County-wide Emergency Operations Plan (Base Plan)

EMERGENCY

OPERATIONS PLAN

(BASE PLAN)

CUYAHOGA COUNTY

Executive Armond Budish

ii | P a g e

PREFACE

In Cuyahoga County, the management of emergencies begins

well before they strike through collaborative planning and

capacity building. The public, private, and non-profit sectors, as

well as individual citizens, must work together to prevent, protect

against, mitigate, respond to, and recover from the threats and

hazards that pose a risk to Cuyahoga County.

The Cuyahoga County Emergency Operations Plan represents a combination

of best practices, collaborative planning, and lessons learned from real world

responses. The plan is designed to save lives, reduce injuries, and limit property

damage before, during, and after an emergency. It describes the notification

and communications process, as well as how resources are mobilized and

coordinated in support of the local jurisdiction that retains primary responsibility

for the safety of its citizens during an emergency.

This plan supersedes all previous versions and may be modified only upon my

approval or, under the appropriate circumstances, upon approval of the Chief

Community Safety and Protection Officer, the Director of Public Safety and

Justice Services, or the Manager of the Office of Emergency Management.

Upon my authorization, this plan may be fully or partially activated to manage

natural, technological, and human-caused incidents that occur in Cuyahoga

County. All Cuyahoga County employees shall support this plan and carry out

their responsibilities as required by this document.

iii | P a g e

APPROVAL

This plan was developed in collaboration between the Cuyahoga County Office

of Emergency Management and the Cuyahoga County Emergency Services

Advisory Board (CCESAB), representing the municipalities of Cuyahoga County.

The signatures below attest approval of the plan and agreement to support the

plan and carry out responsibilities described therein.

iv | P a g e

Executive Summary

The Emergency Operations Plan (EOP) establishes a framework to ensure that

Cuyahoga County is prepared to respond to all hazards that threaten the lives

and property of its citizens. The EOP outlines the general responsibilities of

Cuyahoga County governmental departments, partnering agencies, and

community organizations in responding to an emergency event. This plan unifies

the efforts of these groups to implement a comprehensive approach to reducing

the effects of a disaster.

The EOP addresses the four phases of an emergency (preparedness, response,

recovery, and mitigation), parallels the State of Ohio and Federal activities set

forth in the National Response Framework (NRF), and describes how Cuyahoga

County, the State of Ohio, and national resources will coordinate their response

and recovery operations.

The Cuyahoga County EOP contains two elements:

1) The Base Plan – outlines purpose, scope, organization, and methodology by

which the Cuyahoga County Office of Emergency Management enables

Cuyahoga County to conduct operations during a large-scale emergency.

2) Annexes – provide a detailed overview of functional and hazard specific roles

and responsibilities for a variety of incidents.

This EOP is available electronically at: https://ready.cuyahogacounty.us/en-

US/Planning.aspx

v | P a g e

Cuyahoga County Mission Statement

The mission of Cuyahoga County government is to improve public health and

safety, advance our economic and environmental vitality, and promote self-

sufficiency through the productive investment of public resources.

Cuyahoga County Office of Emergency

Management Mission Statement

Our mission is to protect lives, property, and the economy of Cuyahoga County

through preparedness, planning, and effective response to natural disasters,

man-made catastrophes, and emergencies.

NIMS Compliance Statement

Cuyahoga County’s Emergency Operations Plan is in compliance with the

National Incident Management System (NIMS). NIMS is intended to provide a

framework for local, state, and federal governments to work together to respond

to any domestic hazard.

vi | P a g e

Record of Changes

Version

Date

Description / Changes

1.0

August 2010

Completed by the Cuyahoga

County Office of Emergency

Management

2.0

May 2012

Revised to reflect new County

Government Structure

2.1

March 2013

Section 6.4.4 added

3.0

December 2015

Comprehensive review/update

4.0

December 2018

Grammatical changes, changes

to agencies, titles, and

operational details

Record of Distribution

Version

Date

Description / Changes

1.0

June 2012

Executive, Executive’s Cabinet,

Chief of Staff, Deputy Chiefs,

Directors, Assistant Directors, and

Commissioners, via email

3.0

May 2016

Executive, Executive’s Cabinet,

Chief of Staff, Deputy Chiefs,

Directors, Assistant Directors, and

Commissioners, via email

Version X.0 – Major Revision

Version X.I – Minor Revision

 
vii | P a g e  
 
TABLE OF CONTENTS 
0  BASIC PLAN OVERVIEW ................................................................................................................... 1 
0  PURPOSE, SCOPE, SITUATION, AND ASSUMPTIONS ....................................................................... 2 
1 PURPOSE........................................................................................................................................................... 2 
2 AUTHORITY ........................................................................................................................................................ 2 
3 SCOPE .............................................................................................................................................................. 3 
4 SITUATION OVERVIEW ........................................................................................................................................ 3 
4.1 Location ……………………………………………………………………………………………………....4 
4.2 Geographic ………………………………………………………………………………………...…......…4 
4.3 Demographics ……………………………………………………………………………………………….5 
4.4 Special Events  ……………………………………………………………………………………………….6 
4.5 Infrastructure  ……………………………………………………………………………………………….6 
4.6 Threat and Hazard Identification and Risk Assessment (THIRA) and Stakeholder 
Preparedness Review (SPR) ....................................................................................................................... 8 
4.7 Hazard Profile  ……………………………………………………………………………………………….8 
5 CAPABILITY ASSESSMENT .................................................................................................................................... 9 
6 PLANNING ASSUMPTIONS ................................................................................................................................... 9 
0  CONCEPT OF OPERATIONS ........................................................................................................... 10 
1 GENERAL GUIDELINES ...................................................................................................................................... 10 
2 PLAN ACTIVATION ........................................................................................................................................... 11 
3 EMERGENCY DECLARATION ............................................................................................................................. 11 
4 EMERGENCY OPERATIONS CENTER (EOC) ACTIVATION LEVELS ........................................................................ 12 
5 EMERGENCY OPERATIONS CENTER ACTIVATION ............................................................................................... 13 
6 EMERGENCY OPERATIONS CENTER (EOC) OPERATIONS ................................................................................... 14 
7 INTEGRATION OF PERSONS WITH DISABILITIES AND OTHERS WITH ACCESS AND FUNCTIONAL NEEDS .......................... 15 
0  ORGANIZATION AND ASSIGNMENT OF RESPONSIBILITIES ......................................................... 16 
1 OVERVIEW ...................................................................................................................................................... 16 
2 LINE OF SUCCESSION ....................................................................................................................................... 16 
3 EXECUTIVE POLICY GROUP .............................................................................................................................. 17 
4 EMERGENCY OPERATIONS CENTER MANAGER ................................................................................................. 17 
5 EMERGENCY MANAGEMENT LIAISON OFFICER .................................................................................................. 18 
6 CONTINUITY OF OPERATIONS ........................................................................................................................... 18 
0  DIRECTION, CONTROL, AND COORDINATION ............................................................................ 19 
1 OVERVIEW ...................................................................................................................................................... 19 
2 ON-SCENE INCIDENT MANAGEMENT ................................................................................................................ 19 
2.1 Initial Notification, Command, and Incident Assessment ........................................................... 19 
2.2 Operational Cycle ........................................................................................................................... 20 
3 ASSISTANCE FROM OTHER SUPPORTING AGENCIES ............................................................................................ 23 
4 MULTIAGENCY COORDINATION ....................................................................................................................... 23 
0  INFORMATION COLLECTION AND DISSEMINATION .................................................................... 24 
1 KNOWLEDGE CENTER ...................................................................................................................................... 24 
1.1 WebEOC …………………………………………………………………………………………………….25 
2 EHS FACILITY NOTIFICATION ............................................................................................................................ 25 
3 PUBLIC INFORMATION AND NOTIFICATION ........................................................................................................ 25 
3.1 Cuyahoga County Website ........................................................................................................... 26 
3.2 Social Media ………………………………………………………………………………………………..26 
3.3 ReadyNotify Mass Notification System ………………………………………………………………...27 

 
viii | P a g e  
 
3.4 Notification of Council and Mayors .............................................................................................. 27 
0  COMMUNICATIONS ...................................................................................................................... 28 
1 CUYAHOGA EMERGENCY COMMUNICATIONS SYSTEM (CECOMS) ................................................................. 28 
1.1 Weather Notifications ...................................................................................................................... 29 
1.2 Emergency Alert System ................................................................................................................. 29 
1.3 AMBER Alert System ......................................................................................................................... 30 
2 RADIO SYSTEM ................................................................................................................................................ 30 
2.1 Tactical Interoperable Communications Plan (TICP) .................................................................. 30 
2.2 Amateur Radio Emergency Services (ARES) ................................................................................ 30 
3 TELEPHONES, CELL PHONES, AND E-MAIL .......................................................................................................... 31 
3.1 GETS/WPS …………………………………………………………………………………………………...31 
0  ADMINISTRATION, FINANCE, AND LOGISTICS ............................................................................. 31 
1 OVERVIEW ...................................................................................................................................................... 31 
2 COUNTY STAFFING CONSIDERATIONS ............................................................................................................... 32 
3 MUTUAL AID ................................................................................................................................................... 32 
4 DOCUMENTATION ........................................................................................................................................... 33 
5 REIMBURSEMENT .............................................................................................................................................. 33 
0  RECOVERY AND MITIGATION ....................................................................................................... 34 
1 RECOVERY ...................................................................................................................................................... 34 
1.1 Recovery Programs ......................................................................................................................... 34 
2 MITIGATION .................................................................................................................................................... 35 
2.1 Mitigation Programs......................................................................................................................... 35 
0     TRAINING AND EXERCISE PROGRAM .......................................................................................... 36 
1 TRAINING ...................................................................................................................................................... 36 
2 PUBLIC EDUCATION ....................................................................................................................................... 36 
2.1 ReadyCuyahoga ........................................................................................................................... 36 
3 EXERCISE APPROACH .................................................................................................................................... 37 
0     PLAN DEVELOPMENT AND MAINTENANCE .................................................................................. 38 
1 PLAN DEVELOPMENT ..................................................................................................................................... 38 
2 PLAN STRUCTURE ........................................................................................................................................... 38 
3 PLAN MAINTENANCE AND IMPROVEMENT ....................................................................................................... 38 
0     AUTHORITIES ................................................................................................................................... 40 
ATTACHMENT A: EMERGENCY SUPPORT FUNCTIONS  ............................................................................ 41 
ATTACHMENT B: ACRONYMS.................................................................................................................... 43 

1 | P a g e

1.0 BASIC PLAN OVERVIEW

The Emergency Operations Plan (EOP) provides an overview of Cuyahoga

County’s emergency response capabilities, including the structure, processes and

policies that are implemented during large scale emergencies. It describes how

responding departments, divisions, and supporting agencies coordinate

emergency operations.

As prescribed by the United States Department of Homeland Security (DHS), laws

of the State of Ohio, and in the ordinances of Cuyahoga County, overall

responsibility to manage day-to-day governmental activities, as well as major

emergencies such as fires, floods, hazardous materials spills, terrorism, and other

unpredictable emergencies, whether man-made or natural, is placed upon the

municipal jurisdictions within Cuyahoga County. This means that all emergencies

are under local municipal control. The Cuyahoga County Executive will use

County resources and personnel to support jurisdictional response to an event

and to protect the lives and property of the citizens of Cuyahoga County.

Effective emergency management by the County is dependent upon its ability

to prepare for, respond to, recover from, and mitigate the impact of disasters.

The EOP was developed using these four phases to ensure a comprehensive

response to an incident. This EOP is in compliance with the National Incident

Management System (NIMS).

Cuyahoga

County

2 | P a g e

2.0 PURPOSE, SCOPE, SITUATION, AND

ASSUMPTIONS

2.1 Purpose

Cuyahoga County developed an EOP to

coordinate the County-wide response to incidents

that surpass the response capabilities of any one

jurisdiction. The EOP provides a flexible blueprint for

addressing major emergencies. It unifies County

agencies and community partners in a common

goal to prevent, protect against, mitigate, respond

to, and recover from the threats and hazards that

pose a risk to Cuyahoga County. The Cuyahoga County EOP is designed to work

in concert with municipal, regional, and statewide EOPs.

Ultimately, the EOP is designed to reduce the loss of life and destruction of

property resulting from natural, technological, or human caused disasters.

2.2 Authority

The Cuyahoga County Office of Emergency Management (CCOEM) is

authorized and required to create and maintain an Emergency Operations plan

per Ohio Revised Code, §5502.26 (A), “…A Countywide emergency

management agency organized under this section shall establish a program for

emergency management that: …(2) Includes, without limitation, development of

an all-hazards emergency operations plan that has been coordinated with all

agencies, boards, and divisions having emergency management functions within

the County...”

CCOEM operates under the authority of the Cuyahoga County Executive. Per

the Cuyahoga County Charter, §2.03(3), the Executive has the power to

“advocate for the interests of the County with other levels of government and to

advocate for and promote cooperation and collaboration with other political

3 | P a g e

subdivisions.” The EOP enables the Executive to exercise this power in the event

of a major emergency.

2.3 Scope

The EOP is designed to unify efforts in response to any type of hazard. Although

the primary responsibility for the safety of citizens and protection of property is

assigned to local municipal public safety forces, this plan provides a framework

by which municipalities, County departments, state/federal agencies, businesses,

and non-profits can collaborate in a coordinated effort to maximize resources.

The EOP provides a systematic approach to incident management by adopting

the Incident Command System (ICS). ICS enables effective and efficient incident

management by integrating a combination of facilities, equipment, personnel,

procedures, and communications into a common organizational structure.

The Emergency Support Function (ESF) Annexes and Incident Annexes contain

information about key functional roles and specific hazards along with processes

for managing them effectively.

2.4 Situation Overview

Cuyahoga County has a total area of 1,246

square miles with total land coverage of 458

square miles. The County seat is the City of

Cleveland. The County has billions of dollars in

infrastructure, including high rise buildings,

financial institutions, schools, hospitals, public

buildings, bridges, railroads, roads, etc.

Cuyahoga County is subject to events that

could result in a large-scale disaster. These

events include: Health-related emergencies, floods, extreme temperatures,

severe winter weather, earthquakes, severe thunderstorms, tornadoes, drought,

terrorism, building collapse, utility disruption, IT/Communications disruption, active

shooter/aggressor, HazMat/CBRNE incidents, mass transportation incidents,

urban/structural fires, port security breaches, dam failure, civil disturbance, and

nuclear power incidents.

4 | P a g e

2.4.1 Location

Established in 1807, Cuyahoga County is situated in Northeast Ohio and is

bordered to the north by Lake Erie, to the east by Geauga County, to the

northeast by Lake County, to the southeast by Summit County, to the southwest

by Medina County, and to the west by Lorain County.

2.4.2 Geographic

Cuyahoga County has a total area of 1,246

square miles. Of that, Lake Erie and other

smaller lakes and streams make up 788

square miles of water.

Lake Erie is the primary freshwater reservoir for

Northeast Ohio. Measuring 241 miles across and 57 miles north to south, the

lake’s surface is just less than 10,000 square miles, with 871 miles of shoreline. It is

572 ft. above sea level with a maximum depth of 210 ft., making it the shallowest

of the Great Lakes and the only one with a floor above sea level. The eastern

portion of the Cleveland metropolitan area lies on the Appalachian Plateau at

an elevation of approximately 1100 ft., while the western portion sits on the Lake

Plain and associated terraces at approximately 600 ft.

The highest point in Cuyahoga County is in the southern part of the County along

Broadview Road just south of the Cleveland Metroparks’ Valley Parkway at 1,271

ft. above sea level. The highest point on the eastside of the County is just over

1,250 ft. near Richmond and Chagrin Roads in Beachwood. These areas of higher

elevation also include part of the boundaries between the watersheds of the

Cuyahoga River and the Chagrin River to the east and the Cuyahoga River and

the Rocky River to the west. The elevation of the Cuyahoga River when it first

enters Cuyahoga County from the south is 640 ft., 66 ft. higher than the elevation

at the mouth.

The shoreline of Lake Erie runs from east to west, but turns sharply northeast at

the mouth of the Cuyahoga River. This feature is the principal contributor to the

lake effect snow that is a mainstay of Cuyahoga County (particularly the

eastside) weather from mid-November until the surface of Lake Erie freezes,

usually in late January or early February. The lake effect causes snowfall totals

5 | P a g e

to vary greatly across the County. Seasonal snowfall totals approaching or

exceeding 100 inches are common in the “Snow Belt,” an area extending from

the eastside of Cleveland through the eastern suburbs and up the Lake Erie

shoreline as far as Buffalo, NY.

Annual precipitation measured at Cleveland Hopkins International Airport is

approximately 37 inches and falls evenly throughout the year. The average high

in January is 32°F with an average low of 18°F. July is typically the warmest month

with an average high of 82°F and an average low of 61°F.

Cuyahoga County includes several environmentally sensitive areas located in the

Cleveland Metroparks System, which features 18 park reservations and the

Cleveland Metroparks Zoo. The System is made up of more than 23,000 acres of

diverse landscapes and features.

2.4.3 Demographics

The U.S. Census Bureau estimates Cuyahoga County had a total population of

1,259,828 as of 2014. The Census Bureau estimates there were 534,476 households

in the County, with an average of 2.33 persons per household.

As of 2013, the median income for a

household in Cuyahoga County was

$43,804. The per capita income for the

County was $27,423. 18.3% of the population

was below the poverty line.

When Cuyahoga County was established in

1807, the population was approximately

1,400. The population of Cuyahoga County peaked in 1970 at 1,721,300. In recent

years, the County has experienced a slight decline in population from 1,393,845

in 2000 to 1,259,828 in 2014. The Census estimates approximately 390,113 of the

County’s residents (including commuters) live in the City of Cleveland, while

approximately 873,000 live in the other 58 municipalities.

Employment data indicate that the service industry represents the largest

segment of jobs at over 30%, followed by the trades, manufacturing, government,

real estate financing, insurance, and banking, respectively.

6 | P a g e

2.4.4 Special Events

Cuyahoga County is home to many special

events throughout the year. Cultural festivals

such as the annual Feast of the Assumption

in the Little Italy neighborhood and the

Polish Festival in the Slavic Village

neighborhood are popular. Thousands

attend annual parades and “home days”

held in communities throughout the County.

Downtown Cleveland features the County’s

largest entertainment venues, including the

Rock and Roll Hall of Fame, Jacobs Pavilion at

Nautica, First Energy Stadium (Browns- NFL), Quicken Loans Arena (Cavaliers- NBA,

Gladiators- Arena Football League, Lake Erie Monsters- American Hockey

League), Progressive Field (Indians- MLB), and the Wolstein Center (Cleveland St.

University).

2.4.5 Infrastructure

Cuyahoga County is the corporate headquarters of many large companies,

including Forest City Enterprises, Sherwin Williams Company, KeyCorp, American

Greetings, and Progressive Insurance. NASA also maintains the Glenn Research

Center at Cleveland Hopkins Airport.

Cuyahoga County has become a world leader in healthcare and health

sciences. The Cleveland Clinic, the area’s largest employer, is one of the highest-

ranked hospitals in the United States. University Hospitals and the MetroHealth

System are additional top tier hospital systems headquartered within the County.

As a healthcare industry leader, Cuyahoga County is home to the Global Center

for Health Innovation. Opened in 2013, the Center is designed to be a trade show

facility and conference center for buyers and sellers in the medical and

healthcare industries.

7 | P a g e

Cuyahoga County is home to three airports,

Cleveland Hopkins International Airport (CLE),

Burke Lakefront Airport (BKL), and the Cuyahoga

County Airport. Cleveland Hopkins is the largest

airport in the County and 40

busiest airport in

the nation (based on passenger volume). In 2013

Cleveland Hopkins served more than 9 million

passengers.

Both freight and passenger rail operations exist within Cuyahoga County. Norfolk

Southern Corp. and CSX Transportation Inc. are the two freight rail carriers in the

County, while Amtrak provides passenger rail service. Further, the Greater

Cleveland Regional Transit Authority (RTA) operates County-wide bus and rail

mass transit systems, which served 49.2 million passengers in 2013.

Cuyahoga County’s transportation infrastructure includes 7 interstate highways, 5

U.S. routes, more than 4,300 miles of municipal roads, and more than 1,200

bridges.

The Port of Cleveland has cargo terminals with 12 docks to the east and west of

the Cuyahoga River along the Lake Erie shoreline.

Cleveland Bulk Terminal, west of the mouth of the river, handles iron ore and

limestone that arrive by ship from other Great Lakes ports. The Port’s general

cargo operation is located directly east of the river and largely handles imported

steel products. Ninety percent of cargo that comes into the Port of Cleveland is

imported, with the other ten percent coming from other Great Lakes ports. In

2014, Cleveland became the first Great Lakes port to offer direct, scheduled

service for containerized and non-containerized cargo between the Great Lakes

and Europe.

The Port exports locally-made products to U.S. and foreign markets and receives

a variety of raw materials for area manufacturers. The Cleveland-Cuyahoga Port

Authority averages 12.5 million tons of cargo each year.

Cuyahoga County’s water supply is produced by the Cleveland Division of Water.

The largest water system in Ohio and tenth largest in the U.S., Cleveland Division

of Water serves over 1.5 million people throughout Cuyahoga and neighboring

8 | P a g e

counties. Additionally, regional wastewater is treated by the Northeast Ohio

Regional Sewer District (NEORSD) in coordination with water treatment plants

owned and operated by multiple municipalities throughout the County. The

service area for NEORSD encompasses the City of Cleveland and all, or portions

of, 61 suburban municipalities in Cuyahoga, Summit, Lake, and Lorain counties.

2.4.6 Threat and Hazard Identification and Risk Assessment (THIRA)

and Stakeholder Preparedness Review (SPR)

CCOEM maintains the Cleveland/Cuyahoga Threat and Hazard Identification

and Risk Assessment (THIRA). The THIRA is a 3-step process that identifies hazards

of concern, estimates impacts, determines vulnerability, and predicts the adverse

impact of disasters and emergencies. This process informs the Stakeholder

Preparedness Review (SPR) report, which provides: capability gap estimation and

review, mutual aid planning, and resource planning and allocation. In doing so,

the THIRA and SPR guide the County’s coordinated mitigation and risk reduction

strategies identified within the Countywide All-Hazards Mitigation Plan and the

Cleveland-Cuyahoga Urban Area Homeland Security Strategy (UAHSS).

2.4.7 Hazard Profile

Cuyahoga County is vulnerable to many natural,

technological, and human-caused hazards, all of

which have the potential to disrupt the

community, cause damage, and create mass

casualties. By conducting a Hazard Identification

and Risk Assessment (HIRA), Cuyahoga County

takes a risk-based approach to the development

of the EOP. The HIRA is also utilized to inform other

planning initiatives, such as the THIRA and SPR. The following hazards are

included in the Cuyahoga County HIRA, which is included as a part of the

Countywide All-Hazards Mitigation Plan:

9 | P a g e

Natural Hazards

• Health Related Emergencies

• Flooding

• Temperature Extremes

• Severe Winter Weather

• Earthquake

• Severe Thunderstorms

• Tornadoes

• Drought

Technological or Man-made Hazards

• Terrorism/CBRNE Incident

• Building/Structural Collapse

• Utility Disruptions

• IT/Communications Disruption

• Active Shooter Incident

• HazMat release

• Mass Transportation Incident

• Dam Failure

• Civil Disturbance

• Nuclear Power Incident

2.5 Capability Assessment

Most jurisdictions within Cuyahoga County have robust response and recovery

capabilities. Limitations in these capabilities are identified through annual plan

reviews, the THIRA/SPR process, and exercises. As limitations are identified, they

are addressed through strategic planning.

2.6 Planning Assumptions

The following planning assumptions were considered in the development of this

plan:

• Disasters differ in character by magnitude, severity, duration, onset, area

affected, and frequency.

• A disaster may impact multiple jurisdictions within Cuyahoga County with

casualties, property damage, disruption of normal services, and damage to

economic, physical, and social infrastructures.

• The emergency management command and management structure in

Cuyahoga County is based on NIMS guidelines.

• Mutual aid and resources from outside the County may not be immediately

available.

• Disaster events will be managed independently until multiple response

10 | P a g e

agencies become essential and/or internal resources are exhausted/nearing

exhaustion.

• Coordination between the County and local communities will be maintained.

• Various organizations have legislative requirements to maintain and exercise

emergency plans in coordination with the Cuyahoga County Office of

Emergency Management (e.g. Schools: ORC 3313.536, and Centers for

Medicare and Medicaid Services (CMS) Facilities: FR 81, Issue 180). CCOEM

reviews external emergency plans as they are submitted to ensure alignment

and integration with the Cuyahoga County Emergency Operations Plan

(EOP).

• Effective disaster preparedness requires ongoing public awareness and

education programs to ensure citizens will take appropriate action.

• Spontaneous groups of responders and resources may cause traffic

congestion and place extra strain on already degraded lifelines and facilities.

• All County, private, and volunteer organizations that have primary and/or

support agency Emergency Support Function (ESF) roles and responsibilities

have identified personnel and resources to ensure compliance with this plan

and effectively respond to disasters.

• Communications between the responding agencies will be accomplished

using established networks.

• Throughout this document, the terms “emergency” and “disaster” are used

interchangeably to refer to an imminent threat or occurrence that can result

in loss of life, causes suffering, and damages property and/or the environment

to the extent that local resources are overwhelmed.

3.0 CONCEPT OF OPERATIONS

3.1 General Guidelines

The general concept on which this document is based represents years of

experience in on-scene emergency command and control. Each incident is

unique and requires different prevention and response measures. By adhering to

the guidelines of NIMS and the National Response Framework (NRF), Cuyahoga

County remains ready to meet these challenges. Primary and support agencies

have been designated to perform specific emergency functions during response

and recovery. Every Cuyahoga County department or office may be required to

respond to an emergency. If a department does not have a specific response

11 | P a g e

role in an emergency, that department may still be called upon to support

responding departments.

Responsibility for the direction and control of County resources during an

emergency that has exceeded the capabilities of a local jurisdiction is vested in

the Cuyahoga County Executive and is routinely exercised through departmental

control. Upon request, CCOEM will activate the Cuyahoga County Emergency

Operations Center (EOC). The EOC is the operations area from which emergency

response activities can be directed, coordinated, and/or supported. The EOC

organization is scalable, based on the magnitude of the situation.

If a disaster exceeds Cuyahoga County’s resources, CCOEM will request

assistance from regional agencies, the State of Ohio, and if required, federal

agencies.

3.2 Plan Activation

The Cuyahoga County Executive has the authority to activate this EOP. Upon

activation of the EOP, all municipalities in Cuyahoga County will be notified by

CCOEM. As determined by the Executive and, depending on the nature of the

emergency, all or portions of the EOP may be activated.

3.3 Emergency Declaration

The Cuyahoga County Executive has the authority to declare a Countywide state

of emergency. Upon declaration of a Countywide state of emergency, CCOEM

will notify the Ohio Emergency Management Agency (OEMA) and all

municipalities in Cuyahoga County.

A declaration of a Countywide state of emergency permits CCOEM to take

actions necessary for public health and life safety. Under an emergency

declaration, the County may ask the State of Ohio for additional resources in the

form of equipment or personnel. If the scope of the disaster is beyond the financial

and response capabilities of the State and County combined, the governor may

make a state-level emergency declaration. Following a governor’s declaration,

a request to the federal government for assistance may be made by Ohio EMA.

12 | P a g e

3.4 Emergency Operations Center (EOC) Activation

Levels

Cuyahoga County, in cooperation with state and federal agencies, has

established County EOC activation levels and an incident management structure

that describe a progressive order of escalation for managing an emergency.

Routine (Daily) Operations

• CCOEM is conducting normal daily operations and not actively monitoring

any specific situation. The EOC is not activated and is not anticipating

activation.

• Situational monitoring and assessment is managed by CCOEM staff. The

County EOC is not considered “open” at this level.

Situation Awareness and Monitoring

• CCOEM has modified normal daily activities to actively monitor a specific

situation. The County EOC is not activated, but it is on stand-by.

• CCOEM and select ESF agencies are cooperatively engaged in incident

monitoring activities.

Partial Activation Response Operations

• The County EOC is activated for a special event or incident. The Joint

Information Center (JIC) may also be activated, depending on need.

• CCOEM personnel staff the County EOC, and representatives of select ESF

agencies report to the County EOC to address and/or report on response

actions they are taking under their agency’s authority.

• Affected local jurisdictions may declare emergencies if local resources have

been exhausted and County resources are needed.

• If County assistance is not requested or needed, the County EOC will continue

to monitor and assess the incident until the incident is closed or is transitioned

to locally-managed recovery operations.

Full Activation Response Operations

• The County EOC is activated for a special event or incident. The JIC is likely

activated. EOC operations may include 24-hour staffing.

• The County EOC is staffed for extended hours by representatives of ESF

agencies for the coordination of response operations and missions.

13 | P a g e

• Representatives of activated ESF agencies report to the County EOC to

address and report on missions that are assigned to them, and to participate

in scheduled EOC briefings.

• CCOEM may perform damage assessments within impacted jurisdictions.

Needs assessments and information-gathering operations may continue.

• If an incident continues to escalate and County resources are insufficient to

address response and/or recovery needs, CCOEM may request state-level

response and recovery resources from Ohio EMA.

3.5 Emergency Operations Center Activation

The Cuyahoga County EOC may be activated by CCOEM upon request by the

following: Cuyahoga County Executive, Chief Community Safety and Protection

Officer, Director of Public Safety and Justice Services, Incident Commander, Fire

Chief, Police Chief, Sheriff, highest elected municipal official, or their designee. In

the event an emergency seriously threatens the safety of Cuyahoga County

citizens, the CCOEM Manager may activate the County EOC and notify the

Director of Public Safety and Justice Services. EOC activation may be requested

any time before, during, or after an event.

Upon the occurrence of a major

incident, responding personnel will follow

their jurisdiction’s Standard Operating

Guidelines (SOGs). If an incident occurs

Mon-Fri during normal business hours

(8AM-4PM), the Incident Commander

should notify the CCOEM Manager,

Operations Supervisor or Planning

Supervisor directly at 216-443-5700. If an

incident occurs after normal business

hours or on the weekend, the Incident Commander should notify the Cuyahoga

Emergency Communications System (CECOMS) at 216-771-1363 and request the

CCOEM on-call representative. Additionally, the Incident Commander may

request an EOC Liaison to serve as an on-scene representative.

Following a proper request for activation of the EOC, the CCOEM Manager will

determine if the EOC should be partially or fully activated. If the EOC is partially

14 | P a g e

activated, the Operations Supervisor will determine the appropriate level of

staffing and issue the corresponding notification. During a full activation, all pre-

identified personnel will be requested to staff the EOC, either in their County role

or as an ESF representative.

Upon activation, the EOC can assist responding personnel in the following ways:

• Coordinate Resources: The EOC can assist in obtaining, deploying, and

tracking resources requested by responding personnel.

• Public Warning: The EOC can use several mediums to communicate to the

public regarding the nature of the hazard, and make recommendations for

protective actions.

• Incident Command Post: The EOC may be

able to serve as an Incident Command Post

(ICP), if needed.

Cuyahoga County has identified primary and

alternate EOC facilities and maintains Standard

Operating Guidelines (SOGs) for their

activation, set-up, and operation. Procedures for transferring operations to an

alternate EOC facility are included in the guidelines.

When incident command is established at the incident scene, the EOC will be

used to support incident command.

3.6 Emergency Operations Center (EOC) Operations

Cuyahoga County uses a hybrid management system for activities in the EOC.

When the EOC is activated, representatives from Cuyahoga County departments

and offices are asked to report to the EOC for activity management and resource

coordination. In addition to Cuyahoga County personnel, the EOC can be staffed

by representatives from outside agencies or organizations that have agreed to

be either a primary or support agency (Attachment A) for a particular ESF.

Primary agencies have the authority and/or capability to perform and

coordinate specific pre-determined functions.

15 | P a g e

Responsibilities include:

• Coordination before, during, and after an incident, including pre-incident

planning.

• Ensuring designated personnel are trained on their roles as identified by plans

and guidelines.

• Maintaining ongoing contact with corresponding ESF support agencies.

• Maintaining trained personnel to support interagency emergency response

and support teams.

• Maintaining existing capabilities and identifying new capabilities required to

prevent or respond to emerging threats and hazards.

• Providing resources (personnel and equipment) for field and County EOC

operations.

• Managing mission assignments and coordinating with support agencies,

through the County EOC.

• Supporting and keeping other ESFs and organizational elements informed of

ESF operational priorities and activities.

Support agencies have the authority and/or capability to support the primary

agency in accomplishing the ESF mission and tasks.

Responsibilities include:

• Participating in the development of supporting operational plans and

guidelines.

• Ensuring designated personnel are trained on their roles as identified by plans

and guidelines.

• Maintaining existing capabilities and identifying new capabilities required to

prevent or respond to emerging threats and hazards.

• Providing resources (personnel and equipment) for field and County EOC

operations in support of the primary agency.

3.7 Integration of Persons with

Disabilities and Others with

Access and Functional Needs

Per the U.S. DHS, people with disabilities or access

and functional needs may have difficulty

16 | P a g e

maintaining independence, understanding communications, arranging

transportation, and receiving adequate supervision or medical care. According

to the Communication, Maintaining Health, Independence, Services and

Support, and Transportation (CMIST) database maintained by the Cuyahoga

County Board of Health (CCBH), approximately 14 percent of the County

population reports having some type of disability. It is important to note, however,

that people with disabilities do not all have the same needs or require the same

assistance. This EOP is designed to be inclusive of the whole community of

Cuyahoga County, enabling people with and without functional and access

needs to maintain their independence during a disaster. Specific strategies to

ensure inclusiveness are described in the annexes of the EOP.

4.0 ORGANIZATION AND ASSIGNMENT OF

RESPONSIBILITIES

4.1 Overview

Cuyahoga County is governed by an Executive who serves a four-year term. It is

the duty of the Executive to exercise such powers and perform such duties as are

conferred or required by the Cuyahoga County Charter or by the laws of the

State of Ohio. All Cuyahoga County emergency preparedness, response,

recovery, and mitigation resources are under the direction and control of the

Executive. The government of Cuyahoga County is organized into functional

departments, divisions, boards, and commissions, which deliver services.

Departments responding to an emergency will be expected to perform their

basic functions at an elevated level.

4.2 Line of Succession

The overall responsibility for County department/agency operations as described

in this plan rests with the Executive. Should the Executive be unavailable to fulfill

this responsibility; the following line of succession has been established in the

Cuyahoga County Charter, Article II, Section 2.04:

1. Cuyahoga County Executive

17 | P a g e

2. President of Cuyahoga County Council

3. Vice-President of Cuyahoga County Council

4.3 Executive Policy Group

The Executive Policy Group (EPG) maintains executive decision-making authority

throughout all stages of an emergency event on behalf of the County Executive.

The designated EOC Manager will report to the EPG for policy direction when

decisions extend beyond routine decision-making authority and internal resource

capabilities.

Generally, the County EPG will consist of the following members:

• Cuyahoga County Executive

• Department leadership from Public Safety & Justice Services, Operations,

Economic Development, and Health & Human Services

• Cuyahoga County Council President

• Director of Law

• Director of Finance

• Representatives from Impacted Communities

Based on the type of incident, the EPG may include representatives from other

departments, divisions, and external agencies, as needed.

4.4 Emergency Operations Center Manager

The County EOC Manager is the CCOEM Operations Supervisor. If the Operations

Supervisor is immediately unavailable for any reason, the order of succession

proceeds to the CCOEM Manager, and then to the Planning Supervisor. The

designated EOC Manager supervises all EOC actions during activation. The EOC

Manager is responsible for ensuring the roles and responsibilities assigned to

individuals are completed in support of EOC activities and the on-scene Incident

Commander (IC).

The EOC Manager’s responsibilities are as follows:

• Maintaining the operational status of the County EOC;

• Ensuring a backup/alternate EOC is available and operational;

18 | P a g e

• Route all mission assignments to the appropriate agencies;

• Coordinate missions requiring multi-branch action;

• Resolve any conflicts among agencies;

• Identify and support resource requests;

• Ensure mission completion in a timely manner; and

• Forward pertinent requests to the EPG.

4.5 Emergency Management Liaison Officer

The EOC Manager may designate a CCOEM employee to serve as the liaison

officer between on-site responding personnel and the EPG/EOC. In addition, the

CCOEM Manager (or designee) serves as the County’s liaison with any on-site

state or federal agencies.

4.6 Continuity of Operations

CCOEM maintains a Continuity of Operations

(COOP) Program for all Cuyahoga County

departments. The program ensures that

essential functions of the County government

continue during emergencies. The program

assists County departments with identifying

alternate work facilities and protecting vital government records. Additionally,

CCOEM makes this program available to primary and support ESF agencies.

CCOEM maintains a copy of all County departmental and ESF COOP Plans.

The COOP Program is incorporated into CCOEM’s regular training and exercise

schedule.

19 | P a g e

5.0 DIRECTION, CONTROL, AND

COORDINATION

5.1 Overview

Direction, control, and coordination of multi-agency operations are critical

emergency management functions. Section 3.3 describes the EOC Activation

Levels and establishes a progressive order of escalation for managing an

emergency event.

5.2 On-Scene Incident Management

Most emergency response actions, including Incident Command, Logistics,

Operations, Planning, and Finance will take place on-scene at the designated

Incident Command Post (ICP). ICS will be used to direct all response actions. Due

to the modular and scalable nature of ICS, not all portions of this section will be

implemented for every incident. For larger, multijurisdictional incidents, two

different ICS management structures may be applied: Unified Command or Area

Command.

• Unified Command may be implemented for incidents involving multiple

jurisdictions and/or agencies. Unified Command allows agencies with different

legal, geographic, and functional authorities and responsibilities to work

together without affecting individual agency authority, responsibility, or

accountability.

• Area Command may be used for the management of multiple incidents. Area

Command has the responsibility to set the overall strategy and priorities,

allocate critical resources according to priorities, ensure incidents are properly

managed, and ensure objectives are met and strategies are followed.

5.2.1 Initial Notification, Command, and Incident Assessment

The affected jurisdiction’s Public Safety Answering Point (PSAP) will receive and

document the initial notification in accordance with existing protocols, and will

dispatch resources as appropriate.

20 | P a g e

The first responding unit to arrive on scene assumes incident command until

transferred to an appropriate ranking officer. The responding agencies that will

assume command for specific incidents have been identified and are listed in

incident annexes to the EOP. The Incident Commander is responsible for

establishing an Incident Command Post (ICP) in a safe on-scene location, and for

making the location easily identifiable to response personnel.

The Incident Commander will determine the sections and units needed to

complete the Incident Command structure and make assignments accordingly.

The Incident Commander will also determine the process for integrating

unsolicited volunteers into the response system.

The Incident Commander is responsible for completing an incident assessment to

gather essential information and assess immediate risks posed by the incident. If

needed, the Incident Commander will call dispatch to request additional

resources. If municipal resources are exhausted and additional resources are still

needed, the Incident Commander will notify the County EOC. Any adjacent

jurisdictions that may be at risk from the incident should be notified immediately.

The information gathered in the incident assessment will be used to guide

decisions regarding protective actions and response priorities. The incident

assessment should be repeated during each operational period and as

significant developments occur.

5.2.2 Operational Cycle

Following a repetitive cycle of planning activities promotes internal and external

continuity during and following staffing transitions. Situational Reports (SitReps)

provide a Common Operating Picture (COP) and will be developed during each

operational period to inform staff of the current situation and response actions.

The on-scene staff will complete an Incident Action Plan (IAP). An IAP contains

overall objectives, set by the Incident Commander, for the incident and specific

tactical actions and supporting information for the next operational period.

The following “Planning P” illustrates a typical initial response and workflow

cycle. The descriptions that follow assume a 12-hour operational period.

21 | P a g e

THE PLANNING “P”

22 | P a g e

Initial Objectives

During the initial response, the Incident Command (IC)/Unified Command (UC)

will meet to develop incident objectives that address the entire course of the

incident. For complex incidents, it may take more than one operational period to

accomplish the incident objectives. Objectives may be altered or change

completely over each operational period.

Operations Tactics Meeting

Each operational period includes an Operations Tactics Meeting designed to

ensure that tactics are in line with the objectives developed by the IC/UC. Each

Section Chief should participate in the Operations Tactics Meeting to lay the

foundation for a concise and focused Planning Meeting. The Operations Section

Chief leads the Tactics Meeting.

Planning Meeting

The Planning Meeting provides the IC/UC with an overview of the tactical plan to

achieve the objectives set during the Initial Objectives meeting. After review and

updates are made by the Command and General Staff, the meeting attendees

commit to support the plan. The Planning Section Chief leads the Planning

Meeting.

Incident Action Plan (IAP)

The IAP is developed under the leadership of the Planning Section Chief

immediately following the Planning Meeting. The IAP is the central tool for

conveying planning and operational instructions on-scene because it provides a

clear statement of objectives and actions, a basis for measuring work

effectiveness and progress, and a record of accountability during the next

operational period. The level of detail required in an IAP will vary according to the

size and complexity of the incident. The IC/UC must review and approve the IAP

before it can be implemented.

Operations Briefing

Each operational period should begin with an Operations Briefing. The Operations

Briefing presents the updated IAP to the oncoming supervisors for the next

operational period. The Operations Section Chief provides the Operations

Briefing.

23 | P a g e

5.3 Assistance from other Supporting Agencies

This section describes the capabilities and

responsibilities of agencies that will support

emergency response or recovery in Cuyahoga

County. These agencies may be primary and/or

support agencies in ESFs as described in Section

3.5, or they may support the County through

mutual aid or other types of agreements.

Assistance may include:

• Support from other counties, state departments, and agencies may be made

available in accordance with the State EOP

• Private sector organizations within the jurisdiction may assist with a wide variety

of tasks based on their capabilities

• Community-based organizations, such as the American Red Cross, Salvation

Army, and local faith-based organizations are available to assist with sheltering

and mass care

• Assistance from surrounding jurisdictions may be available through the Ohio

Law Enforcement Response Plan and the Ohio Fire Chiefs’ Association

Emergency Response Plan

5.4 Multiagency Coordination

Multiagency coordination during incidents is an essential and complex task.

Challenges include:

• Incident complexity

• Response costs

• Complex legal authorities and political considerations

• Conflicting SOGs, employment policies, and labor agreements

• Different experiences and knowledge levels among responders

The Cuyahoga County EOP addresses these issues through the following

command and management approaches:

• Emergency Operations Center (EOC)

24 | P a g e

• Incident Command System (ICS)

• Multi-agency Coordination Center (MACC)

The activation of the EOC will help facilitate multi-agency coordination. This will

allow all levels of government, and all disciplines, to work together more efficiently

and effectively. For very large events or incidents, a Multi-Agency Coordination

Center (MACC) may also be activated in a different location.

ICS enables responders from different jurisdictions and disciplines to work together

to respond to disasters and emergencies. ICS provides a flexible framework

allowing Cuyahoga County and other agencies to collaboratively direct, control,

and coordinate an incident response. ICS benefits include a unified approach to

incident management, a standard command and management structure, and

emphasis on preparedness, mutual aid, and resource support.

6.0 INFORMATION COLLECTION AND

DISSEMINATION

When activated, EOC staff will collect and disseminate information about the

incident. To ensure ongoing communication with all responding entities, EOC staff

will use the existing public safety infrastructure as described below.

6.1 Knowledge Center

Knowledge Center (KC) is CCOEM’s web-based incident

management system that is made available to ESF

agencies and all communities within the County.

KC is used for resource tracking, situational analysis,

communications, and information dissemination during

EOC activations or exercises. It enhances response by

improving situational awareness and interaction among

all entities involved with the incident or exercise. KC also

acts as a deployable resource database for all

emergency response entities within Cuyahoga County. This database is

maintained by CCOEM’s Operations Branch and is updated yearly.

25 | P a g e

6.1.1 WebEOC

WebEOC is Ohio EMA’s web-based incident management system that the State

of Ohio uses to track and analyze disaster information to enhance decision

making before, during and after incidents. CCOEM uses WebEOC to share

incident information with Ohio EMA and all other counties during emergencies.

6.2 EHS Facility Notification

The Cuyahoga County Local Emergency Planning Committee (LEPC) is

responsible for the implementation of the Emergency Planning and Community

Right-To-Know Act (EPCRA). This law requires all facilities meeting threshold

quantities of designated hazardous substances to notify the LEPC of the type,

amount, and location of hazardous substances stored at their facility. CCOEM

maintains this information for the LEPC. The Cuyahoga County Hazardous

Materials Emergency Response Plan is reviewed and updated annually in

compliance with all state and federal mandates.

There are more than 700 hazardous materials facilities and almost 300 oil/gas

extraction sites within the County. An owner or operator is required by Ohio

Revised Code 3750.06 to report a release or discharge whenever a release or spill

of a chemical exceeds its reportable quantity (RQ) and/or leaves the facility

property line.

6.3 Public Information and Notification

Under direction from, or in collaboration with, the

Incident Commander, the lead Public Information

Officer (PIO) will determine if activation of a Joint

Information System (JIS) and/or the Joint

Information Center (JIC) is necessary. Other

Cuyahoga County governmental entities or

partnering agencies may be called by the PIO to

participate in the JIS or JIC. Public information

personnel from other responding agencies may also report to the JIC or may work

closely with the lead PIO as part of a JIS. The lead PIO will work with EOC staff,

Incident Command staff, the County Communications Department, and other

26 | P a g e

departments and divisions to collect information and distribute messaging to the

media and the public as quickly and frequently as possible. The Crisis

Communications Annex to the EOP provides pre-scripted messages and

templates (e.g. press releases, advisories and fact sheets) that will be used before,

during, or after emergencies and preplanned events. The PIO and/or JIC will

disseminate information through all available media as appropriate for the

audience, to include persons with disabilities and access or functional needs.

Social media may play an important role in how information is gathered and

disseminated during an incident. The Social Media SOG to this EOP provides

guidance for the appropriate use of social media by incident personnel.

If a press conference and/or briefing is necessary, media representatives will be

directed to a media briefing or media staging area by PIO/JIC personnel. Media

representatives will not be permitted to enter the EOC complex outside of the

media briefing area unless approved by the EOC Manager and Lead PIO.

Generally, media representatives will only be permitted access to the EOC for

video or photographic purposes. Interviews and audio will not be conducted

within the EOC complex while the EOC is activated. A sign-language interpreter

shall be requested for all televised media briefings.

6.3.1 Cuyahoga County Website

Cuyahoga County government and CCOEM routinely post emergency

information on County websites concerning; critical alerts, impending incidents,

County building closure status, etc. Information is typically posted using a banner

method and directs users to an appropriate source for additional information.

CCOEM website: www.ready.cuyahogacounty.us

Cuyahoga County main website: www.cuyahogacounty.us

6.3.2 Social Media

CCOEM regularly uses Facebook and Twitter to post preparedness and safety tips

and administrative announcements. Additionally, CCOEM uses social media to

relay emergency alerts, warning messages, and other information relating to

imminent or ongoing emergencies.

27 | P a g e

CCOEM Facebook: facebook.com/CuyahogaOEM

CCOEM Twitter: twitter.com/CuyahogaOEM

6.3.3 ReadyNotify Mass Notification System

ReadyNotify is a mass notification system

used by Cuyahoga County and

participating municipalities to issue

emergency and non-emergency

notifications to the public.

ReadyNotify delivers messages to registered

residents and businesses via phone, text message, or email. The registrant can

choose how he or she would like to receive messages. The system is capable of

sending messages to specific communities or the entire County, and can also

send messages to targeted areas.

ReadyNotify is used for emergency and non-emergency notifications, when rapid

and accurate information is essential for immediate safety. There is currently no

charge to register and receive alerts.

To register and learn more, visit: https://cuyahogacountyoh.my.gov-

i.com/signup

6.3.4 Notification of Council and Mayors

During an incident, Cuyahoga County Council and Mayors, City Managers, and

Trustees of Cuyahoga County communities are notified that an incident has

occurred and provided with a brief situational update. It is assumed that County

Council members, Mayors, City Managers, and/or Trustees in the affected

community(s) will already be aware of the incident and will be working with

CCOEM for resource coordination, as needed.

Notification

Cuyahoga County Council will be notified by the County Executive’s liaison

assigned as the County Council liaison. The Council liaison will work with CCOEM

and the Cuyahoga County Communications Department to ensure that

information is flowing properly.

28 | P a g e

Mayors, Managers, and Trustees will be notified by either a representative from

the Communications Department or CCOEM. The Department of Regional

Collaboration and CCOEM will work together to ensure information is

communicated appropriately.

Joint Information Center

When activated, the Joint Information Center (JIC) will share public information

and support the communities’ and County’s response to an emergency event.

County Council representatives and Mayors, Managers, and Trustees will be

available if CCOEM requires assistance from governmental agencies in acquiring

resources or sharing public information.

7.0 COMMUNICATIONS

7.1 Cuyahoga Emergency Communications System

(CECOMS)

The Cuyahoga Emergency Communications System (CECOMS) is a 24-hour, 7-

day a week, public safety communication system that provides emergency

dispatch services and 9-1-1 call answering in Cuyahoga County. They are the

primary point of contact in Cuyahoga County to request a Communication Unit

Leader (COM-L) for an incident or event. Additionally, CECOMS coordinates

communications with police and fire departments and other healthcare

agencies. CECOMS issues all Emergency Alert System (EAS) broadcasts for the

County, is responsible for manual entries into the Automatic License Plate Reader

(ALPR) system, and issues all AMBER Alert broadcasts for an eight-County area in

Northeast Ohio. If an agency or organization needs to issue a media alert to the

public, this can be done via CECOMS upon request without the use of the EAS.

The following sections provide additional information on the notifications and

alerts that are issued or relayed by CECOMS.

29 | P a g e

7.1.1 Weather Notifications

The local National Weather Service (NWS) office provides weather forecast data

concerning potentially destructive weather and other weather-related threats.

Watches and warnings issued by the NWS are monitored 24-hours a day by

CECOMS.

Weather notifications are disseminated by multiple agencies and organizations,

including:

• NOAA (National Oceanic and Atmospheric Administration) Weather Radio

Transmissions- CECOMS will broadcast all severe thunderstorm warnings,

tornado watches and warnings, winter storm warnings, and flood watches and

warnings on the following radio frequencies: 154.280 (County Fire), 424.375

(County “A”).

• Licensed amateur radio operators/trained NWS Skywarn Weather Spotters-

Trained volunteers who provide weather reports for visually monitored weather

events.

• NOAA Advisory- NOAA Weather Radio is a nationwide network of radio

stations that broadcast continuous weather information from a local National

Weather Service (NWS) forecast office. The NWS broadcasts weather watches,

warnings, forecasts, all non-weather EAS alerts/activations (including AMBER)

and other hazard information 24-hours a day.

• ReadyNotify- CECOMS issues all NWS weather warnings via CCOEM’s

ReadyNotify mass notification system. Warnings are sent via text and email.

See Section 6.4.3 for more information on ReadyNotify.

7.1.2 Emergency Alert System

CECOMS is the central EAS communication point for Cuyahoga County, and

maintains dial-in phone lines to the two Emergency Alert System (EAS) designated

radio stations LP-1: WTAM (1100 AM) and LP-2: WCPN (90.3 FM). If a community

desires to activate the EAS, the requesting public safety agency will contact

CECOMS and request activation.

30 | P a g e

7.1.3 AMBER Alert System

The Northeast Ohio AMBER Alert system covers an eight-County region and

functions under the direction of the Northeast Ohio AMBER Alert Board. The

counties include: Cuyahoga, Medina, Lake, Lorain, Geauga, Ashtabula, Erie and

Huron. To request an AMBER Alert for an abducted child, the law enforcement

agency will phone and fax the request to CECOMS where operators will

document and broadcast the information. For an AMBER Alert to be broadcast,

the local law enforcement agency’s request must meet specified criteria. The

transmission is sent via EAS to the Federal Communications Commission (FCC) LP-

1 station and then distributed to all radio, cable, and television broadcast stations

in the listening and viewing area. In addition, electronic billboards throughout

Cuyahoga County will display the AMBER Alert continuously for the first hour of the

alert, then in regular rotation for the duration of the alert.

7.2 Radio System

Cuyahoga County uses a combination of the Ohio MARCS, the City of Cleveland,

and the City of Parma radio systems for interoperable communications with

outside agencies.

7.2.1 Tactical Interoperable Communications Plan (TICP)

The Tactical Interoperable Communications Plan (TICP) documents the

interoperable communications resources available within Cuyahoga County, the

agency and contact(s) that controls each resource, and what rules of use or

operational procedures exist for the activation and deactivation of each

resource. CCOEM maintains the TICP.

7.2.2 Amateur Radio Emergency Services (ARES)

Amateur Radio Emergency Service (ARES) consists of licensed amateur, or Ham,

radio operators who have voluntarily registered their qualifications and

equipment for communications duty in the public service when disaster strikes.

ARES may be used during EOC activations for communication assistance, and

they may also help establish radio communications at shelters, staging areas,

incident command posts, during trainings, etc.

31 | P a g e

7.3 Telephones, Cell Phones, and E-mail

Other devices including telephones, cell phones, and email will supplement other

means of communication between CCOEM and coordinating agencies. All

agencies with responsibilities as described in the EOP and its Annexes should

maintain and regularly update a notification roster listing multiple forms of

contact for all key positions.

7.3.1 GETS/WPS

The Government Emergency Telecommunication Service (GETS) and the Wireless

Priority Service (WPS) are companion services provided by the U.S. Department of

Homeland Security (DHS) to allow authorized users improved access and priority

processing for telephone calls during emergencies. GETS is used to increase the

probability of completing landline calls, while WPS is used to enhance wireless call

completion. CCOEM and ESF agencies have access to the GETS/WPS service.

8.0 ADMINISTRATION, FINANCE, AND

LOGISTICS

8.1 Overview

Response and recovery efforts will generate increased costs for Cuyahoga

County. These costs will primarily result from the deployment of personnel and

equipment in support of emergency operations.

While some personnel and equipment costs may be recovered from state and

federal agencies, it is unlikely that all costs will be reimbursed. To ensure

reimbursement, County and municipal agencies must document all costs

associated with an incident.

32 | P a g e

8.2 County Staffing Considerations

Emergency responses to major incidents may require

more personnel than are readily available. It may be

necessary to augment response personnel by

reassigning employees from other departments and

divisions. For example, staff from the Department of

Job and Family Services may be asked to assist with

staffing a shelter during a neighborhood evacuation.

Further, volunteers will play a major role in response

efforts. These specific efforts are outlined in annexes

to this EOP.

8.3 Mutual Aid

Mutual Aid Agreements (MAAs) are an additional source of assistance during an

incident response.

Cuyahoga County also participates in the Intrastate Mutual Aid Compact

(IMAC), a mutual aid agreement among participating government subdivisions

in Ohio. The Ohio legislature enacted the plan to complement mutual aid

agreements among local governments. All political subdivisions are automatically

included in the IMAC agreement, but each may opt out by enacting legislation

declaring that it does not intend to participate. Any participating political

subdivision may request assistance from any other participating political

subdivision in response to, and recovery from, a disaster. To receive assistance

however, the requesting political subdivision must first declare a formal

emergency, or be conducting disaster-related exercises, testing, or similar training

activities.

Another mutual aid source is the Emergency Management Assistance Compact

(EMAC), a nationwide mutual aid agreement to facilitate government resource

sharing between states. Similar to IMAC, EMAC is designed to complement

existing inter-state mutual aid agreements. States may obtain resources through

EMAC in lieu of, or in conjunction with, federal assistance. Unlike IMAC’s opt-out

system, EMAC is an opt-in program. All 50 states, Washington D.C., Puerto Rico,

Guam, and the U.S. Virgin Islands have enacted legislation to join EMAC. In Ohio,

33 | P a g e

EMAC is managed by Ohio EMA.

8.4 Documentation

CCOEM has the primary responsibility of tracking costs incurred during response

and recovery efforts for Cuyahoga County resources and resources dispatched

from the Cuyahoga County EOC. Each individual municipality is responsible for

tracking their own resources and providing a cost breakdown for their equipment

and personnel used during an emergency event. Details concerning cost

tracking forms and further information for communities and organizations can be

found in the Damage Assessment Annex to the EOP.

Cost documentation will be tracked by the Finance Section Chief in the County

EOC. Much of the information regarding record keeping responsibilities is located

in the EOC SOG. Some of the Finance Section Chief’s responsibilities include:

• Provide cost breakdowns for all personnel hours worked to include straight time

and overtime

• Provide cost breakdowns for all equipment purchased and/or leased

• Provide cost breakdowns for all professional services acquired

• Gather all appropriate Emergency Declarations

• Provide timely updated reports to the Executive Policy Group

• Coordinate activities with Ohio OEMA

8.5 Reimbursement

To obtain state or federal reimbursement for a disaster, the incident must be

declared an emergency by the state or federal government. This process is

initiated through the County after a local disaster declaration is made. Most

recently, Cuyahoga County received federal reimbursement from a disaster

declaration for Superstorm Sandy in 2012.

The amount of reimbursement is based on several factors. However, in most

instances, FEMA reimburses at least 75% of eligible costs. The remaining 25% is the

responsibility of the municipality. If funding is available, the 25% may be split

between the municipality, County, and State.

34 | P a g e

Even with a state or federal disaster declaration, financial support for victims is

limited. Various kinds of assistance may be provided by charitable agencies,

volunteer donations, and insurance coverage. Reference the Damage

Assessment Annex for more details.

9.0 RECOVERY AND MITIGATION

9.1 Recovery

CCOEM is responsible for coordinating

recovery operations following a disaster. This

includes acting as the lead agency for

damage assessments on public and private

property. Additional recovery actions, such

as debris management, public works

restoration, and donations management

are addressed in annexes to the EOP.

9.1.1 Recovery Programs

The state and federal governments offer various recovery programs in certain

incidents. These programs include individual and public assistance:

• Individual assistance programs provide loans and grants for disaster-related

costs to uninsured individuals, families, and “non-critical” Private Non-Profits

(PNPs)

that have private property damage or losses. Individual assistance

may include disaster housing, disaster grants, low-interest disaster loans, or

other disaster aid programs, including disaster-related unemployed assistance,

legal aid, and assistance with income taxes, Social Security, and Veteran’s

benefits. Depending on the declaration, individual assistance funds can come

from the State Individual Assistance Program or FEMA.

Per FEMA, “Non-critical” PNP facilities requesting reimbursement for permanent work costs must apply for

a disaster loan from the SBA. This should be done simultaneously with submitting a Request for Public

Assistance (RPA) to the State for disaster assistance.

35 | P a g e

• Public assistance programs provide assistance to local governments, state

agencies, and eligible PNP organizations to respond to and recover from the

cost of disaster related activities. Public assistance may include debris

removal, emergency protective measures and public services, repair of

damaged public property, loans needed by communities for essential

government functions, and grants for public schools. Depending on the

disaster declaration, public assistance funds can come from FEMA’s Public

Assistance Grant Program or Ohio’s State Disaster Relief Program (SDRP).

9.2 Mitigation

Mitigation is defined as sustained actions taken to reduce or eliminate long-term

risk to people and their property from hazards. The primary objectives of mitigation

are to improve the community’s resiliency to damage from known hazards,

reduce the cost of disasters at all levels, and accelerate community recovery

after disasters occur.

To help guide mitigation efforts, CCOEM maintains a Countywide All-Hazards

Mitigation Plan (AHMP). The Mitigation Plan identifies vulnerable areas in the

County and assesses the associated risk, develops strategies and priorities to

mitigate risk, guides the communities in their risk management activities, describes

eligibility to apply for FEMA’s Hazard Mitigation Assistance (HMA) grants, and

identifies Mitigation Actions for each municipality. The AHMP is updated once

every 5 years, most recently in 2017.

To view the County AHMP, visit: https://ready.cuyahogacounty.us/en-

US/Planning.aspx

9.2.1 Mitigation Programs

FEMA's Hazard Mitigation Assistance (HMA) grant programs provide funding for

eligible mitigation activities that reduce disaster losses and protect life and

property from future disaster damages. Currently, FEMA administers the following

mitigation programs:

• Hazard Mitigation Grant Program (HMGP)

• Flood Mitigation Assistance (FMA) program

36 | P a g e

• Pre-Disaster Mitigation (PDM) program

10.0 TRAINING AND EXERCISE PROGRAM

10.1 Training

CCOEM coordinates training opportunities

throughout the year for local officials and public

safety agencies. Course schedules are developed

to support NIMS training requirements as well as to

address responder capability gaps. When

appropriate, refresher courses are built in to the

schedule to allow for the maintenance of

certifications and expertise.

The Countywide training program is described in detail in the Cuyahoga County

Multi-Year Training and Exercise Program (MYTEP) document. The MYTEP is

updated annually via an in-person whole community workshop.

Visit https://ready.cuyahogacounty.us/en-US/Training-Exercise.aspx to view the

MYTEP, training calendar, and registration process.

10.2 Public Education

Many of the agencies with responsibilities identified in this EOP provide public

information and education about general and discipline-specific hazards.

Federally-developed resources such as FEMA’s Ready materials are used to

create unified messages and support public outreach. The ReadyCuyahoga

website features links to hazard-specific resources that can be used by the public

for additional learning.

10.2.1 ReadyCuyahoga

ReadyCuyahoga is an initiative of CCOEM to provide emergency preparedness

and disaster response information to the public, businesses, and first responders.

37 | P a g e

The ReadyCuyahoga mission is to strengthen area-wide disaster coordination by

sharing programs, policies, information, joint planning, and training.

The ReadyCuyahoga website (https://ready.cuyahogacounty.us/en-

US/home.aspx) offers information on how to build a kit, make a family plan, be

informed, and get involved. It also provides information on the ReadyCertify

Emergency Management Certification Program for communities and

organizations, the County All-Hazards Mitigation Plan, resources and templates for

partner agencies, and safety tips.

10.3 Exercise Approach

In accordance with Ohio Revised Code sections 5502.26, .27 & .271, CCOEM

conducts an annual exercise of the EOP. Exercises may be developed in

collaboration with partner agencies to maximize participation and minimize the

duplication of efforts. The EOP may be tested via a real-world event, Tabletop

(TTX), Functional (FE), or Full-Scale Exercise (FSE). CCOEM and emergency

management partners in Cuyahoga County use the following four specialized

exercise programs to meet funding and legal requirements:

• Ohio Exercise Program

• Local Emergency Preparedness Committee (LEPC)

• Intermodal and Security Training & Exercise Program (I-STEP)

• Homeland Security Exercise & Evaluation Program (HSEEP)

HSEEP is the backbone for the Cuyahoga County Exercise Program, since its

exercise and evaluation methodology is flexible, scalable, adaptable, and is for

use by stakeholders across the whole community. Furthermore, HSEEP

methodology is applicable for exercises across all mission areas—prevention,

protection, mitigation, response, and recovery. Jurisdictions and agencies are

encouraged to conduct their own exercises. Consequently, they are then

responsible for maintaining and tracking the post-exercise documentation.

Each exercise (and real-world event) is followed by a short in-person evaluation,

or “Hot Wash,” where exercise players are given the opportunity to provide

constructive feedback to the controller(s). This meeting is followed by the

development of an After-Action Report and Improvement Plan (AAR/IP).

Corrective actions to address gaps observed during the exercise (or real-life

38 | P a g e

event) are captured in the improvement plan and tracked by the hosting

authority. The CCOEM Operations Branch utilizes a Corrective Action Database

to track these items. When feasible, these actions are to be completed prior to

the next exercise cycle.

11.0 PLAN DEVELOPMENT AND

MAINTENANCE

11.1 Plan Development

CCOEM is responsible for the development and maintenance of the County EOP

with support from the agencies identified within it. All changes and revisions to this

plan are prepared, coordinated, published, and distributed in accordance with

applicable federal, state, and local guidelines.

The signature of the Cuyahoga County Executive certifies the completeness,

accuracy, and approval of the plan as written.

11.2 Plan Structure

The EOP consists of a base plan and supporting annexes. The base plan provides

a framework for emergency operations across all-hazards. The supporting

annexes address specific functions and hazards in accordance with best

practices and guidance. The lead agency for each annex is responsible for its

review and maintenance with support from other participating agencies and

CCOEM.

11.3 Plan Maintenance and Improvement

CCOEM personnel revise the EOP when:

• Conditions described in the current plan or sections of the current plan have

changed

• Changes are recommended through an after-action report process following

an actual event or exercise

39 | P a g e

• Necessary changes or revisions are discovered during annual EOP review

• Community and/or risk conditions change

• New EOP guidance is released

Following an exercise or activation of the EOP, an after-action report is completed

to ensure that lessons learned are captured and that recommendations are

integrated into an improvement plan.

40 | P a g e

12.0 AUTHORITIES

Federal

• Civil Defense Act 1950 (PL 81-9230) as amended

• The Disaster Relief Act of 1974 (PL 93-288)

• Emergency Planning and Community Right-to-Know Act of 1986 (Title III of

SARA)

• Robert T. Stafford Disaster Relief and Emergency Assistance

• Amendments of 1988 (PL 93-288 as amended by PL 100-707)

State

• State of Ohio Constitution, Article II, Section 42- Power of the Governor to act

for the citizens in the event of attack or other disaster

• Ohio Natural Disaster Plan, dated December 1, 1983

• Ohio Revised Code:

o 107: Governor

o 161: Emergency interim government

o 305.09: Proceedings of board of County commissioners

o 305.12: Liability of commissioners

o 307: Powers of board of County commissioners

o 311.07: Powers and duties of County sheriff

o 313.06: Powers and duties of County coroner

o 315.08: Powers and duties of County engineer

o 329.01: County dept. of job & family services-director, assistants, bonds

o 733.03: General powers of mayor in cities-merger of certain departments

o 733.23: Executive power in villages

o 737.11: General duties of police and fire departments

o 3701: Department of health

o 3709.06, 22: Powers and duties of County health departments

o 3750: Emergency Planning, Community Right-to-Know

o 4905.81: Highway routing of hazardous materials rules

o 5101.01, 02: Powers and duties of human services

o 5502: Department of public safety

Local

• Charter of Cuyahoga County, Article II, Section 2.03, Powers and Duties

41 | P a g e

ATTACHMENT A:

EMERGENCY SUPPORT FUNCTIONS

ESF

Primary Agencies

Support Agencies

#1 - Transportation

Greater Cleveland

Regional Transit Authority

CC Board of Developmental Disabilities, CC Public

Works, CC Sheriff, Cuyahoga Metropolitan Housing

Authority (CMHA), Senior Transportation Connection,

United Way

#2 -

Communication

Cuyahoga Emergency

Communications System

(CECOMS), Cuyahoga

County Office of

Emergency Management

Amateur Radio Emergency Services (ARES), CC Fire

Chiefs Assoc., CC Police Chiefs Assoc., CC Sheriff,

CC Dept. of IT

#3 - Public Works

and Engineering

Cuyahoga County Dept.

of Public Works

Cleveland Division of Water, CC Public Works

Directors Task Force, CC Sheriff, CC Solid Waste

District, Northeast Ohio Regional Sewer District

(NEORSD)

#4 - Firefighting

Cuyahoga County Fire

Chiefs Association

Amateur Radio Emergency Services (ARES), CC

Police Chiefs Assoc., CC Sheriff

#5 - Information &

Planning

Cuyahoga County Office

of Emergency

Management

CECOMS, Cleveland OEM, CC Public Works, CC

Planning Commission, Northeast Ohio Regional

Fusion Center (NEORFC), CC Dept. of IT

#6 - Mass Care,

Housing, and

Social Services

American Red Cross

(ARC), Greater Cleveland

Chapter

Amateur Radio Emergency Services (ARES), Greater

Cleveland Food Bank, CC Board of Developmental

Disabilities, CC Board of Health, CC Children and

Family Services, COAD, CC Public Works, CC Job

and Family Services, CC Fire Chiefs Assoc., CCOEM,

CC Planning Commission, CC Police Chiefs Assoc.,

CC Senior and Adult Services, CC Sheriff, First Energy,

Salvation Army, United Way/211

#7 - Logistics

Management and

Resource Support

Cuyahoga County Office

of Emergency

Management

CC Public Works, CC Fairgrounds, CC Fiscal Office,

CC, Office of Procurement and Diversity (OPD), CC

Solid Waste District

#8 - Public Health

and Medical

Services

CC Board of Health,

Cleveland Dept. of Public

Health

CC Alcohol Drug Addiction and Mental Health

Services (ADAMHS) Board, ARES, American Red

Cross, Center for Health Affairs, Cleveland Division of

Water, COAD, CC Public Works, CC Fire Chiefs

Assoc., CC Medical Examiner’s Office, CCOEM, CC

Police Chiefs Assoc., CC Senior and Adult Services,

CC Sheriff, NEORSD, RTA

#9 - Urban Search

and Rescue

Cuyahoga County Fire

Chiefs Association

Amateur Radio Emergency Services (ARES), CC

Police Chiefs Assoc., CC Sheriff

#10 - Oil and

HazMat Response

Cuyahoga County Fire

Chiefs Association

ARC, CC Board of Health, CCOEM, CC Police Chiefs

Assoc., CC Sheriff, CC Solid Waste District, NEORSD,

NEORFC

42 | P a g e

#11 - Agriculture

and Natural

Resources

CC Board of Health,

Cleveland Dept. of Public

Health

Ohio St. Univ. Extension of CC, Cleveland Animal

Control Services, Cleveland Metroparks, CC Public

Works - Animal Shelter, Intermuseum Conservation

Association

#12 - Energy

Cuyahoga County Office

of Emergency

Management

Burke Lakefront Airport, Cleveland Water, Cleveland

Hopkins International Airport, Cleveland Public

Power, CC Office of Procurement and Diversity, CC

Public Works, Dominion Energy, First Energy, NEORSD

#13 - Public Safety

& Security

CC Sheriff’s Office

CC Police Chiefs Assoc., CC Prosecutor’s Office, CC

Law Dept.

#14 - Long Term

Recovery

Cuyahoga County Office

of Emergency

Management

Cleveland OEM, CC Board of Health, COAD, CC

Public Works, CC Dept. of Development, CC Job

and Family Services, CC Planning Commission, CC

Solid Waste District, CC Soil & Water Conservation

District

#15 - External

Affairs

Cuyahoga County

Communications Dept.

ARC, Cleveland OEM, Cleveland Mayor’s Office of

Communications, Cleveland Public Power, CCOEM,

CC Planning Commission, Destination Cleveland,

Dominion Energy, First Energy, CC Dept. of IT,

NEORSD

43 | P a g e

ATTACHMENT B: ACRONYMS

AAR/IP After-Action Report and Improvement Plan

ADAMHS Alcohol Drug Addiction and Mental Health Services

AHMP All-Hazards Mitigation Plan

ALPR Automatic License Plate Reader

ARC (Greater Cleveland Chapter) American Red Cross

ARES Amateur Radio Emergency Services

BKL Burke Lakefront Airport

CBRNE Chemical, Biological, Radiological, Nuclear, Explosive

CECOMS Cuyahoga Emergency Communications System

CCBH Cuyahoga County Board of Health

CCOEM Cuyahoga County Office of Emergency Management

CLE Cleveland Hopkins International Airport

CMHA Cuyahoga Metropolitan Housing Authority

CMS Centers for Medicare and Medicaid Services

CMIST Communication, Maintaining Health, Independence, Services and

Support, and Transportation

COP Common Operating Picture

COOP Continuity of Operations Planning

DHS Department of Homeland Security

EAS Emergency Alert System

EMA Emergency Management Agency

EMAC Emergency Management Assistance Compact

EOC Emergency Operations Center

EOP Emergency Operations Plan

EPCRA Emergency Planning and Community Right-to-Know Act

EPG Executive Policy Group

ESF Emergency Support Function

FCC Federal Communications Commission

FE Functional Exercise

FEMA Federal Emergency Management Agency

FMA Flood Mitigation Assistance

FSE Full-Scale Exercise

GETS Government Emergency Telecommunication Service

HAZMAT Hazardous Materials

HIRA Hazard Identification and Risk Assessment

44 | P a g e

HMA Hazard Mitigation Assistance

HMGP Hazard Mitigation Grant Program

HSEEP Homeland Security Exercise and Evaluation Program

IAP Incident Action Plan

IC Incident Command

ICS Incident Command System

ICP Incident Command Post

IMAC Intrastate Mutual Aid Compact

I-STEP Intermodal and Security Training & Exercise Program

JIC Joint Information Center

JIS Joint Information Systems

KC Knowledge Center

LEPC Local Emergency Planning Committee

MAAs Mutual Aid Agreements

MAC Multiagency Coordination System

MACC Multiagency Coordination Center

MARCS Multiple Agency Radio Communications System (State of Ohio)

MYTEP Multi-Year Training and Exercise Plan

NASA National Aeronautics and Space Administration

NEORFC Northeast Ohio Regional Fusion Center

NEORSD Northeastern Ohio Regional Sewer District

NIMS National Incident Management System

NOAA National Oceanic and Atmospheric Administration

NRF National Response Framework

NWS National Weather Service

OEMA Ohio Emergency Management Agency

ORC Ohio Revised Code

PDM Pre-Disaster Mitigation

PIO Public Information Officer

PNPs Private Non-Profits

PSAP Public Safety Answering Point

RFC Repetitive Flood Claims

RQ Reportable Quantity

RTA Greater Cleveland Regional Transit Authority

SARA Superfund Amendments and Reauthorization Act

SDRP State Disaster Relief Program

SITREP Situational Report

SOG Standard Operating Guideline

45 | P a g e

SPR Stakeholder Preparedness Review

SRL Severe Repetitive Loss

THIRA Threat and Hazard Identification and Risk Assessment

TICP Tactical Interoperable Communications Plan

TTX Tabletop Exercise

UAHSS Urban Area Homeland Security Strategy

UC Unified Command

WPS Wireless Priority Service