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COPY #
RECORD OF CHANGES
CHANGE
DATE OF
DATE
CHANGE MADE AND
NUMBER
CHANGE
ENTERED
BY WHOM
1
1/2/08
1/2/08
Basic Plan page vii:
Changed Federal Response
Plan to National Response
Framework
Etta LoPresti
2
5/1/11
5/1/11
Basic Plan page 144:
Revision date for the Dept.
of Emergency Services
Records Management
Policies and Procedures
manual.
Etta LoPresti
3
10/1/11
10/1/11
Basic Plan page 1: Removed
Department of Community
Affairs
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4
4/15/13
No Changes — Etta LoPresti
5
11/20/13
12/20/13
Basic Plan page 109:
Updated Board of County
Commissioners organization
chart.
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6
4/15/14
No Changes — Etta LoPresti
7
8/19/14
8/19/14
Basic Plan page 137:
Updated evacuation map.
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8
9/3/15
9/3/14
Basic Plan page 90:
Updated population by age
chart.
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9
1/2/15
1/2/15
Basic Plan page 5: Changed
North Treasure Coast
Chapter to Coast to
Heartland Chapter of the
American Red Cross
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10
1/2/15
1/2/15
Basic Plan page 101:
Updated ESF #6 American
Red Cross chapter name
change.
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11
6/1/15
6/1/15
Basic Plan page 142:
Updated shelter list.
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12
7/7/15
9/3/15
Basic Plan pages 7-77:
Updated hazard vulnerability
to coincide with updated
LMS.
Etta LoPresti
13
9/3/15
9/3/15
Basic Plan page 87:
Updated population
estimates
Etta LoPresti
14
9/3/15
9/3/15
Basic Plan page 88:
Updated Figure 5,
Population Centers
Etta LoPresti
15
9/3/15
9/3/15
Basic Plan page 92:
Updated Top Employers and
Employment by Industry
charts.
Etta LoPresti
16
9/3/15
9/3/15
Basic Plan page 93:
Updated housing
demographics.
Etta LoPresti
17
9/3/15
9/3/15
Basic Plan page 102: Changed
primary ESF #11 to Salvation
Army.
Basic Plan page 102: Changed
ESF #18 to Business &
Industry.
Updated ESF #8 to include
SNS operations.
Etta LoPresti
18
9/3/15
9/3/15
Basic Plan page 126: Updated
agency names for ESFs 4, 5, 61
7, 9, 10, 15, and 18.
Etta LoPresti
19
9/3/15
9/3/15
Basic Plan page 154:
Updated EAS radio stations.
Etta LoPresti
20
9/3/15
9/3/15
Basic Plan page 149: Added
information regarding 2 CFR
Part 200, the Super Circular.
Etta LoPresti
21
9/3/15
9/3/15
Basic Plan page 150-152:
Updated Training and
Exercise section.
Etta LoPresti
22
9/8/15
9/8/15
Mitigation - Annex 11 page 3:
Updated LMS approval
information.
Etta LoPresti
23
9/8/15
9/8/15
Damage Assessment —
Annex III pages 8-9:
Changed threshold amounts
for large and small project
grants.
Etta LoPresti
24
9/8/15
9/8/15
Damage Assessment —
Annex III page 11: Changed
threshold amounts for
Individuals and Households
Program.
Etta LoPresti
25
9/8/15
9/8/15
Emergency Shelter Plan —
Annex V Attachment 1:
Updated public shelter list.
Etta LoPresti
26
9/8/15
9/8/15
Emergency Shelter Plan —
Annex V Attachment 3:
Updated order of shelter
openings.
Etta LoPresti
27
9/8/15
9/8/15
Emergency Shelter Plan —
Annex V Attachment 4:
Updated General Population
Shelter Data.
Etta LoPresti
28
9/9/15
9/9/15
Basic Plan page 89:
Updated Migrant and non-
English speaking population.
Etta LoPresti
29
9/14/15
9/14/15
Basic Plan page 156:
Updated resolutions. Added
resolution for Post Disaster
Redevelopment Plan.
Etta LoPresti
30
9/14/15
9/14/15
Basic Plan page 164: Added
information on FEMA super
circular.
Etta LoPresti
31
9/14/15
9/14/15
Added Annex V11: Public
Outreach, Notification, and
Crisis Communication
Strategy.
Etta LoPresti
32
9/14/15
9/14/15
Renamed Annex VIII
Communications to Amateur
Communications.
Etta LoPresti
33
9/14/15
9/14/15
Removed Terrorism Annex
(Annex XI) from CEMP and
added to Miscellaneous
Plans.
Etta LoPresti
34
9/18/15
9/18/15
Basic Plan page 155-156:
Updated ordinances and
resolutions and added a
comment in paragraph VII
directing reader to a
separate binder containing
references and authorities to
replace Appendix C.
Etta LoPresti
35
9/18/15
9/18/15
Annex IA (Recovery) page 3,
paragraph 2: Made
reference to damage
assessment software.
Etta LoPresti
36
9/15/15
9/18/15
Annex IA (Recovery) page 4:
Added ESFs 6 (Mass Care),
13 (Military Support) and 18
(Business & Industry) to
support roles in damage
assessment.
Etta LoPresti
37
35
9/18/15
Annex IA (Recovery) page 4,
number 3: Made reference to
GeoCove software for
damage assessment.
Etta LoPresti
38
9/18/15
9/18/15
Annex IA (Recovery) page 7,
number 2: Added Annex VII
(Public Outreach,
Notification, and Crisis
Communication Strategy) as
a reference.
Etta LoPresti
39
9/18/15
9/18/15
Annex IA (Recovery) page
14, j: Added new Fire
Rescue Station #13.
Etta LoPresti
40
9/18/15
9/18/15
Annex IA (Recovery) pages
22-23: Updated the unmet
needs section.
Etta LoPresti
41
9/18/15
9/18/15
Combined Annex 111 (RIAT)
with Annex IV (Damage
Assessment). Created an
updated Annex 111 (Damage
Assessment).
Etta LoPresti
42
10/29/15
10/29/15
Basic Plan, Page 1A: Added
operational priorities to the
Purpose statement.
Etta LoPresti
43
12/5/15
12/5/15
Basic Plan, Page 51 F:
Changed incorrect number
of agriculture acres from
327,000 to 136,896.
Etta LoPresti
44
1/28/16
1/28/16
Basic Plan, Pages 28, 31,
68, 73, 94, 96 and 158:
Changed Vero Beach
Municipal Airport to Vero
Beach Regional Airport.
Annex IA (Recovery
Functions), Pages 9, 14 and
39.
Etta LoPresti
A RESOLUTION OF INDIAN RIVER COUNTY, FLORIDA,
BYAND THROUGH:•.'1 OF •UNTY COMMISSIONER
ADOPTING A COMPREHENSIVE EMERGENCY
MANAGEMENTi
INDIANRIVER COUNTY
WHEREAS,
Division of Emergency Management (DIVISION) and prescribes the powers and
responsibilities t.#
WHEREAS, Chapter 252, F.S., requires each county to develop a county emergencpj
management plan and program that is coordinated and consistent with the state
comprehensive emergency management plan and program; and I
NOW, '' RESOLVED BY THE BOARD , 4 ."
COMMISSIONERS OF INDIAN RIVER COUNTY, FLORIDA, that the 2016 INDIAN
RIVER COUNTY COMPREHENSIVE EMERGENCY MANAGEMENT PLAN (CEMP),
as approved by the DIVISION, is hereby adopted. The resolution was moved for
adoptionby • • - Flesch -r -, an and the motion was seconded by
Commissioner oBjzzaj] and, upon being put to a vote, the vote
was as follows. -
Chairman
•
The Chairman thereupon declared the resolution duly passed and adopted this
17thday of may1'
r
Jeff re Smith
Clerk of Court and Comptroller
APPROVED AS TO FORPI
Bob Solari
Vice Chairman
Joseph E. Flescher -AYE
Commissioner
Wesley S. Davis 1
CommissionerPeter
i 'Bryan AY
Commissioner
Tim •
The Chairman thereupon declared the resolution duly passed and adopted this
17thday of may1'
r
Jeff re Smith
Clerk of Court and Comptroller
APPROVED AS TO FORPI
TABLE OF CONTENTS
0
EXECUTIVE SUMMARY................................................................................................ vii
BASIC PLAN
I. INTRODUCTION
A. Purpose..................................................................................................... 1
B. Scope........................................................................................................ 2
C. Methodology.............................................................................................. 3
A.
Hazard Identification, Vulnerability, and Risk ............................................. 7
B.
Geographic Information...........................................................................
80
C.
Demographics..........................................................................................87
General..................................................................................................120
D.
Persons with Special Needs....................................................................
90
E.
Climatology..............................................................................................90
Notification and Warning.......................................................................
F.
Economic Profile......................................................................................
91
G.
Emergency Management Support Facilities ............................................
94
H.
Planning Assumptions.............................................................................
97
III. Concept of Operations
A.
Levels of Disaster.................................................................................... 98
B.
Organization............................................................................................ 99
C.
General..................................................................................................120
D.
Direction & Control.................................................................................
121
E.
Notification and Warning.......................................................................
129
F.
Response Actions
1. General.......................................................................................131
2. Evacuation..................................................................................
136
3. Sheltering...................................................................................
141
G.
Recovery Actions
1. Initial Actions...............................................................................
143
2. Continuing Actions......................................................................
143
IV. Responsibilities
A. General..................................................................................................143
B. Indian River County............................................................................... 145
C. Special Districts..................................................................................... 146
D. State of Florida...................................................................................... 146
E. Federal Government.............................................................................. 147
V. Financial Management Policy
A. Assumptions.......................................................................................... 147
B. Expenditure of Funds............................................................................. 148
Table of Contents (continued)
Paqe
VI. Training, Exercise and Public Awareness/Education
A. Training ....................................................................................... 150
B. Cost for Training ......................................................................... 151
C. Exercise and Training Schedule ................................................. 151
D. Public Awareness and Education ................................................ 152
VI 1. References and Authorities
A. Local
1. Ordinances .................................................................................. 155
2. Resolutions ............................................................................... 156
3. Miscellaneous ............................................................................. 156
B. Supplemental Plans to the CEMP ......................................................... 157
C. State
1. Statutes ............................................................................ 158
2. Administrative Rules ......................................................... 162
3. Executive Orders .............................................................. 162
4. Miscellaneous ................................................................... 162
D. Federal
1.
Public Laws ......................................................................
162
2.
Regulations ......................................................................
164
3.
Executive Orders ..............................................................
164
4.
Miscellaneous ...................................................................
165
E. Memoranda of Understanding/Agreements
1. Local ................................................................................. 165
2. State ................................................................................. 166
LIST OF FIGURES
1
CEMP Distribution List .......................................................................................... 5
2
Hazard Vulnerability by Jurisdiction ....................................................................
78
3
Flood Prone Areas .............................................................................................
82
4
Existing Land Uses .............................................................................................
84
4AFuture
Land Use Map .........................................................................................
85
5
Population Centers .............................................................................................
88
6
EOC Organizational Charts and Matrices ..................................................110-119
6-1
ESF Matrix - Primary and Support Agencies (Response Phase) ..............103-104
6-2
Matrix - Agency Responsibilities (Recovery Phase) .........................................
106
6-3
Matrix - Agency Responsibilities (Mitigation Phase) .........................................
108
6-4
Organizational Chart (Day-to-day Operations) .................................................
109
6-5
Organization Chart (EOC Executive Group) .....................................................
110
Table of Contents (continued)
6-6
6-6
Organizational Chart (Supervision of EOC) ......................................................
ill
6-7
Organizational Chart (Supervision of EOC-Nuclear Events) ............................
112
6-8
Organizational Chart (Administration Group) ....................................................
113
6-9
Organizational Chart (Planning Group) ............................................................
114
6-10
Organizational Chart (Logistics Group) ............................................................
115
6-11
Organizational Chart (Operations Group) .........................................................
116
6-12
Organizational Chart (Operations Group — Nuclear Events) ............................
117
6-13
Organizational Chart (Mitigation Phase) ...........................................................
118
6-14
Organizational Chart (Recovery Phase) ...........................................................
119
7
Primary Agency Listing .....................................................................................
126
8
Declaration Process .........................................................................................
135
9
Evacuation Routes ...........................................................................................
137
10
American Red Cross Primary Shelter List ........................................................
142
11
Sample Resolution Declaring a Local State of Emergency ..............................
169
Table of Contents (continued)
LIST OF APPENDICES
APPENDIX A
Glossary of Acronyms
APPENDIX B
Glossary of Key Terms
APPENDIX C
Indian River County EOC Standard Operating Procedures
iv
Table of Contents (continued)
ANNEX 1: 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)
Business and Industry - (ESF #18)
F-11,11 R,
ANNEX II: MITIGATION FUNCTIONS
F -,l N, I N, I:xj I I = sq -,j ►�j F-,W*j".j ►n 1:4'k, k itell] 191
ANNEX IV: EMERGENCY SHELTER PLAN
ANNEX VI: COMMUNICATIONS (GENERAL)
ANNEX VII: COMMUNICATIONS (AMATEUR)
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 "National
Response Framework" 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.
u
This plan replaces the Florida Nuclear Civil Protection Plan, Florida Peacetime
Emergency Plan, and National Response 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.
Vii
THE INDIAN RIVER COUNTY
COMPREHENSIVE EMERGENCY MANAGEMENT PLAN
BASIC PLAN
I. 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) on behalf of the Governor.
I_�1�171i�y
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. This plan, and all other
plans and procedures developed by Indian River County Emergency
Management, are developed in accordance with the hazards identified in the
Indian River County Local Mitigation Strategy. The procedures also reflect
operational priorities including life, safety, health, property protection,
environmental protection, restoration of essential utilities, restoration of
essential program functions and coordination among appropriate
stakeholders unless otherwise noted by exception.
Indian River County Comprehensive Emergency Management Plan Basic Page 1
19
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. The Indian River County
Emergency Services Director oversees NIMS compliance for this
department.
SCOPE
This plan is countywide in scope and is supported by the five municipalities.
The scope of this plan is to accomplish the following:
Indian River County Comprehensive Emergency Management Plan Basic Page 2
Establishes fundamental policies, program strategies, and
assumptions,
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
The Emergency Management Director is responsible for the
development and maintenance of the Comprehensive Management
Plan and ensuring that necessary revisions to this plan are prepared,
coordinated, published and distributed. Staff has 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.
Indian River County Comprehensive Emergency Management Plan Basic Page 3
e. All agencies reviewed the final draft of the plan and accepted
the responsibilities assigned to them by the plan.
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.
The Indian River County Logistics and Resource Management
Plan establishes the process and procedures for providing and
coordinating logistics and resource management efforts
required for emergency management and incident response
programs and activities.
An Emergency Management Advisory Group was established
and approved in January 2015 which will promote local
participation in the emergency management program.
Indian River County Comprehensive Emergency Management Plan Basic Page 4
Figure 1
CEMP CD DISTRIBUTION LIST
AGENCY
DIVISION
INDIAN RIVER COUNTY
ATTORNEY'S OFFICE
BCC OFFICE
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, COAST TO HEARTLAND 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 binder located in the office of Emergency
Management. 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 aforementioned binder.
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. ESFs meet at
least annually, during participation in the Annual Statewide
Hurricane Exercise. During this time procedures and
responsibilities are reviewed.
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
II. 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 (State & FEMA approved on August 12, 2015 and adopted
by Resolution #2015-078 by the Board of County Commissioners on July 7, 2015).
Indian River County's LMS plan has been approved for a period of five (5) years
and will expire on August 12, 2020.
Communities in Indian River County are vulnerable to three classifications of
hazards: natural, technological, and societal as identified below. A complete
analysis can be found in the county's Local Mitigation Strategy, as well as a
chart depicting the hazard vulnerability by jurisdiction and population centers
that can be found in Table 4.15 in Section 4, pages 84-85 of the county's
Local Mitigation Strategy.
Natural Hazards
a. Flood — Hazard Identification
A flood is defined by the National Weather Service as any high
flow, overflow, or inundation by water which causes or
threatens damage. There are a number of flood types, such
as:
River Flood — Occurs when water levels rise over the top of
river banks due to excessive rain from tropical systems making
landfall, persistent thunderstorms over the same area for
extended periods of time, combined rainfall and snowmelt, or
an ice jam.
Coastal Flood — The inundation of land areas along the coast
causes by higher than average high tide and worsened by
heavy rainfall and onshore winds (i.e., wind blowing landward
from the ocean).
Storm Surge — An abnormal rise in water level in coastal
areas, over and above the regular astronomical tide, caused by
forces generated from a severe storm's wind, waves, and low
Indian River County Comprehensive Emergency Management Plan Basic Page 7
atmospheric pressure. Storm surge is extremely dangerous,
because it is capable of flooding large coastal areas.
Inland Flooding — Occurs when moderate precipitation
accumulates over several days, intense precipitation falls over
a short period, or a river overflows because of an ice or debris
jam, or dam or levee failure.
Flash Flood — Caused by heavy or excessive rainfall in a short
period of time, generally less than six hours. Flash floods are
usually characterized by raging torrents after heavy rains that
rip through river beds, urban streets, or mountain canyons
sweeping everything before them.
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, make it vulnerable to riverine as well as storm -
associated flooding.
Flooding in Indian River County results from one or a
combination of both of the following meteorological events:
• Tidal surge associated with northeasters, hurricanes,
and tropical storms; and
• Overflow from streams and swamps associated with
rain runoff.
When intense rainfall events occur, streams and drainage
ditches tend to reach peak flood flow concurrently with tidal
water conditions associated with coastal storm surge. This
greatly increases the probability of flooding in the low-lying
areas of the coastal zone. Areas along the Indian River are
particularly susceptible to flooding under these conditions. The
most flood prone areas in the eastern portion of the County
feature poorly drained soils, a high water table, and relatively
flat terrain, all of which contribute to their flooding problems.
Flat terrain and heavily wooded areas aggravate flood
problems by preventing rapid drainage in some areas.
Indian River County Comprehensive Emergency Management Plan Basic Page 8
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 County infrastructure including
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 stormwater runoff, the accumulation of loose
sediment causes flooding by clogging the drainage systems.
This buildup of sediment in Indian River County waterways has
led to the degradation of the national estuary. The County is
currently working to address this issue by replacing bottom
opening radial gates with tilting gates at four water control
structures.
Long-term climate monitoring stations indicate that rainfall in
Indian River County averages about 51.5 inches annually, with
about half of this volume occurring during the 4 months from
June through September. Only about 20% of the total annual
volume of precipitation occurs during the four driest months,
December through March. The maximum annual rainfall that
has been recorded for the Vero Beach climatological station is
81.74 inches, (Indian River County Public Works, 2002).
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 life 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.
Indian River County Comprehensive Emergency Management Plan Basic Page 9
Historical Flooding Events. Data on previous occurrences of
flooding events in municipalities are limited; therefore, the
following events are based on the best available data.
Additional data can be found under the Tropical
Storms/Hurricanes heading (4.1.2).
Flood of 1947. This flood is generally considered to be
the most severe flood recorded in southern Florida. Heavy
rainfall, including the rains from two hurricanes, occurred over
a period of 5 months. Many parts of Martin County, to the
south, were flooded for months, and there was extensive
damage to dairy pastures and agriculture in general. Such a
flooding event in Indian River County would be much more
significant today because of the increase in land development
along the eastern side of the County.
Flood of 1953. As occurred in 1947, this flood was
preceded by 5 months of heavier than normal rainfall, which
included a tropical storm in October. June through October
rainfall was approximately 48 inches. Damage was heaviest in
the beef cattle industry, with extensive losses of improved
pastureland, which required supplemental feeding of cattle.
Vegetable growers and dairy farmers also suffered significant
losses as a result of this flood. There were significant
damages to buildings and roads in the eastern part of the
County as well.
Flash Flood of March 1993. The City of Vero Beach
experienced a flash flood following heavy rains causing minor
damage in 50 homes and washed out roads around Highway
60. The flood caused an estimated $500,000 in damages.
The Unnamed Storm of October 1995. Almost exactly
one year after the Tropical Storm Gordon flooding incident in
1994, a stalled frontal system dropped 15.5 inches of rain on
Indian River County over a period of 39 hours.
Flooding of August 1999. The City of Sebastian
experienced heavy rains in early August that flooded roads
along U.S. Highway 1. The high water disabled six vehicles in
the area as well. The City of Vero Beach experienced heavy
rains producing flooding of some major roadways round the
City in late August.
Indian River County Comprehensive Emergency Management Plan Basic Page 10
Flooding of June 2002. The Town of Fellsmere
experienced flooding from heavy rains, which rendered some
roads impassable and flooded two homes in the Fellsmere
area. This storm caused an estimated $10,000 in damage.
Flooding of August 2002. The City of Vero Beach
experienced heavy rain measuring about 5 inches in a few
hours, which flooded streets and three houses in the City. The
storm caused an estimated $50,000 in damage.
Extent/Probability/Impact. Flooding impacts related to
tropical events are highlighted in the Tropical
Storms/Hurricanes impacts profile. Indian River County has
only experienced one flood event since the last SMS plan
update (2010) and it was due to Tropical Storm Isaac (see
below). There have been no flooding events recorded for
Indian River County in the National Climatic Data Center
database since 2012 (through April 2015).
In the past, flood waters in Indian River County have seldom
exceeded 6" and would not be expected to ever exceed Flood
Insurance Rate Map (FIRM) base flood elevations (BFEs) at
any given location (i.e., one to two feet). Indian River County
has experienced a total of 8 significant flooding (flood property
and/or drown people/domestic animals) events between the
periods of 1947-2015; therefore, there is a 12% annual chance
of a significant flooding event to occur in Indian River County.
Vulnerability Assessment. 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.
Flooding events can have the following potential impacts within
a community:
• Excessive water;
• Soil/beach erosion;
• Electric power outage;
• Surface and air transportation disruption;
• Navigable waterway impairment;
Indian River County Comprehensive Emergency Management Plan Basic Page 11
• Potable water system loss or disruption;
• Sewer system outage;
• Public health and safety: increased rates of diarrhea
(including cholera and dysentery), respiratory infections,
hepatitis A and E, typhoid fever, leptospirosis, and
diseases borne by insects;
• Psychological hardship;
• Economic disruption;
• Disruption of community services;
• Agricultural/fisheries damage;
• Damage to critical environmental resources;
• Damage to identified historical resources;
• Fire;
• Toxic releases; and
• Stormwater drainage impairment.
b. Tropical Storms/Hurricanes — Hazard Identification
A tropical storm is a tropical cyclone with maximum sustained
winds of at least 39 mph. Tropical storms are given official
names once they reach these wind speeds. Beyond 74 mph, a
tropical storm is called a hurricane, typhoon, or cyclone based
on the storm location. A tropical cyclone has a defined cyclonic
rotation and severe thunderstorms around a central low-
pressure zone. A tropical cyclone is one step above a tropical
depression, but a step below a hurricane in terms of intensity.
A Tropical Storm Watch is issued by the National Hurricane
Center (NHC) when tropical -storm conditions are possible
within the specified area. A Tropical Storm Warning is issued
by the NHC when tropical -storm conditions are expected within
the specified area.
Hurricanes are tropical cyclones with winds that exceed 74
mph and blow counter -clockwise about their centers in the
Northern Hemisphere. They are essentially heat pumping
mechanisms that transfer the sun's heat energy from the
tropical to the temperate and polar regions. This helps to
maintain the global heat budget and sustain life. Hurricanes
are formed from thunderstorms that form over tropical oceans
with surface temperatures warmer than 81'F (26.5°C). The
ambient heat in the sea's surface and moisture in the rising air
column set up a low pressure center and convective conditions
that allow formation of self-sustaining circular wind patterns.
Under the right conditions, these winds may continue to
Indian River County Comprehensive Emergency Management Plan Basic Page 12
intensify until they reach hurricane strength. This heat and
moisture from the warm ocean water is the energy source of a
hurricane. Hurricanes weaken rapidly when deprived of their
energy source by traveling over land or entering cooler waters.
When a hurricane threatens the coast, advisories are issued
by the NHC. 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.
In addition to advisories, the NHC may issue a hurricane watch
or warning. A Hurricane Watch is issued 48 hours in advance
of the anticipated arrival of tropical -storm- force winds. A
Hurricane Warning is issued 36 hours in advance of the
anticipated onset of tropical -storm -force winds.
Advisories and hurricane watches and warnings will frequently
refer to the category of a 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 129 mph;
• Category 4 —
Winds 130 to 156 mph; and
• Category 5 —
Winds 157 mph or higher.
Hurricane damage occurs through two means — high winds
and storm surge. Generally it is the wind that produces most
of the property damage associated with hurricanes, while the
greatest threat to life is from flooding and storm surge.
Although hurricane winds can exert tremendous pressure
against a structure, a large percentage of hurricane damage is
caused not from the wind itself, but from flying debris. Tree
limbs, signs and sign posts, roof tiles, metal siding, and other
loose objects can become airborne missiles that penetrate the
outer shells of buildings, destroying their structural integrity and
allowing hurricane winds to act against interior walls not
designed to withstand such forces. Once a structure's integrity
is breached, the driving rains associated with hurricanes can
enter the structure and completely destroy its contents.
Indian River County Comprehensive Emergency Management Plan Basic Page 13
Hurricane winds are unique in several ways:
• They are more turbulent than winds in most other types
of storms;
• They are sustained for a longer period of time (several
hours) than any other type of atmospheric disturbance;
• They change slowly in direction; thus, they are able to
seek out the most critical angle of attack on a given
structure; and
• They generate large quantities of flying debris as the
built environment is progressively damaged; thus,
amplifying their destructive power.
In hurricanes, gusts of wind can be expected to exceed the
sustained wind velocity by 25% to 50%. This means a
hurricane with sustained winds of 150 mph will have wind
gusts exceeding 200 mph. The wind's pressure against a fixed
structure increases with the square of the velocity. For
example a 100 -mph wind will exert a pressure of approximately
40 pounds per square foot on a flat surface, while a 190 -mph
wind will exert a force of 122 pounds per square foot on that
same structure. In terms of a 4- by 8 -foot sheet of plywood
nailed over a window, there would be 1,280 pounds of
pressure against this sheet in a 100 -mph wind, and 3,904
pounds or 1.95 tons of pressure against this sheet in a 190 -
mph wind.
The external and internal pressures generated against a
structure vary greatly with increases in elevation, shapes of
buildings, openings in the structures, and the surrounding
buildings and terrain. Buildings at ground level experience
some reductions in wind forces simply because of the drag
exerted by the ground against the lowest levels of the air
column. High-rise buildings, particularly those located along
the beachfront will receive the full strength of hurricane winds
on their upper stories. Recent studies estimate that wind
speed increases by approximately 37% just 15 feet above
ground level.
The wind stream generates uplift as it divides and flows around
a structure. The stream following the longest path around a
building, generally the path over the roof, speeds up to rejoin
the wind streams following shorter paths, generally around the
walls. This is the same phenomenon that generates uplift on
Indian River County Comprehensive Emergency Management Plan Basic Page 14
an aircraft's wing. The roof in effect becomes an airfoil that is
attempting to "take off" from the rest of the building. Roof
vortexes generally concentrate the wind's uplift force at the
corners of a roof. These key points can experience uplift
forces two to five times greater than those exerted on other
parts of the roof.
Once the envelope of the building has been breached through
the loss of a window or door, or because of roof damage, wind
pressure on internal surfaces becomes a factor. Openings
may cause pressurizing or depressurizing of a building.
Pressurizing pushes the walls out, while depressurizing will pull
the walls in. Internal pressure coupled with external suction
adds to the withdrawal force on sheathing fasteners.
Damages from internal pressure fluctuations may range from
blowouts of windows and doors to total building collapse due to
structural failure.
During Hurricane Andrew, catastrophic failure of one- and two-
story wood -frame buildings in residential areas was observed
more than catastrophic failures in other types of buildings.
Single-family residential construction is particularly vulnerable
because less engineering oversight is applied to its design and
construction. As opposed to hospitals and public buildings,
which are considered "fully engineered," and office and
industrial buildings, which are considered "marginally
engineered," residential construction is considered
"non -engineered." Historically, the bulk of wind damage
experienced nationwide has occurred to residential
construction. Fully engineered construction usually performs
well in high winds due to the attention given to connections and
load paths.
Hurricane winds generate massive quantities of debris that can
easily exceed a community's entire solid waste capacity by
three times or more. Debris removal is an integral first step
toward recovery, and as such, must be a critical concern of all
those tasked with emergency management and the restoration
of community services.
A storm surge is a large dome of water often 50 to 100 miles
wide and rising anywhere from 4 to 5 feet in a Category 1
hurricane and up to 20 feet in a Category 5 storm. The storm
surge arrives ahead of the storm's actual landfall, and the
Indian River County Comprehensive Emergency Management Plan Basic Page 15
more intense the hurricane is, the sooner the surge arrives.
Water rise can be very rapid, posing a serious threat to those
who have waited to evacuate flood prone areas. A storm
surge is a wave that has outrun its generating source and
become a long period swell. The surge is always highest in
the right -front quadrant of the direction the hurricane is moving
in. As the storm approaches shore, the greatest storm surge
will be to the north of the hurricane eye.
Such a surge of high water topped by waves driven by
hurricane force winds can be devastating to coastal regions.
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 water
height will be even greater. The storm tide is the combination
of the storm surge and the normal astronomical tide.
Damage during hurricanes also may result from possible
spawned tornadoes, and inland flooding associated with heavy
rainfall that usually accompany these storms. Hurricane
Andrew, a relatively "dry" hurricane, dumped 10 inches of rain
on south Florida and left many buildings extensively water
damaged. Rainwater may seep into gaps in roof sheathing
and saturate insulation and ceiling drywall, in some cases
causing ceilings to collapse.
Crop damage is another powerful effect of hurricanes and
tropical storms. Tropical Storm Mitch in 1998 dropped as much
as 10 inches of rain in some south Florida areas, which
resulted in approximately $20 million in crop damage in Palm
Beach County alone (Associated Press, 1998). According to
the University of Florida (2001), of Indian River County's
322,112 acres, 168,399 acres are farmland. With 52% 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. Hurricanes Charley,
Frances, and Jeanne crossed citrus -producing counties in
Florida in 2004, followed by Hurricane Wilma in 2005.
Hurricanes Frances and Jeanne affected the Treasure Coast
directly, making landfall three weeks apart in Martin County. A
special census to measure the losses was conducted in mid -
2005 in the four counties of Indian River, Martin, Palm Beach,
and St. Lucie. Because of these hurricanes, Indian River and
St. Lucie Counties only produced 36% of the state's grapefruit
Indian River County Comprehensive Emergency Management Plan Basic Page 16
in 2004-05, compared to the normal 66%. Overall, the number
of boxes of Florida citrus was down 42% from the 2003-04
season, bringing a 17% drop in value for the same period
(USDA, 2005). After the 2004 hurricane season, the rate of
tree removal and burning efforts were intensified in an effort to
eradicate canker from commercial groves before the onset of
the 2005 hurricane season. Before the plan could be
completed, hurricane Wilma contributed to the spread of
canker from south Florida up through central Florida, far
beyond the ability to control it with the existing eradication plan.
Estimates placed the spread of the disease at 183,000 acres.
The existing eradication plan would have required the
destruction of one-fourth of the commercial acreage in Florida,
an amount that would have devastated the citrus industry
(Conner, 2006).
Historic Events. From 1930 through 1959, a total of
58 hurricanes struck the U.S. mainland; 25 of which were
Category 3 or higher (major storms). Between 1960 and 1989,
43 hurricanes struck the U.S.; 16 of which were Category 3 or
stronger. Most hurricane experts feel we are entering a period
of increased hurricane formation similar to the levels seen in
the 1930's and 1940's. Current hurricane risk calculations are
complicated by climatic factors suggesting the potential for
even greater hurricane frequency and severity in all of the
world's hurricane spawning grounds. Since 1995, there have
been 33 Atlantic hurricanes, and there were 10 in 1998 alone.
Global warming may cause changes in storm frequency and
the precipitation rates associated with storms. A modest 0.9°F
(0.5°C) increase in the mean global temperature will add 20
days to the annual hurricane season and increase the chances
of a storm making landfall on the U.S. mainland by 33%. The
warmer ocean surface also will allow storms to increase in
intensity, survive in higher latitudes, and develop storm tracts
that could shift farther north, producing more U.S. landfalls.
Currently an average of 1.6 hurricanes strike the U.S. every
year. Severe (Category 4 or 5 on the Saffir-Simpson scale)
hurricanes strike the U.S. on the average of one every 5.75
years. Annually, hurricanes are estimated to cause
approximately $1.2 billion in damages. The proximity of dense
population to the Atlantic Ocean, as well as the generally low
coastal elevations, significantly increases the County's
vulnerability. The potential for property damage and human
Indian River County Comprehensive Emergency Management Plan Basic Page 17
casualties in Indian River County has increased over the last
several decades primarily because of the rapid growth this
County has experienced since 1970, particularly along the
vulnerable coastline areas.
From 1871 - 2013, 57 storms of hurricane intensity have
passed within 125 miles of Indian River County. This
represents an average of one hurricane every 2.49 years. The
number of direct hits on the southeastern Florida coastline
between 1871 and 2013 has been as follows
(tt :flwww.hurricanecit .com/city/vero.htm):
Probability.
• Tropical Storm (winds 39 to 73 mph) = 27 storms (19%
annual probability);
• Category 1 Storms (winds 74 to 95 mph) = 12 storms (8%
annual probability);
• Category 2 Storms (winds 96 to 110 mph) = 5 storms (4%
annual probability);
• Category 3 Storms (winds 111 to 129 mph) = 5 storms (4%
annual probability);
• Category 4 Storms (winds 130 to 156 mph) = 2 storms (1 %
annual probability); and
• Category 5 Storms (winds 157 mph >) = 0 storm (1%
annual probability)
Extent. While it is possible for Indian River County to be
impacted by a category 4 or 5 hurricane, according to the
statistics above it is very unlikely. Indian River County has a
history of impacts from tropical storms and category 1-3
hurricanes as defined by the Saffir-Simpson Hurricane Wind
Scale. Impacts from these storms can cause major structure
damage, trees to be uprooted, and near total power loss for
several days to weeks after the storm passes.
Hurricane of September 1928. This hurricane made
Florida landfall near the City of Palm Beach as a strong
Category 4 hurricane with one of the lowest barometric
pressures ever recorded in this area (928.9 millibars [27.43
inches]). It reached Lake Okeechobee with very little decrease
in intensity. In all, 1,836 people were killed and another
1,870 injured during this storm's passage. Nearly all the loss
of life was in the Okeechobee area and was caused by
Indian River County Comprehensive Emergency Management Plan Basic Page 18
overflowing of the lake along its southwestern shore.
Hurricane of September 1933. This major Category 3
hurricane passed over Jupiter Island with a barometric
pressure of 947.5 millibars (27.98 inches). Maximum winds
recorded were 127 mph. There was considerable property
damage all along the Florida east coast, mostly in the area
between Jupiter and Ft. Pierce. Severe waterfront damage
was reported in Stuart, located in Martin County.
Hurricane of August 1949. This Category 3/Category
4 hurricane made landfall in Florida between Delray and Palm
Beach with winds of 130 mph and a barometric pressure of
954.0 millibars (28.17 inches). As it moved inland, its center
passed over the northern part of Lake Okeechobee. The
levees in that area held, and no major flooding occurred.
Damages in Florida were estimated at $45 million. Tides of
11.3 feet at Ft. Pierce, 8.5 ft at Stuart, and 6.9 ft at Lake Worth
were reported. Statewide, over 500 people lost their homes as
a result of this storm.
Tropical Storm (Florence) of September 1960.
Tropical Storm Florence deposited a total of 10 to 11 inches of
rain countywide over a 5 -day period from 20 to 25 September
1960. Fortunately, the previous month's rainfall had been
rather low, and overall flooding was not extensive. The most
significantly damaged area was in the Allapattah Marsh area
north of the St. Lucie Canal. Several dike systems failed and
allowed water to overrun several ranches.
Hurricane Andrew ofAugust 1992. Hurricane Andrew
was a small and ferocious Cape Verde hurricane that wrought
unprecedented economic devastation along a path through the
northwestern Bahamas, the southern Florida peninsula, and
south-central Louisiana. Damage in the U.S. was estimated to
be near 25 billion, making Hurricane Andrew the most
expensive natural disaster in U.S. history. The tropical cyclone
struck southern Dade County, Florida, especially hard, with
violent winds and storm surges characteristic of a Category 4
hurricane on the Saffir/Simpson Hurricane Scale, and with a
central pressure (922 millibars) that is the third lowest this
century for a hurricane at landfall in the U.S. In Dade County
alone, the forces of Hurricane Andrew resulted in 15 deaths
and up to one-quarter million people left temporarily homeless.
Indian River County Comprehensive Emergency Management Plan Basic Page 19
An additional 25 lives were lost in Dade County from the
indirect effects of Andrew. The direct loss of life seems
remarkably low considering the destruction caused by this
hurricane (Rappaport, 1993).
Tropical Storm (Gordon) of October 1994. Indian
River County experienced a period of extensive growth during
the 1970's and 1980's. Most of this growth took place in the
form of residential and commercial land development in the
eastern portion of the County along the major transportation
corridor. The rain event associated with Tropical Storm
Gordon in October 1994 was the most significant rain event to
occur after this period of development.
Hurricane Floyd of September 1999. This large
Category 4 storm moved parallel to the southeast Florida
coast. While the storm did not make landfall in Florida, it did
impact Florida coastal communities. Peak gusts associated
with the storm were estimated to be as high as 155 mph. Fifty-
seven deaths and 1.3 billion dollars in insured losses were
attributed to the storm. Readings taken in Ft. Pierce indicate
that sustained winds were 33 mph, and peak wind gusts were
up to 49 mph. The ARC opened 7 shelters in Indian River
County and served 2,000 meals during the hurricane.
Hurricane Irene of October 1999. This Category 2
hurricane made landfall in the Keys and moved north, heading
back out to sea at the Jupiter Inlet. Insured property losses in
Dade, Broward, and Palm Beach counties exceeded $600
million. Total insured losses from the rest of the state totaled
$200 million. Over 700,000 customers were left without power
following the storm. Readings taken in Ft. Pierce indicate that
sustained winds were 42 mph, and peak wind gusts were up to
51 mph. Peak wind gusts in Vero Beach measured 71 mph.
Tropical Storm Leslie of October 2000. This tropical
storm mainly impacted Miami -Dade and Broward counties,
causing $700 million in damage, $500 million of which were
agricultural crop losses. During this storm, the City of
Sebastian experienced significant flooding.
Hurricane Gabrielle of September 2001. This
hurricane made landfall on the west coast of Florida and
traveled northeast across the state. The storm spawned a
Indian River County Comprehensive Emergency Management Plan Basic Page 20
total of 18 tornadoes. Insured losses associated with this
storm totaled $115 million. Total damage is estimated to be
nearly $230 million. Readings taken in Ft. Pierce indicate that
sustained winds reached 27 mph, and peak wind gusts were
up to 37 mph. Rain meters in Ft. Pierce indicated 1.97 inches
of rainfall during this period.
Hurricane Frances of September 2004. This
hurricane made landfall over the southern end of Hutchinson
Island, Florida as a Category 2 hurricane. Frances gradually
weakened as it moved slowly west -northwestward across the
Florida Peninsula, and became a tropical storm just before
emerging into the northeastern Gulf of Mexico near New Port
Richey early on 6 September. The National Weather Service
Melbourne Weather Forecast Office (WFO) estimated storm
surge at 8 ft near Vero Beach and 6 ft around Cocoa Beach.
Frances caused widespread heavy rains and associated
freshwater flooding over much of the eastern United States.
Storm -total rainfalls of 5-10 in were common elsewhere along
Frances' track as a tropical cyclone. Frances caused an
estimated $850 million in damage to insured property in Indian
River County. The storm spawned a total of 101 tornadoes —
23 in Florida. Sustained winds reached 105 mph. There was
one fatality recorded in Indian River County.
Hurricane Jeanne of September 2004. Jeanne made
landfall as a Category 3 hurricane on the east coast of Florida
early on September 26 with the center crossing the coast at
the southern end of Hutchinson Island just east of Stuart.
Maximum winds at landfall are estimated at 121 mph.
Widespread rainfall of up to 8 inches accompanied Hurricane
Jeanne as it moved across eastern, central and northern
Florida. A narrower band of 11 to 13 inches was observed in
the vicinity of the eyewall track over Osceola, Broward and
Indian River counties of east central Florida. Storm surge
flooding of up to 6 ft above normal tides likely occurred along
the Florida east coast from the vicinity of Melbourne southward
to Ft. Pierce. Jeanne caused an estimated $2 billion in damage
to insured property Indian River County.
Hurricane Wilma of October 2005. Wilma made
landfall in southwestern Florida near Cape Romano as a
Category 3 hurricane on October 24 with sustained winds
estimated to be around 120 mph. The hurricane crossed the
Indian River County Comprehensive Emergency Management Plan Basic Page 21
southern Florida peninsula in 4.5 hours, with the center
emerging into the Atlantic just southeast of Jupiter. Maximum
winds had decreased to near 109 mph (Category 2) during the
crossing of Florida. Because the hurricane moved quickly
across the southern Florida peninsula, however, the rain
amounts were not very large in Florida and storm totals ranged
generally from 3 to 7 inches. Some locations in southeast
Florida had totals of only 1 to 2 inches -- or less. Wilma
produced 10 tornadoes over the Florida peninsula on 23-24
October: one each in Collier, Hardee, Highlands, Indian River,
Okeechobee, and Polk Counties, and four in Brevard County.
Tropical Storm Ernesto of August 2006. Ernesto
made landfall at Plantation Key, Florida, in the upper Florida
Keys, as a tropical storm with winds of 46 mph. The storm
moved northward along the center of the Florida peninsula and
within a weakness in the mid-level ridge, and the cyclone
passed over Lake Okeechobee gradually turning and emerging
over the Atlantic Ocean near Cape Canaveral, Florida. The
storm dropped 3-6 inches of rain in many areas near the path
of the storm's center, from the Cape Canaveral area to Lake
Okeechobee, in portions of southwestern Florida, and in
isolated spots in the Upper Florida Keys.
Tropical Storm Fay of September 2008. Fay was a
long-lived tropical storm that made eight landfalls — including a
record four landfalls in Florida (Key West, Cape Romano,
Flagler Beach and Carrabelle) — and produced torrential
rainfall that caused extensive floods across the Dominican
Republic, Haiti, Cuba, and Florida. Heavy rainfall was the most
notable hazard caused by Tropical Storm Fay. Melbourne,
Florida broke a 50 -year old record for a rainfall event. There
were numerous rainfall reports of more than 20 in reported
across east -central Florida and amounts in excess of 10 in
were common elsewhere across the central and northern
Florida.
Tropical Storm Isaac (August 26-27, 2012). Persistent
heavy rainbands from Tropical Storm Isaac produced
widespread urban and lowland flooding across much of the
county. Rainfall from the morning of August 26 until the
evening of August 27 averaged 4 to 8 inches, with isolated
totals of 14 to 17 inches, most of which fell during the morning
and afternoon of August 27. The most significant impacts
Indian River County Comprehensive Emergency Management Plan Basic Page 22
occurred near the coast from Winter Beach to Vero Beach and
Florida Ridge. Twenty seven manufactured homes and two
single family homes were damaged by water intrusion and 20
roads were temporarily closed due to standing water during the
height of the flooding.
For many years, the risk of significant loss of life and property
due to hurricanes seemed small. Many, if not the majority of
existing homes and business along the U.S. Atlantic and Gulf
Coasts were located there during the 1970's and 1980's, a
period of relatively inactive hurricane formation. Most of the
people currently living and working in coastal areas have never
experienced the impact of a major hurricane. Hurricanes that
impacted Florida during the 1970's and 80's were infrequent
and of relatively low intensity. Homeowners, business interest,
and government officials grew to regard hurricane risk as
manageable by private insurance supplemented occasionally
by Federal disaster funding and subsidized flood insurance.
The hurricane risk did not seem sufficient to warrant increased
investment in mitigation. Two major hurricanes, Hugo in 1989
and Andrew in 1992, forced a re-evaluation of this risk
assessment. While experts sometimes disagree on the annual
cost, all sources agree that Hurricane Andrew was the most
costly hurricane event ever to affect the U.S. Insured losses
from Hurricane Andrew topped $17 billion, and most sources
agree that the total cost of Hurricane Andrew exceeded $25
billion.
Florida is the most vulnerable state in the nation to the impacts
of hurricanes and tropical storms. South Central Florida is
particularly exposed to the dangers presented by hurricanes
due to its topography. The region is largely a flat, low-lying
plain. The potential for property damage and human
casualties in Indian River County has been increased by the
rapid growth of the County over the last few decades,
particularly along the coastline. Population risk also has been
exacerbated by some complacency due to the recent period of
reduced hurricane frequency.
Florida not only has the most people at risk from hurricanes,
but it also has the most coastal property exposed to these
storms. Over the 30 -year period from 1980-2010, Florida's
population increased by 93%. At the end of 2008, there were
6.389 million residential risks, including 4.5 million of those
Indian River County Comprehensive Emergency Management Plan Basic Page 23
risks coming from single-family homes. The residential
property exposure totaled $2.1 trillion, of which Single-family
homes accounted for $1.777 trillion. (Florida Insurance Council
2013)
Vulnerability Assessment. Tropical storm/hurricane events
can have the following potential impacts within a community:
• Excessive wind;
• Excessive water;
• Soil/beach erosion;
• Electric power outage;
• Surface and air transportation disruption;
• Navigable waterway impairment;
• Potable water system loss or disruption;
• Sewer system outage;
• Telecommunications system outage;
• Human health and safety;
• Psychological hardship;
• Economic disruption;
• Disruption of community services;
• Agricultural/fisheries damage;
• Damage to critical environmental resources;
• Damage to identified historical resources;
• Fire;
• Toxic releases; and
• Stormwater drainage impairment.
Hazus estimates the amount of debris that will be generated by
hurricanes. The model breaks the debris into four general
categories: a) Brick/Wood, b) Reinforced Concrete/Steel, c)
Eligible Tree Debris, and d) Other Tree Debris. This distinction
is made because of the different types of material handling
equipment required to handle the debris.
The probabilistic model estimates that a total of 50,920 tons of
debris will be generated. Of the total amount, 43,304 tons
(83%) is Other Tree Debris. Of the remaining 8,616 tons,
Brick/Wood comprises 42% of the total, Reinforced
Concrete/Steel comprises 0% of the total, with the remainder
being Eligible Tree Debris. If the building debris tonnage is
converted to an estimated number of truckloads, it will require
143 truckloads (@25 tons/truck) to remove the building debris
Indian River County Comprehensive Emergency Management Plan Basic Page 24
generated by the hurricane. The number of eligible tree debris
truckloads will depend on how the 5,037 tons of eligible tree
debris are collected and processed. The volume of tree debris
generally ranges from about 4 cubic yards per ton for chipped
or compacted tree debris to about 10 cubic yards per ton for
bulkier, uncompacted debris.
Risk Assessment. All communities within Indian River County
are highly vulnerable to hurricanes, but they are not all
vulnerable for the same reasons. The barrier island
communities (Town of Orchid, Indian River Shores, and the
beach side of the City of Vero Beach) are obviously highly
vulnerable to both wind and storm surge damage from
hurricanes. The communities fronting on Indian River County's
estuaries and rivers are also highly vulnerable to flooding
associated with hurricane winds and storm surge. Inland
communities may have less hurricane vulnerability from
flooding but more hurricane vulnerability from wind damage
due to their older or less substantial type of construction.
C. Tornado — Hazard Identification
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 (FDCA, 2004b).
Occasional windstorms accompanied by tornadoes, such as
the winter storm of 1993, also are widespread and destructive.
When a tornado threatens, only a short amount of time is
available for life -or -death decisions. The NWS issues two
types of alerts:
• Tornado Watch — means that conditions are favorable for
tornadoes to develop.
• Tornado Warning — means that a tornado has actually
been sighted.
Tornadoes are classified using the Enhanced Fujita-Pearson
scale. On February 1, 2007, the Enhanced Fujita Scale
replaced the original Fujita scale in all tornado damage surveys
Indian River County Comprehensive Emergency Management Plan Basic Page 25
in the United States.
Historic Events. Florida ranks third in the United States in
the number of tornado strikes, and the first in the number of
tornadoes per square mile. The odds of a tornado striking any
specific point in southeastern Florida are 0.04, or once per 250
years.
The damage from a tornado is a result of the high wind
velocity and wind-blown debris. Florida's average is 50
tornadoes annually since 1950, causing an average of
3 fatalities and 52 injuries each year. According to the
National Climatic Data Center Storm Events Database
(http://www.ncdc.noaa.gov/stormevents), there have been
20 tornado events reported in Indian River County between
1950 and 2014. Eight were F0, four were EFO, six were EF1,
and two were F2 magnitude events.
NCDC data indicates that there has been one tornado -related
injury, no deaths, and $1,940,000 in property damage
associated with tornado events in the County.
The NCDC has recorded tornado events in unincorporated
Indian River County, the City of Vero Beach, the City of
Sebastian, Town of Fellsmere, and Wabasso (located in
unincorporated County). No events have been recorded in the
Town of Indian River Shores or Orchid.
During the tornado in December of 2002, the ARC provided
services to three families hit by the tornado and opened a
shelter for 38 families who were ordered to evacuate because
their homes were deemed unsafe.
Extent. The National Climate Data Center (NCDC) indicates
that there have been a total of 20 tornado incidents in Indian
River County in the last 65 years, therefore there is a 3%
chance of a tornado affecting our county in any given year.
The majority of the events have been EFO and EF1 as defined
on the Enhanced Fujita Scale.
Vulnerability Assessment. Tornado events can have the
following potential impacts within a community:
• Excessive wind;
Indian River County Comprehensive Emergency Management Plan Basic Page 26
• Electric power outage;
• Surface and air transportation disruption;
• Telecommunications system outage;
• Human health and safety;
• Psychological hardship; and
• Economic disruption.
Indian River County's vulnerability to tornadoes is compounded
by the high concentration of mobile home residents in large
mobile home communities. According to the 2000 U.S.
Census, there are 6,786 mobile homes in Indian River County,
representing 11.7% of the total housing units in the County.
Three municipalities within Indian River County have significant
concentrations of mobile homes. Sebastian has a total of
564 mobile homes, representing 7.6% of the total housing
units. Wabasso has a total of 166 mobile homes, representing
31.9% of the total housing units. Fellsmere has a total of 397
mobile homes, representing 42.4% of the total housing units.
Risk Assessment. Historical data indicate the overall
vulnerability of Indian River County to tornadoes is low, but
some specific communities have a moderate to high
vulnerability to this hazard due to the type of construction or
numbers of mobile homes (manufactured housing units) within
their boundaries. These communities include Sebastian,
Wabasso, and Fellsmere.
Tornado risk is defined as the annual probability of significant
structural damage and is divided into four probabilities of
occurrence: <1 in 500, 1 in 500, 1 in 200, and 1 in 100.
d. Severe Thunderstorm/Lightning — Hazard Identification
A severe thunderstorm is defined as a thunderstorm containing
one or more of the following phenomena: hail of at least 1 inch,
surface wind speeds of 58 miles per hour or greater, or any
combination of those two criteria (NOAA, NWS, 2014). 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 longer time than typical, pulse -type
Indian River County Comprehensive Emergency Management Plan Basic Page 27
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 (NOAA,
NWS, 2003). Downbursts also are 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 (NOAA, NWS, 2003). Strong squall lines
also can produce widespread severe weather, primarily very
strong winds and/or microbursts.
When a severe thunderstorm approaches, the NWS will issue
an advisory. According to NOAA, 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.
Historic Events. According to the NCDC, there have been a
total of 61 thunderstorm events in Indian River County since
1953, causing a total of $1.376 million in property damage. On
13 March 1993, a downburst in Vero Beach damaged eight
homes and three commercial buildings. On 5 April 1995, a
thunderstorm damaged several homes in the Windsor
Subdivision in Wabasso. On 26 June 1995, a thunderstorm
knocked down stadium lighting at Dodgertown in Vero Beach.
In Sebastian, storms in May 1996 and August 2002 damaged
a 20 -passenger airplane and 3 moored vessels, respectively.
In January of 1999, a thunderstorm in Vero Beach caused
$5,000 worth of damage to doors at the Vero Beach Regional
Airport. In the past 5 years, the City of Vero Beach has
recorded four severe thunderstorm events; and the Town of
Indian River Shores has recorded three severe thunderstorm
events, one of which reported moderate property damage
(these were reports to NCDC through 11/2014).
NCDC has recorded 57 incidents of hail in Indian River County.
The average accumulation for these events being 1.15 inches.
The City of Vero Beach has recorded ten incidents of hail since
2004, the Town of Fellsmere, three; and the City of Sebastian,
Indian River County Comprehensive Emergency Management Plan Basic Page 28
one (these were reports to NCDC through 11/14).
Because thunderstorms are hazards that are not bounded by
geographic or topographic characteristics, there are no definite
means to determine whether or not the extent of this hazard
differs from jurisdiction to jurisdiction within Indian River
County.
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 in the nation in lightning related
deaths and injuries. Most lightning strike fatalities occur in
June, July, and August. Between 1959 and 2013, there
have been 468 lightning -related deaths in Florida
(http://articles.oriandosentinel.com/2013-07-05/news/os-
Iightning-deaths-florida-20130705_1—lightning-al ley-
lightning-deaths-john-jensenius). Nationwide, lightning -
related economic losses amount to over $5 billion dollars 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, 2004c).
Between 1959 and 2014, Indian River County recorded one
lightning -related death (Wabasso) and seven injuries (4
Wabasso, 2 Sebastian, 1 Indian River Shores). According to
the NCDC, two major lightning incidents caused $1,050,000 in
property damage. The majority of the damage came on 1
June 1997 when a lightning -related fire destroyed a million
dollar home in Vero Beach. Between 1994 and 2009 there
have been five lightning events recorded with the NCDC —
resulting in seven injuries (4 in Wabasso and 3 in Sebastian)
and one death (in Wabasso).
Indian River County Comprehensive Emergency Management Plan Basic Page 29
Extent/Probability. Indian River County averages more than
70 days with thunderstorms per year, with the most frequent
occurrences being between the months of July and
September. With thunderstorms come lightning and Florida
leads the nation for the number of lightning strikes. Both
Florida and Indian River County have about 12 strikes per
square kilometer per year in some places (National Lightning
Safety Institute).
Vulnerability Assessment. Thunderstorm/lightning events
can have the following potential impacts within a community:
• Excessive wind;
• Excessive water;
• Damaging hail;
• Electric power outage;
• Surface and air transportation disruption;
• Telecommunications system outage;
• Human health and safety;
• Psychological hardship;
• Economic disruption;
• Fire; and
• Stormwater drainage impairment.
Thunderstorms typically cause damage in a community by
knocking down trees and power lines. Downed trees can block
key roadways within a community, making emergency
response more difficult. Downed power lines block roadways,
disrupt businesses when power is lost, and pose threats to
people when lines are severed. Mobile homes also are more
susceptible during severe thunderstorm activity. According to
the Housing Element of the Indian River County 2030
Comprehensive Plan, there are 7,193 mobile homes utilized as
year-round dwelling units in the county. This represents 9.75
percent of the countywide housing stock in that category.
Three municipalities within Indian River County have significant
concentrations of mobile homes. Sebastian has a total of
564 mobile homes, representing 7.6% of the total housing
units. Wabasso has a total of 166 mobile homes, representing
31.9% of the total housing units. Fellsmere has a total of 397
mobile homes, representing 42.4% of the total housing units.
Indian River County Comprehensive Emergency Management Plan Basic Page 30
Extent. In the United States, there are an estimated 25
million lightning flashes each year. In an average year, Florida
sees around 1.4 million of these lightning strikes. This makes
Florida the "Lightning Capital of the United States." Lightning
occurs with every thunderstorm and, on average, Florida sees
around 70-100 days a year with at least one thunderstorm in
the state. Because of Florida's vulnerability to thunderstorms
and lightning, lightning is one of the most deadly weather
hazards in the Sunshine State. This statistic makes Indian
River County more vulnerable and having a higher probability
to lightning having an impact on our community.
Risk Assessment. Vulnerability to severe thunderstorms and
lightning is high in Indian River County, but many of the
jurisdictions and population centers have only moderate
vulnerabilities relative to these hazards. This variation in
relative levels of vulnerability is again primarily due to
construction practices and community characteristics. Working
communities have a higher vulnerability to economic impacts
by lightning than residential or retirement communities, all
other factors being equal, while residential and retirement
communities have a historically higher vulnerability in terms of
lightning fatalities.
At the time of publication, a risk assessment model for severe
thunderstorms was not available. The County can expect
losses similar to what it experienced in the past, which is about
an average of $17,500 per year in property damage. The most
vulnerable areas in Indian River County would be open areas
such as the shoreline, golf courses, open fields (i.e., Vero
Beach Regional Airport, Indian River Fairgrounds, sports
arenas, etc.) This vulnerability is increased because these
areas are where large populations congregate. There could
also be a significant loss of life as well as economic impacts to
transportation systems, tourism, etc.
e. Wildfire — Hazard Identification
Wildfire is defined by the Florida Forest Service (FFS) as any
fire that does not meet management objectives or is out of
control. Wildfires occur in Florida every year and are part of the
natural cycle of Florida's fire -adapted ecosystems. Many of
these fires are quickly suppressed before they can damage or
destroy property, homes and lives.
Indian River County Comprehensive Emergency Management Plan Basic Page 31
There are four types of wildfires:
• Surface Fires: Burn along the forest floor consuming
the litter layer and small branches on or near the
ground.
• Ground Fires: Smolder or creep slowly underground.
These fires usually occur during periods of prolonged
drought and may burn for weeks or months until
sufficient rainfall extinguishes the fire, or it runs out of
fuel.
• Crown Fires: Spread rapidly by the wind, moving
through the tops of the trees.
• Wildland/Urban Interface Fires: Fires occurring within
the WUI in areas where structures and other human
developments meet or intermingle with wildlands or
vegetative fuels. Homes and other flammable structures
can become fuel for WUI fires.
Florida is home to millions of residents who enjoy the state's
beautiful scenery and warm climate. But few people realize
that these qualities also create severe wildfire conditions. Each
year, thousands of acres of wildland and many homes are
destroyed by fires that can erupt at any time of the year from a
variety of causes, including arson, lightning and debris burning.
Adding to the fire hazard is the growing number of people living
in new communities built in areas that were once wildland. This
growth places even greater pressure on the state's wildland
firefighters. As a result of this growth, fire protection becomes
everyone's responsibility.
Florida's population has nearly tripled in the last century, and
much of the growth has occurred in the undeveloped areas.
The trend has created a complex landscape known as the
Wildland/Urban Interface, a set of conditions under which
wildland fires move beyond trees and undergrowth to threaten
neighborhoods. Ensuring a home is compatible with nature can
help save it and the entire community when wildfire strikes.
Florida's wildfire season is twelve months long. Indian
River County has wildfires throughout the year. The most
active part the year is typically December through the
beginning of June. Generally, Indian River County experiences
the greatest number of wildfires during April, May, and June.
On average, Indian River County has 23 wildfires a year
Indian River County Comprehensive Emergency Management Plan Basic Page 32
depending on weather conditions.
South Florida has several areas of spot building where homes
are built in neighborhoods with large, unmanaged properties
nearby where little or no regular landscape maintenance is
conducted. Local governments often require neighborhoods to
maintain designated preserves or conservation areas where
plants and wildlife must remain untouched. Work in the
preserves is often restricted to minimize the impacts for wildlife
and native vegetation. Yet these preserves must still be
managed. Fire plays an important role because Florida plants
and animals rely on it.
If the conservation areas are left unmanaged the accumulation
of dead fuels and untreated new growth can create an
undesirable effect, such as extreme fire behavior and habitat
loss for the wildlife. Regular maintenance of preserves
improves the chances for new growth. Otherwise, dead
vegetation accumulates and causes fire danger to increase.
These unmanaged areas force animals to forage outside their
normal habitat. Regular food supplies run low for gopher
tortoises and other species that rely on periodic fire to burn off
the excess vegetation often found in these preserves.
Large undeveloped properties owned by city, county, state or
federal agencies might have set as these areas as preserves
or natural areas. A management plan is needed to reduce the
hazardous buildup of dead vegetation. The Florida Forest
Service continues to work together with municipalities in Indian
River County to educate and facilitate mitigation in identified
high risk areas.
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 wind. 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). Another extraordinary fact about muck fires has to do
with their release of carbon dioxide. A peat bog that is on fire
can release more carbon dioxide into the atmosphere than all
the power stations and car engines emit in Western Europe in
1 year (Pearce, 1997). This type of fire could have a
Indian River County Comprehensive Emergency Management Plan Basic Page 33
significant impact on global warming.
Historic Events. From 2009-2013, Indian River County has
had 124 wildfires that have burned 2,980 acres. Lightning,
debris, children, or power lines were the most common ignition
source for wildland fires in Indian River County (Florida Forest
Service, 2014). 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 firefighting techniques.
Muck fires occur very infrequently in Indian River County, and
the only areas where this hazard might produce impacts are in
the western portions of the County. At the present time, muck
fires are not considered a significant hazard.
Vulnerability Assessment. Wildland fires can have the
following potential impacts within our community:
• Electric power outage;
• Surface and air transportation disruption;
• Telecommunications system outage;
• Human health and safety;
• Psychological hardship;
• Economic disruption;
• Disruption of community services;
• Agricultural/fisheries damage;
• Loss of livestock;
• Damage to critical environmental resources;
• Damage to identified historical resources
Risk Assessment. The Florida Forest Service has
developed a web -based Geographic Information System
(GIS) mapping application called Fire Risk Assessment
System (FRAS). This system provides statewide risk data
that assists in determining high-risk areas and can be
accessed at:
http://www.floridaforestservice.com/wildfire/wf fras.html.
FRAS uses wildfire fuel types and densities, environmental
conditions, and fire history to produce a Level of Concern
(LOC), which is a number on a scale that runs from 1 (low
concern) to 9 (high concern), for a given geographic area.
Indian River County Comprehensive Emergency Management Plan Basic Page 34
Low Wildfire Hazard -Homes are built with concrete and
appropriate non-flammable roofing materials. Short grass, low
shrubs and light duff are present. The forest and heavy
vegetation are not continuous throughout the community.
Wildfires that do occur in these areas are less intense and
easier to suppress because of the lower volume of fuel to feed
and sustain the fire. (Vero Beach)
Medium Wildfire Hazard - Wildland vegetation is continuous
throughout the community. Tall grass, medium shrubs, thick
duff and ladder fuels are prominent in the area. Vegetation is
less than 30 feet from homes. Homes are built with vinyl,
plastic or other types of less fire-resistant materials. Access is
limited and the concentration of fuel to feed fires causes more
intense fire behavior. Fire suppression becomes more difficult
and costly. (Fellsmere, Florida Ridge, Gifford, Olso, Roseland,
Vero Beach South, Vero Lake Estates, Wabasso, and Winter
Beach)
High Wildfire Hazard -Dense, highly flammable vegetation
surrounds the neighborhood and is within a few feet of homes.
A thick layer of vegetation is present on the forest floor. Access
to the neighborhood is limited to one entrance and/or on poorly
maintained roads. Homes are rarely built with fire-resistant
materials. Continuous, overgrown vegetation limits access and
creates intense wildfire conditions. Fire suppression is
challenging and requires more resources (engines, dozers,
and aircraft) and firefighters than normal. (Sebastian)
Hazard Rating Factors — Although there are many factors that
affect the survivability of homes during wildfires, the following
have been shown to be important in Florida.
• Access —Roadway and shoulder widths, road
maintenance standards, turnarounds and road surface
materials affect how quickly emergency crews can respond,
as well as how quickly and safely residents can evacuate.
• Vegetation —Wildland vegetation (fuel) in Florida is
highly variable both in amount and type and burns
differently at different times of the year. Generally
speaking, native vegetation is more likely to burn during the
winter months when grasses and weeds have been killed
by frosts and freezing temperatures. In addition, many
Indian River County Comprehensive Emergency Management Plan Basic Page 35
plants found in Florida eco -systems have a waxy leaf
surfaces or resinous sap. These plants can burn even
though the leaves are still green. Both dead and live fuels
also tend to dry more rapidly in areas where extensive
drainage systems have been constructed for development.
The biggest concern for firefighters is how close the fuel
(vegetation) is to the home. Firefighters recommend at
least 30 feet of defensible space between home and
woods.
Building Construction —Construction materials such as
vinyl soffits and siding and wood shake shingles have a
greater potential for damage from wildfire than fire resistant
building materials. Vinyl soffits will soften when exposed to
heat or flames from a wildfire and fall away from the roof
trusses. When this occurs, windblown embers (fire brands0
can enter the attic area and ignite the ceiling/ roof.
Fire Protection — The key to successful controlling any
wildfire is starting suppression action (attacking the wildfire)
while it is still small. Firefighter access to a dedicated
supply of water is an important factor. A reliable water
source that will be unaffected by a sudden power loss is
much better than relying on individual residential well
systems and "trucked in" water to fight a wildfire and protect
homes. Numerous structures may be threatened
simultaneously, requiring large quantities of water.
Utilities — Above ground utilities can be both a cause of
wildfire and also a hindrance to effective suppression.
Florida Forest Service's firefighting dozers and fire plows
can fall into unmarked septic tanks or sever buried lines. If
firefighters cannot respond or are delayed because of
these hazards, there is a greater chance that threatened
structures will be lost.
Vulnerability Summary. Florida has a year round fire
season with the most active part taking place from April to July.
The majority of wildfires in Florida (70-80 percent) are caused
by humans with arson and escaped debris burning being the
top two causes. The largest number of lightning -caused fires
occurs in July. The drier months tend to be January, February
and March but this is not always the case depending on
drought conditions and frequency of frontal passages. Dry
Indian River County Comprehensive Emergency Management Plan Basic Page 36
months, combined with low humidity and high wind have the
highest number of fires reported.
Extent/Probability. The average occurrence in Indian River
County is 25 wildfires per year with an average of 24 acres per
incident.
f. Extreme Temperatures (Freezing) - Hazard Identification
A freeze is defined by the National Weather Service (NWS) as
when the surface air temperature is expected to be 32 degrees
or below over a widespread area for a climatologically
significant period of time. The NWS issues a freeze warning
when surface temperatures are expected to drop below
freezing over a large area for an extended period of time,
regardless of whether or not frost develops.
Hazard Identification. According to the U.S. Department of
Agriculture and Consumer Services, a moderate freeze
(Defined as 25°F to 28°F) may be expected every 1 to 2 years.
Severe freezes (Defined as 24°F and below) may be expected
on an average of once every 15 to 20 years. Freezes pose a
major hazard to the agriculture industry in Indian River County
on a recurring basis, and are a significant threat to the
economic vitality of the State's vital agriculture industry.
Agricultural lands represent nearly one-half of all land in Indian
River County (University of Florida, 2001).
According to the 2010 U.S. Census, 37,504 residents (27%) in
Indian River County are over the age of 65. Freezing
conditions primarily affect agriculture and homeless indigents.
When conditions are predicted to be below freezing, cold
weather shelters may be opened. A survey of the County's
homeless population was conducted in 2013, indicating that
there are approximately 837 homeless individuals within the
County (Florida Department of Children and Families, 2013).
Inland communities away from the moderating influence of the
ocean or the estuary are more vulnerable to temperature
extremes as are areas with significant agricultural assets.
(Council on Homelessness - Florida Department of Children
and Families, 2013)
Historic Events. Indian River County has experienced four
significant freezes between 1970 and the present. Florida has
experienced a number of severe or disastrous freezes, when
Indian River County Comprehensive Emergency Management Plan Basic Page 37
the majority of the winter crops are lost. The lowest
temperature ever recorded in the state of Florida is -2°F
(NCDC, 1999a) on February 13, 1899 in Tallahassee. Since
December 1889, there have been at least 22 recorded severe
freezes; the most recent being in 2010, when a Secretarial
Disaster Declaration was issued for crop losses estimated to
be in the hundreds of millions of dollars. During this event,
everything from fruits and vegetables to nursery plants and
shrubs to tropical fish felt the effects of the freeze. There were
no data available to document previous occurrences of severe
freeze by jurisdiction.
During the 2013 revision process, data indicated that the
likelihood and probability of future occurrences of severe
winter storms in Florida tended to result more in flooding and
tornadoes than in snow and ice. Based on all the historical
evidence, it is anticipated that a moderate freeze may be
expected in Florida every one to two years. Severe freezes,
where the greatest numbers of winter crops are lost, may be
expected on average once every five years based on historic
FEMA -declared disasters.
Extent. The minimum temperature recorded in the Vero
Beach area was 25 degrees (19 degree wind chill) on
12/14/10. This could be considered the minimum likely
temperature to be experienced in the Vero Beach area.
Probability. Severe winter weather includes extreme cold,
snowfall, ice storms, and/or strong winds, and can affect every
state in the United States in some fashion. Areas where this
weather is uncommon, such as Florida, are typically more
affected by winter weather than regions that experience this
more frequently. Agriculture is the state's primary vulnerability
to this hazard since freezing temperatures can kill or damage
winter crops. Significant economic impacts in Florida led the
NCDC to maintain freeze and frost data throughout the state.
The probability of winter storms and freezes for Indian River
County is low considering the entire state of Florida maintains
a five percent probability or higher of a freeze or frost annually,
all of which are located in the upper half of Florida.
g. Extreme Temperatures (Heat) - Hazard Identification
Temperatures that remain 100 or more above the average high
temperature for a region and last for several weeks are defined
Indian River County Comprehensive Emergency Management Plan Basic Page 38
as extreme heat (FEMA, 1993). 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.
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 98.60, 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.
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
tend to increase with age. Heat cramps in a 17 -year old may
be heat exhaustion in a 40 -year old, and heat stroke in a
person over 60.
When the temperature gets extremely high, the NWS 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 NWS 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 NWS will initiate alert procedures when
the HI is expected to exceed 105°F for at least two consecutive
days. Possible heat disorders related to the corresponding HI
are listed below.
• Heat Index of 130°F or higher— Heatstroke/sunstroke with
exposure for people in higher risk groups;
Indian River County Comprehensive Emergency Management Plan Basic Page 39
Heat Index of 105°F -130°F — Sunstroke, heat cramps, and
heat exhaustion likely and heatstroke possible with
prolonged physical activity;
Heat Index of 90°F -105°F — Sunstroke, heat cramps with
prolonged exposure; and,
Heat Index of 80°F -90°F — Fatigue possible with prolonged
exposure and physical activity (NWS, 1999b).
Historic Events. The highest temperature ever recorded in
the state was on June 29, 1931 at 109°F in Monticello at an
elevation of 207 feet (NCDC, 2003b). From 1979-2003,
excessive heat exposure caused 8,015 deaths in the United
States. During this period, more people in this country died
from extreme heat than from hurricanes, lightning, tornadoes,
floods, and earthquakes combined. In 2001, 300 deaths were
caused by excessive heat exposure." (CDC, 2009)There were
no data available to document previous occurrences of
extreme heat by jurisdiction.
Extent. The average annual high temperature for Indian River
County is 81.4 degrees. The highest observed temperature
recorded in Vero Beach was 100 degrees in June of 1950. The
heat index, also known as the apparent temperature, is what
the temperature feels like to the human body when relative
humidity is combined with the air temperature. NOAA's
National Weather Service Heat Index uses temperature and
relative humidity to determine the apparent temperature. For
example, if the air temperature is 100°F and the relative
humidity is 55%, the heat index will be 124°F. The highest
temperature in Indian River County would never be expected
to exceed 124°F. Extreme heat is considered to have a low
probability of occurrence, therefore this hazard will not be fully
profiled.
Vulnerability Assessment. Extreme temperature events can
have the following potential impacts within a community:
• Electric power outage;
• Human health and safety;
• Psychological hardship;
• Economic disruption;
• Agricultural/fisheries damage; and
• Damage to critical environmental resources;
Indian River County Comprehensive Emergency Management Plan Basic Page 40
Temperature extremes, both freezes and periods of
excessive heat, impact communities with a larger population
of older people to a greater extent than those with younger
populations. According to the 2010 U.S. Census, 41,178
residents (29%) in Indian River County are over the age of
65 (http://quickfacts.census.gov/qfd/states/12/12061.htmi).
Freezing conditions primarily affect agriculture and homeless
indigents. When conditions are predicted to be below
freezing, shelters are opened. A survey of the County's
homeless population was conducted in 2013, indicating that
there are approximately 837 homeless individuals within the
County
(http://www.dcf.state.fl.us/programs/homelessness/docs/201
3Cou ncil Report. pdf). Inland communities away from the
moderating influence of the ocean or the estuary are more
vulnerable to temperature extremes as are areas with
significant agricultural assets. During 2006-2010, about
2,000 U.S. residents died each year from weather-related
causes of death. About 31 % of these deaths were attributed
to exposure to excessive natural heat, heat stroke, sun
stroke, or all; 63% were attributed to exposure to excessive
natural cold, hypothermia, or both; and the remaining 6%
were attributed to floods, storms, or lightning.
(,http://www,cdc.gov/nchs/data/nhsr/nhsr076,pdf). This
number is greater than the number of deaths caused by
hurricanes and tornadoes combined.
Extreme temperatures, especially freezes, can have
significant impacts on agricultural economics in a
community. In 2007, Indian River County's value of
agricultural products sold was $136 million
(http://www.freshfromflorida.com/Divisions-
Offices/Marketing-and-Development/Education/For-
Researchers/Florida-Agriculture-Overview-and-Statistics). In
2008, 136,896 acres were designated for agricultural use.
This represents over 51% of the unincorporated area of the
county. More than 60,000 acres in Indian River County are
devoted to citrus production. In 1997, the value of all farm
lands and buildings in Indian River County was estimated to
be $1,243,117 (University of Florida, 2001).
Risk Assessment. At the time of publication, a risk
assessment model for extreme temperatures was not
available. The County can expect losses similar to what it has
Indian River County Comprehensive Emergency Management Plan Basic Page 41
experienced in the past.
h. Erosion (Soil) — Hazard Identification. 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 the vegetation cover stripped away, soil is
vulnerable to damage. Whether through 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 destruction of
soil structure, eroded land is even more susceptible to erosion.
The occurrence of erosion has greatly increased. This is
because of the activities of modern development and
population growth, particularly agricultural intensification. It
also is in the field of agriculture that most efforts have been
made to conserve soils, with mixed success (Union of
International Associations, 1999).
Particles scattered by erosion can also cause problems
elsewhere. Stormwater 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.
Extent. Due to the low probability of occurrence, this hazard
will not be fully profiled.
Indian River County Comprehensive Emergency Management Plan Basic Page 42
Erosion (Beach) — Hazard Identification. Beach erosion is
the wearing away of land and the removal of beach or dune
sediments by wave action, tidal currents, wave currents,
drainage or high winds. The wave climate impacting Indian
River County's 22.4 miles of shoreline has contributed to the
long term erosion of the County's barrier island. As a result,
the Florida Department of Environmental Protection (FDEP)
has concluded that 15.7 miles of shoreline is "critically
eroded". A critically eroded area is defined by FDEP as a
segment of the shoreline where natural processes or human
activity has caused or contributed to erosion and recession of
the beach or dune system to such a degree that upland
development, recreational interests, wildlife habitat, or
important cultural resources are threatened or lost. To assist
with its coastal management strategies and long term
sustainability of its shoreline, the County has developed and
adopted a Beach Preservation Plan (BPP), updated 2014. The
BPP identifies the current shoreline conditions and provides
cost effective strategies for future beach management along
the County's shoreline in particular the FDEP classified
critically eroded areas.
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 alone to natural
processes, experience natural shoreline retreat. Historically,
shoreline retreat is exacerbated by the effects of stabilized
Oettied) coastal inlets, which interrupt the natural transport of
sediment and promote erosion on the downdrift beaches. It
has been estimated that on the east coast of Florida, as much
as 80% of the observed erosion is directly attributable to the
effects of stabilized inlets (Dean and Work 1993). As houses,
highways, seawalls, and other structures are constructed on or
close to the beach, the natural shoreline retreat processes may
be interrupted. Construction along a historically erosive
shoreline increases the likelihood of a property becoming
threatened by shoreline retreat. The wave climate impacting
the County's 22.4 miles of coastline has contributed to the long
term erosion of the County's barrier island. The need for shore
protection often results in property owners "hardening" the
coast with a structure such as a seawall or revetment.
A seawall is a large concrete or steel sheet pile wall designed
to protect buildings or other man-made structures from beach
Indian River County Comprehensive Emergency Management Plan Basic Page 43
erosion. A revetment is a cheaper option constructed with "rip
rap" such as large boulders, concrete rubble, or 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).
However, other shoreline protection strategies are commonly
used to address shoreline retreat such as beach nourishment.
Beach nourishment is the process of replenishing sand lost as
a result of erosion. In Indian River County, the preferred
shoreline protection strategy is beach nourishment.
To assist with its coastal management strategies and the long
term sustainability of its shoreline, the county adopted its first
Beach Preservation Plan in 1988, with updates in 1998 and
2008; and is currently updating the plan again for completion in
2015.
Historic Events. Hurricanes Floyd and Irene (1999) and
Hurricanes Frances and Jeanne (2004) caused significant
beach erosion along the Atlantic Ocean. Oceanfront property
in the City of Vero Beach, Town of Indian River Shores, and
Town of Orchid also experienced beach erosion during these
two events.
The 2005 hurricane season was a record breaking season with
27 named storms. Florida was impacted by Hurricanes Dennis,
Katrina, Ophelia, Rita, and Wilma, and Tropical Storms Arlene
and Tammy. While the cumulative impact of these storms
exacerbated erosion conditions in south and northwest Florida,
Indian River County was spared.
2008 was a relatively mild tropical storm season for Florida's
beaches with Tropical Storm Fay affecting predominantly the
Atlantic shoreline, and the gulf coast receiving the fringe
Indian River County Comprehensive Emergency Management Plan Basic Page 44
impacts of Hurricanes Gustav and Ike.
Hurricane Sandy (October 26, 2012) caused an estimated $12
million in total countywide beach erosion damages. As a result,
several emergency dune repair crossover repair projects
occurredfrom 2012-2015.
Because of their location along the Atlantic Ocean and
Intercoastal Waterway, the City of Vero Beach, Town of Indian
River Shores, Town of Orchid, the City of Sebastian, and
unincorporated County are more apt to experience beach
erosion associated with wave or current action.
Extent. DEP has identified Indian River County as a medium-
high risk to erosion. The beaches of Florida will continue to
shift and change over time, especially when faced with the
current levels of development. This is especially a high
probability hazard, especially in conjunction with hurricanes,
winter storms, and coastal flooding.
Probability. Nearly 495 miles of Florida's beaches,
approximately 60 percent, are currently experiencing erosion.
Erosion can have significant economic impacts on the state
due to property damages, loss of beachfront property, and
effects to tourism. Florida's rivers also routinely experience
erosion. This is a high probability hazard for Florida, including
Indian River County, and is constantly being monitored by
local, state, and federal entities.
Vulnerability Assessment. Erosion can have the following
potential impacts within a community:
• Soil/beach erosion;
• Navigable waterway impairment;
• Economic disruption;
• Damage to critical environmental resources; and
• Stormwater drainage impairment.
Indian River County's vulnerability to soil collapse and beach
erosion is moderate along its entire coastline. The City of Vero
Beach has a significant beach erosion problem, which resulted
in two of the FEMA repetitive damage properties reported.
Other beachfront communities report low to moderate erosion
problems. Erosion also is a potential vulnerability for the
Indian River County Comprehensive Emergency Management Plan Basic Page 45
communities located on both the Indian and Sebastian rivers.
Vulnerability in the rest of the County is low to very low, with
the exception of specific locations along some drainage
canals. The Department of Public Works has identified the
following areas as being in need of beach nourishment
projects:
• Sectors 1 & 2 — R-4 to R-17;
• Sector 3 — R-20 to R-55;
• Sector 5 — R-74 to R-86; and,
• Sector 7 — R-97 to R-107.
Risk Assessment. FDEP updated a statewide assessment
of beach erosion in 2014. In that assessment, FDEP
defined the "critical erosion area" as a segment of shoreline
where natural processes or human activity have caused or
contributed to erosion and recession of the beach or dune
system to such a degree that upland development,
recreation interests, wildlife habitat, or important cultural
resources are threatened or lost.
There are three critical erosion areas (15.7 miles) in Indian
River County. The northern 9.5 miles (R1 -R51.3) south of
Sebastian Inlet is critically eroded threatening State
Road AIA, Sebastian Inlet State Park facilities, the McLarty
Treasure Museum, and private development along
Ambersand Beach, Sanderling, Summerplace, and
Wabasso Beach. The museum has a rock revetment, and
inlet sand transfer is conducted south of the inlet. A beach
restoration project has been constructed at Ambersand
Beach. The northern 3.1 miles of Vero Beach (R70 -R86) is
critically eroded with development and recreational interests
being threatened. Much of this area has seawalls, dune
restoration, and small dune nourishment projects, although a
major beach restoration has not yet been designed. In
southern Indian River County a 3.1 -mile segment (R99 -
R115.7) is critically eroded threatening development
interests. A beach restoration project has been constructed
along a portion of this area (FDEP 2010).
Droughts — Hazard Identification. 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
Indian River County Comprehensive Emergency Management Plan Basic Page 46
definitions, drought originates from a deficiency of precipitation
over an extended period of time, usually a season or more
(National Drought Mitigation Center, 2010). 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, 2010).
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 (Indian River County
Department of Emergency Services, 2002). When this cycle is
disrupted by periods of drought, one of the most potentially
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 increase 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 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.
Historic Events. Florida experienced one of the most severe
droughts in 2007 dating back to when records started in the
early 1900s. Lake Okeechobee, the region's primary reservoir,
was down to less than half a foot above its record low. The
$15 billion landscaping and nursery industries, which comprise
Florida's largest agricultural sector, may have been the hardest
hit. In November 2009 the lack of rainfall during rainy season
led to Indian River County being named the driest county in the
state and in danger of wildfires.
Extent. Due to the low probability of occurrence, this hazard
will not be fully profiled.
Indian River County Comprehensive Emergency Management Plan Basic Page 47
Vulnerability Assessment. Drought can have the following
potential impacts within a community:
• Economic disruption;
• Agricultural/fisheries damage;
• Damage to critical environmental resources; and
• Wildland fire.
While Indian River County is moderately vulnerable to impacts
from drought due to the County's large agricultural land tax
base, some communities are less vulnerable due to their
location and non-agricultural economic base.
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, 2003).
The web of impacts is so diffuse that it is very difficult to come
up with financial estimates of damages. However, FEMA
estimates $6 to $8 billion in losses as the annual average
(FEMA, 1995). The worst drought (36% of U.S.) in recent
history occurred in July 1988, and the NCDC reports the
estimated cost as $40 billion (National Drought Mitigation
Center, 2010).
Risk Assessment. Indian River County overall, has a
moderate vulnerability to the impacts from drought due to the
County's large agricultural land tax base. The western area of
the County is most vulnerable to the impacts of drought
because this area is extensively involved in farming and
ranching. As of 2012, the average annual market value of
agricultural products in Indian River County was $145 million
( rv.agcensus.usda. ov). The urbanized communities along
the County's coast are less vulnerable due to their location and
non-agricultural economic base. Potential impacts to Indian
River County's potable water supply during drought conditions
appear to be slight.
Indian River County Comprehensive Emergency Management Plan Basic Page 48
The Palmer Drought Index has become the semi-official
drought index. It is most effective in determining long term
drought—a matter of several months—and is not as good with
short-term forecasts (a matter of weeks). It uses a 0 as normal,
and drought is shown in terms of minus numbers; for example,
minus 2 is moderate drought, minus 3 is severe drought, and
minus 4 is extreme drought. The Palmer Index can also reflect
excess rain using a corresponding level reflected by plus
figures; i.e., 0 is normal, plus 2 is moderate rainfall, etc.
Another reference tool is the Keetch-Byram drought index
(KBDI), which is a continuous reference scale for estimating
the dryness of the soil and duff layers. The index increases for
each day without rain (the amount of increase depends on the
daily high temperature) and decreases when it rains. The scale
ranges from 0 (no moisture deficit) to 800 (prime drought
condition). The range of the index is determined by assuming
that there is 8 inches of moisture in a saturated soil that is
readily available to the vegetation. In November, 2009, the
lack of rainfall during rainy season led to Indian River County
being named the driest county in the state of Florida and,
according to the Florida Florida Forest Service, in danger of
wildfires. According to the Keetch Bryam Drought Index, the
county measured in at 649 when the normal range for that time
of year is 271-420. Indian River County could reasonably
expect to see a drought index of this magnitude.
k. Seismic Hazards (Dam/Levee Failure) – Hazard
Identification. 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.
Rainfall in excess of designed capacities could cause erosion
of constructed drainage facilities and flooding of many areas
including primary roadway evacuation routes (Indian River
County Emergency Management, 2002). According to the
National Inventory of Dams, there are five listed dams in Indian
River County (South Relief Structure, Lateral C Structure, Main
Canal Structure, North Relief Canal Structure, Lateral
Indian River County Comprehensive Emergency Management Plan Basic Page 49
Structure #3 (United States Army Corps of Engineers, 1999).
Extent. Best available data do not indicate that there have
been any dam or levee failures in Indian River County or the
municipalities. The overall extent of seismic hazards in Indian
River County is uniform throughout the individual jurisdictions
in the County.
Seismic Hazards (Earthquakes) — Hazard Identification.
Although Florida is not usually considered to be a state subject
to earthquakes, several minor shocks have occurred overtime,
but only one caused any damage (USDOI, USGS, 2004).
Historic Events.
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 (USDOI, USGS,
2004).
In January 1880 another earthquake occurred, this time
with Cuba as the focal point. Shock waves were sent as far
north as the town of Key West (USDOI, USGS, 2004).
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 aftershocks that occurred
in September, October, and November 1886 (USDOI,
USGS, 2004).
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
(USDOI, USGS, 2004).
In November 1948, doors and windows rattled in Captiva
Island, west of Ft. Myers. It was reportedly accompanied
by sounds like distant heavy explosions (USDOI, USGS).
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 (USDOI, USGS).
Indian River County Comprehensive Emergency Management Plan Basic Page 50
M. Seismic Hazards (Sinkholes and Subsidence) — Hazard
Identification. Sinkholes are a common feature of Florida's
landscape. They are only 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 that refers to the
characteristic terrain produced by erosional processes
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).
The Florida Center for Instructional Technology (2008) has
recorded six sinkholes in Indian River County. The first three
sinkholes developed in 1981; two were located in Fellsmere
and the other in Vero Beach. All three sinkholes are less than
10 feet in width. The forth and largest developed in 1985, in
Fellsmere and ranges from 31-80 feet in width. The fifth and
sixth developed in 2002 and 2005, in Vero Beach and both are
less than 10 feet in width. The Florida Center for Instructional
Technology database does not document any sinkholes in
Indian River Shores, Orchid, or Sebastian. (Maps, Etc., 2014)
Vulnerability Assessment. There are areas in western
Indian River County where canal bank failures could cause or
exacerbate flooding during heavy rain events or storms. This
problem is, however, more related to soil erosion than to actual
levee failure. There has never been any seismic activity, soil
failures, and few sinkholes in Indian River County. While these
hazards may exist, County vulnerability to them at this time is
considered very low.
Seismic events can have the following potential impacts within
a community:
Indian River County Comprehensive Emergency Management Plan Basic Page 51
• Electric power outage;
• Surface and air transportation disruption;
• Potable water system loss or disruption;
• Sewer system outage;
• Telecommunications system outage;
• Human health and safety;
• Psychological hardship;
• Economic disruption;
• Disruption of community services;
• Damage to identified historical resources;
• Fire;
• Toxic releases; and
• Stormwater drainage impairment.
The USDOI, USGS and the Florida Department of Natural
Resources Bureau of Geology have created a map illustrating
sinkhole type, development, and distribution for the state of
Florida. Sinkhole risk is categorized using four categories.
According to this map, Indian River County lies in Area II,
which is classified as having coverage between 30 and 200
feet thick, consisting of incohesive and permeable sand.
Sinkholes are few, shallow, of small diameter, and develop
gradually. Cover -subsidence sinkholes dominate in this area.
Extent: There is no risk assessment data available for seismic
hazards (sinkhole only) in Indian River County.
n. Agricultural Pests and Diseases — Hazard Identification.
Florida is among the top 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 pests
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; 52% of the County is farmland. The
main threats to the Indian River County agriculture industry are
Indian River County Comprehensive Emergency Management Plan Basic Page 52
1) Citrus canker, 2) Mediterranean fruit fly (Medfly), 3)
Sugarcane pests, and 4) Tomato Yellow Leaf Curl Virus
(TYLCV).
Extent. Best available data do not indicate that there have
been incidents of agricultural pests and diseases in Indian
River County or the municipalities.
o. Citrus Canker and Citrus Greening — Hazard Identification.
Citrus canker was found in Dade County in 2005, and by 2008
it had spread to 32 counties with Florida. 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 leaves and fruit are brown, raised lesions surrounded
by an oily, water -soaked area and a yellow ring or halo (Indian
River County Agriculture Forum, 2009).
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. It 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.
Citrus greening, also known as huanglongbing (HLB) or yellow
dragon disease is one of the most serious citrus diseases in
the world. It is a bacterial disease that greatly reduces
production, destroys the economic value of fruit, and can kill
trees. It has significantly reduced citrus production in Asia,
Africa, the Arabian Peninsula, and Brazil. Once infected, there
is no cure for a tree with citrus greening disease. In areas of
the world where citrus greening is endemic, citrus trees decline
and die within a few years. The disease specifically attacks
citrus plants and presents no threat to humans or animals.
P. Mediterranean Fruit Fly — Hazard Identification. Another
threat to Indian River County's agriculture industry is the
Medfly. It is one of the world's most destructive pests and
infests more than 250 different plants that are important for
U.S. food producers, homeowners, and wildlife. It is
considered the greatest pest threat to Florida's $1.5 billion
Indian River County Comprehensive Emergency Management Plan Basic Page 53
citrus crop, as well as endangering many other economically
significant crops (Florida Department of Agriculture and
Consumer Services, 1998a). For example, a Medfly outbreak
in 1997 cost an estimated $32 million to eradicate in Manatee,
Marion, Orange, Polk, and Sarasota counties (United States
Department of Agriculture, 1999). 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
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, ongoing
pesticide treatments by homeowners and commercial growers
will be necessary.
Adult Med flies are up to '/4 inch 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, med flies will
feed on hundreds of other commercial and backyard fruit and
vegetable crops.
Because med flies 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, 1998b).
q. Sugarcane Pests — Hazard Identification. 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).
Indian River County Comprehensive Emergency Management Plan Basic Page 54
r. TYLCV— Hazard Identification. The TYLCV is believed to
have entered the state in Dade County sometime in early 1997
(Florida Department of Agriculture and Consumer Services,
1999). 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. Fewer than 1 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.
Vulnerability Assessment. Agricultural pests and diseases
can have the following potential impacts within a community:
• Human health and safety;
• Psychological hardship
• Economic disruption;
• Agricultural/fisheries damage; and
• Damage to critical environmental resources.
Agricultural pests and diseases are a more significant hazard
in those areas of the County where agriculture is a more
significant element in the economic base. The western portion
of Indian River County is a major ranching area, and there are
numerous nurseries and smaller agricultural -related
businesses located throughout the County.
Risk Assessment. Because agricultural pests and diseases
can have a significant impact on agricultural -related
businesses, it is important to look at agricultural -related income
to determine potential loss. Approximately 14 million cartons of
"Indian River" fruit were exported during the 2006-2007
season. The State of Florida is the nation's largest producer
of fresh tomatoes and the crop value for the 2013-2014
season exceeds $348 million (floridatomatoes.org, 2014). The
Fellsmere and Wabasso areas are major agribusiness centers.
Indian River County Comprehensive Emergency Management Plan Basic Page 55
S. Epidemics, Pandemics, Disease — Hazard Identification.
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, 1995). 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.
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.
Extent. Due to the low probability of occurrence, this hazard
will not be fully profiled.
Because epidemics are hazards that are not bounded by
geographic or topographic characteristics, there are no definite
means to determine whether or not the extent of this hazard
differs from jurisdiction to jurisdiction within Indian River
County.
Vulnerability Assessment. Florida is more vulnerable than
many other states to possible outbreaks of infectious diseases
due to the large number of international and U.S. tourists it
Indian River County Comprehensive Emergency Management Plan Basic Page 56
attracts. The number of illegal aliens reaching U.S. shores
also increases vulnerability to disease hazards. Indian River
County's vulnerability to epidemic outbreaks is considered
relatively low when assessed against other Florida counties,
primarily because its population is lower and it is not a key
destination for illegal immigration. Medical facilities are
adequate for current need, but would be stressed if forced to
deal with a major disease outbreak.
Tsunamis — Hazard Identification. A tsunami is a series of
waves created when a body of water, such as in an ocean, is
rapidly displaced. A tsunami has a much smaller amplitude
(wave height) offshore, and a very long wavelength (often
hundreds of kilometers long), which is why they generally pass
unnoticed at sea, forming only a passing "hump" in the ocean.
Tsunamis have been historically referred to as tidal waves
because as they approach land, they take on the
characteristics of a violent onrushing tide rather than the sort of
cresting waves that are formed by wind action upon the ocean.
Since they are not actually related to tides, the term is
considered misleading and its usage is discouraged by
oceanographers.
There is another phenomenon often confused with tsunamis
called rogue waves. There remains debate as to whether these
waves are related to tsunamis. They are included in this
section as the mitigation plans address the threat in the same
relative manner. The characteristics are:
Unpredictable nature
Little is known about the formation
May be caused by regularly -spaced ocean swells that
are magnified by currents or the atmosphere
Historic Events. The history of big waves hitting Florida is
short:
A powerful earthquake in Portugal in 1755 killed
thousands there and launched a tsunami that hit
much of the U.S. coast. Scientists don't know if
that caused many deaths in Florida, which was
sparsely populated at the time;
An earthquake in Charleston, S.C., in 1886
triggered a wave that surged up the St. Johns
River to Jacksonville, causing few if any deaths;
Indian River County Comprehensive Emergency Management Plan Basic Page 57
• An 18 -foot rogue wave flooded the parked cars of
sunbathers on Daytona Beach without warning in
1992. This event, called a meteorological tsunami
(or meteotsunami), was a tsunami -like wave
phenomenon of meteorological origin. Tsunamis
and meteotsunamis propagate in the water in the
same way and have the same coastal dynamics.
For an observer on the coast where it strikes, the
two types would look the same and have the
same impacts. Research is currently underway to
better understand these events, with the goal of
developing a protocol for issuing meteotsunami
warnings along the U.S. coast.
Extent. Due to the low probability of occurrence, this hazard
will not be fully profiled.
Vulnerability Assessment. Tsunami events occur most often
in the Pacific Ocean, but they are a global phenomenon and all
are potentially dangerous, though they may not damage every
coastline they strike. Analyzing the past 150 years of tsunami
records shows that the most frequent and destructive tsunamis
to affect the U.S. have occurred along the coasts of California,
Oregon, Washington, Alaska, and Hawaii.
However, the State of Florida is located within the Caribbean
area, and over the past 156 years, the Caribbean has
experienced more total tsunami events, which have ultimately
resulted in over 2,500 deaths. Overall, Florida has experienced
few destructive tsunami or rogue wave events, but there were
several small events.
In 2012, The National Weather Service designated Indian
River County as the first county in the state of Florida to be
named TsunamiReady. The TsunamiReady program
encourages communities to take a proactive approach to
developing and implementing local tsunami plans and
expanding public awareness in partnership with their local
National Weather Service office. Although the chances of a
tsunami impacting the east coast of Florida are extremely
remote, computer modeling for a large tsunami originating from
the Puerto Rico trench could inundate Indian River County
beaches. The most significant impact of a tsunami would be
Indian River County Comprehensive Emergency Management Plan Basic Page 58
strong waves in a 300 -foot danger zone, which is the area east
of A1A. Beaches would be evacuated and residents living
along the coastline would be urged to move at least 15 feet up
to the highest floor of a well -constructed building. Modeling
results from a tsunami triggered by a large Portugal
earthquake suggest more significant tsunami impacts locally.
Risk Assessment. At the time of publication, no specific data
were available to determine the local potential loss associated
with a tsunami incident in Indian River County. However, state
facility losses due to a tsunami impact to Indian River County
are estimated to be $22,422,125. The Tsunami Hazard Zone
for Indian River County is identified as the area east of
Highway A1A. There are no critical facilities (schools, fire
rescue stations, government buildings, health care facilities,
etc.) located within this area.
Probability: Florida has directly experienced few destructive
tsunami and rogue wave events since 1900, with only five
small recorded occurrences. The probability of future tsunami
and rogue wave events in Indian River County is low.
2. Technological Hazards
a. Radiological Accidents — Hazard Identification
While an actual release of radioactive material is extremely
unlikely and the immediate threat to life 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. 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 (cloudlike) 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 radionuclides.
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 (EPZs) have been
designated for each power plant to enhance planning efforts
Indian River County Comprehensive Emergency Management Plan Basic Page 59
for an emergency. An EPZ is comprised of two zones, the 10 -
mile plume exposure zone and the 50 -mile ingestion exposure
zone (Nuclear Energy Institute, 2004). 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 classification
levels, which assist in notifying the public if a problem occurs at
a plant. They are defined by four categories (FEMA, 2004):
• Notification of Unusual Event — The event poses no
threat to plant 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 EPA
Protective Action Guidelines (PACs). 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 generation 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 Company.
Counties within the 50 -mile EPZ include all or portions of St.
Lucie, Indian River, Glades, Osceola, Okeechobee, Brevard,
Highlands, Palm Beach, and Indian River.
Extent. Due to the low probability of occurrence, this hazard
will not be fully profiled
Vulnerability Assessment. Radiological accidents can have
the following potential impacts on a community:
Indian River County Comprehensive Emergency Management Plan Basic Page 60
• Electric power outage;
• Surface and air transportation disruption;
• Telecommunications system outage;
• Human and health safety;
• Psychological hardship;
• Economic disruption;
• Disruption of community services;
• Damage to critical environmental resources; and
• Toxic releases.
Because of its location relative to the St. Lucie nuclear power
plant, parts of Indian River County have a high vulnerability to
a nuclear power plant accident or nuclear materials release.
While the County's level of vulnerability is high, the frequency
with which nuclear power plant accidents occur is very low, and
the overall risk to the citizens of Indian River County is
therefore considered low. Nuclear emergency in Indian River
County has received massive emergency management
attention at all levels of government. Emergency management
planning and regulation relative to nuclear power plant
accidents exists at the Federal, State, local, and corporate
levels.
Risk Assessment.
Although extensive safeguards are required, accidents can
occur. These could affect large populations through the
accidental release of radiation. Other sources of radiological
accidents can occur through transportation of radioactive
materials and the launching of spacecraft from Kennedy Space
Center. In addition, the King's Bay Nuclear Submarine Base is
located in St. Mary's, Georgia, just across the state boundary
of Northeast Florida. Although the facility has the potential to
use and store nuclear materials, as a military facility it is not
required to conduct the same radiological emergency
preparedness programs as nuclear power plants, nor do they
identify evacuation zones or ingestion pathways. Release of
radiological materials due to a facility or transportation -related
accident has the potential for affecting a number of Northeast
Florida counties.
Extent: Due to the low probability of occurrence, this hazard
will not be fully profiled.
Indian River County Comprehensive Emergency Management Plan Basic Page 61
b. Power Failure — Hazard Identification. Power failure can
result 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 consists of four
separate phases and procedures for each phase. (Florida
Reliability Coordinating Council, 2011). The four phases are:
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 possible equipment damage.
Frequent status reports are provided to agencies and the
media. The Division of Emergency Management will
consider using the Emergency Broadcast System to inform
citizens of events and to direct them to available shelters if
conditions warranted. Recognizing the consequences of a
Indian River County Comprehensive Emergency Management Plan Basic Page 62
loss of electricity, individual utility emergency plans include
provisions for special facilities critical to the safety and
welfare of citizens.
• System Load Restoration — System Load 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.
Historic Events. In the U.S., from 2 July to 10 August 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.
A massive power outage struck the northeast on Thursday, 14
August 2003. Areas affected by the outage included New York
City and Albany, New York; Cleveland and Toledo, Ohio;
Detroit and Lansing, Michigan; parts of New Jersey and
Connecticut; as well as Toronto and Ontario, Canada. The
most extensive power failure in history, it shut down 10 major
airports, 9 power plants, affected 50 million people, and led to
a declared State of Emergency in New York City. The Ford
Motor Company lost production capability at 21 of its facilities.
Two deaths and 71 fires were attributed to the outage in New
York City alone (Gellman and Milbank, 2003). The preliminary
economic impacts of this event are large. It is estimated that
the power failure cost approximately $1 billion, including
$800 million in unsold goods and services and $250 million in
spoiled food.
Starting Aug 31, 2005, Hurricane Katrina caused widespread
power outages throughout Louisiana, Mississippi, Alabama,
Florida, Kentucky and Tennessee. Exact totals are hard to
even define especially in Louisiana parishes which became
unoccupied for months. Power was also knocked out to 1.3
million customers when Katrina passed over Florida several
days earlier. In total 2.6 million people were left without power
as a result of the storm across the United States.
On February 26, 2008 a failed switch and fire at an electrical
substation outside Miami triggered widespread blackouts in
parts of Florida affecting four million people. The nuclear
reactors at Turkey Point power plant were shut down on the 84
°F day. The failure knocked out power to customers in 35
Indian River County Comprehensive Emergency Management Plan Basic Page 63
southern Florida counties and spread into the northern Florida
peninsula. The affected region ultimately ranged from Miami to
Tampa on the state's west coast and Brevard County, home to
Cape Canaveral and the Kennedy Space Center, on the east.
Extent. Due to the low probability of occurrence, this hazard
will not be fully profiled.
Vulnerability Assessment. Power failure can have the
following potential impacts on a community:
• Electrical power outage;
• Surface and air transportation disruption;
• Potable water system loss or disruption;
• Sewer system outage;
• Telecommunication system outage;
• Human and health safety;
• Psychological hardship;
• Economic disruption; and
• Disruption of community services
Risk Assessment. Power failures have the same potential
impacts in all Indian River County communities. The
vulnerabilities of all communities to power failures is
considered moderate. The power grid throughout Indian River
County is diversified, and there are no single choke points or
distribution nodes whose failure would disrupt power
distribution to the entire community.
C. Hazardous Materials Accidents — Hazard Identification.
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. However, out of approximately 922 hazardous
materials incidents reported statewide in 2013, 15 fatalities
were reported, 245 were injured, and 5,603 were evacuated.
Emergencies involving hazardous materials can be expected
Indian River County Comprehensive Emergency Management Plan Basic Page 64
to range from a minor accident with no off-site effects to a
major accident, which 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 EPA. Minimizing this exposure will
reduce the consequences of an emergency to people in the
area near to facilities that manufacture, store, or process
hazardous materials (Treasure Coast Regional Planning
Council, 2014).
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 that produce or use
hazardous materials. Coordinating procedures for hazardous
material response are found within the County's Emergency
Plan for Hazardous Materials.
Mishandling and improper disposal or storage of medical
wastes and low-level radioactive products from medical use
are also a hazard to Indian River County. For example,
several years ago an incident occurred in New Jersey when
improper disposal of medical wastes resulted in some of the
used products ending up on Atlantic Ocean beaches.
Vulnerability Assessment. Hazardous materials events can
have the following potential impacts within a community:
• Surface and air transportation disruption;
• Human health and safety;
• Psychological hardship;
• Economic disruption;
• Disruption of community services;
• Fire; and
• Toxic releases.
A community's vulnerability to hazardous materials accidents
depends on three factors. These are:
The major transportation routes that pass through the
community;
Indian River County Comprehensive Emergency Management Plan Basic Page 65
The hazardous material generators located in or near
the community; and
The resources in terms of people and property are in an
area of possible impact from a hazardous materials
release.
Overall, Indian River County has a moderate vulnerability to
impacts from hazardous materials releases. There are
relatively few major generators within the County, and those
that do exist are generally away from major population centers.
An area of high vulnerability for hazardous materials accidents
is the City of Vero Beach, due to the transportation network
(both highway and rail) that passes through the area.
Risk Assessment. Historic Events. Due to the low probability
of occurrence, this hazard will not be fully profiled.
d. Transportation System Accidents — Hazard Identification.
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. Installing cameras on interstate highways
and major transportation routes can assist in monitoring
movement throughout the County, as well as provide for
quicker response to traffic system accidents as well. A
notorious example is the crash in the Everglades of ValuJet
Flight 597 on 11 May 1996, which resulted in 109 fatalities and
cost millions of dollars, severely taxing the financial and public
safety resources of Dade County (FDCA, 2001). 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 complicating the
emergency response to such an event. In the past, wildland
fires in Florida have forced the closing of interstate highways,
creating tremendous impacts on the transportation systems.
As a major industrial nation, the U.S. produces, distributes,
Indian River County Comprehensive Emergency Management Plan Basic Page 66
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
(EPA, 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 EPA 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 handled each year (EPA, 1998).
Indian River County has about 18 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 Florida
Department of Environmental Protection, Division of Florida
Marine Patrol (Indian River County Emergency Management
Division, 2000). The Florida Coastal Pollutant Spill Plan has
been prepared to coordinate response procedures and
recovery efforts after a spill. There are two active oil field
regions in Florida: in Escambia and Santa Rosa counties in the
Panhandle, and Collier, Dade, Hendry, and Lee counties in
southwest Florida.
Vulnerability Assessment. Transportation system accidents
can have the following potential impacts within a community:
• Surface and air transportation disruption;
• Navigable waterway impairment;
• Human health and safety;
• Economic disruption;
• Disruption of community services;
• Fire; and
Indian River County Comprehensive Emergency Management Plan Basic Page 67
Toxic releases.
Vero Beach Regional Airport began limited commercial air
service in the later part of 2015. The airport is also home to a
major general aviation facility (Piper Aircraft) with two large
flight schools, and considerable private and charter air traffic.
Aviation is an important element of the economy in Indian
River County, and this activity raises the County's vulnerability
to aviation -associated accidents. Vulnerability to transportation
system accidents also is associated with the highway and rail
systems that run through the County. Individual community
and population center vulnerabilities to this hazard are entirely
dependent upon location. The cities of Vero Beach and
Sebastian have higher vulnerabilities to rail system accidents.
The western unincorporated portion of the County has a higher
vulnerability to major highway accidents due to the presence of
1-95. The Towns of Orchid and Indian River Shores have a low
vulnerability in this area. The Florida East Coast Railroad
blocks traffic to the hospital when trains pass through town;
grade separated overpasses are necessary at 41St Street,
Aviation Boulevard and 33rd Street, and 4th Street.
Risk Assessment. Historic Events. Due to the low
probability of occurrence, this hazard will not be fully
profiled.
e. Wellfield Contamination — Hazard Identification. 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
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.
Indian River County Comprehensive Emergency Management Plan Basic Page 68
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.
Vulnerability Assessment. Wellfield contamination can have
the following potential impacts within a community:
• Potable water system loss or disruption;
• Sewer system outage;
• Human health and safety;
• Psychological hardship;
• Economic disruption; and
• Disruption of community services.
Wellfield contamination has not been a major problem for most
of Indian River County. There is some potential exposure to
this hazard in the eastern portion of the County, but overall, the
County vulnerability to this hazard is considered low. The
County addresses the issue of wellfield contamination in the
Comprehensive Growth Management Plan — Future Land Use
Element.
Risk Assessment. Historic Events. Due to the low
probability of occurrence, this hazard will not be fully profiled.
Communications Failure — Hazard Identification.
As society emerges from industrial production into the age of
information, we are seeing new kinds of technological
Indian River County Comprehensive Emergency Management Plan Basic Page 69
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
emergency management and medical personnel as well.
Although telephone calls by land lines are among the safest
communication technology, and the most resistant to space
weather effects, they have also been in rapid decline thanks to
the wide spread adoption of cellular and mobile phones,
especially among the under -30 population. According to an
article in The Economist [2009] customers are discontinuing
landline subscriptions at a rate of 700,000 per month, and that
by 2025 this technology will have gone the way of telegraphy.
Between 2005 and 2009, the number of households with cell
phone -only subscriptions rose from 7% to 20%. In terms of
space weather vulnerability, there is one important caveat.
Without an electrical power grid, conventional land -lines fail,
and cell phones may not be recharged even though the cell
towers may have emergency back up power capability. An
example of this vulnerability occurs whenever natural disasters
strike and cell towers are unavailable, or the crushing load of
cell traffic renders the local tower network unusable. Moreover,
one does not have to wait for power grid failure to have an
impact on cell phone access during episodes of solar activity
(Space Weather — Impacts, Mitigation and Forecasting —
(https://www.vsp.ucar.edu/Heliophysics/pdf/Odenwald_Space
Weather-Final.pdf).
Vulnerability Assessment. Communication failure can have
the following potential impacts within a community:
• Telecommunications system outage;
• Economic disruption; and
• Disruption of community services.
Communications failures have a greater potential to
produce adverse economic impacts in business -based rather
than retirement or residential communities. On the other hand,
communications system failures in residential and retirement
communities may put more human lives at risk. Indian River
County's vulnerability to communications systems failures is
Indian River County Comprehensive Emergency Management Plan Basic Page 70
generally considered moderate. The City of Vero Beach has a
higher vulnerability to this hazard because it is the center of
government and business within the County, and Fellsmere
has a low vulnerability due to its location and small population
size. Basically, Indian River County's vulnerability to this
hazard is no greater or less than most other Florida coastal
counties.
Risk Assessment. Historic Events. Due to the low
probability of occurrence, this hazard will not be fully profiled.
g. Military Ordnance from WWII — Hazard Identification.
Unexploded military ordnance is a hazard unique to Indian
River County. The military used the Fort Pierce Naval
Amphibious Training Base, an area of about 19,000 acres
between Vero Beach and Jensen Beach, during World War II
for amphibious training and to develop and test procedures for
breaching and removing beach fortifications expected to be
encountered in Europe and Japan. A variety of ordnance was
tested against these fortifications. Training at the base
included testing of bombs, rockets, and mines. Several
explosive devices left over 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 also may wash ashore or be exposed after storms
(Indian River County Department of Emergency Services,
2002). The U.S. Army Corps of Engineers (Jacksonville office)
with the full cooperation of Indian River County Department of
Emergency Management, is responsible for coordinating the
disposal of any found items with the U.S. Navy, the U.S. Coast
Guard, Florida Fish and Wildlife Conservation Commission and
Indian River County.
The most recent finding, in January, 2014, was during an
offshore removal action conducted by the U.S. Army Corps of
Engineers (Corps) in Indian River County, south of Vero
Beach, to address debris associated with past military activities
in the area. Contractors discovered two suspected bombs in
approximately 11 feet of water. An explosives and ordnance
disposal unit from the Mayport Naval Station excavated the
items and towed them approximately one mile offshore for
Indian River County Comprehensive Emergency Management Plan Basic Page 71
assessment and possible underwater detonation.
Vulnerability Assessment. Unexploded military ordnance
can have the following potential impacts within a community:
• Health and human safety;
• Psychological hardship;
• Damage to critical environmental resources; and
• Toxic release.
There is some exposure to risk from unexploded military
ordnance in Indian River County, but the overall vulnerability of
County residents to this hazard is very low. The communities
most vulnerable to this hazard are the City of Vero Beach and
the unincorporated areas along the eastern side of Hutchinson
Island south of Vero Beach to the St. Lucie County line. While
old military ordnance does occasionally surface along these
beaches, there has never been a case where this ordnance
was still live.
Risk Assessment. Historic Events. Due to the low
probability of occurrence, this hazard will not be fully profiled.
3. Societal Hazards
a. Terrorism and Sabotage — Hazard Identification.
(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 population concentrations, 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,
Indian River County Comprehensive Emergency Management Plan Basic Page 72
and potential terrorist attacks have been investigated
and averted in recent years (Indian River County
Department of Emergency Services, 2002).
Acts of terrorism also are capable of creating disasters
that 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 (Indian River County
Department of Emergency Services, 2002). Those
involved with the emergency management of
government monitor the influx of undocumented aliens
into south Florida from areas unfriendly to the interests
of the U.S.
Historic Events. On 11 September 2001, terrorists
attacked the World Trade Center in New York City and
the Pentagon in Washington, DC, crashing hijacked
commercial airplanes into the structures. All told,
approximately 3,000 civilians and emergency response
personnel perished in the attack. The long-term
economic and psychological impacts of this event are
astounding. New York City alone experienced capital
losses totaling 34 million dollars. The attack on the
World Trade Center resulted in a loss of 12.5 million
square feet of office space and damaged 7.7 million
more. The insured losses associated with the event
totaled 52 million dollars. The City estimates that
125,300 jobs were lost because of the attack (National
Conference of State Legislatures, 2003). The
September 11th attacks also had local connections to
Indian River County as some of the New York City
terrorists received flight training at the Vero Beach
Regional Airport.
Indian River County Comprehensive Emergency Management Plan Basic Page 73
(2) Computer Accidents, Sabotage and Critical
Infrastructure Disruption — Hazard Identification.
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:
• 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
Indian River County Comprehensive Emergency Management Plan Basic Page 74
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.
Vulnerability Assessment. Terrorism and sabotage
events can have the following potential impacts within a
community:
• Electric power outage;
• Surface and air transportation disruption;
• Potable water system loss or disruption;
• Sewer system outage;
• Telecommunications system outage;
• Human health and safety;
• Psychological hardship;
• Economic disruption;
• Disruption of community services;
• Damage to critical environmental resources;
• Damage to identified historical resources;
• Fire; and
• Toxic releases.
The possibilities for terrorism and sabotage in Indian
River County are extremely limited, and the County's
vulnerability to this hazard is very low. The City of Vero
Beach has a slightly higher vulnerability to terrorism as
the center of government, but this vulnerability is still
considered low. The towns of Indian River Shores and
Orchid have a slightly higher risk of what may be
described as "celebrity terrorism" due to the national
prominence of some of their citizens, but the overall
community vulnerability still remains low.
Extent. Due to the low probability of occurrence, this
hazard will not be fully profiled.
Indian River County Comprehensive Emergency Management Plan Basic Page 75
b. Civil Disturbance — Hazard Identification.
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 (Indian River County Department of Emergency
Services, 2002). 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
(Indian River County Department of Emergency Services,
2002). Police services are responsible for the restoration of
law and order in any area of the County.
Vulnerability Assessment. Civil disturbance can have the
following potential impacts within a community:
• Surface and air transportation disruption;
• Human health and safety;
• Psychological hardship;
• Economic disruption;
• Disruption of community services;
• Damage to identified historical resources; and
• Fire.
The potential for civil disturbances in Indian River County is
considered very low. The City of Vero Beach has a moderate
vulnerability in this area, but in general, civil disturbance is not
a significant hazard faced by Indian River County.
Extent. Due to the low probability of occurrence, this hazard
will not be fully profiled.
C. Immigration Crisis — Hazard Identification.
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
Indian River County Comprehensive Emergency Management Plan Basic Page 76
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.
Vulnerability Assessment. Immigration crises can have the
following potential impacts within a community:
• Human health and safety;
• Psychological hardship;
• Economic disruption; and
• Disruption of community services.
Reviewing the data on past illegal immigration and mass
population movements such as the Haitian influx and Cuban
raft incidents of the 1980's indicates that illegal immigration
has never reached a crisis state for the local authorities in
Indian River County. Overall, the County vulnerability to this
hazard is very low. Due to demographic features, the City of
Vero Beach has a slightly higher, but still low vulnerability to
illegal immigration impacts.
Extent. Due to the low probability of occurrence, this hazard
will not be fully profiled.
b. Special Events (dignitary visits, festivals, etc.)
Due to the low probability of occurrence, this hazard will not be
fully profiled.
Indian River County Comprehensive Emergency Management Plan Basic Page 77
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Unincorporated Hutchinson Island = Areas of the barrier not within city jurisdictions
South County Area = The area south of the City of Vero Beach and west of the Indian River (Both sides of U.S. 1)
Route 60 Area = Area west of the City of Vero Beach along Route 60 between the City and 1-95
Wabasso Area = The area to the south of the City of Sebastian
Vero Lake Estates = The large development area west and south of the City of Sebastian
Western County = Area west of 1-95
M = High, = Moderate, � = Low, and F = Very Low
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Societal Hazards
Terrorism and sabotage
F
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F
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Unincorporated Hutchinson Island = Areas of the barrier not within city jurisdictions
South County Area = The area south of the City of Vero Beach and west of the Indian River (Both sides of U.S. 1)
Route 60 Area = Area west of the City of Vero Beach along Route 60 between the City and 1-95
Wabasso Area = The area to the south of the City of Sebastian
Vero Lake Estates = The large development area west and south of the City of Sebastian
Western County = Area west of 1-95
M = High, = Moderate, � = Low, and F = Very Low
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 80
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 FEMA flood
zones for Indian River County is attached to this document and identified as
Figure 3.
Indian River County Comprehensive Emergency Management Plan Basic Page 81
Figure 3
FEMA Flood Zones for Indian River County
Indian River County Comprehensive Emergency Management Plan Basic Page 82
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 83
Source: *Indian River County 2O3OComprehensive Plan
Indian River County Comprehensive Emergency Management Plan Basic Page 84
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
3,05
TOTAL UNINCORPORATED LAND AREA
272,392
Source: *Indian River County 2O3OComprehensive Plan
Indian River County Comprehensive Emergency Management Plan Basic Page 84
Figure 4A
Future Land Use Map
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Indian River County Comprehensive Emergency Management Plan Basic Page 85
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 86
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
In 2014, the estimated countywide population is 140,928, up 25% from 2000.
The Treasure Coast has experienced tremendous growth since the 1960's,
and this trend is expected to continue. According to a FEMA Post -Disaster
Recovery and Redevelopment Guide, St. Lucie County was ranked 20th of
the Atlantic and Gulf Coast counties with the largest population growth rates
between 1960 and 1990. The County's growth rate during this time period
was 256.4%. The county is supported by an economy based primarily on
tourism, light industry, and agriculture. Area wise, this provides
approximately 274 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 87
Figure 5
POPULATION CENTERS IN THE COUNTY
(2010 Census)
MUNICIPALITY POPULATION
Unincorporated County
Vero Beach
91,363
15,220
Sebastian
21,929
Fellsmere
5,197
Indian River Shores
3,901
Orchid IF
415
Total County Po ulation y nyy
Census Designated
2000 Census
_ _ � ri. sw s_ s_ sw sw 138,025
Places
Gifford
9,590
Wabasso
609
Roseland
1,472
Vero Beach South
23,092
Florida Ride
18,164
South Beach
3,501
North Beach
243
Winter Beach
965
West Vero
S.R. 60 Corridor
7,138
Wabasso Beach
1,853
Unallocated
12,354
Total Unincorporated j
78,981
http://www.citypopula tion. de/ph p/usa-census-florida. php?adm2id=12061
Indian River County Comprehensive Emergency Management Plan Basic Page 88
Population by Age
Persons 0 to 4 years 6,508
Persons 5 to 17 years 19,444
Persons 18 to 64 years 74,57
Persons 65 years and over 37,594
http://censusviewer.com/county/FL/Indian%2ORiver
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 COMMUNITY DEVELOPMENT
DRAFT 2030 COMPREHENSIVE PLAN: FUTURE LAND USE ELEMENT). 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).
According to a September 10, 2004 farmworker housing report prepared for
the Florida Housing Finance Corporation by the Shimberg Center for
Affordable Housing, there were 1,696 migrant farm laborers within the county
in 2002. In addition to the 1,696 migrant farm laborers, there were 240
household members that accompanied migrant farm laborers. Additionally,
Census data gathered in 2010 suggests that approximately 14.3% (19,738)
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
Indian River County Comprehensive Emergency Management Plan Basic Page 89
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.
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.
Indian River County Comprehensive Emergency Management Plan Basic Page 90
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 136,896 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 91
Top Employers in Indian River County:
RANK
EMPLOYER
TYPE
EMPLOYEES
1
School Dist. of Indian River Co.
Government
2,113
2
Indian River County
Public
1,328
Construction
2,918
Administration
Educational Services
3
Indian River Medical Center
Health Care
1,753
4
Publix Supermarkets
Food and
1,250
Information Technology
596
Beverage Stores
Manufacturing
5
Piper Aircraft
Manufacturer
850
6
City of Vero Beach
Government
424
Residential
7
John's Island
Resort
526
Retirement/Life-
Indian River Estates
care
350
9
Wal-Mart
Retail
693
SOURCE: INDIAN RIVER COUNTY CHAMBER OF COMMERCE (2015)
Employment for Indian River County by Industry:
INDUSTRY CLASSIFICATION
EMPLOYEES
% OF TOTAL EMPLOYMENT
Accommodations, Food Services
5,066
24.54%
Agriculture, Forestry & Fishing
3,033
21.23%
Arts, Entertainment, Recreation
2,246
17.09%
Construction
2,918
7.70%
Educational Services
3,143
5.58%
Finance, Industry, Real Estate
2,495
5.32%
Health Care, Social Assistance
8,518
4.64%
Information Technology
596
3.81%
Manufacturing
2,120
8.6%
Professional, Scientific, Technical
2,193
1.31%
SOURCE: INDIAN RIVER COUNTY CHAMBER OF COMMERCE (April 2014)
Indian River County Comprehensive Emergency Management Plan Basic Page 92
Indian River County ranks fifth in the state in per capita income. Its per
capita income in 2013 was $54,448, exceeding the state average of
$41,497, 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 $9,088 per quarter, on average, for the third quarter of 2014.
This equates to an hourly wage of $18.93 and an annual wage of $36,352
based on a 2,080 hour work -year. (Source: 2014 Agency for Workforce
Innovation Quarterly Census of Employment & Wages).
Recent estimates (2010 U.S. Census) show that about 15 percent of all
Indian River County residents live at or below the poverty level, compared
to 16 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 75
percent for the period of 2009-2013. 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 2014 in Indian River County for a single family
home was $177,500 and the average median sales price for a
condominium was $130,000, according to the Shimberg Center for
Affordable Housing, Florida Housing Data Clearinghouse
(http://fiousinc�data.shimer.ufloedu/a/rofiles?action ®results&nid®3000)
The median gross rent in 2013 was $854 per month compared to a
statewide median rent of $990. 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 2014, there were an estimated 49,079 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 93
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
1. 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 Regional 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 94
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
Indian River County Comprehensive Emergency Management Plan Basic Page 95
(2) Sebastian City Hall
1225 Main Street, Sebastian
(3) Fellsmere City Hall
22 South Cypress Street, Felismere
(4) Indian River County Main Library
1600 21st 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 AlA, 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 Regional 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 Regional Airport
Latitude 270 3933"/Longitude 080' 25'08"
b. The secondary landing zone is located at:
• Sebastian Airport
Latitude 270 4877"/Longitude 080' 29'74"
Indian River County Comprehensive Emergency Management Plan Basic Page 96
H. PLANNING ASSUMPTIONS
1. 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 97
III. CONCEPT OF OPERATIONS
114: W: 14 me] a 1111 W-11 RYW:
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 11 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 11
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 98
B. ORGANIZATION
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 Commissioners 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 C. Specific
roles and responsibilities for each incident management function are
defined in the Florida Incident Field Operations Guide and are
followed by Indian River County where applicable.
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 C.
Indian River County Comprehensive Emergency Management Plan Basic Page 99
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
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.
ESF #6 Mass Care — Coast to Heartland 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
Indian River County Comprehensive Emergency Management Plan Basic Page 100
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 Health
Department (Environmental)
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
Salvation Army
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 Enemy 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 — Indian River County Emergency
Management
To coordinate RIAT assignments and National Guard resources to
assist in the ESFs where needed.
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 — The United Way of Indian
River County
Indian River County Comprehensive Emergency Management Plan Basic Page 101
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.
To coordinate and provide adequate shelter and care for animals.
ESF #18 Business & Industry - Indian River County Department
of Emergency Services, Emergency Management 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 102
AGENCY
ESF
1
2
3
4
5
6I
7
8
9
16
11
12
13
14
15
16
17
18
9-1-1 COMMUNICATIONS
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COAST TO HEARTLAND
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BELLSOUTH
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SENIOR RESOURCE
S
ASSOCIATION, INC.
DISASTER MEDICAL SVCS
S
FEDERAL AVIATION
S
ADMINISTRATION
FELLSMERE, CITY OF
S
Building Department
S
Police Department
S
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S
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FELLSMERE FARMS
WATER CONTROL
DISTRICT
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FLORIDA, STATE OF
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Department of
Law Enforcement
S
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Forestry Service
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Highway Patrol
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Marine Patrol
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National Guard
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FLORIDA EMERGENCY
PREPAREDNESS ASSOC.
S
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FLORIDA POWER & LIGHT
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5
HUMANE SOCIETY
P
INDIAN RIVER COUNTY
Agricultural Extension
S
Animal Control
S
P
BCC Office
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Building Department
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County Admin. Office
S
S
Indian River County Comprehensive Emergency Management Plan Basic Page 103
AGENCY
ESF
1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 t16 17 T18
P _
_ P
_ __-----
-.-__
P
Emergency Medical
Services
S
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S
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S
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S
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P
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S
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HOLMES REGIONAL
MEDICAL CENTER FIRST
FLIGHT
INDIAN RIVER COUNTY
VOLUNTEER
AMBULANCE SERVICE
S
INDIAN RIVER FARMS
WATER CONTROL DIST.
S
INDIAN RIVER MEDICAL
CENTER
S
INDIAN RIVER MOSQUITO
CONTROL DISTRICT
S
INDIAN RIVER SHORES,
TOWN OF
S
Building Department
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Police Department
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Indian River County Comprehensive Emergency Management Plan Basic Page 104
AGENCYESF
1 2 3 4 5 6 7 8 9 10 11 12 13 14 16 t16 17' 18
Public Works
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SEBASTIAN RIVER
MEDICAL CENTER
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TAMPA GENERAL
—HOSPITAL
UNITED STATES
Air Force
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Army
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Coast Guard
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Marine Corps
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Military Reserve Units
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Navy
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Patrick Air Force Base
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UNITED WAY OF
INDIAN RIVER COUNTY
P
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Airport
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Customer Services
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Electric Power Resource
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Finance
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Indian River County Comprehensive Emergency Management Plan Basic Page 105
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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 Sheriffs 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 (See Indian River County's COOP/COG
plan for specific details).
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
Indian River County Comprehensive Emergency Management Plan Basic Page 120
of the Florida National Guard (FNG) and ESF #13 (Military Support),
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 SEDC to coordinate the delivery of intra -state mutual aid
in an organized manner through the County network.
1ll� 71Vxs]9Us]ON 1 1136161019
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
Indian River County Comprehensive Emergency Management Plan Basic Page 121
all ESFs will staff the EOC.
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 EOC tracking 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 our EOC tracking
system 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, SERI 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
Indian River County Comprehensive Emergency Management Plan Basic Page 122
person reporting to the SERT Leader.
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
Indian River County Comprehensive Emergency Management Plan Basic Page 123
priced fuel, and addressing any emergency medical issues
relative to evacuation. The following types of decisions will be
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.
Indian River County Comprehensive Emergency Management Plan Basic Page 124
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 125
FIGURE 7 - PRIMARY AGENCY LISTING
ESF
FUNCTION NAME
PRIMARY AGENCY
PRIMARY STATE
#
AGENCY
1
TRANSPORTATION
I.R. Co. School Board Transportation Department
Department of Transportation
2
COMMUNICATIONS
I.R. Co. Department of Emergency Services -
Department of
EmergencyMana ement Division
Management Services
3
PUBLIC WORKS AND ENG.
I.R. Co. Public Works Department
Department of Transportation
4
FIREFIGHTING
I.R. Co. Department of Emergency Services -
State Fire Marshal
Fire Rescue Division
5
INFORMATION AND PLANNING
I.R. Co. Department of Emergency Services -
ESF 5/SERT Planning Section
Emergency Management Division
6
MASS CARE
American Red Cross -
Department of Business and
Coast to Heartland Chapter
Professional Regulation
7
RESOURCE SUPPORT
I.R. Co. Purchasing
Unified Logistics
8
HEALTH AND MEDICAL
I.R. Co. Health Department
De artment of Health
9
URBAN SEARCH AND RESCUE
I.R. Co. Department of Emergency Services -
State Fire Marshal
Fire Rescue Division
10
HAZARDOUS MATERIALS
I.R. Co. Environmental Health
Department of Environmental
Protection
State Emergency Response
Commission
11
FOOD AND WATER
Salvation Army
Department of Agriculture and
Consumer Services
12
ENERGY AND UTILITIES
I.R. Co. Utilities Department
Public Service Commission
13
MILITARY SUPPORT
I.R. Co. Department of Emergency Services -
Florida National Guard
Emergency Management Division
14
PUBLIC INFORMATION
I.R. Co. Department of Emergency Services -
Florida Division of Emergency
Emergency Management Division
Management
15
VOLUNTEERS AND DONATIONS
I.R. Co. Department of Emergency Services — United
Governor's Commission on
Way
Volunteerism and Community Service
16
LAW ENFORCEMENT AND SECURITY
I.R. Co. Sheriff's Office
Florida Attorney General
17
ANIMAL PROTECTION
I.R. Co. Department of Emergency Services - Animal
Department of Agriculture and
Control Division/Humane Society
Consumer Services
18
BUSINESS AND INDUSTRY
I.R. Co. Department of Emergency Services —
Florida Department of Economic
Emerc enc Management Division
Opp Ttunity
Indian River County Comprehensive Emergency Management Plan Basic Page 126
11. SERT Support Staff
a. Upon activation of the SEOC, the FDEM becomes the support
staff to the SERI. 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. Copies of all
mutual aid agreements, memoranda of understanding and any
other agreements within the jurisdiction and with other
jurisdictions around the state that relate to emergency
management activities can be found on file in a binder entitled
Compendium of Authorities and References located in the
Indian River County Emergency Management office. 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. FDEMs EM Constellation will be utilized to
monitor and track mission requests and responding to a mutual
aid request will be made accordingly, including documentation
for billing.
Indian River County Comprehensive Emergency Management Plan Basic Page 127
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.
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 SERI 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
Indian River County Comprehensive Emergency Management Plan Basic Page 128
"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.
E. NOTIFICATION AND WARNING — (Refer to the Indian River County
Comprehensive Emergency Management Plan, Annex Vl, Communications
Plan)
EMnet - 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 Indian
River County Sheriff's Office during off -hours. The primary point to
point (County Warning Point to State Warning Point) communication
system is the Emergency Management Network (EMnet). The system
has a special computer that will automatically failover to a satellite
connection if the local internet connection fails. EMnet features
electronic messaging, point-to-point voice calling, and voice
conference call capabilities. Indian River County is also authorized to
transmit Emergency Alert System messages to Florida broadcasters
as well as the Integrated Public Alert and Warning System, which can
notify citizens via smart phones, weather radios, and other devices.
2. NAWAS - The primary point-to-point (County Warning Point to State
Warning Point) voice communications mechanism is currently
NAWAS. NAWAS is a 4 -wire telephone system used to convey
warnings between Federal, State and local governments. The original
mission of NAWAS was to warn of an imminent enemy attack or an
actual missile launch upon the United States. NAWAS still supports
this mission but the system is now used to communicate information
about all hazards. NAWAS is operated and maintained by the
Federal Emergency Management Agency (FEMA). The Federal
NAWAS circuit connects FEMA's national and regional facilities with
the Warning Points for each US State and Territory, as well as the
National Weather Service offices and certain US Defense
Installations. The State of Florida also has a State NAWAS circuit,
with stations installed at most of the State's 67 County Warning
Points or EOCs. Transmissions on FL NAWAS are independent from
the federal circuit, however FEMA can bridge FL NAWAS with the
national system to transmit on FL NAWAS in a major emergency. It
will be used to provide us with severe weather information,
emergency notifications (incoming and outgoing) and other
appropriate emergency management business or functions.
3. AT&T - The primary communication system operative through the
Department prior to, during, or after an emergency is AT&T, a
Indian River County Comprehensive Emergency Management Plan Basic Page 129
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.
4. SLERS — State Law Enforcement Radio System (SLERS) is used by
the State Watch Office (SWO) and the FDEM Regional Coordinators
to report their current location or communicate updates about
incidents they are responding to. Indian River County Emergency
Management has a SLERS radio that provides the counties with a
redundant means of communication during an emergency.
5. Telecommunications Device for the Deaf (TDD) - 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.
6. Language Line - In order to broaden our capabilities with speaking
with the non-English speaking communities of Indian River County,
we subscribe to 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.
7. Alert Indian River - Our office maintains an E-mail/text message alert
subscriber list for disseminating weather alerts, or other warnings, to
Indian River County Comprehensive Emergency Management Plan Basic Page 130
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.
8. Social Media - 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.
9. Cable TV Interrupt Service - 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.
10. Local Government Cable TV Channel - 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.
11. Agreement with Local FM Radio Station - 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.
12. Amateur Radio - 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.
13. Emergency Power - 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.
14. Key Official/Organization Notification - 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.
15. Public Warning System - The Emergency Management Director,
Indian River County Comprehensive Emergency Management Plan Basic Page 131
and/or his designee, has the authority to activate the public warning
system at any time an emergency event threatens persons or
property.
16. Bullhorn/Door-to-Door Announcements - 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.
17. State EOC - 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.
18. Pre -Scripted Public Services Announcements - 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).
19. Emergency Information Center (EIC) — The EIC is a phone bank
designed to respond to public inquiries regarding rumors and
information. The EIC will be activated and staffed by volunteers
during an EOC activation. Staffing will be in accordance to call
volume. Each operator will be provided just -in -time training with the
Indian River County Public Information Handbook — located in the
EIC.
20. INTEGRATED PUBLIC ALERT AND WARNING SYSTEM (IPAWS)
During an emergency, alert and warning officials need to provide the
public with life-saving information quickly. IPAWS is a modernization
and integration of the nation's alert and warning infrastructure that will
save time, protecting life and property. IPAWS gives public safety
officials an effective way to alert and warn the public about serious
emergencies using the Emergency Alert System, the Commercial
Mobile Alert System, NOAA Weather Radio and other public alerting
systems from a single interface. The Commercial Mobile Alert System
(CMAS), also known as Wireless Emergency Alerts (WEA), and
Personal Localized Alerting Network (PLAN), is an alerting network
designed to disseminate emergency alerts to mobile devices such as
cell phones and pagers. The government plans to issue three types of
alerts through this system: alerts issued by the President, alerts
involving imminent threats to safety of life, and AMBER Alerts. Indian
Indian River County Comprehensive Emergency Management Plan Basic Page 132
River County Emergency Management was approved on November
20, 2012 by the Federal Emergency Management Agency (FEMA) as
a Collaborative Operating Group (COG). Indian River County
Emergency Management will only utilize the (PAWS warning system
to save time, protect life and property.
Criteria for Issuing a Public Warning
Does the hazardous situation ui the public to take
immediate action
Does the hazardous situation pose a serious threat to life
property?or
Is there a highdegree of probabilitythe hazard situation
illoccur?
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.
F. Response Actions
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.
Indian River County Comprehensive Emergency Management Plan Basic Page 133
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.
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 11 - Recovery and
Mitigation Actions, for more information.
Indian River County Comprehensive Emergency Management Plan Basic Page 134
FIGURE 8
Disaster Declaration Process
Indian River County Comprehensive Emergency Management Plan Basic Page 135
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 can be found in the following
locations:
Local telephone directory (updated annually)
Annual supplement to the local newspapers, the Press
Journal and the Florida Today.
The Indian River County Official Disaster Preparedness
Guide (see Figure 9), which can be found online
(http-://www.irces.com/EM/documents/Disaster-
P[p2gEqdness.� ), local government offices, and the
public libraries.
Indian River County Comprehensive Emergency Management Plan Basic Page 136
Figure 9
Indian River Count Evacuation Guide
Emergency Evacuation Routes, Zones, and Shelters
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T
4470 bastian DKK �ebasaan
50 N Cures e Streak Fekewere
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9001 90TH seteastan
'9a Schurwrin Gr i , Snoasten
fi Storm Crave Mdd& e:...
6400 57th Street
453423TH Court, )are Beach
S. VB14S rrvuzeman Learning Conger
1547 19TH Sbeet, Vero Beae h ....
G° ereraraeOnaaaentary
4940 STHStreet, Vero Beach
10 train Middla
4807 20TH Avenue , Vero r" nch
1110 18TH/Avenue S4V, vera Beach
12, indion RIvel Academy
504 24TH Street SN, Vero eeac h.
13 Vero Beach Elementary
177012 H:Street, Ve•oBeach
Sit= specla ?o ear, She ner
Treawre Coast sonentary
6905 60TH street,. Sebastian
Pre -6 '_.Bratton required.
(772) %7,2154
Pr -Pet Frg rely Wicker
L#herfy ,MSacgnai School
6'&54 $1 BT 6rcet, Vero Beach
F!e -ragis rocluead:
(772) 368--3331 Fxt. 10
1
E
Map Legend
Evacuation Zones:
ZONZA (RED)
Barrier iwlanr5 and
Mobile Horne Parkas
ZONE R (OPANCE)
Areas East at U S, HWY 1
ZONE C (YELLOW)
5t ; astlan PFvefAre a
ZON'"'d&E
All areasa east of the PEC
Railway including
ZanesA, B & C.
Evacuation Routes
Craetvamc Eva'eS&ui1,cRAap_BaSn..2.014_Q61s
Indian River County Comprehensive Emergency Management Plan Basic Page 137
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 138
• 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 139
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 -rescue, emergency management, public
works, utility providers, property appraisers, building officials,
American Red Cross, etc.
Indian River County Comprehensive Emergency Management Plan Basic Page 140
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 SW P;
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 141
South Cour
Indian River Academy
500 20th Street SW
Vero Beach, Florida 32962
Oslo Middle School
480 20th Avenue SW
Vero Beach, Florida 32962
Osceola Magnet School
1110 18th Avenue S.W.
Vero Beach, Florida 32962
Cen reel oernt
Gifford Middle School
453028 1h Court
Gifford, Florida 32967
Glendale Elementary School
4940 8th Street
Vero Beach, Florida 32960
V B.H.S. Freshman Learning Center
150719th Street
Vero Beach, Florida 32960
Vero Beach Elementary School
177012 th Street
Vero, Beach, Florida 32960
orttt Cooit
Fellsmere Elementary School
50 North Cypress Street
Fellsmere Florida 32948
Pelican Island Elementary School
1355 Schumann Drive
Sebastian, Florida 32958
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 90th Avenue
Sebastian Florida 32958
Storm Grove Middle School
640057 th Street
Vero Beach, Florida 32967
**SPECIAL NEEDS 7
Treasure Coast Elementary School
895585h Street
Sebastian, Florida 32958
Pre -registration required:
Call 772-567-2154 for information,
Indian River County Comprehensive Emergency Management Plan Basic Page 142
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.
IV. RESPONSIBILITIES
A. General
All County departments, constitutional officers, municipalities, and volunteer
agencies are responsible for the following general items:
1. Develop the necessary functional annexes, appendices, standard
operating procedures (SOPs) and checklists for the effective, efficient
organization and performance of functions required to respond to and
recover from an emergency or disaster event.
Indian River County Comprehensive Emergency Management Plan Basic Page 143
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:
The records custodian for Indian River County is the assistant to the
county administrator. This position is responsible for enforcing the
county's retention schedule and establish standards for controlling,
retaining, destroying and/or preserving public records to ensure
compliance with the state and federal laws, regulations, and policies.
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.
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
Indian River County Comprehensive Emergency Management Plan Basic Page 144
data/records.
B. Indian River County
The Emergency Management Director is responsible for:
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.
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.
Indian River County Comprehensive Emergency Management Plan Basic Page 145
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:
Active leadership of an emergency management framework at the
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
Indian River County Comprehensive Emergency Management Plan Basic Page 146
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.
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
1. 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
Indian River County Comprehensive Emergency Management Plan Basic Page 147
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.
A public assistance (P.A.) training meeting will be coordinated with
FDEM on a biennial basis 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, reimbursement, eligibility, forms, closeout, etc. The
county OMB office has been assigned the financial and administrative
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 providing 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
Indian River County Comprehensive Emergency Management Plan Basic Page 148
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 forfuture
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
implementation of operations during the four phases of emergency
management are in compliance with:
The Code of Federal Register — 2 CFR Part 200, the Super
Circular. This became effective December 26, 2014 and
streamlines the language from eight existing Office of
Management and Budget (OMB) circulars into one
consolidated set of guidance. This reform of OMB guidance
improves the integrity of the financial management and
operation of Federal programs and strengthens accountability
for Federal dollars by improving policies that protect against
waste, fraud, and abuse.
• 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.
Indian River County Comprehensive Emergency Management Plan Basic Page 149
5. The Indian River County Office of Management and Budget is
authorized to execute the funding agreements with other legal entities
on behalf of the county but 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.
V1. 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 National Response
Framework (NRF). 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 Planner 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
and/or Emergency Management Coordinator, will establish and maintain an
exercise schedule through the Multi -Year Training and Exercise Plan
(MYTEP) required annually by the Florida Division of Emergency
Management (FDEM).
Emergency Management training will include training required to keep all
levels of local government at an acceptable level of readiness to respond to
any disaster identified in the hazard vulnerability 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.
Indian River County Comprehensive Emergency Management Plan Basic Page 150
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 is outlined in the
Indian River County Training and Exercise plan and 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 semi-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 Indian River County Training and Exercise Plan.
B. Cost for Training
All State -Delivered (G -series courses, listed on FDEM SERT TRAC) are free
of cost. 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 on FEMA — Emergency Management Institute
website) 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.
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. All ESFs are invited to participate in the stakeholders meetings
and provide input for the MYTEP which is a three-year training and exercise
plan/schedule kept on file in the office of emergency management and
submitted to FDEM annually. At a minimum, Indian River County will
Indian River County Comprehensive Emergency Management Plan Basic Page 151
participate in the following annual exercises: Vero Beach Airport exercise,
statewide hurricane exercise, radiological exercise, tsunami exercise and the
ESF coordination training. 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 request attendees complete an HSEEP compliant
Participant Feedback Form. This feedback will be used to compile an After
Action Report to identify any shortcomings and steps to 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. For detailed methods of public outreach, see
the Public Outreach, Notification and Crisis Communication Strategy located
in the office Indian River County Emergency Management).
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:
a. RADIO STATIONS (Indian River County)
(1)
WSCF 91.9 FM
(2)
WQCS 88.9 FM
(3)
WAVW 94.7 FM
(4)
WGYL 93.7 FM
(5)
WOSN 97.1 FM
(6)
W PAW 99.7 FM
(7)
WTTB 1490 AM
Indian River County Comprehensive Emergency Management Plan Basic Page 152
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 complement of disaster preparedness
information as well as a comprehensive listing of disaster
preparedness information, including links to the National Hurricane
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.
10. Indian River County currently has 15 public shelters. Since all
shelters will not open at the same time, it is crucial for the public to
Indian River County Comprehensive Emergency Management Plan Basic Page 153
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.
11. 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).
12. While the entire County is subject to a host of hazards (outlined in
Section II -A and the Indian River County Local Mitigation Strategy),
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 affect 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.
13. 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 154
V11. 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. Copies of the following local
references, authorities and mutual aid agreements can be found on file in a binder
entitled Compendium of Authorities and References located in the Indian River
County Emergency Management office:
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 or 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.
An ordinance of Indian River County, Florida, forthe entry onto
private property during the time of a declared emergency for
the purpose of removing debris.
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 155
2. Resolutions
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. 2015-078
A resolution of Indian River County, Florida, adoption
approving the revised Unified Local Mitigation Strategy.
A resolution of Indian River County, Florida, delegating to the
County Administrator, and the Assistant County Administrator
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. RESOLUTION NO. 2015-044
A resolution of Indian River County, Florida, adopting the
Indian River County Hazardous Materials Emergency Plan.
g. RESOLUTION NO. 2013-091
A resolution of Indian River County, Florida, adopting a Post
Disaster Redevelopment plan for Indian River County.
h. A sample copy of a resolution for declaring a local State of
Indian River County Comprehensive Emergency Management Plan Basic Page 156
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.
C. Treasure Coast Hurricane Evacuation Study.
d. Critical Facilities Inventory.
e. Mobile Home Park Inventory.
f. Marina Inventory.
B. Specific plans/guides that supplement this CEMP that apply to unique
situations are as follows:
1. Indian River County Call -Down System User Guide — An automated
telephone message system.
2. Indian River County Damage Assessment Team Assignments
(Standard Operating Guide) - A guide to organize damage
assessment to reduce redundancy in efforts.
3. Indian River County Everbridge User's Guide — Mass notification
system guide.
4. United States Coast Guard — Area Contingency Plan
5. Central Florida Intelligence Exchange (Standard Operating
Procedures)
6. Indian River County Check-in/Security Procedures for EOC Activation
7. Indian River County Policies and Procedures for Capital Assets
8. Indian River County Logistics and Resource Management Plan
9. Indian River County Equipment Operation Guide
10. Indian River County Tsunami Warning and Evacuation Plan
11. Indian River County Disaster Feeding Plan
Indian River County Comprehensive Emergency Management Plan Basic Page 157
12. Ebola Virus Guidance for Indian River County Emergency
Management/Fire Rescue
13. Mass Immigration - Indian River County Caribbean Refugee Plan
14. Airports - Vero Beach Regional Airport Certification Manual: Aircraft
and Airport Safety Plan, approved by the Federal Aviation
Administration on January 3, 1997.
15. Nuclear Power Plants - State of Florida Radiological Emergency
Management Plan
16. Ports/Marinas - Indian River County Comprehensive Plan
17. Emergency Notification - Emergency Alert System Plan (Operation
Area 10)
18. Military Support - Florida National Guard Operation Plan for Military
Support to Civil Authorities
19. Mitigation - Indian River County Wildfire Mitigation Plan
20. Special Needs - Special Needs Shelter Plan (Indian River County)
21. 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.
C . State
1. 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.
Indian River County Comprehensive Emergency Management Plan Basic Page 158
(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
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.
Indian River County Comprehensive Emergency Management Plan Basic Page 159
(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
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.
Indian River County Comprehensive Emergency Management Plan Basic Page 160
(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
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 III, Coastal
Indian River County Comprehensive Emergency Management Plan Basic Page 161
3
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.
ee. Chapter 870, Florida Statutes, Riots, Affrays, Riots, and
Unlawful Assemblies.
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.
Executive Orders
a. Executive Order 80-29 (Disaster Preparedness) dated April 14,
1980.
Indian River County Comprehensive Emergency Management Plan Basic Page 162
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.
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.
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.
Indian River County Comprehensive Emergency Management Plan Basic Page 163
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 701 n), 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.
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
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
Indian River County Comprehensive Emergency Management Plan Basic Page 164
(NIMCAST).
2. Regulations
a. 2 C.F.R. Part 200 "The Super Circular" — The language from
existing Office of Management and Budget (OMB) circulars
into one consolidated set of guidance (A-89, A-102, A-110, A-
21, A-87, A-122, A-133).
b. 44 CFR Parts 59-76, National Flood Insurance Program and
related programs.
C. 44 CFR Part 13 (The Common Rule), Uniform Administrative
Requirements for Grants and Cooperative Agreements.
d. 44 CFR Part 206, Federal Disaster Assistance for Disasters
Declared after November 23, 1988.
e. 44 CFR Part 10, Environmental Considerations.
f. 44 CFR Part 14, Audits of State and Local Governments.
9- 44 CFR 350 of the Code of Federal Regulations.
h. 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.
d. Executive Order 11990, Protection of Wetlands.
e. Executive Order 12657, Federal Emergency Management
Assistance in Emergency Planning at Commercial Nuclear
Power Plants.
Indian River County Comprehensive Emergency Management Plan Basic Page 165
Executive Order 12656, Assignment of Emergency
Preparedness Responsibilities.
9. 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. Robert T. Stafford Disaster Relief and Emergency Assistance
Act, Public Law 93-288, as amended; April 2013.
b. National Response Framework, updated in 2013, provides
context for how the whole community works together and how
response efforts relate to other parts of national preparedness.
C. Nuclear Regulation (NUREG) 0654/FEMA-REP-1, which
provides federal guidance for development and review of
Radiological Emergency Management Plans for Nuclear Power
Plants.
d. FEMA Map Modernization Program - Indian River County,
Florida and Incorporated Areas (FEMA - 2011)
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.
b. Memorandum of Understanding between Indian River County
and the Florida Department of Financial Services, Division of
Indian River County Comprehensive Emergency Management Plan Basic Page 166
State Fire Marshal for expenditure of local government unit
funding for Florida Type 11 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.
9. 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
Management Agency, the State of Florida, and the City of
Miami for Urban Search and Rescue, October 5, 1993.
Indian River County Comprehensive Emergency Management Plan Basic Page 167
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.
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
Metropolitan Assistance and Recovery Teams and the Florida
Division of Emergency Management, February 14, 1997.
U. Interstate Agreement during a Hurricane Threat or Other
Events-FDEM and Georgia Emergency Management Agency.
Indian River County Comprehensive Emergency Management Plan Basic Page 168
FIGURE 11
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 169
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:
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.
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 foradoption 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
L3'1
Bob Solari, Chairman
Attest
Jeffrey K. Barton, Clerk
Indian River County Comprehensive Emergency Management Plan Basic Page 170