SECTION V OTHER MITIGATION CONCERNS

SECTION V OTHER MITIGATION CONCERNS 16-1

Chapter 16 Information and Communications 16.1 Warning Systems When disaster mitigation efforts are unable to eliminate all risks of occurrence, further mitigation can occur through early warning. No only do key officials and facility operators and service providers need to be advised but residents within the hazard zone and the general public can also benefit from warning and communication. Methods of warning and communication include: Outdoor sirens, whistles and/or alarms Tone alert radio Pagers Emergency alert system (EAS) Telephone-automated dialers NOAA weather radio TV and Radio broadcast Cable override Vehicle mounted sirens and public address systems Door to door, person to person 16.1.1 Siren Systems Several communities have siren systems. The sirens have historically been used to notify volunteers of fire calls. Pagers have become the preferred method of contacting volunteers because more information can be transmitted. As a result, many of the sirens have not been maintained. Because of age and poor condition, some of these systems have been abandoned. Those that remain in use have three primary limitations. One is that many of the dispersed settlements are outside the audible range of working sirens. The population that can be alerted by the sirens is limited. In addition, topography and thick stands of tall trees frequently limit the transmission of sound in pockets within a siren s area. Secondly, because of their historic use to call out firefighters, often to meetings or training sessions, the general population has a tendency to ignore them. Thirdly, although a siren could attract attention, it cannot provide necessary information regarding a hazardous situation. At this time, no sirens in Marquette County are used for the purpose of warning the general public of hazards. 16.1.2 Door-To-Door Police and emergency service workers have gone through neighborhoods in vehicles with sirens, loud speakers, and visited individual sites to alert residents. However, that is time some residences may be overlooked due to areas with multiple branching roads and driveways. There have been budget cuts in many jurisdictions; there may be only one or two police vehicles on patrol outside the cities at any given time. The response time could be several hours if a patrol were handling a problem in a remote area. Detailed messages 16-2

are difficult to give or receive when delivered from a moving vehicle. Relying primarily on this method of warning will could result in delays that yield serious consequences. Several specific facilities have siren systems designed to alert workers and others in the immediate area of changes in operating conditions. However, unless an individual is familiar with the facility they may not be aware of the reason for the alarm. 16.1.3 Public Broadcast Media Local radio stations, television and cable companies have been used effectively to notify individuals regarding hazards, primarily those relating to weather. However, unless the individual has their radio, TV, or computer on the message will not be received. 16.1.4 Tone Alert Radio (NOAA Weather Radio) NOAA Weather Radio has also been used effectively to relay emergency information. There is good coverage in Marquette County (see Figures 4-1 through 4-3). It was used in conjunction with sirens and public address systems during the Tower Lake Fire to apprise residents of changing situations and the need to evacuate. The County s Emergency Services Division has encouraged all schools and nursing homes to have radios with an auto-on feature. This is when an emergency message is broadcast, it will be heard. This appears to be the most efficient means of providing warning, consistent, and up-to-date information to the public over large areas regarding emergency situations. While some individuals might be alerted of situations that are not in their immediate vicinity, new technology is making it possible to target broadcasts to specific localities. Major dams also have alarm systems that engage when a release occurs. Unfortunately, only those in the immediate area of the dam structure would receive the warning. While most dam operators have lists of inundation area property owners and their telephone numbers, using a NOAA emergency broadcast would simultaneously reach all of them. The County Emergency Services Division has suggested to one dam operator that they consider providing or subsidizing the purchase of weather radios for structures within the inundation area. Regardless of whether dam owners participate, the County should undertake a program to encourage all households and camps to have at least one weather radio, preferably with the auto-on feature and a back-up power source. 16.1.5 Telephone Recently there has been interest in several communities in the United States in developing reverse 9-1-1 systems. In a reverse 9-1-1 system, in addition to receiving emergency calls, the dispatch office could contact property owners with recorded warnings. Michigan s 9-1-1 legislation does not currently allow for the enhancement feature that identifies a caller s location and phone number to be used in this way. However, as the County s GIS is developed, areas at risk from a hazard situation could be 16-3

identified and mapped. When overlain with the tax code parcel layer, specific properties, and property owners could be identified. Using service addresses of the sites and/or the property owner s names, a database of telephone numbers could be generated from sources such as digital versions of phone books or the Polk Directory. It would probably be cost prohibitive for the County to maintain a bank of telephone lines in reserve for such a situation. However, it may be possible to contract with a call center (either locally or anywhere in the world) to use their system to place calls and relay a scripted message. The County should monitor use of Reverse 9-1-1 systems throughout the United States to determine if this option should be pursued. There are several areas of Marquette County where hard-wired telephone service is not available (see Figure 1-14 Telephone Service Area Boundaries, p. 1-35). Cellular use is widespread throughout the County. Data has been collected to conduct a GIS analysis of cell tower locations and topography to identify areas where reception may be marginal or unavailable. This work is being done by volunteer labor and no completion date has been set. 16.2 EMERGENCY RESPONSE COORDINATION Initial warning to potential victims is only one type of needed communication. Information must also be transmitted between emergency responders, government officials, the media, and the general public. Serious events will result in establishment of a command center. However, other support activities may occur at dispersed locations, such as township halls. Communication can be accomplished using telephones, cell phones, computers, radios (dedicated channel and broadcast), television, written messages, messengers, pagers, fax, and disaster status boards. Unfortunately, many units of government within Marquette County do not utilize e-mail or have fax machines. One township does not even have a telephone at their hall. Some do not have separate telephone lines dedicated to fax machines. Some do not have answering machines. The bare essentials for communication are telephones with answering machine and/or call forwarding, a fax machine, and a computer with e-mail service. Everyone has heard stories of a message being received but not getting through. It is essential that each jurisdiction have procedures for receiving, recording/logging, assigning, and delivering messages so that a timely response is possible. Once procedures are identified, it is essential to identify personnel (and back-up personnel) and train them regarding their duties. Contact lists should be updated on a regular basis. The necessary supplies should also be identified and kept available. For example, immediately following the September 11 terrorist attack one office ran out of rolled paper for an archaic fax machine. Their supplier (and other suppliers) had not replenished the stock since most rolled paper machines have been replaced with plain paper machines. Publications that address prevention, repair, and clean up should be kept in stock at the Emergency Service Office. 16-4

Several local units have adopted emergency management resolutions, which identify contacts, responsive parties, and criteria for issuing orders and evacuations. Each local unit should adopt (or update) a resolution that is consistent with the emergency management resolutions of the State of Michigan and the County of Marquette. A copy should be on file with the County Emergency Manager. For the safety of residents and emergency responders, existing ordinances should be reviewed to assure that evacuation orders could be enforced. 16.3 CENTRAL DISPATCH AND 9-1-1 SERVICE Marquette County has utilized a central dispatch for all emergency services for the past 25 years. Enhanced 9-1-1 service has been operational for approximately 10 years. The primary public safety answering point is at the central dispatch office, which is at the Negaunee State Police Post. In conjunction with the State s new 800-megahertz radio system, the Marquette County Central Dispatch moved the public safety answering point for the 9-1-1 emergency telephone system from the basement to the main floor. As part of the overall improvements, new equipment was installed which provides computer aided dispatch and map viewing software capabilities. At this time, viewing will be limited to the dispatchers terminals. As funds allow, visual displays could be added to patrol cars and other emergency response vehicles. The County s back-up answering point is at the City of Marquette Police Station. The old Central Dispatch consoles were incorporated into the back-up answering point, which also underwent renovation. With the installation of a new telephone system in the Central Dispatch Office, the old 9-1-1 computers may be moved to the City Hall and providing enhanced back up. The Michigan State Police Post is also the answering point for state police posts across the Upper Peninsula. Should the State system become inoperable, individual posts would be advised to activate and answer their own emergency calls. Consideration is being given to the Gaylord MSP Post serving as a back up to the Negaunee Post but no decision has been made at this time. Having a trained staff is as important as having up-to-date equipment. As use of visual displays is integrated into the system, training should be given to maximize the benefits derived from the equipment. Training is also desired for dispatchers so that they can upgrade their skills in handling calls relating to hazardous material incidents, domestic violence, school violence, or bio-terrorism. 16.4 EMERGENCY OPERATIONS CENTER A fixed-base emergency operations center is being developed in the former Central Dispatch office area making use of existing telephone lines. 16-5

An agreement has been reached with the Marquette County Health Department to use their mobile health-screening unit as a mobile emergency operations center, with sharing of costs. Consideration should be given to equipping both the fixed and mobile emergency operations centers with visual display equipment. 16.5 AMATEUR RADIO ( HAM RADIO ) The Hiawatha Amateur Radio Association, Inc. also aids in communications in the event of a disaster. They were active in the Tower Lake Fire. They also provide weatherspotting services. There are approximately 116 members, although not all of them are local residents. Member s ages range from 7 to 90 years. Most are licensed radio operators. The group meets weekly and holds two major training events each year. They offer their services at community events such as the Ore-to-Shore Bike Race, the Naquomenon Ski Race, and UP-200 Dog Sled Race. They have also hosted a Lighthouse on the Air event, setting up operations at the lighthouse in Marquette. In addition, they provide licensing tests four times per year. Other clubs in the Upper Peninsula also offer testing during alternate months. A variety of gear is available, some owned by individual members and others by the club. Included in this equipment are portable radios and a live TV to sound system, which can transmit and record simultaneously. They also have HF radios that can transmit and receive worldwide. Now, the group is without a clubhouse. The former meeting place was at the Emergency Services Office, when it was located at K. I. Sawyer. A temporary antenna had been set up and plans were being made for a permanent one. Since the office relocated to the State Police Post, the old location is no longer available. There is generally good tower coverage in the county. Antennae are located on the jail roof and at the Weather Station. There are three active repeaters. However, the club had an antenna on the DNR tower, which was hit by an airplane. When the tower was replaced, the Club was not allowed to replace that antenna. The ham radio operators cannot talk directly with patrol cars or central dispatch. Conversations can be auto patched through telephone lines. If needed, a temporary antenna could be set up at the Central Dispatch Office. 16.6 GEOGRAPHIC INFORMATION SYSTEM The County of Marquette obtained its first geographic information system software approximately 1990. Initial progress was slow, partly due to lack of staff training. Early efforts were based in part on the State s C-MAP software and MIRIS system. Considerable information was collected in that format. The County currently uses Arc View, since it allows attaching attribute data to points and shape files. Within the County, the following departments make use of GIS: Resource 16-6

Management/Development, Equalization, K. I. Sawyer Development Department/Sawyer International Airport and Business Center, and the Marquette County Road Commission. The County Health Department has expressed an interest, but is impeded by the physical separation from other county users. There are at least ten copies of Arc View GIS and two copies of Arc Info 8.2 available for County use. Other GIS Users in the County include: City Of Marquette City Of Negaunee Marquette Township Marquette County Road Commission Cleveland Cliff s Iron Company Northern Michigan University Central Lake Superior Watershed Council GIS Users from across the Upper Peninsula have formed an informal group that meets 2 to 3 times per year. The purpose of the group is to share ideas and concerns, exchange information and to display projects. One or more staff members at recent meetings have represented Marquette County. Although the County s GIS users have met in the past, the group is largely unstructured. Data is maintained on individual computers and some territorialism has been reported. Some data is backed up on the County s network, but those files are not accessible to everyone. In 2002, work began on updating the County s GIS Plan. Efforts continue to be made to implement the recommendations of the prior plan. Work is progressing on a policy for access to enhanced public records, agreements regarding intergovernmental sharing of data and a schedule of prices for data and GIS products. Information on all existing layers is currently being collected with the intention of dedicating a single server for storing the data and making access easier for all system users. (See Appendix H for a list of layers in the geographic information system). The Marquette County GIS is and will continue to be, a work in progress. New information is added daily to existing layers and additional layers are being created as need and time allows and as data become available. Some layers are more accurate than others. In some portions of the County, information is more accurate than in other locations. For instance, the Equalization Department maintains a parcel layer from the legal descriptions in the tax roll. These included both surveyed lots and metes and bounds descriptions, which may be vague or inaccurate. Some of the county has been remonumented, increasing accuracy in those locations. At K. I. Sawyer, extensive surveying occurred as part of the redevelopment efforts. Entire blocks were surveyed simultaneously and were carefully reviewed to assure accuracy. Those descriptions will have the highest accuracy, but represent only a fraction of the county s area. Not all layers are complete. Some do not provide countywide coverage. Others are missing features and associated data. The changing nature of information dictates that use of the GIS not be postponed because it is not complete. Ongoing needs of various 16-7

government departments will dictate the continued collection of data, improvements to, and expansion of the GIS. Hazard mitigation decisions continue to be made using the best available information. Having a policy of sharing of data between the County Departments and other outside agencies will help assure information that is available is in a useable format when it is needed. Now, only three county employees can be classified as proficient in the use of the GIS system. Requests have been made for additional training. Although Northern Michigan University offers a course in GIS, it is limited to a maximum of 15 students per semester. The City of Marquette hosts the Northern Michigan Public Service Academy, which has a computer lab where training is provided. Unfortunately, due to the cost of the programs, the computers in the training lab do not contain Arc View. Training is currently one-on-one as need arises and time permits. Some employees have access to Arc Explorer, which provides viewing capabilities but somewhat limited analysis capability. This is a free program. Consideration is currently being given to downloading Arc Explorer and introducing it to other employees. This would make existing data available to more employees. The county has made use of NMU interns and has seasonal employment of students to assist with creation of layers. Coordination of work schedules is required because of the limited availability of computers with Arc View programs. Having one or two good quality global positioning systems would assist in data collection and make layers more accurate. Having more than one unit would allow rapid collection of information in emergency situations. Having hand held units to use in data collection and emergency operations would be helpful, although at this point, GPS is more critical. 16.7 ADDRESS SYSTEMS In the early 1980s the County had identification signs for secondary county roads erected at all intersections of County Roads. They were re-inspected in the mid-1990s, with missing or damaged signs replaced at that time. The County used the RIMCOR system of letters, with all roads within a government beginning with the same letter. The second letter is based, to the extent possible, on the chronology of road construction. Newer roads branching off principal roads carry the two letters of the principal road plus a third, unique, letter designation. Thus, a road name identifies the political units as well as the road segment. The name of a road could change several times as the road crosses political boundaries. In addition, several local units still use (and display) common names for roads. Some of those road names are duplicated elsewhere in the county. The County s Resource Management/Development Department produced a white paper report on the RIMCOR System in 2003. Within Marquette County, each local unit of government is responsible for its own address system. There is no coordination along long primary county roads, which carry a 16-8

numeric designation for their entire length, or along long secondary roads. It is possible to have an address repeated one or more times, particularly if the address is served by different post offices. There are also a number of private roads, with common names that are discontinuous. This makes it difficult to determine how to best access a given segment or to identify on which segment an emergency is located. GPS readings have been taken on the centerlines of primary and secondary county roads. No readings have been taken on seasonal roads. Although the readings are accurate, no data was attached to any of the points. Road and GPS points need to be meshed to assign names and address ranges to various road segments within the GIS system. In addition, considerable work will probably be needed to coordinate tax numbers and address records with road segments and field addresses to assure accuracy. This work should be the cooperative effort of the core members of the County s GIS planning group. 16-9