1. EMERGENCY MANAGEMENT PROGRAM - ANNUAL UPDATE

PROGRAMME DE GESTION DES SITUATIONS D’URGENCE - MISE À JOUR ANNUELLE

Committee RecommendationS

That Council:

1. Receive this annual report on the Emergency Management Program (2008) – For information.

2. Adopt the Chemical, Biological, Radiological, Nuclear, Explosive (CBRNE) Response Plan as an appendix to the City’s Emergency Management Plan and amend By-law Number 2007-313, ‘Schedule B’ to include the Emergency Management Plan, Version 3.0 with the attached CBRNE Response Plan as an appendix.

RECOMMANDATIONS DU COMITÉ

Que le Conseil :

1. Prenne connaissance du présent rapport annuel sur le Programme de gestion des situations d’urgence (2008), à titre d’information.

2. Adopte le Plan d’intervention en cas d’incidents chimiques, biologiques, radiologiques, nucléaires et explosifs (CBRNE), en tant qu’appendice du Plan de gestion des situations d’urgence de la Ville et modifie le Règlement municipal 2007-313, Annexe B, de manière à intégrer le Plan de gestion des situations d’urgence, version 3.0, avec en appendice le Plan d’intervention CBRNE ci-joint.

Documentation

1. Deputy City Manager's report, City Operations dated 7 May 2009 (ACS2009-COS-EPS-0029).

2. Extract of Draft Minutes, 7 May 2009.

Report to/Rapport au:

Community and Protective Services Committee

Comité des services communautaires et de protection

and Council / et au Conseil

7 May 2009/7 mai 2009

Submitted by/Soumis par: Steve Kanellakos, Deputy City Manager/

Directeur municipal adjoint,

City Operations/Opérations municipales

Contact Person/Personne ressource: John Ash, Manager

Office of Emergency Management/Bureau des mesures d’urgence

(613) 580-2424 x28627, John.Ash@ottawa.ca

City Wide/à l'échelle de la Ville

Ref N°: ACS2009-COS-EPS-0029

SUBJECT:	EMERGENCY MANAGEMENT PROGRAM - ANNUAL UPDATE

OBJET :	programme de gestion des situations d’urgence - mise à jour annuelle

REPORT RECOMMENDATIONS

That Community and Protective Services Committee recommend that Council:

1. Receive this annual report on the Emergency Management Program (2008) – For information.

RECOMMANDATIONS DU RAPPORT

Que le Comité des services communautaires et de protection recommande que le Conseil :

1. Prenne connaissance du présent rapport annuel sur le Programme de gestion des situations d’urgence (2008), à titre d’information.

EXECUTIVE SUMMARY

The Emergency Management and Civil Protection Act requires that every municipality develop an emergency management program to conform to the standards set out by Emergency Management Ontario in accordance with international best practices, that includes the four core components of emergency management: namely, mitigation/prevention, preparedness, response and recovery.

At a minimum, the emergency management program must include the following key elements: an emergency management plan, a training and exercise program for employees of the municipality, and public education on emergency preparedness.

In 2002, prior to the enactment of the provincial regulations, the City approved a comprehensive multi-year, $7.1 million Emergency Management Program (EMP). Through EMP, the City has identified, initiated and made significant progress on a number of projects that ensure compliance with the provincial regulations and contribute to the building of a comprehensive emergency management program.

In 2008, work effort focussed on projects that enhance the city’s ability to respond effectively to complex Chemical, Biological, Radiological, Nuclear, Explosive (CBRNE) events and major structural collapses, and to address the psychosocial needs of the public and city staff. Significant work effort was also invested into further developing the Public Education and Awareness Program and the Training and Exercise Program.

Funding for the City's Emergency Management Program is contained in the Emergency and Protective Services Capital Budget. The funding committed by City Council to EMP is aimed at optimizing the City’s emergency management capabilities by addressing multi-agency emergency management initiatives that could not be funded within a single unit’s operating budget.

Through the rigorous project management structure in place to complete the projects and the ongoing training activities developed to improve effectiveness during an emergency, Ottawa continues to lead Canadian municipalities in the area of Emergency Management. To that end, the Emergency Management Program continues to engage all city departments/branches and services across the corporation including the City Manager and the Executive Management Team as well as external partners fostering collaboration and communication on emergency management initiatives.

2008 EMP highlights included:

· Completion of the Chemical, Biological, Radiological, Nuclear, Explosive (CBRNE) Response Plan

· Training city responders on the Disaster Psychosocial Outreach Programs Emergency Plan

· Development of an Evacuation Atlas in support of the Municipal Evacuation Plan

· Further development of:

o Urban Search and Rescue (USAR) Capabilities

o The “Are you Ready” Public Education and Awareness Program

o The Emergency Management Training and Exercise Program

· Building partnerships

· Corporate planning and coordination, e.g. Flood Mitigation Planning

RÉSUMÉ

La Loi sur la protection civile et la gestion des situations d’urgence exige que toute municipalité élabore un programme de gestion des situations d’urgence afin de se conformer aux normes établies par Gestion des situations d’urgence Ontario, conformément aux pratiques exemplaires internationales en la matière, qui comprennent les quatre principaux volets de la gestion des situations d’urgence : atténuation/prévention, préparation, interventions et rétablissement.

Le programme de gestion des situations d’urgence doit comprendre au moins les éléments clés suivants : un plan de gestion des situations d’urgence, un programme de formation et d’exercices pour les employés de la municipalité ainsi qu’un programme de sensibilisation du public à la préparation aux situations d’urgence.

En 2002, avant l’adoption des règlements provinciaux, la Ville avait approuvé un Programme détaillé, sur plusieurs années, de gestion des situations d’urgence, d’un coût s’élevant à 7,1 millions de dollars. Grâce à ce programme, la Ville avait pu désigner, lancer et faire passablement évoluer divers projets permettant d’assurer sa conformité aux règlements provinciaux, et de contribuer à l’élaboration d’un programme détaillé de gestion des situations d’urgence.

En 2008, les efforts ont été concentrés sur les projets mettant en valeur la capacité de la Ville à réagir efficacement aux complexes incidents chimiques, biologiques, radiologiques, nucléaires et explosifs (CBRNE) ainsi qu’aux effondrements structuraux importants, pour mieux répondre aux besoins psychosociaux du public et du personnel municipal. D’importants efforts ont également été consacrés dans l’élaboration plus détaillée du Programme d’éducation et de sensibilisation du public et du Programme de formation et d’exercices.

Les fonds alloués au PGSU proviennent du budget d’immobilisations des Services communautaires et de protection. Le financement engagé par le Conseil municipal en faveur du PGSU vise à optimiser les capacités de gestion des situations d’urgence de la Ville en favorisant des initiatives de collaboration entre les organismes qui n’auraient pu être financées à l’intérieur du budget de fonctionnement d’une seule unité opérationnelle.

Forte de sa rigoureuse structure de gestion pour mener à bien les projets et les activités de formation permanentes visant à améliorer son efficacité dans les situations d’urgence, la Ville d’Ottawa demeure un modèle pour les municipalités canadiennes dans ce domaine. De fait, le Programme de gestion des situations d’urgence continue de faire intervenir l’ensemble des services et directions de la Ville, y compris le directeur municipal et l’équipe de la haute direction, de même que des partenaires externes ouverts à la collaboration et aux communications en matière de gestion des situations d’urgence.

Quelques faits saillants du PGSU de 2008 :

· Achèvement du Plan d’intervention en cas d’incidents chimiques, biologiques, radiologiques, nucléaires et explosifs (CBRNE)

· Intervenants municipaux en formation au Plan d’urgence des programmes de sensibilisation psychosociale en cas de catastrophe

· Élaboration d’un atlas d’évacuation en complément du Plan municipal d’évaluation

· Amélioration des points suivants :

o Possibilités du plan Recherche et sauvetage en milieu urbain (RSMU)

o Programme d’éducation et de sensibilisation du public « Êtes-vous prêt? »

o Programme de formation et d’exercices en gestion des mesures d’urgence

· Création de partenariats

· Planification et coordination générales, p. ex. : planification de l’atténuation des inondations

BACKGROUND

City of Ottawa’s Emergency Management Program (EMP)

In 2002, City Council approved a multi-year, $7.1 M capital project to develop a comprehensive Emergency Management Program (EMP), for the City of Ottawa administered by the City’s Office of Emergency Management (OEM). Using a multi-departmental approach, this program is committed to ensuring compliance with the Ontario Emergency Management and Civil Protection Act (EMCPA). According to the EMCPA, every municipality is required to develop and implement an emergency management program that shall include at a minimum, an emergency plan, a training and exercise program for employees of the municipality, and a public education and awareness program. Having an emergency management program provides an integrated approach to emergency management activities that enhance the city’s ability to prevent, mitigate, plan, respond and recover from disasters and emergencies, while ensuring continuation of core services. In support of the program, a broad range of initiatives have been identified and prioritized for implementation and contribute to the formation of an emergency management program for the City and its partners. Each year, the Office of Emergency Management is required to conduct a review of its emergency management program and to report to Committee and Council on the progress and level of compliance with the provincial program.

DISCUSSION

Project-related Accomplishments in 2008:

In 2008, project-specific work was completed as follows:

Completion of the Chemical, Biological, Radiological, Nuclear, Explosive (CBRNE) Response Plan

In September 2008, the EMP Steering Committee approved the CBRNE Response Plan (Version 1.0.) as an appendix to the City’s Emergency Management Plan. This plan is based on best practices from across North America and Europe and it was developed by a multi-disciplinary team comprised of members from Ottawa Police, Paramedic Service, Fire Services, Public Health, Public Works and Services, Transit Services and the Hospitals of Ottawa. This plan identifies the shared emergency response functions, describes the responsibilities of each agency and outlines the preparedness, equipment and training activities required for the respective agencies to coordinate, communicate and respond together effectively during a complex CBRNE emergency.

Included with this report is the recommendation to Council that this plan be adopted as an appendix to the City’s Emergency Management Plan. Given the timing of the Steering Committee approval of the CBRNE plan, and the subsequent corporate reorganization, staff will undertake to update the CBRNE plan, consistent with the organizational realignment, with the revised plan placed on the orders of the day at Council.

Training city responders on the Disaster Psychosocial Outreach Programs Emergency Plan

Approved by Council in 2008, the Disaster Psychosocial Outreach Programs Emergency Plan provides psychosocial planners, managers, responders and community partners within the City of Ottawa with operational procedures to be followed when implementing disaster psychosocial programs following a large-scale disaster. For this plan to be implemented effectively in the event of any emergency, specialized training is required. Accordingly, in 2008, city staff from Employment and Financial Assistance (EFA), Public Health, Employee Assistance Program (EAP), Ottawa Police, Paramedics, and Fire Services received 4 days of specialized training in Critical Incident Stress Management. 55 members of the Personal Services team (staff from EFA, EAP, and Public Health) also received two days of psychological first-aid training. In the event of an emergency, the identified responders are now trained and prepared to help minimize the levels of mental stress and psychosocial needs of the city’s residents, city staff and their families.

Development of an Evacuation Atlas

In 2008, an Evacuation Atlas was developed as a supportive tool to the City’s Municipal Evacuation Plan. The Atlas provides evacuation planners with quick access to key information about the area to be evacuated. It is divided into subsections and it summarizes key information, such as, population density, the location of long term care facilities, hospitals and schools. It is available to emergency responders in both a hard copy as well as an electronic format (a CD comprised of PDF maps). A Carleton University Honours student in Geography completed the work on this project as part of a practicum placement and a summer employment opportunity within the Office of Emergency Management.

Further development of Urban Search And Rescue (USAR) Capabilities

The multi-agency USAR team, specialized in rescuing victims from major structural collapse or other entrapments is comprised of personnel skilled in search and rescue, medical, and structural assessments. In 2008, further work was done to develop the Ottawa Urban Search and Rescue (USAR) capacity that included acquisition of USAR equipment, development of a team selection process, and development of a response plan. Through matching funding opportunities (JEPP), USAR specific-equipment has been procured and is highlighted under leverage funding.

Program Developments in 2008:

In keeping with the provincial legislative standards, significant work effort was invested in further developing the public education and awareness program, and the training and exercise program. Details about the development of these programs are outlined as follows:

Building on the ‘Are you Ready/ Etes-vous prêt’ Public Education & Awareness Program

The ‘Are you Ready/ Etes-vous prêt’ program is one element of the City of Ottawa’s Emergency Management Program that was developed to meet the city’s legislative requirements under the EMCPA.

This program uses a peer-based training approach to raise awareness in the community about how to prepare for an emergency and it engages the public via one of three avenues: (1) as a volunteer community trainer, (2) as a community champion or (3) as a communications partner. In 2008, program achievements were realized as follows:

19 community presentations were delivered and an additional 26 community members were trained as volunteer trainers
30 agencies registered as Communication Partners - this network of partners receive regular updates concerning the ‘Are you ready’ Program and help to disseminate key messages about emergency preparedness to the community.

Through this program, the public is learning about the importance of being prepared for emergencies, is learning how to prepare, and is learning what the city is doing to be prepared.

Further Development of the Emergency Management Training and Exercise Program

As per the Emergency Management and Civil Protection Act, every municipality is required to conduct training programs and exercises to ensure the readiness of municipal employees to act under the emergency plan. Through the Emergency Management Training and Exercise Program, key decision makers and emergency response personnel have been identified and provided with the requisite training on their roles and responsibilities in responding to and managing emergencies. Training courses and exercises are designed to educate emergency response personnel on the core concepts of emergency management, to provide information that is specific to Ottawa’s Emergency Plan, and to allow multi-agency responders to practice and prepare together in advance of an emergency. External partners, such as, the Ottawa Hospitals, Salvation Army, Red Cross, Federal and Provincial agencies have also received the opportunity to enrol and participate in the courses. Having the agencies train together with city responders helps to ensure there is a mutual understanding of roles and responsibilities and an effective and coordinated response by all involved.

To date, 5 courses have been developed and offered within the Training and Exercise Program and a network of 29 multi-departmental trainers has been established. In 2008, a total of 387 individuals from across 17 different agencies and departments received training.

Building partnerships:

The Emergency Management Program engages all city departments/branches and services across the corporation as well as a number of external partners. Emergency preparedness is everyone’s responsibility and requires involvement of all. Any major event or disaster in the Nation’s capital may directly impact all three levels of Government, as well as multiple agencies. To this end, partnership engagement is critical. Specific examples of cross-collaborative initiatives and partnerships that were fostered in 2008 are highlighted as follows:

Working in Partnership with the Federal Government

The City of Ottawa has experienced positive and collaborative partnerships with operational agencies of the federal government, e.g., RCMP. However, there have been challenges working with the federal government on broader emergency management initiatives, in part, because emergency management legislation requires that municipalities obtain permission from the provincial government before engaging in direct dialogue with the federal government.

In 2008, the OEM sent a letter to the provincial government and successfully received approval to have direct discussions with the federal government. Subsequently, the OEM Manager has been meeting with a number of federal departments, including the Privy Council Office to clarify respective roles and responsibilities and to define mutual expectations in the event of an emergency. Through these discussions, the City ultimately hopes to establish a formal agreement with the Federal Government including funding to help address issues of mutual concern.

Public Health Agency of Canada (PHAC)

The OEM in partnership with the PHAC hosted a Roundtable on Emergency Preparedness and People with Developmental Disabilities. This forum provided an opportunity for first responders and emergency managers to learn of the distinct needs and issues common to people with developmental disabilities and it examined how people with disabilities, along with their families and caregivers, could be better prepared to respond to emergencies of all types.

Development of the Mitigation and Prevention Plan – Through the ‘Choosing our Future Initiative’

In 2008, the City of Ottawa embarked on a major community-wide project in collaboration with the City of Gatineau and the National Capital Commission (NCC) called ‘Choosing our Future’: An Integrated Approach to Building a Sustainable and Resilient National Capital Region. This project builds upon two important requirements: planning for long-term community sustainability and emergency preparedness. Through the work of this initiative, three integrated, long-term plans will be produced: namely, Sustainability, Community Energy, and Mitigation and Prevention. The Mitigation and Prevention Plan, in particular, will consider how natural disasters and other hazards may impact the City of Ottawa and it will identify and incorporate loss reduction strategies into long range planning decisions. The ultimate goal of this plan is to minimize risks to loss of life and property.

Corporate Planning and Coordination - Activation of the Office of Emergency Management

(i) Flood Mitigation Planning for 2008 Spring Thaw

Working in partnership with Public Works and Services, the OEM convened and facilitated a multi-disciplinary planning team (Communications, Public Health, Legal Services, RPAM, the City Contact Centre, and Mapping) for the purpose of mitigating the potential effects of spring flooding resulting from close to record levels of snow accumulation. Between mid-March to mid-May 2008, meetings were scheduled and included daily communication with conservation authorities and other flood prevention partners to ensure that timely information and mitigation strategies were established and communicated to the public in order to deal with spring thaw conditions. This proactive approach helped to ensure that municipal services and residents were well informed and prepared to act accordingly in advance of any potential flooding situations.

(ii) Evacuation of Residents at Rothwell Lodge Nursing Home

In September 2008, the Office of Emergency Management was activated to assist with the evacuation and re-location of approximately 100 residents of a seniors’ residence as a result of a fire. Working in partnership with Ottawa Police Service, Ottawa Fire Services, Ottawa Paramedic Service, Ottawa Public Health, Transit Services, Corporate Communications, Corporate Security, RPAM, Emergency Social Services, By-Law and Regulatory Services, Red Cross and Salvation Army, a reception centre was opened and temporary accommodations were arranged for the displaced residents.

Leverage Funding Update

Through the Joint Emergency Preparedness Program (JEPP) - a national program initiated by the Federal government designed to enhance national emergency capability, the OEM has submitted JEPP applications on behalf of the City’s emergency responder services and has used capital funds to purchase equipment to support the initiatives that will mitigate identified risks. Since 2002, EMP has successfully received approval for a total of $1.9 million in federal funding through the City’s EMP investment.

In 2008, the City received approval for JEPP grants totalling $ 225,312.84. This funding was used to procure Urban Search and Rescue equipment that included: portable breathing air carts; supplemental personal protective equipment, portable radios, thermal imaging cameras, multi-gas monitors, and high capacity portable lighting.

The ‘Choosing Our Future’ Initiative also received $210K from various external stakeholders for capacity building and community engagement purposes.

2009 EMP Work Plan

The City of Ottawa’s Emergency Management Program has enabled the municipality to maintain and be compliant with current legislative standards, while addressing Ottawa’s specific emergency management needs. As per the EMP Terms of Reference, the EMP Working Group conducted an annual program review and prioritization exercise to ensure legislative compliance would be achieved. To ensure legislative standards are met in 2009, the OEM team and the EMP Working Group plan to conduct the following activities:

· A review of the City’s Emergency Management Plan

· Plan and participate in Emergency Preparedness Week

· A training exercise for Emergency Operations Centre Control Group members

· Project prioritization and work plan development for 2010

· Further expansion of the ‘Are you Ready’ Public Education and Awareness Program

· Participate in further development and delivery of Training and Exercise activities

In addition to these requisite activities, the following EMP initiatives and projects have been prioritized to move forward in 2009:

Implementation of a Corporate-wide Incident Debriefing Process

Following significant emergency events, the Office of Emergency Management is responsible for facilitating a corporate wide debriefing with the participating agencies. In 2009, a corporate-wide incident debriefing process will be formalized. Through this process, key issues will be summarized including recommendations for addressing the issues and assigning responsibility for action. OEM staff will then work with the representatives from the participating agencies to ensure that the lessons learned are formally documented and implemented within a reasonable time frame to improve emergency plans and/or future training and exercises. Ultimately, this process once established will ensure better preparedness and response capacity.

Development of a framework to guide the implementation of the Incident Management System (IMS) corporately

The City of Ottawa is committed to Emergency Management Ontario’s Incident Management System doctrine and its standardized approach to operations. Operating under IMS guidelines will not only result in the adoption of common terminologies but also will create more effective linkages between responders from other municipalities during complex incidents involving multi-agency coordination. In 2009, the OEM will be working with key city stakeholders on the development of a framework that will guide the implementation of the IMS corporately. Once implemented, the City’s Emergency Plan will be updated accordingly.

Implementation of Business Continuity Planning Corporately

In 2009, business continuity planning will be implemented corporately. It will include the development of plans, protocols, and processes that will ensure continuation and delivery of critical services in an emergency and resumption to normal operations. The implementation process will integrate planning activity into regular business practices and existing management structures, thereby aligning corporate continuity planning across the corporation.

Update of the Comprehensive Vulnerability Analysis and further develop the Mitigation and Prevention Plan

According to best practices, it is recommended that the comprehensive vulnerability analysis be repeated every three to five years to ensure that prevention, planning and response efforts are relevant to the current social and technological environments. The City’s comprehensive Vulnerability Analysis, originally completed in 2003, will be refreshed and updated in 2009.

This update will not only include a review of the various hazards and consequences the City could be exposed to, but also will address long-term sustainability issues such as climate change and resource scarcities. Results of this analysis will be used to inform and develop the Mitigation and Prevention Plan* for the City.

*As noted previously in this report, the mitigation and prevention plan is one of three key deliverables identified within the ‘Choosing our Future’ Initiative that is being implemented across the Corporation.

Acquisition and Implementation of the Emergency Information System

In 2009, an Emergency Information System will be acquired and implemented in the Emergency Operations Centre (EOC). This software will enable the City to electronically manage information flow within the EOC, across the corporation and with external stakeholders during an emergency event. It will provide the ability to track, manage and document resource requests and assets, and it will display key information geospatially to improve decision-making. These enhancements will not only be used to improve communications internally with City staff, but also will improve and strengthen linkages with external partners.

CONCLUSION

Through the emergency management program, a number of accomplishments were realized in 2008. The significant investment made in the Public Education and Awareness Program and the Training and Exercise Program means that the community as well as the city’s responders are better prepared to work together to respond and recover from emergencies. In conclusion, the City continues to take a comprehensive approach to emergency management that encompasses mitigation, prevention, preparedness planning, response and recovery.

The City of Ottawa and its partner agencies have a longstanding excellent reputation within the field of emergency management and continue to strive for excellence. To that end, the Emergency Management Program engages all city departments/branches and services across the corporation as well as external partners fostering collaboration and communication on emergency management initiatives.

CONSULTATION

The Emergency Management Program Working Group and Emergency Management Ontario were consulted during the development of the Emergency Management Program and its respective projects. Accordingly, the EMP Steering Committee has received reports and information updates on the Emergency Management Program.

Before releasing the CBRNE Response Plan to the public, an analyst from the Municipal Freedom of Information and Protection Privacy Act was consulted.

LEGAL/RISK MANAGEMENT IMPLICATIONS:

As per the Emergency Management and Civil Protection Act, every municipality shall ensure that their emergency management programs and emergency plans conform to the standards set under section 2002, c.14.s.16. On an annual basis, the Office of Emergency Management is required to conduct a review of its emergency management program and to report to Committee and Council on the progress and level of compliance with the provincial program. The submission of this report completes this legislative requirement.

FINANCIAL IMPLICATIONS

There are no direct financial implications associated with the recommendations of this report. The Emergency Management Plan is funded annually through the capital budget. The 2009 Budget is $790,000 and is to be used in support of the 2009 work plan.

CITY STRATEGIC DIRECTIONS

The recommendations have no direct impact on the City’s 2007 - 2010 City Strategic Directions.

SUPPORTING DOCUMENTATION

Document 1 - Chemical, Biological, Radiological, Nuclear, and Explosive (CBRNE) Response Plan.

DISPOSITION

Upon approval of this report by Committee and Council, staff within the Office of Emergency Management will maintain and administer the Emergency Management Program and the associated Emergency Management Plan including conducting an annual review and update to Committee and Council.