shown
that the existing paradigm of emergency planning, implementation and response must change to meet
the needs of these groups during an emergency. These lessons show four areas that are repeatedly
identified as most important to people with disabilities and older adults:
• Communications and Public Information – People with disabilities must be given the same
information provided to the general population. Emergency notification systems must be
accessible to ensure effective communication for people who are deaf/hard of hearing, blind/low
vision, or deaf/blind.
• Evacuation and Transportation – Evacuation plans must incorporate disability and older adult
transportation providers for identifying and the movement of people with mobility impairments
and those with transportation disadvantages.
• Sheltering – Care and shelter plans must address the access and functional needs of people with
disabilities and older adults to allow for sheltering in general population shelters.
• Americans with Disabilities Act - When shelter facilities are activated, the state will work with
local officials to ensure they accommodate the provisions of the Americans with Disabilities Act
(ADA).
3.3.3 At-Risk Individuals
Another perspective is to consider the needs of people who are not in contact with traditional emergency
service providers. These people may feel they cannot comfortably or safely access and use the standard
resources offered in preparedness, response and recovery. These include, but are not limited to
individuals who are:
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• Out of hearing range of community alert sirens
• Without radio or television to know they need to take action
• Without access to telephones
• Visiting or temporarily residing in an impacted region
• Not familiar with available emergency response and recovery resources
• Geographically or culturally isolated
3.3.4 Businesses
Much of Lodi’s critical infrastructure is owned or maintained by businesses and must be protected during
a response to ensure a quick and complete recovery from an emergency. These same businesses provide
valuable resources before, during and after an emergency and play a critical role in meeting the needs of
those impacted by an emergency.
Target Hazards: Some key industries are potential targets for terrorist attacks and must institute measures
to prevent attacks and protect their infrastructure and the surrounding community. This requires
businesses to coordinate with federal, state and local governments to ensure that their emergency plans
are integrated with government plans.
Hazardous Materials Area Plans: Some industries are required by law or regulation to have emergency
operations procedures to address a variety of hazards. The CalOES Hazardous Materials Program requires
businesses that handle hazardous materials that meet certain quantity or risk thresholds must submit
Business Program Plans and Risk Management Plans to the San Joaquin County Certified Unified Program
Agency (CUPA) or Administering Agency (AA). The AA can then develop Hazardous Materials Area Plans
to respond to a release of hazardous materials within San Joaquin County.
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Business Emergency Plans: This plan recommends that all businesses develop comprehensive emergency
plans that include employee injury and illness prevention programs, business resumption and continuity
of operations elements. A comprehensive business emergency plan can assist the business and the
community at-large by providing:
o Information to the employees to protect themselves and their families from the effects
of likely emergencies.
o A business emergency organization with identified positions having clear and specific
emergency roles, responsibilities, delegated authority and identified successors.
o An identification of actions necessary to protect company property and records during
emergencies.
o A listing of critical products and services.
o Production shut-down procedures.
o A company command post.
o Alternate work sites.
o Methods and channels of communication.
o Contacts with local emergency management officials.
o A method to provide and accept goods and services from other companies.
Business Operations Centers: This plan also promotes the use of business operations centers to enhance
public and private coordination. Local governments can effectively coordinate with businesses by
establishing a business operations center that is linked to their existing emergency operations center.
3.3.5 Volunteer Organizations
The City of Lodi recognizes the value and importance of organizations that perform voluntary services in
their community. These organizations have resources which can augment emergency response and
recovery efforts.
Examples of voluntary organizations are:
• City of Lodi Volunteers: Volunteers who are already connected to the City of Lodi prior to an
emergency can be a great asset during a disaster.
o Fire Corps: Chaplains
o Volunteers in the Police Services: Police Reserves, Senior and Junior Cadets, and Partners.
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• American Red Cross (ARC): The American Red Cross Capital Region Chapter is very active when
disaster threatens or strikes a member of our community. The Red Cross provides shelter, food
and health and mental health services to address basic human needs to enable them to resume
normal daily activities. The American Red Cross Capital Region Chapter-Lodi Office 2453 Grand
Canal Blvd. www.redcrosscrc.org. Examples of additional volunteer organizations in Lodi are:
o United Way of San Joaquin County
o Salvation Army
o Faith-Based Organizations
3.3.6 Public-Private Partnerships
The private sector provides valuable assistance and resources to support emergency response and
recovery activities. The goal of the Public-Private Partnership is to advise on:
• Appropriate agreements to provide for quick access to emergency supplies and essential services
in order to minimize the need to stockpile such supplies during normal times.
• Logistic measures required to quickly deliver needed supplies and services to affected areas.
• Methods to utilize non-profit and private sector capabilities to increase the surge capacity of
local agencies responding to emergencies.
• Methods to promote the integration of the non-profit and private sectors into the emergency
services system so that people can be better informed and prepared for emergencies.
• Systems that aid business and economic recovery after an emergency.
• Some organizations/businesses that have formed public-private partnerships with the City of Lodi
include:
o Pacific Gas and Electric (PG & E)
o Union Pacific Railroad
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SECTION 4.0 DIRECTION, CONTROL AND COORDINATION
Responsibility for emergency response is based on statutory authority. The emergency response is
coordinated under SEMS, which provides a flexible adaptable and expandable response organization to
address all-hazards of varying magnitude and complexity.
• Command and Control: During response to minor or moderate events, the City of Lodi may
manage the emergency with existing resources. The Emergency Operations Center (EOC) may not
be activated under this scenario. Personnel that are part of a field level emergency response will
utilize the Incident Command System (ICS) to manage and direct on-scene operations.
• Field/EOC Communications and Coordination: The Lodi EOC is activated to support field
operations when an emergency requires additional resources, or when requested resources
exceed that which is available from within the jurisdiction. Field Incident Commanders and the
City EOC will establish communications when the EOC is activated. The Lodi EOC will
communicate with the San Joaquin Operational Area EOC and the San Joaquin Operational Area
EOC will communicate with the Inland Region Emergency Operations Center (REOC) and the
REOC will communicate with the State Operations Center (SOC).
• Multi-agency Coordination: Larger scale emergencies involve one or more responsible
jurisdictions and or multiple agencies. Management personnel from the responsible jurisdictions
form a Unified command and or a Multi-Agency Coordination (MAC) group. Provision is made for
situation assessment, determining resources requirements, establishing a logistical system and
allocating resources. Various emergency operations centers, dispatch centers and other essential
facilities located in or adjacent to the affected area are activated at this time.
4.1 EOC Coordination with Other Government Levels and the Private Sector
4.1.1 Coordination with Field Response Level
Communications and coordination must be established between the EOC and field responders who are
responding within the city boundaries. This is accomplished through coordination with the Department
Operations Centers (DOC), when activated, and as necessary through the city EOC.
4.1.2 Coordination with San Joaquin Operational Area and Member Jurisdictions
Direct communications and coordination will be established between San Joaquin County and any
Operational Area member jurisdictions' activated EOC. Additionally, as time permits, communications will
be established by the county with other member jurisdictions that have not activated their EOCs. Initially,
communications will be established by any means available and with whoever is available, regardless of
their functional EOC position. Ideally, communications and coordination amongst the cities and special
district EOCs will occur along functional lines.
An agency representative from any OA jurisdiction that activated its EOC may request to have a liaison at
the City’s EOC; this will be coordinated through the San Joaquin OA EOC or the Emergency Services
Manager if the County EOC is not activated. Due to space limitations, this would only be recommended
during complex or large operations between the city and other San Joaquin OA members.
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4.1.3 Coordination with the County and Special Districts
The emergency response role of county and special districts is generally focused on restoring their normal
services or functional area of responsibility. During disasters, some types of special districts will be more
extensively involved in the emergency response by directly coordinating, communicating, and assisting
local governments (for instance utilizing school districts for incidents involving shelters, school facilities,
or the children.) If a special district does not send a representative to the EOC, then the Liaison Officer in
the EOC will be responsible for establishing communications and coordination with the special district
liaison.
4.1.4 Coordination with the Inland Region Emergency Operations Center
Communications with the Inland Region Emergency Operations Center (REOC) are conducted through the
San Joaquin Operational Area. The REOC will work with the OA directly on behalf of the city and the
methods are described as follows:
• Primary Method - The REOC sends a field representative to the Operational Area.
• Alternate Method - The Operational Area and the REOC coordinate through various
telecommunications systems.
Coordination and communications between the San Joaquin County EOC and the Inland REOC will occur
between the five SEMS functions. Direct coordination and communications will also be established
between the Operational Area Mutual Aid Coordinators, who are located in the County EOC, and the
Region's Mutual Aid Coordinator, who may be located in the REOC.
4.1.5 Coordination with State and Federal Field Response
There are some instances where a state or federal agency will have a field response. State agency field
responses may result from a flood fight effort, oil spill, and hazardous materials accident on a highway or
other hazard scenarios. Federal field response could result from the same scenarios or a military aircraft
accident, and/or terrorism incidents. When a state agency or federal agency is involved in field operations,
coordination may be established with the City EOC. State or federal agencies operating in the field may
be found in any ICS section, branch, or unit or part of a Unified Command. The agency’s responsibilities in
responding to the incident will determine their location in the organization. Per NIMS, any multi-agency
response will require the formation of a Unified Command structure.
4.1.6 Coordination with Volunteers and the Private Sector
Within San Joaquin County, coordination of response activities with non-governmental organizations may
occur. Privately-owned utilities, such as PG&E will frequently send representatives to activated EOCs to
facilitate coordination of critical facility restoration. The County EOC will address volunteer requests from
the general public by directing them to the logistics section or the Emergency Volunteer Center (EVC) if
activated. Other private sector corporate interests may contact the EOC through the appropriate liaisons
to express their interest in assisting in response and recovery operations.
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SECTION 5.0 INFORMATION COLLECTION AND DISSEMINATION
5.1 Action Planning
The use of Action Plans in the Lodi EOC provides a clear and measurable process for identifying objectives
and priorities for a given event. Action Planning is an important management tool that involves:
• Process for identifying priorities and objectives for emergency response or recovery efforts.
• Plans which document the priorities and objectives, and the tasks and personnel assignments
associated with meeting the objectives.
The Action Planning process should involve the EOC Director and Section Chiefs (one from each Section),
along with other EOC staff, as needed, such as agency representatives.
5.1.1 Planning Requirements
The initial EOC Action Plan may be a verbal plan that is developed during the first hour or two following
EOC activation. A verbal plan may also be utilized for incidents involving a limited scope, short duration
(less than 12 hours) and a limited number of response personnel. An EOC Action Plan shall be developed
whenever the EOC is activated, either partially or fully. A written EOC Action Plan is required whenever:
• Two or more agencies are involved in the response
• The incident overlaps more than one operational period
• All EOC functions are fully staffed
The EOC Action Plan addresses a specific operational period which may vary in length from a few hours to
days depending on the circumstances. The plan should be regularly reviewed and evaluated throughout
the operational period and revised or updated as warranted.
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5.1.2 Plan Elements
The elements to be included in the EOC Action Plan are:
• Operational period covered by the plan.
• Identify parts of EOC organization that have been activated on an organization chart.
• Assignment of primary and support personnel and material resources to specific tasks and
locations.
• Describe any logistical or technical support to be provided and by whom.
• State the objectives (attainable, measurable and flexible) to be accomplished.
• Establish the current priorities to meet the objectives.
• Describe the strategy to be utilized to achieve the objectives.
• In addition to the required elements listed above, the Action Plan may also include:
• Specific departmental mission assignments.
• Policy and/or cost constraints.
• Any inter-agency considerations.
5.1.3 Planning Responsibilities
Primary responsibility for developing the EOC Action Plan rests with the Planning Section. However,
development of the plan requires the active participation of the EOC Management and General Staff. The
Operations Section, in particular, must work closely with the Planning Section during Action Plan
development. When indicated, the Planning Section Chief will request specific technical experts to provide
input to the plan. The EOC Director is responsible for approving the plan.
For incidents requiring close coordination with external agencies, (e.g., State Cal OES, state first response
agencies, special districts, etc.), input from the involved agencies should also be included in the Action
Planning process.
5.2 EOC Reporting
Information may be sent to City departments, EOC personnel, the San Joaquin Operational Area and other
key agencies using CalEOC/WebEOC, OASIS, radio, telephone, email, internet or fax. Regardless of the
method of communication, all data should be verified prior to transmission. If unverified data must be
transmitted, it should be clearly designated as unconfirmed information. The Lodi EOC should transmit
the following reports to DOCs, if activated, city departments, and the San Joaquin OA EOC:
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5.2.1 Preliminary Reports
Preliminary Reports are used during the first two hours of an emergency to provide an initial picture of
the scope and magnitude of the situation.
5.2.2 Situation Reports
Situation Reports are brief narratives that present a concise picture of the emergency situation and are
prepared for specific time periods.
• At the beginning of an emergency response, the EOC Management and Planning staff will
determine appropriate times for submitting data and issuing Situation Reports.
• The Situation Report is intended for use after the first two hours of an emergency and can be
updated as requested or needed.
5.2.3 Flash Reports
Flash Reports are used for transmitting critical, time-sensitive information outside regularly scheduled
Preliminary Reports or Situation Reports. For example, a Flash Report would be used to report an
impending dam failure or a receipt of a Federal Declaration of a Major Disaster.
Oral Flash Reports may precede written reports. The written report later serves as confirmation and
documentation.
5.2.4 Documentation
Unit/activity logs are used to record significant events, communications and actions associated with an
emergency for a given operational period or shift. Each EOC staff position is responsible for maintaining a
unit/activity Log.
All copies of reports, SEMS forms, and logs must be submitted to the Planning Section, Documentation
Unit, prior to the close of each operational period (or prior to EOC deactivation if operations do not require
multiple shifts).
5.2.5 Status Boards
Status Boards are erasable boards or projections from computer systems located around the EOC. The
Status Boards provide decision-makers and EOC staff with essential information such as road closures,
shelter location information, river gauge levels etc., at a glance.
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5.3 EOC Reporting Systems
San Joaquin OA and the State of California have internet based information reporting systems for use
during emergencies; CalEOC (State of California) and WebEOC (San Joaquin OA) The purpose of is to
improve the state’s ability to respond to major disasters. The system will increase the level of service and
efficiency by improving the state’s ability to:
• Respond to, manage and coordinate requests for resources
• Collect, process, and disseminate information during and after a disaster
5.4 Emergency Public Information
Emergency Public Information is a priority of utmost importance during emergencies and disasters. City
government has a primary responsibility to provide accurate and timely information to the public
regarding conditions, threats, and protective measures. To avoid conflicts and confusion, the Emergency
Public Information function operates best when centralized and coordinated among all involved
jurisdictions, agencies and organizations.
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SECTION 6.0 COMMUNICATIONS
In coordination with established public safety warning protocols, the activated EOC will manage the
dissemination of timely and adequate warnings to threatened populations in the most effective manner
possible. Warning information will be issued as quickly as a threat is detected, using the most direct and
effective means possible.
6.1 Warning Responsibility
When the EOC is not activated, the City Public Safety Departments will coordinate the dissemination of
official alerts and warnings to the general public and allied agencies using available methods. This alert
and warning activity will be coordinated through the City PIO, the dispatch center and other available alert
and warning mechanisms available to the City.
6.2 Warning and Alert Mechanisms
Depending upon the threat and time availability, the EOC will initiate alerts and warnings utilizing any of
the following methods:
• Activation of the Emergency Alert System (EAS)
• Everbridge Unified Mass Notification System
• Media broadcast alerts
• Social Media Notifications
As in any emergency, the effectiveness of any warning will be dependent upon many factors including:
• Time availability
• Initial notice of threat
• Time of day
• Language barriers
• Receiving challenges for the hearing and sight impaired
6.3 Warning Conditions
Typically, warnings will be issued during periods of flash flooding, major hazardous materials incidents,
public health emergencies, fast moving fires, severe weather conditions, and potential acts of violence.
However, warnings may be issued wherever a threat is perceived and the potential for safeguarding public
safety is possible through rapid alerting.
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SECTION 7.0 ADMINISTRATION, FINANCE AND LOGISTICS
ADMINISTRATION
Introduction
The Administration function manages all financial, administrative and cost analysis aspects of the
emergency. Initially, this work may be done in the EOC, but in later stages of the emergency this function
may be accomplished at other locations.
7.1 Damage Assessment
Damage Assessment is the process of identifying and quantifying damages that occur as a result of a
disaster. The objective of the damage assessment is to provide situational awareness to the EOC about
the state of critical and essential functions to help facilitate the move from response into recovery. It also
facilitates the decisions to appropriately direct resources and teams. Additionally, the damage assessment
results are used as the initial basis to justify or determine state or federal assistance. Damage assessment
is conducted in two phases:
7.1.1 Initial Damage Assessment:
This assessment begins immediately after the incident occurs and helps to determine life safety issues,
identify the hardest hit areas and to estimate the damaged infrastructure. The initial damage assessment
determines whether more detailed damage assessments are necessary and identifies those areas where
further efforts should be concentrated.
7.1.2 Preliminary Damage Assessment (PDA):
This assessment is done to verify the initial damage assessment (especially for state/federal assistance)
and gather additional information on areas or functions that are going to require additional resources so
recovery can be prioritized.
7.2 Process
7.2.1 Windshield Surveys
Following a disaster, on-duty fire, police and public works field units perform windshield surveys. The
survey is done quickly, without exiting the vehicle and includes a brief observation of the structure or area
for obvious damages. The Red Cross also may conduct windshield surveys, if requested. Windshield
surveys may also be used to develop the Initial Damage Estimate (IDE) discussed in the previous section.
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7.2.2 Safety Assessment
As soon as possible following the emergency event, a Rapid Safety Assessment is conducted on occupied
buildings and pre-designated essential facilities (e.g., occupied structures, access roads, bridges, utilities
etc.) The assessment involves an immediate visual inspection by Safety Assessment Teams (SATs) assigned
by the EOC Safety Assessment staff to identify unsafe structures/area and obvious hazards. Unsafe
structures are evacuated immediately, hazardous conditions are secured and occupied buildings are
posted as Unsafe, Restricted Use or Inspected, as indicated. The inspection and assessment process will
be performed in accordance with the Applied Technology Council (ATC-20-2) Procedures for Post-
Earthquake Safety Evacuation of Buildings. Mutual aid for the conduct of these assessments can be
obtained through the Safety Assessment Program, overseen by Cal OES.
7.2.3 Detailed Inspection
Based on findings from the SATs, detailed inspections are performed on damaged facilities by personnel
assigned by the EOC Safety Assessment staff. This inspection includes a more thorough examination to
document damages, identify repair, bracing and shoring requirements, evaluate the initial posting of
occupied structures and identify facilities that require an engineering assessment. The condition of
occupied structures may be upgraded or downgraded based on the results of the inspection.
7.2.4 Engineering Assessment
Licensed engineers conduct detailed assessments on damaged structures and facilities to prepare plans
for repairs, reconstruction and engineering cost estimates. Depending on the type of facility and the
nature of the damage, civil, structural, mechanical, and other specialty engineering services may be
contracted, or requested through the San Joaquin OA EOC.
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7.2.5 Damage Assessment Chronology Summary
Refer to Figure 10 - Damage Assessment Chronology Summary Chart on the following page
Damage Assessment Chronology
Time Frame Purpose Method/Teams
Windshield Survey
0-12 hours post-event Locate and identify casualties and
hazards to aid the direction of
response efforts.
1. Windshield Survey Form
2. Police, Fire and Public
Works field units, and ARC
Safety Assessment
0-24 hours post-event Identify life safety problems,
obvious structural or utility
damage. Includes assessment of
roads, bridges, tunnels, and
access areas. Buildings are posted
“Unsafe” (Red), “Restricted Use”
(Yellow),or “Inspected”(Green).
The assessment is also used to
identify requirements for
barricades.
1. ATC-20-2 Rapid
Evaluation Safety
Assessment Form
2. Safety Assessment Teams
assigned by the EOC
Safety Assessment staff
Detailed Damage Assessment
24 hours to 1 week post-event Identify and document damage
and initial cost estimates. Inspect
structures, bridges, tunnels, water
lines, fire alarm systems, sewer
lines, street lights, and roadways.
The assessment is also used to
prepare for emergency repairs,
bracing and shoring.
1. ATC-20-2 Detailed
Evaluation Safety
Assessment Form
2. ATC-20-2 Fixed
Equipment Checklist
3. Safety Assessment Teams
assigned by the EOC
Safety Assessment staff
Engineering Assessment
1 week to 2 months post-event A quantitative engineering
evaluation of damage. This
assessment is used to prepare
plans for permanent repairs and
to prepare engineering cost
estimates.
Engineers and architects
Consulting structural, mechanical
and geotechnical engineers
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7.3 Documenting and Reporting Damage Assessments
7.3.1 Reporting
Any damage that endangers life safety, the operation of a facility or damage that could result in additional
damage will be reported immediately to the EOC Operations Section via phone or radio. Copies of all
damage reports are forwarded to the Planning Section for review, analysis and posting on status boards,
as indicated.
7.3.2 Windshield Survey
Field units report hazards or major damage to the assigned EOC Operations Section Chief or designee via
phone or radio.
7.3.3 Safety Assessment
The results of safety assessments are reported by SATs to the assigned Operations Section Safety
Assessment staff via phone or radio. Based on the results of these assessments, initial response strategies
and priorities may be received by the Operations Section Chief.
7.3.4 Detailed Damage Assessment
Each SAT submits its findings in writing on the appropriate form to the EOC Safety Assessment staff. The
Safety Assessment staff arrange for further engineering assessments based on the findings from this
assessment. Copies of all forms are forwarded to the Planning Section for the Situation/Status Report.
7.3.5 Engineering Evaluation
Each SAT submits its findings in writing to the EOC Safety Assessment staff. The engineering reports will
include all supporting materials, such as drawings, calculations, cost estimates, etc, and will be used to
develop, repair and reconstruct plans.
7.3.6 Documentation
Police, Fire and Public Works field units conduct the Windshield Surveys and document their findings. The
information may be reported verbally to the EOC, or to the appropriate Law, Fire or Public Works
representative who in turn records the information.
Inspections and assessments are recorded by assigned SATs on the appropriate ATC-20-2 forms and
photographs are taken of all damages observed. Where indicated, appropriate maps and schematics are
attached to the ATC-20-2 forms. Completed forms, photographs and schematics are forwarded to the EOC
Planning Section as soon as practical.
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7.4 After Action Reporting
The Standardized Emergency Management System (SEMS) and National Incident Management System
(NIMS) protocols require any city, city and county, or county declaring a local emergency for which the
Governor proclaims a State of Emergency, to complete and transmit an After-Action Report (AAR) to Cal
OES within 90 days of the close of the incident period.
The after-action report will provide, at a minimum, the following:
• response actions taken
• application of SEMS
• suggested modifications to SEMS
• necessary modifications to plans and procedures
• training needs
• recovery activities to date
The after-action report will serve as a source for documenting the City of Lodi emergency response
activities and identifying areas of concern and successes. It will also be utilized to develop a work plan for
implementing improvements.
An after-action report will be a composite document for all SEMS levels, providing a broad perspective of
the incident, referencing more detailed documents, and addressing all areas specified in regulations.
It will include an overview of the incident, including attachments, and will also address specific areas of
the response, if necessary. It will be coordinated with, but not encompass, hazard mitigation. Hazard
mitigation efforts may be included in the “recovery actions to date” portion of the after-action report.
The Emergency Services Coordinator (Fire Department) is responsible for the completion and distribution
of the after-action report to the City Manager and Department Directors as well as ensuring that it is sent
to the California Office of Emergency Services (Cal OES) within the required 90 day timeframe.
For Lodi, the after-action report’s primary audience will be Cal OES and City employees, including
management. As public documents, they are accessible to anyone who requests a copy and will be made
available through the Lodi Fire Department.
The after-action reports will be written in simple language, well structured, brief and well presented, and
geared to the primary audience. Data for the after-action report will be collected from debrief reports,
other documents developed during the disaster response, and discussions with emergency responders.
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FINANCE
7.5 Expenditure Tracking
The City may be reimbursed from insurance, state and/or federal sources for disaster-related expenses.
The purpose of this section is to provide guidance on the record keeping requirements for claiming such
expenses.
7.5.1 Eligible Expenses
Eligible costs are extraordinary costs incurred while providing emergency services required by the direct
impact of a declared disaster and which service is the responsibility of the applicant agency. Eligible costs
are generally considered to be the net costs over and above any increased revenue or subsidy for the
emergency service. Ineligible expenses include costs for standby personnel and/or equipment and lost
revenue.
7.5.2 Recordkeeping Requirements
State and federal governments require detailed information to support claims for reimbursement.
Funding will be approved or denied based upon the information supplied by applicant agencies.
Documentation supporting all costs claimed will be required, and all information must relate back to
individual original source records. The following guidelines should be followed when documenting
disaster-related reimbursable expenses:
• Costs and revenues associated with emergency operations should be segregated from normal
operating expenses.
• Separate records should be maintained for each vehicle and piece of heavy equipment used for
emergency operations.
• Vehicle and equipment documentation should include the miles and/or hours operated by
location and by operator.
• Vehicle operating expenses should include fuel, tires, tubes and maintenance.
• Labor costs should be compiled separate from vehicle and/or equipment expenses.
• Equipment documentation should include exactly where the equipment was used and for what;
hours and minutes used; and the name of the equipment operator if applicable.
• Revenues and subsidies for emergency operations must be subtracted from any costs claimed.
• Requisitions, purchase orders, and invoices must be maintained for all supplies, materials and
equipment expenses claimed.
• Costs for supplies and materials must include documentation of exactly where resources were
used.
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• All noncompetitive procurements must be justified.
Expenditure tracking should commence upon notice or obvious occurrence of disasters that require
expense of labor, equipment use, materials, and other expenses. The Incident Commander(s), EOC
Director, and EOC staff are responsible for maintaining written records of all disaster-related personnel
overtime, requests for supplies, equipment and contract personnel, and receipts for emergency purchases
of supplies, equipment and other disaster- related expenses. The City will activate a special coding for
emergency expenditure tracking which is used for both labor and equipment.
The Finance Section will compile reports, including total expenditures by category. The Finance Section
Chief will submit a summary report on total costs to the EOC Director as requested. This information will
be used for state and federal disaster assistance applications. The expenditure data and documentation
is vital to state and federal agencies for requesting financial assistance during and after the disaster.
LOGISTICS
7.6 Resource Management
7.6.1 Resource Priorities
When activated, the City of Lodi EOC establishes priorities for resource allocation during the emergency.
All city resources are considered part of a pool, which may be allocated by the City EOC to fulfill priority
missions. Each department retains control of its non-assigned resources until released for an emergency
assignment by the EOC.
7.6.2 Resource Requests
Resource Requests will be made through one of the following processes:
• Discipline-specific (usually Fire and Law) mutual aid systems: Requests for resources that are
normally within the inventories of the mutual aid system will go from local coordinator to
Operational Area Mutual Aid Coordinator to the Regional Mutual Aid Coordinator.
• All other resource requests will be made through the logistics function at each level.
Resource requests from jurisdictions within the city will be coordinated with the San Joaquin OA EOC to
determine if the resource is available internally or other more appropriate sources located within the OA.
Emergency Management Mutual Aid Coordinators at each level will keep the Operations Chiefs informed
of the status of resource requests and allocations. Coordinators at each level will communicate and
coordinate with each other to maintain current status on resource requests and allocations within the
disaster area.
Resource requests from the City of Lodi EOC to the San Joaquin OA EOC may be verbally requested then
will be documented. Available resources will be allocated to the requesting local government field
Incident Commander. If requests for a specific resource exceed the supply, the available resources will be
allocated consistent with the priorities established through the action planning process. The Section Chiefs
in the City EOC are responsible for ensuring that priorities are followed.
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Resource requests for equipment, personnel or technical assistance not available to the City should be
coordinated with the San Joaquin OA EOC to the Inland Region REOC. Once the resource requested is
coordinated, approved and deployed, the Resource Status Unit, in coordination with various Operations
Branches, is responsible for tracking the resource.
7.6.3 Emergency Resource Directory
San Joaquin County maintains an Emergency Resource Directory or Logistics System in database format
that lists available vendors, supplies, and equipment that can be available during a disaster situation.
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SECTION 8.0 PREPAREDNESS, TRAINING AND EXERCISES
8.1 Preparedness Planning
City government conducts a wide array of emergency planning activities. Planning efforts include
development of internal operational documents as well as interagency response plans having multi-
jurisdictional participation.
In addition to the planning activities conducted, the city departments develop internal preparedness and
contingency plans to ensure provision of government services and maintenance of departmental
functions during disasters. The Department Operations Plan (DOP) is an integral supporting component
of the master Emergency Operations Plan (EOP).
Emergency readiness cannot be conducted within a vacuum. The city is responsible for working with all
city departments, special districts and allied agencies that are considered a component of the Lodi
Emergency Organization. Such coordination extends to the following activities:
• Interagency plan development
• Interagency training coordination
• Interagency exercise development and presentation
• Interagency response management
• Interagency emergency public information activities
Additionally, the Fire Chief acts as the city government’s key representative and lead agent for day-to-day
emergency management activities such as: mitigation, preparedness, response, and recovery. Non-
emergency functions include planning, training and exercise development, preparedness presentations,
interagency coordination, hazard assessment, development of preparedness and mitigation strategies,
grant administration and support to city response agencies.
8.1.1 Community Preparedness and Awareness
The public's response to any emergency is based on an understanding of the nature of the emergency,
the potential hazards, the likely response of emergency services, and knowledge of what individuals and
groups should do to increase their chances of survival and recovery.
Public awareness and education prior to an emergency or disaster will directly affect Lodi’s emergency
operations and recovery efforts. For this reason, the City of Lodi will make emergency preparedness
information from county, state and federal sources available to the member jurisdictions and our citizens
upon request.
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8.1.1 Preparedness Actions
In identifying general preparedness actions, city government works with community based organizations,
faith-based organizations, other local governments/special districts, private industry, preparedness
groups, and other entities to provide information relating to individual and group preparedness.
Government is limited in its ability to provide endless services and support during times of disaster, so
public preparedness is essential for ensuring individual and organizational safety and protection.
8.2 Readiness Training
The Lodi Fire Department will notify holders of this plan of training opportunities associated with
emergency management and operations. Individual City departments and agencies within the City of Lodi
are responsible for maintaining training records. Jurisdictions and agencies having assigned functions
under this plan are encouraged to ensure that assigned personnel are properly trained to carry out these
tasks.
The Emergency Services Coordinator or designee of the Emergency Services Coordinator (usually public
safety) will develop and execute a comprehensive training program for emergency management topics
on an annual basis. The established training schedule will include applicable courses of instruction and
education that cover management subjects. Such instruction shall meet or exceed the State SEMS and
Federal NIMS training requirements.
8.3 Exercise and Evaluation
Elements of this plan will be exercised regularly. The Fire Department will conduct emergency
preparedness exercises, in accordance with its annual exercise schedule, following appropriate state and
federal guidance. Deficiencies identified during scheduled exercise activities will result in the development
of a corrective action plan to initiate appropriate corrections.
The planning for, development and execution of all emergency exercises will involve close coordination
between all City Departments, allied agencies, special districts, and supporting community and public
service organizations.
The primary focus will be to establish a framework for inter-organizational exercise collaboration in
coordination with all-hazard response and recovery planning and training activities, conducted within the
City of Lodi.
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Emergency exercise activity will be scheduled as to follow state and federal guidance and program
requirements. Exercise activity will follow the Homeland Security Exercise and Evaluation Program
(HSEEP) guidance and may be designed as one or more of the following exercise types:
• Drills
• Seminars (Workshops)
• Table Top Exercises (TTX)
• Functional Exercises (FE)
• Full Scale Exercises (FSE)
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SECTION 9.0 PLAN DEVELOPMENT AND MAINTENANCE
9.1 Plan Development and Maintenance Responsibility
This plan is developed under the authority conveyed to the Emergency Services Coordinator or designee
of the Emergency Services Coordinator (usually public safety) in accordance with the City’s Director of
Emergency Services and Emergency Services Council who has the primary responsibility for ensuring that
necessary changes and revisions to this plan are prepared, coordinated, published, and distributed.
9.2 Review and Updating
This plan and its supporting documents or annexes, such as Continuity of Operations, Direction and
Control or Recovery, will be reviewed annually, with a full document update conducted minimally every
two (2) years. Changes to the plan will be published and distributed to all involved departments and
organizations. Recommended changes will be received by the Emergency Services Coordinator (Fire
Department), reviewed and distributed for comment on a regular basis. Elements of this plan may also be
modified by the Emergency Services Coordinator (Fire Department) any time state or federal mandates,
operational requirements, or legal statute so require. Once distributed, new editions o this plan shall
supplant older versions and render them inoperable.
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SECTION 10.0 AUTHORITIES AND REFERENCES
10.1 Authorities
10.1.1 Federal
• Robert T. Stafford Disaster Relief and Emergency Assistance Act of 1988, 42 U.S.C. 5121, et seq.,
as amended
• Homeland Security Presidential Directive 5, Management of Domestic Incidents, February 28,
2003
• Homeland Security Presidential Directive 8, National Preparedness, December 17, 2003
• The Code of Federal Regulations, Title 44, Chapter 1, Federal Emergency Management Agency,
October 1, 2007
10.1.2 State
• California Emergency Services Act (CA government Code Section 8550 et. seq.)
• California Disaster Assistance Act (CA government Code Section 8680 et. seq.)
• California Code of Regulations Title 19, (Standardized Emergency Management System and
California Disaster Assistance Act))
• California Disaster and Civil Defense Master Mutual Aid Agreement
10.1.3 County
• San Joaquin County Emergency Services/Ordinance; Division 3: Civil Defense and Disaster;
Sections 4-3000 – 4-3009 of the San Joaquin County Municipal Code
• San Joaquin County Resolution adopting the California Master Mutual Aid Agreement
• San Joaquin County Resolution relating to Emergency Operations within San Joaquin County
• San Joaquin County Resolution adopting the Emergency Operations Plan, 2003
10.1.4 City
• Lodi Municipal Code: Section 2.32 – Emergency Services
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•
10.2 References
10.2.1 Federal
• National Response Framework (As revised)
• National Incident Management System (NIMS)
• Comprehensive Preparedness Guide (CPG) 101 v2
10.2.2 State
• California State Emergency Plan, July 2017 edition
• Standardized Emergency Management System (SEMS)
• California Disaster Assistance Act (CDAA)
• California Law Enforcement Mutual Aid Plan
• California Fire and Rescue Mutual Aid Plan
• Continuity of Government in California (Article IV, Section 21 of the State Constitution)
• Preservation of Local Government
10.2.3 County
• San Joaquin County Emergency Operations Plan
101.2.4 City
• Lodi Emergency Plan, 2005 edition
• City of Lodi General Plan, 2010 edition
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GLOSSARY OF TERMS
Action Plan: The plan prepared in the EOC containing the emergency response objectives of that SEMS
level reflecting overall priorities and supporting activities for a designated period. The plan is shared with
supporting agencies.
All Hazards: Refers to a policy or program that is designed to deal with a variety of natural and
technological hazards.
Agency: A division of government with a specific function offering a particular kind of assistance. In the
Incident Command System (ICS), agencies are defined either as jurisdictional (having statutory
responsibility for incident management) or as assisting or cooperating (providing resources or other
assistance). Governmental organizations are most often in charge of an incident, though in certain
circumstances private sector organizations may be included. Additionally, Non-Governmental
Organizations (NGOs) may be included to provide support.
Catastrophe: Any natural or manmade incident, including terrorism that results in extraordinary levels of
mass casualties, damage, or disruption severely affecting the population, infrastructure, environment,
economy, national morale, and/or government functions.
Command: The act of directing, ordering, or controlling by virtue of explicit statutory, regulatory, or
delegated authority.
Command/Management: Command is responsible for the directing, ordering, and/or controlling of
resources at the field response level. Management is responsible for overall emergency policy and
coordination at the SEMS EOC levels.
Command Post: See Incident Command Post.
Command Staff: The Command Staff at the SEMS Field Level consists of the Information Officer, Safety
Officer and Liaison Officer. They report directly to the Incident Commander. They may have an assistant
or assistants, as needed. These officers are also found at the EOC levels in SEMS and they report directly
to the EOC Director and comprise the Management Staff. They may have an assistant or assistants, as
needed.
Common Terminology: Normally used words and phrases-avoids the use of different words/phrases to
provide consistency and allow diverse incident management and support organizations to work together
across a wide variety of incident management functions and hazard scenarios.
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Continuity of Government (COG): Includes measures to ensure continued leadership and preservation of
vital records, thereby maintaining a viable system of government supported by law; establish emergency
authorities legally vested in government leaders so that they have prescribed powers to act; ensure
survivability of mechanisms and systems for direction and control so that actions directed by leaders can
be communicated and coordinated; sustain essential emergency services and resources so that critical
response and recovery actions can achieve widest possible implementation.
Continuity of Operations Planning (COOP): An internal effort within an organization to assure that the
capability exists to continue essential business functions across a wide range of potential emergencies,
including localized acts of nature, accidents, and technological and/or attack/terrorist-related
emergencies. Accordingly, an effective Emergency Management Program (EMP) not only addresses the
four phases of mitigation, preparedness, response and recovery, but includes COOP planning activities to
ensure that ancillary, and support functions would continue, with little or no interruption.
Critical Infrastructure: Systems and assets, whether physical or virtual, so vital to the community that the
incapacity or destruction of such systems and assets would have a debilitating impact on security, local
economic security, local public health or safety, or any combination of those matters.
Department Operations Center: A centralized location for a single department or agency where their
internal incident management and response takes place.
Disaster: A sudden and extraordinary misfortune; a calamity which threatens or effects extraordinary loss
of life or property.
Disaster Service Worker (DSW): All public employees in California are subject to such emergency or
disaster activities as may be assigned by their supervisors or by law.
Emergency: A condition of disaster or of extreme peril to the safety of persons and property within the
state caused by such conditions as air pollution, fire, flood, hazardous material incident, storm, epidemic,
riot, drought, sudden and severe energy shortage, plant or animal infestations or disease, the Governor's
warning of an earthquake or volcanic prediction, or an earthquake or other conditions, other than
conditions resulting from a labor controversy.
Emergency Alert System (EAS): An established system to enable the President, federal, state, and local
jurisdiction authorities to disseminate emergency information to the public via the Commercial Broadcast
System. Composed of amplitude modulation (AM), frequency modulation (FM), television broadcasters,
and the cable industry. Formerly known as the Emergency Broadcast System (EBS).
Emergency Management: The discipline and the profession of applying science, technology, planning, and
management to deal with extreme events that can injure or kill large numbers of people, do extensive
damage to property and disrupt community life. As a process it involves preparing, mitigating, responding
and recovering from an emergency. Critical functional components include planning, training, simulating
drills (exercises), and coordinating activities.
Emergency Operations Center (EOC): A centralized location where individuals responsible for responding to
a large scale emergency can have immediate communication with each other and with emergency
management personnel for the purpose of enhancing coordination in exercising direction and control of
emergency response and recovery efforts.
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September 14, 2020 85
Emergency Operations Plan (EOP): The EOP is the document that describes strategies for managing
emergency situations.
Emergency Response Agency: Any organization responding to an emergency, whether in the field, at the
scene of an incident, or to an EOC, in response to an emergency, or providing mutual aid support to such
an organization.
Emergency Response Personnel: The personnel involved with an agency's response to an emergency.
Emergency Resource Directory (ERD): A directory containing information on agency or organization
personnel emergency certifications and qualifications and vendor and support organization supplies,
equipment, etc. that may be needed during an emergency. Supplies and equipment can include such items as
potable water tenders, portable toilets, heavy equipment, prepared meals, bulk foodstuffs, cots, rental office
trailers, etc. To the extent possible and when appropriate, equipment should be typed by capability according
to a common and accepted typing schematic. Emergency resource directories should only include those items
likely to be needed by the preparing agency or organization in the performance of their duties and should not
attempt to include everything that may be needed in any emergency.
Evacuation: The process of moving persons out of an area affected or potentially affected by a disaster
situation.
Federal Coordinating Officer (FCO): The individual appointed by the Federal Emergency Management Agency
Director (by delegation of authority from the President) to coordinate assistance in a federally-declared
disaster.
Federal Disaster Area: An area of a state (oftentimes defined by counties) that is declared eligible for
federal disaster relief under the Stafford Act. These declarations are made by the President usually as a result
of a request made by the Governor of the affected state.
Federal Emergency Management Agency (FEMA): An agency created in 1979 to provide a single point of
accountability for all federal activities related to disaster mitigation, preparedness, response, and recovery.
FEMA manages the President’s Disaster Relief Fund, and coordinates the disaster assistance activities of all
federal agencies in the event of a presidential disaster declaration.
Federal Emergency Response Team: An interagency team, consisting of the lead representative from each
federal department or agency assigned primary responsibility for an Emergency Support Function and key
members of the Federal Coordinating Officer’s staff, formed to assist the Federal Coordinating Officer in
carrying out his/her coordination responsibilities. The Emergency Response Team provides a forum for
coordinating the overall federal response, reporting on the conduct of specific operations, exchanging
information, and resolving issues related to Emergency Support Functions and other response requirements.
Emergency Response Team members respond to and meet as requested by the Federal Coordinating Officer.
The Emergency Response Team may be expanded by the Federal Coordinating Officer to include designated
representatives of other Federal departments and agencies as needed.
Full-Scale Exercise: An activity intended to evaluate the operational capability of emergency management
systems in an interactive manner over a substantial period of time. It involves the testing of a major portion
of the emergency plan and organizations in a highly stressful environment. It includes the mobilization of
personnel and resources to demonstrate coordination and response capabilities. The EOC is activated and field
City of Lodi Emergency Operations Plan (EOP)
September 14, 2020 86
command posts may be established. A full-scale exercise is always formally evaluated.
Functional Annex: A document that supplements the Emergency Operations Plan, which provides further
planning information for a specific aspect of emergency management.
Functional Exercise: An activity designed to test or evaluate the capability of individual or multiple emergency
management functions. It is more complex than a tabletop exercise in that activities are usually under time
constraints and are followed by an evaluation or critique. It usually takes place in some type of coordination
or operating center. The use of outside resources is often simulated. No field units are used.
Governor’s Authorized Representative (GAR): An individual authorized by the Governor to sign amendments
to the Federal-State Agreement and to verify the grant applications from the state and local jurisdictions.
Hazardous Materials Team: A term used to describe a team of highly skilled professionals who specialize in
dealing with hazardous material incidents.
Hazard Mitigation Grant Program: A program authorized under Section 404 of the Stafford Act, which
provides funding for hazard mitigation projects that are cost effective and complement existing post-disaster
mitigation programs and activities by providing funding for beneficial mitigation measures that are not
funded through other programs.
Incident: An occurrence or event, either human-caused or by natural phenomena, that requires action by
emergency response personnel to prevent or minimize loss of life or damage to property and/or natural
resources.
Incident Action Plan: The plan developed at the field response level which contains objectives reflecting the
overall incident strategy and specific tactical actions and supporting information for the next operational
period. The plan may be oral or written.
Incident Commander: The individual responsible for the command of all functions at the field response
level.
Incident Command System (ICS): A nationally used standardized on-scene emergency management
concept specifically designed to allow its user(s) to adopt an integrated organizational structure equal to the
complexity and demands of single or multiple incidents without being hindered by jurisdictional boundaries.
ICS is the field level component of SEMS. It is the combination of facilities, equipment, personnel, procedures,
and communications operating within a common organizational structure, with responsibility for the
management of resources to effectively accomplish stated objectives pertinent to an incident.
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Individual Assistance: A supplementary federal assistance available under the Stafford Act to individuals,
families, and businesses which includes disaster housing assistance, unemployment assistance, grants,
loans, legal services, crisis counseling, tax relief, and other services or relief programs.
Joint Information Center (JIC): A facility established to coordinate all incident-related public information
activities. It is the central point of contact for all news media. Public information officials from all
participating agencies should co-locate at the JIC.
Joint Information System (JIS): Integrates incident information and public affairs into a cohesive
organization designed to provide consistent, coordinated, accurate, accessible, timely and complete
information during crisis or incident operations. The mission of the JIS is to provide a structure and system
for developing and delivering coordinated interagency messages; developing, recommending and
executing public information plans and strategies on behalf of the IC; advising the IC concerning public
affairs issues that could affect a response effort; and controlling rumors and inaccurate information that
could undermine public confidence in the emergency response effort.
Key Resources: Any publicly or privately controlled resources essential to the minimal operations of the
economy and government.
Local Government: Local agencies as defined in Government Code §8680.2 and special districts as defined
in California Code of Regulations, Title19, Division 2, Chapter 5, CDAA, §2900(y).
Major Disaster: As defined in federal law, is “ any hurricane, tornado, storm, flood, high water, wind-
driven water, tidal wave, tsunami, earthquake, volcanic eruption, landslide, mudslide, snowstorm,
drought, fire, explosion, or other technological or human caused catastrophe in any part of the United
States which, in the determination of the President, causes damage of sufficient severity and magnitude
to warrant major disaster assistance in alleviating the damage, loss, hardship, or suffering caused
thereby.”
Master Mutual Aid Agreement: The California Disaster and Civil Defense Master Mutual Aid Agreement
made and entered into by and among the State of California, its various departments and agencies, and
the various political subdivisions of the State. The agreement provides for support of one jurisdiction by
another.
Mitigation: Activities taken to eliminate or reduce the degree of risk to life and property from hazards,
either prior to or following a disaster or emergency.
Mobilization: A process of activating resources including personnel, equipment and supplies. The process
would include notification, reporting, and setup to attain full or partial readiness to initiate response and
recovery actions.
Multi-agency or inter-agency coordination: The participation of agencies and disciplines involved at any
level of the SEMS organization, working together in a coordinated effort to facilitate decisions for overall
emergency response activities, including the sharing of critical resources and the prioritization of
incidents.
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Mutual Aid: Voluntary aid and assistance in the event that a disaster should occur, by the interchange of
services and facilities, including, but not limited to: fire, police, medical and health, communication, and
transportation services and facilities, to cope with the problems of rescue, relief, evacuation,
rehabilitation, and reconstruction which would arise in the event of a disaster. Mutual aid is designed to
ensure that adequate resources, facilities, and other support are provided to jurisdictions whenever their
own resources prove to be inadequate to cope with a given situation.
Mutual Aid Region: A subdivision of the state emergency services organization, established to facilitate
the coordination of mutual aid and other emergency operations within an area of the state, consisting of
two or more county Operational Areas.
National Response Framework (NRF): A national level plan developed by the Federal Emergency
Management Agency (FEMA) in coordination with 26 federal departments and agencies plus the American
Red Cross.
National Warning System (NAWAS): The federal portion of the Civil Defense Warning System, used for
the dissemination of warnings and other emergency information from the FEMA National or Regional
Warning Centers to Warning Points in each state. Also used by the State Warning Points to disseminate
information to local Primary Warning Points. Provides warning information to state and local jurisdictions
concerning severe weather, earthquake, flooding, and other activities which affect public safety.
Operational Area: An intermediate level of the state emergency services organization, consisting of a
County and all political subdivisions within the county area. The Operational Area is a special purpose
organization created to prepare for and coordinate the response to emergencies within a county area.
Each county is designated as an Operational Area. An Operational Area may be used by the county and
the political subdivisions comprising the Operational Area for the coordination of emergency activities
and to serve as a link in the system of communications and coordination between the state's emergency
operating centers and the operating centers of the political subdivisions comprising the operational area.
The Operational Area augments, but does not replace, any member jurisdiction.
Preliminary Damage Assessment (PDA): The joint local, state, and federal analysis of damage that has
occurred during a disaster and which may result in a Presidential declaration of disaster. The Preliminary
Damage Assessment is documented through surveys, photographs, and other written information.
Preliminary Damage Assessment Team: An ad hoc group that comes together after a disaster whose main
purpose is to determine the level of disaster declaration that is warranted. The team usually consists of
federal, state, and local representatives to do an initial damage evaluation to sites damaged.
Preparedness: Actions taken in advance of an emergency to develop operational capabilities and facilitate
an effective response in the event an emergency occurs. Preparedness measures include continuity of
government, emergency communications, emergency operations centers, emergency operations plans,
emergency public information materials, public education programs, exercise of plans, mutual aid
agreements, stocking of disaster supplies, training of emergency response personnel, and warning
systems.
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Presidential Declaration: A formal declaration by the President that an Emergency or Major Disaster exists
based upon the request for such a declaration by the Governor and with the verification of FEMA preliminary
damage assessments.
Private Sector: Organizations and entities that are not part of any governmental structure. The private sector
includes for- profit and not-for-profit organizations, formal and informal structures, commerce and industry.
Protocols: Sets of established guidelines for actions (which may be designated by individuals, teams,
functions, or capabilities) under various specified conditions.
Political Subdivision: Any city, city and county, county, district, or other local governmental agency or
public agency authorized by law.
Public Assistance (PA): A supplementary federal assistance provided under the Stafford Act to state and
local jurisdictions, special purpose districts, Native Americans, or eligible private, nonprofit organizations.
Public Assistance Officer (PAO): A member of the FEMA Regional Director’s staff who is responsible for
management of the Public Assistance Program.
Public Information: Processes, procedures and systems for communicating timely, accurate and accessible
information on the incident’s cause, size and current situation; resources committed; and other matters of
general interest to the public, responders and additional stakeholders (both directly affected and indirectly
affected).
Public Information Officer (PIO): A member of the Command Staff (Management Staff at the SEMS EOC
Levels) responsible for interfacing with the public and media and/or with other agencies with incident-related
information requirements.
Recovery: An activity to return vital life support systems to minimum operating standards and long-term
activity designed to return life to normal or improved levels, including some form of economic viability.
Recovery measures include, but are not limited to: crisis counseling, damage assessment, debris clearance,
disaster loans and grants, disaster unemployment assistance, public information, reassessment of emergency
plans, reconstruction, temporary housing and business resumption full scale.
Resource Management: Efficient emergency management and incident response requires a system for
identifying available resources at all jurisdictional levels to enable timely and unimpeded access to
resources needed to prepare for, respond to, or recover from an incident. Resource management under
NIMS includes mutual aid agreements and assistance agreements; the use of special federal, state, tribal and
local teams; and resource mobilization protocols.
Resources: Personnel and major items of equipment, supplies and facilities available or potentially available
for assignment to incident operations and for which status is maintained. Resources are described by kind
and type and may be used in operational support or supervisory capacities at an incident or at an EOC.
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September 14, 2020 90
Response: Actions taken immediately before, during, or directly after an emergency occurs, to save lives,
minimize damage to property and the environment, and enhance the effectiveness of recovery. Response
measures include, but are not limited to, emergency plan activation, emergency alert system activation,
emergency instructions to the public, emergency medical assistance, staffing the emergency operations
center, public official alerting, reception and care, shelter and evacuation, search and rescue, resource
mobilization, and warning systems activation.
Robert T. Stafford Disaster Relief and Emergency Assistance Act: (Public Law 93-288, as amended by
Public Law 100- 707) - The act that authorizes the greatest single source of federal disaster assistance. It
authorizes coordination of the activities of federal, state, and volunteer agencies operating under their
own authorities in providing disaster assistance, provision of direct federal assistance as necessary, and
provision of financial grants to individuals and families. This act is commonly referred to as the Stafford
Act.
Safety Officer: A member of the Command Staff (Management Staff at the SEMS EOC Levels) responsible
for monitoring incident operations and advising the IC on all matters relating to operational safety,
including the health and safety of emergency responder personnel. The Safety Officer may have assistants.
Section: The organizational level having responsibility for a major functional area of incident or EOC
Management, (e.g. Operations, Planning, Logistics, Finance/Administration).
Situation Report: Often contains confirmed or verified information regarding the specific details relating
to the incident.
Span of Control: The number of resources for which a supervisor is responsible, usually expressed as the
ratio of supervisors to individuals. (Under NIMS, an appropriate span of control is between 1:3 and 1:7,
with optimal being 1:5.)
Special District: A unit of local government (other than a city, county, or city and county) with authority
or responsibility to own, operate and maintain systems, programs, services, or projects (as defined in
California Code of Regulations (CCR) Section 2900(s) for purposes of natural disaster assistance. This may
include a joint powers authority established under Section 6500 et. seq. of the Code.
Standardized Emergency Management System (SEMS): That consistent set of rules and procedures
governing the overall operational control or coordination of emergency operations specified in CCR Title
19, Division 2, §2400 et sec. It identifies at each level of the statewide emergency organization the
direction of field forces and the coordination of joint efforts of government and private agencies. The
Incident Command System (ICS) is the field level component of SEMS.
State of Emergency: A governmental declaration that may suspend some normal functions of
government, alert citizens to change their normal behaviors, or order government agencies to implement
emergency operations plans.
Table Top Exercise: An activity in which officials and key staff or others with emergency responsibilities
are gathered together informally to discuss simulated emergency situations. It is designed to elicit
constructive discussion by the participants without time constraints. Participants evaluate plans and
procedures and resolve questions of coordination and assignment of responsibilities in a non-threatening
format under minimum stress.
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Vital Records: The essential agency records that are needed to meet operational responsibilities under
national security emergencies or other emergency or disaster conditions (emergency operating records),
or to protect the legal and financial rights of the Government and those affected by Government activities
(legal and financial rights records).
Volunteer: For purposes of NIMS, a volunteer is any individual accepted to perform services by the lead
agency (which has authority to accept volunteer services) when the individual performs services without
promise, expectation, or receipt of compensation for services performed. See 16 U.S.C. 742f(c) and 29
CFR 553.101.
Windshield Survey: A quick visual overview of the affected disaster area performed within the first 24
hours after the disaster.
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ACRONYMS
A
AAR After Action Report
AFN Access and Functional Needs
ARC American Red Cross
ATC Air Traffic Control
ATC-20-2 Applied Technology Council (20-2 refers to the training course for building
B
BOS Board of Supervisors
C
Cal-OES California Office of Emergency Services
CAHAN California Health Alert Network
CBP Customs and Border Protection
CDAA California Disaster Assistance Act
CERT Community Emergency Response Team
CGC California Government Code
CGS California Geological Survey
CISD Critical Incident Stress Debriefing
COG Continuity of Government
COOP Continuity of Operations
D
DCF Disaster Control Function
DHS Department of Homeland Security
DMC Debris Management Center
DOC Department Operations Center
DOP Department Operations Plan
DRC Disaster Recovery Center
DSW Disaster Service Worker
E
EAP Emergency Action Plan
EAS Emergency Alert System
EDIS Emergency Digital Information System
EMS Emergency Medical Services
EMO Emergency Management Organization
EOC Emergency Operations Center
EOP Emergency Operations Plan
ERC Emergency Response Coordinator
ESA Emergency Services Act
City of Lodi Emergency Operations Plan (EOP)
September 14, 2020 93
F
FAA Federal Aviation Administration
FCO Federal Coordinating Officer
FE Functional Exercise
FEMA Federal Emergency Management Agency
FMAG Fire Management Assistance Grant
FSE Full Scale Exercise
G
GAR Governor’s Authorized Representative
GAR Governor’s Action Request
H
HM Hazard Mitigation
HMGP Hazard Mitigation Grant Program
HSPD Homeland Security Presidential Directive
I
IAP Incident Action Plan
IC Incident Commander
ICP Incident Command Post
ICS Incident Command System
IDE Initial Damage Estimate
IMT Incident Management Team
IT Information Technology
J
JFO Joint Field Office
JIC Joint Information Center
L
LAC Local Assistance Center
M
MACS Multi-Agency Coordination System
MBO Management by Objectives
MCI Multi-Casualty Incident
MHOAC Medical Health Operational Area Coordinator
MOU Memorandum of Understanding
N
NAWAS National Warning System
NIMS National Incident Management System
NFIP National Flood Insurance Program
NRF National Response Framework
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September 14, 2020 94
NWS National Weather Service
O
OA Operational Area
OASIS Operational Area Satellite Information System
OEM Office of Emergency Management
OES Office of Emergency Services
P
PA Public Assistance
PAO Public Assistance Officer
PDA Preliminary Damage Assessment
PDM Pre-Disaster Mitigation
PSAP Public Safety Answering Point
PIO Public Information Officer
PGE Pacific Gas and Electric
R
RDMHC Regional Disaster Medical Health Coordinator
REOC Regional Emergency Operations Center
RIMS Response Information Management System
S
SAP Safety Assessment Program
SAT Safety Assessment Team
SCO State Coordinating Officer
SEMS Standardized Emergency Management System
SRRCS Sacramento Regional Radio Communications System
SOP Standard Operating Procedure
T
TTX Table Top Exercise
U
USGS United States Geological Survey
V
VIPS Volunteers in Policing Services
CITY OF LODI
EMERGENCY
OPERATIONS
PLAN UPDATE
Emergency Operation Plan
The preservation of life and property is an inherent
responsibility of all levels of government.
As disasters occur in devastating form at any time,
the City of Lodi must provide safeguards, which
will save lives and minimize property damage
through planning, preparedness measures and
training.
Sound emergency plans carried out by
knowledgeable and well trained personnel can and
will minimize losses.
Emergency Operation Plan
The City of Lodi Emergency Operations Plan
(EOP) establishes an Emergency Management
Organization and assigns functions and tasks
consistent with California’s Standardized
Emergency Management System (SEMS) and
the National Incident Management System
(NEMS).
Emergency Operation Plan
The City’s plan was developed for use by
City of Lodi employees with emergency
service responsibility.
Input was sought from agencies inside
and outside of Lodi that have a role in
providing emergency services.
Emergency Operation Plan
This plan accomplishes the following:
Establishes the emergency management organization
required to mitigate any significant emergency or
disaster affecting the City of Lodi.
Identifies the roles and responsibilities required to
protect the health and safety of Lodi residents,
public and private property and the environmental
effects of natural and technological emergencies and
disasters.
Emergency Operation Plan
Establishes the operational concepts associated
with a field response to emergencies, the City of
Lodi Emergency Operations Center (EOC)
activities and the recovery process.
Organization
The plan is divided into four elements that
contain general and specific information relating
to city emergency management operations.
Those four elements are as follows:
Elements
Basic Plan -This section provides the structure
and organization of the City of Lodi
Emergency Management Organization;
identifies individual roles and responsibilities;
describes the concept of emergency operations;
and identifies how the City integrates into the
Standardized Emergency Management System
(SEMS) and the National Incident Management
System (NIMS).
Elements
Functional Annexes -The Functional Annexes will
contain detailed descriptions of the methods
that the City of Lodi and its departments follow
for critical functions during emergency
operations.
Hazard or Threat-Specific Annexes -These Hazard
or Threat-Specific Annexes will describe the
City’s emergency response strategies that apply
to a specific hazard.
Elements
Supporting Documents -This section contains
supporting materials to the overall Emergency
Operations Plan.
Hazardous Analysis
The City of Lodi is geographically located in an
area that could be impacted by a wide range of
threats. An all-hazards threat perspective must
include a complete range of threats including
emerging and increasing technological factors
(e.g., the increased transportation of numerous
hazardous materials on state highways, roads and
interstates throughout the City).
Hazardous Analysis
It is important to consider past events for future
planning, with the consideration that the location and
scope of hazards changes over time.
Although an attempt has been made to identify all
major hazards and their respective impacts, it must be
remembered that we live in a time of emerging threats,
and nature, coupled with humankind’s ongoing
development and tendencies toward violence ensures
that the material contained within this document will
surely require modification over time.
Hazards
The following hazards could be considered the
most likely to occur in the City of Lodi:
Flooding and dam failures via the Mokelumne River
T he New Woodbridge Diversion Dam, owned by
the Woodbridge Irrigation District
Lodi Lake
Camanche Dam owned by East Bay Mud
Beggs Dam owned by Robert Sprowls
Hazards
Natural disasters such as, animal disease and
agricultural disasters are potentially high for
the City of Lodi.
Railroad derailments; adversarial and/or
human-caused with potential for a hazardous
materials issue.
Emergency Notifications
The City of Lodi has the ability to send
notifications and messages
City of Lodi residents
Citizens visiting Lodi
Employees
Operational Goals
Mitigate hazards
Meet basic human needs
Address needs of people with access and
functional needs
Restore essential services
Support community and economic recovery
Standardized Emergency
Management System (SEMS)
SEMS is the corner stone of California’s
emergency response system
Fundamental structure for the response phase
of emergency management
Required by the California Emergency Services
Act (ESA)
Unifies all elements of California’s emergency
management community into a single integrated
system
SEMS
Required to be eligible for any reimbursement
related costs
National Incident Management
System (NIMS)
Terrorists attacks of September 11, 2001
HSPD-5, Management of Domestic Incidents
HSPD-8, National Preparedness
National structure for preparedness, incident
management and emergency response
WHY ?
ALL AGENCIES
MUST USE NIMS!
To be eligible for funding of
FEDERAL RESPONSE
RELATED PERSONNEL
COSTS!
FEDERAL GRANT AND
FUNDING!
Mutual Aid
California's emergency assistance is based on a
state wide mutual aid system
Resources are provided when local resources are
overwhelmed or inadequate
There are 4 approved formal mutual aid systems
Law enforcement
Fire and Rescue
Public Health and Medical Mutual Aid
Emergency Management Mutual Aid Plan
Transition to Recovery
Recovery phase
Short Term Goals
Vital life support systems to minimum operating
standards
Long Term Goals
Return to normal activities
Local assistance centers
Local businesses
Damage Assessment
Process of identifying and quantifying damages
that occur
Initial damage assessment
Preliminary damage assessment
Engineering damage assessment
Finance
Reimbursement for disaster-related expenses
Record keeping requirements
Plan Development and
Maintenance
Changes and revisions need to be prepared,
coordinated, published and distributed.
Preparedness, Training and
Exercises
Interagency plan development
Interagency training coordination
Interagency exercise development and
presentation
Interagency response management
Interagency emergency public information
activities
Summary
This Emergency Operations Plan update will
ensure the City of Lodi is in compliance for
reimbursement from the Federal Government
The City needs to continue to work on
Appendices
Flood
Earthquake
Pandemic
Summary
Federal Government understands the time and
effort required to develop these plans
The City needs to continue to show progress
Questions?