LEAD:
Communications Department
Emergency Management
SUPPORT:
Fire Agencies
Sheriff's Office
Central Services
Community and Environmental Programs (CEP)
I. INTRODUCTION
A. Purpose
1. Communications
To identify a communications system for the efficient flow of information during an emergency or disaster.
2. Warning
To provide or supplement alerting and warning to key officials and the public of an impending or occurring emergency or disaster.
B. Scope
This ESF applies to the communication and warning assets of all County organizations including radio, 9-1-1, voice and data links, telephone and cellular systems, National Warning System, Emergency Alert System (EAS), and amateur radio.
II. RELATED POLICIES
A. The County relies on the hazard warning capabilities of federal and state government, industry, and the media. Citizens are expected to be aware of a hazardous situation for which there is significant media attention, such as severe weather or flooding. When there is a demonstrated need, particularly if timeliness is crucial to protect life and property, the county may supplement existing warning systems. Supplemental measures will depend on the nature of the hazard, the quality and quantity of information available, resources available, media attention, and other situational factors. Supplemental measures will focus on enhancing or amplifying the information being provided through existing sources and, to the extent practicable, upon participatory systems activated at the neighborhood or community level.
B. In accordance with RCW 38.52.110 (1), in responding to a disaster, or the threat of a disaster, the Board of County Commissioners are directed to utilize the services, equipment, supplies, and facilities of existing departments, offices, and agencies of the state, political subdivisions, and all other municipal corporations thereof including but not limited to districts and quasi municipal corporations organized under the laws of the state of Washington to the maximum extent practicable, and the officers and personnel of all such departments, offices, and agencies are directed to cooperate with and extend such services and facilities upon request notwithstanding any other provision of law.
C. No guarantee of a perfect system is implied by this plan. As assets and personnel may be overwhelmed, Thurston County can only endeavor to make every reasonable effort to respond to a hazardous event based on the situation, and on information and resources available at the time.
III. PLANNING ASSUMPTIONS
A. Reliable communication capabilities are necessary at all levels of government for day-to-day communication, warning of impending disasters, disaster response and recovery operations, search and rescue operations, and coordination between the state, local governments, and response agencies.
B. Routine day-to-day modes of communication will continue to be utilized to the degree that they survive the disaster.
C. Local government may request state assistance when necessary by going through emergency management channels.
D. Thurston County is subject to a variety of emergency or disastrous events requiring rapid dissemination of warning and/or other emergency information to local officials and/or the public. Emergency or disaster warning may originate from any level of government; however, most disaster forecasting resources are located within the Federal Government.
E. The National Warning System (NAWAS), established by the Federal Government, is the primary means of receiving and disseminating warning(s) to state and local officials within Washington State. The Washington State Warning Point is operated 24 hours a day by the Washington State Emergency Management Office, with operational assistance provided by the Washington State Patrol. Thurston County's NAWAS receiving point is the Communications Center (CAPCOM), a 24-hour facility.
F. Notification of a threatening situation may also come from the National Weather Service, via NOAA Weather Radio or the media, the amateur communications community, or the public.
G. Initially, Thurston County will focus on coordinating lifesaving activities and reestablishing communications and control in the disaster area.
H. Initial reports of damage will be fragmented and provide an incomplete picture of the extent of damage to telecommunication facilities.
I. Weather, damage to roads and bridges, and other factors will restrict entry of emergency communications nodes into the area.
J. Tests of local warning systems will be conducted periodically to familiarize government and the public with their use.
K. In the event that public instructions need to be translated, the provision of interpreters will be coordinated through the EOC and the Crisis Clinic.
IV. CONCEPT OF OPERATIONS
A. Communications
1. Thurston County Communications Center (CAPCOM) is located at 2000 Lakeridge Drive, Building #3, Olympia, Washington (relocating to the new Emergency Service Center at 2703 Pacific Ave., Olympia, WA early in 1999). CAPCOM functions as the county-wide 9-1-1 Public Safety Answering Point (PSAP), and provides dispatch services for various law enforcement, fire and emergency medical agencies. CAPCOM also serves as the initial communications, alert, and warning point for Emergency Management. See Attachment 2 Thurston County Department of Communications for a description of the CAPCOM organization and services.
2. Once activated, emergency communications are also provided through the Thurston County Emergency Operations Center.
3. The Emergency Alert System (EAS), when established, will operate through local radio and cable TV stations and is intended to provide local officials with the means to disseminate prompt, reliable emergency information, instructions, and warnings in the event of an emergency or disaster.
a. KGY Radio, Olympia, 1240 AM; 96.9 FM
b. KXXO Radio, Olympia, 96.1 FM
c. TCI Cable, Olympia
4. The communication capabilities presently available include:
a. 9-1-1 Public Safety Answering Point (PSAP)
b. Commercial Telephone (regular, cellular, and wireless telephone)
c. Two-way radio (see Attachment 1)
d. National Warning System (NAWAS): land line-voice located in CAPCOM.
e. Amateur Radio Emergency Services (ARES) and Radio Amateur Civil Emergency Services (RACES), radio and teletype/packet system via amateur (ham) frequency bands.
B. Warning
1. Whenever Thurston County emergency management officials are alerted to the threat or occurrence of a hazardous event that could lead to or has resulted in a disaster, the Emergency Operations Center will be activated at the appropriate level and the situation monitored. Depending on the circumstances, monitoring could be a prolonged activity or result in the immediate activation of the local information and warning system.
2. Monitoring will consist of the accumulation, display, and evaluation of relevant information, release of appropriate public information advisories, and alerting response agencies and organizations of the situation. A list of media and agency addressees who are targeted for receipt of advisories and warnings is included on attachment 4.
3. As soon as it is apparent that the public must take some action to prepare or protect itself, the local warning system will be activated, as appropriate, and as time and resources allow. Warning could take the form of one or more of the following: activation of the Emergency Alert System to disseminate urgent information; activation of a telephone alerting system; activation of community telephone trees; Fire District and Law Enforcement apparatus providing warnings along specific routes using public address systems and sirens; activation of volunteer resources; posting of signs; activating a call response center in the EOC; providing local warning information to regional television and radio stations; or other mechanisms, as appropriate. The Flood Warning System is described in attachment 5.
4. Public information, advisories, and warnings will be updated as necessary until the hazard has subsided.
V. RESPONSIBILITIES
A. Communications Department
1. Develop and maintain appropriate plans and procedures to ensure, to the extent practicable, the integrity of Emergency communications systems.
2. Develop and maintain procedures to share disaster related information with the EOC, when activated.
3. Assist with the dissemination of information and warnings as requested by the EOC Supervisor.
4. In coordination with Emergency Management, conduct tests and exercises of the communication and warning system.
B. Emergency Management
1. In coordination with Communications Department, conduct tests and exercises of the communication and warning systems.
2. Develop EOC procedures for gathering, displaying, and evaluating relevant information.
3. Develop appropriate notification lists and procedures for activating the information and warning system. Include consideration of special populations such as the handicapped, the elderly and infirm, schools, day care centers, and nursing homes.
4. Coordinate public information and warnings with local jurisdictions and surrounding counties, as appropriate.
5. Maintain the EOC in a configuration to support the warning system and efficient and effective communications.
6. Include communications and warning as part of the county-wide emergency management training program.
C. Fire Agencies
1. In coordination with Emergency Management, develop and maintain procedures to provide communications and warning support and services when requested from the EOC.
2. In coordination with Emergency Management, train personnel in proper warning methods.
D. Sheriff's Office
1. In coordination with Emergency Management, develop and maintain procedures to provide communications and warning support and services when requested from the EOC.
2. In coordination with Emergency Management, train personnel in proper warning methods.
3. When requested, as feasible and without jeopardizing their primary mission, make Search and Rescue units and volunteers available to the EOC to assist in the warning effort.
E. Central Services
1. Develop and maintain appropriate plans and procedures to ensure, to the extent practicable, the integrity of the county telephone system.
2. Develop and maintain means to expeditiously post warning information on the County's Internet site.
F. Public Information
Coordinate public information and instructions and media relations as defined in ESF #31 Public Information.
VI. REFERENCES
A. Thurston EOC Standard Operating Procedures
B. Thurston County R.A.C.E.S. Plan
C. Washington State Comprehensive Emergency Management Plan
D. Federal Response Plan
1. Thurston County Radio Communications Frequencies (not available on-line)
2. Thurston County Department of Communications
3. State and Federal Support Organizations and Services
4. Selected media, government, and community addressees for information, advisories, and warnings.
ATTACHMENT 2
THURSTON COUNTY DEPARTMENT OF COMMUNICATIONS
The Thurston County Department of Communications was established by an intergovernmental agreement to provide a consolidated communications system for Thurston County and the towns, cities, and fire agencies in the county.
The department is staffed by a director and 40 employees, operating under an Operations Board and an Administration Board, both made up by representatives from the various participating agencies to the agreement.
Funds for the services provided are derived from each political subdivision, from nonmember agencies and departments that receive services, and from 9-1-1 excise tax collections.
The primary responsibilities of the department are as follows:
1. The planning, organizing, installation, maintenance, and administration of a central dispatch facility (CAPCOM), to provide efficient communications and dispatch services to all law enforcement, fire, medical one, and other agencies. Provide citizen access and 24-hour answering of emergencies through the 9-1-1 reporting system, for the safety of life and protection of property.
2. Support dispatch and paging service to some county and city road districts, street and sewer departments, the Coroner, Emergency Management, and several others. Tapes and expert witness services is provided for user departments.
3. Coordination assistance is provided to the various governmental agencies for the purchase, maintenance, and operation of their systems.
4. The Department serves seven cities and towns, 15 rural fire districts and the
Medic One system. There are a total of 46 telephone lines in the Center, of which eight
are enhanced 9-1-1 lines, serving approximately 190,000 persons residing in or passing
through Thurston County. During 1995, the Center handled 505,950 telephone calls and
completed 2,314,358 radio transmissions, all of which were tape recorded for use by the
responding and investigating departments.
5. All Communications Department personnel are trained in law enforcement, fire dispatch
procedures and emergency medical dispatching. They provide emergency medical pre-arrival
instruction by telephone prior to the arrival of the EMT or paramedic units (Medic One).
There is direct access via the 9-1-1 emergency number for the speech and hearing impaired
using the teletype (TTY/TDD) for the deaf.
6. The 9-1-1 Central Dispatch facility is co-located with the Thurston County Emergency Operations Center (EOC) where county, town, and city administrative officials may meet during an extended emergency to receive briefings and plan courses of action for the community. The EOC also provides emergency communications, including amateur and citizen band radio, and direct local government communications between county, town, and city administrators and State Emergency Management.
7. A diesel auxiliary generator provides backup emergency power for the second floor and basement areas of Building #3. The Communications Center (CAPCOM) is supported additionally by an uninterruptible power supply.
STATE AND FEDERAL SUPPORT ORGANIZATIONS AND SERVICES
State
1. Communications
State Emergency Management has overall responsibility for planning and coordinating the emergency communication program within the state as identified in the Washington State Comprehensive Emergency Management Plan.
2. Warning
a. Washington State Emergency Management is responsible for ensuring the receipt and dissemination of warning information throughout the state. Identical equipment installed in both the State Emergency Management EOC and Washington State Patrol Dispatch make it possible for either facility to disseminate warning information depending on the time of day (the State EOC is manned on a 24 hour basis). Both locations use NAWAS and ACCESS to disseminate warning information to local governments.
b. Warnings, watches, and advisories will be transmitted by the National Weather Service to the State Warning Point for:
1) Floods
2) Tsunamis
4) Avalanches, and
5) Severe weather.
Other warnings that may be issued by the State Warning Point include, but are not limited to:
1) Volcanic eruptions
2) Nuclear incidents
3) Hazardous material incidents
4) Earthquakes
5) Warning information to localized areas at the request of the political subdivisions
c. Upon receipt of any warning, the primary or alternate State Warning Point will transmit the information, without delay, to those political subdivisions that may be affected.
d. Other responsibilities are identified by the Washington State Comprehensive Emergency Management Plan.
Federal
1. Federal Emergency Management Agency (FEMA)
Under a Presidential Major Disaster Declaration, emergency communication support may be provided in disaster areas where such facilities have been disrupted.
2. Federal Communication Commission (FCC)
In the event of an emergency disrupting normally available communication facilities in a widespread area, the Commission, in its discretion, may declare that a general state of communication emergency exists, designate the area concerned, and specify the amateur frequency bands, or segments of such bands, for use only by amateurs participating in emergency communication within or with such affected areas in accordance with FCC Rules and Regulations, Section 97-107 - Emergency Operations.
3. National Warning System (NAWAS)
The NAWAS Warning Point terminal, lines, and equipment throughout the state are provided by the Federal Emergency Management Agency (FEMA) for the purpose of rapid dissemination of warnings.
Operational direction and control of the NAWAS is exercised by the National Warning Center except when emergency situations exist only within the State of Washington. During such time, direction and control is exercised through the Washington State Emergency Management Division.
4. National Weather Service (NWS)
The National Weather Service is responsible for forecasts and weather warnings which may present a threat to life and/or property.
5. U.S.G.S Cascades Volcano Observatory
This combined effort of the U.S. Forest Service, U.S. Geological Survey, FEMA, and the University of Washington is responsible for issuing volcanic activity or eruption advisories and warnings.
SELECTED MEDIA, GOVERNMENT, AND COMMUNITY ADDRESSEES FOR INFORMATION, ADVISORIES, AND WARNINGS
Newspapers:
The Olympian
Tacoma News Tribune
Chehalis Chronicle
Nisqually Valley News
Tenino Independent
Radio:
KGY (Olympia: 1240 AM; 96.9 FM)
KXXO (Olympia: 96 FM)
KAOS (TESC/Olympia: 89.3 FM)
KMAS (Shelton: 1030 AM)
KELA (Centralia: 1470 AM)
KIRO (Seattle: 710 AM; 100.7 FM)
KOMO (Seattle: 1000 AM)
KVI (Seattle: 570 AM)
KITI (Centralia: 1420 AM; 95.1 FM)
KMNT (Centralia: 103 FM)
Television:
KIRO/7 (Seattle)
KOMO/4 (Seattle)
KING/5 (Seattle)
KSTW/11 (Tacoma)
TCTV/Cable 3 (Olympia)
TCI Cable (Olympia)
NW Cable News/Cable 62 (Seattle)
County Organizations:
Board of County Commissioners
Thurston County Sheriff's Office including the Search and Rescue Council and Jeep Patrol
Roads & Transportation Services Department and Maintenance Division
Water & Waste Management Department and Landfill Division
Central Services Department
Communications Department
Fire District(s), as appropriate
Intercity Transit
TEMPO (Thurston Emergency Medical Providers Online: a computer bulletin board for fire service and EMS)
Internet at http://www.co.thurston.wa.us/thurston/emerg/emerg.htm
Other Emergency Management Organizations:
State Emergency Management
Emergency Managers of the Cities of Lacey, Olympia, Tumwater and Yelm, and the Towns of Bucoda, Rainier and Tenino, as appropriate.
Emergency Managers of Grays Harbor, Lewis, Mason and Pierce Counties, as appropriate.
Community Organizations:
American Red Cross
Animal Services
Crisis Clinic
Food Bank
Salvation Army
Volunteer Center
Others:
Chehalis Reservation/Lucky Eagle Casino, as appropriate
Nisqually Reservation, as appropriate
Frank's Landing Indian Village, as appropriate
Wa He Lute School, as appropriate
Puget Sound Energy
THURSTON COUNTY FLOOD WARNING SYSTEM
Flood Warning System
The National Weather Service is the nation's only flood warning agency. National Weather Service advisories, watches and warnings are broadcast by regional and local media as they are issued. Each flood plain resident is responsible for being aware when a threatening situation is developing or exists and keeping informed through media reports. Residents are also responsible for taking appropriate action. When local officials are aware of information not available to the National Weather Service, such as when specific areas of the county will flood and when evacuation may become necessary, local media advisories will be issued.
Based on lessons learned during previous floods and public input, Thurston County Emergency Management has enhanced its ability to inform the public and to reinforce warnings from the National Weather Service. The following is an overview of the flood warning and information system.
1. The National Weather Service will issue media advisories, watches and warnings whenever forecasts or models indicate that rivers may approach bankfull levels. If there is a forecast model for a given river, that river will be mentioned specifically in media announcements originated by the National Weather Service. In Thurston County, the following rivers have forecast models and will be mentioned specifically in watches and warnings: Nisqually, Deschutes, Skookumchuck and Chehalis. All other rivers and streams will be included in a general statement such as "... flood watches/warnings remain in effect for all small rivers and streams in southwest Washington." The National Weather Service will also broadcast advisories, watches and warnings on NOAA Weather Radio which can be received locally, with the appropriate equipment*, from Seattle (162.55 MHZ) and from Olympia (162.475 MHZ).
2. When appropriate, the Thurston County Emergency Operations Center (EOC) will issue local media advisories to supplement or amplify information provided by the National Weather Service. These will be based on a knowledge of local effects, information from Dam operators, and information received from field personnel and the public. Local advisories will be distributed to the following:
Newspapers: The Olympian, The Tacoma News Tribune, The Chehalis Chronicle, The Nisqually Valley News, and The Tenino Independent.
Radio: KGY (Olympia: 1240 AM; 96.9 FM), KXXO (Olympia: 96 FM), KAOS (TESC/Olympia: 89.3 FM), KMAS (Shelton: 1030 AM), KELA (Centralia: 1470 AM), KIRO (Seattle: 710 AM; 100.7 FM), KOMO (Seattle: 1000 AM), KVI (Seattle: 570 AM), KITI (Centralia: 1420 AM; 95.1 FM), KMNT (Centralia; 103 FM)
Television: KIRO/7 (Seattle), KOMO/4 (Seattle), KING/5 (Seattle), KSTW/11 (Tacoma), TCTV/Cable 3 (Olympia), TCI Cable (Olympia), and NW Cable News/Cable 62 (Seattle).
Other: Appropriate Fire and Law Enforcement agencies, County Departments, the American Red Cross, other volunteer organizations, surrounding jurisdictions, the state EOC, and selected businesses for posting on public bulletin boards.
Internet: We have created a flood warning section on the Thurston County Home Page where all media advisories and local warnings will appear. This service is available at the following Internet address:
http://www.co.thurston.wa.us/thurston/emerg/emerg.htm
3. The County EOC will provide appropriate Fire and Law Enforcement agencies, County Departments, the American Red Cross, and volunteer organizations with additional information such as recommendations for community level warnings, evacuation, and transportation and shelter needs.
4. When forecasts or events may necessitate extraordinary action to protect life and property, the EOC will activate the Tel-A-lert emergency notification service (description of Tel-A-lert can be found on following pages).
5. As the public becomes aware of a developing threatening situation, either from personal observation of the weather and rising water, media announcements, word of mouth, or any other source, they will take necessary actions to protect life and property, implement locally developed community self-help and self-awareness programs, and call the EOC if in doubt or in need of additional information.** When activated, the EOC will have a staff of call receivers to answer questions from the public. The EOC number for all public inquiries is (360) 754-3360.
* National Oceanic and Atmospheric Administration (NOAA) Weather Radio receivers can be purchased from most electronic outlets beginning at about $20. Most models can be tuned to several stations and many have an automatic alert feature that sounds an alarm whenever a warning is issued.
** Citizens are encouraged to share emergency information with neighbors and other flood plain residents, particularly those with special needs. Call the EOC or 9-1-1 if you know of a special- needs resident requiring assistance.
Thurston County
Telephone Flood Alert System
During the 1997-98 flood season, Thurston County will continue its subscription to Actual Software's Tel-A-lert emergency notification service. Tel-A-lert is intended to reinforce National Weather Service watches, warnings and advisories which are broadcast by all local commercial radio and television providers. It will only be activated when, in the opinion of County Emergency Operations Center (EOC) staff, a level of warning above and beyond that provided by the Weather Service and the media is needed to recommend residents take action, or prepare to take action, to protect life or property. The mere fact that the National Weather Service has issued a flood warning for a particular river will not automatically activate the Tel-A-lert system. It will be activated only when flooding is expected that may require evacuation or personal protective measures. Generally, the service will not be activated unless the following threshold level flow rates, in cubic feet per second (cfs), are expected to be exceeded.
Nisqually, upstream of Centralia Diversion Dam: 6,000 cfs from La Grande Dam
Nisqually Delta: 13,000 cfs at McKenna
Nisqually, at Nisqually Pines: 19,000 cfs at McKenna
Deschutes: 4,000 cfs at Vail Loop Road Bridge
Skookumchuck: 4,000 cfs from Skookumchuck Dam
Chehalis: 23,000 cfs at Prather Road Bridge
Some roads and fields may already be flooded at these levels. However, based on previous floods, the level is now nearing the point where extraordinary action may be warranted such as relocating herds, preparing for evacuation, relocating personal effects to higher floors, sandbagging, etc.
When a threshold level is expected to be met, an informational or alerting message will be sent. The procedure will be as follows.
Emergency Operations Center (EOC) staff will draft a telephone alert message. The message will be abridged to minimize the length of each call. The EOC staff will then telephonically record the message and activate the call out to registered residents in the threatened area. When the phone is picked up, either by a person or by an answering machine, the Tel-A-lert system will repeat the alerting message. If there is no answer after twelve rings, the system will hang up and call the next number on the calling group list. For each number for which there is no pick-up, the Tel-A-lert system will attempt two redials at 15 minute intervals. If there is no answer on the third attempt, there will be no further attempts for that message. Additional messages will be sent via the Tel-A-lert system when deemed appropriate by EOC staff.
Sample message: "This is a Tel-A-lert express alert message. The Thurston County Emergency Operations Center has issued an urgent flood alert for the Nisqually River. The discharge at La Grande Dam has increased to 18,000 cubic feet per second. The crest is expected at Nisqually Pines between 3:30 and 5:00 p.m. and at the Delta between 7:00 and 9:00 p.m. Please take necessary precautions. Residents of Nisqually Pines should be prepared to evacuate if flow rates increase. Residents in the Delta area, on property adjacent to the river, are urged to evacuate prior to crest arrival time. Please listen to local media and emergency officials for further information."
Remember, this is not a stand alone service. It is part of a larger warning system, explained in a separate flyer, that includes federal, state and local components. The service is not for initial warning but provides urgent information directly to residents that may have to take action to protect life or property. There is no guarantee that a resident will be home when the system is activated or that phones will be working. Just because a telephone alert is not received, it should not be assumed that all is well. Residents should be proactive and listen to the media or call the Thurston County Emergency Operations Center at (360) 754-3360.
The Tel-A-lert service will be evaluated after the flood season to determine if it should be continued.