Emergency Operations Plan (City of Gilroy)
The City of Gilroy
Emergency Operations Plan
Thomas J. Haglund
City Administrator
Albert Pinheiro
Mayor
CITY OF GILROY EMERGENCY OPERATIONS PLAN
Table of Contents
CONTENTS
Page No.
Introduction
2-1
Concept of Operations
2-1
Relationship To The System
2-6
Hazard Analysis
2-8
Departmental Responsibilities
2-11
Standard Operating Procedures Development
2-13
Authorities and References
2-23
Training and Exercising
2-23
Appendix
Letter of Promulgation
Plan Concurrence
Recovery Operations Manual
2-24
2-25
2-27
The City of Gilroy
Emergency Operations Plan
INTRODUCTION
The City of Gilroy Emergency Operations Plan identifies the City's
emergency planning, organization, and response policies and procedures.
The plan also addresses the integration and coordination with other
governmental levels when required.
This plan is based on the functions and principles of the California
Standardized Emergency Management System (SEMS) and the SEMS based
National Incident Management System (NIMS), both of which are based on
the FIRESCOPE Incident Command System (ICS), and identifies how the
City fits in the overall SEMSINIMS structure.
The plan addresses how the City will respond to extraordinary events or
disasters, from preparation through recovery. A hazard analysis and
probability matrix are also included in the plan. The responsibilities of each
department are identified in matrices, which are based on each identified
hazard or threat. The development of departmental Standard Operating
Procedures (SOPs) is discussed, including what each department will
include in their own SOPs.
The City of Gilroy Emergency Operations Plan will be approved by the City
Council and signed by the Mayor. The Gilroy Fire Department is
responsible for reviewing the entire plan on an annual basis, and
coordinating the revision of the plan as required.
Each department director is responsible for reviewing its SOPs on an annual
basis and coordinating the revision of the procedures with the Gilroy Fire
Department.
Special districts serving the City of Gilroy are responsible for following this
plan and developing procedures to fulfill their stated responsibilities.
CONCEPT OF OPERATIONS
The City's response to disasters is based on four phases:
. preparedness;
. initial and extended response operations;
. recovery operations; and
. mitigation operations.
During each phase, specific actions are taken to reduce and/or eliminate
the threat of specific disaster situations. In coordination with the City
2-1
Administrator and Incident Commanders, the Gilroy Fire Department will
determine the phase and initiate the appropriate level of alert for response
agencies, including the activation of the Emergency Operations Center as
required.
Preparedness
Triggers for preparedness Upon receipt of a warning or the observation that an emergency situation
activities is imminent or likely to occur soon, the City will initiate actions to increase
its preparedness. Events that may trigger preparedness activities include:
· issuance of a credible long-term earthquake prediction;
receipt of a flood, heat or other special weather statement/advisory;
receipt of a potential dam failure advisory;
· conditions conducive to wildland fires, such as the combination of high
heat, strong winds, and low humidity;
· an expansive hazardous materials incident; and
information or circumstances indicating the potential for acts of violence
or civil disturbance.
Examples of preparedness Increased preparedness activities may include, but are not limited to, the
activities following activities:
· briefing of City Administrator and key officials or employees of the City
of Gilroy on the situation;
· reviewing and updating of the City of Gilroy Emergency Operations Plan
and related SOPs;
. increasing public information efforts;
. accelerating training efforts;
· inspecting of critical facilities and equipment, including testing warning
and communications systems;
· recruiting of additional staff and Disaster Service Workers;
· warning threatened elements of the population;
conducting precautionary evacuations in the potentially impacted area(s);
mobilizing personnel and pre-positioning resources and equipment; and
establishing or activating staging areas.
2-2
SEMS/NIMS Functions
Response (Initial)
The City's initial response activities are primarily performed at the field
response level. Emphasis is placed on minimizing the effects of the
emergency or disaster. Field responders will use the Incident Command
System to organize response to the emergency or disaster, incorporating the
functions, principles and components of ICS (i.e., unified command, action
planning, span of control, hierarchy of command, etc.).
Examples of initial response activities include:
· making all necessary notifications, including the Santa Clara Operational
Area;
· disseminating of warnings, emergency public information, and
instructions to the citizens of The City of Gilroy;
· conducting evacuations and/or rescue operations;
· caring for displaced persons and treating the injured;
· conducting initial damage assessments and surveys;
· assessing need for mutual aid assistance;
· restricting movement of traffic/people and unnecessary access to affected
areas;
establishing Unified Commands;
· coordinating with state and federal agencies working in the field; and
· developing and implementing Incident Action Plans.
Response (Extended)
The City's extended response activities are conducted in the field and in the
City's emergency operations center (EOC). The City of Gilroy EOC is
located in the basement of the City Hall Annex.
Extended emergency operations involve the coordination and management
of personnel and resources to mitigate an emergency and facilitate the
transition to recovery operations. Field response personnel will continue to
use the Incident Command System (ICS) to manage field operations. EOC
staff will support field response personnel in mitigating the affects of the
disaster.
EOC staff will be organized around the five Standard Emergency
Management System (SEMS) National Incident Management System
(NIMS) functions: Management, Operations, Planning/Intelligence,
Logistics, and Finance/Administration. The components and principles of
SEMSINIMS will be used by the EOC staff to manage disaster operations.
EOC staff will establish measurable and attainable objectives to be achieved
for a given operational period. An EOC action plan will be developed for
each operational period.
When the EOC is activated, communications and coordination will be
established between the Incident Commander(s) and the EOC.
Communications and coordination will be established between the City of
2-3
Mutual Aid
Examples of
extended response
Gilroy EOC, when activated, and the Santa Clara Operational Area EOC.
Multi-agency or inter-agency coordination will be used by EOC staff to
facilitate decisions for overall local government level emergency response
activities.
"Mutual Aid System" means the system which allows for the progressive
mobilization of resources to/from emergency response agencies, local
governments, Operational Areas, regions, and the State with the intent of
providing adequate resources to requesting agencies. The City of Gilroy is
located in Mutual Aid Region II.
Within the framework of the California Disaster and Civil Defense Master
Mutual Aid Agreement, several discipline-specific mutual aid coordinators
will operate from the Santa Clara Operational Area EOC, such as fire and
rescue, law, medical, and public works. Mutual aid requests for these
disciplines will be coordinated through the coordinators.
Once the City EOC is activated, communications will be established
between the EOC and these discipline-specific Operational Area mutual aid
coordinators. All other requests for assistance will flow through the
appropriate Operational Area SEMSINIMS function. The jurisdiction(s)
requesting mutual aid will remain in charge and retain overall direction of
personnel and equipment provided through mutual aid.
Examples of extended response activities include:
· preparing detailed damage assessments;
· operating mass care facilities;
· conducting coroner operations;
· procuring requirement resources to sustain operations;
· documenting situation status;
· protecting, controlling, and allocating vital resources;
restoring vital utility services;
tracking resource allocation;
conducting advance planning activities;
· documenting expenditures;
developing and implementing Action Plans for extended operations;
· dissemination of emergency public information;
declaring a local emergency;
· prioritizing resource allocation; and
· inter/multi-agency coordination.
Recovery
As the immediate threat to life, property, and the environment
subsides, the rebuilding of The City of Gilroy will begin through
various recovery activities.
Recovery activities involve the restoration of services to the public
and rebuilding the affected area(s). Recovery activities may be both
2-4
Examples of
recovery activities
Mitigation Phase
short-term and long-term, ranging from restoration of essential
utilities such as water and power, to mitigation measures designed to
prevent future occurrences of a given threat facing the City.
This plan does not specifically identify The City of Gilroy's recovery
operations. However, the Recovery Operations Manual covers the
recovery process in detail, describing roles and responsibilities and
the procedures for accessing the federal and state disaster assistance
programs that are available to individuals, businesses, and the City.
The City of Gilroy Recovery Operations Manual is enclosed in the
appendix of this plan.
Examples of recovery activities include:
· restoring of all utilities;
· establishing and staffing Local Assistance Centers and Disaster
Assistance Centers;
· applying for state and federal assistance programs;
· conducting hazard mitigation analyses;
· identifying residual hazards; and
determining and recovering costs associated with response and
recovery.
Mitigation efforts occur both before and following disaster events. Post-
disaster mitigation is part of the recovery process. Eliminating or reducing
the impact of hazards that exist within the City of Gilroy and are a threat to
life and property are part of the mitigation efforts. Mitigation tools include:
.
Detailed plans to mitigate future hazards.
Local ordinances and statutes (zoning ordinance, building codes and
enforcement, etc.).
Structural measures.
Tax levee or abatements.
Public information and community relations.
Land use planning.
.
.
.
2-5
RELA TIONSHIP TO THE SYSTEM
The City is responsible for emergency response within its geographical
boundaries. The California Emergency Services Act requires the City to
manage and coordinate the overall emergency response and recovery
activities within its jurisdiction. During disasters, it is required to coordinate
emergency operations with the Santa Clara Operational Area and, in some
instances, other local governments.
Under the Standardized Emergency Management System (SEMS) and
National Incident Management System (NIMS), the city has responsibilities
at two levels, the field response and local government levels. At the field
response level, all agencies will use the Incident Command System (ICS) to
standardize the emergency response.
At the local government level, a designated Emergency Operations Center
(EOC) is used as the central location for gathering and disseminating
information, coordinating all jurisdictional emergency operations, and
coordinating with the Santa Clara Operational Area.
The following diagram depicts the relationship between the City of Gilroy,
the Santa Clara Operational Area, and the State's Coastal Region Emergency
Operations Center (REOC).
2-6
Region II
Emergency Operations
Center
(State of California)
a
"
Santa Clara
Operational Area
Emergency Operations
Center
~.
"
City of Gilroy
Emergency Operations
Center
~ ~
City of Gilroy
Field Response Level
. .
Lines of Communications and
Coordination
2-7
HAZARD ANALYSIS
Earthquakes
Winter Storms
Dam Failures
Fires
The City of Gilroy recognizes that the emergency planning process must address
each hazard category that threatens the City. Gilroy is vulnerable to a wide range
of potential threats. These can be grouped into three main categories: natural,
technological or man-made and national security.
Depending on the nature of the emergency, potential threats may affect a large
region, challenging infrastructure, emergency services, and relief organizations
which might otherwise be available to the City under a more localized event
scenano.
Multiple category events are also possible, such as fires, flooding and dam failures
as a result of a major earthquake.
Gilroy is located in a seismically active zone between the San Andreas and the
Hayward faults. Small to moderate earthquakes, in the 3 to 5 magnitude range are
fairly common and cause little to no damage or disruption to infrastructure and
City services.
In 1989 the City (and the region) experienced a magnitude 7.1 earthquake on the
San Andreas Fault. This event, known as the Lorna Prieta Earthquake, caused
damage to infrastructure and some unreinforced masonry buildings. These major
events(7.0 or higher), though unpredictable, have been estimated by the California
Division of Mines and Geology to have a 50% probability of occurrence in the
next 30 years.
In February 1986, severe winter storms caused waters from Uvas Creek to
overflow its banks, causing significant flooding in some areas of the City. Since
1986, several major flood control projects and improvements have been completed
including the Uvas Creek Levee, the Llagas flood control project, bridge
replacements, etc. These improvements have lessened, but not eliminated the
threat. The potential for localized flooding still exists.
There are three large dams located to the north and northwest of Gilroy within
about a ten mile radius. These have the potential to affect thousands of people
should they fail. Anderson Reservoir has a full capacity of 89,000 acre feet, Uvas
reservoir has a full capacity of 9,900 acre feet, and Coyote Reservoir has a full
capacity of 23,000 acre feet.
There have been seven major fires in the past fifteen years which have destroyed
large commercial or industrial buildings. The potential for a large fire does exist in
the downtown area, especially in the older buildings which are not equipped with
sprinkler systems. New construction in the hillside areas in the western and
northwestern sections of Gilroy has increased the potential for a large wildland
interface fire.
2-8
Hazardous Materials The threat from hazardous materials continues to increase as local businesses store
and utilize such materials in their manufacturing processes and operations.
Hazardous materials are also transported through Gilroy via rail and the highway
system.
Natural Hazards
. earthquakes;
. floods;
. wildland fires;
. landslides;
. extreme weather/storm;
Technolol!icallMan-made Hazards
. dam failure;
. hazardous materials;
. major vehicle accident;
. train accident;
. airplane crash;
. civil disturbance; and
. terrorism.
A hazard matrix that outlines each of these hazards and identifies their
likelihood of occurrence and its severity is listed on the next page.
2-9
Likelihood of Occurrence
Severity
Hazard Infrequent Sometimes Frequent Low Moderate High
........................................................................... I............................................. .............................................. ........................................ ..................... ......................................... ................................
Dam Failure X X
........................................................................... ............................................. .............................................. ........................................ ..................... ......................................... ................................
........................................................................... ............................................. .............................................. ........................................ ..................... ......................................... ................................
..........~~r..t.~q~.~~~...!'4.~?.......... X X X
............................................. .............................................. ........................................ ..................... ......................................... ................................
........................................................................... ............................................. .............................................. ........................................ ..................... ......................................... ................................
..........~~r..t.~q~.~~~...!'4.??.......... X X X
............................................. ............................................... ........................................ ..................... ......................................... ................................
........................................................................... ............................................. ............................................... ........................................ ..................... ......................................... ................................
Wildland Fire X X X X
........................................................................... ............................................. .............................................. ........................................ ..................... ......................................... ................................
........................................................................... ............................................. ............................................... ........................................ ..................... ......................................... ................................
Floods X X X X
........................................................................... ............................................. ............................................... ........................................ ..................... ......................................... ................................
........................................................................... ............................................. ............................................... ........................................ ..................... ......................................... ................................
HazMat X X X X
........................................................................... ............................................. ............................................... ........................................ ..................... ......................................... ................................
........................................................................... ............................................. ............................................... ........................................ ..................... ......................................... ................................
Landslides X X
........................................................................... ............................................. .............................................. ....................................... ..................... ......................................... ................................
........................................................................... ............................................. .............................................. ........................................ ..................... ......................................... ................................
Civil Disturbance X X
........................................................................... ............................................. .............................................. ........................................ ..................... ......................................... ................................
........................................................................... ............................................. ............................................... ........................................ ..................... ......................................... ................................
Extreme Weather/
........................................................................... ............................................. .............................................. ........................................ ..................... ......................................... ................................
Storm X X X X
........................................................................... ............................................. ............................................... ....................................... ..................... ......................................... ................................
........................................................................... ............................................. ............................................... ....................................... ..................... ......................................... ................................
Aircraft Crash X X
........................................................................... I............................................. ............................................... ........................................ ..................... ......................................... ................................
........................................................................... ............................................. ............................................... ........................................ ..................... ......................................... ................................
Train Accident X X X X
........................................................................... ............................................. ............................................... ........................................ ..................... ......................................... ................................
........................................................................... ............................................. ............................................... ........................................ ..................... ......................................... ................................
..............!'4..~j~!....y~~~.~~.~............. ............................................. .............................................. ........................................ ..................... ......................................... ................................
Accident X X X X
........................................................................... ............................................. .............................................. ........................................ ..................... ......................................... ................................
........................................................................... ............................................. .............................................. ........................................ ..................... ......................................... ................................
Terrorism X X X
........................................................................... ............................................. .............................................. ........................................ ..................... ......................................... ................................
2-10
DEPARTMENTAL RESPONSIBILITIES
The City of Gilroy departments have specific responsibilities and related
activities/actions assigned to them for each identified hazard and threat.
Each department is responsible for ensuring coordination with the other
departments.
The Director of Emergency Services (DES) is responsible for identifying key
management personnel, with alternates, and alternative facilities to conduct
government operations, based on the hazard analysis. Each department will
be responsible for identifying key departmental personnel with backups and
alternates for each position.
Key personnel
The OES Coordinator is responsible for developing and maintaining an
emergency alert list, which will be used to notify the key city personnel.
Each department will develop their own departmental alert list, which will
be used by the departments to alert departmental personnel.
Alert list
Special districts
Special districts with responsibilities under this plan will coordinate all
planning efforts with the OES Coordinator.
The OES Coordinator has overarching responsibility for coordinating the
City's response to each identified hazard and threat. Departmental
responsibilities are outlined in hazard/threat specific matrices. Typical
activities/actions performed during a specific hazard/threat are listed on the
vertical axis (y-axis); and the five Standardized Emergency Management
System (SEMS), National Incident Management System (NIMS) functions
are listed on the horizontal axis (x-axis). For each activity/action, the
departments' assigned responsibilities under this activity/action are listed
under the appropriate SEMSINIMS function.
City OES
The following legend will apply to all the matrices:
FD
CD
CA
CS
PW
PD
AS
HR
BLES
= Fire Department
= Community Development
= City Administrator
= Community Services
= Community Services Field Crews
= Police Department
= Administrative Services
= Human Resources Division
= BLES division of Community Development
2-11
SEMS/NIMS Functions
Mgmt/ Planning! Finance/
Activities Command Operations Intell. Logistics Admin.
Incident Command CA
.......................... .................................................. ....................................................... ............................................................ .............................................. ..............................................
Emergency FD,PD,PW
....................g~~P?.~.~.~................... .................................................. ....................................................... ............................................................ .............................................. ..............................................
S ituation Status CD
...................................................................... .................................................. ....................................................... ............................................................ .............................................. ..............................................
Resources/Support CS
...................................................................... .................................................. ....................................................... ............................................................ .............................................. ..............................................
Public Information PIO
...................................................................... .................................................. ....................................................... ............................................................ .............................................. ..............................................
Warnings/ PIO PD,FD
Notifications
...................................................................... .................................................. ....................................................... ............................................................ .............................................. ..............................................
Communications PD
...................................................................... .................................................. ....................................................... ............................................................ .............................................. ..............................................
Community HR
Volunteers
...................................................................... .................................................. ....................................................... ............................................................ .............................................. ..............................................
Structural BLES
Assessment
....................................................................... .................................................. ....................................................... ............................................................ .............................................. ..............................................
Care/Shelter CS
.................................................................... .................................................. ....................................................... ............................................................ .............................................. ..............................................
Medical/Health FD,PW
...................................................................... .................................................. ....................................................... ............................................................ .............................................. ..............................................
...~g!.g.~.~!...9p~r..~!.~g~.s.... PD
.................................................. ....................................................... ............................................................ .............................................. ..............................................
Documentation CD
................... .................................................. ....................................................... ............................................................ .............................................. ..............................................
Evacuation .................~P.~.~P................
....................................................................... .................................................. ............................................................ .............................................. ...............................................
2-12
STANDARD OPERATING PROCEDURES DEVELOPMENT
For the City of Gilroy's Emergency Operations Plan to be complete, each
SEMSINIMS section, branch and unit must develop Standard Operating
Procedures (SOPs). Upon completion, each SOP will become part of this
plan by reference.
These SOPs will contain, in detail, those actions that are necessary to
fulfill the SEMSINIMS functional responsibilities under this plan. Each of
the SOPs will include some generic information such as Preparedness
activities, procedures for recalling departmental personnel, disaster
assignments, and resource lists.
Under a heading for each SEMSINIMS section, branch or unit, a
descriptive list of what specific information will be in the SOPs is
provided below to assist in developing SOPs. Once the SOPs are
completed, they must return to the "Concept of Operations" section on this
plan to ensure that the SOPs are consistent with these concepts.
Each SOP will be reviewed by the OES Coordinator for consistency with
the City's Emergency Operations Plan. Inconsistencies or overlaps
between departmental actions will be addressed by the departments or the
City Administrator.
Strict adherence to the SOP by departments is not required. Departments
may deviate from SOPs to respond to unique needs in a particular
response. Major variation from procedures shall be coordinated with the
EOC.
Preparedness
Fire Department
Develop procedure for reviewing and updating Gilroy Fire
Department SEMS SOPs.
Identify the process and develop procedures for checking critical Fire
Department facilities and equipment, including testing systems.
Develop procedure for mobilizing Fire Department personnel and pre-
positioning resources and equipment.
In coordination with the Police Department develop a process for
managing incidents, at the field level, using the Incident Command
System.
In coordination with the Police Department, develop a process for
communicating with and directing the central dispatch center, including
the activation of the Emergency Alert List.
2-13
Response Operations (Initial)
Response Operations
(Extended)
In coordination with the Police Department, develop the process and
procedures to warn threatened elements of the population.
Ensure that hazardous material procedures are consistent with the Santa
Clara County's Hazardous Materials Area Plan. In coordination with the
Police Department and the City Administrator develop procedures to
disseminate warnings, emergency public information, and instructions to
Gilroy citizens.
Develop procedures for responding to and managing:
. train accidents;
. aircraft accidents, including military aircraft;
. major vehicle accidents;
. a failure of the Uvas or Anderson Dams (consistent with inundation
areas) ;
· hazardous material incidents (consistent with County's HazMat Area
Plan);
. earthquakes;
. floods;
. wildland fires;
. landslides; and
· extreme weather or storm situations.
Develop procedures for initiating:
. activities to implement Incident Action Plans;
. "windshield survey" damage assessment following an earthquake;
. medical operations, including triage operations;
. a needs assessment and subsequent requests for fire and rescue mutual
aid;
. rescue operations, including swift water rescues;
. evacuation and rescue operations; and
· in coordination with the Community Services Department, treatment
for injured. (Medical Car/Triage SOP)
Take into consideration specific planning requirements identified in the
hazard analysis, in particular for hazardous materials and dam safety
elements.
Develop the process and concept of operations for EOC operations,
including the communication and coordination protocol between the field
and EOC fire personnel.
2-14
Preparedness
Response Operations
(Initial)
Police Department
Identify key management, with alternates for each position, and develop
list.
Identify alternative government facilities, based on the hazard analysis.
Develop procedure for reviewing and updating Gilroy Police Department
SOPs.
Identify the process and develop procedures for checking critical police
department facilities and equipment, including testing systems.
Develop procedure for mobilizing Police Department personnel and pre-
positioning resources and equipment.
In coordination with the Fire Department and the Office of Emergency
Services, develop a process for managing incidents, at the field level, using
the Incident Command System.
In coordination with the Fire Department develop a process for
communicating with and directing the central dispatch center, including
activation of the Emergency Alert List.
In coordination with the Fire Department, develop process and procedures to
warn threatened areas of the community.
In coordination with the Fire Department
and City Administrator develop procedures to disseminate warnings,
emergency public information, and instructions to Gilroy citizens.
Develop procedures for responding to:
.
train accidents;
aircraft accidents, including military aircraft;
major vehicle accidents;
a failure of the Uvas or Anderson Dam;
hazardous material incidents;
civil disturbances and terrorism incidents;
earthquakes;
floods;
wildland fires;
landslides; and
extreme weather or storm situations.
.
.
.
.
.
.
.
.
.
2-15
Response Operations
(Extended)
Preparedness
Develop procedures for initiating:
. "windshield survey" damage assessment following an earthquake;
. perimeter management, including access control;
. isolating the incident, and controlling access to the incident;
. request for law enforcement mutual aid; and
operations to safeguard evidence at aircraft and train accidents.
Develop procedures for evacuations/movement operations and traffic and
crowd control operations, including the identification of evacuation routes,
evacuation reception areas, shelter locations, and security for area.
Take into consideration specific planning requirements that are identified the
hazard analysis, in particular for hazardous materials and dam safety
elements. Ensure that all items under the Americans with Disabilities Act
are covered for evacuations/movement operations.
Develop the process and concept of operations for EOC operations,
including the communication and coordination protocol between the field
and EOC fire personnel.
In coordination with the Santa Clara County Coroner, develop procedures
for managing fatalities.
OES Coordinator
Review and update Gilroy EOC SOPs.
Check and expedite any repairs to the EOC and equipment, including
testing systems.
Review procedures for pre-positioning resources and equipment.
Review and update processes and procedures for briefing City
Administrator, Mayor, and employees of the impending disaster situation.
Coordinate with the City Administrator and to review and revise the
process and procedures for increasing public information releases.
Coordinate with Human Resources the process and procedure for recruiting
volunteers and additional staff, including the procedure for registering them
as Disaster Service Workers.
2-16
Response Operations
(Initial)
Response Operations
(Extended)
Prepare to mobilize auxiliary and volunteer staff and pre-positioning
resources and equipment.
In coordination with the Police Department and the Fire Department, test the
process for managing incidents at the field level, using the Incident Command
System.
Determine which state and federal agency could be operating in the field and
make initial contacts.
In coordination with the Fire Department and the Police Department, test the
process for communicating with and directing the central dispatch center,
including the activation of the Emergency Alert List.
Review maps of specific hazards (i.e., HazMat, dam inundation areas,
flood inundation areas, earthquake faults, etc.) to be used by the various
departments/emergency responders.
Revise EOC SOPs, based on new conditions.
In coordination with the Fire Department, Police Department, and
City Administrator develop procedures to disseminate warnings, emergency
public information, and instructions to Gilroy citizens.
In coordination with the City Administrator and the Mayor develop
procedures for drafting and declaring a local emergency, including how to
request a concurrence from the Director of the Governor's Office of
Emergency Services, how to request a gubernatorial proclamation of a state
of emergency, and how to request a presidential declaration.
In coordination with the City Administrator
develop the process and procedure for maintaining a local emergency
for an extended period of time.
In coordination with the City Administrator and the PIO develop the process
and procedure for responding to press inquiries for
the duration of the emergency.
Develop procedures for the activation, operation, and deactivation of the
Gilroy Emergency Operational Center (EOC SOPs).
Develop procedures and the process for communicating with the Santa Clara
Operational Area, surrounding jurisdictions, and special districts serving the
City of Gilroy.
2-17
RecovelY Operations
Preparedness
Response Operations
(Initial)
Response Operations
(Extended)
Develop procedures for the organization and preparation of after-action
reports.
In coordination with the Administrative Services Department develop the
procedures and processes used for recovery operations.
Develop procedures for applying for state and federal disaster assistance
programs.
In coordination with the Community Development Department, identify the
process for conducting and analyzing potential hazard mitigation projects.
In coordination with the Fire Department and Police Department, identify
any residual hazards resulting from the disaster.
Community Services Field Crews
Develop procedure for reviewing and updating SOPs.
Identify the process and develop procedures for checking critical Public
Works facilities and equipment, including testing systems.
Develop procedure for mobilizing field crews and pre-positioning resources
and equipment.
Develop procedures for responding to:
.
a failure of the Uvas or Anderson Dams;
earthquakes;
floods;
landslides; and
extreme weather or storm situations.
.
.
.
.
Develop procedures for initiating:
. utility system damage assessment following an earthquake;
. damage assessment operations for critical facilities, including
infrastructure;
debris removal operations;
repair and restoration activities for damaged facilities, utility systems,
and infrastructure;
. flood fighting activities/actions;
. sand bagging operations;
. levee reinforcement operations;
. hazardous waste clean up and disposal operations;
. clearing and shoring operations for landslide areas; and
. request for public works mutual aid.
Develop procedure for restoring vital utility services.
2-18
Recovery Operations
Preparedness
Response Operations
(Initial)
Response Operations
(Extended)
Recovery Operations
Preparedness
In coordination with the Emergency Services Coordinator and Community
Development Department, identify the process for conducting and analyzing
potential hazard mitigation projects.
City AdministratorlDirector of Emerl!encv Services
Develop procedure for reviewing and updating SOPs.
Identify alternate government facilities, including alternate EOC.
In coordination with the PIO develop the process and procedure for
increasing public information efforts.
In coordination with the Fire Department, Police Department, and the
PIO develop procedures to disseminate warnings, emergency public
information, and instructions to Gilroy citizens.
Develop draft language for declaring a local emergency, including
instructions for how to request a concurrence from the Director of the
Governor's Office of Emergency Services, how to request a gubernatorial
proclamation of a state of emergency, and how to request a presidential
declaration. Include in the procedures the benefits of such proclamations
and any additional actions that may be required after a proclamation.
Develop the process and procedure for declaring a local emergency.
In coordination with the PIO develop the process and procedure for
disseminating emergency public information.
Develop procedures for protecting, controlling, and allocating vital
resources.
Develop the process for communicating with the Mayor and City Council.
In coordination with Administrative Services develop the procedures and
processes used for recovery operations.
Develop procedures for continuing government operations, including the
identification of alternate sites and succession of City leadership.
Community Development Department
Develop procedure for reviewing and updating Community Development
Department SOPs.
Identify the process and develop procedures for checking critical
Community Development Department facilities and equipment, including
testing systems.
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Response Operations
(Initial)
Response Operations
(Extended)
Recovery Operations
Preparedness
Response Operations
(Extended)
Develop procedure for mobilizing Community Development Department
personnel and pre-positioning resources and equipment.
Develop procedures for assessing mutual aid needs.
Develop procedures for performing detailed safety inspections of damaged
facilities following an earthquake, including the process of determining
whether a structure will be rebuilt or demolished.
Develop procedures to initiate mutual aid request for building inspectors
following an earthquake.
Develop procedures to manage building inspection teams.
Develop procedures for conducting advance planning activities.
Develop procedures for creating a situation status report for the disaster to
obtain the "big picture," include the updating process.
Develop procedures for tracking resources.
Identify the process for rezoning damaged areas of Gilroy.
Administrative Services Department
Develop procedure for reviewing and updating SOPs.
Develop procedures for procuring emergency resources to sustain
operations.
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Recovery Operations
Develop the process and procedure for recruiting volunteers and additional
staff, including the procedure for registering them as Disaster Service
Workers.
Develop the process for documenting the financial cost of disaster response
and recovery operations (a disaster accounting system).
Develop the procedures and processes used for recovery operations.
Develop the process and procedure for tracking employees' time and issuing
paychecks during disaster operations.
Develop process and the procedures for submitting and processing workman
compensation claims.
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Preparedness
Response Operations
(Initial)
Response Operations
(Extended)
Community Services Department
Develop procedure for reviewing and updating SOPs.
Identify the process and develop procedures for checking Parks and
Recreation facilities and equipment, including testing systems.
Develop procedure for mobilizing personnel and pre-positioning resources
and equipment.
Develop procedures for assessing the need for mutual aid.
In coordination with the Fire Department, develop procedures for treating
the injured, including activating "field treatment sites" (Medical Care/Triage
SOP.)
In coordination with the American Red Cross, develop procedures for
caring for displaced persons (Shelter Operations SOP). Ensure that all items
under the American's with Disabilities Act are considered when opening and
managing a shelter.
Develop procedures for transporting patients from the field to local medical
facilities.
Develop procedures for activating and participating in the Hospital
Emergency Amateur Radio (HEAR) system.
In coordination with the County Health Department, develop procedures for
vector control operations.
In coordination with Animal Control develop procedures for the
care and shelter of pets and livestock.
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AUTHORITIES AND REFERENCES
The authority for the City of Gilroy Emergency Operations Plan (EOP) is
provided in the California Emergency Services Act (Chapter 7 of Division 1
of Title 2 of the Government Code).
City of Gilroy Ordinance No. 75-18 provides for the authority of
implementing the City of Gilroy EOP.
In development of this EOP, references were used from many sources such
as, Santa Clara County EOP, the Standardized Emergency Management
System (SEMS) Regulations (California Government Code 8607 et seq) and
Guidelines, the State Emergency Plan and the National Response
Framework (NRF).
TRAINING AND EXERCISING
The OES Coordinator is responsible for developing and providing all
training required under the Standardized Emergency Management System
(SEMS), National Incident Management System (NIMS) regulations.
The individual departments are responsible for providing training for all
department emergency responders, ensuring that all applicable laws are met,
and employees are familiar with and knowledgeable of department Standard
Operating Procedures (SOPs) and the City's emergency plan.
The Emergency Services Coordinator in coordination with the City
Administrator is responsible for developing and distributing an exercise
schedule, covering the exercises to be conducted throughout a given
calendar year. Each department is responsible for sending emergency
responders to these scheduled events pursuant to the exercise schedule.
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Appendix:
Letter of Promulgation
Approval Date: October 21, 2009
To: Officials, Employees, and Citizens of the City of Gilroy
The preservation of life, property, and the environment is an inherent responsibility
of local, state, and federal government. The City of Gilroy has prepared this emergency
operations plan to ensure the most effective and economical allocation of resources for the
maximum benefit and protection of the community in time of emergency.
While no plan can completely prevent death and destruction, good plans carried out
by knowledgeable and well-trained personnel can and will minimize losses. This plan
establishes the emergency organization, assigns tasks, specifies policies, and general
procedures, and provides for coordination of planning efforts of the various emergency staff
and service elements utilizing the Standardized Emergency Management System (SEMS),
National Incident Management System (NIMS).
The objective of this plan is to incorporate and coordinate all the facilities and
personnel of the city into an efficient organization capable of responding to any emergency.
This emergency operations plan is an extension of the California Emergency Plan.
It will be reviewed, exercised periodically, and revised as necessary to meet changing
conditions.
The City Council gives its full support to this plan and urges all officials,
employees, and citizens, individually and collectively, to do their share in the total
emergency effort of the City of Gilroy.
Concurrence of this promulgation letter reaffirms continued utilization of the
California Standardized Emergency Management System and integration of the National
Incident Management System by the City of Gilroy. This emergency operations plan will
become effective on approval by the City Council.
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PLAN CONCURRENCE
The following list of signatures documents each department's concurrence with this
emergency operations plan.
The City Administrator concurs with the City of Gilroy's Emergency Operations
As nee ed, revisions will be submitted to the OES Coordinator.
Signed
Thomas Haglund, City Administrator
The Administrative Services Department concurs with the City of Gilroy's
Emergency 0 erations Plan. As needed, revisions will be submitted to the OES
Coordinator.
The Fire Department concurs with the City of Gilroy's Emergency Operations Plan.
As needed, revisions will be submitted to the OES Coordinator.
Signed Dtl4/ e." ~
Dale E. Foster, Fire Chief
The Police Department concurs with the City of Gilroy's Emergency Operations
Plan. As needed, revisions will be submitted to the OES Coordinator.
Signed_JXw~J~
Denise Turner, lef of PolIce
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The Recreation Division concurs with the City of Gilroy's Emergency Operations
Plan. As needed, revisions will be submitted to the OES Coordinator.
Signed
The Community Development Department concurs with the City of Gilroy's
Emergency Operations Plan. As needed, revisions will be submitted to the OES
Coordinator.
~CQ
Signed
Rl
lerk concurs with t e ity of Gilroy's Emergency Operations Plan. As
e 0 S Coordinator.
Signed
S
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RECOVERY OPERATIONS MANUAL
Table of Contents
CONTENTS
Page No.
TABLE OF CONTENTS
27
CONCEPT OF OPERATIONS
28
RECOVERY OPERATIONS ORGANIZATION
Recovery Operations Organization Chart
30
31
RECOVERY OPERATIONS RESPONSIBILITIES
32
RECOVERY DAMAGE/SAFETY ASSESSMENT
33
DOCUMENT A TION
35
AFTER-ACTION REPORTING
After-Action Report
35
35
DISASTER ASSISTANCE PROGRAMS
Introduction
Public Assistance Program Responsibilities
Individual Assistance Program Responsibilities
Hazard Mitigation Grant Program Responsibilities
36
36
37
37
38
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Recovery Operations Manual
Concept of Operations
Recovery Operations
The City of Gilroy will be involved in recovery operations. In the
aftermath of a disaster, many citizens will have specific needs that
must be met before they can pick up the thread of their pre-disaster
lives. Typically, there will be a need for such services as these:
assessment of the extent and severity of damages to homes and
other property;
. restoration of services generally available in communities - water,
food, and medical assistance;
. repair of damaged homes and property; and
. professional counseling when the sudden changes resulting from
the emergency have resulted in mental anguish and inability to
cope.
The City will help individuals and families recover by ensuring that
these services are available and by seeking additional resources if the
community needs them.
Two phases
Recovery occurs in two phases: short-term and long-term. Short-term
recovery operations will begin during the response phase of the
emergency. The major objectives of short-term recovery operations
include rapid debris removal and clean-up, and orderly and
coordinated restoration of essential services (electricity, water, and
sanitary systems). Short-term recovery operations will include all the
agencies participating in the City's disaster response.
The major objectives of long-term recovery operations include:
. coordinated delivery of long-term social and health services;
. improved land use planning;
. an improved City of Gilroy Emergency Operations Plan;
. re-establishing the local economy to pre-disaster levels;
. recovery of disaster response costs; and
. the effective integration of mitigation strategies into recovery
planning and operations.
City of Gilroy will coordinate its long-term recovery activities with the
Santa Clara Operational Area. Changes to the plan will be coordinated
with all participating departments and agencies. Structures that present
public safety threats will be demolished and abated during short-term
recovery operations.
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RECOVERY
SHORT-TERM The goal of short-term recovery is to restore local
government services to at
least minimal capacity. Short-term recovery includes:
. utility restoration;
. expanded social;
. medical and mental health services;
. re-establishment of The City of Gilroy government operations;
. transportation route restoration;
. debris removal and clean-up operations; and
. the abatement and demolition of hazardous structures.
The City of Gilroy will coordinate with private utility companies on all
efforts to restore utility systems and services during recovery operations.
Medical services will continue in temporary facilities, as necessary. Santa
Clara County Health Department will be requested to coordinate and
conduct Critical Stress Debriefings for emergency response personnel and
victims of the disaster/event.
For federally-declared disasters, tele-registration centers may be established
by the Federal Emergency Management Agency (FEMA) to assist disaster
victims and businesses in applying for individual assistance grants and Small
Business Administration loans.
In coordination with the American Red Cross, the City will provide
sheltering for disaster victims until housing can be arranged. The City will
ensure that debris removal and clean-up operations are expedited during
short-term recovery operations.
LONG- TERM
RECOVERY
The goal of long-term recovery is to restore facilities to pre-disaster
condition. Long-term recovery includes hazard mitigation activities,
restoration and reconstruction of public facilities, and disaster response cost
recovery.
The City will be responsible for its own approach to mitigation which could
include zoning variances, building code changes, plan reviews, seismic
safety elements, and other land use planning techniques. With public safety
a primary concern, rapid recovery may require adjustments to policies and
procedures to streamline the recovery process.
Hazard mitigation actions will need to be coordinated and employed in all
activities by the City and special districts in order to ensure a maximum
reduction of vulnerability to future disasters. The City will strive to restore
essential facilities to their pre-disaster condition by retrofitting, repairing or
reconstructing them during long-term recovery operations.
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Recovery programs will also be sought for individual citizens and private
businesses.
RECOVERY OPERATIONS ORGANIZATION
For the City of Gilroy, recovery operations will be managed and directed by
the BLES Division of Community Development. Recovery issues involving
other jurisdictions and/or special districts will be coordinated and managed
between the Development Center Manager and their designated
representatives. On a regularly scheduled basis, the Development Center
Manager will convene meetings with department managers, key individuals,
and representatives from affected jurisdictions and special districts. These
meetings will be held to collectively make policy decisions and to gather and
disseminate information regarding completed and ongoing recovery
operations. The City OES Coordinator may assist in facilitating and leading
the recovery process. Gilroy departments will also be represented and
responsible for certain functions throughout the recovery process. A
recovery operations organizational chart is depicted below.
2-30
Santa Clara Operational Area Recovery Operations Organizational Chart
Operations
Fire Chief
Medical Facility &
Service Restoration
Environmental
Reviews
Debris Removal
Construction
Build. & Safety
Inspections
Utility Service
Restoration
Housing Program
Recovery Management
Community Development
Overall Recovery Management
Political Process Management
Recovery Policy Development
Recovery Decision Making
Public Information
Logistics Finance! Admin.
Comm. Services Admin. Services
Planning/Intelligence
BLES Manager
Land Use & Zoning
Government Public Finance
Operations
Building Permits
Budgeting
Space Acquisition
Building Regulations &
Code Revisions
Contracting
Supplies &
Equipment
Accounting &
Claims Processing
Code Enforcement
Vehicles
Plan Review
Taxation
Personnel
Redevelopment
Insurance Settlements
Recovery Situation
Status
Recovery
Doc umentation
Hazard Mitigation
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RECOVERY OPERATIONS RESPONSIBILITIES
The City and special districts have specific responsibilities in recovering
from a disaster. The functional responsibility chart, listed below, depicts the
functional responsibilities assigned to each of the departments and/or key
personnel, the Santa Clara Operational Area, and special districts.
Function
Political process management; interdepartmental
coordination; policy development; decision making;
and public information.
Departments/ Al!encies
City Administrator's Office
Land use and zoning variance; permits and controls
for new development; revision of building regulations
and codes; code enforcement; plan review; and building
and safety inspections.
BLES Division
Restoration of medical facilities and associated services;
continue to provide mental health services; and perform
environmental reviews.
County Health Department
Community Services
Debris removal; demolition; construction; management of
and liaison with construction contractors; restoration of
utility services.
Community Services
Field Crews
Housing programs; assistance programs for the needy;
oversight of care facility property management; low income
and special housing needs.
County Social Services Dept.
City HCD Division.
Public finance; budgeting; contracting; accounting
and claims processing; taxation; insurance settlements.
Administrative Services
Department
Applications for disaster financial assistance; liaison
State
with assistance providers; onsite recovery support;
disaster financial assistance project management.
BLES Division and
& Federal Agencies
Advise on emergency authorities, actions, and associated
liabilities; preparation of legal opinions; preparation of
new ordinances and resolutions.
City Attorney
Government operations and communications; space
acquisition; supplies and equipment; vehicles; personnel;
and related support.
Administrative Services
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RECOVERY DAMAGE/SAFETY ASSESSMENT
Under the City of Gilroy Emergency Operations Center's Standard Operating
Procedures, an Initial Damage Estimate is developed during the emergency
response phase to support a request for gubernatorial proclamation and for
the State to request a presidential declaration.
This is followed by a detailed assessment of damage during the recovery
phase by the City and special districts. This detailed assessment provides
the basis for determining the type and amount of state and/or federal
financial assistance available for recovery.
In coordination with FEMA, and County and State OES, the BLES Division
will complete the detailed damage/safety assessment.
DOCUMENTATION
NDAA requirements
Federal requirements
Debris removal
Documentation is the key to recovering emergency response and recovery
costs. Damage assessment documentation will be critical in establishing the
basis for eligibility of disaster assistance programs.
Under the State Natural Disaster Assistance Act (NDAA), documentation is
required for damage sustained to public buildings, levees, flood control
works, irrigation works, county roads, city streets, bridges, and other public
works.
Under federal disaster assistance programs, documentation must be obtained
regarding damage sustained to:
. roads;
. water control facilities;
. public buildings and related equipment;
. public utilities;
. facilities under construction;
. recreational and park facilities;
. educational institutions; and
. certain private non-profit facilities.
Debris removal and emergency response costs incurred by the affected
entities should also be documented for assistance purposes under the federal
programs. It will be the responsibility of the City and special districts to
collect documentation of these damages.
The documented information should include the location and extent of
damage, and estimates of costs for debris removal, emergency work, and
repairing or replacing damaged facilities to pre-disaster condition.
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Building codes
The cost of compliance with building codes for new construction, repair, and
restoration will also be documented. The cost of improving facilities may be
included under federal mitigation programs.
Documentation is key to recovering expenditures related to emergency
response and recovery operations. For The City of Gilroy documentation
must begin at the field response level and continue throughout the operation
of their Emergency Operations Center as the disaster unfolds.
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AFTER-ACTION REPORTING
After-Action Report
Standardized Emergency Management System (SEMS), National Incident
Management System (NIMS) regulations 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 to OES
within (90) days of the close of the incident period.
The after-action report will provide, at a minimum, response actions taken,
application of SEMSINIMS, suggested modifications to SEMSINIMS,
necessary modifications to plans and procedures, identified training needs,
and recovery activities to date.
The after-action report will serve as a source for documenting The City of
Gilroy's emergency response activities, identifying areas of concern and
successes. It will also be utilized to develop and describe a work plan for
implementing improvements.
An after-action report will be a composite document for all SEMSINIMS
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 enclosures, and addressing
specific areas 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 OES Coordinator will be responsible for the completion and distribution
of the City of Gilroy after-action report, including sending it to the
Governor's Region II Office of Emergency Services within the required 90
day period. They may coordinate with the Operational Area in the
completion of the after-action report, incorporating information from them
for the report.
For The City of Gilroy, the after-action report's primary audience will be
City management and employees. As public documents, they are accessible
to anyone who requests a copy.
The after-action reports will be written in simple language, well-structured,
brief and well-presented, and geared to multiple audiences.
Data for the after-action report will be collected from a questionnaire, RIMS
documents, other documents developed during the disaster response, and
interviews of emergency responders. The most recent After-Action Report
Instructions and Report Form are available on RIMS.
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DISASTER ASSISTANCE PROGRAMS
Introduction
When requesting disaster assistance, some key areas of concern must be
adequately addressed. These areas include the needs of distinct groups,
disaster assistance available at each level of declaration, and the level of
detail required on each request for disaster assistance.
The disaster assistance programs have been developed for the needs of four
distinct groups:
. individuals;
. businesses (including agriculture interests);
. governments; and
. non-profit organizations.
Individuals
Individuals may receive loans or grants for such things as real and personal
property, dental, funeral, medical, transportation, unemployment, sheltering,
and rental assistance, depending on the extent of damage.
Business
Loans for many types of businesses are often made available through the
United States Small Business Administration, assisting with physical and
economic losses as a result of a disaster or an emergency.
Ag riculture
Programs exist for agricultural or other rural interests through the United
States Department of Agriculture, including assistance for physical and
production losses, repair, and reconstruction.
Government
Funds and grants are available to government and non-profit organizations
to mitigate the risk of future damage.
Tvpe of Emerl!ency Declaration
A state grant program is available to local governments to respond and
recover from disasters. Federal grant programs are available to assist
governments and certain non-profit organizations in responding to and
recovering from disasters. At each level of emergency declaration, various
disaster assistance programs become available to individuals, businesses,
governments, and non-profit organizations. Under local emergency
declarations, The City of Gilroy may be eligible for assistance under the
Natural Disaster Assistance Act (with concurrence of the Director of the
Governor's OES).
Businesses and individuals may be eligible for local government tax relief,
low-interest loans from the United States Small Business Administration,
and relief programs under the United States Department of Agriculture.
State of Emergency
Under a State of Emergency Proclamation by the Governor, the City,
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Proclamation
Presidential Declaration
special districts, individuals, and businesses may be eligible, in addition to
the assistance available under a local emergency declaration, for services
from the following agencies:
. Contractor's License Board;
Department of Insurance;
. Department of Social Services;
Franchise Tax Board Tax Relief;
. Department of Motor Vehicles;
. Department of Aging State Board of Equalization; and
. Department of Veteran's Affairs (CAL VET).
Under a Presidential Declaration, the City, special districts, individuals, and
businesses may be eligible for the following disaster assistance programs
and services:
.
Cora Brown Fund;
Crisis Counseling Program;
Disaster Unemployment;
Temporary Housing Program;
Individual and Family Grant Program;
Internal Revenue Service Tax Relief;
Public Assistance;
Hazard Mitigation;
Veteran's Affairs Assistance; and
Federal Financial Institutions.
.
.
.
.
.
.
.
Public Assistance Prol!ram Responsibilities
The City, private agencies, and special districts have the responsibility for
the completion and submission of the required documents for both state and
federal public assistance programs for their jurisdiction, agency, or
company.
Specifically, the Administrative Services Department will complete the
necessary public assistance program application and supporting materials.
Additionally, the Community Development Department will be the primary
contact for state and federal field representatives.
Individual Assistance Prol!ram Responsibilities
Individuals are expected, whenever possible, to provide for themselves and
direct their own personal recovery. However, many individuals will expect
the City to deli ver assistance to them well after the disaster.
The City will assist the individuals in any way possible, including providing
them with the Federal Emergency Management Agency's (FEMA) hotline
number for individual assistance.
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A sequence of delivery guide has been developed by FEMA to assist
individuals and local governments in determining the flow of individual
assistance. The City of Gilroy's objective is to provide the citizens of their
community with all the necessary information to help themselves recover
from the disaster. The sequence of delivery appears as follows:
. individual actions for assistance (family, friends, volunteer
organizations, churches, etc.);
. recovery/assistance from private insurance carrier;
. FEMA disaster housing assistance;
. United States Small Business Administration assistance;
. individual and Family Grant Program assistance; and
. Cora Brown Fund Assistance.
Hazard Mitil!ation Grant Prol!ram Responsibilities
Within declared areas, the City of Gilroy BLES Division is responsible for
identifying projects that will substantially reduce the risk of future damage,
hardship, loss, or suffering from a disaster.
These agencies must ensure that each identified project is cost effective and
meets basic project eligibility. These agencies will be the primary contact
and coordinator for each funded project until completion.
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