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ADMINISTRATIVE REPORT
Date: April 29, 1996
TO: Vancouver City Council
FROM: Director of Risk and Emergency Management in conjunction with
The Emergency Management Committee
SUBJECT: Status Report on Emergency Management in the City
INFORMATION
The General Manager of Corporate Services submits the following
report for Council's information.
COUNCIL POLICY
In 1990, Council identified Emergency Preparedness as one of the City's
seven corporate priorities and supported the continuation of an expanded
work program in this area.
PURPOSE
The purpose of this report is to advise Council of Emergency
Preparedness Week, May 6-12, 1996, and to update Council on the progress
of emergency management initiatives ongoing in the City.
BACKGROUND
Emergency management in Vancouver encompasses initiatives which improve
the City's ability to respond to, withstand, and recover from a major
disaster, such as an earthquake. Its focus is on improving the
preparedness of City operations and facilities as well as improving the
overall preparedness of the community as a whole.
The City's emergency management efforts have been targeted at preparing
for a major earthquake. While the City could experience other
disasters, such as a hazardous materials spill or an airline crash,
being prepared for a major earthquake will ensure the City can cope with
other, less catastrophic emergencies as well.
DISCUSSION
A number of emergency management initiatives are underway:
a) Emergency Operations and Communications Centre (EOCC) and Shared
Radio System
In May 1995, the City of Vancouver began to develop a post-disaster
Emergency Operations and Communications Centre to house its police and
fire dispatch operations, the regional 9-1-1 system, and Vancouver's
emergency operations centre. The project has evolved into a
multi-agency, cross jurisdictional initiative. It is planned that the
facility will have redundant systems, full backup power, ability to
support extended 24-hour operations, and sophisticated communication
systems. In conjunction with the project the City and the RCMP are
partnering on the development of a shared wide-area radio system which
will meet the radio needs of response agencies across the lower
mainland. The EOCC and radio project will significantly enhance the
City's emergency response capability. The EOCC and radio projects are
scheduled for completion in 1998.
b) Seismic Upgrading of Bridges
An $11 million project to seismically upgrade the City's older bridges
is nearing completion. The First Avenue Viaduct is complete; the final
phase of the Granville Street Bridge will be completed by September
1996; and the first phase reinforcement of the Burrard Bridge is
complete with the final phase planned for 1997.
c) Structural Review of Civic and Private Buildings
The City's Permits and Licenses Department initiated a structural review
of all civic buildings as well as 1,100 privately-owned, older,
multi-occupancy buildings. The study has identified building types
which may be seismically vulnerable. This information will assist the
City in targeting its emergency response efforts and in establishing
priorities for upgrading programs.
Seismic upgrading of civic buildings, including two firehalls, has been
included in the current capital plan.
d) Salt Water Pumping and Drafting Stations
To ensure adequate water for firefighting, the City's Engineering
Department has initiated a 40 million dollar project to build three
saltwater pumping stations, serving the downtown peninsula and
Kitsilano. The first station at False Creek was completed last summer.
The second at Coal Harbour will be completed this summer. Downtown
pipeline installation is also beginning this summer. For better access
to alternate water supplies the City has installed a drafting station on
the Fraser River at Gladstone Park which will permit the Fire and Rescue
Services to relay pump to fire locations in this area. Additional
drafting facilities will be constructed this year and are proposed for
the next capital plan.
e) Drinking Water Storage and Transmission
City departments, in conjunction with the GVRD and local hospitals, are
undertaking a pre-design study on the feasibility of several reservoirs
-- totalling 40 million gallons -- to store drinking water, in the event
of interruptions to water supply. If approved, construction of the
first reservoir and associated transmission mains will occur as part of
the 1997-99 Waterworks capital plan. To help make the water system more
earthquake resistant, flexible water couplings are gradually being
incorporated into the water transmission lines.
f) Heavy Urban Search and Rescue Team (HUSAR)
Vancouver Fire and Rescue Services have initiated a three-year project
to develop heavy urban search and rescue capability in the event of a
building or structural collapse. A multi-jurisdictional team made up of
Fire, Police, Engineering, Permits and Licenses, Park Board, and B.C.
Ambulance personnel have completed Level I and II of the required rescue
training conducted in Pierce County, Washington. The team members
received training in basic and advanced rescue techniques as well as in
advanced equipment skills. In addition, 50 personnel from Fire and B.C.
Ambulance have received specialized "crush" injury training. Some
equipment, such as hand and power tools were purchased in 1995.
Additional tools and specialized equipment will be purchased this year.
Construction of HUSAR training facilities at the Fire and Rescue
Services training site will be completed by the end of the year.
The program has received funding support from the Federal-Provincial
Joint Emergency Preparedness Program.
g) Neighbourhood Emergency Preparedness Program
Vancouver Fire and Rescue Services are developing a neighbourhood
emergency response program. The basic concept is "neighbour helping
neighbour". Vancouver's program is being modelled after successful
neighbourhood programs in California, Washington and other British
Columbia communities. The program offers training modules to interested
neighbourhood representatives in personal/family preparedness and basic
rescue and response skills. Fire and Rescue Services have conducted
several awareness sessions for the program and are now finalizing
training materials.
Vancouver, along with other GVRD municipalities participates in a
regional neighbourhood preparedness committee to ensure consistency in
neighbourhood programs, share resources and training techniques and
investigate joint funding options.
h) Emergency Social Services Program (ESS)
Emergency Social Services (ESS) is a volunteer supported program
responsible for the provision of food, clothing, shelter, registration
and family reunification, basic medical care and related personal
services to disaster victims and response workers. In the event of a
disaster, the City would use its 22 community centres and the land
around them, as well as several back-up facilities to provide emergency
shelter and other ESS services. Agreements have been made with local
suppliers and volunteer agencies to provide emergency resources and
personnel.
An active volunteer management program, specialized training courses and
two practical exercises a year have helped in building the program to
now involve more than 800 volunteers.
Recently, as part of the continuing evaluation of Emergency Response
roles in the City, the Park Board has agreed to take over responsibility
for ESS. The Board will be conducting a full-scale Emergency Social
Services training exercise on June 1, 1996 at Britannia Secondary School
and Community Centre. The general public is invited to participate.
i) Departmental Emergency Plans/Emergency Operations Centre Plan
The City's key emergency response departments are expected to have their
emergency plans updated by May 1997, so that they can be tested in a
major simulation exercise at that time. The Vancouver Police Department
is leading a multi-departmental work group which is identifying the
roles and responsibilities of departments in the City's Emergency
Operations Centre.
j) Regional Emergency Coordination Centre
As part of the Emergency Operations and Communications Centre a regional
emergency coordination centre is being developed which will bring
together municipalities, hospitals, transportation agencies and
utilities in a major emergency. Representatives from participating
agencies are developing operating plans and protocols for the new
centre.
k) Training
More than 3,500 City employees have received training in
personal/family/work emergency preparedness. A core group of 45
trainers has been established to ensure that all staff receive this
training by the end of 1997.
Emergency Response Teams are also being trained at various City work
sites to assist in evacuating City buildings and providing necessary
first aid to staff in the event of an emergency.
Specialized training courses for staff with a key response role have
been conducted in conjunction with the Provincial Emergency Program
Academy-Justice Institute of B.C. Courses in emergency operations
planning, site management, evacuation planning, exercise design,
communications and emergency social services are offered on a yearly
basis.
Damage assessment training has been conducted for Permits and License,
and Housing and Properties staff and will be offered to other City
departments over the next two years. This training teaches
non-technical staff how to do a rapid assessment of structural damage.
l) Exercises
Exercises have proven to be an excellent training forum to test the
City's emergency operations capabilities. Exercises range from basic
operational orientation to table-top exercises, to full-scale
simulations. They help to: clarify roles and responsibilities; test
standard operating procedures; test equipment; reveal planning
weaknesses; reveal resource gaps; improve individual and departmental
performance; build confidence; and, promote public awareness.
Exercises conducted over the past year include:
- The Policy and Operations functions of the City's Emergency
Operations Centre conducted table-top exercises in November 1995,
to test information management, priority-setting and communication
processes.
- Vancouver Fire and Rescue Services, and the Vancouver Hospital were
involved in an exercise of setting up a 200 bed field hospital in
June 1995.
- The Vancouver Museum conducted a fire simulation including a full
evacuation of the facility in November 1995.
- The Emergency Operations Centre was activated for a terrorist
exercise, in conjunction with the RCMP and federal agencies in May
1995.
- The City's Emergency Social Services program was tested in two
reception centre (emergency shelters) exercises in June and
November 1995.
An ongoing exercise schedule for the next 3-5 years is planned which
tests all aspects of the City's Emergency Operations Centre. These
exercises will be supplemented by smaller departmental exercises.
m) Public Information
Over the past five years, the City has distributed more than 450,000
pamphlets on how to prepare for an earthquake. These are translated
into five languages and are available at community centres, libraries,
fire halls, and at City Hall. Information on earthquake preparedness is
also available on the City's home page on the Internet at
http:/www.city.vancouver.bc.ca.
A volunteer speaker's pool has been established to help with public
education programs. Volunteer speakers from agencies such as the
Canadian Red Cross, St. John Ambulance and the Vancouver Health Board
participate.
The annual Emergency Preparedness Week has been proclaimed for May 6-12,
1996. There is a public display on the main floor of City Hall which
includes information on personal preparedness and details the City's
preparedness initiatives.
n) Pan Pacific Hazards '96 Conference
The City is a sponsor of Pan Pacific Hazards '96, an international
conference and trade show focusing on earthquakes, tsunamis and
volcanoes. It is being organized as an important Canadian contribution
to the United Nations' International Decade for Natural Disaster
Reduction and will take place July 29 - August 2, 1996, at the Vancouver
Trade and Convention Centre. Some 2,000 delegates and speakers from
government, business and academic communities in 30 Pacific Rim
countries are expected to attend.
In conjunction with the conference, there is a free public day on July
31st, in which Vancouver will take the opportunity to highlight many of
its emergency management initiatives, including:
- Heavy Urban Search and Rescue demonstrations
- Fireboat Display
- Operational Emergency Reception Centre exercise
- Neighbourhood Program Display
- Fire Safety House
- Salt Water Pump Station tours.
The Conference is organizing an Elected Officials Tour on Public Day for
elected officials who are attending the conference.
o) Joint Emergency Liaison Committee
GVRD municipalities and the Provincial Emergency Program of the
Attorney-General's Ministry have coordinated the establishment of a
Joint Emergency Liaison Committee. The committee consists of senior
municipal and provincial representatives and is tasked with ensuring
that emergency planning is coordinated between municipalities and
provincial ministries. The Committee has identified six initial areas
of priority and cross jurisdictional working groups have been activated
to develop strategies for coordination.
The effect of this project will be to ensure that in the event of a
large disaster plans are in place which are coordinated across
municipalities and between municipalities and provincial ministries.
CONCLUSION
This report highlights the multi-jurisdictional nature of emergency
planning. The projects outlined involve City departments, external
agencies, volunteers, provincial ministries and the community. Only by
such widespread involvement and support can emergency planning be given
the priority and attention Council has placed on it.
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