National Disaster Management Plan 2008

VIRGIN ISLANDS NATIONAL DISASTER MANAGEMENT PLAN 2008 Base Plan BP Revised May 2009 1 1.0 INTRODUCTION 1.1 Goal of the National Disaster Management Plan 1.2 Objectives of the NDMP 1.3 User’s Guide 1.4 Critical Assumptions 2.0 HAZARDS, VULNERABILITIES AND RISKS 3.0 DISASTER MANAGEMENT IN THE VI 3.1 Authorities and References 3.1.1 Disaster Management Act, 2003 3.1.2 Disaster Management Policy 3.1.3 CDM Strategy and Framework 3.2 VI National Disaster Management Organization 3.2.1 National Disaster Management Council 3.2.2 Department of Disaster Management 3.2.3 Zonal Committees 3.2.4 Disaster Auxiliary Corps 3.2.5 Ad Hoc Committees 3.2.6 Liaison Officers 3.2.7 Non-Governmental Organizations BP Revised May 2009 2 3.3 EMERGENY POWERS 3.3.1 The Virgin Islands Constitution Order 2007 3.3.2 The Emergency Powers (Disaster) Act 1984 3.3.3 Disaster Management Act 2003 4.0 PRE-EVENT PREPAREDNESS 4.1 National Level Priorities 4.1.1 Training 4.1.2 Resources and Assets 4.1.3 Readiness Assessments and Reports 4.1.4 Maintenance 4.1.5 Adequacy of Plans 4.1.6 Exercises 4.1.7 Public Information 4.1.8 Emergency Supplies 4.1.9 Emergency Communications and Warnings 4.1.10 Emergency Shelters 4.1.11 NEOC Capacity 4.1.12 Reporting and Documentation 4.1.13 Tracing 4.1.14 Evacuation Planning 4.2 Community Level Priorities 4.3 Agency Level Priorities BP Revised May 2009 3 5.0 CONCEPT OF OPERATIONS 5.1 Surveillance 5.2 Alert Levels 5.3 Response Levels 5.4 Warnings 5.5 Plan Activation 5.6 Monitoring of Initial Reports 5.7 Activation of National Emergency Operations Centre 6.0 PLAN EXECUTION 7.0 GENERAL ROLES AND RESPONSIBILITIES 8.0 RESPONSE TO THREAT OF A DISASTER 9.0 COORDINATION PRIORITIES 10.0 COMMAND AND CONTROL 11.0 SPECIAL CIRCUMSTANCES 12.0 ASSISTANCE FROM EXTERNAL SOURCES 12.1 Caribbean Disaster Emergency Response Agency 12.2 Network of Emergency Managers of Overseas Territories 12.3 Pan American Health Organization 12.4 United Kingdom Support 12.5 Mutual Aid Agreements BP Revised May 2009 4 OPERATIONAL ANNEXES I. RESPONSE FUNCTION ANNEXES (RF) 1. Command and Control 2. Emergency Medical Care 3. NEOC Activation 4. Evacuation 5. Impact and Damage Assessment 6. Law Enforcement and Security 7. Search and Rescue Land 8. Search and Rescue Water II. SUPPORT FUNCTION ANNEXES (SF) 1. Administrative and Financial Management 2. Coordination of External Assistance 3. Coordination of Volunteers 4. Early Warning System 5. Emergency Communications 6. Emergency Shelter 7. Health and Welfare of Visitors 8. Inspection and Clearing of Roads and Bridges 9. Inspection of Airport Facilities 10. Inspection of Marine Facilities and Waterways 11. Inspection of Reservoirs and Water Storage 12. Inspection of Structures 13. Logistics Management 14. Management of Dead Bodies 15. Public Information 16. Relief Coordination and Distribution 17. Health and Welfare of Elderly and Disabled III. HAZARD INCIDENT ANNEXES (HI) 1. Bomb Threats 2. Drought 3. Earthquake 4. Epidemics 5. Fires 6. Floods BP Revised May 2009 5 7. Hazardous Substances 8. Hurricane/Tropical Storms 9. Landslides 10. Oil Spill 11. Terrorist Act 12. Transport Air 13. Transport Sea 14. Tsunamis 15. Transport Land IV. SPECIFIC PLANS ANNEXES (SP) 1. Aircraft Accident Plan 2. Damage and Needs Assessment Plan 3. Disaster Management Plan - Jost Van Dyke 4. Disaster Management Plan - Virgin Gorda 5. Emergency Communications Plan 6. Emergency Shelter Policy and Manual 7. Evacuation Plan – Anegada 8. Evacuation Plan - Jost Van Dyke 9. External Affairs Plan 10. Hazardous Material Plan 11. Health Sector Emergency Management Plan 12. Mass Fatality Plan 13. Mass Gathering Plan 14. National Emergency Operations Centre SOP’s 15. National Oil Spill Contingency Plan 16. Public Information Plan 17. Recovery Plan 18. Search And Rescue Plan – Land 19. Terrorist Response Plan 20. Welfare And Relief Distribution Plan 21. Search and Rescue – Water 22. Cruise Ship Incident Plan V. Mutual Aid Agreements ANNEXES (Ma) 1. BVI/USVI Framework 2. CDERA Agreement 3. CDERA Regional Response Plan 4. CHAD - Guidelines for Response During Disasters BP Revised May 2009 6 5. CRRT Joint Response Guide 6. Eastern Caribbean Donor Group Guidelines 7. MOU - ADRA 8. MOU - Agape 9. MOU – BVI Red Cross 10. MOU – BVI/USVI for Oil Spills 11. MOU – Methodist Churches 12. MOU – Prophecy Churches 13. MOU – Social Development Department 14. MOU – St. Georges Anglican Church 15. MOU – St. Ursula 16. MOU – University of Puerto Rico Mayaguez 17. MOU - VITV 18. MOU – ZBVI 19. MOU – ZROD 20. PAHO Response Guidelines 21. Royal Navy HDRO 22. BVI/USVI Friendship Agreement VI. ATTACHMENTS 1. Disaster Management Act 2. Disaster Management Policy 3. Emergency Powers Act 1984 4. Hazard and Risk Assessment Project 5. Mitigation Policy 6. Operational Guidelines for DDM Staff 7. Zonal Committee Handbook 8. Tsunami/Earthquake Protocol 9. Grading Tool 10. Virgin Islands Constitution Order 2007 VII. APPENDICES 1. Abbreviations and Acronyms 2. Glossary 3. Contact Information 4. Forms BP Revised May 2009 7 Base Plan (BP) 1.0 INTRODUCTION Throughout history, natural disasters have inflicted heavy cost in human, material and physical resources, and represent potentially significant obstacles to economic growth and development. Thus the public should be well advised of the precautions that can be taken before a disaster strikes, as well as measures to be taken during the occurrence of a disaster, or in the aftermath of any disaster. A disaster is an event which suddenly disrupts the daily life of the people in the effected area. It can result in substantial loss of life, and in social upheaval leading to many persons becoming homeless, helpless and hungry. This situation is usually further aggravated by the disruption to vital production, water, power supplies and communications services. It is therefore necessary to seek to protect lives and property, by ensuring that the Territory has a disaster plan equipped to reduce the negative effects of such events. Adequate procedures to deal with disaster situations and effect relief measures should be planned prior to the event, with strong effective legislation to empower or compel those responsible for carrying out essential tasks. Regular training must be carried out covering all aspects of relief, rescue, management and welfare. Careful planning must be put in place to coordinate the use of resources, both human and manmade, within the Virgin Islands (VI), for the saving and sustenance of life and property, and for the return to normal lifestyle as soon as possible. Measures must also be in place to request and receive assistance from outside of the VI. The assistance must be what is required by the VI, and not what outside organizations think is required. 1.1 Goal of the National Disaster Management Plan The National Disaster Management Plan (NDMP) is intended to provide a framework that promotes centralized coordination, control and effective collaboration in preparing for and providing immediate responses to various hazards. The NDMP is designed to assign responsibilities and provide coordination of emergency activities connected with major disasters. It encourages a process of learning to adequately cope with the recovery from a disaster, from both local and international experiences. The NDMP addresses the short and long term objectives of the National Emergency Organization (NEO). It will be continuously strengthened and expanded in its scope, content, membership composition, administrative and policy guidelines, rescue, relief and recovery procedures, and in Regional and International relationships with similar organizations. BP Revised May 2009 8 Reviews will be conducted at all levels of the NEO, and will affect all participating agencies identified in the plan. All agencies, departments and organizations are therefore expected to provide full co-operation. 1.2 Objectives of the NDMP  Establish guidelines to assist the Government and people of the VI in preparing for disasters  Present mechanisms for warning and informing the public during critical stages of an emergency response.  Promote the involvement and empowerment of organizations representing the community and civil society in effective disaster response.  Outline procedures which enhance timeliness and effectiveness in emergency and disaster situations.  Clarify the many roles and responsibilities required for effective emergency and disaster responses.  Establish procedures for the deployment of material, manpower and equipment to the site of any emergency or disaster.  Specify the procedures which should be followed to save lives, reduce human suffering and promote rapid disaster recovery.  Identify the mechanisms for obtaining external assistance if required in an emergency or disaster. 1.3 User’s Guide The NDMP has six (6) main parts. 1. Base Plan (BP) 2. Response Function Annexes (RF) 3. Support Function Annexes (SF) 4. Hazard Incident Annexes (HI) 5. Specific Plans Annexes (SP) 6. Mutual Aid Agreements Annexes (MA) The Base Plan gives a broad overview of disaster management in the VI and should be reviewed and revised (if needed) as prescribed in the National Disaster Management Act, 2003 (ATTACHMENT 1). The Response Function Annexes will give information and actions to be taken for the Response Function involved and should be reviewed and revised as needed. Any changes, additions, or deletions made will not require action by the Cabinet to be BP Revised May 2009 9 invoked, unless such changes, additions, or deletions pertain to other specific Policies or Laws. The Support Function Annexes will give information and actions to be taken for the Support Function involved and should be reviewed and revised as needed. Any changes, additions, or deletions made will not require action by the Cabinet to be invoked, unless such changes, additions, or deletions pertain to other specific Policies or Laws. The Hazard Incident Annexes will give information and actions to be taken for the Hazard Incident involved and should be reviewed and revised as needed. Any changes, additions, or deletions made will not require action by the Cabinet to be invoked, unless such changes, additions, or deletions pertain to other specific Policies or Laws. The Specific Plans Annexes are plans that have been developed for specific events or tasks. These Specific Plans are incorporated into the NDMP and are referred to in the RF, SF, and HI Annexes and should be reviewed and revised as needed. Any changes, additions, or deletions made will not require action by the Cabinet to be invoked, unless such changes, additions, or deletions pertain to other specific Policies or Laws. The Mutual Aid Agreements Annexes are Agreements or Memorandums of Understanding (MOU’s) that involve emergency management. These Agreements and MOU’s are incorporated into the NDMP and are referred to in the RF, SF, and HI Annexes and should be reviewed and revised as needed. Any changes, additions, or deletions made will not require action by the Cabinet to be invoked, unless such changes, additions, or deletions pertain to other specific Policies or Laws. 1.4 Critical Assumptions The following assumptions underpin the revision of the National Disaster Management Plan:  All relevant agencies will embrace the Plan as the primary national-level framework for emergency and disaster response.  The resources which were identified during the planning process as being essential to its implementation will be provided.  Agencies will develop the necessary internal plans and procedures required in support of this Plan.  The Contingency Planning process will continue in areas such as training, orientation, simulation exercises, public awareness and national capacity building.  In general, the individuals required to perform critical roles in emergencies will be available when required or have capable stand-ins. BP Revised May 2009 10 2.0 HAZARDS, VULNERABILITIES AND RISKS A hazard and risk assessment was conducted in the VI from 1995 to 1997 with the intention, inter-alia to prioritize the hazards that affect the VI. The results of the assessment indicated that there are two (2) natural hazards with the potential to severely affect the Territory; these are:  The effects of tropical systems and related weather systems including land born flooding, wind damage, and coastal flooding;  The effects of earthquakes including severe ground shaking and tsunami generated flooding.  Landslides and rockslides are considered to be minor threats and are regarded as a secondary hazards generated from a tropical system or earthquake. The results of the study also indicated that the most significant technological (man induced) hazards are:  Exposure to hazardous substances  Explosions  Accidents related to mass transportation via air and sea For the purpose of this plan, additional hazards were identified as having some level of impact on the VI. These are:  Fires  Oil Spills  Epidemics  Drought  Terrorism Tropical systems have been perceived as the most severe of the natural hazards identified, given the damaging effects of high velocity winds on structures and the environment. The results of the hazard assessment further noted that, narrow areas along ridgelines and locations above 1,000 feet in elevation should be classified as high-risk areas. The major population centers of Tortola, Jost Van Dyke and Anegada face the greatest threat from storm surge that can result in coastal flooding and damage to property and infrastructure. BP Revised May 2009 11 The Territory is located within seismically active zones in the north-eastern Caribbean that have the capacity to produce damaging earthquakes in the VI. The zones that pose the greatest threat are those associated with the Anegada Trough and the Puerto Rico Trench. The major population centers of Tortola and Anegada are most vulnerable to ground shaking effects, particularly Wickham’s Cay in Road Town, and severe flooding from tsunamis. The risk assessment also identified buildings, utility networks, critical facilities, coastal marine resources and the boating sector as those features that are at risk given the current vulnerability of the Territory to natural hazards. 3.0 DISASTER MANAGEMENT IN THE VI The VI Government has taken action to assure that agencies executing emergency responses have the protection of comprehensive legislation, backed up by detailed regulations. Some of the most significant subject areas include:  Public Safety  Public Health  Public Shelter  Environmental Protection  Enforcement Procedures The Governor has overall responsibility for disaster management in the VI. He or she serves as Chairman of the National Disaster Management Council (NDMC) and is primarily responsible for pre-disaster and response activities. The Premier serves as Deputy Chairman and he or she is primarily responsible for recovery plans and activities. 3.1 Authorities and References 3.1.1 Disaster Management Act, 2003 Enactment of the Disaster Management Act, 2003:  Clarifies the authority and role of the Governor and the Director of Disaster Management in times of normalcy and emergency/disaster conditions pertaining to disaster management.  Establishes a Department of Disaster Management and the functions thereof. BP Revised May 2009 12  Identifies the composition and functions of the National Disaster Management Council (NDMC).  Requires the existence of a National Disaster Management Plan and identifies required contents.  Assures provisions for the management of especially vulnerable areas.  Provides for hazard inspections and the powers of inspectors.  Requires regulations for the management of emergency shelters, defines offences and spells out penalties. 3.1.2 Disaster Management Policy [To be attached after adoption of the Policy] 3.1.3 Comprehensive Disaster Management Strategy [To be attached after adoption of the 2009 – 2012 framework] 3.2 VI National Disaster Management Organization 3.2.1 National Disaster Management Council The National Disaster Management Council (NDMC) is an inter-institutional umbrella organization that normally meets at the start of the Atlantic Hurricane Season to review reports and work programmes and make recommendations to government regarding disaster management. It is organized into sub-committees. Each sub-committee is expected to have its own sub-plan, which becomes part of the National Disaster Management Plan, and to exercise and update this plan. The National Disaster Management Council has the mandate for policy of the work done by the Department of Disaster Management. Policies or new projects proposed by the NDMC must be presented by the Chairman to the Cabinet for approval. 3.2.2 Department of Disaster Management The Department of Disaster Management (DDM), formerly known as the Office of Disaster Preparedness, was established with the enactment of the Disaster Management Act, 2003 (ATTACHMENT 1). The Director is responsible for assisting the Governor in coordinating the general policy of the Government relating to the mitigation of, preparedness for, response to and recovery from, emergencies and disasters in the Territory. When the DDM is activated during a disaster/emergency situation, it becomes the base of the National Emergency Operations Centre (NEOC) and critical response actions are coordinated there. Once the NEOC is activated, officials from critical agencies and emergency services report to the NEOC. This group is known as the Operations Group. BP Revised May 2009 13 3.2.2.1 Functions of the DDM The Department of Disaster Management has 13 major functions as outlined below: 1. Implementation of Laws and Policies - This involves the Territorial laws and regulations that establish the legal authority for the development and of the disaster management programme and organization, and defines the emergency powers, authorities, and the responsibilities of the Governor, elected officials, and the Director of the Department of Disaster Management. 2. Hazard Identification and Risk Assessment (HIRA) - The Territorial Hazard Identification and Risk Assessment Programme involves the identification of hazards and the assessment of risks to persons, public and private property, and structures. The data collected at the community/island level provides much of the data the Territory will use to produce its assessment of risk. The information collected during the HIRA will also be used for more detailed damage and loss estimation projections. 3. Hazard Mitigation - The intent of a hazard mitigation programme is to target resources and prioritize mitigation activities to lessen the effects of disasters to the population, communities, businesses, industries, and government. 4. Resource Management - Resource management involves the systematic development of methodologies for the prompt and effective identification, acquisition, distribution, accounting, and use of personnel, facilities, and major items of equipment for essential emergency functions. 5. Planning - Disaster Management involves the development of several types of plans. This function deals with the two most important: a Comprehensive Disaster Management Strategy (CDMS) that is designed to reduce the hazards a jurisdiction faces; and a National Disaster Management Plan (NDMP) that focuses on emergency response and short-term recovery to a disaster occurrence. 6. Direction, Control, and Coordination - During the pre-, trans-, and post-phases of the emergency response, Direction, Control, and Coordination allows officials to: 1) analyze the situation and decide how to quickly and effectively respond; 2) direct and coordinate response forces; 3) coordinate with other jurisdictions; and 4) use available resources efficiently and effectively. 7. Communications and Warning Technology - Communications involves establishing, using, maintaining, augmenting, and providing backup for all types of communications devices required in day-today emergency and response operations. Warning comprises the dissemination to Government officials and the public and timely forecasts of all hazards requiring emergency response actions. 8. Assistance to other departments, agencies, and organizations with emergency operations and procedures - development, coordination, and implementation of BP Revised May 2009 14 operational plans and procedures by all departments and organizations is fundamental to effective disaster response and recovery. Standard Operating Procedures (SOPs) and checklists provide the detailed instructions that an organization needs to fulfill responsibilities assigned in the NDMP. 9. Logistics and Facilities - The identification, location, acquisition, distribution, and accounting for services, resources, materials, and facilities is required to adequately support disaster management activities. 10. Training - Assessment, development, and implementation of a training/educational programme for public/private officials and emergency response personnel. 11. Exercises - A programme of regularly scheduled exercises, designed for assessment and evaluation of emergency response plans and capabilities, is critical to the Territory’s Disaster Management Programme. 12. Public Information and Education - Public Information and Education provides the general public with education on the nature of hazards, protective measures, and an awareness of the responsibilities of Government and citizens in an emergency/disaster. During a disaster event, this function focuses on providing accurate, timely, and useful information and instructions to people at risk in the community throughout the emergency period. 13. Finance and Administration - The development of fiscal and administrative procedures designed to support a disaster management programme. 3.2.3 Zonal Committees The Virgin Islands have been divided into zones for the efficient and effective management of the various communities. Each zone is managed by a designated Zone Coordinator and run by a Zonal Committee and the overall objective is to reduce or minimize the loss of life and property in the zone from all hazards. The Zone Coordinator and his/her Committee are responsible for the assessment of the zonal area, with the overall goal of evaluating community resources before the need arises. In the case of the Sister Islands this responsibility is placed on the District Officers. Each zone is required to work closely with the DDM and should ideally assume roles and functions in all areas of disaster preparedness and response. Activities should not be restricted to hurricane preparedness alone; they should also develop procedures for other disaster situations or emergency conditions that may affect the Territory or their particular Zone. 3.2.4 Disaster Auxiliary Corps The Disaster Auxiliary Corps (DAC) was established in 1995. It aims to train and organize volunteers to assist in disaster preparedness activities and in the performance of immediate post disaster relief and rehabilitation activities. BP Revised May 2009 15 The group consists of people who have been fully trained and prepared to assist the DDM staff. Training of volunteers includes radio operations, shelter management, first aid and disaster management concepts. DAC members serve as additional personnel for the DDM especially during ‘high alert’ and response activities. 3.2.5 Ad Hoc Committees The DDM often establishes ad hoc committees to advance its work program. These include those with a strong sectoral focus such as tourism. Such committees are often set up to assist in updating plans or in staging various exercises such as mass casualty or airport accident simulations. 3.2.6 Liaison Officers According to the Disaster Management Act 2003, the Director of the Department of Disaster Management is required to establish a liaison with such organizations in the private sector as he/she thinks fit for the purposes of establishing communication links with them in relation to the procedures of those organizations. The Director may enter into such arrangements as he/she considers necessary with any organization requiring the provision by that organization of any information as may be requested. Every Permanent Secretary, Head of a Department of Government and statutory board shall ensure that there is at all times an officer of his Ministry, Department or board, designated as the liaison officer for communication with the Director in relation to Disaster Management. 3.2.7 Non-Governmental Organizations Non-Government Organizations are equally important in disaster management. Their coordination and assistance before, during, and after a disaster is necessary to provide need services to the government and people of VI. Agreements and Memoranda of Understanding (MOU) should be in place and recorded in the NDMP. BP Revised May 2009 16 House of Assembly Cabinet Governor National Disaster Management Council Mitigation Public Information & Educattion Welfare, Logistics & Relief Distribution Emergency Planning Transport & Infrastructure Disaster Fund Health Disaster Management Sub-Committees Director Department of Disaster Management (DDM) Director of DDM National Emergency Operations Centre Public Works Department Water and sewerage Department Virgin Islands Fire & Rescue Service BVI Electricity Corporation Royal Virgin Islands Police Force Health Services Authority Operations Group Zone 1 Zone 2 Zone 3 Zone 4 Zone 5 Zone 6 Zone 7 Zone Coordinators & Committees National Disaster Recovery Plan & implementation Premier VI National Disaster Organization Red Cross Operations Logistics Planning Finance And Administration Emergency Operations Normal Operations Government Departments Government Agencies Government Boards Government Authorities Non-Government Organizations Volunteer Groups Private Sector Other Organizations ICS Structure To Meet Incident Needs Ministry of Health and Social Development (HDC) BP Revised May 2009 17 3.3 EMERGENCY POWERS Under the authority of the following documents the Governor can:  Declare a period of public emergency to restore peace and order  Declare a state of emergency to provide for basic public needs and start the recovery process  Declare either a specific area or the whole Territory a “Disaster Area” Each document covers emergency powers from a different governmental concern. The Virgin Islands Constitution Order 2007 allows for emergency powers for peace and order in the Territory. The Emergency Powers (Disaster Act 1984) allows for emergency powers for health, welfare and safety of the public. The Disaster Management Act 2003 further defines emergency powers in the Emergency Powers (Disaster Act 1984) to addresses disaster areas. 3.3.1 The Virgin Islands Constitution Order 2007 Under Section 27 of the Virgin Islands Constitution Order 2007 (ATTACHMENT 10), the Governor has the authority to declare a period of public emergency by Proclamation, after consulting with Cabinet and or the Premier when practical, when:  The well-being or security of the Virgin Islands is threatened by war, invasion, general insurrection, public disorder, natural disaster or other public emergency.  The declaration is considered necessary by the Governor to maintain or restore peace and order. During a period of public emergency, under Section 27 of the Virgin Islands Constitution Order 2007, the Governor has the authority to make Laws when it appears to him or her to be necessary or expedient for:  Securing the public safety.  The defense of the Virgin Islands.  The maintenance of public order.  Maintaining supplies and services essential to the life of the community. 3.3.2 The Emergency Powers (Disaster Act 1984) The authority for declaring a state of emergency by Proclamation under the Emergency Powers (Disaster Act 1984) (ATTACHMENT 3) is vested in the Governor after consulting with Cabinet and or the Premier when practical. When a state of emergency exists, the Governor may make orders under the provisions of the Ordinance to secure essentials of life BP Revised May 2009 18 to the zone and for the preservation of the health, welfare and safety of the public. Orders so made may inter-alia provide:  For the requisitioning of all forms of transport and communications;  For the requisitioning and regulating the supply and distribution of food, clothing, water, fuel, light and other necessities of life and for fixing maximum wholesale and retail prices in respect thereof;  For the requisitioning of private lands, buildings and premises;  For conferring on any person the right to entry on or passage through or over any private lands, buildings, premises;  For the demolition of any building or other structure deemed to be dangerous;  For the disposal of the dead and for dispensing with enquiries under the Coroners Act and from the Ordinance. 3.3.3 Disaster Management Act, 2003 Under Part II section 3 of the Disaster Management Act 2003. (ATTACHMENT 1) the Governor has the authority to declare disaster areas by Proclamation, after consulting with Cabinet and or the Premier when practical. The Disaster Management Act, 2003 also stats:  The Governor has the power to activate the National Disaster Management Plan. The Director of the Department of Disaster Management will coordinate during a state of emergency, all personnel, medical and emergency services made available by Departments, Organizations and local authorities, and any other person who may be so determined.  The Director shall be responsible for the plan upon its activation and shall have the statutory authority to carry out such functions as prescribed by the National Disaster Management Plan. 4.0 PRE-EVENT PREPAREDNESS Emergency and disaster response procedures can be greatly enhanced if the necessary laws and regulations have already been enacted before an event or incident. BP Revised May 2009 19 4.1 National Level Priorities Effective, well coordinated and timely emergency response occurs when a high level of preparedness exists among all agencies on a day to day basis. There are many components to such preparedness and responsibility rests on all agencies to promote and do what is required. The areas highlighted below are intended as a brief reminder of some of the most important aspects of such readiness. 4.1.1 Training Training in operational responses to emergencies should be seen as part of the routine of all emergency response agencies. The training should be relevant to the Territory and involve the use of equipment which will be used in actual emergencies. Heads of Departments or agencies should take responsibility for ensuring appropriate induction training for new staff and for specialized training for more experienced staff relative to the agencies mandates and the hazards the VI is likely to face. The DDM maintains a National Training Database which contains details of training sessions that were attended by different disaster management stakeholders throughout the VI. 4.1.2 Resources and Assets Effective emergency response relies on the availability of capable personnel and appropriate equipment being available when required, in emergencies and disasters. This means that each agency must try to maintain appropriate levels of trained staff and needed equipment. In responding to disasters and emergencies, there is great value in being aware of the nature and numbers of specialized equipment and plant such as bulldozers, graders, fire tenders, large capacity trucks, stand-by (portable) generators and the like. The National Resource Inventory is used to store information pertaining to the Territory’s physical resources lending to its capacity to respond. Aside from covering the Government Departments it also offers information on some Statutory Agencies and their capacity in terms of numbers of its physical and human resources. 4.1.3 Readiness Assessments and Reports The Department of Disaster Management’s Preparedness programme is informed by the disaster preparedness level and the needs of the Virgin Islands Government Department and Statutory Agencies. The programme is also informed by the need to develop capacity and strengthen institutions as we pursue Comprehensive Disaster Management (CDM) in the VI. In this regard, the DDM develop mechanisms for monitoring and evaluating the level of disaster preparedness and readiness of the other Government Departments in the event of a disaster. The Disaster Preparedness Audit Instrument is intended to achieve this by providing a systematic method for capturing this information and reporting on the status of the Departments. BP Revised May 2009 20 It is also required that DDM provides an annual statement to Cabinet on the Level of preparedness in the VI The Audit Instrument is targeted at Heads of Departments and Agencies’ Head or designates. However, it is expected that the Head of Department/Agency or designate, will collaborate and consult with counterparts to ensure that the most current and accurate information is gleaned. 4.1.4 Maintenance In addition to agencies obtaining facilities and appropriate resources, assets will require appropriate maintenance if they are to provide requisite service at short notice. It should be remembered that some level of redundancy should be built in for indispensable equipment to ensure that there is always the capacity to respond. Sensitive equipment in particular, should not be allowed to remain idle. Agencies should diligently follow manufacturers’ maintenance recommendations. The relevant manuals and guidelines should be kept in close proximity to the equipment to promote effective maintenance. 4.1.5 Adequacy of Plans Plans and guidelines are the foundation of effective emergency response. The Director of the DDM is mandated by the Disaster Management Act, 2003 (ATTACHMENT 1) to prepare at regular intervals not exceeding five years, a National Disaster Management Plan. The NDMP shall comprise the statement of the contingency arrangements under the coordination of the Director for responding to the threat or event and aftermath of a disaster in the Territory, whether or not the threat or disaster is such as to prompt the declaration of a disaster emergency. The NDMP shall be submitted to the Governor, who shall cause it to be reviewed by the NDMC and after such review; the Governor shall cause it and the recommendations of the NDMC to be submitted for the approval of the Cabinet. The National Disaster Management Council should establish frameworks for the updating of all national level contingency plans. In general, no current contingency plan should be more than 5 years old. Furthermore, all emergency/disaster plans, from a National to department level, should be reviewed annually and checklists and contact information within plans should be updated by each department having such a plan. Wherever personnel listings require the use of names in preference to job titles, such lists should be updated before Hurricane season. 4.1.6 Exercises Simulation exercises have the potential to improve contingency planning and emergency response. Full scale exercises are very expensive in terms of time and human resources and can be disruptive of normal public services. This is balanced by the great benefit that is derived by staging such exercises. It is strongly recommended that the response agencies should agree to stage at least one full field exercise per year. This would allow for constant testing of the National Disaster Management Plan and associated agency procedures. A BP Revised May 2009 21 rational basis for updating the Plan and procedures would thus emerge. In 2007 the DDM developed a Grading Tool (ATTACHMENT - 9), a mechanism to evaluate the performance of each agency during the exercise, which will evaluate each agency and identify areas for improvement. 4.1.7 Public Information Residents and visitors to the Territory need to be educated about major hazards, their effects and impacts. In particular, people need to be made aware of what they themselves can do in emergencies and disasters to respond to hazards of all kinds. This requires a constant flow of advisory information on the full range of hazards. It is desirable that such campaigns involve many forms of the media and several agencies, thus ensuring mass outreach, mass appeal and consistency in the messages. The National Public Information Plan (ANNEX SP-16) addresses information management. 4.1.8 Emergency Supplies In disasters, normal commercial activities are disrupted. Depending on the degree of destruction there could be a long hiatus before normal supply arrangements are reinstated. This means that a minimal level of critical supplies should always be stored at designated Emergency Shelters at National Warehouses by Government agencies. Care must be exercised with regard to the storage and security arrangements for such supplies. There must be appropriate administrative arrangements in place for checking and replacing supplies. Great care should be taken with regard to the storage of First Aid supplies since some medicines rapidly lose potency if they are not stored under appropriate conditions. Further, medicines may remain past their expiry date without being replaced if inspections are not done regularly. It is expected that all agencies will maintain at least a limited quantity of those products and supplies most directly related to their mandate. The DDM currently maintains an emergency warehouse at Fish Bay, Tortola to house emergency relief supplies specific to the hazards that the VI faces. Additionally, the DDM has placed shelter kits in some Primary Emergency Shelters through out the Territory. These shelter kits contain a variety of items that may be useful during a disaster or emergency event such as lighting, tools, first aid kits and blankets, notes and guides, cooking utensils; sanitation and items for personal safety. 4.1.9 Emergency Communications and Warnings Sudden impact disasters such as major earthquakes, explosions and some mass transport accidents come without warning. On the other hand, many hazards announce the potential for impact or escalation beforehand. It is important that residents and visitors have reliable warning systems which provide the maximum notice of the possibility of a hazard impact. It is obvious that warning methods must involve systems which can reach large numbers of people at any time, simultaneously. BP Revised May 2009 22 The public must be made aware of all national level warning and alert systems, contingency arrangements for evacuation and shelter and all rules and regulations governing emergency management. The DDM has an Emergency Communications Plan (ANNEX SP-5) that details the operation of the warning and alert systems for the Territory. 4.1.10 Emergency Shelters Emergency Shelters are structurally sound buildings, in safe locations that are designated in the planning stages of disaster management programmes to house victims of an emergency or disaster and to provide for their immediate needs. The period of occupation at these facilities is usually a very brief one extending not more than a few days, but may be lengthened depending on the severity of impact on the affected community. In the VI, the National Shelter Policy (ANNEX SP-6) was established. It embraces both a general commitment and specific actions to be undertaken in support of the undertaking of providing shelter for persons who need it in emergencies and disasters. Presently, the VI has volunteers registered as Shelter Managers, an approved shelter policy and shelter manual. Shelter Managers are responsible for the shelters before, during and after an emergency event. The BVI Shelter Manual, 2003 (ANNEX SP-6), includes the roles and responsibilities of Shelter Managers before, during and after occupancy. The Disaster Management Act, 2003 (ATTACHMENT 1), includes rules and regulations for the operation of shelters. It requires the enforcement of a number of rules and gives authority to the Shelter Manager to enforce those rules whether occupancy is short or long term. The regulations, rules, guidelines and operational procedures shown below, are all intended to ensure the observance of law and order and the safety and comfort of shelters. 4.1.11 NEOC Capacity Worldwide experience has demonstrated the value of Emergency Operations Centres. Ideally, these are purpose built facilities that, even if they have secondary uses, are available for activation within a very short time-frame. This is only possible when the necessary resources, supplies and equipment are kept in a constant state of readiness. In the VI the primary EOC is the NEOC – the National Emergency Operations Centre – co-located at the DDM. The NEOC is such an important part of Emergency and Disaster response that most jurisdictions develop stand-alone Standard Operating Procedures (SOP’s) for the NEOC. Such SOP’s have been developed (ANNEX RF-3, SP-14) and are included in the ANNEX Section of the National Disaster Management Plan. 4.1.12 Reporting and Documentation During and after disasters a variety of reports are required, these include impact and damage assessments and situation reports (SITREPS). The purpose and format of these forms should be understood and, as part of pre-event preparedness activities, these forms should BP Revised May 2009 23 be duplicated and stockpiled in appropriate locations. The forms are contained in the NEOC Standard Operating Procedures (SOPs) (ANNEX RF-3, SP-14). 4.1.13 Tracing In a disaster or emergency where there is extensive dislocation of people, it is important to keep track of their locations. The International Red Cross has developed Tracing procedures to make the location of people in disaster situation more efficient. The local activities which are required to support such procedures before an event should be seen as an important part of national-level pre-event planning. Further details can be located in the National Welfare and Relief Distribution Policy and Plan (ANNEX SP-20). 4.1.14 Evacuation Planning Some hazards may result in precautionary evacuations from areas that are particularly vulnerable. Advanced planning for the evacuation of vulnerable areas, will greatly reduce the management challenges that may be experienced. Planning should focus on:  The hazard and threats likely to lead to evacuation.  Means of evacuation – road, sea, air, on foot.  Crowd control.  Security of evacuated areas.  Emergency accommodation.  Emergency feeding and welfare arrangements.  Policy on returning residents to evacuated areas.  Procedures for return of residents to evacuated areas. The Virgin Islands are a diverse Island grouping. Aside from the main and largest Island, Tortola, other outer islands are also populated. To effectively manage large scale emergency events and/or disasters, the Department of Disaster Management in conjunction with the District Officers/Sister Island Coordinator have drafted evacuation plans (ANNEX SP-7, SP-8) for Anegada, Virgin Gorda and Jost Van Dyke. These evacuation plans outline the administrative procedures required to evacuate people from any area of the Virgin Islands once it has been proclaimed by the Governor, that it is unsafe to remain in that area under the authority of sections 3, 4, and in particular 11 (2) (l) of the Disaster Management Act, 2003 (ATTACHMENT 1). 4.2 Community Level Priorities The Department of Disaster Management has been working with Zonal Committees to maintain the high performing ones and to revive the flagging ones. BP Revised May 2009 24 Agreements are in place so that in the case of the Sister Islands, responsibilities are placed on the District Officers and the nurse, fire and police officers automatically become ex-officio members of the committee. 4.3 Agency Level Priorities All agencies are expected to take responsibility for their own readiness in terms of internal plans, facilities, training, resources, personnel deployment and safety issues. 5.0 CONCEPT OF OPERATIONS 5.1 Surveillance The Department of Disaster Management has developed a number of systems to provide notice of impending hazard impacts or escalation of already dangerous situations where possible. External agencies such as the Puerto Rico Seismic Network, the Antigua Meteorological Services, the Wilkins and Impact Weather services will also provide information regarding hazards which could impact the Territory. The graded Alert and Response Schema which has been developed for the Territory, demonstrates how such routine surveillance is converted to Alerts. Information about probable hazards impacts can arise from information generated from other sources, including the general public. 5.2 Alert Levels This plan is based on alerts being raised in a graded fashion according to the nature of the hazard and the perceived level of risk. Alert levels 1 – 5 reflect a gradation in which the period of notice diminishes from weeks to no notice at all. Whenever a report is received, under the authority of sections 3, 4, 5, and 11 of the Disaster Management Act, 2003 (ATTACHMENT 1), the Department for Disaster Management (DDM) and the Primary Agency for the particular hazard will consult and confirm an Alert Level and Response Level for ratification by the Governor. If ratification is not possible, the Director of the DDM will make the declaration. The declaration should be communicated as expeditiously as possible to all agencies and if appropriate, disseminated to the general public and external agencies. 5.3 Response Levels Response Levels are independent of Alert Levels, meaning it is possible to have an Alert Level 1 and a Response Level 5 or any other combination of Alert and Response Levels. Response Levels are categorized by the size of the area and number of people that could be impacted by a hazard. Response Levels 1 – 5 guide the number of departments, agencies and other resources likely to be needed to contain or manage the incident. BP Revised May 2009 25 ALERT LEVEL INDICATORS RESPONSE LEVEL INDICATORS 1 Notice of a possible hazard impact that could take several days or weeks to become a real threat may be issued. DDM to support and advise. 1 Single localized hazard impacting a very small area or small number of people. Secondary hazards or spread of impact zone unlikely. Impact will be confined to affected unit or small area. No disruption to normal life likely. DDM to provide support and advice. Preparation of incident reports maybe necessary 2 Warning of a possible hazard impact which may develop as a real threat within 48 hours but could still be averted. 2 Larger area than level 1. Units impacted or threatened, greater. Primary agency and several others, involved at the scene operating under ICS. Some disruption of normal life likely. DDM responsible as above. 3 Possible hazard impact within 36 hours. Alternatively increase in threat from level 2. 3 Large scale incident on land or sea. Large number of victims or persons at risk. Likely multi hazard impact over a wide area. NEOC activated. 4 Impact could occur within 24 hours or less or escalation from level 3. 4 NEOC fully activated or remains activated. Many agencies involved. 5 Impact without precursor activity or warning or appearance of major secondary hazard. 5 NEOC activated or remains fully activated. Risk or damage extensive. Many persons at risk or vulnerable. External assistance necessary. BP Revised May 2009 26 5.4 Warnings The mechanisms for providing warnings are dependent on the speed of onset of the hazard. The specific warning mechanisms are provided in the Emergency Communications Plan (ANNEX SP-5) and procedures are found in SF-4. While it is true that there will be a reliance on broadcast media for the dissemination of warnings, the timings can vary on an incident by incident basis and the details of each warning will have to be tailored to each specific threat. 5.5 Plan Activation Activation of the NDMP should not be taken lightly. With Activation of the NDMP procedures change. These changes are necessary and are recognized in the Laws and Government of the Virgin Islands. Government Ministries, Departments, Agencies and personnel all have responsibilities and authority over certain areas in times of normalcy. When the NDMP is activated, these responsibilities and authorities do not change but the actions taken will be guided by the NDMP and coordinated through the NEOC. Under Section 3.3 EMERGENCY POWERS of this Plan the authority of the Governor to make certain declarations in times of disasters or other situations are clearly identified. However, it is understood that activation of the NDMP and the NEOC may be needed without any such declaration. More specifically under the Under Part IV section 11 of the Disaster Management Act 2003. (ATTACHMENT 1): 11. (1) The Director shall prepare at regular intervals not exceeding five years, a National Disaster Management Plan, comprising the statement of the contingency arrangements under the coordination of the Director for responding to the threat or event and aftermath of a disaster in the Territory, whether or not the threat or disaster is such as to prompt the declaration of a disaster emergency. (2) The National Disaster Management Plan shall include: (a) procedures related to disaster preparedness and response of public officers, Ministries and Departments of Government, statutory boards and persons or organizations who volunteer or are required by law to perform functions related to the preparedness for and response to disasters in the Territory; (b) procedures for coordinating the National Disaster Management Plan and its implementation with the preparation and implementation of disaster response plans by persons and bodies referred to in paragraph (a); To meet the requirements of Section 11 (2) of the Disaster Management Act 2003, the manner in which the Plan is activated will depend to a great extent on the way in which the Alert is raised. Whenever there is a long period of notice there will be sufficient time for the Director of the Department of Disaster Management to gather and analyze information from available resources and then confer with the Governor to decide upon the timing of the activation of the plan. The Plan will be activated by BP Revised May 2009 27 the Governor when he is satisfied that a hazard, threat, or an actual event warrants such a response. Whenever the period of notice is very short, then the Plan may be activated by the primary response agency with a requirement to confer with the Director of the Department of Disaster Management without delay. The Incident Commander from the primary response agency for any incident must recognize early the possible need to request assistance. The possible scenarios generated by the hazards outlined in this plan are numerous and their effects can vary from minimal to devastating. Once the NDMP is activated, All public officers, Ministries and Departments of Government, statutory boards and persons or organizations who volunteer or are required by law to perform functions related to the response to disasters in the Territory will be guided by the NDMP. 5.6 Monitoring of Initial Reports The agency receiving the initial report should ensure that the Primary Agency by Response has received the report and that the Department of Disaster Management has also been notified (if it is not the Primary Agency by Response). The Primary Agency by Response should check to make sure that all support agencies have been alerted. 5.7 Activation of National Emergency Operations Centre The decision to activate the Nation Emergency Operations Centre (NEOC) is one of the most important in disaster management. It sends the signal that there is a threat of an event or an event has already occurred which requires centralized leadership, direction and control to achieve the desired level of inter-agency coordination. The NEOC is activated by the Governor under the authority of sections 3, 4, 5, 11, and 12 of the Disaster Management Act, 2003 (ATTACHMENT 1) when he is satisfied that a hazard, threat, or an actual event warrants such a response. Such action is usually taken on the advice of the Director of Disaster Management. In an extreme case, where consultation with the Governor is impossible or would cause inordinate delays, the Director of Disaster Management will activate the NEOC. In the General Alert and Response Schema, the NEOC is activated at Levels 3, 4 or 5 when a general alert has been declared. In a no-notice event, the NEOC is activated from a Response Level 3 even though Pre-Activation arrangements may be made from a Level 2 stage. Detailed procedures for activation of the NEOC can be found in (ANNEXES RF-3 and SP-14) 6.0 PLAN EXECUTION The execution of this Plan is based on the use of the graded Alert and Response Schema in Section 5.2. When a report is received, an Alert and Response Level will be BP Revised May 2009 28 promulgated among all relevant agencies and the general public for hazards that could threaten the public in general. Actions will be guided by the Response Level section. When actual impact occurs then there is an automatic change from Alert to Response. If there is no notice, the Plan is in fact activated by the Primary Agency by Response initiating a response and conferring with the Director of Disaster Management to promulgate an agreed Response Level among all agencies. The Primary Agency by Response and the Director of Disaster Management will confer constantly to determine whether changes should be made to the Response Level initially promulgated. More detailed guidelines are provided in the Hazard-Specific annexes. 7.0 GENERAL ROLES AND RESPONSIBILITIES It is conceivable that almost every government Department or agency could have a role to play at some stage of the Disaster Cycle. A listing of all such possible roles is impractical and would make this Plan too unwieldy as a reference document. The agencies whose roles are indicated below are the ones which have roles to play in almost all phases for the hazards identified in the Plan. It is hoped that all other agencies will develop the necessary internal guidelines based on their mandates and service charters and the objectives of the National Disaster Management Plan. The private sector plays a pivotal role in emergency response and recovery. It is essential that the appropriate discussions are held and agreements converted to Memoranda of Understanding (MOU’s) with private sector entities. BP Revised May 2009 29 AGENCY PRE-INCIDENT INCIDENT IMMEDIATE POST RECOVERY BVI Health Services Authority Health Surveillance Review and revise emergency health policies and plans. Train staff Participate in drills, exercises and related training Maintain facilities in a state of readiness Develop standardized emergency procedures MOU’s with Private Sector Coordinate Health Sector preparedness Provide Resource persons for Training Promote preventative strategies Monitoring Training of staff and other agencies Public Awareness Lead emergency medical response. Coordinate external medical assistance. Lead medivac arrangements. Arrange collection and testing of samples. Coordinate on-scene medical activities among NGO’s. Emergency Medical response. NEOC Operations Mass casualty management Assess situation. Provide information to other agencies. Conduct internal reviews. Access supply levels. Report on overseas assessment of samples. Emergency mortuary facilities. Recommend specialist assistance as required. Incident review Report writing. Provide information for other agencies. Damage Reports Surveillance and monitoring Department of Disaster Management Monitoring Incident Reporting Alert raising Public Awareness Facilitating agency training Coordinating drills, exercises and other Confirm alert level Warnings to public through GIS Sourcing of additional resources Facilitating NEOC operations if activated Site inspections Assisting in investigations Emergency Communications Coordinate Damage and Needs Assessments Contacts with external Incident review Collection of data Reporting Plan procedures review Internal agency BP Revised May 2009 30 AGENCY PRE-INCIDENT INCIDENT IMMEDIATE POST RECOVERY Department of Disaster Management (cont.) training Hazard and Risk Assessments Updating of major plans Emergency Communications Shelter Management Supply Management NEOC preparedness MOU’s with agencies Contact with external agencies Sourcing external assistance Monitor alert level Prepare situation reports agencies and coordination of external support review Claim review and submission Department of Information and Public Relations Public Awareness Involvement in drills, exercises and other training Maintenance of equipment and ancillaries MOU’s with media houses Warnings and Alerts request at request of DDM. Media liaison on site. NEOC Operations Information dissemination from site. Information dissemination. Submission of reports as required. Incident review. Report writing as required. Fire and Rescue Raising Alerts Surveillance Monitoring Training of staff and other agencies Public awareness Site inspections Regulation Enforcement Drills and exercises Counter measures Incident command Hazard assessment Inspection Search and Rescue NEOC Operations Provide information to other agencies Site inspection Investigations Decontamination Supervision of other agencies. Secondary hazard assessment. Inspection and Training Incident review Reporting Governor’s Office Clarify procedures for assistance with HMG Coordinate external assistance from Discuss with DG and DDM and Premier. Coordinate assistance from BP Revised May 2009 31 AGENCY PRE-INCIDENT INCIDENT IMMEDIATE POST RECOVERY (FCO, CHAD, CDERA) and any other external agencies. Ensure procedures are incorporated in plans. Facilitate liaison with Premier’s Office and Cabinet. Liaise with Premier’s Office. Lead on external affairs. Participate in drills, exercises and related training HMG (FCO, CHAD, CDERA) and any other external agencies. Clarify incident reports. Liaise with DG and DDM Transmit SITREPS Facilitate briefings for Cabinet. Consider and approve major news releases with Premier. Evacuation authority Evacuation authority HMG if necessary. Lead on external affairs matters. Ministry of Finance Financial arrangements in accordance with Financial regulations. Develop and promulgate procedures for financing emergency and relief operations. Administer the Disaster/Emergency Fund Disbursement of funds in accordance with regulations. Serve on Recovery Task Force. Royal Virgin Island Police Force Surveillance Incident reporting Alerting of agencies Maritime emergency preparedness Crowd and Traffic control Evacuation Site security Provide information to other agencies. Marine Response Site inspection. Investigations Assist external agencies if required. Assist external agencies if required. Incident review. Conservation and Fisheries Surveillance and reporting. Lead agency for oil spills on land. Secondary hazard assessment. Incident review. BP Revised May 2009 32 AGENCY PRE-INCIDENT INCIDENT IMMEDIATE POST RECOVERY Public Relations. Premier’s Office Liaise with Chairman of NDMC to ensure consistency of policies and programs in disaster management. Participate in relevant NDMC committee activities. Provide briefings for Premier and Cabinet as required. Liaise with Governor’s Office. Ensure sub-units and agencies maintain an appropriate level of preparedness. Ensure appropriate internal arrangements. Recovery Plan and Procedures Function as required under NEOC SOP’s. Liaise with DDM as required. NEOC Operations Liaise with Governor’s Office. Obtain SITREPS for Premier and Cabinet. Facilitate briefings for Cabinet. Ascertain functionality of Premier’s Office. Determine modus operandi for resuming service. Liaise with Governor’s Office. Assist in assessments where appropriate. Work with Governor’s Office on external assistance and foreign affairs. Lead Recovery Task Force in accordance with the Recovery Plan. Under take social and economic impact assessment. Public Works Monitoring Surveillance Incident reporting Inspection of shelters and other buildings Lead retrofit and repair Assistance with counter measures under direction of Primary Agencies Provide transportation and equipment as directed NEOC Operations Site inspection Site repair Lead assessment of infrastructure, key facilities damage and identification of buildings suitable for occupancy if necessary. Emergency road and building repairs Debris removal Incident review Report writing Provide specialist advice and services Internal agency review BP Revised May 2009 33 LEAD AND SUPPORT RESPONSIBILITIES FOR CRITICAL PREPAREDNESS AND RESPONSE TASKS – LISTED BY CRITICAL TASKS TASK PRIMARY AGENCY SUPPORT AGENCIES External Aid Coordination Governor’s Office DDM, CDERA, Premier’s Office, BVI Tourist Board, DPU and ECDG. External Aid Requests Governor’s Office DDM, CDERA, Premier’s Office, BVI Tourist Board, DPU and ECDG. Aid Management Logistics Premier’s Office DDM, CDERA, DPU, Ministry of Finance, Banks, Governor’s Office and ECDG. Air Service BVI Airports Authority Beef Island Fire Service, Customs and Immigration. Arrangements for tourists BVI Tourist Board Premier’s Office, Governor’s Office, Chamber of Commerce and Hotel Association, Airlines, Hotel and Guest House operators, DDM, Governor’s Office and Red Cross. Burial of the Dead Health Services Authority Police, Coroner, Undertakers, Ministry of Health and Social Development, PWD, Private Sector heavy equipment owners. Continuity of Government Administration Cabinet Governor’s Office, Premier’s Office, Deputy Governor’s Office, Ministry of Finance, PWD, Human Resources Department, Public Service Association, Town and Country Planning Department, Fire and Rescue Services, Facilities Unit, Attorney General and DDM. Crisis Counseling Health Services Authority Social Welfare Department, Christian Council, other churches, Mental Health Crisis Intervention Team. Crowd control Police Damage Assessments DDM Individual DPU Decontamination Fire and Rescue Health Services Authority, Ministry of Health and Social Development Disease, vector and vermin control Health Services Authority Environmental Health, Solid Waste Department, PAHO, Ministry of Health and Social Development. Early Warning Systems DDM Police, PWD, GIS and media houses. Electricity Electricity Corporation Emergency Accommodation and Shelter Manager DDM DAC, Red Cross, ADRA, Churches, Hotel and guest House owners, Social Development Department and Ministry of Finance. Emergency Broadcasts DDM GIS and media houses. Emergency repairs to Government Buildings PWD Ministry of Finance, Town and Country Planning Department. Emergency Road repairs and access PWD Town and Country Planning, Lands and Survey Department, Police, Attorney General’s Chambers, FRS, Solid Waste. Emergency Stockpiles DDM Welfare Sub-committee, Social Development Department, Adventist Development and Relief Agency (ADRA) and Red Cross. BP Revised May 2009 34 TASK PRIMARY AGENCY SUPPORT AGENCIES Emergency Supply Arrangements (Fuel, Food, Water, Transport) Ministry of Communications and Works Premier’s Office, Governor’s Office, Ministry of Finance, Department of Trade, private sector suppliers, Attorney General’s Chambers. Emergency Telecommunications DDM All On-Scene Response Agencies. Telephone and Cellular Providers, Information Systems Unit. Essential Services Restoration (Operations) Ministry of Communications and Works PWD Information Dissemination DDM Governor’s Office, Tourist Board, Premier’s Office and media houses. Maintenance of critical infrastructure facilities and equipment. Public Works Department (PWD) DDM, Ministry of Finance, Private Sector partners, all lead support and partner agencies. Mutual Aid Agreements DDM Governor’s Office, Deputy Governor’s Office, Premier’s Office and Attorney General’s Chambers. Needs Prioritization Cabinet DDM, EOC Operations Group, DPU, Premier’s Office and Governor’s Office. NEOC maintenance and provisioning DDM Deputy Governor’s Office, Ministry of Finance. Policy clarification NDMC DDM, Attorney General’s Chambers, Premier’s Office. Deputy Governor’s Office. Policy implementation DDM All public sector agencies, in collaboration with NGO and private sector partners. Port Service Ports Authority Customs and Immigration, VISR. Precautionary Evacuations Police – Under direction of the Governor’s Office DDM, PWD, Taxi and Ferry Operations, Red Cross, DAC: ADRA, Department of Education (for schools, etc.), VISR, BVIAA Primary Health Care Health Services Authority Private medical services, Red Cross and Environmental Health, Community Health Services, VISAR, PAHO Restoration of Commercial and Economic activities Premier’s Office Ministry of Finance – DPU, Customs, Treasury, Social. Security Board, Financial Services Commission, Registry of Companies, Ministry of Communications and Works – Civil Aviation, Ports Authority, Marine Services Unit, Department of Agriculture, Chamber of Commerce and Hotel Association, Attorney General’s Chambers Restoration of Social Services Ministry of Education and Culture. Ministry of Health and Welfare, Office of Gender Affairs. Restoration of Utilities (Policy issues) Ministry of Communications and Works Electricity Corporation, Water and Sewerage Department, Telephone Services Unit, Telephone and Cellular Providers, PWD. Review and Revision of Plans DDM All lead, support and partner agencies. Scientific monitoring systems DDM External scientific and research – based monitoring entities, e.g., University of Puerto BP Revised May 2009 35 TASK PRIMARY AGENCY SUPPORT AGENCIES Rico, University of the West Indies and Antigua Meteorological Office. Search and Rescue (Land) Fire and Rescue Police, Health Services Authority (Hospital and Clinics) GIS, Red Cross and DDM. Search and Rescue (Sea) Police Marine VISAR, Marine Services Unit, Ports Authority, Red Cross, Ferry Services, Tourist Board, Immigration, Customs, Conservation and Fisheries, VISR, media houses, DDM External Agencies, US Coast Guard, Helicopter and fixed wing air services. Secondary Hazard Assessment Fire and Rescue Police, Conservation and Fisheries, PWD, DDM and Architects and Engineers Assoc. Simulation exercises DDM Governor’s Office , Police, Fire and Rescue, Health, Civil Aviation, Ports Authority, Marine Services Unit, Red Cross, DAC and other identified partners. Support for NDMC Committees and Working Groups DDM Governor’s Office and all agencies represented on all NDMC committees. Tracing Red Cross DDM; Tourist Board, Social Development, Police, Churches. Training programs DDM All public sector agencies, in collaboration with NGO, private sector external agencies and zonal committees CDERA and PAHO. Vulnerability Hazard and Risk Assessments DDM External funding agencies and technical experts, Town and Country Planning, Conservation and Fisheries and PWD. Warehouse Management DDM Ministry of Finance, SUMA Team. Waste Disposal Solid Waste Department PWD, Environmental Health, Private contractors. Water Water and Sewerage Department Welfare Assistance DDM Red Cross, Social Development, ADRA, Ministry of Finance, PWD, DPU, Customs, Chamber of Commerce and Industry. BP Revised May 2009 36 PRIVATE SECTOR ASSISTANCE – KEY ACTION AREAS PRIVATE SECTOR ENTITIES PROBABLE AREAS OF ASSISTANCE Airlines Off Territory evacuations Architects and Engineers Mitigation proposals and damage assessments and emergency repairs Building materials suppliers Emergency building repairs Cellular and Telephone Providers Telecommunications services Caterers Emergency feeding programs Ferry Services Evacuations and transport of emergency personnel; Search and Rescue Gas stations Emergency fuel supply management Heavy equipment operators and trucking services Debris removal and road clearance Helicopter services Medivacs and impact assessment over flights, Search and Rescue Hoteliers and Guest House operators Emergency accommodation Householders and property owners Emergency accommodation for victims and temporary government offices Media - radio, TV and print Public Awareness, warnings and alerts General information dissemination Medical practices Skilled personnel and facilities Pharmacies Medical supplies Printers Emergency guidelines posters and bulletins Shipping companies Shipping of relief and other emergency items Supermarkets Food and related supplies Taxi Operators Evacuations Water suppliers and distributors Emergency water supplies BP Revised May 2009 37 8.0 RESPONSES TO A THREAT OF A DISASTER The threat of a major hazard impact requires a wide range of activities from the immediate Pre-Impact phase, through a Recovery Phase. Some of these activities are highlighted below for guidance. These activities are not in order of importance and some may be done simultaneously.  Confirmation of threat  Call-out cascade activation  High level briefings and situation reports (SITREPS)  Search and Rescue  Impact assessment  Emergency medical care  Incident management  Emergency communications  Information dissemination and management  Damage assessment  Emergency access  Secondary hazard analysis  Essential service restoration  Security and Law enforcement 9.0 COORDINATION PRIORITY Coordination is one of the major challenges in disaster management. The subject areas shown below all require multi-agency action and coordination, if waste and duplication of effort are to be avoided. When the NEOC is activated, such coordination is achieved through that framework. When the NEOC is not activated, the Department for Disaster Management is the principal coordinating agency.  Communications  Direction and leadership BP Revised May 2009 38  Public information  Search and Rescue  External agency involvement  High level briefings, SITREPS and reports  Damage and needs assessment  Relief and Welfare management  Supply management  food, water, fuel, medicine  Primary and environmental health  Restoration of essential and support services  Logistics  Emergency medical response  Restoration of critical facilities 10.0 COMMAND AND CONTROL The NDMP functions under the Incident Command System (ICS). The ICS is a proven command and control tool and is described by FEMA as: “A model tool for command, control and coordination of a response and provides a means to coordinate the efforts of individual agencies as they work towards the common goal of stabilizing the incident and protecting life, property and the environment ……. The ICS uses a common organizational structure and key management concepts in a standardized way. Regardless of the size of the incident, or the number of agencies involved in the response, all incidents require a coordinated effort to ensure an effective response and the efficient safe use of resources.” The Incident Command System (ICS) has been proven to be one of the most effective management tools in major events and emergency operations. If the principles and operational procedures of the ICS are faithfully followed, then order can be brought to what will undoubtedly start off as a very chaotic situation. Detailed information on the ICS can be found in (ANNEX RF-1). ANNEX RF-1 alone will not provide users with the skills and knowledge needed to be competent working with the ICS. Training with, and daily use of, the ICS is paramount to obtain these skills and knowledge. Without them command and control during emergency operations will be impaired. Training and use must encompass all key response departments and agencies including all personnel within them. BP Revised May 2009 39 11.0 SPECIAL CIRCUMSTANCES No contingency plan can be developed on the basis of every possible emergency. This means that some emergencies could develop in future for which there are no specific guidelines and annexes. Disaster Management officials will therefore need to rely on knowledge, training, experience and existing plans to mount an effective response. 12.0 ASSISTANCE FROM EXTERNAL SOURCES One of the primary tasks of disaster response is to work with external agencies to coordinate the flow of information in general and situation reports (SITREPS) in particular. If a hazard impact has caused significant damage, then it is likely that external agencies will send personnel as well as emergency relief and other supplies to the Territory. The primary coordination mechanism for external assistance for the Caribbean Disaster Emergency Response Agency (CDERA) participating states is the Eastern Caribbean Donors Group, an amalgamation of Aid Agencies operating out of Barbados. The Territory has a direct relationship with the British Government. The NEOC if required should ensure that there is a clear understanding of assistance which will be provided directly by the British Government and that which will come through CDERA. The BVI/USVI Friendship agreement (ANNEX MA - 22) also facilitates close cooperation with VITEMA in the USVI. Assistance will also be sought by non-government organizations if the need is great. Such requests should be based on clearly identified, agreed and ratified, national priorities. See the External Affairs Plan in the (ANNEX SP-9). 12.1 Caribbean Disaster Emergency Response Agency The Caribbean Disaster Emergency Response Agency (CDERA), a regional, inter governmental, disaster management organization was established in 1991 and has a membership of 16 states. CDERA, which is based in Barbados, is mandated to coordinate disaster response activities and has conducted disaster preparedness training and public education programmes. The Virgin Islands has been a member of CDERA from its inception in 1991 when the then Chief Minister, the Honourable Hamilton Lavity Stoutt, was a signatory to the agreement establishing the Agency. CDERA’s main function is to make an immediate and coordinated response to any disastrous event affecting any of its participating states, once the State requests such assistance. The other functions of CDERA include securing, collating and channeling (to interested governmental and non-governmental organizations) comprehensive and reliable information on disasters affecting the region; mitigating or eliminating as far as possible, the consequences of disasters affecting participating states; establishing and maintaining (on a sustainable basis) adequate disaster response capabilities among participating states; and mobilizing and coordinating BP Revised May 2009 40 disaster relief from governmental and non-governmental organizations for affected participating states. The Agency is headed by a Regional Coordinator who is responsible for the work and staff of the Coordinating Unit and who is accountable to the Council, which comprises the Minister with responsibility for Disaster Management in each Participating State. A Board of Directors (comprising the National Disaster Coordinators in each Participating State), serves as an advisory body to the Coordinator, and reviews the Agency’s financial status and its annual work programme. Over the years, CDERA’s mandate has expanded to include training, institutional strengthening for Disaster Management Organizations, development of model disaster legislation, contingency planning, resource mobilization, improving early warning and telecommunication systems, education and public awareness. CDERA collaborates with national, regional and international organizations which have overlapping interest in these areas. The Agency is vigorously promoting the concept of comprehensive Disaster Management among all Participating States. Additional information can be found in the CDERA Agreement (ANNEX MA-2) and CDERA Regional Response Plan (ANNEX MA-3) 12.2 Network of Emergency Managers of Overseas Territories The Network of Emergency Managers of Overseas Territories (NEMOT) created in 2000 succeeded the Association of Disaster Coordinators of the Overseas Territories which has been established in 1994 to facilitate activities among the Overseas Territories and to provide mutual support by way of exchange of information, best practices, training expertise and coordinated approaches to relevant organizations. Funding for this Network’s operations is funded by the UK through the DFID. The objectives of NEMOT are:  To identify common areas of disaster programme design and development  Set realistic targets and promote activities based on the realistic achievement of acceptable levels of comprehensive disaster management  Promote the integration of disaster management into the development planning process of the Overseas Territories  Promote the implementation of adequate measures in the Overseas Territories to prevent, mitigate against, prepare for, respond to and recover from the impacts of major incidents or disasters  Utilize the disaster management capability existing within the Overseas Territories BP Revised May 2009 41  Access support for the joint disaster programme development and implementation from the UK Government as well as through bilateral or multilateral agreements with other relevant organizations  Establish and maintain links with regional and international agencies for the purposes of technology transfer and information exchanges  Enhance capacity in the Overseas Territories by building on each other’s disaster management related experiences 12.3 Pan American Health Organization (PAHO) The Disaster Management Programme of the PAHO CPC Office seeks to improve the health sector to prepare, prevent, mitigate and respond to natural and man-made disasters. The programme operates in collaboration with countries and regional institutions throughout the Caribbean including the English, Spanish, French and Dutch speaking countries. A major component of the programme is training in various aspects of disaster management in order to ensure that each country has a cadre of adequately trained local personnel. The functions and responsibilities of the PAHO CPC Office include the development and execution of bilateral technical cooperation programs with the British Overseas Territories. PAHO meets with National Disaster Coordinators and Health Disaster Coordinators every two years. The following information is from PAHO: “In disaster situations, PAHO/WHO mobilizes its extensive network of public health experts to survey damage and provide an authoritative assessment of health sector needs, conduct epidemiological surveillance, detect potential health risks, monitor water quality and improve the overall coordination and leadership in the health sector. The humanitarian supply management system, SUMA, is activated to help bring order to the chaos that often results from the massive influx of international aid. PAHO/WHO also captures and publishes the lessons learned from major disasters in an attempt to improve the management of future emergency situations.” 12.4 United Kingdom Support The Royal Navy makes every effort to have assets in the Caribbean available for Humanitarian and Disaster Relief Operations (HDRO). A complete list of the capabilities of these assets can be found in ANNEX MA-21, “Royal Navy HDRO”. The Conflict and Humanitarian Affairs Department (CHAD) of the British Department for International Development (DFID) has developed a Booklet for guidance for Overseas UK Offices and Governors Offices in Responding to Rapid Onset Disasters. BP Revised May 2009 42 These include:  Preparing for disasters  Alerting DFID/CHAD  Assessment and provision of information  Supporting DFID/CHAD’s response Detailed information can be found in ANNEX MA-4, “RESPONDING TO RAPID ONSET DISASTERS” (yellow book) 12.5 Mutual Aid Agreements In disaster situations, it is anticipated that all agencies and organizations with resources and capacities will help with disaster response. Roles, responsibilities and parameters for assistance should be worked out before hand. The primary non-government agencies involved in emergency response should be encouraged to sign Memoranda of Understanding. In addition, existing arrangements such as CDERA’s Regional Response Mechanism, agreements with Puerto Rico Seismic Network (PRSN), and US Government for Oil Spills and the USVI/BVI Friendship and Cooperation pact ANNEX MA-22 should be clearly understood by disaster managers. All agreements should be kept current with copies available for easy reference.