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Basic Emergency

Operations Planning

September 2009

Emergency Operations Plan Annex Template

National Preparedness Directorate (NPD)

Basic Emergency Operations Planning Emergency Operations Plan Annex Template

1

H o w t o U s e t h i s Te m p l a t e

The Emergency Operations Annex Template follows the plan format established in the

Federal Emergency Management Agency’s (FEMA) Comprehensive Preparedness Guide

(CPG) 101: Developing and Maintaining State, Territorial, Tribal, and Local

Government Emergency Plans, March 2009.

Please note that this template contains guidance language and sample language that can

be discarded or used in part or in whole at the decision of the jurisdiction. Bold text in

parentheses is guidance information and regular text is sample language. Guidance

information should be deleted before finalizing your annex, and sample language should

be modified to reflect your jurisdiction. All underlined text in parentheses must be

replaced with jurisdiction-specific input, such as the name of your jurisdiction, name of

your emergency management agency, etc.

This template can be used to develop other items to support an emergency operations

plan (EOP), such as an appendix, a functional annex, an emergency support function

(ESF) annex, an incident annex, or a support annex. Functional annexes can cover issues

such as direction and control, continuity of government/operations, communications,

warning, emergency public information, evacuation, mass care, health and medical, or

resource management. ESF annexes identify the ESF coordinator and the primary and

support agencies for each ESF. Incident annexes describe the policies, situation, concept

of operations, and responsibilities for particular hazards or incident types. Support

annexes describe the framework through which a jurisdiction’s departments and agencies,

the private sector, not-for-profit and volunteer organizations, and other nongovernmental

organizations (NGOs) coordinate and execute the common emergency management

strategies.

Within the template are formatting functions that create main headings, subheadings, and

multiple listings with ease. The following is a sample portion of the annex with

instructions for using the template in an efficient and effective manner. All instructions

will be in bold enclosed in brackets. Following the annex sample is a quick reference

chart of features and functions, with their corresponding actions.

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I. Purpose, Scope, Situation, and Assumptions [At the main heading level, Roman numeral bullet numbering is used, and is defined as Outline in the STYLE feature. To

enter body text following a main heading, hit the ENTER key and change the STYLE

feature to Body Text. To proceed to the next main heading, and to the next Roman

numeral, hit the ENTER key and change the STYLE feature to Outline.]

A. [At the subheading level, the template uses capitalized letters and is defined as OL2 in the STYLE feature. To get to this level after writing body text, hit the

ENTER key and change the STYLE feature to OL2. If a subheading is needed

immediately following a main heading, then simply hit the ENTER key and then

the TAB key and the subheading style will change and update automatically. If

text is needed following the subheading level, hit the ENTER key and change the

STYLE feature to OL2_Text. The next section demonstrates these features. This

template is designed to continue in this manner through outline level 7 (i.e., OL7

and OL7_Text).]

B. Purpose

It is the purpose of this annex to define the actions and roles necessary to provide

a coordinated response within (Name of Jurisdiction).

This annex provides guidance to agencies within (Name of Jurisdiction) with a

general concept of potential emergency assignments before, during, and following

emergency situations.

C. Scope

This annex applies to all departments and agencies of (Name of Jurisdiction).

D. Situation Overview

1. [At the multiple listing level, the template uses a standard numbering format, and is defined as OL3 in the STYLE feature. As with moving from

a main heading to a subheading, hitting the TAB key after a subheading

will change and update the new multiple listings automatically.]

2. Characteristics

3. [To move back and create a new subheading or main heading after completing a multiple listing, hit the ENTER key and change the STYLE

feature to either OL2 for a subheading or Outline for a main heading.]

E. Planning Assumptions

1. Terrorist attacks may be directed at government facilities, public and private institutions, business or industry, transportation, and individuals or

groups. Such acts may involve arson, shootings, and bombings, including

Basic Emergency Operations Planning Emergency Operations Plan Annex Template

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the use of chemicals, biological agents, radiological dispersion devices, or

nuclear detonations.

2. Terrorist attacks may or may not be preceded by a warning or a threat, and may at first appear to be an ordinary hazardous materials incident. Attacks

may occur at multiple locations and may be accompanied by fire,

explosion, or other acts of sabotage.

3. Devices may be set off to attract and then injure emergency responders.

4. Effective response to the use of chemical, biological, radiological, nuclear, and high-yield explosives (CBRNEs) may require:

a. [At times, a multiple sub-listing level is required. To achieve this, the template uses lowercase lettering, and is defined as OL4 in the

STYLE feature. As with moving from a subheading to a multiple

listing, hitting the TAB key after a multiple listing will change and

update a new multiple sub-listing automatically. To continue

adding multiple sub-listings, hit the ENTER key after each sub-

listing until the listing is complete. To move back to another

heading or listing level, change the STYLE feature to OL3 for the

multiple listing level, OL2 for the subheading level, or Outline for

the main heading.]

b. Specialized equipment to detect and identify chemical, biological, or radiological hazards.

Basic Emergency Operations Planning Emergency Operations Plan Annex Template

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Template User Instructions Quick Reference

Feature/Function Corresponding Action

ENTER Key Moves to next sequential item within a specific heading or listing

level (e.g., moves from I. Purpose to II. Concept of

Operations)

TAB Key Changes to the item within the next heading or listing level (e.g.,

moves from II. Concept of Operations to A. Location)

SHIFT + TAB Keys Changes to the item within the previous heading or listing level

(e.g., moves from A. Location to II. Concept of Operations)

STYLE Feature:

 Outline

 Body Text

 OL2

 OL3

 OL4

I. Main Heading Level (Outline)

Paragraph containing subject matter specific to the topic

covered in the Annex. (Body Text)

A. Subheading Level (OL2)

1. Multiple Listing Level (OL3)

a. Multiple Sub-Listing Level (OL4)

Basic Emergency Operations Planning Emergency Operations Plan Annex Template

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A n n e x ( A ) : ( N a m e o f A n n e x )

I. Purpose, Scope, Situation, and Assumptions

(The purpose section should describe the purpose of the annex. The scope section

should describe to whom the annex applies. The situation overview should describe

the geographic characteristics and hazards. The assumption section should include

reasonable statements assumed to be true. The following is sample language.)

A. Purpose

It is the purpose of this annex to define the actions and roles necessary to provide

a coordinated response within (Name of Jurisdiction). This annex provides

guidance to agencies within (Name of Jurisdiction) with a general concept of

potential emergency assignments before, during, and following emergency

situations. It also provides for the systematic integration of emergency resources

when activated and does not replace county or local emergency operations plans

or procedures.

B. Scope

This annex applies to all participating departments and agencies of the

jurisdictions contained within the geographical boundary of (Name of

Jurisdiction).

C. Situation Overview

1. Characteristics

a. Location

i. (Name of Jurisdiction) includes (Name of City/County 1) and (Name of City/County 2).

b. Geographic

i. (Name of City/County 1) is the fifth largest (City/County) in the state. (Name of City/County 2) lies west of (Name of

City/County 1) and is the gateway to the jurisdiction. A

map illustrating the areas covered by the annex is as

follows.

c. Demographic

i. (Name of Jurisdiction) has a population of 950,000 residents as of July 1, 2007. Daytime population in (Name

of Jurisdiction) exceeds 1,020,000 due to large commercial

and industrial areas in the southeastern portion of the

jurisdiction. The jurisdiction is also a popular base for

Basic Emergency Operations Planning Emergency Operations Plan Annex Template

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outdoor adventurists, attracting a large number of tourists

each year.

d. Designated Areas of Interest

i. Two State parks within the jurisdiction are visited by over 1 million tourists during the months of June, July, August,

and September.

e. Special Events

i. In mid-August the (Name of Jurisdiction) hosts the State County Fair for two weeks. The fair is usually attended by

750,000 people.

f. Economic Base and Infrastructure

i. (Name of Jurisdiction)’s economy has evolved from its traditional tourism and textile dependence into one of great

diversity. Today’s commercial and industrial

manufacturing base is complemented by solid and growing

trade and service sectors. Much tourism activity is centered

around (Capital City/County Seat). This economic

diversification has helped create new employment and

smooth the impact of cyclical swings. As a result,

unemployment rates have been below State and national

averages since 1987. Finances have improved with three

years of surplus operations and are expected to be further

strengthened by solid operating results in 2008.

2. Hazard Profile

a. Potential Hazards

(City/County/State) is subjected to the effects of many disasters,

varying widely in type and magnitude from local communities to

statewide in scope.

Disaster conditions could be a result of a number of natural

phenomena such as avalanches, earthquakes, floods, severe

thunderstorms, high water, drought, severe winter weather, fires

(including urban, grass, and forest fires), epidemics, severe heat, or

high winds. Apart from natural disasters, (City/County/State) is

subject to a myriad of other disaster contingencies, such as

derailments, aircraft accidents, transportation accidents involving

chemicals and other hazardous materials, plant explosions,

chemical oil and other hazardous material spills, leaks or pollution

problems, dumping of hazardous wastes, building or bridge

collapses, utility service interruptions, energy shortages, civil

disturbances or riots, terrorism, warfare, applicable criminal acts,

or a combination of any of these.

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3. Vulnerability Assessment

a. (Name of City/County 1)

The vulnerability assessment checklist for (Name of City/County

1) is shown below.

b. (Name of City/County 2)

The vulnerability assessment checklist for (Name of City/County

2) is shown below.

D. Planning Assumptions

1. Effective prediction and warning systems have been established that make it possible to anticipate certain disaster situations that may occur

throughout the jurisdiction or the general area beyond the jurisdiction’s

boundaries.

2. It is assumed that any of the disaster contingencies could individually, or in combination, cause a grave emergency situation within (Name of

Jurisdiction). It is also assumed that these contingencies will vary in scope

and intensity, from an area in which the devastation is isolated and limited

to one that is wide-ranging and extremely devastated. For this reason,

planning efforts are made as general as possible so that great latitude is

available in their application, considering they could occur in several

locations simultaneously.

3. Initial actions to mitigate the effects of emergency situations or potential disaster conditions will be conducted as soon as possible by the local

government.

4. Assistance to the affected jurisdiction(s) response organizations from another jurisdiction(s) is expected to supplement the efforts of the affected

jurisdiction(s) in an efficient, effective, and coordinated response when

jurisdiction officials determine their own resources to be insufficient.

5. Federal and State disaster assistance, when provided, will supplement, not substitute for, relief provided by local jurisdictions.

6. It is the responsibility of officials under this annex to save lives, protect property, relieve human suffering, sustain survivors, repair essential

facilities, restore services, and protect the environment.

7. When a jurisdiction receives a request to assist another jurisdiction, reasonable actions will be taken to provide the assistance as requested.

8. Official requests for assistance from other recognized or authorized organizations and agencies may also receive assistance.

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II. Concept of Operations

(The concept of operations section should describe the general sequence of the

planned response.)

A. General

(This section should contain general information about the tasks that need to

be completed to ensure an effective response. This section can also serve as

an introduction to the tasks outlined below. The tasks below represent a

logical flow of response from the time an impending or actual emergency or

disaster situation is perceived through recovery.)

1. (City/County) commissioners may declare local states of emergency and request State assistance. All requests for State assistance should go

through the local emergency management area coordinator and the

appropriate emergency management branch manager to the State

Emergency Operations Center (EOC).

2. When the State EOC is activated, the (Name of Emergency Management Agency) becomes the office of primary responsibility for the State

Emergency Response Team (SERT). The director of emergency

management will normally serve as SERT Leader.

3. (County) EOCs will serve as clearinghouses for response and recovery operations and for deployment of resources within the counties, including

cities within the counties.

4. Planning for recovery will be implemented at the same time local governments are taking the emergency response actions necessary to

protect the public. Preparations will be made for rapid deployment of

resources necessary to facilitate recovery.

B. Hazard Control and Assessment

(This section should describe, in general, the capabilities and processes the

jurisdiction has in place to identify, analyze, gain control of, and monitor

hazards that may affect the jurisdiction. The response activities listed below

normally take place at a scene. Not all emergency and disaster situations

have a scene, so these activities apply to many but not all hazards. The first

activity, which is to perceive the threat, applies to all hazards. The activities

are ordered steps listed below. The following is sample language.)

1. Perceive the threat

2. Assess the hazard

3. Select control strategy

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4. Control hazard

5. Monitor hazard

C. Protective Action Selection

(This section should describe, in general, the capabilities and processes the

jurisdiction has in place to select protective action strategies and actions. The

response activities listed below normally take place at an EOC. In some

cases, information from the scene must be communicated to the EOC for

these tasks to be done properly. Ordered steps for protective action selection

are as follows. The following is sample language.)

1. Analyze the hazard

2. Determine protective action

3. Determine public warning

4. Determine protective action implementation plan

D. Public Warning

(This section should describe, in general, the capabilities and processes the

jurisdiction has in place to disseminate public warning messages to the public

as to the nature of the hazard, the timing, and the recommended or required

protective actions the public should implement. The following is sample

language.)

1. Determine message content

2. Select appropriate public warning system(s)

3. Disseminate Public Warning

E. Protective Action Implementation

(This section should describe, in general, the capabilities and processes the

jurisdiction has in place to implement the range of protective actions that

may be required for various hazards. The response activities listed below are

examples of activities that may be required to implement protective actions

in response to certain types of hazards. The following is sample language.)

1. Monitor progress of protective action implementation

2. Control access and isolate danger area

3. Evacuation support

4. Decontamination support

Basic Emergency Operations Planning Emergency Operations Plan Annex Template

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5. Medical treatment

6. Special population support

7. Search and rescue

F. Short-term Needs

(This section should describe, in general, the capabilities and processes the

jurisdiction has in place to address the short-term needs of the population

once the population has been protected from the hazard. The response

activities listed below are examples of activities that may be required in the

early stages after a disaster has occurred. These activities can help stabilize

the jurisdiction and the affected population. The following is sample

language.)

1. Shelter operations

2. Unite families

3. Continued medical treatment

4. Increase security

5. Stabilize the affected area

G. Long-term Needs

(This section should describe, in general, the capabilities and processes the

jurisdiction has in place to restore the jurisdiction and its affected population

to a “normal” state. The response activities listed below are examples of

activities that may be addressed in this section. The following is sample

language.)

1. Re-entry

2. Recovery

III. Organization and Assignment of Responsibilities

(The organization and assignment of responsibilities section establishes the

organizations and agencies that will be relied upon to respond to a disaster or

emergency situation. This section also includes tasks that these organizations and

agencies are expected to perform. The following is sample language.)

A. General

Most departments/agencies of government have emergency functions in addition

to their normal, day-to-day duties. These emergency functions usually parallel or

Basic Emergency Operations Planning Emergency Operations Plan Annex Template

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complement normal functions. Each department/agency is responsible for

developing and maintaining its own emergency management procedures.

B. Organization

(This section should list the organizations and agencies that have

responsibilities in this annex. The annex should ensure that any unique

organizational arrangements pertinent to the emergency function are

adequately described. Several strata of organizations should be included.

Each organization should be listed separately and by its official title. The

following is an example of the types of agencies and organizations included in

many annexes.)

1. Chief elected officials

2. Homeland security and emergency management agencies

3. Law enforcement agencies

4. Fire departments

5. Emergency medical services agencies

6. Health departments

7. Hospitals

8. Public works agencies

9. Departments of education

C. Assignment of Responsibilities

(Primary and supporting emergency function responsibilities should be

assigned to specific departments, agencies, and other organizations. The

annex assigns general responsibilities for emergency functions during

emergencies. These tasks should be clearly defined and assigned to the

departments and agencies that have the capability to perform them.

Coordination requirements should also be described. The assignment of

responsibilities listed below is an example of what can be found in many

annexes, but remember that each assignment of responsibilities list must be

tailored for each particular jurisdiction. In order to be National Incident

Management System (NIMS) compliant, this section should pre-designate

functional area representatives to the EOC or to work within the multi-

agency coordination system. A simple statement indicating that each

organization listed below will send a representative to the EOC upon

activation of the annex will ensure that the annex is NIMS compliant.)

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1. Chief Elected Officials

a. Disaster declarations

b. Evacuation orders

c. Re-entry decisions

d. Other protective action decisions as necessary

2. Homeland Security and Emergency Management Agencies

a. EOC staffing and functioning

b. Communications

c. Operations of the shelter system in conjunction with the American Red Cross

d. Emergency public information

e. Alert and warning systems

f. Assistance from other jurisdictions

g. State assistance

h. Federal assistance

i. Emergency control and use of resources

j. Homeland security and emergency preparedness training and education

k. Rumor control

l. Damage assessment

m. Comprehensive homeland security and emergency preparedness planning

3. Law Enforcement Agencies

a. Maintaining law and order

b. Controlling traffic

c. Protecting vital installations

d. Controlling and limiting access to the scene of the disaster

e. Supplementing communications

f. Assisting with all evacuation efforts

g. Search and rescue

4. Fire Departments

a. Providing fire protection and the combating of fires

b. Search and rescue

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c. Decontamination

d. Damage assessment

5. Emergency Medical Services Agencies

a. Emergency medical transportation

b. Emergency medical treatment

c. Triage or assisting with triage

d. Assisting with special needs evacuation

6. Health Departments

a. Emergency medical care information and coordination

b. Emergency hospital treatment information and coordination

c. Medical support to shelters

d. Health advisories

e. Identification of local health facilities, including hospitals, clinics, dialysis centers, and nursing or rehabilitation centers, supplying

and using medical and health items

f. Identification of special needs populations, including the elderly and very young, and populations requiring specific life-saving

services (e.g., dialysis or assistance with breathing)

g. Emergency interment coordination

h. Insect and rodent control

i. Pest control as required

j. Inoculations for the prevention of disease

k. Sanitation

7. Hospitals

a. Emergency medical care

b. Limited on-site decontamination

c. Hospital evacuation

d. Traditional hospital medical services

8. Public Works Agencies

a. Maintaining designated major streets and avenues, highways, and other designated routes of travel

b. Assisting with heavy rescue

c. Decontamination

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d. Engineering services as required

e. Transportation

f. Debris removal

g. Inspection of shelter sites for safe occupancy

h. Inspection of damaged buildings, public and private, for safe occupancy

i. Enforcement of building codes

j. Maintenance of vehicles and other essential equipment of the various departments and agencies

k. Development of a plan of priorities to be used during the period of increased readiness that addresses the repair of vehicles and

equipment

l. Maintenance of a reserve supply of fuel

m. Provisions for the immediate repair of emergency service vehicles and equipment, both in the field and in the shop, as the situation

permits

9. Departments of Education

a. Providing the use of facilities for emergency public education

b. Providing facilities for emergency housing of evacuees and relief forces

c. Providing facilities for emergency first aid stations, emergency hospitals, or emergency morgues

d. Providing personnel for shelter managers and staff

e. Providing recreation plans for shelter occupants’ use during shelter-stay period

f. Coordinating transportation

D. Support Functions

(This section describes responsibilities or capabilities of other entities beyond

direct jurisdictional control that are known to support, or are capable of

supporting, disaster response or recovery within the jurisdiction. Examples

of some support functions are shown below.)

1. Support from the National Guard may be requested through the State office of emergency management. Military assistance will complement

and not be a substitute for local participation in emergency operations.

Military forces will remain at all times under military command, but will

support a

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