EMERGENCY SUPPORT FUNCTION 2 COMMUNICATIONS ESF COORDINATOR Pierce County Department of Emergency Management JOINT PRIMARY AGENCIES Pierce County Department of Emergency Management Pierce County Information Technology Department Private Telecommunications Providers Public Safety Answering Points (E9-1-1 Dispatch Centers) SUPPORT AGENCIES Cellular and Telephone Companies National Weather Service Pierce County Fire Districts and Municipal Fire Departments Pierce County Hospitals Pierce County Schools Pierce County Sheriff s Department and Municipal Police Departments Radio Amateurs for Civil Emergency Services/Amateur Radio Emergency Services Regional Broadcasters Tacoma-Pierce County Health Department I. INTRODUCTION A. Purpose B. Scope 1. To provide guidance for the organization, establishment and maintenance of communications capabilities necessary to meet the operational requirements of Pierce County as a result of an emergency or disaster. 2. To provide guidance for the rapid alerting and warning to key officials, and dissemination of warning information of an impending or occurring emergency or disaster. 1. This ESF applies to the communications and warning resources within Pierce County and the emergency use of these resources. These resources include but are not limited to radio, video teleconferencing, E9-1-1, voice and data links, satellite, and landline and cellular telephone systems. Additional local and state resources include the Pierce County Alert System (PCALERT), National Warning System (NAWAS), the Emergency Alert System (EAS) and amateur radio. 2. This ESF will address telecommunications and warning operations separately. ESF 2: Communications/September 2014 1 of 12
II. POLICIES As resources and personnel may be overwhelmed, the county will endeavor to make every reasonable effort to respond to an emergency or disaster based on the situation and functional information resources available at the time. A. Priority in establishing communication systems within Pierce County is life safety first, followed by the protection of property, the environment and the economy, and the re-establishment of critical government functions. B. Pierce County will utilize normal communications systems as much as possible during an emergency or disaster. Some needs will be met by reprioritizing dayto-day frequency use to special emergency use. C. Pierce County will utilize public safety answering points (E9-1-1 dispatch centers) and other existing systems for the dissemination of emergency information and warnings. III. SITUATION A. Emergency/Disaster Conditions and Hazards Refer to the Pierce County Hazard Identification and Risk Assessment (published separately). B. Planning Assumptions 1. In the event of an emergency or disaster, significant outside help and support may not be available for 72 or more hours. Communications equipment, personnel, and procedures must be able to support emergency needs until additional assistance is available. 2. Pierce County Department of Emergency Management will implement the department s Continuity of Operations Plan (COOP), if required. 3. Disruption and damage to the telecommunications infrastructure will likely occur in the event of a natural emergency or disaster. The type and degree of damage will determine the effectiveness and efficiency of the response and recovery efforts. 4. Disaster situations could overpower whatever remains of the private sector infrastructure. 5. Emergency information dissemination will occur as soon as possible by whatever means available. 6. Communications will improve as systems are restored. 7. The high risk population will require a variety of warning systems (e.g. siren, EAS, Pierce County ALERT, door-to-door) that can address the ESF 2: Communications/September 2014 2 of 12
population s diverse communications needs (e.g. auditory impairment, visual impairment, limited English profieciency). IV. CONCEPT OF OPERATIONS A. General 1. Reliable telecommunications capabilities are necessary for day-to-day government operations, alerting and warning, managing response and recovery efforts, search and rescue missions, and coordination with other organizations. Telecommunications capabilities must be available for emergency management functions in the PC EOC, other EOCs, and in the field. 2. PC DEM is the primary point of contact for the communications industry support of the county infrastructure or response to a proclaimed county or regional disaster. PC DEM will prioritize conflicting requests for assistance from county agencies and first responders and recommend solutions. 3. An emergency or disaster may require the establishment of mobile communications assets, mobile command posts, or operations centers outside of the PC EOC. To facilitate on-scene command, control, and communications, the Director of PC DEM or the PC EOC Manager may order the deployment of these assets (MOCC/TAC). In addition, a Joint Information System (JIS) may be utilized to coordinate a variety of communication centers throughout the county, with the goal of consistent messaging from all agencies responding to the incident. 4. The PC EOC and the South Sound 911 Dispatch Center (SS911) maintain multiple levels of redundant voice and data communications capabilities (including backup power generation), for notification and warning of key officials and the public. B. Telecommunications 1. As the PC EOC is activated and staffed, the control of the county s communications equipment is vested in the Director of PC DEM or designee. 2. The Director of PC DEM may order county telephone and radio traffic to be restricted in order to facilitate the mitigation of the emergency or disaster. 3. Emergencies or disasters may require direct coordination with federal/military agencies within Pierce County, the SEOC, and other regional emergency management centers. Telephone landline and cellular systems cannot be relied upon for such contacts. Radio or other systems will be established and maintained for emergency use. ESF 2: Communications/September 2014 3 of 12
4. In addition to public safety communications coordinated through SS911, the PC EOC will establish direct radio communications with contracted cities and towns, essential services such as the American Red Cross, hospitals/medical services, and public health for response coordination and the sharing of information. 5. Alternate communications systems such as Amateur Radio Emergency Services (ARES) and other registered non-public safety communications groups such as Explorer Search and Rescue (ESAR) units, Civil Air Patrol (CAP), and Military Affiliated Radio System (MARS) will be used in a manner consistent with the PC EOC Communications Plan. 6. Local and regional disaster communication response will be coordinated through ARES, as prioritized by the PC EOC. A federalized response will be coordinated by RACES, as prioritized by the PC EOC. Most amateurs serve with both ARES and RACES so there is no jurisdictional complication within Pierce County. The PC ARES/RACES Coordinator will provide the PC EOC with contact and alternate contact information to facilitate a speedy deployment of resources. 7. Amateur radio communications systems located in the PC EOC can provide backup and supplemental communications to all major hospitals, American Red Cross, many fire stations, several EOCs located in small cities and towns and other agencies throughout Pierce County, and the SEOC. Method of communications will primarily be voice using all appropriate amateur radio frequencies, but also may include amateur packet radio (send/receive electronic data files), and amateur television as needs may dictate. Amateur high frequency communications will allow links to be established and maintained between regional and national partners and response agencies. 8. Pierce County Neighborhood Emergency Teams (PC-NET) may include amateur radio operators whenever possible to provide emergency communication links to/from the PC EOC. Frequency information will be provided by the Pierce County ARES/RACES Coordinator to the PC-NET Coordinator. 9. Some emergencies or disasters will be of such a scale and duration that trained communications staff may be exhausted. In this case selected volunteers or staff from non-responding agencies will be trained in emergency communications procedures as determined by the PC EOC Manager. 10. The PC EOC will coordinate with the county s communications supervisor and Information Technology Department representative for the assessment of county telecommunications and electronic communications infrastructure damages, in order to determine priorities and coordinate requested resources. 11. PC EOC has video telecommunications capabilities with SEOC, and King and Snohomish Counties EOC s. ESF 2: Communications/September 2014 4 of 12
12. The DEM Portal and WebEOC will be used to enhance effective and efficient PC EOC operations and information sharing. 13. Cellular and telephone companies will harden their infrastructure to ensure a reasonable level of operations during emergencies and disasters. C. Warning 1. PC DEM is the lead agency for developing county warning procedures utilizing existing capabilities. 2. The PC EOC will utilize public safety answering points (E9-1-1 dispatch centers) and other existing systems for the dissemination of information and warnings. 3. The Emergency Alert System (EAS) is the primary mechanism to disseminate life-saving information. The EAS provides local government a mechanism to issue emergency warnings through local broadcasters when the public must take immediate life saving actions. PC EOC compiles and authorizes the text message. SS911 transmits the message. When SS911 is unable, regardless of reason, to send the EAS message, the Washington SEOC will transmit it on their behalf. The EAS transmits warnings initiated by federal, state and local authorities, relying on radio and television broadcasters to relay messages to the public. Broadcasters are not legally required to relay state or local warning messages, yet are required to relay presidential messages initiated by the National Warning Center. Once the initial EAS warning is accomplished, the Pierce County Joint Information Center/System will disseminate the additional life safety information through the media (see ESF 15 External and Public Affairs). KIRO/KOMO TV are the local primary stations for EAS broadcasts. EAS messages are also relayed on all NOAA Weather Radio stations. All broadcasters monitor for original or relayed EAS messages, including from NOAA Weather Radio stations. However, unless the EAS message is the national EAN event code or the required monthly test (RMT); all other event codes such as Tornado, Tsunami or Volcano Warnings are voluntary for broadcasters to relay the EAS message over their air. 4. Pierce County ALERT can also be used to warn Pierce County citizens of actual or potential dangers. The system is an integrated service that is used to notify a designated geographic area of an emergency situation and can be considered to be a reverse E9-1-1 system. The service can call all landline telephone numbers in the 9-1-1 database (including TTY/TDD) (emergency alerts), all landline telephone numbers in the white pages (community alerts), and cell phones and other devices (including TTY/TDD) through the opt-in service for both emergency and community alerts. Pierce County ALERT will ring and call back until there ESF 2: Communications/September 2014 5 of 12
is an actual pickup on the other end. The recorded and/or written message (compiled by the EOC and/or JIC) will be transmitted over the phone or other device (including TTY/TDD). The message will include a brief situational report and emergency action steps for citizens to take. 5. Pierce County Outdoor Lahar Warning Sirens Pierce County DEM manages the Lahar Outdoor Warning Sirens. This is a network of outdoor warning sirens located throughout the Puyallup River Valley, beginning in Orting and ending in the Port of Tacoma. All of the sirens can be activated remotely via RF or Satellite Downlink. The Lahar Warning System is wired into the EAS. When a lahar is detected with the warning system, the trigger to blow the sirens also activates the EAS. 6. Door-to-door and megaphone emergency messages will also be used if appropriate. Pierce County Search and Rescue groups may be requested to assist with such notification. 7. Once the initial warning is accomplished, the task of keeping the public informed of the actions to take to prevent injury or property loss lies with the public information officer and the PC JIC/JIS. 8. The National Warning System (NAWAS) is the primary system used by the federal and state government to disseminate warnings. These warnings are primarily weather related. Warnings may originate from a variety of agencies and are received at the Washington warning point at the State Emergency Operations Center (SEOC) located at Camp Murray. The state duty officer then disseminates the warnings to jurisdictional warning points. West Pierce Fire & Rescue (WPF&R) is the primary warning point for Pierce County. The PC EOC is the secondary warning point. The SEOC, WPF&R and/or the PC EOC will notify affected municipalities. 9. The National Oceanic and Atmospheric Administration (NOAA) all hazards radio system may also be used to disseminate specific warnings or emergency information. Receipt of warnings and information is limited to those who monitor the NOAA weather radio. Direct contact with NOAA in Seattle may be accomplished in times of emergency using CEMNET or amateur radio. 10. National Weather Service Seattle also has permission to use the K7MMI repeater system throughout much of western Washington including Pierce County. If there is a major disaster such as a big wind storm, flood, snow storm, earthquake, hazmat, or volcanic eruption, local hams will help operate the amateur radio workstation on the K7MMI system at 147.20 MHz and 146.980 MHz. http://www.k7mmi.net. ESF 2: Communications/September 2014 6 of 12
11. Organizations that have their own communications system such as Pierce Transit and Puget Sound Energy may assist in supporting the emergency communications needs of the PC EOC. Several school districts also maintain large fleets of radio equipped buses which could be used to assist in large-scale evacuation, should such become necessary. Commercial bus and other transportation companies with radio capabilities may also be used. 12 PC DEM will also maintain a variety of accessible systems for alert of high risk individuals (TTY/TTD etc.) D. Mobile Command and Communications Vehicles 1. As part of DEM s effort to provide improved communications and situational awareness when responding to and managing emergency incidents, DEM maintains several mobile command and communications vehicles (MOCC/TAC) and assets. These vehicles provide communications interoperability by interconnecting disparate radio systems which enable real time communications with allied agencies. When deployed to an emergency scene these vehicles have the capability to provide airborne video downlink, telephone, internet access, and satellite television services to facilitate interagency interaction and quicker response and mitigation of an incident. The vehicles can also be configured to become independent incident command posts (ICP) with full communications coverage as well as command and control capabilities. 2. Mobile command capabilities: a. Support local government communications in the event of a catastrophic infrastructure failure as a result of an emergency or disaster by providing a link between allied agencies and first responders. b. Provide interoperable communications between participating agencies, receive streaming video from the county and allied agency aircrafts, provide a 360 degree view of the incident, access to multiple phone options (satellite and cellular), mapping programs, internet service, fax, copy, and print. c. Maintain on-scene contact with the PC EOC, and other federal, state, city, and county emergency management organizations and support groups. d. Provide on-scene coordination for county and other allied agencies conducting emergency operations in support of local government. e. Supply laptops, scene lighting, generators, inflatable operations tent, and the ability to remotely connect phone, radio, and internet systems to external sites for emergency operations as required. f. The MOCC is further tasked as a regional communications interoperability support unit and is subject to deployment out of Pierce County, depending on emergency or disaster needs. ESF 2: Communications/September 2014 7 of 12
g. In keeping with the role of communications interoperability of the MOCC, agreements will be established and maintained by the PC DEM Communications Division to ensure full functionality of all equipment which may be called upon in an emergency. These alternate communications systems shall be identified, maintained, and tested quarterly for use in the event the existing government systems are damaged and rendered inoperable. High frequency (HF) radio capability will be provided through RACES which is supported by ARES. In addition, the MOCC and PC EOC will maintain liaison with representatives of other groups using HF communications such as the SEOC, CAP, MARS, and FEMA. E. Special Considerations V. RESPONSIBILITIES 1. The outbreak of a contagious disease requiring quarantine and isolation or other actions will pose challenges unique to the contagion and the scope of the outbreak. The typical emergency response will not occur. The Tacoma-Pierce County Health Department, lead agency in coordinating this type of response, may require additional communications resources that are not routinely available. The PC DEM Communications Division will make provisions to provide local public health officials with basic radio communications equipment and training so that their activities may be effectively coordinated with PC DEM/PC EOC. 2. The Port of Tacoma presents potential for chemical or radiological hazards and while physically located within the City of Tacoma, any significant incident will affect surrounding jurisdictions. Special landline, radio links, data links, and other appropriate forms of emergency communications will be developed, maintained, and regularly tested with first responders and other agencies that have the potential of being impacted by such an incident. Those agencies include but are not limited to: A. Joint Primary Agencies United States Coast Guard Port of Tacoma Security Puyallup Tribal Police Surrounding municipalities 1. Pierce County Department of Emergency Management Lead agency for the development and maintenance of county warning procedures using existing capabilities. a. Communications Division ESF 2: Communications/September 2014 8 of 12
i ii iii Lead agency for the management and/or restoration of radio communications capabilities for Pierce County departments. Identify public and private communications facilities, equipment, and personnel located throughout Pierce County and surrounding areas which would support emergency communications needs in case of an emergency or disaster. These resources will include but are not be limited to emergency communications vehicles, command posts, government entities, amateur radio personnel and Explorer Search and Rescue groups. Provide emergency radio communications facilities at the PC EOC or an alternate facility as may be required under the PC DEM Continuity of Operations Plan. b. E9-1-1 Administration Division i ii iii iv v Lead agency for the coordination of the restoration of the E9-1-1 service. Identify and coordinate communications priorities during the response and recovery phases of the emergency or disaster. Compile clear, concise and accurate information for the initial warning messages for the county. Activate the Pierce County Joint Information Center when indicated. (See ESF 15 External and Public Affairs.) Relay warnings and emergency information to affected municipalities. 2. Information Technology Department a. Provide telecommunications equipment and software support for the PC EOC. b. Provide protection and restoration of the county e-mail system. c. Provide liaison with telephone service providers for the reestablishment of telephone capability to county government. d. Support Pierce County ALERT and WebEOC technologies and hardware. 3. Public Safety Answering Points (E9-1-1 Dispatch Centers) a. Develop plans for the management of communications priorities during times of high usage. b. Maintain primary frequency communications to receive and relay emergency calls. c. Use alternate methods of communications to relay emergency information when services are disrupted. d. Develop procedures for emergency restoration of communications. ESF 2: Communications/September 2014 9 of 12
e. Disseminate warning information to other public safety answering points (E9-1-1 dispatch centers) when indicated, PC EOC or duty officer and field units. f. Continue day-to-day operations. 4. Private Telecommunications Providers B. Support Agencies a. Assess and restore E9-1-1 infrastructure. b. Send representative to PC EOC or primary public safety answering points (E9-1-1 dispatch centers) when requested. 1. Pierce County Fire Districts and Municipal Fire Departments a. Support the communications priorities determined by the PC EOC. b. Disseminate emergency information to residents and businesses as resources allow. 2. Pierce County Sheriff s Department and Municipal Police Departments a. Support the communications priorities determined by the PC EOC. b. Disseminate emergency information to residents and businesses as resources allow. 3. Regional Broadcasters - KIRO/KOMO TV Relay EAS messages and accurate emergency information. 4. Radio Amateurs for Civil Emergency Services (RACES) Coordinate and provide amateur radio emergency communications in the PC EOC and at designated facilities as resources allow. 5. Cellular and Telephone Providers a. Harden infrastructure to ensure reasonable level of operations during emergencies and disasters. b. Collaborate with Pierce County Terrorism Early Warning (TEW) for the purpose of cooperative emergency operations. 6. National Weather Service Distributes weather information, flood information, and other warnings/emergency information as necessary. 7. Other agencies as appropriate to the incident, such as the Tacoma-Pierce County Health Department, Hospitals, School Districts, may distribute emergency information. ESF 2: Communications/September 2014 10 of 12
VI. REFERENCES Emergency Alert System Pierce County Activation Procedures Pierce County Joint Information Center Plan Pierce County Emergency Operations Center Plan Central Puget Sound Area Emergency Alert System Plan State of Washington Emergency Alert System Plan State of Washington Radio Amateurs for Civil Emergency Services (RACES) Washington State Military Department Emergency Management Division 2-Way Radio Systems Information Inventory of State Government-Operated Public Safety Communications Systems: A report prepared by the State Interoperability Executive Committee Statewide Public Safety Communications Interoperability Plan; Inventory Raw Data Report MOCC Operations Guide Pierce County ALERT SOP VII. TERMS AND DEFINITIONS See CEMP Base Plan Appendices 1 and 2 VIII. ATTACHMENTS None ESF 2: Communications/September 2014 11 of 12
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