HomeMy WebLinkAbout2012-003EDepartment
liver County
Emergency Services
Emergency Management Division
4225 43rd Avenue
32967
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RECORD OF CHANGES
CHANGE DATE OF DATE CHANGE MADE BY
NUMBER CHANGE ENTERED (SIGNATURE)
RESOLUTION 2012 - 004
STATE OF FLORIDA
INDIAN RIVER COUNTY
THIS IS TO CERTIFY THATTHIS IS
A TRUE AND CORRECT COPY OF
THE ORIGINAL ON FILE IN THIS
OFFICE
J F EY K. 8,A ON, CLERK
SYS D.C.
A RESOLUTION OF INDIAN RIVER COUNTY, FLOR DA,
BY AND THROUGH ITS BOARD OF COUNTY COMMISS� 1 L
ADOPTING A COMPREHENSIVE EMERGENCY MANAGEMENT PLAN FOR
INDIAN RIVER COUNTY
WHEREAS, Chapter 252, Florida Statutes, Disaster Preparedness Act, establishes a
Division of Emergency Management (DIVISION) and prescribes the powers and
responsibilities thereof; and
WHEREAS, Chapter 252, F.S., assigns to the Board of County Commissioners
responsibility for disaster mitigation, preparedness, response, and recovery; and
WHEREAS, Chapter 252, F.S., requires each county to develop a county emergency
management plan and program that is coordinated and consistent with the state
comprehensive emergency management plan and program; and
NOW, THEREFORE, BE IT RESOLVED BY THE BOARD OF COUNTY
COMMISSIONERS OF.INDIAN RIVER COUNTY, FLORIDA, that the 2012 INDIAN
RIVER COUNTY COMPREHENSIVE EMERGENCY MANAGEMENT PLAN (CEMP),
as approved by the DIVISION, is hereby adopted. The resolution was moved for
adoption by Commissioner FTesche'r and the motion was seconded by
Commissioner Davis and, upon being put to a vote, the vote
was as follows:
Chairman Gary C. Wheeler Aye
Vice Chairman Peter D. O'Bryan Aye
Commissioner Wesley S. Davis Aye
Commissioner Joseph E. Flescher Aye
Commissioner Bob Salari Aye
The Chairman thereupon declared the resolution duly passed and adopted this 10th
day of January 2012.
�o? gARD OF COUNTY COMMISSIONERS
QIAN RIVER COUNTY, FLORIDA
BY
� � Gary C. Pheeler, Chairman
Attest: 9���FR COUtSjy�a�
0 FORM
APPROVED AS T e
Jeffrey K. Barton, Clerk
s'r'
4YILLIAi�i K. CzSRAAL
OE?aJ'1''t'C�i1,'l S rr Ai"'rCiltr*31°Y
TABLE OF CONTENTS
Page
EXECUTIVE SUMMARY................................................................................................vii
BASIC PLAN
I. INTRODUCTION
A. Purpose..................................................................................................... 1
B. Scope........................................................................................................ 2
C. Methodology.............................................................................................. 3
SITUATION
A.
Hazard Analysis......................................................................................... 7
B.
Geographic Information...........................................................................
40
C.
Demographics..........................................................................................47
59
D.
Persons with Special Needs....................................................................
50
E.
Climatology..............................................................................................50
81
F.
Economic Profile......................................................................................
51
G.
Emergency Management Support Facilities ............................................
54
H.
Planning Assumptions.............................................................................
57
III. Concept of Operations
A.
Levels of Disaster....................................................................................
58
B.
Organization............................................................................................
59
C.
General....................................................................................................80
D.
Direction & Control...................................................................................
81
E.
Notification and Warning.........................................................................
89
F.
Response Actions
1. General.........................................................................................92
2. Evacuation....................................................................................
95
3. Sheltering...................................................................................
100
G.
Recovery Actions
1. Initial Actions...............................................................................
102
2. Continuing Actions......................................................................
102
IV. Responsibilities
A. General..................................................................................................103
B. Indian River County...............................................................................104
C. Special Districts..................................................................................... 105
D. State of Florida...................................................................................... 105
E. Federal Government.............................................................................. 106
V. Financial management policy
A. Assumptions.......................................................................................... 107
B. Expenditure of funds.............................................................................. 107
Table of Contents (continued)
Page
VI. Training, Exercise and Public Awareness/Education
A. Training.......................................................................................109
B. Cost for Training......................................................................... 110
C. Exercise......................................................................................113
D. Public Awareness and Education ................................................ 113
VII. References and Authorities
A. Local
1. Ordinances.................................................................................. 116
2. Resolutions...............................................................................117
3. Miscellaneous............................................................................. 117
B. Supplemental Plans to the CEMP .........................................................118
C. State
1. Statutes............................................................................ 119
2. Administrative Rules......................................................... 123
3. Executive Orders.............................................................. 123
4. Miscellaneous...................................................................123
D. Federal
1. Public laws....................................................................... 123
2. Regulations...................................................................... 125
3. Executive orders............................................................... 125
4. Miscellaneous...................................................................126
E. Memoranda of Understanding/Agreements
1. Local.................................................................................126
2. State.................................................................................127
LIST OF FIGURES
1
CEMP Distribution List.......................................................................................... 5
2
Hazard Vulnerability by Jurisdiction....................................................................
38
3
Flood Prone Areas.............................................................................................
42
4
Existing Land Uses.............................................................................................
44
4AFuture
Land Use Map.........................................................................................
45
5
Population Centers.............................................................................................48
6
EOC Organizational Charts and Matrices......................................................63-79
6-1
ESF Matrix - Primary and Support Agencies (Response Phase) .......................
63
6-2
Matrix - Agency Responsibilities (Recovery Phase) ...........................................
66
6-3
Matrix - Agency Responsibilities (Mitigation Phase) ...........................................
68
6-4
Organizational Chart (Day-to-day Operations)...................................................
69
6-5
Organization Chart (EOC Executive Group) .......................................................
70
Table of Contents (continued)
Page
6-6
Organizational Chart (EOC Functions)............................................................... 71
6-7
Organizational Chart (Supervision of EOC-Nuclear Events) ..............................
72
6-8
Organizational Chart (Administration Group) ......................................................
73
6-9
Organizational Chart (Planning Group)..............................................................
74
6-10
Organizational Chart (Logistics Group)..............................................................
75
6-11
Organizational Chart (Operations Group)...........................................................
76
6-12
Organizational Chart (Operations Group — Nuclear Events) ..............................
77
6-13
Organizational Chart (Mitigation Phase).............................................................
78
6-14
Organizational Chart (Recovery Phase).............................................................
79
7
Primary Agency Listing.......................................................................................
86
8
Declaration Process...........................................................................................
94
9
Evacuation Routes.............................................................................................
96
10
American Red Cross Primary Shelter List ........................................................
101
11
Recommended Training Schedule............................................................111-112
11
Sample Resolution Declaring a Local State of Emergency ..............................
130
Table of Contents (continued)
LIST OF APPENDICES
APPENDIX A
GLOSSARY OF ACRONYMS
APPENDIX B
GLOSSARY OF KEY TERMS
APPENDIX C
COMPENDIUM OF EMERGENCY AUTHORITIES AND DIRECTIVES
APPENDIX D
INDIAN RIVER COUNTY EMERGENCY OPERATIONS CENTER
SUGGESTED OPERATING PROCEDURES
iv
Table of Contents (continued)
ANNEX I: RESPONSE FUNCTIONS
Transportation - (ESF #1)
Communications - (ESF #2)
Public Works and Engineering - (ESF #3)
Firefighting - (ESF #4)
Information and Planning - (ESF#5)
Mass Care - (ESF #6)
Resource Support - (ESF #7)
Health and Medical Services - (ESF #8)
Search and Rescue - (ESF #9)
Hazardous Materials - (ESF #10)
Food and Water - (ESF #11)
Energy and Utilities - (ESF #12)
Military Support - (ESF #13)
Public Information - (ESF #14)
Volunteers and Donations - (ESF #15)
Law Enforcement and Security - (ESF #16)
Animal Protection - (ESF #17)
Special Needs Care - (ESF #18)
ANNEX IA: RECOVERY FUNCTIONS
ANNEX II: MITIGATION FUNCTIONS
v
Annex III
RIAT SOP
Annex IV
Damage Assessment Guide
Annex V
Emergency Shelter Plan
Annex VI
Public Information Handbook
Annex VII
Evacuation and Reentry Plan
Annex VIII
Communications
Annex IX
Terrorism Response
SUPPLEMENTAL ANNEXES
vi
EXECUTIVE SUMMARY
The Indian River County Comprehensive Emergency Management Plan (CEMP) is
an operations oriented document authorized by the Board of County Commissioners
and is in accordance with Chapter 252, Florida Statutes. The CEMP establishes the
framework for an effective system to ensure that Indian River County will be
adequately prepared to deal with the occurrence of emergencies and disasters.
The plan outlines the roles and responsibilities of the state agencies, special
districts, local governments and volunteer organizations. The CEMP unites the
efforts of these groups for a comprehensive approach to reduce the County's
vulnerability to a host of identified hazards.
This plan is structured to parallel federal activities set forth in the "Federal
Response Plan" and state activities in the State "Comprehensive Emergency Plan"
as well as describing how other resources will be coordinated to supplement County
resources and response.
The CEMP is divided into three sections:
The Basic Plan section outlines the concept of operations, direction
and control, and identifies responsibilities of all agencies and
resources mobilized by the County in recovering from a disaster.
2. The Response section presents the County's strategy for disaster
response. It outlines the Emergency Support Function (ESF) concept
taken from the Federal Response Plan. Each ESF, at a minimum,
contains a concept of operations and the responsibilities of the
primary and support agencies that will respond to local government
requests.
3. The Recovery section provides for the rapid and orderly start of
rehabilitation and restoration of persons and property affected by a
disaster.
Following Hurricane Andrew, recommendations from the "Governor's Disaster
Planning and Response Review Committee Report" (The Lewis Report), guided
revisions that were made to Chapter 252, F.S. The Basic Plan contains a planning
strategy section that describes initiatives that are currently underway to ensure that
the mandates of the law become operational.
Vii
This plan replaces the Florida Nuclear Civil Protection Plan and the Florida
Peacetime Emergency Plan. It does not supplant the Hazardous Materials Plan,
which is not an operations -oriented document or the Florida Radiological
Emergency Management Plan for Nuclear Power Plants, which was developed for
response to radiological incidents under separate state and federal statutory
authorities. However, this plan may be used to supplement the Florida Radiological
Emergency Management Plan for Nuclear Power Plants, in order to provide a
comprehensive response.
THE INDIAN RIVER COUNTY
COMPREHENSIVE EMERGENCY MANAGEMENT PLAN
BASIC PLAN
INTRODUCTION
Chapter 252, Florida Statutes (State Emergency Management Act), requires the
preparation and maintenance of this document, the Indian River County
Comprehensive Emergency Management Plan (CEMP). The CEMP must be
integrated into and coordinated with emergency management plans and programs
of the state and federal government. The CEMP also establishes a framework
through which Indian River County may prepare for, respond to, recover from, and
mitigate the impacts of a wide variety of disasters that could adversely affect the
health, safety and/or general welfare of the residents of Indian River County.
The CEMP is operations -oriented, and addresses coordinated local and regional
evacuation, shelter, post -disaster response and recovery; rapid deployment and
pre -deployment of resources; communications and warning systems; training
exercises to determine the ability of local government to respond to emergencies;
and clearly defined responsibilities for County departments through an Emergency
Support Function (ESF) approach to planning and operations.
The CEMP describes the basic strategies, assumptions and mechanisms through
which the County will mobilize resources and conduct activities to guide and support
local emergency management efforts through response and recovery. To facilitate
effective intergovernmental operations, the CEMP adopts a functional approach that
groups the type of assistance to be provided under ESFs to address the functional
needs of the County. Each ESF is headed by a lead agency, which has been
selected based on its authorities, resources, and capabilities in the functional area.
The ESFs serve as the primary mechanism through which outside assistance to
Indian River County is managed. State assistance will be provided under the overall
coordination authority of the State Coordinating Officer (SCO) representing the
Florida Division of Emergency Management (FDEM), Department of Community
Affairs (DCA), on behalf of the Governor.
A. PURPOSE
The plan establishes a framework for an effective system of comprehensive
emergency management enabling the Indian River County Board of County
Commissioners to discharge its statutory responsibility for providing direction
and control during the period of any emergency.
Indian River County Comprehensive Emergency Management Plan Basic Page 1
The purpose of the plan is to:
Reduce the vulnerability of people and communities of this county to
damage, injury, and loss of life and property resulting from natural,
technological or manmade emergencies, catastrophes, or hostile
military or paramilitary action.
2. Prepare for prompt and efficient response and recovery to protect
lives and property affected by emergencies.
3. Respond to emergencies
necessary to preserve the
affected by the emergency.
using all systems, plans and resources
health, safety and welfare of persons
4. Recover from emergencies by providing for the rapid and orderly start
of restoration and rehabilitation of persons and property affected by
emergencies.
5. Provide an emergency management system embodying all aspects of
pre -emergency preparedness and post -emergency response,
recovery, and mitigation.
6. Assist in anticipation, recognition, appraisal, prevention, and
mitigation of emergencies that may be caused or aggravated by
inadequate planning for, and regulation of, public and private facilities
and land use.
7. This CEMP, by adoption, established the National Incident
Management System (NIMS) as the standard for all operations
encompassed by the plan within Indian River County. The NIMS
system provides a common foundation for training and other
preparedness efforts, communicating and sharing information with
other responders and with the public, ordering resources to assist
with a response effort, and for integrating new technologies and
standards to support incident management. For the first time, all of
the nation's emergency responders will use a common language, and
a common set of procedures when working individually and together
to keep America safe. The NIMS ensures that they will have the same
preparation, the same goals and expectations, and most importantly,
they will be speaking the same language.
SCOPE
This plan is countywide in scope and is supported by the five municipalities.
The scope of this plan is to accomplish the following:
Establishes fundamental policies, program strategies, and
assumptions,
Indian River County Comprehensive Emergency Management Plan Basic Page 2
2. Establishes a concept of operations spanning the direction and
control of an emergency from initial monitoring through post -disaster
response and recovery,
3. Defines an interagency coordination mechanism to facilitate delivery
of immediate county assistance, and County direction and control of
response and recovery assistance from other counties, states, and
the federal government,
4. Assigns specific functional responsibilities to appropriate County
departments and agencies, as well as private sector groups and
volunteer organizations,
5. Addresses the various types of emergencies (more specifically
described in Section II -A, Hazard Analysis) which are likely to occur,
from county emergency, to minor, major, or catastrophic disasters;
and,
6. Identifies actions that County response and recovery organizations
will take, in coordination with county and federal counterparts as
appropriate.
C. METHODOLOGY
1. The Emergency Management staff carefully analyzed Florida's
Comprehensive Emergency Management Plan to assure the county's
plan was consistent with and supportive of the state plan in both
format and content. To conform to the compliance criteria, the
following actions were taken:
a. All ESF primary and support agencies were identified,
including public, private and volunteer.
b. All agencies were assembled. All agencies provided input and
support in the construction of the plan.
C. A series of meetings was held to assure local participation in
the planning process.
d. All involved departments demonstrated their support in the
planning process, not by letter, but by their personal
participation in planning meetings.
e. All agencies reviewed the final draft of the plan and accepted
the responsibilities assigned to them by the plan.
Indian River County Comprehensive Emergency Management Plan Basic Page 3
Rosters of orientation seminars on concepts of operations or
plan procedures are not attached to or an integral part of this
formal plan; however, they are kept on file in the office of
Emergency Management.
g. A signed receipt is maintained for all recipients of the CEMP.
Signature of this document acknowledges and accepts plan
responsibilities (original receipts kept on file in the emergency
management office). The distribution list is attached to this
document and identified as Figure 1.
h. All future amendments to this plan will be made in addendum
form to recipients of the plan.
Indian River County Comprehensive Emergency Management Plan Basic Page 4
Figure 1
CEMP CD DISTRIBUTION LIST
L AGENCY
I DIVISION
INDIAN RIVER COUNTY
ATTORNEY'S OFFICE
ORCHID, TOWN OF
BCC OFFICE
SEBASTIAN, CITY OF
BUILDING DIVISION
CLERK OF COURT
COMMUNITY DEVELOPMENT
COUNTY ADMINISTRATOR
DEPARTMENT OF EMERGENCY SERVICES (Hard Copies)
Animal Control
Emergency Management (3)
Fire Rescue
Radiological
EOC Library (2)
Extras (5)
ELECTION'S OFFICE
ENGINEERING DEPARTMENT
ENVIRONMENTAL HEALTH
FACILITIES MANAGEMENT
GENERAL SERVICES
HEALTH DEPARTMENT
HUMAN RESOURCES
OFFICE OF MANAGEMENT & BUDGET
PARKS DIVISION
PROPERTY APPRAISER'S OFFICE
PUBLIC WORKS
PURCHASING
RECREATION
RISK MANAGEMENT
ROAD & BRIDGE
SCHOOL DISTRICT
Superintendent
Transportation Director
SHERIFF'S OFFICE
SOLID WASTE DISPOSAL DISTRICT
TAX COLLECTOR
TELECOMMUNICATIONS
TRAFFIC ENGINEERING
UTILITIES
FELLSMERE, CITY OF
CITY MANAGER
POLICE CHIEF
INDIAN RIVER MEDICAL CENTER
RISK MANAGER
INDIAN RIVER SHORES, TOWN OF
PUBLIC SAFETY CHIEF
TOWN MANAGER
ORCHID, TOWN OF
TOWN MANAGER
SEBASTIAN, CITY OF
CITY MANAGER
POLICE CHIEF
SEBASTIAN INLET STATE PARK PARK MANAGER
SEBASTIAN RIVER MEDICAL CENTER RISK MANAGER
VERO BEACH, CITY OF CITY MANAGER
POLICE CHIEF
MISCELLANEOUS AMERICAN RED CROSS, NORTH TREASURE COAST CHAPTER
Indian River County Comprehensive Emergency Management Plan Basic Page 5
2. The Indian River County Board of County Commissioners has approved
this document and a current signed resolution can be found in the
Compendium of Authorities (Appendix C). Their approval establishes this
plan as official policy for all participating departments/agencies. A Draft of
the Resolution can be found in the beginning of this plan until such time
the document receives approval from FDEM. Once the approved
document goes before our Board of County Commissioners for formal
approval, a signed Resolution will be placed in Appendix C.
3. Maintenance of plan currency is achieved in the following manner:
a. The Basic Plan will be reviewed and updated by Emergency
Management staff by April 15th of each year and page changes
distributed to all addressees no later than May 15th of each year.
b. Emergency Support Function (ESF) Annexes will be reviewed by
the lead agency for the ESF in consultation with the support
agencies. Recommendations for corrections will be forwarded to
Emergency Management staff who will distribute applicable page
changes to all plan recipients. Changes to the ESF Annexes do
not need Board of County Commissioner approval as long as the
spirit and intent of the Basic Plan has not changed.
c. Hazard specific annexes will be developed as needed and
reviewed at least annually and immediately after a disaster event
for which the annex was written. The Annex will be initiated and
maintained by the lead agency for that annex. Hazard specific
annexes can be developed and added to/removed from the Indian
River County CEMP, as needed, without Board of County
Commissioner approval as long as the spirit and intent of the
Basic Plan has not changed.
d. Standard Operating Guides (SOGs) should be developed and
maintained by each tasked agency to support this plan.
e. There is no requirement to seek Board approval of the annual
change after the CEMP has been adopted initially as long as the
spirit and intent of the Basic Plan have not changed.
Indian River County Comprehensive Emergency Management Plan Basic Page 6
SITUATION
This section of the CEMP provides a description of the potential hazard
considerations, geographic characteristics, demographics, economic profile and
emergency management support facilities for Indian River County. Additionally,
there are several planning assumptions that were considered in the planning
process. For a complete vulnerability assessment, see the Indian River County
Local Mitigation Strategy (originally adopted by Resolution #99-125, first revision in
2005 and the second revision was adopted by Resolution #2010-59 by the Board of
County Commissioners on July 13, 2010).
A. HAZARD ANALYSIS
Communities in Indian River County are vulnerable to three classifications of
hazards: natural, technological, and societal as identified below. A chart
depicting the hazard vulnerability by jurisdiction and population centers can
be found in Table 4.25 in Section 4, pages 74-75 of the county's Local
Mitigation Strategy.
Natural Hazards
a. Hurricanes/Tropical Storms
Hurricanes are tropical cyclones with winds that exceed 74
mph and circulate counter -clockwise about their centers in the
Northern Hemisphere. They are formed from simple
thunderstorms; however, these thunderstorms can only grow to
hurricane strength with favorable conditions in the ocean and
atmosphere. The heat and moisture from this warm water are
ultimately the source of energy for hurricanes, which weaken
rapidly when they travel over land or colder ocean waters
(University of Illinois).
When a hurricane threatens the coast, advisories are issued
by the National Hurricane center. The storm's current location
and intensity are described along with its projected path.
Advisories are issued at 6 -hour intervals: 5:00 a.m., 11:00
a.m., 5:00 p.m. and 11:00 p.m., Eastern Time.
Indian River County Comprehensive Emergency Management Plan Basic Page 7
In addition to the advisories, the National Hurricane Center
may issue a hurricane watch or warning. A hurricane watch
indicates that hurricane conditions are a possibility and may
threaten the area within 48 hours. A hurricane warning is
issued when winds of at least 74 mph are expected in the area
within 36 hours.
Advisories and hurricane watches and warnings will frequently
refer to the category of the storm. Hurricanes are classified
using the Saffir-Simpson scale as follows:
• Category 1:
Winds 74 to 95 mph
• Category 2:
Winds 96 to 110 mph
• Category 3:
Winds 111 to 130 mph
• Category 4:
Winds 131 to 155 mph
• Category 5:
Winds exceeding 155 mph
On average, 1.6 hurricanes strike the U.S. every year and
cause $1.2 billion in damages. Severe (category 3, 4 or 5 on
the Saffir-Simpson scale) strike the U.S. on the average of one
every 5.75 years. Experts sometimes disagree on the annual
cost; however, all sources agree that Hurricane Katrina is the
most costly recent hurricane event to affect the U.S. The
Insurance Information Institute estimates that the cost of
Hurricane Katrina was $45.148 billion (Based on estimated
insured losses for property coverage and adjusted to 2009
dollars).
High winds, storm surge, powerful waves, torrential rain,
tornadoes, and high tide combined give hurricanes the
potential to create mass devastation and huge losses to
property. The greatest threat to life and property associated
with a hurricane or tropical storm is storm surge. Storm surge
is a large dome of water often 50 to 100 miles wide that
sweeps across the coastline near where a hurricane made
landfall. The surge of high water, topped by waves, can be
extremely destructive to coastal regions, even if vegetation -
topped dunes protect them. The stronger the hurricane and
the shallower the offshore water, the higher the surge will be.
In addition, if the storm surge arrives at the same time as the
high tide, the surge height will be even greater (National
Oceanic and Atmospheric Administration).
Indian River County Comprehensive Emergency Management Plan Basic Page 8
High winds associated with hurricanes can be the source of
great destruction. The wind alone can lead to flying debris,
including tree limbs and branches, signs, roofing, and metal
siding, all of which move through the air like missiles. High
winds also can destroy poorly constructed buildings and mobile
homes. Once wind and rain has penetrated the secure
envelope of a structure (doors, windows, garage doors, and
roofs), the chances of the structure surviving the hurricane
greatly diminish.
Tornadoes and torrential rainfall add to the life threatening and
damaging effects of a hurricane. Six to 12 inches of rain or
more can fall on an area as the storm passes, causing flooding
and flash floods. Tornadoes produced by hurricanes occur
most frequently in rain bands well away from the center of the
hurricane. Damage from a tornado results from the high wind
velocity and wind-blown debris.
Crop damage is another powerful effect of hurricanes and
tropical storms. Hurricane Katrina made a brief visit to
southern Florida on August 25, 2005 before entering the Gulf
of Mexico and turning toward Louisiana. Portions of the states
of Alabama, Florida, Louisiana and Mississippi were affected
by hurricane force winds. The estimated crop, livestock and
fish losses in those states affected by Hurricane Katrina are
estimated to be $882 million (USDA, 2005). According to the
1997 Florida Statistical Abstract, of Indian River County's
311,112 total land acreage, 174,673 acres are farmland. With
54% of its land area being farmed, Indian River County is
particularly vulnerable to crop damage resulting from the wind
and rain from hurricanes and tropical storms.
Florida is the most vulnerable state in the nation to the impacts
of tropical storms. The topography of south central Florida
makes it particularly vulnerable to the effects of hurricanes and
tropical storms; this area is primarily a flat, low-lying plain. The
potential for property damage and human casualties is
increased by the rapid growth of the county, particularly in the
most vulnerable areas along the shoreline, combined with
complacency by hurricane infrequency.
Indian River County Comprehensive Emergency Management Plan Basic Page 9
b. Flooding
Riverine flooding occurs when the flow of rainwater runoff
exceeds the carrying capacities of the natural drainage
systems. During extended periods of heavy rainfall, certain
low-lying neighborhoods within the county are subject to
considerable flood damage and isolation caused by the
inability of natural and mechanical drainage systems to
effectively remove the water. Heavy rainfalls can cause
considerable damage to the county infrastructure of roadbeds,
bridges, drainage systems and the water supply.
The buildup of uncontrolled sediment contributes to the
problem of inadequate drainage in natural and mechanical
drainage systems. When a storm produces an overwhelming
amount of storm water runoff, the accumulation of loose
sediment causes flooding by clogging the drainage systems.
In comparison to riverine flooding, coastal flooding is usually
the result of a severe weather system such as a tropical storm
or hurricane. The damaging effects of coastal floods are
caused by a combination of storm surge, wind, rain, erosion,
and battering by debris. All coastal property and inhabitants
are subject to severe damage and loss of like resulting from
floods caused by hurricane associated storm surge. Some
coastal property, road arteries, and bridge approaches are
subject to severe flooding caused by rare astronomical tides as
well.
In Indian River County, several variations of flood hazards
occur due to the different effects of severe thunderstorms,
hurricanes, seasonal rains, and other weather related
conditions. For the majority of the county, the primary causes
of flooding are hurricanes or tropical storms. However, the
county's low-lying topography, combined with its subtropical
climate, makes it vulnerable to riverine flooding.
Indian River County Comprehensive Emergency Management Plan Basic Page 10
C. Severe Thunderstorms and Lightning
A severe thunderstorm is defined as a thunderstorm containing
one or more of the following phenomena: hail 3/4 inch or
greater, winds gusting in excess of 57.5 mph, and/or a tornado
(National Oceanic and Atmospheric Administration, National
Weather Service, 1994). Severe weather can include
lightning, tornadoes, damaging straight-line winds, and large
hail. Most individual thunderstorms only last several minutes;
however, some can last several hours.
Long-lived thunderstorms are called super cell thunderstorms.
A super cell is a thunderstorm that has a persistent rotating
updraft. This rotation maintains the energy release of the
thunderstorm over a much long time than typical, pulse -type
thunderstorms, which occur in the summer months. Super cell
thunderstorms are responsible for producing the majority of
severe weather, such as large hail and tornadoes (National
Oceanic and Atmospheric Administration). Downbursts are
also occasionally associated with severe thunderstorms. A
downburst is a strong downdraft resulting in an outward burst
of damaging winds on or near the ground. Downburst winds
can produce damage similar to a strong tornado. Although
usually associated with thunderstorms, downbursts can occur
with showers too weak to produce thunder (National Oceanic
Atmospheric Administration). Strong squall lines can also
produce widespread severe weather, primarily very strong
winds and/or micro bursts.
When a severe thunderstorm approaches, the National
Weather Service will issue an advisory. According to the
National Oceanic and Atmospheric Administration NWS (1994)
two possible advisories are as follows:
• Severe Thunderstorm Watch:
Conditions are favorable for the development of severe
thunderstorms.
• Severe Thunderstorm Warning:
Severe weather is imminent or occurring in the area.
Indian River County Comprehensive Emergency Management Plan Basic Page 11
(1) Lightning
Perhaps the most dangerous and costly effect of
thunderstorms is lightning. As a thunderstorm grows,
electrical charges build up within the cloud. Oppositely
charged particles gather at the ground below. The
attraction between positive and negative charges
quickly grows strong enough to overcome the air's
resistance to electrical flow. Racing toward each other,
the charges connect and complete the electrical circuit.
Charge then surges upward from the ground at nearly
one-third the speed of light and produces a bright flash
of lightning (Cappella, 1997).
On average, lightning kills more people than any other
weather event. Florida leads the nation in lightning
related deaths and injuries (National Lightning Safety
Institute). Most lightning strike fatalities occur in June,
July and August. Florida also has the most strikes,
about 12 strikes per square kilometer per year in some
places (National Lightning Safety Institute). Nationwide,
lightning -related economic losses amount to more than
$5 billion per year, and the airline industry alone loses
approximately $2 billion a year in operating costs and
passenger delays from lightning (National Lightning
Safety Institute).
d. Wildfire/Urban Interface Zone
The recent wildfires that burned throughout Florida, specifically
central Florida, are examples of the increasing wildfire threat,
which results from the Wildland/Urban Interface. The
Wildland/Urban Interface is defined as the area where
structures and other human development meet with
undeveloped wildland or vegetative fuels (Federal Emergency
Management Agency, 1996). As residential areas expand into
relatively untouched wildlands, people living in these
communities are increasingly threatened by forest fires.
Indian River County Comprehensive Emergency Management Plan Basic Page 12
There are three different classes of wildland fires: surface,
ground, and crown. A surface fire is the most common type
and burns along the floor of a forest, moving slowly and killing
or damaging trees. A ground fire is usually started by lightning
and burns on or below the forest floor. Crown fires spread
rapidly by wind and move quickly by jumping along the tops of
trees.
Rural and large tracts of unimproved lands are susceptible to
brush and forest fires capable of threatening life, safety, and
property loss in adjacent developed areas if not effectively
controlled. Wildfires are caused by numerous sources
including arson, smoker carelessness, individuals burning
debris, equipment throwing sparks, and children playing with
matches. However, the largest number of fires is caused by
lightning strikes and coincides with the height of the
thunderstorm season. A major wildland fire can leave a large
amount of scorched and barren land, and these areas may not
return to pre -fire conditions for decades. If the wildland fire
destroys the ground cover, other potential hazards may
develop (e.g., erosion) (Federal Emergency Management
Agency, 1998).
However, some plant and animal communities in south central
Florida have come to depend on frequent lightning -ignited
wildfires for their continued existence. Many threatened and
endangered species depend on the periodic burning of
defense scrub. Fire suppression and landscape fragmentation
have disrupted this natural cycle, but prescribed burns provide
the missing link.
Structures in the Wildland/Urban Interface zone are vulnerable
to ignition by three different ways: radiation, convection, and
firebrands (National Wildland/Urban Interface Fire Protection
Program). Radiating heat from a wildfire can cause ignition by
exposure to the structure. The chances of ignition increase as
the size of the flames increases, surface areas exposed to
flames increases, length of exposure time increases, and
distance between the structure and the flames decreases.
Indian River County Comprehensive Emergency Management Plan Basic Page 13
Another source of ignition by wildfire is convection. Ignition of
a structure by convection requires the flame to come in contact
with the structure. Contact with the convection column is
generally not hot enough to ignite a structure. Clearing to
prevent flame contact with the structure must include any
materials capable of producing even small flames. Wind will
tilt the flame and the convection column uphill, increasing the
chance of igniting a structure.
Firebrands also pose a threat to structures in the
Wildland/Urban Interface zone. A firebrand is a piece of
burning material that detaches from a fire due to strong
convection drafts in the burning area. They can be carried a
long distance (around 1 mile) by fire drafts and winds. The
change of these firebrands igniting a structure depends on the
size of the firebrand, how long it burns after contact, and the
materials, design and construction of the structure.
The Division of Forestry and/or federal fire control personnel
protect one-third of Indian River County's total land; however,
due to limited state and federal resources, the Indian River
County Emergency Services Fire Division responds to most
wildfires and is supported by the Florida Division of Forestry.
Most wildfires in the county occur in Florida's dry season, from
January through May.
(1) Muck Fires
A muck fire is a fire that consumes all the organic
material of the forest floor and also burns into the
underlying soil. It differs from a surface fire by being
invulnerable to winds. If the fire gets deep into the
ground, it could smolder for several years. In a surface
fire, the flames are visible and burning is accelerated by
wind; whereas, in a muck fire wind is not generally a
serious factor (Canadian Soil Information System,
1996).
Indian River County Comprehensive Emergency Management Plan Basic Page 14
Muck fires are not a frequent threat to Florida.
However, during a drought in the 1980's fires in the
Everglades consumed the rich, dried out muck that had
once been the bottom of the swamp. These fires
burned deep into the ground and required alternative
fire -fighting techniques to extinguish them.
e. Tornado
A tornado is a violent windstorm characterized by a twisting,
funnel -shaped cloud extending to the ground. It is generated
by a thunderstorm or hurricane when cool air overrides a layer
of warm air, forcing the warm air to rise rapidly. The most
common type of tornado, the relatively weak and short-lived
type, occurs in the warm season with June being the peak
month. The strongest, most deadly tornadoes occur in the
cool season, from December through April (Florida Department
of Community Affairs, 1998). Occasional windstorms
accompanied by tornadoes, such as the winter storm of 1993,
are also widespread and destructive.
The damage from a tornado is a result of the high wind velocity
and wind-blown debris. Florida's average is 54 tornadoes
annually since 1959, causing an average of two fatalities and
69 injuries each year (Florida Department of Community
Affairs, 1998). Indian River County's vulnerability to tornadoes
is compounded by the high concentration of mobile home
residents in large mobile home communities.
The National Weather Service issues two types of alerts:
A Tornado Watch means that conditions are favorable
for tornadoes to develop; and
A Tornado Warning means that a tornado has actually
been sighted.
Indian River County Comprehensive Emergency Management Plan Basic Page 15
Extreme Temperatures
(1) Freezing Temperatures
Florida has experienced many severe freezes that have
resulted in the loss of the majority of winter crops.
Freezes pose a major hazard to the agriculture industry
in Indian River County and are a significant threat to its
economic vitality. According to the Department of
Agriculture and Consumer Services, moderate freezes
occur every one to two years in the state. Severe
freezes may be expected on an average of once every
15 to 20 years (Florida Department of Community
Affairs, 1998). Since December 1889, there have been
at least 22 recorded severe freezes (Florida Department
of Community Affairs); the most recent being in 1996,
when a Presidential Disaster Declaration was issued for
crop losses exceeding $90 billion. During this event,
there was extensive loss of citrus trees throughout the
state and the majority has not been replanted.
Freezing conditions primarily affect agriculture and
homeless indigents. When conditions are predicted to
be below freezing, shelters may be opened.
(2) Extreme Heat
Temperatures that remain 10°F or more above the
average high temperature for a region and last for
several weeks are defined as extreme heat (Federal
Emergency Management Agency, 1996). Humid
conditions, which add to the discomfort of high
temperatures, occur when an area of high atmospheric
pressure traps hazy, damp air near the ground. The
highest temperature ever recorded in the state was on
June 29, 1931 at 103°F in Monticello at an elevation of
207 ft (NCDC, 1996). In a normal year, approximately
175 Americans die of extreme heat. However, in 1995
the death toll was 1,021 (National Oceanic Atmospheric
Administration, 1997).
Indian River County Comprehensive Emergency Management Plan Basic Page 16
Human bodies dissipate heat in one of three ways: by
varying the rate and depth of blood circulation; by losing
water through the skin and sweat glands; and by
panting. As the blood is heated to above 98.6°F, the
heart begins to pump more blood, blood vessels dilate
to accommodate the increased flow, and the bundles of
tiny capillaries penetrating through the upper layers of
skin are put into operation. The body's blood is
circulated closer to the surface, and excess heat is
released into the cooler atmosphere. At the same time,
water diffuses through the skin as perspiration. The skin
handles about 90% of the body's heat dissipating
function (Darling).
Heat disorders generally have to do with a reduction or
collapse of the body's ability to cool itself by circulatory
changes and sweating, or a chemical (salt) imbalance
caused by too much sweating. When the body cannot
cool itself, or when it cannot compensate for fluids and
salt lost through perspiration, the temperature of the
body's inner core begins to rise and heat -related illness
may develop. Studies indicate that, other things being
equal, the severity of heat disorders tends to increase
with age. Heat cramps in a 17 -year-old may be heat
exhaustion in someone 40 and heat stroke in a person
over 60 (Darling).
When the temperature gets extremely high, the National
Weather Service has increased its efforts to alert the
general public as well as the appropriate authorities by
issuing Special Weather Statements. Residents should
heed these warnings to prevent heat related medical
complications. As a result of the latest research
findings, the National Weather Service has devised the
"Heat Index" (HI). The HI, given in degrees Fahrenheit,
is an accurate measure of how hot it really feels when
relative humidity is added to the actual air temperature.
The National Weather Service will initiate alert
procedures when the HI is expected to exceed 105EF
for a least two consecutive days. Possible heat
disorders related to the corresponding HI are listed
below (Darling).
Indian River County Comprehensive Emergency Management Plan Basic Page 17
• Heat Index of 130°F or Higher:
Heatstroke/sunstroke highly likely with continued
exposure
• Heat Index of 105°F -130°F:
Sunstroke, heat cramps, and heat exhaustion
likely and heatstroke possible with prolonged
exposure and/or physical activity
• Heat Index of 90°F -105°F:
Sunstroke, heat cramps, and heat exhaustion
with prolonged exposure and/or physical activity
• Heat Index of 80°F -90°F:
Fatigue possible with prolonged exposure and/or
physical activity
g. Erosion
(1) Soil Erosion
Soil erosion is the deterioration of soil by the physical
movement of soil particles from a given site. Wind,
water, animals, and the use of tools by man may all be
reasons for erosion. The two most powerful erosion
agents are wind and water but in most cases these are
damaging only after man, animals, insects, diseases, or
fire have removed or depleted natural vegetation.
Accelerated erosion caused by human activity is the
most serious form of soil erosion, and can occur so
rapidly that surface soil may sometimes be blown or
washed away down to the bedrock.
Undisturbed by man, soil is usually covered by shrubs
and trees, dead and decaying leaves, or a thick mat of
grass. Whatever the vegetation, it protects the soil
when rain falls or wind blows. Root systems of plants
hold soil together. Even in drought, the roots of native
grasses, which extend several feet into the ground, help
tie down the soil and keep it from blowing away. With
its covering of vegetation stripped away, soil is
vulnerable to damage. Whether the plant cover is
disturbed by cultivation, grazing, deforestation, burning,
or bulldozing, once the soil is bare to the erosive action
of wind and water, the slow rate of natural erosion is
greatly increased. Losses of soil take place much
faster than new soil can be created. With the
Indian River County Comprehensive Emergency Management Plan Basic Page 18
destruction of soil structure, eroded land is even more
susceptible to erosion.
The occurrence of erosion has greatly increased,
usually at a rate at which soils cannot be sustained by
natural soil regeneration. This is because of the
activities of modern development and population
growth, particularly agricultural intensification. It is also
in the field of agriculture that most efforts have been
made to conserve soils, with mixed success (Union of
International Associations).
Particles scattered by erosion can also cause problems
elsewhere. Storm water drainage systems, both natural
and mechanical, are frequently clogged by loose
sediment. If drainage systems are not cleared of
uncontrolled sediment on a regular basis, they lose
function.
(2) Beach Erosion
Wind, waves, and long shore currents are the driving
forces behind coastal erosion. This removal and
deposition of sand permanently changes beach shape
and structure (Sea Grant Haznet, 1998). Most
beaches, if left along to natural processes, experience
natural shoreline retreat. As houses, highways,
seawalls, and other structures are constructed on or
close to the beach, the natural shoreline retreat
processes are interrupted. The beach jams up against
these man-made obstacles and narrows considerably
as the built-up structures prevent the beach from
moving naturally inland. When buildings are constructed
close to the shoreline, coastal property soon becomes
threatened by erosion.
The need for shore protection often results in
"hardening" the coast with a structure such as a seawall
or revetment.
A seawall is a large concrete wall designed to protect
buildings or other man-made structures from beach
erosion. A revetment is a cheaper option constructed
with "rip rap" such as large boulders, concrete rubble, or
Indian River County Comprehensive Emergency Management Plan Basic Page 19
even old tires. Although these structures may serve to
protect beachfront property for a while, the resulting
disruption of the natural coastal processes has serious
consequences for all beaches in the area. Seawalls
inhibit the natural ability of the beach to adjust its slope
to the ever-changing ocean wave conditions. Large
waves wash up against the seawall and rebound back
out to sea carrying large quantities of beach sand with
them. With each storm the beach narrows, sand is lost
to deeper water, and the long shore current scours the
base of the wall. Eventually, large waves impact the
seawall with such force that a bigger structure becomes
necessary to continue to resist the forces of the ocean
(Pilkey and Dixon, 1996).
h. Agricultural Pest and Disease
Florida is among the tope three agriculture -producing states in
the nation. Agriculture generates farm cash receipts of nearly
$6 billion annually, of which citrus and vegetable crops
contribute more than 40%. The industry is susceptible to many
hazards including freezes, droughts, and exotic pests or
diseases. Agricultural crops are grown throughout the state
and every region is vulnerable to the effects of an exotic pest
or disease infestation. As a result, Florida uses the second
highest volume of pesticides in the nation.
Agriculture and citrus production play a key role in the Indian
River County economy; 54% of the county is farmland. The
2007 Census of Agriculture from the U.S. Department of
Commerce valued Indian River County farms at $824 million
with an annual production market value of $136 million.
The main threats to the Indian River County agriculture
industry are 1) citrus canker, 2), Mediterranean fruit fly
(medfly), 3) Sugarcane pests, and 4) Tomato Yellow Leaf Curl
Virus (TYLCV).
(1) Citrus Canker
Citrus canker has been found in Dade County and the
potential for its spread to other counties is high. Citrus
canker is a bacterial disease of citrus that causes
premature leaf and fruit drop. It affects all types of
citrus, including oranges, sour oranges, grapefruit,
tangerines, lemons and limes. Symptoms found on
Indian River County Comprehensive Emergency Management Plan Basic Page 20
leaves and fruit are brown, raised lesions surrounded by
oily, water -soaked areas and a yellow ring or halo
(Florida Department of Agriculture and Consumer
Services).
There is no known chemical compound that will destroy
the citrus canker bacteria. In order to eradicate the
disease, infected trees must be cut down and disposed
of properly. If is a highly contagious disease that can
be spread rapidly by windborne rain, lawnmowers and
other landscaping equipment, animals and birds, people
carrying the infection on their hands or clothing, and
moving infected or exposed plants or plant parts
(Florida Department of Agriculture and Consumer
Services).
Overall, 2004 was a very destructive and costly
hurricane season. The state was ravaged by four
hurricanes from mid-August to late September. Two
hurricanes within three weeks struck Indian River
County. As if that weren't damaging enough, agriculture
officials suggest that wind and rain generated by the
hurricanes helped spread the citrus canker disease to
the Indian River citrus -growing region. The Indian River
Citrus League reports that over 9,000 acres have been
destroyed to date (Doug Bournique, 6/05).
(2) Mediterranean Fruit Fly (Medfly)
Another threat to Indian River County's agriculture
industry is the medfly. It is one of the world's most
destructive fruit pests and attacks more than 260
different fruits, vegetables, flowers and nuts. It is
considered the greatest pest threat to Florida's $1.5
billion citrus crop, as well as endangering many other
economically significant crops (Florida Department of
Agriculture and Consumer Services). For example, a
medfly outbreak in 1997 cost an estimated $26 million
to eradicate (Florida Department of Community Affairs,
1998).
If a long-term or widespread medfly infestation were to
occur, Florida growers would not be permitted to ship
numerous fruit and vegetable crops to many foreign and
domestic markets. The movement of fruits and
Indian River County Comprehensive Emergency Management Plan Basic Page 21
vegetables, even within the state, would be disrupted
which could lead to higher prices in the supermarket.
Costly post-harvest treatment of fruits and vegetables to
meet quarantine restrictions of domestic and foreign
markets would also be required. If the medfly is not
eradicated in Florida, on-going pesticide treatments by
homeowners and commercial growers will be
necessary.
Adult medflies are up to 1/4" long, black with yellow
abdomens, and have yellow marks on their thoraxes.
Their wings are banded with yellow. The female Medfly
damages produce by laying eggs in the host fruit or
vegetable. The resulting larvae feed on the pulp,
rendering the produce unfit for human consumption. In
addition to citrus, medflies will feed on hundreds of
other commercial backyard fruit and vegetable crops.
Because medflies are not strong fliers, the pest is
spread by the transport of larval -infested fruit. The
major threats come from travelers, the U.S. mail, and
commercial fruit smugglers. Several steps have been
taken to prevent new infestations. State and federal
officials are working with postal authorities to develop
ways to inspect packages suspected of carrying
infested fruit. In addition, public education efforts
carrying the message, "Don't Spread Med" are being
expanded (Florida Department of Agriculture and
Consumer Services).
(3) Sugarcane Pests
Changes in sugarcane agriculture, including new
disease and insect pests, have seriously impacted the
quality of cane and juice delivered to the mill for
processing. These changing developments affect the
level of sucrose, purity, fiber, and color of cane resulting
in a loss of sugar and decrease in the quantity and
quality of sugar produced (Legendre et. al, 1998).
(4) Tomato Yellow Leaf Curl Virus (TYLCY)
The Tomato Yellow Leaf Curt Virus is believed to have
entered the state in Dade County sometime in early
1997 (Florida Department of Agriculture and Consumer
Indian River County Comprehensive Emergency Management Plan Basic Page 22
Services, 1997). Symptoms vary among tomato types,
but in general leaves produced shortly after infection
are reduced in size, distorted, cupped inward or
downward, and have a yellow mottle. Less than one in
10 flowers will produce fruit after TYLCV infection,
severely reducing yields.
The virus is transmitted by adult silverleaf whiteflies.
Although frequent applications of pesticides help to
decrease whitefly populations and suppress the spread
of TYLCV, virus management through whitefly control is
not possible in years where whitefly populations are
high. Fortunately, the virus is not transmitted through
seed or casual contact with infected plants.
Drought
Drought is a normal, recurrent feature of climate, although
many perceive it as a rare and random event. In fact, each
year some part of the U.S. has severe or extreme drought.
Although it has many definitions, drought originates from a
deficiency of precipitation over an extended period of time,
usually a season or more (National Drought Mitigation Center,
1998). It produces a complex web of impacts that spans many
sectors of the economy and reaches well beyond the area
producing physical drought. This complexity exists because
water is essential to our ability to produce goods and provide
services (National Drought Mitigation Center, 1998).
A few examples of direct impacts of drought are reduced crop,
rangeland, and forest productivity; increased fire hazard;
reduced water levels; increased livestock and wildlife mortality
rates; and damage to wildlife and fish habitat. Social impacts
include public safety, health, conflicts between water users,
reduced quality of life, and inequities in the distribution of
impacts and disaster relief. Income loss is another indicator
used in assessing the impacts of drought; reduced income for
farmers has a ripple effect throughout the region's economy
(National Drought Mitigation Center, 1998).
The web of impacts is so diffuse that it is very difficult to come
up with financial estimates of damages. However, the Federal
Emergency Management Agency (FEMA) estimates $6-$8
billion in losses as the annual average (Federal Emergency
Indian River County Comprehensive Emergency Management Plan Basic Page 23
Management Agency, 1995). The worst drought in recent
history occurred in 1987-1989, and the NCDC reports the
estimated cost as $40 billion (National Drought Mitigation
Center, 1998).
In Indian River County, the primary sources of water are deep
wells for utility systems and shallow wells for rural areas.
Excess water from an interconnected series of lakes, rivers,
canals and marshes flows either north to the St. Johns River or
east to the Indian River Lagoon. When this cycle is disrupted
by periods of drought, one of the potentially most damaging
effects is substantial crop loss in the western agricultural areas
of the county. In addition to obvious losses in yields in both
crop and livestock production, drought in Indian River County
is associated with increases in insect infestations, plant
disease, and wind erosion. The incidence of forest fires
increases substantially during extended droughts, which in turn
places both human and wildlife populations at higher levels of
risk.
The St. Johns River Water Management District and County
staff manage the county's water resources. Complementing
the District's water management efforts during periods of
critical water shortage, a countywide, uniform, forceful,
contingency plan is in place to effectively restrict the use of
water.
Pandemic Outbreak/Epidemic
Infectious diseases emerging throughout history have included
some of the most feared plagues of the past. New infections
continue to emerge today, while many of the old plagues are
still with us. As demonstrated by influenza epidemics, under
suitable circumstances, a new infection first appearing
anywhere in the world could travel across entire continents
within days or weeks (Morse, 1996). Due to the potential of
complex health and medical conditions that can threaten the
general population, Florida's vulnerability to an epidemic is
continually being monitored. With millions of tourists arriving
and departing the state annually, disease and disease
exposure (airborne, vector, and ingestion) are constantly
evaluated and analyzed (Florida Department of Community
Affairs, 1998).
Indian River County Comprehensive Emergency Management Plan Basic Page 24
Primarily as a result of the entrance of undocumented aliens
into south Florida, and the large number of small wildlife,
previously controlled or eradicated diseases have surfaced.
Health officials closely monitor this potential threat to the public
health. The emphasis upon preventive medical measures
such as school inoculation, pet licensing, rodent/insect
eradication, water purification, sanitary waste disposal, health
inspections, and public health education, mitigate this potential
disaster.
Another potential threat to south Florida's population is food
contamination. Frequent news stories document that E -coli
and botulism breakouts throughout the country are not that
uncommon. Most recently, millions of pounds of possibly
contaminated beef from the Hudson packing plant were seized
by the Department of Agriculture and destroyed.
k. Seismic Hazards
(1) Dam/Levee Failure
Dam/levee failure poses a minor threat to population
and property in Indian River County. All dams and
levees are earthen structures and are state, regional,
local, or privately controlled. The most significant risk
related to dam/levee failure is flooding due to
substantial rainfall and its eastward migration to final
discharge in the Indian River Lagoon. Structural and
non-structural techniques to slow and contain this runoff
incorporate several drainage systems, some dating
back to 1919. Rainfall in excess of designed capacities
could cause erosion of constructed drainage facilities
and flooding of many areas including primary roadway
evacuation routes.
(2) Earthquakes
Although Florida is not usually considered to be a state
subject to earthquakes, several minor shocks have
occurred over time, but only one caused any damage
(Zirbes, 1971).
Indian River County Comprehensive Emergency Management Plan Basic Page 25
In January 1879, a shock occurred near St.
Augustine that is reported to have knocked
plaster from walls and articles from shelves.
Similar effects were reported in Daytona Beach.
The shock was felt in Tampa, throughout central
Florida, and in Savannah, Georgia as well
(Zirbes, 1971).
In January 1880, another earthquake occurred.
This time Cuba was the focal point. Shock
waves were sent as far north as the town of Key
West, Florida (Zirbes, 1971).
In August 1886, Charleston, South Carolina was
the center of a shock that was felt throughout
northern Florida. It rang church bells in St.
Augustine and severely jolted other towns along
sections of Florida's east coast.
Jacksonville residents felt many of the strong
after shocks that occurred in September,
October, and November 1886 (Zirbes, 1971).
In June 1893, Jacksonville experienced a minor
shock that lasted about 10 seconds. Another
earthquake occurred in October 1893, which
also did not cause any damage (Zirbes, 1971).
In November 1948, doors and windows rattled in
Captiva Island, west of Ft. Myers. It was
reportedly accompanied by sounds like distance
heavy explosions (Zirbes, 1971).
In November 1952, a slight tremor was felt in
Quincy, a town located 20 miles northwest of
Tallahassee. Windows and doors rattled, but no
damage was reported (Zirbes, 1971).
(3) Sinkholes and Subsidence
Sinkholes are a common feature of Florida's landscape.
They are alone one of many kinds of karst landforms,
which include caves, disappearing streams, springs,
and underground drainage systems, all of which occur
in Florida. Karst is a generic term which refers to the
characteristic terrain produced by erosional processes
Indian River County Comprehensive Emergency Management Plan Basic Page 26
associated with the chemical weathering and dissolution
of limestone or dolomite, the two most common
carbonate rocks in Florida. Dissolution of carbonate
rocks begins when they are exposed to acidic water.
Most rainwater is slightly acidic and usually becomes
more acidic as it moves through decaying plant debris.
Limestones in Florida are porous, allowing the acidic
water to percolate through them, dissolving some
limestone and carrying it away in solution. Over time,
this persistent erosion process has created extensive
underground voids and drainage systems in much of
the carbonate rocks throughout the state. Collapse of
overlying sediments into the underground cavities
produces sinkholes (Florida Geological Survey, 1998).
2. Technological Hazards
a. Radiological Accidents
While an actual release of radioactive material is extremely
unlikely and the immediate threat to like extremely low,
vulnerability to a nuclear plant disaster could consist of long
range health effects with temporary and permanent
displacement of population from affected areas (Florida
Department of Community Affairs, 1998). The potential
danger from an accident at a nuclear power plant is exposure
to radiation. This exposure could come from the release of
radioactive material from the plant into the environment,
usually characterized by a plume (cloud like) formation. The
area the radioactive release may affect is determined by the
amount released from the plant, wind direction and speed, and
weather conditions (e.g., rain) which would quickly drive the
radioactive material into the ground, hence causing increased
deposition of radio nuclides.
Thirty of the 67 counties in the State of Florida are involved in
preparedness planning for a commercial nuclear power plant
emergency. Emergency Planning Zones (EPZ) have been
designated for each power plant to enhance planning efforts
for an emergency. An EPZ is comprised of two zones, the 10 -
mile plume exposure zone and the 50 -mile ingestion exposure
zone (Florida Community Affairs, 1998). Specific coordinating
procedures for response to a General Emergency at a nuclear
power plant have been prepared in the form of Standard
Operating Procedures. These include Emergency
Indian River County Comprehensive Emergency Management Plan Basic Page 27
Classification Levels, which assist in notifying the public if a
problem occurs at a plan. They are defined by four categories
(Federal Emergency Management Agency, 1997):
Notification of Unusual Event - The event
poses no threat to plan employees, but
emergency officials are notified. No action by
the public is necessary.
• Alert - An event has occurred that could reduce
the plant's level of safety, but back-up systems
still work. Emergency agencies are notified and
kept informed, but no action by the public is
necessary.
Site Area Emergency - The event involves
major problems with the plant's safety and has
progressed to the point that a release of some
radioactivity into the air or water is possible, but
is not expected to exceed Environmental
protection Agency Protective Action Guidelines
(PAGs). Thus, no action by the public is
necessary.
General Emergency - The event has caused a
loss of safety systems. If such an event occurs,
radiation could be released that would penetrate
the site boundary. State and local authorities will
take action to protect the residents living near
the plant. The alert and notification system will
be sounded. People in the affected areas could
be advised to evacuate, or in some situations, to
shelter in place. When the sirens are sounded,
radio and television alerts will have site-specific
information and instructions.
The St. Lucie Nuclear Power Plant is located 12 miles
southeast of the City of Ft. Pierce on Hutchinson Island in St.
Lucie County. The facility contains two reactors and is owned
and operated by the Florida Power & Light Corporation.
Counties within the 50 -mile EPZ include all or portion of St.
Lucie, Martin, Glades, Osceola, Okeechobee, Brevard,
Highlands, Palm Beach and Indian River.
Indian River County Comprehensive Emergency Management Plan Basic Page 28
b. Power Failure (outages)
In the U.S., from July 2 to August 10, 1996, the Western
States Utility Power Grid reported widespread power outages
that affected millions of customers in several western states
and adjacent areas of Canada and Mexico. These problems
resulted from a variety of related causes, including sagging
lines due to hot weather, flashovers from transmission lines to
nearby trees, and incorrect relay settings. According to the
electric utility industry's trade association, the potential for such
disturbances is expected to increase with the profound
changes now sweeping the electric utility industry.
To address times when generating capacity is tight, or falls
below consumer demand due to state or local emergencies,
the Florida Electrical Emergency Contingency Plan was
developed. Alerts have been created to give early warning of
potential electricity shortfalls and bring utilities, emergency
management officials, and the general public to a state of
preparedness. The Contingency Plan has four stages (Florida
Reliability Coordinating Council):
Generating Capacity Advisory - A Generating
Capacity Advisory is primarily for information purposes.
It starts utility tracking activities, and it initiates inter -
utility and inter -agency communication. No action by
the public is required. General information may be
distributed to consumers to forewarn them of conditions
if necessary.
Generating Capacity Alert - A Generating Capacity
Alert starts actions to increase reserves. Available
emergency supply options will be explored. When
reserves fall below the size of the largest generating
unit in the state, loss of that size unit to an unexpected
mechanical failure could lead to blackouts somewhere
since insufficient backup is available.
Generating Capacity Emergency - A Generating
Capacity Emergency occurs when blackouts are
inevitable somewhere in Florida. Every available
means of balancing supply and demand will be
exhausted. Rolling blackouts, manually activated by
utilities, are a last resort to avoid system overload and
Indian River County Comprehensive Emergency Management Plan Basic Page 29
possible equipment damage. Frequent status reports
are provided to agencies and the media. The Division
of Emergency Management will consider using the
Emergency Alert System to inform citizens of events
and to direct them to available shelters if conditions
warrant. Recognizing the consequences of a loss of
electricity, individual utility emergency plans include
provisions for special facilities critical to the safety and
welfare of citizens.
• System Load Restoration - System Loan Restoration
is instituted when rolling blackouts have been
terminated and power supply is adequate. It is the
recovery stage, and efforts are made to provide
frequent system status reports.
C. Hazardous Materials Accidents
Hazardous materials accidents can occur anywhere there is a
road, rail line, pipeline, or fixed facility storing hazardous
materials. Virtually the entire state is at risk to an
unpredictable accident of some type. Most accidents are small
spills and leaks, but some result in injuries, property damage,
environmental contamination, and other consequences. These
materials can be poisonous, corrosive, flammable, radioactive,
or pose other hazards and are regulated by the Department of
Transportation. Out of approximately 1,753 hazardous
materials incidents reported statewide in 2009, four known
fatalities were reported, 8% resulted in injuries, and less than
17% resulted in evacuation (State Emergency Response
Commission for Hazardous Materials, Annual Report 2009).
Emergencies involving hazardous materials can be expected
to range from a minor accident with no off-site effects to a
major accident that may result in an off-site release of
hazardous or toxic materials. The overall objective of chemical
emergency response planning and preparedness is to
minimize exposure for a wide range of accidents that could
produce off-site levels of contamination in excess of Levels of
Concern established by the U.S. Environmental Protection
Agency. Minimizing this exposure will reduce the
consequences of an emergency to people in the area near to
facilities which manufacture, store, or process hazardous
materials (Treasure Coast Regional Planning Council).
Indian River County Comprehensive Emergency Management Plan Basic Page 30
A large volume of hazardous materials is transported to and
through the county by railroad and highway, air, water, and
pipeline daily. Within Indian River County, there are a number
of both public and private fixed facilities, which produce or use
hazardous materials. Coordinating procedures for hazardous
material response are found within the county's Emergency
Plan for Hazardous Materials.
In addition to the county's Emergency Plan for Hazardous
Materials, Local Emergency Planning Committee officials have
prepared a plan for use in responding to and recovering from a
release of hazardous or toxic materials. This plan addresses
the range of potential emergency situations and the
appropriate measures to be implemented to minimize
exposure through inhalation, ingestion, or direct exposure
(Treasure Coast Regional Planning Council).
Mishandling and improper disposal or storage of medical
wastes and low-level radioactive projects from medical use are
also a hazard to Indian River County. For example, a few
years ago an incident occurred in New Jersey when improper
disposal of medical wastes resulted in some of the used
projects ending up on Atlantic Ocean beaches.
d. Transportation System Accidents.
Florida has a large transportation network consisting of major
highways, airports, marine ports, and passenger railroads.
The heavily populated areas of Indian River County are
particularly vulnerable to serious accidents, which are capable
of producing mass casualties. With the linear configuration of
several major highways in Indian River County, such as
interstate highways and the Florida Turnpike, major
transportation accidents could occur in a relatively rural area,
severely stressing the capabilities of local resources to
respond effectively. A recent notorious example is the crash in
the Everglades of Value Jet Flight 597 on May 11, 1996, which
resulted in 109 fatalities and a cost of millions of dollars,
severely taxing the financial and public safety resources of
Dade County (Florida Department of Community Affairs,
1998). Similarly, a major transportation accident could involve
a large number of tourists and visitors from other countries,
given Florida's popularity as a vacation destination, further
Indian River County Comprehensive Emergency Management Plan Basic Page 31
complicating the emergency response to such an event.
As a major industrial nation, the U.S. produces, distributes,
and consumes large quantities of oil. Petroleum-based oil is
used as a major power source to fuel factories and various
modes of transportation, and in many everyday products, such
as plastics, nylon, paints, tires, cosmetics, and detergents
(Environmental Protection Agency, 1998). At every point in the
production, distribution, and consumption process, oil is stored
in tanks. With billions of gallons of oil being stored throughout
the country, the potential for an oil spill is significant, and the
effects of spilled oil can pose serious threats to the
environment.
In addition to petroleum-based oil, the U.S. consumes millions
of gallons of non -petroleum oils, such as silicone and mineral -
based oils and animal and vegetable oils. Like petroleum
products, these non -petroleum oils are often stored in tanks
that have the potential to spill, causing environmental damages
that are just as serious as those caused by petroleum-based
oils. To address the potential environmental threat posed by
petroleum and non -petroleum oils, the U.S. Environmental
protection Agency has established a program designed to
prevent oil spills. The program has reduced the number of
spills to less than 1% of the total volume handles each year
(Environmental Protection Agency, 1998).
Indian River County has about 22 miles of Atlantic Ocean
coastline that is subject to contamination caused by an oil spill.
By Executive Order, the responsibility for preparing response
plans for coastal oil spills is designated to the Department of
Environmental Protection, Division of Florida Marine Patrol.
The Florida Coastal Pollutant Spill Plan has been prepared to
coordinate response procedures and recovery efforts after a
spill. There are to active oil field regions in Florida: Escambia
and Santa Rosa counties in the Panhandle, and Collier, Dade,
Hendry, and Lee counties in southwest Florida.
e. Wellfield Contamination
The development of wellfield protection programs is a major
preventative approach for the protection of community drinking
water supplies. Wellfield protection is a means of
Indian River County Comprehensive Emergency Management Plan Basic Page 32
safeguarding public water supply wells by preventing
contaminants from entering the area that contributes water to
the well or wellfield over a period of time. Management plans
are developed for the wellfield protection area that include
inventorying potential sources of ground water contamination,
monitoring for the presence of specific contaminants, and
managing existing and proposed land and water uses that
pose a threat to ground water quality.
Ground water is an essential natural resource. It is a source of
drinking water for more than half of the U.S. population and
more than 95% of the rural population (Browning). In addition,
ground water is a support system for sensitive ecosystems,
such as wetlands or wildlife habitats.
Between 1971 and 1985, there were 245 ground water related
outbreaks of disease, resulting in more than 52,000 individuals
being affected by associated illnesses (Browning). While most
of these diseases were short -tern digestive disorders caused
by bacteria and viruses, hazardous chemicals found in wells
nationwide also pose risks to public health.
The 1986 amendments to the federal Safe Drinking Water act
require states to implement wellfield protection programs for
public water wells. Prevention strategies include maintaining
the isolation distances from potential contamination sources,
reporting to the state violations of the isolation distance, and
asking a local governmental unit to regulate these sources.
Cleaning up contaminated ground water can be technically
difficult, extremely expensive, and sometimes simply cannot be
done. Contaminated ground water also affects the community
by discouraging new businesses or residents from locating in
that community.
Communications Failure
As society emerges from industrial production into the age of
information, we are seeing new kinds of technological
accidents/disasters. Recently, a communications failure
occurred that was the worst in 37 years of satellite serve.
Some major problems with the telecommunications satellite
Galaxy IV drastically affected 120 companies in the paging
industry (Rubin, 1998). Radio and other forms of news
broadcasts also were affected. The pager failure not only
affected personal and business communications, but
Indian River County Comprehensive Emergency Management Plan Basic Page 33
emergency management and medical personnel as well.
g. Military Ordnance from WWII
Unexploded military ordnance is a hazard unique to Indian
River County. The former Fort Pierce Naval Amphibious
Training Base was established in 1942. Training exercises
were conducted on outlying areas of North and South
Hutchinson Islands. Training at the base included testing of
bombs, rockets and mines. Several explosive devices leftover
from these training missions have been found along the shores
of Vero Beach and Ft. Pierce. Public exposure to unexploded
ordnance could occur primarily as a result of three types of
activities: Earth moving (building construction, pool
construction, and major landscaping), recreational diving and
use of beach areas - unexploded ordnance may wash ashore
or be exposed after storms. Prior clean up operations have
been coordinated by the Army Corps of Engineers
(Jacksonville office).
3. Societal Hazards
a. Terrorism and Sabotage
(1) Terrorism
Terrorist attacks may take the form of induced dam or
levee failures, the use of hazardous materials to injure
or kill, or the use of biological weapons to create an
epidemic. While there have not been any successful
acts of terrorism committed in Florida in recent years, it
is recognized that the state has many critical and high-
profile facilities, high concentration of population, and
other potentially attractive venues for terrorist activity
that are inherently vulnerable to a variety of terrorist
methods. Governmental/political, transportation,
commercial, infrastructure, cultural, academic, research,
military, athletic, and other activities and facilities
constitute ideal targets for terrorist attacks which may
cause catastrophic levels of property and environmental
damage, injury, and loss of life. Furthermore, a variety
of extremist groups are known to operate within Florida,
and potential terrorist attacks have been investigated
and averted in recent years (Florida Department of
Indian River County Comprehensive Emergency Management Plan Basic Page 34
Community Affairs, 1998).
Acts of terrorism are also capable of creating disasters,
which threaten the safety of a large number of citizens.
The U.S. has been relatively untouched by the storm of
terrorist activities experienced in other parts of the
world; however, in recent years, an increasing incidence
of terrorism has been recorded in this nation.
The federal government has recognized that the U.S.
has'entered the post -Cold War era. As a result, federal
planning guidelines regarding military threats are in
transition. However, nuclear weapons continue to be a
serious planning concern especially in areas
surrounding military installations. Those involved with
the emergency management of government monitor the
influx of undocumented aliens into south Florida from
areas unfriendly to the interest of the U.S.
(2) Computer Accidents and Sabotage
The President's Commission on Critical Infrastructure
Protection (PCCIP) recently reported that there is
increasing threat that the U.S. could suffer something
similar to an "Electronic Pearl Harbor" (Rubin, 1998).
Networked information systems present new security
challenges in addition to the benefits they offer. Long-
term power outages could cause massive computer
outages, with severe economic impacts such as loss of
sales, credit checking, banking transactions, and ability
to communicate and exchange information and data.
"Today, the right command sent over a network to a
power generating station's control computer could be
just as effective as a backpack full of explosives, and
the perpetrator would be harder to identify and
apprehend," states the PCCIP report.
With the growth of a computer -literate population,
increasing numbers of people possess the skills
necessary to attempt such an attack. The resources to
conduct a cyber attack are now easily accessible
everywhere. A personal computer and an Internet
service provider anywhere in the world are enough to
cause a great deal of harm. Threats include:
Indian River County Comprehensive Emergency Management Plan Basic Page 35
• Human error;
• Insider use of authorized access for
unauthorized disruptive purposes;
• Recreational hackers - with or without hostile
intent;
• Criminal activity - for financial gain, to steal
information or services, or organized crime;
• Industrial espionage;
• Terrorism - including various disruptive
operations; and
• National intelligence - information warfare,
intended disruption of military operations.
The effects of such activities may take the form of
disruption of air traffic controls, train switches, banking
transfers, police investigations, commercial
transactions, defense plans, power line controls, and
other essential functions. As the Internet becomes
more and more important, the loss of its services,
whether by accident or intent, becomes a greater
hardship for those relying on this new form of
communication. Computer failures could affect
emergency communications as well as routine civilian
applications, such as telephone service, brokerage
transactions, credit card payments, Social Security
payments, pharmacy transactions, airline schedules,
etc.
b. Civil Disturbance
As in any other area, Indian River County is subject to civil
disturbances in the form of riots, mob violence, and a
breakdown of law and order in a focalized area. Communities
with racial mixtures, gang violence, and drug trafficking are
increasingly aware of the need to plan for civil disturbance
emergencies. Although they can occur at any time, civil
disturbances are often preceded by periods of increased
tension caused by questionable social and/or political events
such as controversial jury trials or law enforcement actions
(Florida Department of Community Affairs, 1998). These
events may also be precipitated by any event involving large
groups of people and/or special events occurring in the county
(i.e., visiting dignitaries, sporting events, etc.). Police services
Indian River County Comprehensive Emergency Management Plan Basic Page 36
are responsible for the restoration of law and order in any
specific area of the county.
C. Immigration Crisis
Florida's location as the nearest U.S. landmass bordering the
Caribbean basin makes it a chosen point of entry for many
migrants attempting to enter the country illegally. A major
consequence of a mass arrival of illegal immigrants could be
disruptive to the routine functioning of the impacted
community, resulting in significant expenditures related to the
situation. An example of this threat occurred in 1994, when
the state responded to two mass migration incidents. In May
1994, there was an unexpected migration of approximately 100
Haitian refugees, while in August 1994, there was in influx of
700 Cubans (Florida Department of Community Affairs, 1998).
These events are typically preceded by periods of increasing
tension abroad, which can be detected and monitored.
Enforcement of immigration laws is a federal government
responsibility. However, it is anticipated that joint jurisdictional
support of any operation will be required from the state and
local governments.
The Atlantic shore of Indian River County is the frequent scene
of the arrival of undocumented aliens, usually Haitian or
Cuban. The county has both the history and the potential for
the unannounced arrival of a large number of aliens. Until
relieved of the responsibility by the state and federal
governments, Indian River County must be capable of
providing mass refugee care to include shelter, food, water,
transportation, medical, police protection, and other social
services.
Indian River County Comprehensive Emergency Management Plan Basic Page 37
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B. GEOGRAPHIC INFORMATION
Indian River County is located in southeast central Florida, along the Atlantic
Ocean coast. The County has a total area of approximately 543 square
miles (347,520 acres) of which 41.1 square miles (26,298 acres) are water,
and 502 square miles (321,280 acres) are land area. Included in the land
area are five (5) municipalities containing approximately 37.2 square miles
(23,830 acres). Indian River County is about 33 miles wide from east to
west and 22 miles long from north to south. In addition to the Atlantic Ocean
on the east, the County is bounded by Brevard County on the north, St. Lucie
County on the south and Okeechobee and Osceola Counties on the west.
The mainland topography of Indian River County is generally low in
elevation, without significant deviation. However, two ridges parallel the
coast, one about 1 mile inland from the Indian River with elevations up to 30
feet, the other about 10 miles inland with similar elevations. The coastal
barrier islands have typical dune topography with dune elevations of about
15 feet.
In Indian River County, the average rainfall is approximately 55 inches per
year. This rainfall is unevenly distributed, much of it occurring during the
summer and early fall months. The two geographic ridges that parallel the
coast generally divide the drainage area of Indian River County. Areas west
of the inland ridge are relatively flat and drain westward to the St. John's
Marsh, aided by extensive canals, which have been constructed for
agricultural use. The basin area between the ridges is generally low and
relatively flat. The South Prong of the St. Sebastian River and a network of
manmade canals provide drainage of the northern portion of this basin area.
The central and southern portions have essentially no natural watercourses.
This area is drained by an extensive network of manmade canals and
ditches that are interconnected and joined with Main Relief, North Relief, and
South Relief Canals and that discharge into the Indian River.
The occurrence of floods is an important concern for communities with
coasts subject to storm events, or for any community with water bodies and
waterways having flood hazard areas. A flood hazard is any land area that is
susceptible to being inundated by water from any source. Flooding is a
temporary condition of partial or complete inundation of normally dry land
areas. Floods can occur throughout the Indian River County area anytime
during the year; however, they are most frequent during the rainy season
from May to October. The streams and canals in the low area between the
parallel ridges, as well as those that discharge into the St. John's River, are
subject to flooding from prolonged heavy rainfalls.
Indian River County Comprehensive Emergency Management Plan Basic Page 40
Low, swampy, inland areas are subject to flooding during wet periods and
coastal areas of the county are subject to storm surge flooding resulting from
hurricane or tropical storm activity. Areas along the Indian River Lagoon may
also experience flooding from storm surge caused by hurricane winds piling
water against shorelines, causeways and bridges. A diagram of flood prone
areas is attached to this document and identified as Figure 3.
Indian River County Comprehensive Emergency Management Plan Basic Page 41
Figure 3
Flood Prone Areas in Indian River County
(Resource: Flood Insurance Rate Map #12061 C0000, dated May 4, 1999)
Indian River County Comprehensive Emergency Management Plan Basic Page 42
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Nearly two-thirds of the total land area is west of Interstate 95; however,
more than 90% of the population resides in the eastern third of the County,
and is vulnerable to the effects of both man-made and natural disasters. The
City of Fellsmere is the only community in the western part of the County.
The land along the western boundary of the County is used primarily for
range and pasture land with few residential structures. To the east is the St.
Johns marsh, a large freshwater marsh extending the entire length of the
County. Included in this significant wetland is the 6,000 -acre Blue Cypress
Lake. The land between the marsh and 1-95 is devoted primarily to
agriculture, and subject to disaster caused by weather phenomena. Other
than the City of Fellsmere in the north, there is little human settlement in this
area.
The eastern portion of the County can be divided into two major areas: the
mainland and the barrier island. The southern portion of the eastern
mainland is the most highly developed area and contains the highest
population concentration in the County. The central area of the mainland
has experienced sparse development. Residential and commercial activities
are concentrated along the U.S. 1 corridor. A chart depicting the existing
land uses in the coastal area is attached to this document and identified as
Figure 4.
Indian River County Comprehensive Emergency Management Plan Basic Page 43
Figure 4
Source: `Indian River County 2030 Comprehensive Plan
Indian River County Comprehensive Emergency Management Plan Basic Page 44
EXISTING LAND USES 2010*
ACRES
A.
RESIDENTIAL
(1) Single family
(2) Multi -family
(3) Mobile homes
4 Vacant residential
32,761
15,823
1,926
1,084
13,068
B.
COMMERCIAL
5,235
C.
INDUSTRIAL
749
D.
AGRICULTURAL
136,896
E.
RECREATIONAL
1,283
F.
CONSERVATION PUBLICLY OWNED
105,186
G.
PUBLIC FACILITIES
722
H.
OTHER
3,050
TOTAL UNINCORPORATED LAND AREA
272,392
Source: `Indian River County 2030 Comprehensive Plan
Indian River County Comprehensive Emergency Management Plan Basic Page 44
Figure 4A
Future Land Use Map
Indian River County Comprehensive Emergency Management Plan Basic Page 45
The northern mainland portion of the County contains Sebastian, the second
largest city in population. Sometime in the near future, Sebastian is
expected to become the largest city in the County. Agricultural uses in this
area are confined to areas south of the city.
The barrier island can be characterized as three distinct areas. The northern
third of the island is the least developed. Natural vegetation and citrus
groves cover much of the area. The Town of Orchid, known for its high
quality citrus, is located in this northern portion of the island. The Pelican
Island Wildlife Refuge, the first in the nation, occupies several small islands
in the Indian River lagoon as well as some wetland area on the barrier island.
The Sebastian Inlet Recreation Area occupies the northernmost tip of the
island. Portions along this part of the island are designated as undeveloped
coastal barrier.
The island is approximately 22 miles long and averages in width from 100
feet to 11/2 miles. The average height above mean sea level is eight feet
with highs of sixteen feet and lows of two feet above mean sea level. The
island is accessible by four bridges that connect it to the mainland. One
bridge, a two-lane, is located in St. Lucie County and provides access to the
Island from the extreme South. Three bridges in Indian River County provide
accessibility to the island:
• A two-lane bridge in the North county area (Wabasso)
• A four -lane (Merrill Barber Bridge) located in mid -county
A four -lane (17th Street Bridge) also located in mid -county
approximately ten (10) blocks south of the Barber Bridge
Orchid (Hutchinson) Island provides a land barrier to the mainland of any
activity operated in the Atlantic Ocean for the entire coastal area of the
County.
Indian River County is enriched with a diversity of upland and wetland
ecological communities, varying in composition as the county extends from
the Atlantic Ocean and Indian River Lagoon westward to the St. Johns Marsh
and Blue Cypress Lake. A Soil Conservation Service (SCS) publication
entitled "26 Ecological Communities of Florida" identifies at least thirteen
different ecological communities within Indian River County.
Indian River County Comprehensive Emergency Management Plan Basic Page 46
The major ecological communities within Indian River County are identified
as follows:
• South Florida Coastal Strand
• Sand Pine/Xeric Scrub
• South Florida Flatwoods
• Tropical/Coastal Hammocks
• Freshwater Wetlands
• Indian River Lagoon and Associated Estuarine Wetlands
• Near shore Atlantic Ocean
Of particular concern are those ecological communities located in the
eastern portion of the county, where development pressures conflict with the
preservation of diminishing habitats. Tropical hammock communities and
coastal scrub communities are examples of habitats found almost exclusively
in Florida that are in danger of disappearing or being drastically reduced,
along with their unique flora and fauna. A balance of natural system
preservation and the rights of property owners to develop land is an
important issue to be considered as county population and development
growth continues.
C. DEMOGRAPHICS
With a 2009 estimated total resident and seasonal population of 135,167
(U.S. Census Bureau Indian River County Quick Facts) Indian River County
ranks as one of the fastest growing counties in the state of Florida. The
county is supported by an economy based primarily on tourism, light industry,
and agriculture. Area wise, this provides approximately 268 persons per
square mile throughout the entire county. However, the majority of the
County's population resides within the eastern ten miles of the County, or
approximately 600 persons per square mile. A chart representing the
estimated* population centers in the county is attached to this document and
identified as Figure 5.
Additional statistics reveal that much of the immigrating population has
produced a median age in the County that is nearly ten years greater than
that of the median age of the United States.
Indian River County Comprehensive Emergency Management Plan Basic Page 47
Figure 5
POPULATION CENTERS IN THE COUNTY
(2009 Estimates')
MUNICIPALITY POPULATION
Unincorporated County
Vero Beach
91,606
17,855
Sebastian
22,722
Fellsmere
5,183
Indian River Shores
3,804
Orchid
305
Total County Population
141,475
Census Designated Places
2000 Census
Gifford
7,599
Wabasso
918
Roseland
1,775
Vero Beach South
20,362
Florida Ride
15,217
South Beach
3,457
North Beach
243
Winter Beach
965
West Vero
S.R. 60 Corridor
7,695
Wabasso Beach
1,075
Unallocated
12,354
Total Unincorporated
71,660
' Indian River County Community Development Report January 2010
Indian River County Comprehensive Emergency Management Plan Basic Page 48
Population by Age Group in Indian River County ZIP Code Tabulation Areas, Census 2000
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Indian River County houses inmates in two locations. The Indian River
County Jail, located in the unincorporated area of central Indian River
County, inmate population ranges from the least serious misdemeanor
violations to the most serious felony violations of Florida Law and includes
male and females with a wide range of age groups from senior adults to
juvenile offenders. The jail recently underwent renovations (2007) and has
increased the inmate housing capacity to 612. The Indian River Correctional
Institution, located in the unincorporated area of south Indian River County,
was established in 1976 to house youthful offender male inmates (aged 14-
18). It is designated to accept 381 minimum, medium, custody and limited
medical grade inmates. Indian River Correctional Institution provides
academic, vocational and self -betterment programs. More information on
critical facilities can be found in a database maintained by the office of
Emergency Management.
There are 48,638 single-family residential units and 17,967 multi -family
residential units in the County (SOURCE: INDIAN RIVER COUNTY COMMUNITYDEVELOPMENT
DRAFT 2030 COMPREHENSIVE PLAN: FUTURE LAND USE ELEMEN7). Additionally, there are
approximately 7,193 mobile home/recreational vehicle dwellings in the
county, many of which are situated in large mobile home villages.
Approximately 85% of all the facilities listed above are located within ten
miles of the east coast. A current inventory of mobile home parks is
maintained on file in the office of Emergency Management.
Agricultural production and processing are an important component of the
County's economy. The seasonal nature of citrus production has required
the use of migrant labor during peak harvesting season (February/March). A
survey conducted of the County Agricultural Extension, Florida Employment
Service and the Department of Health and Rehabilitative Service provides
estimates of 1,000 migrant farm laborers are used during the peak of the
season. It has also been assumed that this figure will remain fairly constant
in the future due to continued high demand for citrus products, stable
Indian River County Comprehensive Emergency Management Plan Basic Page 49
INDIAN RIVER COUNTY
ZIP CODES
Vera Beach
Vero Beach
Orchidtlndlan
Vero Beach
Vero Beach
Vero Beach
Fetlsmert
Sebastian
Central)
ISoutheast)
Powr Shorn
West)
North)
south)
Wabasso
TOTAL
POPULATION
32948'
32958
32960
32962
32963
32966
32967
32968
32970
COUNTY'
,._....._.. „.._- . POPULATION
Total, All Ager
5,016
70,503
20,049
20,395
14096
12,920
11,452
1,433
f1
114"7
Ages Od
458
864
1,033
1.045
285
203
817
497
0
5.202
Ages 5-17
7,072
2,925
2,471
3,346
1,297
1,170
2,384
1,755
17
16,437
Ages 18-24
732
996
1,685
1,138
188
450
890
698
0
6,777
Ages 25-44
1,555
4,435
5,158
4,928
1,760
2,069
2,973
2,450
9
25,337
Ages 45.64
803
5.159
4.441
4,349
4,111
2.786
2.499
1,993
29
26.170
Ages 65.84
362
5,771
4,386
5,044
6,077
5,336
1,784
981
29
29.770
85 and over
34
353
875
545
378
906
105
58
0
3.254
7464 All Apes
4%12
44%11.2%
77.6%
11.1%
126%
11.4%
10.1%
7.6%
0.1%
100.0%
Ages"
9.1%
4.2%
5.2%
51%
20%
1.6%
7.1%
59%
00%
4.6%
Ages 5-17
21.4%
14.3%
123%
16.4%
92%
91%
20.8%
208%
202%
146%
Ages 18.24
14.6%
4.9%
84%
5.6%
1.3%
3.5%
78%
83%
0.0%
6.0%
Ages 25-44
31,0%
216%
25.7%
24.2%
125%
160%
260%
29.1%
107%
224%
Ages 45-64
16.0%
25.2%
22.2%
21.3%
29.2%
216%
218%
236%
34.5%
23.2%
Ages 65-84
7.2%
281%
219%
247%
431%
413%
15.6%
116%
345%
266%
A ..s 85 ano over
O 7%
17%
44%
27%
2.7%
7.0%
09%
07%
00%
29%
caw w, -auuii, ourrarwy rw o.
'Papulation wiMn 92948 ZCTA not tiny contained wiNn Indian River County. Total county figure includes excess persons living outside of Indian Riva
County. Accoroin9 to MeissaDate (www.malissedete.com) over 99%of32948 ZIP Coda addresses aro located whhin Indian Riva County.
Indian River County houses inmates in two locations. The Indian River
County Jail, located in the unincorporated area of central Indian River
County, inmate population ranges from the least serious misdemeanor
violations to the most serious felony violations of Florida Law and includes
male and females with a wide range of age groups from senior adults to
juvenile offenders. The jail recently underwent renovations (2007) and has
increased the inmate housing capacity to 612. The Indian River Correctional
Institution, located in the unincorporated area of south Indian River County,
was established in 1976 to house youthful offender male inmates (aged 14-
18). It is designated to accept 381 minimum, medium, custody and limited
medical grade inmates. Indian River Correctional Institution provides
academic, vocational and self -betterment programs. More information on
critical facilities can be found in a database maintained by the office of
Emergency Management.
There are 48,638 single-family residential units and 17,967 multi -family
residential units in the County (SOURCE: INDIAN RIVER COUNTY COMMUNITYDEVELOPMENT
DRAFT 2030 COMPREHENSIVE PLAN: FUTURE LAND USE ELEMEN7). Additionally, there are
approximately 7,193 mobile home/recreational vehicle dwellings in the
county, many of which are situated in large mobile home villages.
Approximately 85% of all the facilities listed above are located within ten
miles of the east coast. A current inventory of mobile home parks is
maintained on file in the office of Emergency Management.
Agricultural production and processing are an important component of the
County's economy. The seasonal nature of citrus production has required
the use of migrant labor during peak harvesting season (February/March). A
survey conducted of the County Agricultural Extension, Florida Employment
Service and the Department of Health and Rehabilitative Service provides
estimates of 1,000 migrant farm laborers are used during the peak of the
season. It has also been assumed that this figure will remain fairly constant
in the future due to continued high demand for citrus products, stable
Indian River County Comprehensive Emergency Management Plan Basic Page 49
production in the county, changes in technology, and the use of local labor.
Census data gathered in 2000 suggests that approximately 10.4% (14,057)
of citizens residing in Indian River County speak a language other than
English.
The Atlantic beaches and the excellent climate in the County provide the
basis for a year-round tourist industry. There are numerous hotels and
motels in the County as well as retail and service establishments geared to
serving the tourist trade. Transient population constitutes customers,
seasonal visitors and employees who live/work in the area for less than 60
days per year, including farm workers. The total projected transient/seasonal
population for Indian River County averages 23,356, many of whom
congregate on the barrier island. (Source: Indian River County 2030
Comprehensive Plan, Chapter 1 Introductory Element, p.28, Table 1.22).
D. PERSONS WITH SPECIAL NEEDS
In July of 1989, the Indian River County Department of Emergency Services
formed a committee to address people with special medical needs. Since
then, the goal of the Special Needs Shelter Program is to provide a safe
place for persons requiring medical assistance to temporarily shelter during
an evacuation from either a man-made or natural disaster, rather than
inundating local hospitals with a large number of people that a specially
equipped and staffed shelter could adequately handle. Candidates for the
Special Needs Shelter are encouraged to register with our office in advance.
The registration process is described in specific detail in Annex V
(Emergency Shelter Plan) attached to this document. The average number
of residents registered annually for the Special Needs Shelter is 300. The
average geographic distribution of special needs registrants is as follows:
City of Fellsmere (2%), City of Sebastian (28%), City of Vero Beach (41 %)
and the unincorporated area of Vero Beach (33%).
E. CLIMATOLOGY
Indian River County is affected by its coastal location. Thunderstorms
average 80 days a year. Annually, 132 days have rainfall of at least .01
inches on the average, and there are 74 clear days, 159 partly cloudy days,
and 132 cloudy days. Annually, we receive approximately 55 inches of
rainfall. Sea breezes modify the climate of a narrow coastal belt a few miles
wide. The sea breeze quickly reduces high afternoon temperatures and
provides a flow of air when one would otherwise not exist.
The sea breeze is most prevalent in summer, when winds in the County
average 9.4 mph. In addition, the mixing height (thickness of a layer of air
resting on the ground surface, in which vigorous vertical mixing occurs) is
thickest during the summer and thinnest in the winter.
Indian River County Comprehensive Emergency Management Plan Basic Page 50
High-risk areas relative to hurricane and flood effects have been identified
and designated based on elevation and proximity to coastal waters.
Development density of any specific area has been considered in the
allocation of shelter space. The vulnerability of nursing homes and
congregate care centers to the adverse effect of severe weather, primarily
based on elevation and construction, requires special consideration in
evacuation plans.
The chief industries of the heavily populated east coast are light
manufacturing, citrus production and processing, selected service trades,
construction, aircraft manufacturing (Piper), real estate, wholesale and retail
trade.
F. ECONOMIC PROFILE
Indian River County has long been a popular resort area, attracting
thousands of visitors and residents for our array of recreational and
entertainment activities, and our lifestyle.
The county's population, which has grown steadily to just over 140,000, is
supported by an economy based primarily on tourism, light industry, and
agriculture. Services account for over 24% of Indian River County's
employment; retail trade, 21 %; agriculture, forestry, and fishing, 5.32%; and
manufacturing 3.8%.
Approximately 327,000 acres of Indian River County is devoted to
agriculture, with the largest percentage in pastures and ranges, followed by
citrus groves, woodlands, row crops, and a variety of other uses. The county
is at the center of the world famous Indian River Citrus District.
Hurricanes impact not only the communities, but the local economies. The
total property damages in Indian River County during the 2004 hurricanes
were $2 billion. Nearly 50,000 structures suffered moderate to total damage.
Over 70% of the grapefruit crop was lost and 50% of the orange crop was
lost either directly to hurricane wind damage or indirectly from crop
eradication due to canker spread attributed to hurricane winds.
The emergency management office strives to concentrate on hazard
mitigation as a strategy to enhance and protect the local economy prior to
disasters. We routinely distribute to businesses copies of the FEMA
publication entitled "Disaster Planning Guide for Business and Industry." The
guide is a manual for small business owners to use for developing their own
emergency plans and preparations.
Indian River County Comprehensive Emergency Management Plan Basic Page 51
Top Employers in Indian River County:
RANK
EMPLOYER
F TYPE
EMPLOYEES
1
School Dist. of Indian River Co.
Government
2,080
2
Indian River County
Public
1,411
Construction
4,214
Administration
Public Administration
3
Indian River Medical Center
Health Care
1,334
4
Publix Supermarkets
Food and
960
Manufacturing
2,085
Beverage Stores
Public Administration
5
The New Piper Aircraft
Transportation
850
1.31%
Equipment
6
Sebastian River Medical Center
Health Care
600
Residential
7
John's Island
Resort
550
Public
8City
of Vero Beach
Administration
505
9
Visiting Nurse Association
Health Care
475
SOURCE: INDIAN RIVER COUNTY CHAMBER OF COMMERCE (2010)
Employment for Indian River County by Industry:
INDUSTRY CLASSIFICATION
EMPLOYEES
% OF TOTAL
EMPLOYMENT
Professional, Health, Educ. Svcs.
13,412
24.54%
Retail, Hotel, Restaurant
11,605
21.23%
Trade, Transportation, Utilities
9,343
17.09%
Construction
4,214
7.70%
Public Administration
3,049
5.58%
Agriculture, Forestry & Fishing
2,909
5.32%
Finance, Industry, Real Estate
2,539
4.64%
Manufacturing
2,085
3.81
Public Administration
3,083
8.6%
Wholesale Trade
714
1.31%
SOURCE: INDIAN RIVER COUNTY CHAMBER OF COMMERCE (April 2006)
Indian River County Comprehensive Emergency Management Plan Basic Page 52
Indian River County ranks fifth in the state in per capita income. Its per
capita income in 2008 was $57,107, exceeding the state average of
$39,064, according to the U.S. Bureau of Economic Analysis. The
Quarterly Census of Employment & Wages reported by the Agency for
Workforce Innovation indicates that workers in Indian River County were
paid about $8,019 per quarter, on average, for the first quarter of 2010.
This equates to an hourly wage of $15.42 and an annual wage of $32,076
based on a 2,080 hour work -year. (Source: 2010 Agency for Workforce
Innovation Quarterly Census of Employment & Wages).
Recent estimates show that about 10 percent of all Indian River County
residents live at or below the poverty level, compared to 12 percent
statewide. Over 16 percent of all children (birth to 17 years) are in
households at or below the poverty level, compared to 17 percent
statewide.
The home ownership rate for Indian River County was reported at 78
percent for 2002. Home ownership was highest in Indian River Shores
(96%), Orchid (95%), and Sebastian (87%), and lowest in Vero Beach
(64%), Fellsmere (71 %), and the unincorporated areas of the county
(78%).
The median sales price for 2009 in Indian River County for a single family
home was $160,500 and the average median sales price for a
condominium was $110,000, according to the Shimberg Center for
Affordable Housing, Florida Housing Data Clearinghouse. The average
rent in 2000 was $615 per month compared to a statewide median rent of
$641. With over 15,000 units of new construction projected for the
unincorporated areas by 2025, housing in this area is expected to grow at
twice the rate of the next highest area, Sebastian, which is projected to
add nearly 7,000 units.
In 2009, there were an estimated 48,638 homes and 17,967 multi -family
units in Indian River County. In 2025 the demand for single-family homes
is projected to be 62,597 and for multi -family units to be 17,295. To meet
housing demands, the Shimberg Center projects that Indian River County
will need 20,328 additional single family homes and 4,498 multi -family
units by 2025.
Construction reflects these projections. Housing starts in Indian River
County totaled 14,089 from 2000 to 2005. Housing starts jumped 28
percent from 2002 to 2003 and jumped another 66 percent from 2004 to
2005. Modest increases were reported for the other years in this time
Indian River County Comprehensive Emergency Management Plan Basic Page 53
period: 6 percent from 2000 to 2001, -2.5 percent from 2001 to 2002, and
2 percent from 2003 to 2004.
Housing units are considered to be substandard if they are overcrowded,
do not have heat, or lack complete kitchens or plumbing. In Indian River
County in 2000:
• 1,431 housing units (2.9% of all units) were overcrowded, meaning
that they housed more than one person per room, compared to a
statewide percentage of 6.5%.
• 447 units (0.9%) did not use home heating fuel, compared to a
statewide percentage of 1.8%.
• 272 units (0.5%) lacked complete kitchen facilities, compared to a
statewide percentage of 0.5%.
• 108 units (0.2%) lacked complete plumbing facilities, compared to
a statewide percentage of 0.4%.
G. EMERGENCY MANAGEMENT SUPPORT FACILITIES
Critical Facilities - Indian River County and its municipalities have
identified all critical facilities required for an immediate emergency
response following a major emergency/disaster event, and other
facilities or areas necessary to support recovery operations. Several
categories of critical facilities have been included. Specific details
can be found in the Critical Facilities Inventory retained on file in the
office of Emergency Management.
2. Logistical Staging Areas (More detailed information on staging
areas can be found in Annex 1A (Recovery Functions).
a. Materials and Supplies
(1) City of Vero Beach Municipal Airport (Primary)
3400 Cherokee Drive, Vero Beach
(2) Sebastian Elementary School (Primary)
400 C.R. 512, Sebastian
(3) Barber Street Sports Complex (Secondary)
1115 Barber Street, Sebastian
(4) Indian River County Fairgrounds (Secondary)
7900 58th Avenue, Wabasso
Indian River County Comprehensive Emergency Management Plan Basic Page 54
b. Volunteers
(1) Hobart Park
5350 77th Avenue, Wabasso
C. Disaster Field Offices (DFOs)
Following a major or catastrophic disaster that exceeds the
State's ability to respond, in which the Emergency or Major
Disaster Declaration is granted by the President, federal
assistance to disaster victims becomes available under three
program areas: Individual Assistance, Public Assistance, and
Hazard Mitigation. The administration of these programs is
coordinated through a joint federal/state effort in a DFO, which
is usually located in the impacted area. The following areas
have been pre -determined to house DFOs:
(1) Sebastian City Hall
1225 Main Street, Sebastian
(2) Fellsmere City Hall
22 S. Cypress Street, Fellsmere
(3) Indian River Co. Administration Bldg.
1801 27th Street, Vero Beach
(4) City of Vero Beach Community Center
2266 14th Avenue, Vero Beach
d. Disaster Recovery Centers (DRCs)
Should the President authorize a Declaration of Disaster,
Disaster Recovery Centers will open to provide the public
access to apply for federal assistance funding. The centers
will provide residents and businesses with information on
available programs and assist applicants with completion of
the necessary forms/documentation. The following locations
have been designated as sites for Disaster Recovery Centers.
(1) Indian River County Administration Bldg.
1801 27th Street, Vero Beach
(2) Sebastian City Hall
1225 Main Street, Sebastian
Indian River County Comprehensive Emergency Management Plan Basic Page 55
(3) Fellsmere City Hall
22 South Cypress Street, Fellsmere
(4) Indian River County Main Library
1600 21 st Street, Vero Beach
(5) Indian River County North Library
1001 C.R. 512, Sebastian
(6) Vero Beach Police Department
1055 20th Street, Vero Beach
(7) Indian River Shores City Hall
6001 A1A, Indian River Shores
(8) Town of Orchid City Hall
7707 U.S. #1, Suite 3, Vero Beach
e. Storage Depots
(1) Barber Street Sports Complex -
1115 Barber Street, Sebastian
(2) Indian River County Fairgrounds -
7900 58th Avenue, Wabasso
(3) City of Vero Beach Municipal Airport -
3400 Cherokee Drive, Vero Beach
3. Landing Zones have been identified and coordinated with the Florida
National Guard. These coordinates have been transmitted to the
appropriate agencies.
a. The primary landing zone is located at:
• Vero Beach Municipal Airport
Latitude 270 39' 33"/Longitude 080° 25' 08"
b. The secondary landing zone is located at:
• Sebastian Airport
Latitude 270 48' 77"/Longitude 080° 29' 74"
Indian River County Comprehensive Emergency Management Plan Basic Page 56
H. PLANNING ASSUMPTIONS
A disaster may occur with little or no warning and may escalate far
more rapidly than the ability of any single local response organization
to handle. The success of rapid response depends on:
a. Multi -discipline, impact assessment teams;
b. Procedures to ensure quick and effective decision-making,
such as pre -deployment and aggressive training of elected
officials and responders on responsibilities and emergency
assignments; and
C. Procedures to rapidly implement local mutual aid, state mutual
aid and possibly federal assistance.
2. Effective hurricane preparedness requires continual public awareness
and education programs, so that citizens will take appropriate
advance action based upon the category of the hurricane expected.
3. Evacuation and shelter strategies must be based on citizen
cooperation with staggered evacuation and best -available shelter
options until the shelter deficit can be reduced.
4. A strategy based upon sheltering people with special needs that
provides varying levels of care. The intent of the strategy is to
establish minimum standards so that the general population and
service providers will understand the level of care that can be
reasonably expected at regular shelters. Persons needing greater
care should be prompted to register for special assistance. Planning
at the County and state level will depend on pre -identification of
populations and determination of resource shortfalls and
contingencies.
5. The Emergency Operations Center (EOC) will be activated and
staffed with lead agencies that become a part of an ESF concept.
The primary agency for each ESF will be responsible for coordinating
the planning and response activities of their respective support
agencies.
Indian River County Comprehensive Emergency Management Plan Basic Page 57
III. CONCEPT OF OPERATIONS
A. LEVELS OF DISASTER
Chapter 252, Florida Statutes, requires each county to develop and maintain
a County Emergency Management Plan (CEMP). This CEMP must contain
provisions to ensure that the county is prepared for minor, major, and
catastrophic disasters. Therefore, a resolution was passed by the Indian
River County Board of County Commissioners adopting this county's CEMP.
A signed copy of the resolution can be found as a preface to this document.
Minor Disaster
Any disaster that is likely to be within the response capabilities of local
government and results in only minimal need for state or federal
assistance.
In accordance with this CEMP, this definition translates into a Level III
or Level II activation of the EOC.
2. Major Disaster
Any disaster that will likely exceed local capabilities and require a
broad range of state and federal assistance.
In accordance with this CEMP, this definition translates into a Level II
or Level I activation of the EOC. The SEOC will be notified, and
potential state assistance will be coordinated.
3. Catastrophic Disaster
Any disaster that will require massive state and federal assistance,
including immediate military involvement.
In accordance with this CEMP, this definition translates into a Level I
activation of the EOC. The SEOC will be notified and may be
requested to pre -deploy to the EOC; potential federal assistance will
involve response as well as recovery needs.
Indian River County Comprehensive Emergency Management Plan Basic Page 58
Normal Operations (Indian River County Government Structure)
Indian River County is part of the 19th Judicial District in Florida.
There is an elected five member Board of County Commissioner's
and five elected Constitutional Officers (Property Appraiser, Tax
Collector, Supervisor of Elections, Sheriff and Clerk of the Circuit
Court). Each commission member represents one of five districts,
elected at large (Countywide) for staggered terms of four years. The
Commission elects the Chairman and Vice -Chairman. A County
Administrator is appointed by the Board and is responsible for
administrative and fiscal control of the resources of the County.
The County Administrator's primary responsibility is to efficiently and
effectively implement the goals and policies of the Board while
meeting the needs of the citizens of Indian River County by providing
an acceptable level of service and maintaining a solid financial
position. The Administrator is directly responsible for all County
departments except Constitutional Officers, the County Attorney, the
BCC Executive Aide and their respective employees and staff.
2. Emergency Operations
Direction and control of all emergency management activities remain
under the Indian River County Board of County Commissioners at all
times (the line of succession is established in county ordinance 91-
17). The organization and staffing structure of the Indian River
County Comprehensive Emergency Management Plan are tailored to
meet the needs of specific emergencies and disasters.
Organizational structure and identification of operational and support
roles within the EOC, which depicts the total preparedness, response,
recovery and mitigation system, can be found in the EOC Suggested
Operating Procedures attached and identified as Appendix D.
3. Implementation of the concept of operations is carried out through the
organizational structure described by the emergency support
functions (ESFs). The Emergency Management Director, in
consultation with the Board of County Commissioners, leads the
organization. This organizational concept is compatible with the
current concept implemented by FDEM and FEMA and is identified in
the EOC Suggested Operating Procedures, attached to this document
and identified as Appendix D.
Indian River County Comprehensive Emergency Management Plan Basic Page 59
4. The Emergency Management Director, or his designee, is responsible
(subject to Board approval) for activating the plan and directing
preparedness, response, recovery and mitigation operations.
5. ESFs represent groupings of types of assistance activities that the
County is likely to need from the State. For a complete listing of
primary and secondary agencies and their respective ESFs, see the
ESF Matrix attached to this document and identified as Figure 6.
ESFs and lead agencies include:
ESF #1 Transportation - Indian River County School Board
Transportation Department
To coordinate transportation systems and provide emergency
transport of goods for other ESFs.
ESF #2 Communications - Indian River County Department of
Emergency Services, Emergency Management Division; and
Radiological Emergency Preparedness Division.
To provide emergency radio and telephone communications services
to organizations involved in the response and recovery operation and
to support the private sector in restoration of the affected public grids.
ESF #3 Public Works and Engineering - Indian River County
Public Works Department
To evaluate infrastructure damage and coordinate emergency debris
clearing of essential roads. Will also coordinate emergency
contracting, engineering services, demolitions and fuel shortages.
ESF #4 Firefighting - Indian River County Department of
Emergency Services, Fire Rescue Division
To detect and suppress wildland, rural and urban fires. Also, to
provide incident management teams to assist in command and control
operations. Directs all search and rescue operations.
ESF #5 Information and Planning - Indian River County
Department of Emergency Services, Emergency Management
Division
To collect, analyze and disseminate critical information on emergency
operations for decision-making purposes.
Indian River County Comprehensive Emergency Management Plan Basic Page 60
ESF #6 Mass Care — North Treasure Coast Chapter of the
American Red Cross
To manage and coordinate shelters, feeding and first aid for disaster
victims.
ESF #7 Resource Support - Indian River County Department of
Emergency Services, Emergency Management Division
To secure resources through mutual aid agreements, or procure
resources for other ESFs as needed.
ESF #8 Health & Medical Services - Indian River County Health
Department
To identify health and medical needs, provide trained health and
medical personnel, and to provide supplies and emergency facilities in
the affected area, as well as in shelters.
ESF #9 Urban Search and Rescue - Indian River County
Department of Emergency Services, Fire Rescue Division
The Fire Services Division is the lead agency for locating, extricating
and providing emergency assistance to victims trapped in debris or
wreckage created by the disaster.
ESF #10 Hazardous Materials - Indian River County
Environmental Health Department
To provide inspection, containment, and cleanup of hazardous
materials accidents or releases.
ESF #11 Food and Water - Indian River County Department of
Emergency Services, Emergency Management Division and the
North Treasure Coast Chapter of the American Red Cross
To coordinate with ESF #6 to identify the food and water needs of
disaster victims, and to ensure that supplies of food and water (or
vouchers to obtain them locally where possible) are provided.
ESF #12 Energy and Utilities - Indian River County Utilities
Department
To coordinate and direct the restoration of water, sewer, electrical
power and phone service.
ESF #13 Military Support - Florida National Guard
To coordinate RIAT assignments and National Guard resources to
assist in the ESFs where needed.
Indian River County Comprehensive Emergency Management Plan Basic Page 61
ESF #14 Public Information - Indian River County Department of
Emergency Services, Emergency Management Division
To establish and manage Joint Information Centers (JIC), and to
coordinate the dissemination of all disaster -related information to the
media and the general public.
ESF #15 Volunteers and Donations - Indian River County
Department of Emergency Services, Emergency Management
Division
To manage the receipt and distribution of donated goods and services
to meet requests in the wake of a disaster.
ESF #16 Law Enforcement and Security - Indian River County
Sheriff's Office
To provide armed escorts to emergency workers or transport
caravans and security to emergency facilities, as well as general law
enforcement services during an emergency.
ESF #17 Animal Protection - Indian River County Department of
Emergency Services, Animal Control Division and the Humane
Society of Vero Beach and Indian River County
To coordinate and provide adequate shelter and care for animals.
ESF #18 Special Needs Care - Indian River County Department of
Emergency Services, Fire Rescue Division
To coordinate and provide adequate shelter and care for citizens with
non -hospital special medical needs.
Indian River County Comprehensive Emergency Management Plan Basic Page 62
FIGURE 6-1
ESF MATRIX - PRIMARY AND SUPPORT AGENCIES
AGENCY
ESF
1
2
1 3
4
5
6
7
8
9
10
11
12
13
1415
16
17
18
9-1-1 COMMUNICATIONS
S
AMERICAN RED CROSS -
S
P
S
S
P
S
S
S
NORTH TREASURE
COAST CHAPTER
BELLSOUTH
S
S
CIVIL AIR PATROL
S
S
S
COMMUNICATIONS INT'L.
S
SENIOR RESOURCE
S
S
ASSOCIATION, INC.
DISASTER MEDICAL SVCS
S
FEDERAL AVIATION
S
ADMINISTRATION
FELLSMERE, CITY OF
S
Building Department
S
Police Department
S
S
S
S
S
Public Works
S
S
S
S
FELLSMERE FARMS
WATER CONTROL
DISTRICT
S
FLORIDA, STATE OF
Communications, Div. of
S
Department of
Law Enforcement
S
S
S
Fire Chiefs' Association
S
S
Forestry, Div. of
S
Highway Patrol
S
Marine Patrol
S
S
National Guard
S
S I
I
S
S
S
S
S I
S
S
P
S
FLORIDA EMERGENCY
PREPAREDNESS ASSOC.
S
S
FLORIDA POWER 8 LIGHT
S
HOME HEALTH CARE
S
HUMANE SOCIETY
P
INDIAN RIVER COUNTY
Agricultural Extension
S
Animal Control
S
P
BCC Office
S
Building Department
S
Community Development
S
County Admin. Office
S
S
Indian River County Comprehensive Emergency Management Plan Basic Page 63
AGENCY
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Indian River County Comprehensive Emergency Management Plan Basic Page 64
AGENCY
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C. GENERAL
Local units of government call for assistance during events in which
their own resource and response capabilities are overwhelmed. The
County will provide assistance to municipalities within their borders,
and then turn to the state for assistance when their capabilities are
overwhelmed. The County and the state together determine whether
inter -county mutual aid or direct state assistance is needed.
2. The Emergency Management Director, or his designee, will activate
the EOC at any time a threat of danger to Indian River County
becomes imminent. The EOC will then become the central command
post for coordinating the operational, logistical and administrative
support needs of response personnel located in the EOC or in the
field.
a. The Primary EOC is located at 4225 43rd Avenue in Vero
Beach and will be the first choice for EOC operations.
b. The first alternate EOC will be the auditorium of the Indian
River County Sheriff's Office, located at 4055 41st Avenue.
This site will be designated only if conditions threaten the
primary location. The Emergency Management Director, or his
designee, will make the decision to move to this location if it
becomes necessary.
C. A second alternate EOC will be chosen given the existing
conditions at the time.
4. The County must be able to respond quickly and effectively to
developing events that may require the County to enact a Mutual Aid
Agreement. When an event or potential event is first detected, the
EOC initiates activation (monitoring). Communications are
maintained between the County EOC and the SEDC; the county
commissioners and Governor may be notified.
5. As County operations progress, the Emergency Management Director
may advise the Board of County Commissioners to declare a local
state of emergency and make a formal request for state assistance.
The request is channeled through FDEM to the Governor's Office. At
the same time, FDEM may recommend that the Governor declare a
statewide emergency.
6. After impact of a major or catastrophic emergency, Rapid Impact
Assessment Teams (RIATs) may be deployed at the request of the
Emergency Management Director. These teams, under the auspices
of the Florida National Guard (FNG) and ESF #13 (Military Support),
Indian River County Comprehensive Emergency Management Plan Basic Page 80
will be deployed via aircraft or land transport to augment local
assessment of the immediate human needs (food, water,
health/medical, housing), and the damage to infrastructure
(transportation, communications and utility systems). The disaster
assessment is used to identify those emergency actions that are
necessary to preserve life and property in the impacted area. See
Annex III of the CEMP for more information.
7. The County EOC serves as the central clearinghouse for
information collection and coordination of response and recovery
resources within the County, including the cities within the County.
During a major or catastrophic emergency in Florida, un -impacted
counties are also requested to activate their EOC. This system
allows the SEOC to coordinate the delivery of intra -state mutual aid
in an organized manner through the County network.
D. DIRECTION & CONTROL
Discussion of decision-making authority retained at county level:
a. The on -scene commander or commanders in an emergency
response are local officials, usually a representative from
emergency management, law enforcement, or fire rescue.
Overall, local coordination and commitment authority for local
assets is retained by local elected officials, and delegated to
the County Emergency Management Director.
b. The Emergency Management Director is responsible for the
activation and maintenance of the operational readiness of the
EOC, directing county evacuation, opening shelters, requesting
state assistance and all recovery activities within the county.
County authorities, through the Emergency Management
Director, may also activate mutual aid agreements with
neighboring counties, and will coordinate mutual aid
agreements between municipalities within the county.
2. Maintaining consistency with the Federal Emergency Management
Agency and State Emergency Operations Center, the following are
the levels of activation used by the County EOC:
a. Level I - Full Scale Activation:
In a full-scale activation, all lead and support agencies are
notified. Emergency Management personnel, volunteers and
all ESFs will staff the EOC.
Indian River County Comprehensive Emergency Management Plan Basic Page 81
b. Level II - Partial Activation of EOC:
This is a limited agency activation. All primary, or lead, ESF
agencies are notified. Emergency Management personnel and
necessary ESFs will staff the EOC.
C. Level III - Monitoring Activation:
This is typically a "monitoring" phase. Notification will be made
to those agencies and ESFs who would need to take action as
part of their everyday responsibilities.
3. The Emergency Management Director will recall all Department of
Emergency Services personnel once the EOC has been activated.
Staff would then be placed on 12 -hour shifts to ensure 24-hour
staffing of the EOC and field operations. This arrangement will
remain in effect until released by the Emergency Management
Director.
4. Upon activation of the EOC, the use of E -Team software will be
initiated. Similar software is utilized by FDEM and is a sophisticated
way of controlling and documenting the flow of information within the
EOC. See Annex II -Support Functions, ESF #5 (Information and
Planning) for more detailed information.
5. All mission requests and messages logged into E -Team will be
monitored and tracked by ESF #5. Situation Reports will be printed
on a regular basis and forwarded to the Emergency Management
Director for his/her review and dissemination.
6. The Emergency Management Director and/or the EOC Supervisor is
responsible for developing and maintaining SOPs and checklists,
which detail how assigned responsibilities will be implemented to
support this plan.
7. Discussion of decision making authority of the SCO, GAR, Deputy
SCO response, SERT leader, and SERT ESFs:
a. The SERT Leader, or some other designee within the DCA at
the State level, decision-making authority and commitment of
state assets is retained at the SEDC. The SERT Leader may
issue mission assignments to the lead agencies of the state
ESFs. Mission assignments and mutual aid agreements,
brokered by the state, are tracked in the SEOC by a staff
person reporting to the SERT Leader.
Indian River County Comprehensive Emergency Management Plan Basic Page 82
b. In the event of federal assistance, a SCO will be appointed to
interface directly with the federal government. Depending on
the complexity of the event and the need to broaden span -of -
control, the SCO may be supported and assisted by the GAR
and Deputy SCOs for Response and Recovery. The Deputy
SCOs are responsible for ensuring close coordination between
federal and state representatives and anticipating the needs
and conflicts in the operation as it progresses.
8. Discussion of Direction and Control for Evacuation
a. The majority of evacuations are site specific and related to a
specific public safety hazard; the first arriving public safety
officer usually initiates this type of evacuation. The Emergency
Management Director, or his designee, will direct county -wide
evacuations greater than a minor incident in scope. Planned
evacuations with notice, such as would occur when hurricane
warnings are announced, may be initiated following a decision
by the Board of County Commissioners. In such cases, the
evacuation will be coordinated and administered by the County
officials using local government resources in accordance with
County evacuation plans. Indian River County is a participant
in the Statewide Mutual Aid Agreement for Catastrophic
Response and Recovery to provide expanded resource
capability. These agreements will be developed, coordinated
and amended by the Emergency Management Director.
During any county administered evacuation that does not
require activation of the SEOC, state assistance may be
provided under the various state agencies' normal statutory
authority through coordination by FDEM.
b. However, in the event of a multi -county, regional or
interregional evacuation, the Governor or the GAR may issue
an evacuation order in support of a local order. This decision
will be made following consultation with the SCO, the Deputy
SCO for Response, and the SERT leader and representatives
of the impacted counties.
C. All state assistance and support of such evacuations will be
coordinated from the SEOC under the direction and control of
the SERT Leader. Decisions on evacuation issues, such as
lifting tolls on state toll facilities, locking down drawbridges,
deploying and pre -deploying personnel, determining regional
evacuation routes, directing people caught on evacuation
routes to safe shelter, ensuring the sufficiency of reasonably
priced fuel, and addressing any emergency medical issues
relative to evacuation. The following types of decisions will be
Indian River County Comprehensive Emergency Management Plan Basic Page 83
made after coordination between the SERT Leader, the
affected State ESF and the impacted counties.
9. Discussion of Direction and Control for Shelter
The decision of opening shelters is a responsibility of the Emergency
Management Director. Should a request for assistance be made to
the SEOC, it will be to support the local sheltering plan with
assistance in staffing shelters, identifying additional shelters, and
managing shelters with a shortfall of resources. The SEOC will
coordinate through ESF #6 (Mass Care) any requests for assistance
from other ESFs that will be needed to support multi -county, regional
and interregional shelter operations.
a. The SERT Leader, following discussions with the GAR, ESF
#6 (Mass Care) and the representatives of the impacted
counties, will provide information regarding the status of
evacuation orders and the potential for shelter needs on a
county, regional, inter- regional, and/or statewide basis.
b. All state assistance and support of sheltering will be
coordinated from the SEOC through ESF #6 (Mass Care),
under the direction and control of the SERT Leader. Decisions
on sheltering issues will be made after coordination between
appropriate State ESFs, impacted counties and the SERT
Leader.
10. Discussion of Relationship between Primary and Support Agencies in
the ESFs:
a. An agency may be designated "the primary" for an ESF for a
number of reasons. The agency may have a statutory
responsibility to perform that function, or through its programmatic
or regulatory responsibilities, the agency may have developed the
necessary expertise to lead the ESF. In some agencies, a portion
of the agency's mission is very similar to the mission of the ESF;
therefore, the skills to respond in a disaster can be immediately
translated from the daily business of that agency. Whatever the
reason an agency is designated as the "primary" agency, that
agency has the necessary contacts and expertise to coordinate
the activities of that support function. For a list of primary
agencies and their respective emergency support functions, see
the Primary Agency Listing attached to this document and
identified as Figure 7.
n River County Comprehensive Emergency Management Plan Basic Page 84
b. Upon activation of the EOC, the primary agencies for the ESFs will
send a representative to the EOC to coordinate that ESF. It is up
to the primary agency's discretion as to how many, if any at all,
support agencies will accompany them at the EOC. Due to the
limited space available in the EOC, the attendance of support
agencies should be closely coordinated with the Emergency
Management Director.
c. The primary agency for the ESF will be responsible for obtaining
all information relating to ESF activities and requirements caused
by the disaster and disaster response.
This information gathering will frequently require the lead agency
to step outside traditional information gathering protocols.
d. The County will respond to local requests for assistance through
the ESF process. Within the EOC, requests for assistance will be
tasked to the ESF for completion. The primary agency will be
responsible for coordinating the delivery of that assistance to the
disaster area.
e. Resource requests unable to be obtained locally will be
forwarded to ESF #5. ESF #5 will submit a resource request to
FDEM through their online tracking system. ESF #5 will be
responsible for tracking that resource request from mission
tracking number assignment through delivery.
Indian River County Comprehensive Emergency Management Plan Basic Page 85
FIGURE 7 - PRIMARY AGENCY LISTING
ESF
FUNCTION NAME
PRIMARY AGENCY
PRIMARY STATE
#
AGENCY
1
TRANSPORTATION
I.R. Co. School Board TransportationfDeasrtment
De artment of Trans ortation
2
COMMUNICATIONS
I.R. Co. Department of Emergency
Department of
Emergency Management Division aal
Management Services
Preparedness Division
3
PUBLIC WORKS AND ENG.
I.R. Co. Public Works Department
Department of Transportation
4
FIREFIGHTING
I.R. Co. Department of Emergency Services -
Department of Insurance
Fire Rescue Division
State Fire Marshal
5
INFORMATION AND PLANNING
I.R. Co. Department of Emergency Services -
Department of Community Affairs
Emerqencv Management Division
6
MASS CARE
American Red Cross -
Department of Business and
North Treasure Coast Chapter
Professional Regulation
7
RESOURCE SUPPORT
I.R. Co. Department of Emergency Services -
Department of
Emergency Management Division
Management Services
8
HEALTH AND MEDICAL
I.R. Co. Health Department
Department of Health
9
URBAN SEARCH AND RESCUE
I.R. Co. Department of Emergency Services -
Department of Insurance
Fire Rescue Division
State Fire Marshal
10
HAZARDOUS MATERIALS
I.R. Co. Environmental Health
Department of Environmental
Protection
11
FOOD AND WATER
Salvation Army
Department of Agriculture and
Consumer Services
12
ENERGY AND UTILITIES
I.R. Co. Utilities Departrrent
Public Service Commission -
Department of Community Affairs
13
MILITARY SUPPORT
Florida National Guard
Department of MilitaryAffairs
14
PUBLIC INFORMATION
I.R. Co. Department of Emergency Services -
Department of Community Affairs
Emergency Management Division
15
VOLUNTEERS AND DONATIONS
I.R. Co. Department of Emergency Services -
Florida Commission on Community
Emeraencv Management Division
Service
16
LAW ENFORCEMENT AND SECURITY
I.R. Co. Sheriffs Office
Florida Department of Law
Enforcement
17
ANIMAL PROTECTION
I.R. Co. Department of Emergency Services - Animal
Department of Agriculture and
Control Division/Humane Society
Consumer Services
18
SPECIAL NEEDS CARE
I.R. Co. Department of Emergency Services — Fire
Department of Health and
Rescue Division
Rehabilitative Services, State EMS
Indian River County Comprehensive Emergency Management Plan Basic Page 86
11. SERT Support Staff
a. Upon activation of the SEDC, the FDEM becomes the support
staff to the SERT. The SERT support staff is charged with
ensuring that the SEOC procedures for information
management and decision-making are timely and accurate.
12. Discussion of Mission Assignments
a. The SERT Leader, SCO, or Deputy SCO will issue mission
assignments to the primary state agency for the ESF based on
the local government's identified resource shortfall. Resource
tasking to the state agencies will be accomplished through the
ESFs on a mission assignment basis. The "tasking on a
mission assignment basis" means that a local government
resource shortfall will be addressed through assigning a
mission to address the shortfall rather than tasking specific
pieces of equipment or personnel.
b. The primary state agency for that ESF will be responsible for
identifying the particular resource or resources that will
accomplish the mission and coordinate the delivery of that
resource to the local government.
13. Discussion of Mutual Aid Agreements and Memoranda of
Understanding
a. Mutual aid agreements and memorandum of understandings
are an essential component of emergency management
planning, response and recovery activities. These agreements
for reciprocal emergency aid and assistance, in case of
emergencies, can increase resources and improve response
and recovery efforts. The Emergency Management Director, or
his designee, is responsible for the development and
coordination of mutual aid agreements and memoranda of
understanding. Documentation for billing will remain the same
standards for both the role of assisting party and receiving
party.
b. Chapter 252, Florida Statues, authorizes FDEM to make
available any equipment, services, or facilities owned or
organized by the state or its political subdivisions for use in the
affected area, upon request by the Emergency Management
Director. The FDEM is authorized to reinforce emergency
management agencies in areas stricken by emergencies.
Indian River County Comprehensive Emergency Management Plan Basic Page 87
C. The Statewide Mutual Aid Compact will have the participating
political subdivision communicate requests for mutual aid
through the FDEM; any responses from assisting parties will
be directed from and coordinated by the FDEM. Municipalities
will coordinate requests through the County Division of
Emergency Management. This will ensure that the County and
State are aware of and coordinates all resources that are
mobilized.
DEM's coordination of mutual aid agreements is critical to the
direction and control of the overall response and recovery
efforts. Without DEM as the control point, severely impacted
political subdivisions may not receive the type and amount of
assistance needed if each political subdivision independently
requests and executes agreements.
In accordance with Chapter 252, Florida Statutes, Florida also
has mutual aid agreements and memorandum of
understanding with other states and private organizations.
These agreements provide additional resources for FDEM to
have access to if needed.
The SERT support staff will monitor and coordinate all
requests and executed agreements. Records will be
maintained of agreement participants to effectively administer
this activity.
14. Transition from EOC to the DFO EOC
a. A Presidential Disaster Declaration means that several federal
aid programs will be implemented. The administration of the
federal aid programs will be conducted from a DFO that FEMA
will establish in the disaster area. The establishment of post -
disaster aid programs is described as the start of the recovery
phase.
b. The "response phase" and "recovery phase" of the disaster
will, for a period of time, be occurring simultaneously. The
"response phase" will be coordinated and conducted through
the ESFs located at the EOC. The "recovery phase" will be
coordinated and conducted at the EOC with a transition to the
DFO as appropriate.
Indian River County Comprehensive Emergency Management Plan Basic Page 88
E. NOTIFICATION AND WARNING
The Indian River County Department of Emergency Services operates
a 24-hour emergency communications center, either at the main office
location during routine business hours or at the Sheriff's Office during
off -hours. The primary point to point (County Warning Point to State
Warning Point) voice communications mechanism is currently the
National Warning System (NAWAS). It will be used to provide us with
severe weather information, emergency notifications (incoming and
outgoing) and other appropriate emergency management business or
functions. In 2011, the Emergency Satellite Communications System
(ESATCOM) voice system was replaced by the Emergency
Management Network (EMnet), which delivers both voice and
machine-readable text communication in seconds.
The primary communication system operative through the Department
prior to, during, or after an emergency is AT&T, a commercial carrier
telephone service.
When a determination has been made that inter -county resources will
be required, appropriate DEM personnel will notify the ESF leaders
from the required ESF. The ESF leaders will be responsible for
alerting or notifying necessary personnel within their respective ESFs.
2. Across all age groups, in the United States, approximately 1,000,000
people (0.38% of the population, or 3.8 per 1,000) over 5 years of age
are "functionally deaf;" more than half are over 65 years of age. About
8,000,000 people (3.7%) over 5 years of age are hard of hearing (that
is, have some difficulty hearing normal conversation even with the use
of a hearing aid). Again, more than half of those who are hard of
hearing are over 65 years of age. While it is uncertain how many
deaf or hearing-impaired residents are in Indian River County, our
office is prepared to handle these calls through the use of a
Telecommunications Device for the Deaf (TDD). A TDD is a machine
that can be connected to the telephone providing deaf and hard -of -
hearing people with a way to use a telephone without an interpreter.
TDD users type their messages on a standard typewriter keyboard,
which is read on a display by the receiver using compatible
equipment. The Indian River County Department of Emergency
Services' TDD telephone number is published in the BellSouth Text
Telephone Directory annually. The County switchboard is also
equipped with TDD equipment, thus facilitating a transfer of a caller, if
necessary. Television stations also display information via visual
crawlers for the hearing impaired.
Indian River County Comprehensive Emergency Management Plan Basic Page 89
In order to broaden our capabilities with speaking with the non-English
speaking communities of Indian River County, we subscribe to AT&T
Language Line. They are the world's largest provider of 24-hour over -
the -phone interpretation. In addition, we have several local residents
who have offered their interpreter services. Either of these services
would be available to non-English speaking callers. Additionally,
public service announcements are also broadcast in Spanish.
3. Our office maintains an E-mail/text message alert subscriber list for
disseminating weather alerts, or other warnings, to all subscribers
(including local law enforcement and governmental
officials/organizations). We are capable of immediately delivering
neighborhood level content to geographically targeted consumers via
cell phone (texting), e-mail and the web.
4. To increase our public outreach efforts, Indian River County also
utilizes social media to post weather alerts, or other warnings.
Residents now have the ability to follow us on Twitter and/or find us
on Facebook.
5. Indian River County utilizes social network media and users can
Cable TV interrupt service allows our office to interrupt currently
broadcasting television programs with current weather warnings, or
other warnings, pertaining to our immediate area.
6. Once the Emergency Operations Center is activated, the EOC will
broadcast protective and recovery action information on the
government access channel. This channel can be found on cable
channel 27 in all of Indian River County.
7. An agreement was entered into with WSCF (91.9 FM) radio which
allows emergency management staff access to broadcast equipment
for informing Indian River County citizens of storm/disaster
information such as what protective actions to take, what the
evacuation and re-entry plans are, and recovery information, including
restoration of utilities.
8. Using equipment within the EOC, Amateur radio communications are
provided by RACES/ARES volunteers. More specific information
related to communications issues can be found in the description for
ESF #2 (Communications), located in Annex I - Response Functions.
9. The primary EOC has auxiliary power provisions capable of sustaining
operations for five days. The secondary EOC has auxiliary power
provisions capable of sustaining operations for three days.
Indian River County Comprehensive Emergency Management Plan Basic Page 90
10. The Emergency Management Director, and his staff, will notify key
officials and emergency related organizations of any significant
emergency events that may promulgate the opening of the EOC.
11. The Emergency Management Director, and/or his designee, has the
authority to activate the public warning system at any time an
emergency event threatens persons or property.
12. Predetermined evacuation areas include the barrier island, low-lying
areas, mobile/manufactured homes, sub -standard housing, RV parks
and marinas. Initial notification will be through media resources and
may be augmented by the use of bullhorn announcements and door-
to-door visits by public safety officers.
13. The County EOC will communicate with the SEOC on all activations,
warnings and SITREPS by means of NAWAS, ESATCOM,
commercial telephone or radio frequency links.
14. The most common topics pertaining to health and safety, and
considered to be helpful to the public, have been pre -scripted to form
a library of written Public Service Announcements. Messages include
topics on preparedness, response, recovery and mitigation. This
document is maintained on file in the emergency management office
as well as the office of the Public Information Officer (ESF #14).
15. Most of the above identified modes of Notification and Warning can
be used to provide recovery information to the public following a
disaster, including the location of Disaster Recovery Centers,
Recovery Information Centers, and Disaster Legal Assistance.
Indian River County Comprehensive Emergency Management Plan Basic Page 91
F. Response Actions
1. General
a. Activation of County Plan If a disaster threatens prior to the
Governor's decision to issue an Executive Order or
Proclamation of a State of Emergency, the Emergency
Management Director, or his designee, may (subject to Board
approval) activate this plan; this may be followed by a
declaration of a local State of Emergency as outlined in County
Ordinance 91-18. In this situation, the DEM will coordinate any
emergency response actions that may be necessary for the
immediate protection of life and property.
When an emergency or disaster has occurred or is imminent,
the Governor may issue an Executive Order or Proclamation of
a State of Emergency, activating the emergency response,
recovery and mitigation aspects of state, local and inter -
jurisdictional disaster plans that apply to the affected area.
Such orders or proclamations are needed for the deployment
and use of state personnel, supplies, equipment, materials
and/or facilities that are available.
b. Activation of EOC The EOC will be activated by the
Emergency Management Director upon determination of a
significant and immediate threat to life and property.
C. School Closing The Emergency Management Director, or his
designee, will establish direct communication with the Indian
River County School District Superintendent. Together they
will make the decision of when to close and re -open schools.
The Superintendent of Schools will make the official
announcement.
d. Request for Federal and State Assistance When disaster
effects become such that the resources of Indian River County
and/or its municipalities are inadequate to fulfill the needs of
the citizens, then aid and assistance may be requested from
the State of Florida and the Federal Government. Such
requests for State and Federal assistance will be made
through the Indian River County Emergency Management
Division to the Florida Division of Emergency Management.
Assistance required may be in the form of information,
technical expertise or substantial financial, material or resource
needs. A Declaration of State of Local Emergency is a
prerequisite to receive State and Federal disaster assistance.
Indian River County Comprehensive Emergency Management Plan Basic Page 92
A diagram depicting the declaration process is attached to this
document and identified as Figure 8.
e. When the County is under a warning or threatened by an
impending disaster, emergency workers will be relieved in
shifts to prepare their families and property. While no special
provisions have been made for the safety and welfare of
families of emergency workers, they have been encouraged to
develop their own family disaster plan.
The Emergency Management Director, or his designee, is
responsible for establishing a liaison with the state response
and recovery agencies and teams. ESFs will interface with
State RIAT and RRTs to assist in the impact assessment and
rescue/recovery operations. See Annex II - Recovery and
Mitigation Actions, for more information.
Indian River County Comprehensive Emergency Management Plan Basic Page 93
FIGURE 8
Disaster Declaration Process
Indian River County Comprehensive Emergency Management Plan Basic Page 94
2. Evacuation
a. Calculated clearance times are used by county emergency
managers as one input to determine when to recommend an
evacuation order. Clearance times for Indian River County
range from 12.5 to 27 hours (as determined by the Florida
Statewide Regional Evacuation Study Program, November
2010).
b. As part of the public information program, evacuation
information and routes are published annually in the local
telephone directory, as well as in an annual supplement to the
local newspapers, the Press Journal and the Florida Today.
An evacuation map is also published in the Indian River
County Official Disaster Preparedness Guide (see Figure 9).
Indian River County Comprehensive Emergency Management Plan Basic Page 95
Figure 9
�vfRt.4� Indian River County Evacuation Guide
Z
• Emergency Evacuation Routes, Zones, and Shelters
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y -n :
Map Legend
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0 0.5 1 2
Evacuation Zones:
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ZONE A: (RED)
,
Barrier Island and
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510
510
Mobile Home Parks
B R E V A R D COUNTY ` `p
ZONE B: (ORANGE)
-------- -- -
A1A
Areas East of U.S. HWY 1
5/o
ZONE C: (YELLOW)
W+E
Indian River County Shelters
SI. Sebastian River Area
507 ,� �,
+
ZONED & E:
1. Sebastian Elementary
All areas east of the FEC
Indian River
I V '
Railway including
Zones A. B & C.
o
1 1�
St1000S
Sebastian j
Fellsmere
It'
F
Evacuation Routes
I I A
50 N Cypress Street, Fellsmere
Indian River County Comprehensive Emergency Management Plan Basic Page 96
r\
XQ hIC d
0 0.5 1 2
512
,
'P
I N�
510
510
N
5/o
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Indian River County Shelters
+
S
1. Sebastian Elementary
Indian River
400 Sebastian Blvd, Sebastian
69TH ST
1 1�
St1000S
2. Fellsmere Elementary'
_
50 N Cypress Street, Fellsmere
3. Sebastian River Middle jl
1
9400 County Road 512, Sebastian
�.
4. Sebastian River High School
9001 90TH Avenue, Sebastian
a
5. Pelican Island Elementary
o <
49TH ST
1355 SchumannrdMiddl Drive, SebastianI
_
6. Gifford Middle
4530 28TH Court, Vero Beach
7. VBHS Freshman Learning Center
<
at
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19TH1507 Street, Vero Beach
=
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Merrill Barber Bridge
8. Vero Beach High School s �
ao
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170716TH Street, Vero Beach
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9. Werrdale Elementary
20TH ST--
4940 6TH Street, Vero Beach
60
—17TH Street Causeway
10. Oslo Middle
480 20TH Avenue SW, Vero Beach
11. Thompson Lifelong Learning Center
8TH ST
1110 18TH Avenue SW, Vero Beach
> 4TH ST
12. Highlands Elementary
-
500 20TH Street SW, Vero Beach _
e
SN = Special Needs Shelter
`
. A1A
Treasure Coast Elementary
ON ST 8W
r
7
8955 85TH Street, Sebastian
Re -Registration required:
m
(772) 567.2154
1 a
_
PF=Pet FriendlyShelter
®
Liberty Magnet School
•
6850 81ST Street, Vero Beach
Re -registration required:
(772)388-3331, Ext. 10
ST. LUCIE COUNTY
C4s uienm I
Indian River County Comprehensive Emergency Management Plan Basic Page 96
C. In July of 1989, the Indian River County Department of
Emergency Services formed a committee to address people
within Indian River County with Special Medical Needs. Since
then, the goal of the Special Need's Shelter Program is to
provide a safe place for persons requiring medical assistance
to temporarily shelter during an evacuation from either a man-
made or natural disaster, rather than inundating local hospitals
with a large number of people that a specially equipped and
staffed shelter could adequately handle.
Regular public shelters available under emergency conditions
will accept anyone who is self-sufficient, and who needs no
outside professional assistance in performing activities of daily
living. Individuals not meeting the above criteria will either be
referred to the special need's shelter or referred to an
appropriate health care facility. The regular public shelters will
have nursing personnel and volunteers to assist evacuees
from the time of arrival at the shelter. Individuals with
decreased mobility without medical problems will be provided
for in a regular shelter.
Registration for evacuation assistance will be provided for
anyone who requires assistance with evacuation during an
emergency to either a regular public shelter or to the Special
Need's Shelter. Individuals needing transportation need to
register with the special need's program prior to the hurricane
season. For more specific information on the registering of
individuals with specials needs, see the Standard Operating
Procedure for Registration of Transportation and Special
Needs Shelter Evacuees retained on file in the Emergency
Management office.
Special Needs registrants have been separated and
categorized to the level of assistance required. This includes
evacuees requiring space in shelter only, transportation and
space in shelter only, space in the special need's shelter only,
transportation and space in the special need's shelter only and
transportation to a local hospital only (if pre -admitted).
The focus of the Special Need's Shelter is the medical support
and care of persons who require special care during an
evacuation at a shelter, such as:
• People with minor health/medical conditions that require
observation, assessment and maintenance;
Indian River County Comprehensive Emergency Management Plan Basic Page 97
• Elderly people dependent on others for daily assistance
• People with chronic conditions who require assistance
with activities of daily living
• People with the frequent need for medications and/or
vital sign readings that are unable to do so without
regular assistance
• Individuals who need a life-support system requiring
electricity;
• Individuals with restricted mobility and who are in need
of medical assistance.
As with any shelter, individuals who plan on utilizing the
Special Need's facility must provide their own bedding,
medications and supplies to the best of their ability. Supplies
would include oxygen equipment, linens, pillows, blankets,
chairs, medical supplies, medications, and any other personal
items to make the stay as comfortable as possible. Drinking
water and any non-perishable food items are also encouraged.
Any special dietary foods required by a special care evacuee
will be his/her responsibility. Assistance from the parking area
into the Special Need's Shelter will be available.
The Division of Emergency Medical Services will provide items
such as emergency oxygen equipment, first aid supplies, and
advanced life support medications and equipment.
The location of the Special Need's Shelter in Indian River
County is the Treasure Coast Elementary School located at
8955 85th Street, Sebastian. The facility, recently built, is
designed for the handicapped, and has an adequate space
capacity for the special need's citizens of our county.
Registration is required to allow entrance into the Special
Need's Shelter. There are some limitations, specifically, those
patients with high-risk pregnancy (within four weeks of
delivery), unstable medical conditions, and citizens living in
adult living facilities or nursing homes. Adult living facilities
and nursing homes are mandated by the state to have
alternate emergency evacuation plans in place for their
residents.
Indian River County Comprehensive Emergency Management Plan Basic Page 98
d. There are approximately seventy mobile home/recreational
vehicle parks located within Indian River County. This figure
equates to 7,193 dwellings, or a population of approximately
15,000 (11 % of the total population). To ensure the safety and
well being of mobile home residents during hurricane
conditions, these communities would be amongst the first to be
issued an evacuation order. An inventory indicating the
location and number of residents for each mobile home/RV
park is maintained on file in the Emergency Management
office.
e. Approximately 10% of the Indian River County population are
boat owners. A lack of hurricane experience has created a
dilemma for boaters and the marine community. About 25% of
hurricane fatalities result from boaters trying to secure vessels
in deteriorating storm conditions. There are approximately
thirteen commercial marinas within Indian River County with an
approximate marine craft capacity of 917. Indian River County
and the Florida Inland Navigation District, in cooperation with
both public and private marine agencies, have developed a
publication entitled Hurricane Manual for Marine Interests in
Indian River County. This manual was developed to provide
boaters and marina operators with updated and reliable
information to help guide their actions and is distributed
through our public presentations as well as being available at
the Emergency Management office. An inventory indicating
the location and number of boat slips for each marina is
maintained on file in the Emergency Management office.
There are three bridges in Indian River County, identified in
Section II -B, that connect the barrier island to the mainland,
neither of which are of the draw nor swing variety.
g. The decision to re-enter evacuation areas will be based on a
review of the information collected by the impact assessment
teams and other organizations with damage assessment
responsibilities to determine that conditions within the affected
areas are safe for public access.
The number one response priority for re-entry will be
mobilization and dispatch of search and rescue, as well as
damage assessment teams into the impacted areas to search
for survivors and provide assessments of the damage. These
operations will be the first response elements programmed for
re-entry and they will consist of representatives from law
enforcement, fire, EMS, emergency management, public
works, utility providers, property appraisers, building officials,
American Red Cross, etc.
Indian River County Comprehensive Emergency Management Plan Basic Page 99
Re-entry by the general public will be approved by the
Emergency Management Director and will be relayed to the
public through ESF #14 (Public Information).
3. Sheltering
In the event of an evacuation, assistance will be coordinated from the
EOC. There are twelve designated primary shelters, one Special
Needs' shelter and one designated pet -friendly shelter located within
Indian River County, none of which are located in designated storm
surge areas. A list of the American Red Cross primary shelters is
attached to this document and identified as Figure 10.
The "Refuge of Last Resort" concept is currently not an approved or
condoned concept within Indian River County. Residents are
expected to evacuate from the barrier islands, low-lying areas, sub-
standard housing and mobile homes/RVs. However, once winds
reach a sustained tropical force wind speed of 40 mph, all residents
will be urged to get off of the roads and seek shelter in the nearest
substantial building in a room without windows and structural
reinforcement. Guidance on selecting safe rooms and taking
precautionary measures are provided in public information materials.
The following initial actions will take place relative to sheltering:
a. Notification to the SWP;
b. Coordination of sheltering (i.e., communications, nursing,
sanitation, food and security);
C. Coordination of the activation and provision of mutual aid;
d. Coordination with the SEOC for the opening of host shelters in
areas not anticipated being in harm's way; and
e. Coordination of the provision of additional resources (i.e.,
communications equipment and operators, nursing staff,
administrative shelter and other support staff).
Indian River County Comprehensive Emergency Management Plan Basic Page 100
Figure 10
Indian River County
2010 PRIMARY SHELTER LIST
'r<ORI
South County:
Oslo Middle School
480 20th Avenue SW
Vero Beach, Florida 32962
Thompson Lifelong Learning Center
1110 18th Avenue, S.W.
Vero Beach, Florida 32962
Highlands Elementary School
500 20th Street SW
Vero Beach, Florida 32962
Central County:
Gifford Middle School
4530 28" Court
Gifford, Florida 32967
Glendale Elementary School
4940 8th Street
Vero Beach, Florida 32960
V.B.H.S. Freshman Learning Center
1507 19th Street
Vero Beach, Florida 32960
Vero Beach High School
1707 16th Street
Vero Beach, Florida 32960
North County:
Fellsmere Elementary School
50 North Cypress Street
Fellsmere, Florida 32948
Sebastian Elementary School
400 County Road 512
Sebastian, Florida 32958
Sebastian River Middle School
9400 County Road 512
Sebastian, Florida 32958
Sebastian River High School
9001 90"' Avenue
Sebastian, Florida 32958
Pelican Island Elementary School
1355 Schumann Drive
Sebastian, Florida 32958
""`SPECIAL NEEDS SHELTER'"*
Treasure Coast Elementary School
8955 85"' Street
Sebastian, Florida 32958
"PET -FRIENDLY SHELTER**
Liberty Magnet School
6850 81St Street
Vero Beach. Florida 32967
"-"Pre-Registration Required—
To register or obtain additional
information about the Special Needs or
Pet -friendly shelter, please contact the
Indian River County Emergency
Management office at (772) 567-2154.
PLEASE NOTE:
Do not report to ANY shelter
until advised by the local
media.
REMEMBER:
Not all shelters open at the
same time and some
shelters may not open at all!
Indian River County Comprehensive Emergency Management Plan Basic Page 101
G. Recovery Actions
The Recovery Phase will begin during the response phase and may
encompass these general areas:
Damage assessment of the residential, government and business sectors for
the purpose of administration of programs to restore them to their pre -
disaster level of functioning; and
Administration of programs to mitigate the consequences of future disasters.
1. Initial Actions
a. Monitor the disaster event and analyze available information
regarding disaster conditions
b. Identify locations for the DFO and DRCs
C. Assemble and brief recovery staff;
d. Place recovery support personnel on stand-by status, as
necessary. Brief personnel on disaster conditions and
potential for deployment; and
e. Establish liaison with recovery staff in municipal EOCs.
2. Continuing Actions
a. Maintain coordination with the state recovery staff
b. Establish and support the DFO as necessary;
C. Maintain liaison with the SEOC and municipal EOCs to monitor
disaster conditions; and
d. Coordinate federal and state disaster assistance programs and
make recommendations to the SCO regarding continued
staffing.
Indian River County Comprehensive Emergency Management Plan Basic Page 102
IV. RESPONSIBILITIES
A. General
All County departments, constitutional officers, municipalities, and volunteer
agencies are responsible for the following general items:
Develop the necessary functional annexes, appendices, standard
operating procedures (SOPs) and checklists forthe effective, efficient
organization and performance of functions required to respond to and
recover from an emergency or disaster event.
2. Designate and train essential personnel for specific assignments in
the conduct of emergency operations. Provide instructions to
personnel regarding agency -staffing policy during an emergency or
disaster event.
3. Protect and secure facilities, property and equipment under their
control.
4. Maintain accurate records of emergency related expenditures (such
as personnel, supplies, and equipment costs).
5. Provide staff, supplies and equipment (as required and available) in
support of emergency response and recovery operations. Expedite
required activities for return to normal conditions as soon as possible.
6. Preservation of Vital Records/Documents:
All County departments, constitutional officers, municipalities, and
volunteer agencies of Indian River County must insure the
preservation of vital records/documents deemed essential for
continuing government functions and conducting post -disaster
operations. The development of a disaster plan for vital records has
strongly been encouraged to each department. The Department of
Emergency Services has established a Records Management Policies
and Procedures manual, dated May 1, 2001(updated December
2006).The purpose of these policies and procedures is to establish
standards for controlling, retaining, destroying and/or preserving
public records to ensure compliance with the state and federal laws,
regulations, and policies.
Indian River County Comprehensive Emergency Management Plan Basic Page 103
Damage to vital records/data (paper, computer hard drives, microfilm,
etc.) is most often caused by fire, water, wind, and power interruption
or surges.
Vital records' disaster preparedness plans should include:
a. Identification and documentation of the location of critical
information.
b. Standard backup procedures (duplicate copies; off-site
storage, etc.).
C. Prearranged resources (personnel) to assist in the resumption
of data entry/retrieval.
d. Prearranged resources to assist in recovery of damaged
data/records.
B. Indian River Cou
The Emergency Management Director is responsible for:
1. Ensuring that the Division of Emergency Management provides the
necessary revisions to this plan and that the plan is prepared,
coordinated, published and distributed to the appropriate agencies.
2. Active leadership of an emergency management framework involving
all government, private, and volunteer organizations which have a role
in the success of comprehensive emergency management within the
County.
3. Development and leadership of a broad-based public awareness,
education, and information program designed to reach a majority of
the citizens of the County, including citizens needing special media
formats, such as TDD or non-English languages.
4. Active participation in discussions and negotiations with the state
regarding policies and priorities to ensure that the work being done
contributes to the improvement of emergency capabilities for the
County.
5. Responsible execution of negotiated scopes of work for federal and
state emergency management programs.
Indian River County Comprehensive Emergency Management Plan Basic Page 104
6. Support of the emergency management needs of all municipalities
within borders, and brokering of intra -county mutual aid agreements
to render emergency assistance. When local requests for assistance
exceed county resources, the County emergency management office
will coordinate all efforts with the state and federal government in
support of local disaster operations.
7. Establishment and monitoring of County mutual aid agreements within
the County, with other counties and with the state.
8. Direction and control of a County response and recovery approach
which is based on functional groups, involves broad participation from
county organizations, and is compatible with the state and federal
response and recovery organization and concept of operations.
9. Leadership and participation in programs or initiatives designed to
avoid, reduce, and mitigate the effects of hazards through
development and enforcement of policies, standards, and regulations.
10. Compliance of each ESF lead agency to be involved with the
planning, response, recovery and mitigation of local emergencies.
For specific details of their responsibilities see Annex I - Response
Functions.
11. Coordinating how emergency response personnel will be tasked to
deal with emergencies or disasters in Indian River County. At any
such time that this Plan is activated (local emergency, minor, major or
catastrophic disaster), the Emergency Management Director will be
responsible for direction and control under the ultimate authority of the
Indian River County Board of County Commissioners. For greater
detail, see the EOC SOP attached to this document and identified as
Appendix D.
C. Special Districts
Special districts are responsible for establishing liaisons with counties and
with other state organizations to support emergency management
capabilities within Florida. Special districts that involve inter -jurisdictional
authority can provide resources and services to support other functionally
related systems in time of disaster.
D. State of Florida
The Government of the State of Florida is responsible for:
1. Active leadership of an emergency management framework at the
Indian River County Comprehensive Emergency Management Plan Basic Page 105
state level involving all government, private and volunteer
organizations which have a role in the success of comprehensive
emergency management within Florida.
2. Development and leadership of a broad-based public awareness,
education and information program designed to reach a majority of
the citizens of Florida, including citizens needing special media
formats, such as Braille or non-English languages.
3. Active participation in discussions and negotiations with other states
and with the federal government regarding policies and priorities to
ensure that the work being done contributes to the improvement of
emergency capabilities for the nation.
4. Responsible execution of negotiated scopes of work for federal and
state emergency management programs.
5. Support of the emergency management needs of all counties within
Florida, and brokering of inter -county and inter -state mutual aid
agreements to render emergency assistance. When requests for
assistance exceed state resources, the state will contact other states
for assistance, as well as FEMA.
6. Establishment and monitoring of state mutual aid agreements within
the state, with other states and with FEMA.
7. Direction and control of a state response and recovery approach
which is based on functional support groups, involves broad
participation from state organizations, and is compatible with the
federal response and recovery organization and concept of
operations.
8. Leadership and participation in programs or initiatives designed to
avoid, reduce and mitigate the effects of hazards through
development and enforcement of policies, standards and regulations.
E. Federal Government
The federal government is responsible for:
1. Providing immediate emergency response on federally owned or
controlled property, such as military installations and federal prisons,
and notification of the Florida DEM.
Indian River County Comprehensive Emergency Management Plan Basic Page 106
2. Providing assistance, as requested by the State of Florida, under the
lead agency's direction of FEMA, as specified in the Robert T.
Stafford Act, Public Law 93-288.
3. Identifying and coordinating assistance under other federal statutory
authorities.
V. FINANCIAL MANAGEMENT POLICY
It is the intent of this policy to provide guidance for basic financial management to
all departments and agencies responding under the provisions of the plan, to
ensure that funds are provided expeditiously and that financial operations are
conducted in accordance with appropriate policies, regulations and standards.
A. Assumptions
Due to the nature of most emergency situations, finance operations
will often be carried out within compressed time frames and other
pressures, necessitating the use of non -routine procedures; this in no
way lessens the requirement for sound financial management and
accountability.
2. A Presidential disaster or emergency declaration will permit funding
from the Federal Disaster Relief Fund under the provisions of the
Stafford Act in addition to the financial resources initiated at the state
and local levels.
3. The Federal Office of Management and Budget (OMB) and Congress
will give rapid approval to a FEMA -prepared emergency budget
request at a level sufficient to sustain a response operation for at least
three weeks, with the opportunity to extend same if the situation
warrants.
B. Expenditure of Funds
Timely financial support of any extensive response activity could be crucial to
saving lives and property. While innovative and expeditious means of
procurement are called for during times of emergencies, it is still mandatory
that good accounting principles and practices be employed in order to
safeguard the use of public funds from the potential of fraud, waste and/or
abuse.
Indian River County Comprehensive Emergency Management Plan Basic Page 107
1. A public assistance (P.A.) training meeting will be conducted annually
by the EOC to familiarize each of the county departments with
disaster financial management procedures. Training topics include an
introduction to the P.A. program, documentation, eligibility, damage
reporting, forms, closeout, etc. The county OMB office will be
responsible for the financial management of the unincorporated areas
of the county and for providing guidance and training. Their
procedures for financial transactions, accurate accounting, grants
management, and payroll procedures are in conformance with the
Standard Government Accounting Principles, which provides for
greater accountability and well-informed decision making through
excellence in public -sector financial reporting. Each municipality is
responsible for designating their own financial management practices.
2. In concert with federal and state guidelines, approval for expenditure
of funds for response operations (facilities, equipment, supplies,
services and other resources) will be given by officials of the primary
and support agencies with concurrence with the Emergency
Management Director. Each agency is responsible for establishing
effective administrative controls of funds and segregation of duties for
proper internal controls, and to ensure that actions taken and costs
incurred are consistent with the missions identified in this plan.
3. Extreme care and attention to detail must be taken throughout the
emergency response period to maintain logs, formal records, and file
copies of all expenditures (including personnel time sheets) in order to
provide clear and reasonable accountability and justification for future
reimbursement requests. Reimbursement is NOT an automatic
"given," so as much deliberative prudence as time and circumstances
allow should be used.
Complete and accurate accounts of all emergency expenditures and
obligations, including personnel and equipment costs, must be
maintained. Despite the difficulty in maintaining such records in the
stress of an emergency, accurate accounts are required to identify
and document those funds that might be eligible for federal
reimbursement under emergency or major disaster project
applications and/or those funds for which no reimbursement will be
requested. Each emergency event is unique. Therefore, the
Emergency Management Director, and/or his designee will establish
deadlines for data submission related to financial reimbursement.
It is the responsibility of the elected Board of County Commissioners
to secure the public's safety. The Board of County Commissioners
will appropriate all funds considered by the Board as necessary for
mitigation, preparedness, response to and recovery from disasters.
4. In support of fiscal procedures, all records relating to the allocation
and disbursement of funds pertaining to activities necessary for the
Indian River County Comprehensive Emergency Management Plan Basic Page 108
implementation of operations during the four phases of emergency
management are in compliance with:
The Code of Federal Register - Title 44 Emergency
Management and Assistance (CFR 44); relevant Circulars and
Federal Statutes, in a manner consistent with provisions of the
Federal Stafford Act
• Chapter 215, Florida Statutes, pertaining to state financial
matters and Chapter 252, Florida Statutes, relating specifically
to emergency management powers and responsibilities; and
• The policies and directives detailed in the County CEMP ESF
#7 (Resource Support) Guidelines.
5. The county Office of Management and Budget will make every effort
to minimize the expense to the county by exploring all available local
and state funding sources available in a post -disaster situation.
VI. TRAINING, EXERCISE AND PUBLIC AWARENESS/EDUCATION
For any Emergency Management program to be successful, training of individuals
at all levels of government for their respective roles in the four phases of emergency
management must be considered a high priority. This is especially important
because of the relatively new concept of operations in the FRP. The ESF
operational concept requires coordination at the federal, state and local levels of
government to ensure that everyone involved in emergency activities is aware of
their responsibilities when a disaster threatens or occurs. Also, it is important that
each agency is knowledgeable of what other agencies can and cannot do under
disaster conditions. To accomplish the goal of developing a well-trained cadre of
responders around the state, the following strategic planning statements are
offered:
A. Training
The Emergency Management Director will assign either the Emergency
Management Coordinator or Radiological Analyst as the individual
responsible for establishing and monitoring all Emergency Management
training programs and exercises for which the county is responsible. The
person assigned this task, in consultation with the Emergency Management
Director, will establish and maintain an exercise schedule in a manner
required by the Florida Division of Emergency Management. All appropriate
county and municipal agency personnel, volunteer agency representatives
and designated members from the private sector will be trained in the
implementation of RRT and RIAT SDP's, to include guidance for the
completion and disposition of financial reports.
Emergency Management training will include that required to keep all levels
of local government at an acceptable level of readiness to respond to any
Indian River County Comprehensive Emergency Management Plan Basic Page 109
disaster identified in the hazard vulnerable analysis contained within this
Basic Plan. The training program will include appropriate officials of each
municipality and all volunteers and volunteer agencies assigned
responsibilities in the Comprehensive Emergency Management Plan.
The Emergency Management Coordinator will keep abreast of and request
training from the state on all matters that relate to state and federal programs
that would enhance the preparedness of Indian River County.
The Emergency Management staff will remain current with the highest
training credentials possible. They will cooperate with and assist other
county and municipal agencies in the conduct of exercises.
Each agency tasked within this plan will be trained (and maintain training) to
compliment/fulfill the requirements of the National Incident Management
System (NIMS) commensurate with the role assigned. The NIMS Integration
Center establishes the minimum training standards for credentialing
personnel and equipment (HSPD-5).
A training program for response, recovery and mitigation, rumor control,
damage assessment, fiscal accounting, and damage survey request will be
scheduled by emergency management. Each agency will maintain a roster of
trained personnel, including the type of training and date received, for all
persons with emergency response capabilities. A Public Assistance
workshop will also be offered annually to all possible PA participants. This
training will provide an overview of documentation and reimbursement
procedures.
The minimum and recommend training requirements for ESFs and other
agencies are outlined in Figure 11 (Recommended Training).
B. Cost for Training
All State -Delivered (G -series courses listed in Figure 11, below) are free of
cost. Unless otherwise stipulated, the State will reimburse the G -series
course attendee the state -approved hotel cost for attending courses
conducted more than 50 miles from their duty location. The student, or
sponsoring agency, is responsible for all other associated costs. For those
attending FEMA -resident courses, the training is free and FEMA will
reimburse the student the allowable travel costs and provide free lodging on
the campus. Students, or their sponsoring agency, are responsible for all
other costs, e.g., meals All FEMA Independent Study courses, (IS -courses
listed in Figure 11, below) are free. For other State -delivered training
opportunities, US Department of Justice, etc., all associated costs will be
contained in the training announcement. All training is available to County
and municipal personnel, and their volunteers, on a routine basis.
Indian River County Comprehensive Emergency Management Plan Basic Page 110
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Indian River County Comprehensive Emergency Management Plan Basic Page 111
G-317
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Indian River County Comprehensive Emergency Management Plan Basic Page 112
C. Exercise and Training Schedule
A viable exercise program is an essential component of any effort to fully
train emergency personnel for their duties and responsibilities when a
disaster occurs. It is crucial that those individuals who are charged with
responding to emergencies are required to "experience" a disaster under as
realistic conditions as possible before any actual event. The purpose of
exercising is to improve the preparedness posture of the organization(s)
involved. This will result in the reduction of loss of life and property when a
disaster occurs. In addition to county and municipal agencies, other
agencies assigned responsibilities for the implementation of the CEMP will
be invited and requested to participate in exercises. At the beginning of each
year, emergency management staff will evaluate training and exercise
opportunities. A training and exercise schedule will be developed annually.
At a minimum, Indian River County will participate in the following annual
exercises: Vero Beach Airport exercise, VOAD hurricane exercise,
radiological exercise and the ESF coordination exercise. Additionally, Indian
River County allows the use of our facility, staff and notification resources in
support of inter -agency exercises.
At the conclusion of each exercise, the emergency management director, or
his designee will conduct a critique. During this critique, any shortcomings
will be identified and steps will be taken by the emergency management
director to correct the deficiencies and further refine the CEMP.
D. Public Awareness and Education
In order to better educate and inform the public of protective actions before a
disaster occurs, public information is critical for saving lives and minimizing
property damage. Certain responsibilities exist for public information when
Emergency Management plans are implemented. Public actions may
depend upon public information during the period before a disaster is
imminent, in an actual or threatening emergency situation, and in the post -
emergency recovery period.
Pre -disaster education programs serve to increase awareness of Emergency
Management programs, educate the public on ways to protect life and
property, and inform the public on the availability of further assistance and
information.
Regularly scheduled press conferences will be identified during an
event. The County Commission Chambers and the media room of the
Emergency Operations Center have been identified as the locations
for the mass media to gather.
2. The following radio and television stations have agreed to
disseminate emergency information and participate in the local public
emergency notification system in accordance with the Region 10
Emergency Alert System (EAS) Plan:
Indian River County Comprehensive Emergency Management Plan Basic Page 113
a. RADIO STATIONS
(1)
WSCF 91.9 FM
(7)
WJKD 99.7 FM
(2)
WQCS 88.9 FM
(8)
WCZR 101.7 FM
(3)
WAVE 92.7 FM
(9)
WQOL 103.7 FM
(4)
WGYL 93.7 FM
(10)
WGRV 107.9 FM
(5)
WZZR 94.3 FM
(11)
WAXE 1370 AM
(6)
WOSN 97.1 FM
(12)
WTTB 1490 AM
b. TELEVISION STATIONS
(1) WPTV (NBC) Channel 5 (4) WFLX (FOX) Channel 29
(2) WPEC (CBS) Channel 12 (5) WTVX (UPN) Channel 34
(3) WPBF (ABC) Channel 25 (6) WWCI (IND) Channel 10
3. A series of Public Safety Announcements have been developed and
is available to the PIO. These pre -scripted messages are maintained
on file at the Department of Emergency Services.
4. A brochure entitled the Official Disaster Preparedness Guide for
Indian River County is published each year. This guide identifies
information about the hazards and vulnerability of our community,
provides maps, evacuation zones, and other types of disaster
preparedness information, to include high-risk areas and evacuation
routes. The brochures are distributed at public presentations and are
available at the office of Emergency Management.
5. During an emergency, our office telephones will be staffed on a 24-
hour basis until the emergency has been abated. The advertised
telephone number for our office is (772) 567-2154. In addition to this
main phone line, additional phone lines will be established with the
numbers broadcasted through the local media. During emergency
events, our public information line will be activated and citizens may
call (772) 567-2129 for pre-recorded emergency information.
6. During any period of disaster in Indian River County, the government
access cable channel will be broadcasting live from our Emergency
Operations Center. This capability, along with that of local radio
station announcements, will extend the Emergency Management's
public outreach capabilities both in response to and recovery from a
disaster, including the location of Disaster Recovery Centers,
Recovery Information Centers, and Disaster Legal Assistance and
education on mitigation opportunities. For cable television
subscribers, the local government channel can be found on cable
Channel 27 throughout Indian River County. Information will be
broadcast 24 -hours per day.
7. The Indian River County Emergency Management web page
(irces.com) has a full compliment of disaster preparedness
information as well as a comprehensive listing of disaster
preparedness information, including links to the National Hurricane
Indian River County Comprehensive Emergency Management Plan Basic Page 114
Center, Federal, State, and local agencies.
8. To increase our public outreach efforts, Indian River County utilizes
social media. Residents now have the ability to follow us on Twitter
and/or find us on Facebook.
9. Indian River County currently has twelve public shelters. Since all
shelters will not open at the same time, it is crucial for the public to
monitor media reports for an opening in their area. Depending on the
storm track and intensity, the number and location of shelter openings
will vary. At a minimum, shelters will open in the north, central and
south county area. Public shelter openings will be broadcast via local
radio stations, television stations and the government access channel
listed above.
10. Evacuation information, along with routes, is published annually in the
Vero Beach telephone directory, as well as in a hurricane
preparedness supplement issued by the Press Journal and the
Florida Today just prior to each hurricane season (an example can be
found on Figure 9).
11. While the entire County is subject to a host of hazards (outlined in
Section II -A), there are areas which are more vulnerable to particular
hazards (i.e., ponding water from heavy rainfall is most likely to effect
the low swampy inland areas and areas along streams and canals;
storm surge is most likely to effect residents along the coastal areas
and the Indian River Lagoon; severe freezes would economically
damage the citrus industry). Therefore, the department's goal is to
increase awareness of the pre -disaster education programs available
to these areas.
12. Each year, the Emergency Management Division hosts a media day.
Representatives from a variety of media outlets are invited to learn
about emergency management procedures and the methods used to
disseminate public information in an emergency. Press packets are
distributed and tours are given of the EOC and designated media
area. The purpose of this gathering is to strengthen relations with the
media prior to an emergency event.
Indian River County Comprehensive Emergency Management Plan Basic Page 115
VII. REFERENCES AND AUTHORITIES
This plan replaces the Indian River County Nuclear Civil Protection Plan and the
Indian River County Peacetime Emergency Plan. It does not supplant the
Hazardous Materials Plan, which is not an operations -oriented document or the
Florida Radiological Emergency Management Plan for Nuclear Power Plants, which
was developed for response to radiological incidents under separate state and
federal statutory authorities. However, this plan will be used to supplement the REP
plan, in order to provide a comprehensive response.
A. Local
Ordinances
a. ORDINANCE 91-17
An ordinance of Indian River County, Florida, designating the
Chairman of the Board of County Commissioners, or in his/her
absence, Vice -Chairman or Board designee, in this
succession, as the official with authority to declare a State of
Emergency in the event of natural of man-made disaster or the
imminent threat thereof: authorizing such official to take certain
emergency measures relating thereto; providing severability;
and providing an effective date.
b. ORDINANCE 91-18
An ordinance of Indian River County, Florida, providing for the
activation of the disaster emergency plans applicable to Indian
River County and enumerating actions that may be taken
during said emergency.
C. ORDINANCE 2005-029
An ordinance of Indian River County, Florida, for the entry onto
private property during the time of a declared emergency for
the purpose of removing debris.
d. ORDINANCE 2009-23
An ordinance of Indian River County, Florida, requiring
registered sex offenders to identify themselves as such upon
entry into an emergency shelter.
Indian River County Comprehensive Emergency Management Plan Basic Page 116
2. Resolutions
a. RESOLUTION NO. 89-150
A resolution of Indian River County, Florida, by and through its
Board of County Commissioners, continuing to recognize the
Indian River County Emergency Management Services
Department to act in accordance with the State Emergency
Operations Plan and Program.
b. RESOLUTION NO. 91-55
A resolution of Indian River County, Florida, establishing a
disaster emergency employee policy.
C. RESOLUTION NO. 2010-59
A resolution of Indian River County, Florida, adoption
approving the revised Unified Local Mitigation Strategy.
d. RESOLUTION NO. 2006-089
A resolution of Indian River County, Florida, delegating to the
County Administrator, the Assistant County Administrator, and
the Emergency Services Director the authority to execute all
documents and emergency declarations necessary to the
proper functioning of the county during the period that normally
scheduled meetings of the Board of County Commissioners
are canceled.
e. RESOLUTION NO. 2006-113
A resolution of Indian River County, Florida, adopting the
National Incident Management System as the system for
preparing for and responding to disaster incidents in Indian
River County.
f. A sample copy of a resolution for declaring a local State of
Emergency can be found attached to this document and
identified as Figure 11.
3. Miscellaneous
a. Indian River County Emergency Medical Services Trauma
Transport Protocol.
b. Indian River County Comprehensive Growth Management
Plan.
Indian River County Comprehensive Emergency Management Plan Basic Page 117
C. Treasure Coast Hurricane Evacuation Study.
d. Critical Facilities Inventory.
e. Mobile Home Park Inventory.
f. Marina Inventory.
B. Specific plans that supplement this CEMP that apply to unique situations are
as follows:
1. Call -Down System User Guide — An automated telephone message
system
2. GuideCoasta/ Oil Spill - Federal Regional IV Oil & Hazardous
Substances Regional Contingency Plan
3. Hazardous Materials - Indian River County Emergency Plan for
Hazardous Materials
4. Mass Immigration - Indian River County Caribbean Refugee Plan
5. Airports - Vero Beach Municipal Airport Certification Manual: Aircraft
and Airport Safety Plan, approved by the Federal Aviation
Administration on January 3, 1997
6.
Nuclear Power Plants - State of Florida Radiological Emergency
Management Plan
7.
Ports/Marinas - Indian River County Comprehensive Plan
8.
Emergency Notification - Emergency Alert System Plan (Operation
Area 10)
9.
Military Support - Florida National Guard Operation Plan for Military
Support to Civil Authorities
10.
Mitigation - Indian River County Unified Local Mitigation Strategy
11.
Mitigation - Indian River County Wildfire Mitigation Plan
10.
Special Needs - Special Needs Shelter Plan (Indian River County)
11.
Special Needs - Transportation/Special Needs Shelter Client
Registration Process (Indian River County)
Copies of these plans are maintained on file at the Emergency Management office.
Indian River County Comprehensive Emergency Management Plan Basic Page 118
C . State
Statutes
a. Chapter 252 - State Emergency Management Act. Chapter
252.38, Florida Statutes, delineates the emergency
management responsibilities of political subdivisions in
safeguarding the life and property of citizens and other
persons within the political subdivision. Key points within the
statutes include:
(1) Performing emergency management functions within
the territorial limits of Indian River County and conduct
those activities pursuant to 252.31--252.90, and in
accordance with state and county emergency
management plans and mutual aid agreements.
(2) Appointment of a Director who meets the minimum
training and education qualifications established in the
job description approved by the Board. The Director will
be appointed to serve at the pleasure of the Board,
subject to the Board's direction and control, in
conformance with applicable resolutions, ordinances
and laws. The Director has responsibility for the
organizations, administration and operation of Indian
River County Emergency Management division, subject
only to the direction and control of the Board of County
Commissioners and the County Administrator. The
Director will coordinate emergency management
activities, services and programs within the County and
will serve as liaison to the Florida Division of Emergency
Management and other local emergency management
organizations.
(3) Establishment, as necessary, a primary and one or
more secondary emergency operating centers (EOCs)
to provide continuity of government and direction and
control of emergency operations.
(4) Power to appropriate and expend funds; make
contracts; obtain and distribute equipment, materials
and supplies for emergency management purposes;
provide for the health and safety of persons and
property, including assistance to victims of any
emergency; and direct and coordinate the development
of emergency management plans and programs in
Indian River County Comprehensive Emergency Management Plan Basic Page 119
accordance with the policies and plans set forth by
federal and state emergency management agencies.
(5) Reduction of vulnerability of people and communities of
this county to damage, injury, and loss of life and
property resulting from natural, technological, or
manmade emergencies.
(6) Preparation for prompt and efficient response and
recovery to protect lives and property affected by
emergencies.
(7) Response to emergencies using all systems, plans, and
resources necessary to preserve adequately the health,
safety, and welfare of persons or property affected by
the emergency.
(8) Recovery from emergencies by providing for the rapid
and orderly start of restoration and rehabilitation of
persons and property affected by emergencies.
(9) Authority to request state assistance or invoke
emergency related mutual aid assistance by declaring a
local state of emergency. The duration of the local
state of emergency will be limited to seven days, and it
may be extended as necessary in seven-day
increments. The County also has the power and
authority to waive the procedures and formalities
otherwise required of Indian River County by law,
pertaining to:
a. Performance of public work and taking whatever
prudent action is necessary to ensure the health,
safety and welfare of the community;
b. Entering into contracts and incurring obligations;
C. Employment of permanent and temporary
workers;
d. Utilization of volunteers;
e. Rental of equipment;
Acquisition and distribution, with or without
compensation, of supplies, materials and
Indian River County Comprehensive Emergency Management Plan Basic Page 120
facilities; and
g. Appropriation and expenditure of public funds.
(10) Charge and collect fees for the review of emergency
management plans required of external agencies and
institutions. The fees will be in accordance with the fee
schedules established by the Florida Division of
Emergency Management and as approved by the
Indian River County Board of County Commissioners.
(11) Coordination and development of a comprehensive
emergency management plan and program that is
consistent with the state comprehensive emergency
management plan and program.
(12) Provision of an emergency management system
embodying all aspects of pre -emergency preparedness
and post -emergency response, recovery, and
mitigation.
(13) Maintaining a registry of disabled persons in order to
meet the special needs of persons who would need
assistance during evacuations and sheltering because
of physical or mental handicaps. The registry identifies
those persons in need of assistance and assists in
planning for resource allocation to meet those identified
needs. The registry is updated annually.
(14) Development and maintenance of a radiological
emergency response plan in accordance with
requirements of the United States Nuclear Regulatory
Commission and the Federal Emergency Management
Agency.
(15) Development and maintenance of an emergency plan
for hazardous materials to safeguard the lives and
property of the residents of our County against the
threat of a hazardous materials incident.
(16) Participation from the Indian River County School
District, during a declared local state of emergency and
upon the request of the Chairman, Indian River County
Board of County Commissioners, by providing facilities
and personnel to staff those facilities. Indian River
Indian River County Comprehensive Emergency Management Plan Basic Page 121
County School District will, when providing
transportation assistance, coordinate the use of
vehicles and personnel with Emergency Support
Function (ESF) #2 (Transportation).
b. Chapter 14, Florida Statutes, Governor.
C. Chapter 22, Florida Statutes, Emergency Continuity of
Government.
d. Chapter 23, Part 1, Florida Statutes, The Florida Mutual Aid
Act.
e. Chapter 125, County Government; Chapter 162, County or
Municipal Code Enforcement; Chapter 166, Municipalities; and
Chapter 553, Building Construction Standards.
f. Chapter 154, Florida Statutes, Public Health Facilities.
g. Chapter 161, Beach and Shore Preservation; Part 111, Coastal
Zone Preservation.
h. Chapter 162, Florida Statutes, County or Municipal Code
Enforcement.
i. Chapter 163, Inter -governmental Programs; Part I,
Miscellaneous Programs.
j. Chapter 166, Florida Statutes, Municipalities.
k. Chapter 187, State Comprehensive Plan.
I. Chapter 215, Florida Statutes, Financial Matters.
M. Chapter 216, Florida Statutes, Planning and Budgeting.
n. Chapter 235, Florida Statutes, Educational Facilities.
o. Chapter 245, Florida Statutes, Disposition of Dead Bodies.
p. Chapter 250, Florida Statutes, Military Affairs.
q. Chapter 284, Florida Statutes, State Risk Management and
Safety Programs.
r. Chapter 287, Florida Statutes, Procurement of Personal
Property and Services.
S. Chapter 376, Florida Statutes, Pollutant Discharge Prevention
and Removal.
t. Chapter 377, Florida Statutes, Energy Resources.
U. Chapter 380, Land/Water Management.
V. Chapter 388, Florida Statutes, Public Health.
W. Chapter 401, Florida Statutes, Medical Telecommunications
and Transportation.
X. Chapter 403, Florida Statutes, Environmental Control.
Y. Chapter 404, Florida Statutes, Radiation.
Z. Chapter 442, Florida Statutes, Occupational Safety and
Health.
aa. Chapter 553, Florida Statutes, Building Construction
Standards.
bb. Chapter 581, Florida Statutes, Plant Industry.
cc. Chapter 590, Florida Statutes, Forest Protection.
dd. Chapter 633, Florida Statutes, Fire Prevention and Control.
Indian River County Comprehensive Emergency Management Plan Basic Page 122
ee. Chapter 870, Florida Statutes, Riots, Affrays, Riots, and
Unlawful Assemblies.
2. Administrative Rules
a. Florida Department of Community Affairs Administrative Rule,
Chapters 9G-6.
b. Florida Department of Community Affairs Administrative Rule,
Chapters 9J-2 and 9J-5.
3. Executive Orders
a. Executive Order 80-29 (Disaster Preparedness) dated April 14,
1980.
b. Executive Order 87-57 (State Emergency Response
Commission) dated April 17, 1987 as updated by executive
Orders 98-153 and 98-155.
4. Miscellaneous
a. State of Florida Comprehensive Emergency Management
Plan.
b. Florida Airport Directory (published by the Florida Department
of Transportation Aviation Office, Summer, 1996).
C. Local CEMP Compliance Criteria (Crosswalk — 2/2001).
d. Emergency Management Capabilities Assessment Checklist.
D. Federal
1. Public Laws
a. Public Law 93-288, as amended, which provides authority for
response assistance under the Federal Response Plan, and
which empowers the President to direct any federal agency to
utilize its authorities and resources in support of state and local
assistance efforts.
b. Public Law 93-234, Flood Disaster Protection Act of 1973, as
amended, provides insurance coverage for all types of
buildings.
Indian River County Comprehensive Emergency Management Plan Basic Page 123
C. Public Law 99-499, Superfund Amendments and Re-
authorization Act of 1986, which governs hazardous materials
planning and right -to -know.
d. Public Law 101-615, Hazardous Materials Transportation
Uniform Safety Act (H.M.T.U.S.A.), which provides funding to
improve capability to respond to hazardous materials incidents.
e. Public Law 95-510, Comprehensive Environmental Response,
Compensation, and Liability Act of 1980 (C.E.R.C.L.A.) as
amended, which requires facilities to notify authorities of
accidental releases of hazardous materials.
f. Public Law 101-549, Clean Air Amendments of 1990, which
provides for reductions in hazardous air pollutants and risk
management planning requirements.
g. Public Law 85-256, Price -Anderson Act, which provides for a
system of compensating the public for harm caused by a
nuclear accident.
h. Public Law 84-99 (33 USC 701n), Flood Emergencies,
authorizing an emergency fund for flood emergency
preparation, flood fighting and rescue operations, or repair and
restoration of flood control works threatened or destroyed by
flood.
i. Public Law 91-671, Food Stamps (Issuance) Act of 1964, in
conjunction with Section 412 of the Stafford Act, relating to
food stamp (issuance) distributions after a major disaster.
j. Public Law 89-665 (16 USC 470 et seq), National Historic
Preservation Act, relating to the preservation of historic
resources damaged as a result of disasters.
k. Stewart B. McKinney Homeless Assistance Act, (42 USC
11331-11352), Federal Emergency Management Flood and
Shelter Program.
National Flood Insurance Act of 1968, (42 USC 4001 et seq)
as amended by the National Flood Insurance Reform Act of
1994.
M. Reigel Community Development and Regulatory Improvement
Indian River County Comprehensive Emergency Management Plan Basic Page 124
Act of 1994.
n. Public Law 833-703, an amendment to the Atomic Energy Act
of 1954.
o. Homeland Security Presidential Directive (HSPD)-5.
P. Homeland Security Presidential Directive (HSPD)-8.
q. National Response Plan.
r. National Incident Management System (NIMS).
S. National Incident Management Capability Assessment Tool
(NIMCAST).
2. Regulations
a. 44 CFR Parts 59-76, National Flood Insurance Program and
related programs.
b. 44 CFR Part 13 (The Common Rule), Uniform Administrative
Requirements for Grants and Cooperative Agreements.
C. 44 CFR Part 206, Federal Disaster Assistance for Disasters
Declared after November 23, 1988.
d. 44 CFR Part 10, Environmental Considerations.
e. 44 CFR Part 14, Audits of State and Local Governments.
f. 44 CFR 350 of the Code of Federal Regulations.
g. 50 CFR, Title 10 of the Code of Federal Regulations.
3. Executive Orders
a. Executive Order 80-29 (Disaster Preparedness) dated April 14,
1980.
b. Executive Order 87-57 (State Emergency Response
Commission) dated April 17, 1987 as updated by executive
Orders 98-153 and 98-155.
C. Executive Order 11988, Floodplain Management.
Indian River County Comprehensive Emergency Management Plan Basic Page 125
d. Executive Order 11990, Protection of Wetlands.
e. Executive Order 12657, Federal Emergency Management
Assistance in Emergency Planning at Commercial Nuclear
Power Plants.
Executive Order 12656, Assignment of Emergency
Preparedness Responsibilities.
g. Executive Order 12241, transferring review and concurrence
responsibility for state plans from the NRC to FEMA.
h . Presidential Decision Directive - 39, United States Policy on
Counter Terrorism.
Presidential Decision Directive - 62, United States Policy on
Combating Terrorism.
Presidential Decision Directive - 63, United States Policy on
Protecting America's Critical Infrastructures.
4. Miscellaneous
a. Federal Response Plan for Public Law 93-288, as amended;
April 1992.
b. Nuclear Regulation (NUREG) 0654/FEMA-REP-1, which
provides federal guidance for development and review of
Radiological Emergency Management Plans for Nuclear Power
Plants.
C. Flood Insurance Study - Indian River County, Florida and
Incorporated Areas (FEMA - May 4, 1989)
E . Memoranda of Understanding/Agreements
Local
a. The Statewide Mutual Aid Agreement between Indian River
County and the State of Florida, Department of Community
Affairs (July 31, 2000). The purpose of this Agreement is to
provide a mechanism to expedite the assistance of other public
agencies in response to catastrophic natural and manmade
disasters. This Agreement also expedites the reimbursement
process required to receive state and federal financial
assistance during the recovery from such an event.
Indian River County Comprehensive Emergency Management Plan Basic Page 126
b. Memorandum of Understanding between Indian River County
and the Florida Department of Financial Services, Division of
State Fire Marshal for expenditure of local government unit
funding for Florida Type II Technical Rescue Resource from
2005 Domestic Preparedness Grant State Homeland Security
Grant Program dated 1/19/06.
C. Mutual Aid Agreement between the Indian River County
Emergency Services District and the Town of Indian River
Shores for the purpose of providing mutual aid in time of a fire,
medical or emergency management agency dated August 18,
1992.
d. Mutual Aid Agreement between the Indian River County
Emergency Services District and St. Lucie County for the
purpose of providing mutual aid in time of a fire, medical or
emergency management agency dated August 11, 1992.
2. State
a. Emergency Management Assistance Compact, 1996.
b. Florida and Federal Emergency Management Agency Region
IV, 1993.
C. The Statewide Mutual Aid Agreement between Indian River
County and the State of Florida, Department of Community
Affairs (July 31, 2000).
d. Florida and the American Red Cross, 1992.
e. Florida and the Air Force Rescue Coordination Center (Inland
Search/Rescue), as amended, 1995.
f . Florida Division of Emergency Management and the Civil Air
Patrol (Search/Rescue, Transport), 1992.
g. Division of Emergency Management and Florida Power
Corporation; Division of Emergency Management and Florida
Power & Light Company; and Division of Emergency
Management and Southern Nuclear Operating Company
(Radiological Emergency Response Planning and Operations),
Annual Agreements.
h. Memorandum of Agreement between the Federal Emergency
Indian River County Comprehensive Emergency Management Plan Basic Page 127
Management Agency, the State of Florida, and the City of
Miami for Urban Search and Rescue, October 5, 1993.
Building Officials Association of Florida and Division of
Emergency Management, October 1994.
National Weather Service and Division of Emergency
Management, September 1994.
k. Statement of Understanding between the Administration on
Aging and the American National Red Cross (ARC), ARC
5067, June 1995.
I. Statement of Understanding between the Salvation Army and
the American Red Cross, August 1994.
M. Statement of Understanding between the Volunteer
Organizations Active in Disaster Agencies and other volunteer
agencies.
n. Statement of Understanding between the Federal Emergency
Management Agency and the American Red Cross, January
1982.
o. Memorandum of Understanding between the Centers for
Disease Control, the United States Public Health Service of the
Department of Health and Human Services, and the American
Red Cross, December 1988.
P. State of Florida Agreement between the American Red Cross
and the Department of Health for use of the United States
Department of Agriculture donated foods, September 1989.
q. Memorandum of Understanding with the American Veterinary
Medical Association Emergency Preparedness and Response
Guide.
r. Memorandum of Understanding with the State of North
Carolina for Medivac Assistance for Monroe County.
S. Southern Mutual Radiological Assistance Plan, Southern
States Emergency Response Council.
Memorandum of Understanding between Strategic
Indian River County Comprehensive Emergency Management Plan Basic Page 128
Metropolitan Assistance and Recovery Teams and the Florida
Division of Emergency Management, February 14, 1997.
Interstate Agreement during a Hurricane Threat or Other
Events Florida Division of Emergency Management and
Georgia Emergency Management Agency.
Indian River County Comprehensive Emergency Management Plan Basic Page 129
FIGURE 12
ATMFC
N 201 -
VERSOLU ON DECLARI GATEME ENCY
WHEREAS, the National Hurricane Center recognizes the danger to coastal residents of Florida from Hurricane
ENTER HURRICANE NAME HERE, by posting a hurricane ENTER WATCH OR WARNING HERE from ENTER
SOUTHERN BOUNDARY LOCATION to ENTER NORTHERN BOUNDARY LOCATION; a n d
WHEREAS, Indian River County has high evacuation times to evacuate residents from the hazards of a
hurricane; and
WHEREAS, the current forecast error of the National Hurricane Center does not allow for a confident
prediction of the track of Hurricane ENTER HURRICANE NAME HERE at that point in time, coinciding with
Indian River County's high evacuation times; and
WHEREAS, Hurricane ENTER HURRICANE NAME HERE has the potential for causing extensive damage to
public utilities, public buildings, public communication systems, public streets and roads, public drainage
systems, commercial and residential buildings and areas; and
WHEREAS, Section 252.38(3), Florida Statutes, provides authority for a political subdivision such as Indian
River County to declare a State of Local Emergency and to waive the procedures and formalities otherwise
required of political subdivisions by law pertaining to:
1. Performance of public work and taking whatever action is necessary to ensure the
health, safety, and welfare of the community.
2. Entering into contracts.
3. Incurring obligations.
4. Employment of permanent and temporary workers.
5. Utilization of volunteer workers.
6. Rental of equipment.
7. Acquisition and distribution, with or without compensation of supplies, materials and
facilities.
8. Appropriation and expenditure of public funds.
Indian River County Comprehensive Emergency Management Plan Basic Page 130
NOW THEREFORE, BE IT RESOLVED by the Board of County Commissioners of Indian River County, Florida, this
ENTER DAY HERE day of ENTER MONTH HERE 2011, that:
1. Hurricane ENTER HURRICANE NAME HERE poses a serious threat to the lives and property
of residents of Indian River County and that a State of Local Emergency shall be declared,
effective immediately, for all of Indian River County, including, all unincorporated and
incorporated areas.
2. The Board of County Commissioners hereby exercises its authority and waives the
procedures and formalities required by law of a political subdivision, as provided in
Chapter 252.38(6)(e), Florida Statutes.
The resolution was moved for adoption by Commissioner ENTER COMMISSIONER NAME HERE and the motion
was seconded by Commissioner ENTER COMMISSIONER NAME HERE, and, upon being put to a vote, the vote
was as follows:
Chairman
Bob Solari
Vice -Chairman
Gary C. Wheeler
Commissioner
Wesley S. Davis
Commissioner
Joseph E. Flescher
Commissioner
Peter D. O'Bryan
The Chairman thereupon declared the resolution duly passed and adopted this ENTER DAYHERE day of ENTER
MONTH HERE. 2011.
BOARD OF COUNTY COMMISSIONERS
INDIAN RIVER COUNTY, FLORIDA
BY
Bob Solari, Chairman
Attest
Jeffrey K. Barton, Clerk
Indian River County Comprehensive Emergency Management Plan Basic Page 131