Effingham County Hurricane Preparedness & Response sop table of contents

The Effingham Emergency Management Agency (CEMA) is committed to reducing the vulnerability of our county to hurricanes. This Hurricane Preparedness & Response Standard Operating Procedure (SOP) has been developed to ensure a well-coordinated and effective response to hurricane strikes that may require the use of evacuation and re-entry procedures. It has been updated with the help of the 2003 Georgia Hurricane Planning Guide.

A printed copy of this SOP will be distributed to all departments and agencies with primary response roles. To obtain additional copies or to submit comments or corrections, please contact the CEMA office.

DEFINITIONS

USEFUL LINKS

American Red Cross http://www.redcross.net

Effingham County http://www.effinghamcounty.org

Federal Emergency Management Agency http://www.fema.gov

Georgia Emergency Management Agency http://www.gema.state.ga.us

National Hurricane Center http://www.nhc.noaa.gov

National Weather Service http://www.nws.noaa.gov

I. BASIC PLAN

A) Introduction

Hurricanes pose a specific threat to Effingham County. As a secondary coastal county, we are at lesser risk than inland counties for bearing the impact of Atlantic tropical storms and hurricanes, especially the collateral effects of high winds, storm surge and major flooding.

Effingham County enjoys continued growth in population and tourism; however, this growth also poses a challenge for emergency response agencies. Public awareness efforts are continually on-going to educate and motivate people to prepare for the threat of hurricanes.

The Effingham County Hurricane Preparedness & Response SOP addresses the unique actions required to deal with a hurricane threat or actual incident. Evacuation and sheltering of the County’s population requires a large degree of coordination between local, state and federal agencies prior to the storm’s landfall. Predicting the exact path and strength of a hurricane is difficult; therefore, actions may be taken for an event but not a disaster.

B) Purpose

Specifically, the objectives of this plan are to:

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  Mitigate the effects of tropical storms through planning and preparedness.
  
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  Alert local officials and the general public in a timely, efficient manner.
  
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  Protect and save lives.
  
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  Coordinate response activities of local officials.
  
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  Provide for orderly evacuation of threatened areas.
  
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  Prevent or minimize damage to property.
  
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  Coordinate activities with coastal county officials and others involved in hurricane response.
  
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  Coordinate the return of evacuees to their homes.
  
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  Provide for the rapid recovery of the stricken area.
  

This SOP is intended to provide guidelines for preparedness, response, and recovery activities relative to a hurricane emergency (potential or actual) in County. It is designed for use by local government departments as well as for public and private agencies that support the Emergency Support Functions (ESFs) of the Local Emergency Operations Plan (LEOP).

This document, developed under the guidance of the Georgia Emergency Management Agency (GEMA), supports the Georgia Emergency Operations Plan (GEOP) and the Georgia Hurricane Planning Guide (GHPG).

D) Coordination of Resources

City and County governments will utilize all available resources to meet the existing emergency. The County Commission Chairman and Mayors of the Cities of Rincon, Springfield and Guyton have the authority to solicit equipment or manpower within the scope of affected local governmental jurisdictions to meet such emergencies. Written mutual aid agreements are established throughout the County to ensure the availability of resources. If local resources are determined to be inadequate, state and/or federal agency assistance may be requested.

II. ACTION PHASES

Preparedness and response activities will be framed within five Hurricane Action Phases. The Preparedness Phase is the beginning of hurricane season (June 1) and the subsequent phases are based on an increased threat due to the actual landfall of a storm. The actions of government departments and other agencies are included in Appendix A of this SOP.

A) Preparedness Phase – Normal Operating Conditions (former OPCON 5)

The Preparedness phase involves activities carried out in advance of a hurricane. These activities develop operational capabilities and improve effective response to tropical events. Severe weather plans are updated and exercised, resource inventories are maintained (personnel, vehicles, equipment, supplies), and planning activities are carried out. This phase automatically goes into effect during hurricane season (June 1 through November 30).

B) Monitoring Phase – Potential Threat Sighted (former OPCON 4)

When a tropical threat has been sighted, local officials take immediate action to increase readiness. This phase begins 72 to 48 hours ahead of potential landfall. The EMA advises staff of the situation, monitors the progress of the threat, and assesses vulnerability and decision times. Departments/agencies review plans, alert key personnel, and maintain communication with the EMA.

C) Watch & Warning Phase – Take Action to Save Life & Property (former OPCONS 2 & 3)

This phase corresponds with the issuance of a hurricane “watch” (and “warning”) by the National Weather Service, about 48 to 24 hours ahead of potential landfall. The EMA may activate the Emergency Operations Center (EOC) to coordinate resources of public and private organizations. Local and state agencies work together to make decisions regarding evacuation timing and routing, the positioning of resources, and the release of emergency instructions to the public.

D) Evacuation Phase – Initiate Evacuation of County (former OPCONS 1 & 2)

When the decision has been made by local and state authorities to evacuate, the Evacuation Phase goes into effect. Warning systems are activated, resources are mobilized, and the media provides the public with evacuation route and shelter information. This phase must conclude before the arrival of tropical storm force winds.

E) Re-Entry Phase – Begin Re-admittance Process

This phase begins immediately following the termination of a regional evacuation. Public information concerning re-entry will be disseminated immediately. Re-entry will begin in accordance with the Georgia Re-Entry Protocols.
Table: Hurricane Action Phases

A) Responsibility

In accordance with ESF 2 of the LEOP, Communications and Warning are the primary responsibility of the 911 Telecommunications Center. The Rincon Police, Springfield Police and the Sheriff’s Department will provide secondary support to this function.

B) Mitigation/Preparedness

The 911 Center and EMA will ensure that primary and alternate communication and warning systems are operational at all times.

C) Response/Recovery

The 911 Center is responsible for the receipt and relay of warning messages. Messages are recorded and the information is relayed to appropriate individuals by radio or telephone.

Tropical cyclone information is received via National Oceanic and Atmospheric Administration (NOAA) Weather Radio, GEMA fax, and/or GEMA State Radio Network (45.56 MHz).

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  The National Hurricane Center (NHC) in Coral Gables, FL, gathers and interprets information about Atlantic tropical weather disturbances from many different sources. If a disturbance intensifies to tropical storm strength and appears to be headed toward land, the NHC will begin to issue public and marine advisories. Occasional bulletins may also be issued to further amplify routine information provided by the advisories. As the storm reaches hurricane strength and is headed toward the U.S. coastline, a hurricane watch may be issued from the NHC. Once the area of hurricane landfall is more positively identified and the storm is expected to come ashore in 24 hours or less, a hurricane warning is issued. Areas of the coast for which such a warning has been issued may expect dangerous hurricane winds or storm surge to strike. As the storm comes very close to shore, the National Weather Service (NWS) office in Jacksonville, Florida may issue local storm statements designed to provide specific information about the anticipated effects of the storm for Camden and surrounding counties.
  
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  A hurricane’s strength, or intensity, is ranked on a scale of 1 to 5, a system known as the Saffir-Simpson Scale. Categories are determined by barometric pressure (in inches) in the center of the hurricane, wind speed, storm surge, and extent of damage. See scale in Appendix B.
  

When activated by local government officials, emergency alert notification will be carried out via radio communication according to the LEOP. If necessary, commercial telephone will be used to augment radio alerts as instructed by the EMA Director. An alert roster will be maintained by the EMA office.

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  Official messages are re-broadcast over the Sheriff’s frequency, the Rincon Police frequency, Sprinfield Police frequency and the Fire Rescue frequency. Emergency Management Agency (EMA) can also communicate on these frequencies.
  
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  County departments communicate via the County Public Works radio network (153.875 MHz). All departments are equipped with radios including the EMA. Mobile radio units as well as walkie-talkies facilitate the basic system.
  
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  Georgia Forestry Commission has a radio unit on the County network.
  

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  The Board of Education, which maintains a separate network, can be reached by the EMA.
  

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  City Public Works departments maintain communication via a City Public Works radio network.
  
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  Intergovernmental communication between City and County departments is achieved through City & County police networks and City & County fire department networks.
  
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  Communication with inland County EMA offices is achieved through the EMA radio network or by telephone.
  

Interagency communication will continue to operate via normal radio channels until the Watch & Warning Phase takes effect. At that point, the Emergency Operations Center (EOC) will be fully manned with representatives of each response group. The EOC will become the central communication base for all groups as set forth in the local EOP.

Groups in the County requiring special notification of impending danger are listed below:

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  Retirement / nursing homes
  

V. PUBLIC INFORMATION

A) Responsibility

The Public Information Officer (PIO) develops, prepares and coordinates distribution of news releases, public information, publications and interviews regarding relevant emergency management issues to enhance public awareness and understanding. 

The EMA Director will designate a PIO to act as chief spokesperson.

B) Mitigation/Preparedness

Disaster awareness activities will occur year-round and include newspaper articles, radio public service announcements (PSA’s), and group presentations.

NOAA weather radios and special preparedness information will be provided to at-risk segments of the general population such as groups with special medical needs, buildings with large concentrations of people, and vulnerable coastal areas. Distribution will include:

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  Senior citizen centers, retirement/nursing homes
  
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  Schools, day-care centers, churches
  
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  Large industries, shopping centers
  

Public information will be vital to effective evacuation and re-entry operations.

Warnings and emergency information to the public will be disseminated through the news media (radio, television, and newspapers), National Weather Service (NWS) bulletins, advisories and statements, and the Georgia Emergency Management Agency (GEMA). The designated area for local media briefings and/or press conferences is the EMA Planning Room. Emergency statements will be made near regular news broadcast times to reach the greatest number of listeners.

Upon announcement of an evacuation recommendation or order, the EMA Director or PIO will notify the appropriate radio and television stations. Topics will include:

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  Status of the storm, evacuation recommendation or order
  
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  Identification of areas or zones to be evacuated
  
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  Instructions to residents (e.g. stay in home, be available to help with evacuees)
  
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  Information to local residents about shelters
  
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  Evacuation routes to inland counties
  
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  Location of reception centers and designated shelters in inland counties.
  
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  Information for evacuees in shelters
  
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  Location of roadblocks, closed roads, and other appropriate traffic information
  

After an evacuation, re-entry instructions and information will be broadcast to evacuees as quickly as possible. The PIO will coordinate closely with the State Operations Center to issue joint press releases about when it is safe for residents to return to the area. Joint press releases may be needed after a mass evacuation when there is no reported damage because of return traffic management issues. Some Public Information issues are:

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  Protective actions to be taken by families and individuals
  
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  General status, including restrictions, in the affected area
  
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  Damage assessment estimates (if any)
  
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  Public utility conditions
  
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  Actions by local, state and federal agencies
  
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  Statements from elected officials
  
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  Shelter and recovery site locations
  
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  Security issues
  
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  Rumor control
  

A) Responsibility

The decision to evacuate part or all of the population from a threatened or stricken area rests with the Chairman of the Effingham County Commission and the Mayors.

The Sheriff’s Department and the Police Depts with support from Effingham EMA, will assist with evacuation of people in storm surge zones during the threat of a hurricane.

B) Mitigation/Preparedness

Evacuation routes will be pre-determined and made readily available to the public.

The Georgia Emergency Management Act provides the authority to the County Commission or elected authority to order evacuation when deemed necessary to save lives. The EMA will make recommendations to elected officials based on information gathered from all available sources, including HURREVAC software, the National Weather Service and the National Hurricane Center.

If deemed necessary, or after the Governor has declared a “state of emergency”, the appropriate local official can direct and compel the evacuation of all or part of the population from any stricken disaster area within the County.

C) Response/Recovery

Elected officials weigh a number of factors in deciding whether evacuation is necessary for Camden County. They also consider recommendations from the EMA Director about protective actions.

To support such decisions, the EMA uses the latest technology while also discussing the situation with various federal, state and local agencies. Recommendations and decisions are made as a joint process with consensus being the goal.

An important tool in the decision-making process is a computer software program called HURREVAC that graphically monitors the track of the storm based upon the input of the official forecast advisories from the National Hurricane Center (NHC). Unlike public web sites, HURREVAC is only available to government emergency management officials.

The EMA will participate in calls with GEMA, local NWS offices, and border counties.

Evacuation procedures will be organized to move people in a timely and orderly fashion. Residents will depart in phases according to their evacuation zone and along pre-designated travel routes (see maps in Appendices C and E).

Zone 1: This high risk zone includes the Barrier Islands and areas generally 1 to 10 feet above mean sea level, and other locations that are adjacent to low-lying areas vulnerable to being quickly isolated by rising waters.

Zone 2: Areas that are 10 to 20 feet above mean sea level.

Zone 3: Areas that are more than 20 feet above mean sea level. These generally include the remaining low-lying areas east of I-95 and some areas west of I-95.

The basic evacuation phases are:

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  Voluntary-Partial – Residents of Zone 1, people with severe special needs, and people living in manufactured housing are encouraged to leave.
  
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  Voluntary-Full – Entire County (all zones) encouraged to leave with continued emphasis on above residents.
  
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  Mandatory-Partial – Authorities compel residents of Zone 1 to leave.
  
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  Mandatory-Full – Authorities compel all residents of Zones 1-3 to depart before onset of gale force winds.
  

Law enforcement personnel will monitor and control traffic along evacuation routes and provide security to shelters.

VI. MASS CARE AND SHELTER SERVICES

A) Responsibility

The Effingham County Department of Family and Children Services (DFCS) has the primary responsibility of emergency mass care and sheltering. The American Red Cross will act in partnership with DFCS.

B) Mitigation/Preparedness

DFCS will maintain an emergency shelter directory with the State of Georgia. Additional shelters must be evaluated and approved by the Red Cross before they can be included in the directory.

C) Response/Recovery

Depending on the severity of the storm and the expected effects of storm surge, residents will be instructed to report to either local shelters or those located in inland counties.

The American Red Cross will open and operate shelters with the support of DFCS and the County Health Department. The EMA will establish a communication link with the shelters by assigning an ARES operator to each one.

VII. RE-ENTRY PHASES

Re-entry procedures will be carried out in accordance with State protocols.

A) Phase I – State and Local Authorized Re-Entry

a. Response Level 1 (State Response)

During this stage, only critical work force personnel will be allowed back into the impacted communities to assess damages and begin repairs. Critical work force agencies consist of Georgia Department of Transportation (DOT), Georgia State Patrol (GSP), GEMA, Georgia Power, and other agencies as requested.

This stage is restricted to local government staff, law enforcement, utility workers, and emergency personnel. County work crews will be allowed to return and begin the repair process. As roads, highways, and bridges are cleared and declared safe for use, additional agencies and personnel will be allowed to return. (See Section G: Clean-Up and Recovery)

It is the joint responsibility of the County Commission Chairman, the Mayors, and the EMA Director to determine when public re-entry will begin.

The safety of the public is a prime consideration at all times during the re-entry process. After local officials secure the impacted areas and deem them safe for access, anyone with evidence of business ownership or residency in the evacuated areas will be allowed re-entry.

C) Phase III – Normal Operations

Normal operations are restored.

D) Re-Entry Requirements

Re-entry requires that everyone has some form of picture identification, classifying them clearly as an employee with critical response functions. Some employees may have an EMA-issued re-entry card for their vehicle. Families may not return with individuals in possession of re-entry cards.

VIII. CLEAN-UP AND RECOVERY