PURPOSE

At the September 13^th, 2005 City Council meeting, Council Member Dave Golonski requested that staff report on the status of the City�s level of disaster readiness. Staff has prepared a presentation for delivery at a City Council Study Session. This information accompanies staff�s oral presentation.

BACKGROUND

Hurricanes Katrina and Rita have wreaked widespread devastation and record amounts of damage on the Gulf States region.  The human, infrastructure, and economic impacts have been huge and recovery efforts will continue for years to come. Due to the extensive and graphic media coverage of the destruction, these storms have heightened citizen awareness of the importance of disaster preparedness. It has also caused them to question the level and adequacy of disaster readiness at all levels of government.  The management of emergencies and their aftermath can have far reaching consequences for individuals and communities.  While the planning for emergencies can, and does, vary based upon the nature of the threats faced by a community, the concepts are identical: preparedness, response, recovery and mitigation. 

The City of Burbank�s Emergency Plan defines responsibilities for each part of our organization in preparing for and dealing with disasters.  In recent years, events such as storms, fires and the transportation incidents have occurred.  Each incident varied in scope and detail, but each was successfully managed because departments of the city knew their functional responsibility and were able to perform as required by the nature of the emergency.

In the past several years, we have made significant strides in upgrading our ability to manage emergencies whether natural or as the result of terrorism.  We have dramatically enhanced our Emergency Operations Center equipment and information systems capability and will continue to do so with the assistance of a Homeland Security grant. We are continuing to upgrade vital communications systems that will allow better coordination within the city and with other agencies that could provide support.  We have also been training and equipping our safety personnel to respond to terrorist incidents.  We are adding equipment such as hazardous materials and urban search and rescue apparatus and tools to allow us to respond to major chemical spills or building collapses. Both fire and police are constantly working on relationships with other agencies that might be required in an emergency. 

We also have enacted mitigation measures that will help reduce the impact of potential threats.  A further tightening of the city�s wood roof requirements in the high fire hazard urban interface zones has been implemented, as has a proposal to expand the required brush abatement requirement from its present 100 feet to 200 feet.  It is measures such as these that help lessen the potential impact of brush fires.

DISCUSSION

This report is comprised of three main sections; 1) an objective survey of our five comparison cities (Glendale, Pasadena, Torrance, Inglewood, and Santa Monica) on various capabilities and issues relating to disaster preparedness; and 2) a more subjective, detailed assessment of the City of Burbank�s disaster preparedness resources; and 3) a section on recommendations for enhancing our present readiness posture.

FIVE CITY COMPARISON

The information below was compiled after surveying five cities frequently used as comparable cites. The cities were polled on various elements of disaster readiness. The specific area assessed and the results of that poling are listed below. The format presented first lists a descriptive paragraph of the preparedness/readiness dimension followed by the actual results, in tabular format, of the polling.

Element Description: Multi-Hazard Functional Plan (MHFP): The MHFP addresses the City planned response to disasters, both natural and man made, technological incidents, and terrorism events. It provides an overview of operational concepts, identifies components of the City�s emergency management organization, and lists responsibilities for each department.

Element Description: Disaster Mitigation Act of 2000 Plan (DMA 2000): The DMA 2000 plan identifies and evaluates specific strategies to be considered by the City of Burbank and its agencies. It offers a city-wide document as well as a planning support tool for those strategies developed by the City and its community partners. The plan is based on the City of Burbank Hazard Vulnerability Analysis that considers natural, technical, and human � caused risks to which the city is vulnerable.

Element Description: Emergency Food and Water: Emergency Food and Water refers to consumable stores that are kept in reserve to be utilized in time of disaster. A minimum supply of 72 hours/per person is needed, though the Fire Department is advocating citizens to have 5-7 days of reserve on hand. Even though most of these commodities are �shelf-stabilized�, they do have a finite shelf life after which, the items should be discarded.  This table reflects the availability of emergency food and water that is purchased and maintained by the city and intended for consumption by citizens and/or City staff.

Element Description: Departmental Operations Center: A Departmental Operations Center (DOC) is a fixed, defined and operational location from which the field activities of a department can be directed. The DOC is the interface between the field response elements and overall management located at the Emergency Operations Center EOC).

Element Description: Back Up Power Capability: The back up power table refers to fixed (e.g. hard � wired), emergency power generation capability for the functions listed within the table. It should be noted that an important element to any back up power system is a plan for regular testing and maintenance.   

NOTES:

1.        Pasadena City Hall is currently in leased space while their building is undergoing seismic upgrades

2.        Police HQ: Yes, Fire HQ: No

3.        Recreation Centers not used as sheltering sites in Santa Monica

4.        Torrance Recreations Centers are pre-wired for portable generators

Element Description: Community Emergency Response Team (CERT): The CERT training program prepares citizens and communities to take a more active role in emergency preparedness.  Citizens learn how to provide for their family and neighbors in emergency situations whether caused by earthquake, terrorism, technological disasters or severe weather. This table compares cities using the 24 hour �credentialed� FEMA- based CERT program as a basis.  Some cities offer other types of training.

Element Description: Disaster Preparedness Education:  This table refers to training and education programs for citizens, schools, business community and/or special segments of the community, such as homeowners groups or seniors. Examples of training topics include earthquake preparedness, terrorism awareness and topics of current interest.

Element Description: Utilization of Disaster Volunteers: This table refers to utilization and integration of pre-trained and pre-registered disaster volunteers into the fabric of emergency services. Volunteers can function as a tremendous resource to the community when their level of training allows their integration into the city�s disaster plan.  Volunteers free up valuable emergency response resources by augmenting logistical support in areas as diverse as communications operations, EOC set-up, rehabilitation support, Arson watch patrols, and neighborhood emergency response.  While some communities have volunteers, few have volunteers entrusted with the breadth and scope of responsibility that Burbank�s program enjoys.

Budgeted Staffing:  This table refers to the budgeted person years of the city�s Disaster Services staff.  Staffing can be achieved in a variety of ways including leveraging the hours of existing City staff.

Zone Warden Program: The Zone Warden program consists of specially trained city staff whose mission is to ensure the immediate safety of their colleagues following an emergency or disaster.  Zone Wardens receive first aid and fire extinguisher training and, in conjunction with the Fire Department and Safety Division, conduct regular evacuation drills of the work place.

HIGHLIGHTS OF BURBANK�S DISASTER PROGRAM

As with any survey, there are numerous items that don�t fit neatly into the survey results. The following items outline a variety of programs and services that contribute to the City�s overall level of preparedness.

City of Burbank Disaster Council: By authority of Municipal Code, this group exists �to develop and recommend for adoption by the City Council emergency and mutual aid plans and agreements and such ordinances and resolutions and rules and regulations as are necessary to implement such plans and agreements.� (Sec. 10‑104 Disaster Council Powers and Duties). Members of the Disaster Council include City representatives, the Burbank Unified School District, St. Josephs Hospital, CA National Guard Armory, Gas Company, Chamber of Commerce, Bob Hope Airport and all three major studios.

Disaster Net (DNET) Communications System: The Burbank Fire Department established D Net to provide major community partners, Disaster Council members, and area stakeholders within the city, a direct means to communicate in the event of a real or threatened disaster.

City Owned AM Radio Station: Burbank AM (BAM) radio provides very unique opportunities to reach our constituency in time of disaster. Since all that is needed to receive BAM 1620 (located at 1620 AM), is a battery operated AM radio, this medium can still reach our populace following a disaster or widespread power outage.  Note: BAM is a secondary source of emergency information and when utilized, it will be updated by the PIO as soon as practical.

Public Information: The City�s Public Information Office produces numerous shows, printed literature, and electronic medium that convey disaster preparedness messages throughout the community.

Volunteer Utilization: The City of Burbank has very effectively integrated volunteers in our disaster planning and response process. Over 300 volunteers are used to assist in public education, staffing of the Fire Department rehabilitation unit (canteen), and EOC support team. They also provide logistical support both in the EOC and the field in terms of feeding, communications, and personnel. This is in addition to the force multiplier effect they have as immediate responders in the community following a large disaster.

Mutual Aid: Like almost all California jurisdictions, the City of Burbank is a member of a very robust, statewide, mutual aid system that ensures an unequalled stream of safety resources. Similar to mutual aid, our participation in the Verdugo system allows access to the resources of 43 fire stations on an automatic aid basis.

�Red Card� Training: Through an agreement with the United States Forestry Service, the City of Burbank is able to provide select, qualified personnel to fill temporary positions within the United States Forest Service (USFS) as key members of overhead management teams or fire crews. In filling these temporary assignments, City staff gains valuable knowledge and training in managing  �all risk� incidents.

State-of-the-Art Emergency Operations Center: The City of Burbank utilizes a recently upgraded, state of the art EOC complete with emergency power, communications, audio-visual, and information management systems. In the event the primary EOC is untenable, there are two other designated EOC�s though neither is as robust as the primary facility.

Magnolia Power Plant: The new Magnolia Power Plant provides the city with substantial power generation capability and a greatly increased chance of sustained power for the community following a region- wide disaster such as an earthquake.

Mitigation Measures: While not all disasters can be prevented, the effects of almost all disasters can be mitigated. Examples of mitigation activities include building codes, recently enhanced defensible and wood shake roof ordinances, and non-structural hazard mitigation.  In 2005, City Council adopted a Disaster Mitigation Plan that address various mitigation activities and needed resources needed.

Mobile Command Post: The City maintains a mobile command post that is used by both Police and Fire Departments. This vehicle provides a very capable platform for on scene incident management.

Employee Training: Disaster Preparedness for employees is coordinated through the Disaster Services office. The Citywide Zone Warden program provides for specially trained staff in each city facility. Additionally, all City staff can enroll in the �Are You Ready� course. The Management Services Department assists with class registration and first aid training.

Supply Caches: Disaster Services has pre-staged and outfitted two sea-land containers with a limited amount of supplies including blankets, search and rescue gear, and first aid equipment.

Departmental Disaster Coordinators: Departmental Disaster Coordinators (DDC�s) provide the invaluable link between the Disaster Services Office and the approximately 1500 full and part time staff. Each department manager assigns a DDC to attend regular planning meetings and who is assigned the overall responsibility of ensuring their department is ready for a disaster.

Enhancement Opportunities:

The analysis required for the report, coupled with the After Action Report process of previous incidents and EOC activations, allowed the Fire Department to identify numerous opportunities that could be enhanced. Specific, itemized recommendations, which could become the basis for corrective actions can be contained in future reports, if so desired. Below are potential readiness enhancement opportunities, listed in 5 broad categories.

Disaster Public Education: In terms of disaster preparedness, a well trained, prepared, and engaged citizenry should always be a goal of any emergency management program and the City of Burbank is no exception.  By its very nature, a disaster will initially overwhelm available city and, perhaps, regional resources. This situation will require residents to be on their own and take care of themselves for a period of time until local and regional assistance can be mobilized. As witnessed in recent events, disasters are particularly challenging to special needs populations.  There are many resources currently within the city that can be utilized to enhance our disaster public education efforts. Obviously, there can be direct and opportunity costs to this approach but our efforts to educate and prepare residents for the eventuality of a disaster ahead of time, will pay huge dividends in life, environmental, and property savings. 

Emergency Power: Many elements and processes critical to the City�s successful response to and recovery from a disaster are power dependent. A few examples of these processes include geographic information systems, database access, email, internet access, sheltering activities, and communications.  The formulation of an emergency power strategy that identifies critical needs and an effective method to supply those needs would enhance the City�s overall readiness.

Supplies: The storage of appropriate and adequate supplies is a time honored action in emergency preparedness. Maintaining sufficient quantities on hand before a disaster is vital so that the City can still function when the supply network is inoperable or operating at reduced capacity. We need to re-assess our daily inventory of working supplies with the goal of maintaining sufficient quantities of those items that would be needed by our departments following a disaster. To ensure the sustenance of our working crews, additional consumable supplies such as food and water will be needed if we are to meet the recommended 72 hour minimum requirement.

Communications: Reliable and effective communications are typically the biggest challenge following any disaster. Included within this category of communications are radio systems, information technology systems, critical data collection and coordination, and public information. Each of these elements of communications, need to be continuously assessed for their adequacy, effectiveness, sustainability, and potential for improvement. Each incident provides an opportunity to examine the successes and deficiencies of the various communications components and sets the stage for system enhancements.

Training: Supplies, equipment, and facilities can not be utilized to their maximum potential without proper training.  There is a new federal training standard that requires that virtually all city staff be trained in the National Incident Management System (NIMS). The type and quantity of training hours required are commensurate with individual�s increasing role and responsibility in a disaster.  While much of our disaster preparedness training is offered in-house by staff, there are many outside training opportunities.  One example is resident training offered by the California Office of Emergency Services.  We currently are able to send eight people per year to resident training. Increased training of staff and volunteers would provide a significant enhancement to Burbank�s ability to prepare for, respond to, and recover from a major disaster.

Planning: Proper contingency planning is the basic cornerstone of an effective emergency management program. Hurricane Katrina offered a glimpse into the criticality of effective disaster planning. Fortunately, much planning has already and continues to be accomplished in Burbank. For example, City Council adopted a Disaster Mitigation plan in February, 2005 and the City�s newly revised Multi-Hazard Functional plan will be ready in January, 2006.  Both of these plans are foundational documents that are intended to provide general guidance to our organization both pre and post disaster. However, in addition to these general documents, there exist specific plans that are developed to address unique issues such as terrorism, evacuation, recovery, and business continuity. All disaster plans, both general and specific, require continuous updating if they are to remain effective. Though the scope and quantity of required and necessary plans have increased over the decade, staff availability to attend to these plans has decreased.  An increased ability to manage the various planning elements of Burbank�s Emergency Management program would offer great enhancements to the City�s overall state of disaster readiness.

FISCAL IMPACT

This item is being presented for discussion and additional Council direction only.  There is no fiscal impact as a result of this agenda item.  The current budget, including staff, for the Disaster Preparedness Division is $291,522.  Any decisions made by Council as a result of this report will determine future fiscal impacts and potential costs.

RECOMMENDATION

Staff recommends that the Council initiate discussion on the status of the City�s disaster readiness and provide direction for future action.