HomeMy WebLinkAbout029 02
1_ ~' 'i,fI'\. ·,5'M 'Or
STATE OF WASHINGTON
County of Jefferson
In the Matter of Amending the
Jefferson County Emergency
Management Plan by the Addition
of Appendix A - Counter-Terrorism
}
}
}
}
RESOLUTION NO 29-02
WHEREAS, RCW 38.52 requires each jurisdiction in Washington State to establish and
maintain a program for disaster mitigation, preparedness, response, and recovery; and,
WHEREAS, the Jefferson County Comprehensive Emergency Management Plan, adopted
in September of 1996 (Resolution No. 80-96), defines how that program will be carried out; and,
WHEREAS, changing conditions due to incidents that have occurred over the past year
require augmentation of the Comprehensive Emergency Management Plan to define how the community
will prepare for and respond to the unique elements of a terrorist incident not visualized in the original
plan; and,
WHEREAS, Appendix A - Counter-Terrorism was developed by the Department of
Emergency Management to meet state and federal requirements,
NO1¥, THEREFORE, BE IT RESOL VED, by the Board of County Commissioners that it
is in the best interest of Jefferson County that the Jefferson County Comprehensive Emergency
Management Plan be amended to include Appendix A - Counter- Terrorism and Appendix A is hereby
approved and adopted by the Board of County Commissioners, Jefferson County, Washington; and,
BE IT FINALLY RESOL VED, that said Appendix A shall be distributed to all County
Departments to make them fully aware of their responsibilities and functions which have been
incorporated into this amendment to the Emergency Management Plan.
; r/1.( )2/ ,j 11
APPROVED AND ADOPTED this If day of ~ 2002,
, '.
"
"
_'0j. ,
\ ,. . 111 ~_..:.. _ '
, ...~ ..."'1- . /
. -4 . .' 'i
..;;'J
SEAL:
(,;,.
- \ ...
,
I
¡
J .\ I;
ATIEST::'" ,\ }" ·f:J·>Y
di iliQ' . --' ';-~., .'
LOr~~y,'CMC ~"
Clerk of the Board cr-
-
Jefferson County
Department of Emergency Management
~@~[F)~~[}{]~~®~
~~~~®~~~W
~®~~~~IJ
[F)~
April 2002
Part 8: Special Subjects
ANN EX A
COUNTERTERRORISM
FOR INFORMATION CONTACT:
JEFFERSON COUNTY DEPT. OF EMERGENCY MANAGEMENT
81 ELKINS ROAD, PORT HADLOCK, WA 98339
(360) 385-3831, Ext. 7 - jcdem@co.jefferson.wa.us
Jefferson County Comprehensive Emergency Management Plan
CONTENTS
Letter of Promulgation
Quick Reference (Summary)
Figure 1: Emergency Management Organization Chart
Figure 2: Bioterrorism (Public Health Emergency) Response Template
I. BACKGROUND .."...,.....,.,...,.....,.............."....,......,........ 1
Mission
Purpose
Scope
Control Objectives
Authorities
II. POLICIES ........,....,...............,...,...,........................,.... 1
Primary Authority
Assignment of Local Responsibilities
Limitations and Special Considerations
III. ORGANIZATION. . . . , . . . . . . . . . . . . . . . . . . . , . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 2
Local emergency management organization
Internal structure
Coordination of counterterrorism planning and training
IV. SiTUATION...,.",.........,......".."..,.....,.............."........... 3
Terrorist incidents
Planning assumptions and threat impact analysis
V. CONCEPT OF OPERATIONS .,..."...........,.....,'...,..,......,........... 4
General
Direction and control
Terrorism incident action plan activation indicators
Initial response and investigation
Operational control
State and federal activation
Joint operations facilities
Concurrent operations
Recovery
VI. ROLES AND RESPONSIBILITIES . . . . . , . . . . . . . . . . . . . , . . . . . . , . . . . . . . . . . . . , , . . . . . .. 9
Sheriffs Department
Department of Emergency Management
Department of Health and Human Services
April 8, 2002
Contents . page 1
Jefferson County Comprehensive Emergency Management Plan
Coroner
Other County of City Departments
State Agencies
Federal Agencies
VII. SPECIAL PROVISIONS ....................................................... 11
Emergency Powers of the Health Officer
Special Legislation to Protect the Public
Emergency worker immunization strategies
VIII. APPENDICES. , . . . . . . . . . . . . , . . . . . . , . . . . . . , . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 12
Appendix 1: Definitions and acronyms
Appendix 2: Implementation strategy - mitigation, preparedness, response, and
recovery
Appendix 3: Planning guide
April 8, 2002
Contents - page 2
QUICK REFERENCE
SUMMARY
COMPREHENSIVE EMERGENCY MANAGEMENT PLAN
ANNEX A: COUNTERTERRORISM
)0 This annex was developed by the Dept. of Emergency Management using
guidance from several state and federal authorities. It is consistent with the
national concept of operations for counterterrorism incident management.
)0 This annex augments the existing Comprehensive Emergency Management
Plan (CEMP) which is included by reference.
)0 The purpose of this annex is to define local response to incidents involving
chemical, biological, or radiological weapons of mass destruction employed
for terrorist purposes. This includes incidents outside of Jefferson County
that may have an impact on our citizens.
)0 The Federal Bureau of Investigation (FBI) is the federal lead agency for
counterterrorism. The Federal Emergency Management Agency (FEMA) is
the designated co-lead for consequence management in support of local and
state governments.
.. The State of Washington Military Department, Emergency Management
Division, coordinates state resources.
)0 Jefferson County Dept. of Emergency Management coorodinates county and
mutual aid resources according to the Comprehensive Emergency
Management Plan and this annex. The City of Port Townsend maintains a
separate CEMP and parallel counterterrorism annex which describes how
they will operate in cooperation with Jefferson County.
.. A joint counterrorism planning task force is established to provide for
coordination and communication between the county and the city and the
other emergency reponse partners.
)0 Jefferson County Sheriff's Department (Police Dept. for the City) is the local
lead agency for counterterrorism, in cooperation with the FBI. The Dept. of
Health and Human Services may be a co-lead for incidents involving a public
health emergency (bioterrorism).
.. The Emergency Operations Center (EOC) at Port Hadlock is the designated
base of operations for coordination of local response and recovery. The
alternate EOC may be activated in the event of joint operations with the City
of Port Townsend are required. The FBI may establish a Joint Operations
Center for coordination of federal assets.
.. .. .. .. .. - .. .. .. -
'CI
CO:
GlU
lIIe
e =
3: 0
~O
t:,ª,
00
£1.
--.--..,-
.¡, ...
I!! ..
~ ~ 0
e .2 ~
= III III
°õ.!!! 'c
0'CI E ·š
S:ïig 'CIr+
I!!~o <
~ ~ ~
CI> e e
"") = =
o 0
o 0
-~g; -
~~
[tCl
...
.æ
c
(I)
()
rn-
c§
.2;
-ca
1!.~
(1)-
Q.U
O~
»-
u~
c-
CÞCD
CDC
¡If
ES
wen
..
<II'
01'
10'
e,
10,
:::E'
~:
ü
ct::>-
wo::£1.
I-W::J
(/»0
<00::
~ßC)
Co::
~-
~ =
~~
$.""
I-C
ZZ
w<C
0::E
-::E
00
~O
..
T
:; m
CD "'CI .-
e",'"
OICI>e
·iii....l &
2:! 41:
\
00
wz
!!;~
Z:=¡¡
::10
U
e-
osa
.....:¡:::¡-,
C"'-
'õ Ë ~
-'oc
-<I)
.50
z
o2ct::
-!;;ëw
~:::E0
mct::Ü:
~0LL.
LLO
31:
0::
w
OC)
0<
wZ
<
::Ii
.. lIIe
o 5.2
.'~ :;~
o <II .~.-
...: Coil: e'E!
:~sê8
<IIo(/)EO
~o::! 0
....IWWO
I I I I
r
.. .. - - - - I
,
,
,>0
,1.1 ,
I 5i~! '
::J!!B,
:"C~5 ,
:]1 0,
. LL ,
,
. .. ".I.. .. .. .'
,
,
Figure 1:
Emergency Management Organization Chart
-+
0::
o
w!ci:
Uz
z_
<Co
ZO::
u::o
o
o
-
-
e
iii<ll
'õ ~
eCl
:!! 10
.- e
LLIO
:¡;
~ffi
wU
11..-
<c1t
IJ)O
zO::
OW
IJ)~
-II..
~u..
...JO
,
,
,
,
,
,
,
,
,
,
,
.
,
,
,
,
,
,
,
,
,
,
,
.....
0::
IJ)O
~!ci:
I-z
IJ)-
-0
Go::
00
...Jo
o
-
>0
--
Co·-
Coe
=::J
(/)
0::
C)O
z!ci:
-z
z_
Zc -
~~
o
o
.....
IJ)O::
zO
o!ci:
-z
~õ
wO::
0.0
00
o
e
:8~
'" e
';::J
Cñ
.c
>-~
'CI"'IO
ee..
",..ca
Q) 1:'-
.. .. 10
ü: E'~
w"g
::!
i
+
-
e
CI>.c
;¡:Eu
j~~
.eca
e
W
:- - - - - - - -~.. - - -.. - -.. .. ".
," .of: . . : .- . .:t.. _ _ : .- _ _ i _ : .. .. . _ _ ,
I " I
: : a: en: : éi : : ~ë :
c u ,Q)e2;' I E Gis >-,
I CJ~ ~: I E GI ë¡: I W GI ~ :
, ''''",- ~ S: I W C).- .... _ 0) cD
I -rn leu"'>' .caCQC)'
:~OQl: ::a;ã: :-8:;<:
1::::::1 0::, Icn:i 'Q)::::&! I
I , . LL. '
I .. ... _ _ _ _ I _ _ .. _ _ _I I .. .. .. .. _ ..I
'"
_e
æ~
.~:a
'CI'"
< ,: '
=
"")
,
I... _ .. .. .. _
...
...
'CI
e 01
:....5
'E~~
00 f!
¡¡: I-
0::
..
..
C
o
:;:3-
10"
t:=
OLL
CI.'CI
lIIe
elO
10
¡:
..
..
C
~
10
t:~
"c
E::J
=
1.1
o
C
..
..
C
e
o
o
T
+
.~£
:eiii
=..
£1.:J:
.-..Y..,
,
,
, ë I
, .. '
·..:5s'
. ~ñi 1:: I
, .j.;i GI as .
, (/):J: Co'
, .. '
, 0'
, '
1.._____
...
e
0-
_10
-",
I.!·c
-..
"'-
'cu
.- 'CI
Ee
'ClIO
41:
..
'CI..
e",
lOe
III'"
..e
.- ..
51:
1.1'-
1010
LL::!
..
iiit:
.~ 0
cco
.ca.
1.1=
~(/)
t
'CICI
'" e.§
=C'Øcu
.QIII"
~~.5
~~ g'
W
I---t--:
,
,
·
·
,
,
,
·
,
,
..
"''''
.- ..
'5E
c=
f!5
LL
,
·
·
·
·
,
·
1_..____1
..
-
e
....
g'~;!:
E",C
",..::J
0'"
'"
41:
~
,
,
,
,
..
..
šg"5
'" S C
::.~ f!
ë:l!ca
41:
:___t._:
, '
: æ..... Sf '
:ûL!!:!'u
, ca "¡ C I
I'S!! a:: &,
,C c(:
1 _ _ .. .. .. _'
~
~
~
0:
Figure 2:
Bioterrorism (Public Health Emergency) Response Template
PUBLIC HEALTH
AUTHORITIES
Criminal intelligence
developed or articulated threat
received by authorities
ACTIVATE THE EMERGENCY
MANAGEMENT PLAN
(LEVEL 1)
Critical functions:
EXPANDED MEDICAL
SURVEILLANCE
REQUEST DECLARATION
OF EMERGENCY
(IF NEEDED)
Critical functions:
Mass prophylaxis
Health hazard assessment
and mitigation
Quarantine I isolation and
physical control measures
Casualty care coordination
Fatality management
Mental health support
CoordInate with state and
federal health authorities
RWHamlin
PASSIVE
MEDICAL SURVEILLANCE
NETWORK
RESULTS
ACTIVATE PUBLIC
HEALTH INCIDENT TEAM
INVESTIGATION PHASE
...
DIAGNOSIS
AND EPIDEMIOLOGICAL
INVESTIGATION
RESULTS
+
ACTNATEEMERGENCY
MANAGEMENT PLAN
(LEVEL 2 or LEVEL 3)
EMERGENCY RESPONSE
Emergency public
information coordination
Inter-jurisdiction liaison
Emergency response
agencies coordination
Logistics and resource
support system
Finance and recovery
coordination
Emergency Operations Center
HOSPITAL AND
HEALTH CARE SYSTEM
·Public Health determines
the threshold number and
type of cases that would
trigger system activation
CRIMINAL
INVESTIGATION AND
CREDIBILITY ASSESSMENT
Coordinate with
Federal Bureau of
Investigation
MAKE ALL REQUIRED
NOTIFICATIONS AND
REQUEST AID AS NEEDED
Active investigation
coordination
Evidence collection
and preservation
Suspect apprehension
Control measures
enforcement
Support the FBI (lead agency)
if Incident Is terrorist act
Jefferson County Comprehensive Emergency Management Plan
ANNEX A
COUNTERTERRORISM
I. BACKGROUND
A. Mission: Protection of people,
property, environment, and the
economy of our region from the
impacts of a terrorist act.
For incidents involving chemical, biological,
radiological, weapons of mass destruction, and
conventional weapons employed for terrorist
purposes in Jefferson County.
B. Purpose: A local plan of action
consistent with federal and state
terrorism response plans for reaction to a terrorist incident.
C. Scope: How Jefferson County will cooperate in an organized and unified way with adjacent
jurisdictions, the agencies of the State of Washington, and the United States Government in
the event of a threat of terrorism, actual terrorist incident, or major Weapon of Mass
Destruction attack,
D. Control objectives:
1. Maximize interagency and inter-jurisdiction communications and resources.
2, Recognize the Jefferson County Comprehensive Emergency Management Plan (CEMP/
as guidance for coordination of local response.
3. Use the Incident Command System.
E. Authorities: This annex is consistent with the local, state, and federal codes, statutes, and
regulations cited in the CEMP Basic Plan. Additional authorities includé
1. Presidential Decision Directive (POD) 39 - United States Policy on Counterterrorism
2. Federal Response Plan, Terrorism Incident Annex (April 1999)
3. Washington State Comprehensive Emergency Management Plan, Annex A - Terrorism
(September 2002)
II. POLICIES
A. Primary Authority:
1, The laws of the United States assign primary authority to the Federal government to
ICEMP refers to the Jefferson County Comprehensive Emergency Management Plan unless otherwise
designated. The City of Port Townsend is responsible for development of a separate plan and program consistent
with the requirements of RCW 38.52.
20ther references used in the development of this annex are found and the back of this document.
April 8, 2002
Annex A: Counterterrorism - page 1
Jefferson County Comprehensive Emergency Management Plan
prevent and respond to acts of terrorism.
2, The laws of the United States assign primary authority to the State and local governments
to respond to the consequences of terrorism. The Federal government provides
assistance as required.
B. Assignment of Local Responsibilities: The emergency assignments of designated County
departments and supporting agencies, and the methods of coordination and communication,
are defined in the CEMP. Additional references to counterterrorism assignments are made in
this annex for clarification.
C. Limitations and special conditions:
1, Extreme measures may need to
be employed to counter the The variety of potential risks malœs it impossible to
impact of a terrorist attack on our foresee all eventualities. This annex weighs local
citizens. capabilities against plausible events and
manageable circumstances in a "best guess"
2, Perfect response to a terrorist approach.
incident may not be possible due
to limited local resources and
capabilities and an overwhelming demand for services.
3. This annex is not intended to replace any existing emergency procedures. It is a
supplement to better define the particular body of issues related to a terrorist-type
incident.
4. This annex cannot realistically contemplate a "worst case" terrorist scenario, Such an
event would likely engulf local capabilities, and the complexity of any system that would
meet those extreme needs defies any meaningful planning at this level.
5. Local responders should plan to rely on their own resources for the first few days until
mutual aid assistance arrives. Unified command may need to triage the deployment of
resources according to a plan of action that benefits the greater good based on the best
information at the time.
B. Not exemption from public inspection: This document does not include sensitive
information the disclosure of which might have a likelihood of threatening public safety.
However, some related documents published separately may be exempted from public
inspection and copying in accordance with the Public Records Act, RCW 42, 17.31 0 (ww),
III. ORGANIZATION
A. Local emergency management organization:
1, The Comprehensive Emergency Management Plan defines the organization for
emergency response and recovery, and incorporates the county organizational structure
and response plan for emergencies and disasters.
2. A parallel counterterrorism annex is part of the separate plan and program of the City of
Port Townsend, and describes the city organization for emergency management.
April 8. 2002 Annex A: Counterterrorism . page 2
Jefferson County Comprehensive Emergency Management Plan
B. Internal structure: The existing emergency response organization (including
communications, command structure, operational protocols, mutual aid agreements, etc,)
should be retained as much as possible.
C. Coordination of counterterrorism planning and training: A Joint Counterterrorism
Planning Task Force is established.
1, The purpose of the Task Force is to:
a. Advise in the improvement of a consequences of terrorism response capability
according to this annex, and to assure that plans are consistent and coordinated,
b, Make recommendations regarding equitable distribution of any related funding stream
to assure the best use and consistency with this plan,
c. Provide a working forum to assure maximum communication and the integration of
partner agency resources in support of this plan.
d. Assist in the development of training and exercises directed at satisfying planning and
implementation requirements.
2, The Counterterrorism Planning Task Force will include the following:
a. Jefferson County Sheriff's Office
b. Port Townsend Police Department
c. Jefferson County Department of Health and Human Services
d. Jefferson County Department of Emergency Management
e. City of Port Townsend Emergency Management representation
f. Jefferson County Fire Districts Representation (Fire Chiefs Association)
g. Jefferson General Hospital
IV. SITUATION: The events anticipated by this plan differ from other hazards in that they are explicitly
intended to create an environment of instability, insecurity, and turmoil.
A. Terrorist incidents:
1. A "Terrorist Incident" is a
calculated threat or act of violence A unique direction and control environment will
contrived to intimidate or coerce a result from the involvement of multiple resources,
government or its citizens in competing elements, and overlapping jurisdictions.
furtherance of political, religious, or
social objectives and ideologies.
Terrorist incidents deliberately create fear in an attempt to destroy public confidence, and
to gain immediate attention to a cause.
2. Terrorist incidents will likely be accompanied by the articulation of a cause or ideology
April 8, 2002 Annex A: Counterterrorism . page 3
Jefferson County Comprehensive Emergency Management Plan
associated with the attack.
3. A terrorist incident is a criminal act, and every event will be managed as a crime scene.
B. Planning assumptions and threat impact analysis: For planning purposes these general
assumptions are made regarding terrorist incidents3. The absence of a history of such
occurrences requires a presumptive view of what may occur:
1, A biological weapons attack will never be just a local event. The rapid geometrical
expansion of terrorist-type incidents involving bio-weapons (BW) may be caused by ill
persons fleeing the epicenter. Containment and mitigation require quick recognition and
extreme immediate solutions.
2, The impact of a major disease outbreak with protracted incubation (periods up to three
weeks) could extend the emergency response phase over several weeks or months as the
illness migrates through the population.
3, There may be multiple simultaneous events or secondary impacts. Emergency
responders may be the targets of a secondary event.
4, Depending on the target proximity
to certain facilities, the deployment
of a bio-weapon, or a major
disease outbreak, response of
police, fire, emergency medical
services, and emergency
communications systems could be
seriously impaired.
Response actions into a contaminated area may be
delayed until the material has dissipated to a level
that is safe for emergency response personnel to
operate.
5. The terrorist act or threat may be a national security issue, information may be "classified"
and withheld from some of the response partners.
6. The nature of the incident may be in doubt when there is no clear epicenter, delaying or
hindering attempts to mitigate impacts.
7. The psychological effect may be more devastating than the actual hazard, The "worried
well" flooding the medical care system may exceed the number of exposed victims by a
multiplier of 10 or more,
V. CONCEPT OF OPERATIONS:
A. General
1. Presidential Decision Directive 39 (PDD-39), "United States Policy on Counterterrorism,"
establishes a national policy on reduction of terrorism impacts. The terrorism component
of federal, state, and local emergency plans are consistent with the overall national
response scheme. This annex is consistent with the Terrorism Annex of the State of
Washington Comprehensive Emergency Management Plan as required by RCW 38.52,
3 Additional terrorist threat assessment and target vulnerability analysis are located in the Jefferson County
Hazard Identification and Vulnerability Analysis (HIV A) published separately.
April a, 2002
Annex A: Counterterrorism . page 4
Jefferson County Comprehensive Emergency Management Plan
2, Cardinal operational components of counterterrorism:
a. Crisis Management:":
(1) The federal government exercises primary authority to preempt and terminate
threats or acts of terrorism, and to apprehend and prosecute the perpetrators.
(2) State and local law enforcement agencies provide for initial response and
assistance to federal authorities as required.
b. Consequence Management
(1) State and local governments exercise primary authority to respond to the
consequences of terrorism.
(2) Consequence management is generally a multifunction response coordinated by
local and state emergency management agencies under existing
Comprehensive Emergency Management Plans.
c. Technical Operations: A wide array of state and federal resources are assigned the
responsibility of providing specialized technical support.
3. Homeland Security Advisory System:
a. The Homeland Security Advisory SystemS (HSAS) will provide a comprehensive and
effective means to disseminate information regarding the risk of terrorist attacks for
Federal, State, and local authorities and to the American people.
b. Public announcement by the Department of Justice of threat advisories will be based
on this general criterion:
(1) Is the threat credible?
(2) Is the threat corroborated?
(3) Is the threat specified and/or imminent?
(4) How grave is the threat?
TABLE 1: HOMELAND SECURITY ALERT SYSTEM (HSAS)
GREEN LOW RISK , Refine and exercise preplanned protective measures
. Ensure personnel receive training on HSAS, departmental, or agency-specific
protective measures
. Assess facilities for vulnerabilities and take measures to reduce them
~See Appendix I for definitions, acronyms and abbreviations.
5Homeland Securitv Presidential Directive 3, March I 1,2002.
April 8, 2002
Annex A: Counterterrorism - page 5
Jefferson County Comprehensive Emergency Management Plan
BLUE GENERAL RISK · Check communications with designated emergency response or command locations
· Review and update emergency response procedures
· Provide the public with necessary information
YELLOW SIGNIFICANT RISK · Increase surveillance of critical locations
· Coordinate plans with nearby jurisdictions
· Assess further refinement of protective measures within the context of the current
threat information
· Implement, as appropriate, contingency and emergency response plans
ORANGE HIGH RISK · Coordinate necessary security efforts with armed forces or law enforcement
agencies
· Take additional precautions at public events
· Prepare to work at an alternate site or with a dispersed workforce
· restrict access to essential personnel only
RED SEVERE RISK · Assign emergency response personnel and pre-position specially trained teams
· Monitor, redirect or constrain transportation systems
· Close public and government facilities
· Increase or redirect personnel to address critical emergency needs
4. The FBI tiered system for describing terrorist incidents6:
a. (FBI) Threat Level 4 - Minimal Threaf: No (FBI) action warranted beyond normal
liaison notifications,
b. (FBI) Threat Level 3 - Potential Threat: Intelligence or an articulated threat indicates
a potential for a terrorist incident; threat not yet assessed as credible.
c. (FBI) Threat Level 2 - Credible Threat: Threat assessment indicates that the potential
threat is credible and confirms the involvement of WMD.
d. (FBI) Threat Level 1 - WMD Incident: A WMD terrorist incident occurred requiring
federal assistance to state and local authorities in response to the consequences.
5, Emergency Public Information and Rumor Control:
a. Initial public information needs from the incident scene will be handled by a Public
Information Officer (Pia) designated by the on scene Incident Commander.
b. As information dissemination needs increase, the designated Emergency
Management PIO will assume responsibility for coordination of local releases. A
hotline may be established, as well as system for distribution of fact sheets.
c. A Joint Information Center (JIC) may be established by the Pia to provide for
coordinated release of incident information to the public and the media. When the
JIC is established, all releases will be coordinated through that control point.
6These are federal level threat designations and should not to be confused with local and EOC levels of
activation as detined in the Jefferson County CEMP.
7Reference the Washington State Comprehensive Emergency Management Plan, Annex A, § IV. A. 9. a.
(4), piS.
April 8, 2002
Annex A: Counterterrorism - page 6
Jefferson County Comprehensive Emergency Management Plan
d. Representatives from each principal agency will be invited to assist with operation of
the JIC to assure all information release needs are being met.
e. Joint agency releases, coordinated by a local-state-federal Joint Information Center
and approved by Incident Command, will be the preferred method of providing
information to the media and the public.
B. Direction and control
1. Designated lead agencies and resource coordination:
a. The Lead Federal Agency (LFA) for managing federal response to terrorist incidents
within the United States is the Federal Bureau of Investigation (FBI)a
b, The Federal Emergency Management Agency (FEMA) has the responsibility to
make crisis consequence management decisions in cooperation with the FBI.
c. The State of Washington Military Department, Emergency Management Division,
coordinates the activities of state resources, and coordinates with other states and
the federal government.
d. The Jefferson County Dept. of Emergency Management coordinates county
resources and the City of Port Townsend representative coordinates city resources
according to the existing CEMPs.
e. The Jefferson County Sheriff's Office is the Local Lead Agency for terrorist
incidents. Unified Command with the Port Townsend Police Department will be
established for cross-boundary incidents involving the City.
f. The Jefferson County Department of Health and Human Services is the co-lead
for incidents involving a public health emergency.
2, Local emergency response and supporting agencies should develop separate internal
policies and procedures for carrying out their individual roles under the provisions of the
Comprehensive Emergency Management Plan. (See Appendix 3 for guidance on
expanding internal plans to support this annex.)
3. Responding organizations maintain their agency authority, responsibility, and accountability
under the ICS umbrella.
4, Initial coordination of on-scene emergency activities might take place from a command
post. Depending on incident severity (or multiple simultaneous events), Jefferson County
response will be coordinated at the County Emergency Operations Center (EOC). The
City of Port Townsend may co-locate there as needed. The extended Level 3 EOC (full
joint activation) may be established at the alternate site.
5. If the FBI operates in the community, a Joint Operations Center (JOG) will be established
for coordination of federal response. Liaison will be established to assure integration of
local and federal operations. Co-location of the JOC with the Jefferson County EOC may
x Federal Response Plan. Terrorism Incident Annex, April 1999
April 8. 2002
Annex A: Counterterrorism - page 7
Jefferson County Comprehensive Emergency Management Plan
be appropriate to maximize coordination,
6, Primary state response and recovery priorities will be coordinated at the state EOC, with
state liaison at the FBI-JOC.
C. Terrorism incident plan activation
indicators:
1. These threshold indications may
be used to determine if the need
for activation of this Terrorism
Incident Annex:
There may be little or no warning, directly
apparent indicators, or circumstances not
immediately obvious to emergency personnel.
Emergency responders may be in danger of
becoming casualties before the actual identification
of the crime or circumstances can be made.
a, An incident occurs in
Jefferson County which is identified as a possible terrorist act due to the nature of the
hazard and the surrounding circumstances (type of material used, connection to a
cause or organization with terrorist intentions, etc.),
b. Health surveillance systems detect a significant local spike in special iridicators9.
c. An articulated threat is received by a local, state, or federal authority which meets the
credible threat criterion.
d. Intelligence developed by law enforcement agencies indicates that a credible threat
exists.
e. A moderate incident occurs in an adjacent community involving a WMD-type device
that has the potential for impacts in Jefferson County.
f. A major WMD attack occurs in, or adjacent to, Jefferson County,
g. A major terrorist (WMD) incident occurs outside of Jefferson County, but has a
significant secondary impact on people, property, the environment, or the economy of
the County and the region.
D. Initial response and investigation:
1. Local emergency response agencies, operating under standing orders for daily public
health and safety operations, will respond to the incident and make appropriate and rapid
notifications to local and state authorities.
2. Initial notification of first responder agencies will take place through Jefferson dispatch,
3, A distribution system will be developed to provide for timely notification of identified key
agencies and personnel of any terrorist related information. The system can be activated
by any of the designated lead agencies.
4. The Sheriff's Office (or Police Department for incidents inside city limits) will make initial
notifications to the Federal Bureau of Investigation.
'\ee Figure :2 for an example of the response to the detection of a disease outbreak,
April 8, 2002
Annex A: Counterterrorism - page 8
Jefferson County Comprehensive Emergency Management Plan
5, Transition to broader response will
involve existing mutual-aid
partners. Fire/EMS assistance
may be obtained through the State
Fire Mobilization Plan when local
resources are depleted.
In the event of a bio-weapon or major outbreak,
critical public health decisions may need to be
made on a presumptive basis and acted on
immediately to achieve timely prophylaxis and keep
pace with the rapid onset of multiple casualties.
6, Multiple sites or emerging events
may trigger activation of the provisions of the Comprehensive Emergency Management
Plan including activation of the Emergency Operations Center as a base of operations.
7. Other notifications and requests for outside resources beyond established mutual aid will
be made through the Dept. of Emergency Management.
8. Major events or the determination of a medical emergency will require a Declaration of
Emergency be made by the Board of County Commissioners in order to activate
emergency powers and the full provisions of this plan.
E, Operational control: Operational control of assets at the scene is retained by the designated
officials representing the agency providing the asset.
F. State and federal activation: Notification of appropriate state and federal resources will be
carried out by the FBI according to existing plans and procedures.
G, Joint operations facilities:
1, FBI and FEMA plans include the activation of a JOC for detailed coordination of special
federal terrorism response and recovery resources.
2. Establishment of local, state, and federal liaison at the JOC is intended to provide
successful resolution of the incident. There are provisions for co-location of the JOC with
the county EOC if desired.
H. Concurrent operations: All local, state, and federal components will operate concurrently,
I. Recovery: Recovery activities associated with an act of terrorism of sufficient impact to warrant
a presidential declaration of emergency will be in accordance with the provisions of the Stafford
Act10, and are defined in detail in the CEMP.
VI. ROLES AND RESPONSIBILITIES
A. Sheriff's Office: The local lead agency for terrorism crisis management. Special duties
include:
1. Coordination with the FBI where criminal acts are suspected.
2. Coordination of local law enforcement counter-terrorist assets, including mutual aid and
military assistance to local government for law enforcement if requested.
IORobert T. Stafford Disaster Relief and Emergency Assistance Act (Public Law 93-288, as amended)
April 8, 2002
Annex A: Counterterrorism - page 9
Jefferson County Comprehensive Emergency Management Plan
3. Coordination of active criminal investigation team in cooperation with the Dept. of Health
and Human Services in the event of an outbreak detection (see Fig. 2 - Major Public
Health Event - Response Template).
4, Development of internal protocols for credible threat assessment (in coordination with the
F.B.I.)
5. Collection of evidence associated with a potential terrorist threat.
6, Instituting control measures enforcement if a public health emergency is declared,
including patrol of affected areas.
7. Coordination of security at hospitals, medical facilities, fatality handling sites and other vital
installations.
B. Dept. of Emergency Management: Local lead agency for terrorism consequences
management. Special duties include:
1, Implementation of the Comprehensive Emergency Management Plan, and provide the
means for coordinating capabilities, resources, and assets necessary to alleviate disaster
impacts.
2, Coordination with the State of Washington Military Department, Emergency Management
Division, regarding consequence management.
3. Coordination of county resources as needed to support the consequence management
effort.
4, Support to the Dept. of Health and Human Services and the Sheriff's Office in the event of
a bio-weapon attack or major disease outbreak (see Fig. 2 - Major Public Health Event _
Response Template).
C. Department of Health and Human Services:
1. Coordinate with the State Department of Health.
2. Coordination of a Public Health Incident Team (see Fig. 2 - Major Public Health Event _
Response Template).
3, Mass prophylaxis in the event of a public health emergency.
4. Health hazard assessment and mitigation measures.
5. Quarantine, isolation, and related physical control measures.
6. Fatality management in cooperation with the Jefferson County Coroner (Prosecutor).
7, Mental health support measures coordination.
D. Jefferson County Coroner (Prosecutor):
1, Fatality management lead agency.
April 8, 2002 Annex A: Counterterrorism - page 10
Jefferson County Comprehensive Emergency Management Plan
2, Establishment of morgues and central processing.
3, Long term storage of human remains.
4. Establishment of protocols for disposal of remains contaminated with biological agents.
5, Maintenance and management of casualty lists.
6. Implement release of remains to families or mass cremation and/or burial as required by
conditions.
E. Other County Departments: The county departments and offices provide support through the
Department of Emergency Management. Detailed roles and responsibilities, and the support
functions of other local public and private resources, are as identified in the Comprehensive
Emergency Management Plan.
F. State Agencies: Detailed roles and responsibilities for specific state agencies are listed in the
Washington State Comprehensive Emergency Management Plan.
G. Federal Agencies
1. Federal Bureau of Investigation (FBI): Lead agency for crisis management relating to a
terrorist incident. The federal response, led by the FBI, will focus on law enforcement
actions taken in the interest of public safety and welfare, and is predominantly concerned
with preventing and resolving the threat.
2. Federal Emergency Management Agency (FEMA): Lead agency for consequence
management of terrorist incidents, FEMA will support the federal response with
consequence management planning and use of federal resources needed to anticipate,
prevent and/or resolve the crisis.
3. Detailed roles and responsibilities for specific federal agencies are listed in the Terrorism
Incident Annex of the Federal Response Plan,
VII. SPECIAL PROVISIONS:
A. Emergency powers of the Health Officer:
1. The law empowers the health officer to review and determine appropriate action for
instituting disease prevention and infection control, isolation, detention, and quarantine
measures necessary to prevent the spread of communicable disease, or otherwise to "take
such measures as he or she deems necessary in order to promote the public health, , ,"11
2. Authority is given to the health officer to invoke the power of the courts to enforce these
measures when necessary12,
3, A Declaration of Public Health Emergency by the Health Officer is required.
II RCW 70.05.070
12WAC 246-100-036
April 8, 2002
Annex A: Counterterrorism - page 11
Jefferson County Comprehensive Emergency Management Plan
B. Special legislation to protect the public: The Governor may enact temporary emergency
measures to impose restrictions needed to combat the consequences of a terrorist threat.
These may include establishing curfews, restricting movement in support of quarantine orders,
controlling allocation of scarce or depleted essential goods, and commanding the public and
private services and equipment necessary to respond to special emergency needs. A
Declaration of Emergency is required before certain restrictive measures can be enacted.
C. Emergency Worker Immunization Strategy: A policy will be developed by the Jefferson
County Department of Health and Human Services that identifies priority emergency antibiotic
prophylaxis for essential emergency personnel in order to allay their fears and help ensure their
continued presence during the response.
VIII. APPENDICES
A. Appendix 1: Acronyms and Definitions
B. Appendix 2: Implementation strategy - mitigation, preparedness, response, and recovery
C, Appendix 3: Planning guide for local emergency response agencies
Additional references used in the development of this document:
United States Government Interagency Domestic Terrorism Concept of Operations Plan (CONPLAN), Federal Bureau of
Investigation, Federal Emergency Management Agency, et al (January 2001),
Guide for All-Hazard Emergency Operations Planning (State and Local Guide 101), Chapter 6 - Attachment G: Terrorism,
Federal Emergency Management Agency (April 2001)
The Model State Emergency Health Powers Act, Center for Law and the Public's Health, Georgetown and Johns Hopkins
Universities (October 2001)
Final Report - Response Capacity During a Health Emergency, Washington State Board of Health (November 2001)
Improving Local and State Agency Response to Terrorist Incidents Involving Biological Weapons, Department of Defense,
Domestic Preparedness Program (September 2000)
The Counterterrorism Handbook - Tactics, Procedures, and Techniques, Frank Boltz, CRC Press (2002)
For information on the development and maintenance of the Jefferson County Comprehensive Emergency Management Plan and
this Annex please contact:
Bob Hamlin, Emergency Management Coordinator
Jefferson County Department of Emergency Management
81 Elkins Road
Port Hadlock, WA 98339
Phone (360) 385-3831, Extension 7
Email: jcdem@co.jefferson.wa.us
April 8, 2002
Annex A: Counterterrorism - page 12
Jefferson County Comprehensive Emergency Management Plan
APPENDIX 1
ACRONYMS and DEFINITIONS
BW - Biological Weapon
CEMP - Comprehensive Emergency Management Plan
EOC - Emergency Operations Center
ESF - Emergency Support Function
FEMA - Federal Emergency Management Agency
FBI - Federal Bureau of Investigation
HIVA - Hazard Identification and Vulnerability Analysis
HSAS - Homeland Security Alert System
ICS -Incident Command System
JIC - Joint Information Center
JOC - Joint Operations Center
LFA - Lead Federal Agency
PDD - Presidential Decision Directive
PIO - Public Information Officer
PPE - Personal Protective Equipment
WMD - Weapons of Mass Destruction
Consequence management: Measures taken to protect public health and safety, restore essential
government services, and provide emergency relief.
Control objectives: The underlying philosophy that will support the effective implementation of a plan of
action. A means of measuring the development of supporting procedures.
Crisis management: Measures taken to identify, acquire, and plan the use of resources to anticipate,
prevent, mitigate or resolve a terrorist threat or incident. Crisis management response is implemented
under the primary jurisdiction of the law enforcement agencies at all levels of government.
Curfew: An ordinance enacted for the purpose of preserving the public safety in an emergency by
establishing times and conditions under which persons may be present on the public streets or other
public places.
Homeland Security Alert System: A national system to disseminate information regarding the risk of
terrorist acts to Federal, State, and local authorities and the public. A set of threat conditions that would
increase as the threat increases.
Isolation: Separation or the restriction of the activities of infected persons, or of persons suspected to be
infected, from others to prevent transmission of an infectious agent.
Joint Operations Center: Established by the Federal Bureau of Investigation for the on site coordination
of federal response to a terrorist incident.
Lead agency: Those agencies that have the most direct role in and responsibility for implementation of
counterterrorism policy as defined in this Annex. See Unified Command.
April 8, 2002
Annex A: Terrorism, Appendix 1 - page 1 of 2
Jefferson County Comprehensive Emergency Management Plan
Medical surveillance: A reporting system (among public health authorities, hospitals, clinics, doctors,
pharmacies, and other health providers) that is intended to identify marked changes in number and type of
diseases normally found in the community. Usually the first indicator of an outbreak.
Outbreak: Multiple cases of a disease or condition in any area over a given period of time in excess of
the expected number of cases in the community.
Preventative Measures: Specific steps an organization shall take to reduce its vulnerability or increase
its ability to respond during a period of heightened alert (HSAS Directive 3).
Technical operations: A support component to both crisis management and consequences
management. Technical operations address the unique aspects of response such as identification of the
WMD agent or device; assessment of the threat; consultation with responders and planners concerning
implication of the WMD device; disarming, safe transfer, or disposal of a WMD agent or device; and
decontamination of affected persons or the environment.
Unified command: Representation from the lead agencies acting jointly to establish emergency
response strategy and collectively assuming overall coordination of an incident.
Quarantine: The separation or restriction on activities of a person having been exposed to or infected
with an infectious agent, to prevent disease transmission.
Weapons of mass destruction (WMD): Title 18, U.S.C. defines a weapon of mass destruction as any
explosive, incendiary, or poison gas, bomb, grenade, rocket having a propellant charge of more than four
ounces, missile having an explosive or incendiary charge of more than one-quarter ounce, mine or device
similar to the above; poison gas; any weapon involving a disease organism; or any weapon that is
designed to release radiation or radioactivity at a level dangerous to human life.
"Worried Well": Persons who believe they were exposed to illness or contamination when they were not.
Studies show the worried well contribute more than 10 times the numbers of persons seeking aid in a
medical emergency. Most drop out of the patient count rapidly.
April 8, 2002
Annex A: Terrorism, Appendix 1 . page 2 of 2
Jefferson County Comprehensive Emergency Management Plan
APPENDIX 2
IMPLEMENTATION STRATEGY
Responsibilities of Each Participating Department or Agency
In the Implementation of the Counter-terrorism Annex
Mitigation phase · Assess vulnerabilities and develop an inventory of potential terrorist
targets
· Develop mitigation strategies for the protection of vital department
facilities, services and equipment from the affects of terrorist incidents
· Establish personnel safety procedures to reduce the risk of harm from
the affects of terrorist incidents
· Consider funding requirements and support cooperative efforts to
obtain funds for terrorism impact mitigation
Preparedness phase · Establish internal plans and procedures for the implementation of
terrorist incident response according to the CEMP Terrorism Annex
(use Appendix 3 for guidance)
· Design and conduct, or participate in, training appropriate to terrorist
incident response roles
· Designate a representative (and alternate) to the Jefferson County
Counter-Terrorism Task Force when assigned
· Maintain ongoing inter-agency preparedness communication through
the Emergency Management Advisory Council of Jefferson County
and the Jefferson-Regional Emergency Planning committee.
· Participate in drills and exercises intended to maintain proficiency in
carrying out terrorism incident response roles
· Maintain a regular state of readiness for response to incidents as
needed
· Conduct a needs assessment, and pre-position and order equipment
and supplies needed to support counter-terrorism operations
· Determine the need for mutual aid and establish agreements as
needed to assure internal resources can be augmented in an
emergency
· Develop procedures for documentation and reporting of terrorism-
related expenditures to qualify for state or federal cost recovery
programs
· Develop procedures for interacting with the Unified Command at the
Emergency Operations Center when activated
March 19,2002 (Draft 1)
Annex A: Terrorism, Appendix 2 - page 1
Jefferson County Comprehensive Emergency Management Plan
Response phase · Activate internal plans and procedures for emergency response when
the Counter-Terrorism Annex is activated
· Mobilize agency assets
· Establish a line of communication with the Local Lead Agency through
the appropriate chain of command
· Contribute qualified personnel to Unified Command (or otherwise in
the Incident Command System) as required
· Deploy and coordinate agency resources according to plan
· Request and coordinate mutual aid resources according to existing
procedures
· Seek additional resources and logistics support through the
Emergency Management Division I Emergency Operations Center
· Recognize the joint release of emergency public information through
the Joint Information Center when activated
· Provide timely reports to the EOC on department/agency status and
conditions
· Carry out all the other emergency duties outlined in the
Comprehensive Emergency Management Plan
Recovery phase · Assist the Lead Agency in any criminal investigation that may be
ongoing following the emergency
· Support the Disaster Recovery Team as needed
· Submit detailed records of the agency's involvement in the incident,
including accounting for incident related costs
· Participate in the internal and joint debriefing process
· Review plans and procedures and make changes where needed
· Survey personnel, equipment, and training needs and make changes
where necessary
· Consider the mental health needs of agency personnel involved in a
critical incident
March 19,2002 (Draft 1)
Annex A: Terrorism, Appendix 2 - page 2
Jefferson County Comprehensive Emergency Management Plan
APPENDIX 3
PLANNING GUIDE
FOR LOCAL EMERGENCY RESPONSE AGENCIES
PURPOSE: This guide will help Jefferson County partner agencies generate internal procedures for
implementing counter-terrorism roles.
OBJECTIVES:
1. The composition of written step-by-step instructions on how to accomplish tasks assigned by
the Counter-Terrorism Annex.
2. The elimination of speculation as to what is required in an emergency by providing details for
department personnel.
THE PROCESS:
1. Assemble a planning team to assure input from the experts in you department.
2. Conduct a hazard vulnerability assessment in the agencies area of responsibility. Identify the
most likely terrorist targets based on the Hazard Identification and Vulnerability Assessment
(HIVA)1. Prioritize the potential targets in the event that response needs to be triaged.
3. Review existing department plans and procedures and conduct a brief needs assessment to
identify capabilities and limitations in performing the tasks assigned.
4. Compile the support plan (SOP) from the information collected using the guidance below. Use
the format shown or any other format that meets the needs of the department. Request
assistance from the Department of Emergency Management to review your plan for
consistency with the Counter-Terrorism Annex and the CEMP.
5. Participate in training, drills, and exercises necessary to assure implementation of your internal
procedures when the need arises.
PLANNING GUIDE:
1. The following chart shows some suggested elements of an SOP in support of the
Counterterrorism Annex. Compile the information, and add those elements that are important
to the department. Keep entries brief and to the point.
2. Include telephone numbers, resource lists, and other information helpful to rapid
implementation of the support plan. Be sure to update those lists frequently.
¡Published in the Jefferson County Comprehensive Emergency Management Plan. Contact the Department of
Emergency Management for assistance with potential target identification.
March 19, 2002 (Draft 1)
Annex A: Terrorism, Appendix 3 - page 1
Jefferson County Comprehensive Emergency Management Plan
TERRORISM INCIDENT RESPONSE
EMERGENCY RESPONSE PARTNER - SUPPORTING PROCEDURES
PLAN ELEMENT FUNCTION NOTES AND EXAMPLE WORDING
I. Identifies the purpose of the plan, "Establish a working protocol for
Mission or the action to be taken, and the implementation of this department's
Purpose reason. assignment in the Terrorism Response
Annex."
II. Identify department policies that "All department assets will remain
Policies and will impact and support how the under the operational control of the
Authorities department carries out the designated internal chain of
assignment. command."
III. Identify the organizational (department organization chart)
Command Structure structure, including chain of
command. Show how your
organization will interface with others
(Le., ICS, mutual-aid agreements,
etc.). Use an organization chart
(wiring diagram) to simplify this
process.
IV. Identify the department resources (resource list)
Resources (people, equipment, and facilities)
assigned to carrying out the counter-
terrorism assignment.
V. Use the assumptions to reduce the "All personnel will be familiar with the
Planning need for replication of detail found Incident Command System."
assumptions elsewhere.
"Standard EMS protocols, including
universal precautions, will be used by
department personnel in dealing with
victims. "
"Standing orders for personnel call-
back will be used to augment on-duty
personnel."
VI. Step by step details on how you Suggested elements may include:
Concept of expect things to happen. Consider a A. Initial response
Operations checklist format here. B. Requesting mutual aid
C. Mobilization of resources
D. Secondary notifications
E. Establishment of a base of
operations
F. Communications with the EOC
G. Etc.
March 19, 2002 (Draft 1)
Annex A: Terrorism, Appendix 3 . page 2
Jefferson County Comprehensive Emergency Management Plan
VII. Define department communications · Primary frequencies
Communications protocols · Alternates
· Call identifiers
· Cell phone numbers
· Etc.
VIII. Define special logistics needs and · Fuel
Logistics how material support will be · Food, shelter, and rehab.
provided to the organization in an · Equipment repair/replacement
emergency. · Transportation
· Etc.
IX. Include details on how the agency Cost tracking may be essential in
Finance and will track incident related costs, keep recovering some expenses in a long
Administration records, and control department term activation.
administrative matters.
Track only extraordinary expenses
directly related to the incident.
X. Discuss details of those special · Sio-terrorist indicators
Special Procedures procedures necessary to respond · Chemical element indicators
effectively and safely to a WMD · Technical information on hazards
event. Attach technical information and their characteristics
for first responders if appropriate. · Etc.
XI. Outline the department's safety · Personal Protective Equipment
Safety policy and procedures with regard to · Training and skill level
a counterterrorism response. · Personnel accountability
· Etc.
XII. Discuss the department's training
Implementation and equipment needs.
Attach a training scheme.
March 19, 2002 (Draft 1)
Annex A: Terrorism, Appendix 3 - page 3