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Indian River County
Department of Emergency Services
MEmergencyW
4225 43rd Avenue
Vero Beach, FL 32967 �,_
00 (772) 567-2154
CO
www.irces.com
Table of Contents
Page
I. INTRODUCTION .................................................................................................. 1
II. PURPOSE............................................................................................................ 1
III. SCOPE................................................................................................................. 1
IV. APPLICABILITY................................................................................................... 1
V. AUTHORITY......................................................................................................... 2
V1. ASSUMPTIONS ................................................................................................... 2
VII. CONCEPT OF OPERATIONS ............................................................................. 3
A. General .......................................................................................................... 3
B. Evacuation ..................................................................................................... 3
C. Reentry .......................................................................................................... 6
D. Curfews and Alcohol Bans............................................................................. 7
E. Regional Evacuation ...................................................................................... 7
F. Timeline.......................................................................................................... 8
ATTACHMENTS:
1. Identification Badge Samples..................................................................................... 9
2. Sample of an Emergency Order Declaring a Curfew ............................................... 10
i
ANNEX VI: EVACUATION AND REENTRY PLAN
I. INTRODUCTION
While the southeastern region of Florida is one of the most hurricane
vulnerable areas of the United States, it is not the only disaster condition
which may trigger an evacuation. Events such as wildfires, hazardous
materials incidents or radiological incidents may also prompt an evacuation
of residents within Indian River County.
When a disaster event displaces residents from their homes due to an
evacuation, a community must also be prepared for an orderly reentry of
those residents.
II. PURPOSE
The purpose of this plan is to provide direction into the procedures necessary
to ensure a safe and orderly evacuation and reentry into areas impacted by a
disaster event.
III. SCOPE
The provisions of this plan are county-wide and are applicable for all
hazards. This plan is a functional annex to the Indian River County CEMP
and provides a specific set of guidelines to reduce the vulnerability of the
people and property of Indian River County.
IV. APPLICABILITY
In addition to this plan, any assigned law enforcement agency (Sheriff's
Office, municipal police departments, Florida Highway Patrol)will be guided
by their individual emergency plans.
Indian River County Comprehensive Emergency Management Plan Annex V- Page 1
V. AUTHORITY
Chapter 252, Florida Statutes provides the Indian River County Board of
County Commissioners (BCC) with certain authorities with regard to
emergency management. One aspect of such authority is the power to
declare a "State of Local Emergency." In recognition of the necessity for
cooperation and coordination with municipal governments within the County,
the BCC has chosen to delegate its powers under Chapter 252 in two
respects. First, the BCC has delegated certain powers to the Executive
Policy Group comprised of members of the BCC, the mayors of the
municipalities, the County Administrator, and the Director of Emergency
Management.
Second, direction and control of Indian River County emergency
management operations rests with the Director of Emergency Management,
or his designee, subject only to the direction of the BCC. In pursuit of his
disaster duties, the Director shall utilize all available resources of county
government as reasonably necessary to cope with the situation. This
authorization includes the authority to make immediate expenditures to cope
with the emergency.
The BCC and the five (5) municipalities have become signatories to the
Statewide Mutual Aid Agreement for Catastrophic Disaster Response and
Recovery. The BCC has also entered into reciprocal agreements with each
contiguous county for lesser mutual aid needs.
V1. ASSUMPTIONS
A. Indian River County is vulnerable to hurricanes and similar events
which threaten the life, health, and safety of residents and seasonal
vacationers; damage and destroy property; disrupt services, everyday
business, and recreational activities; and impede economic growth
and development. During major and catastrophic events, Indian River
County may require mutual aid assistance in providing critical services
outlined in this plan.
B. The Emergency Management Director, or his designee, is responsible
for directing county evacuation.
C. Reentry by the general public will be approved by the Emergency
Management Director, or his designee, and will be relayed to the
public through ESF #14 (Public Information).
D. Rainfall in excess of designed capacities could cause erosion of
constructed drainage facilities and flooding of many areas including
primary roadway evacuation routes, particularly State Road 60.
Indian River County Comprehensive Emergency Management Plan Annex V- Page 2
E. The number one response priority for reentry 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 reentry and they will consist of
representatives from law enforcement, fire, EMS, emergency
management, public works, utility providers, property appraisers,
building officials, American Red Cross, etc.
F. Local law enforcement agencies will have primary control over reentry
for their respective municipalities. However,there will be coordination
with ESF #16 (Law Enforcement) in the EOC.
VII. CONCEPT OF OPERATIONS
A. General
Most emergencies are handled by divisions within the Department of
Emergency Services or one of the local law enforcement agencies.
When a larger scale emergency occurs, many of the services they
provide take on a greater significance and may require mutual aid
assistance. When local first response resources can not meet the
need, coordination for the emergency is done at the County EOC.
B. Evacuation
The Emergency Management Director, or his designee, is responsible
for directing county evacuation. For hurricane conditions requiring the
issuance of an evacuation order, residents of the barrier island,
manufactured home communities, low-lying areas and sub-standard
housing will be issued mandatory evacuation orders.
During a hurricane or severe weather event, a large number of
vehicles have to be moved across a road network in a relatively short
period of time. The number of vehicles and evacuees becomes
particularly significant when viewed as a regional evacuation rather
than just an Indian River County evacuation. The magnitude of
evacuating vehicles varies depending upon the intensity of the
hurricane, presence of seasonal residents, and certain behavioral
response characteristics of the vulnerable population.
The vulnerable population is comprised mostly of those persons living
in areas subject to storm surge, as well as the residents of modular
homes located elsewhere in the County. Due to their greater
vulnerability to the strong winds associated with hurricanes, modular
home residents will receive evacuation orders with all categories of
Indian River County Comprehensive Emergency Management Plan Annex V- Page 3
hurricanes. The wide spread wind destruction from Hurricane Andrew
has us encouraging residents of other modest or weak structures to
seek safer shelters too.
The overall goal of this plan is to define the evacuation road network
and general traffic control issues that would affect traffic flow along
critical roadway segments and provide evacuees the necessary
clearance times from evacuation areas.
Clearance time is the time required to clear the roadway of all vehicles
evacuating in response to a hurricane or other severe weather events.
Clearance time begins when the first evacuating vehicle enters the
road network and ends when the last evacuating vehicle reaches an
assumed point of safety. Clearance time includes the time required
by evacuees to secure their homes and prepare to leave, the time
spent by evacuees traveling along the road network, and time lost due
to traffic congestion. Clearance time does not relate to the time any
one vehicle spends traveling on the road network.
The Florida Statewide Regional Evacuation Study Program (2010)
illustrates clearance times for Indian River County. In-County
Clearance Time is defined as the time required from the point an
evacuation order is given until the last evacuee can either leave the
evacuation zone or arrive at safe shelter within the county. In-County
clearance times for Indian River County are expected to range from
12.5 hours to 27 hours.
A hurricane evacuation should be completed prior to the arrival of
sustained gale-force (34 knots or 39 mph)winds or the onset of storm
surge inundation, whichever occurs first. The clearance time is
measured in hours required prior to the arrival of gale-force winds.
Since each storm is unique in intensity, ground speed, and projected
track, the decision to announce an evacuation order remains
subjective and dependent upon information from the National
Hurricane Center, local conditions, and the expected time of landfall.
The announcement of an evacuation order has a profound social and
financial impact on the community; therefore an evacuation order will
most likely be given with just enough time to perform a safe
evacuation.
The movement of vehicles during an evacuation requires extensive
traffic control efforts to make maximum use of roadway capacity and
to expedite safe escape from hurricane hazards; this requires the
coordinated efforts of municipal, county, and state law enforcement
agencies. Some evacuees' destination is within the County, while
others may leave the area. Each of these scenarios is complicated as
Indian River County Comprehensive Emergency Management Plan Annex V- Page 4
a result of nearby county evacuees attempting to do the same.
Studies have also shown that the evacuation network can be hindered
by residents voluntarily evacuating their homes when it is not
necessary to do so. This action brings an additional number of
people on the roadways and ultimately causes long delays for
legitimate evacuees. Public education efforts will continue to impress
upon residents of non-evacuation areas to shelter in-place.
The overall direction of critical traffic control points will be coordinated
through the EOC at the ESF#16 (Law Enforcement) desk. ESF#16
representatives will poll the various agency liaisons routinely to
determine the status of critical intersections and the overall
effectiveness by the populace to heed the evacuation order.
The largest concentrations of evacuees are located on the barrier
island and in the mobile home parks along the SR 60 corridor.
Empirical studies conducted by the Regional Planning Council support
observations by local officials that those residents in high risk coastal
areas are more likely to evacuate earlier than those persons living in
west-of-town planned communities, which are closer to the shelters.
Additionally, the intensity and proximity of the storm has an impact on
how quickly threatened populations decide to relocate.
The more critical intersections in the evacuation network include:
• A1A and CR 510
• A1A and SR 60
• A1A and 17th Street
• Indian River Boulevard and Beachland Boulevard
• Indian River Boulevard and SR 60
• US1 and CR 512
• US1 and CR 510
• US1 and Indian River Boulevard
• US1 and SR 60
• 1-95 and CR 512
• 1-95 and SR 60
This is not to suggest that law enforcement officers should manually
override the traffic signaling system, but that these intersections
should be monitored. At the discretion of the assigned agency, in
concert with the ESF #16 staff, they have the authority to take
whatever actions are required to expedite vehicular movement.
Law enforcement field units should inform their ESF #16 contact at
the EOC if any of the above major road links are blocked with debris
or impassible from flooding waters. Field units should take action to
Indian River County Comprehensive Emergency Management Plan Annex V- Page 5
remove any minor debris in order to keep the road passable. If larger
debris is found, ESF #16 will contact the Road & Bridge staff to
dispatch the appropriate type of personnel and equipment.
When an evacuation order is disseminated from the EOC, evacuees
living on the barrier island may initially use the road network at their
discretion. Given information received from field units to the ESF#16
desk, as relates to the nearing of storm landfall, traffic will be routed
by zones to one of the three bridges. The three (3) zones include:
those residents north of the City of Vero Beach; those residents from
the north city limits of Vero Beach to the Riomar area; and, those
residents south of Riomar. The EOC will also give an order, based on
reports from field units, to close all eastbound traffic. When wind
speeds reach gale-force winds or primary evacuation routes are
inundated, the bridges will be closed to all non-emergency traffic and
will remain closed to civilian traffic until Search and Rescue (SAR)
teams have determined those areas safe.
C. Reentry
Immediately following an event, as soon as authorities deem it is safe
to do so, field teams will be tasked with evaluating the public
infrastructure, and a public works team will report on the structural
integrity of the bridges before an "All Clear" is given from the EOC for
the reentry of the general public.
Until the "All Clear" is issued by the EOC, only individuals with proper
credentials will be allowed to enter an impacted area. The recognized
credentials are as follows: uniformed personnel from public safety
agencies (law enforcement, fire and EMS); emergency management,
search and rescue, and county employees with county-issued
identifications badges. A sample of the county-issued identification
badges is attached to this plan and identified as Attachment#1. It is
the goal of the EOC to return the community to normalcy as soon as
safely possible. Every effort will be made to return residents to their
homes in a prompt manner.
Local law enforcement officers will be responsible for monitoring entry
into devastated areas and providing the EOC with information on road
conditions and status of impacted areas as well as information about
roadblocks and detours. They will also be primarily responsible for
establishing and staffing checkpoints for reentry into their respective
municipalities. At their discretion, law enforcement may reduce traffic
lanes to better manage these traffic points.
Indian River County Comprehensive Emergency Management Plan Annex V- Page 6
Roadblocks will be an important part of the reentry process.
Roadblocks are commonly used to seal entry points into devastated
areas for two main reasons. First, roadblocks are used to prevent
mass entry of the civilian population, which can clog rescue routes for
people in the impacted areas who are in need of rescue and medical
attention. Second, roadblocks are an efficient way of preventing
looting and other acts of lawlessness. At their discretion, law
enforcement will set up roadblocks where they are deemed
necessary.
D. Curfews and Alcohol Bans
In the name of safety, the sheriff, at the recommendation of the Board
of County Commissioners, may impose a curfew and/or alcohol ban
for the safety of our citizens and the safety of our law enforcement
officers. Curfews and/or alcohol bans may be issued before, during
and after a hurricane event. The curfew before the hurricane is to
remind people to finalize their preparations and go home. After a
hurricane, there may be no traffic lights, there may be debris in the
road ways, roads may be washed out and driving conditions may be
dangerous. Law enforcement officials will follow curfew procedures
as laid out in their own emergency plans. Curfews will remain in place
until assessments are complete and emergency officials feel it is safe
for the public to travel during the day. In most cases, curfews will
remain during night-time hours until power is mostly restored. A
sample of an Emergency Order Declaring a Curfew is attached to this
plan and identified as Attachment #2.
E. Regional Evacuation
Immediately following a regional evacuation, the Indian River County
EOC will participate in all conference calls coordinated by the State
EOC to inform of which evacuated areas in the County are/are not
ready for reentry. The EOC will also provide information on the
condition and accessibility of designated evacuation routes, any
resources needed and the termination of reentry restrictions.
ESF #14 (Public Information) will be responsible for notifying the
media when reentry has begun and inform residents and businesses
about access points.
Indian River County Comprehensive Emergency Management Plan Annex V- Page 7
F. Timeline
A timeline/checklist for EOC activation can be found in Appendix D of
the Comprehensive Emergency Management Plan. The timeline is a
decision management tool, with specific actions assigned to each
phase of the event. The action checklist is intended to meet specific
objectives within a reasonable time period. The actions taken during
each phase lay the foundation for the next set of actions in the
following phase. The timeline also reduces the possibility of failing to
implement an action, which would then result in delay or hindrance of
a subsequent action later in an emergency.
Indian River County Comprehensive Emergency Management Plan Annex V- Page 8
Attachment#1
Indian e County
Employee e l at Badge Sample
Indian River COL111ty'
,ons' Doe
Sainple ID Card
Indian iCounty
Fire Rescue Employee Identification Badge Sample
r
Indian River County Comprehensive Emergency Management Plan Annex V- Page 9
Attachment#2
Sample of an Emergency Order Declaring a Curfew
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10.00 INDIAN RIVER COUNTY EMERGENCY ORDER 2004-02
WHEREAS, EXECUTIVE ORDER NUMBER 44-192(Emergency Management)
was issued by.lett Bush,the Governor of the State of Florida on September 1,2004 that
declared that Hurricane Frances, alone and in combination with the destnaction by
Hurricane Charley,thraatens the State of Florida with a catastrophic disaster;and
WHEREAS, EXECUTIVE ORDER NUMBER 04-192 (Emergency Management)
declared that a state of emergency exists in the State of Florida for sixty(60)days from
September 1,2004,unless extended;and
WHEREAS, EXECUTIVE ORDER NUMBER fD4-206 (Emergency Management)
dated September 10,2004.extended the state of emergency that exists in the State of
Florida for sixty(60)days from September 10, 2004,that is, until November 10.2004;
unless further extended;and
WHEREAS,Section 8 of each of the aforementioned EXECUTIVE ORDERS found
that the special duties and responsibilities resting upon some state, regional and local
agencies and other governmentai bodies in responding to the disaster may require them to
deviate from the statules, rules;ordinances, and orders they administer;and therefore
gave such agencies and other governmental bod"tes the authority to take formai action by
emergency rule or order in accordance with Sections 120.84(4)and 252.46(2), Florida
Statutes,to the extent that such actions are needed to cope with this emergency;and
WHEREAS, by operation of law, the aforementioned EXECUTIVE ORDERS,
Florida Statutes sections 252.36, 252.88, and 252.46, and Indian River county
Resolutions 2004_ 95 and 2004 – 096, the Indian River County Board of County
Commissioners sifting as the Board of Commissioners of the Emergency Services District
of Indian River County has the authority to issue orders and rales during the period of the
declared emergency,and has delegated the ability to issue Emergency Orders for Indian
River County to the County Administrator;
NOW,THEREFORE this Emergency Order is issued declaring that Me 12 midnight
to 6:00A.M,curfew that was previously declared to be in effect for Indian River County will
be continued until Monday September 20,2004 at Ili=A.M.and will expire at that time,
unless further extended by subsequent Emergency Order.
DONE AND ORDERED this 13r'day of September.2004.
idV
A.BairdSTATE OF F!ORiOA River County Administrator
and Indian River County Emergency
INDIAN RIVER COUNTY
THIS IS TO CERTIFY THAT THIS ISA Se vices District Director
TRUE AND CORRECT COPY OF THE
ORIO PBA!'ON Fft JiN THISt7FF10E
[fA+, r,a' af.K.BART "ID, RK.
D TYPP
DATE .' ,. c
Indian River County Comprehensive Emergency Management Plan Annex V- Page 10