CITY OF NEW ORLEANS
HURRICANE EMERGENCY
PLAN
ANNEX I: HURRICANES
PREPAREDNESS (PHASE I: TRAINING, EXERCISES AND EDUCATION)
City of New Orleans Comprehensive Emergency Management Plan
Part 1: TRAINING
I. GENERAL
Training and education on Disaster Preparedness are essential to local
government and non-government disaster agencies, in order to mitigate
the loss of life and property in the event of a peacetime emergency. An
understanding of emergency operations, plus recurring education and
training in emergency response and disaster operations, is the basis of
response effectiveness. Individuals with assigned tasks must receive
preparatory training to maximize operations. The goal of emergency
preparedness training is the preparation of individuals and
organizations for effective and coordinated response to emergencies.
Likewise, increasing the public's awareness of the various hazards which
may threaten them, and the available methods of protection is the
essence of emergency preparedness. In addition, during periods of
emergency and disaster it will be necessary for the citizenry to be
informed and educated concerning any action that may be required of them
to save lives and property. A mechanism must be in place to inform the
public as to particulars of evacuation, health care, shelter,
transportation and all other directions of which they should be
informed.
II. CONCEPT OF OPERATIONS
Under the direction of the Mayor, the Office of Emergency Preparedness
will coordinate activities in accordance with the Comprehensive
Emergency Management Plan to assure the coordination of training
programs for all planning, support, and response agencies. Departments,
authorities, agencies, municipalities, and all private response
organizations bear the responsibility of ensuring their personnel are
sufficiently trained.
The Office of Emergency Preparedness will coordinate training provided
by the Louisiana Office of Emergency Preparedness and the Federal
Emergency Management Agency. Schedules of state emergency management
training will be provided to all appropriate agencies. Applications for
LOEP/FEMA courses will be submitted to the Director, Office of Emergency
Preparedness for approval and submittal to LOEP.
III. TASKS
A. Director, Office of Emergency Preparedness
1. Coordination of all training activities of the various services of
the Emergency Preparedness organization so as to obtain the highest
degree of effectiveness in individual training, team or unit training,
collective training, combined training and mock or practice emergency
preparedness alerts.
The Director of the Office of Emergency Preparedness shall endeavor to
take full advantage of courses offered by the Louisiana Office of
Emergency Preparedness (LOEP), the Federal Emergency Management Agency
(FEMA), the Louisiana Emergency Preparedness Association (LEPA) and
other agencies, as well as conferences, seminars and workshops that may
from time to time be available, most notably state hurricane conferences
and workshops and the National Hurricane Conference. The Director will
also establish procedures for the notification of available training
opportunities to other City agencies and other governmental and private
emergency response organizations. Specific duties to coordinate and
monitor available training and educational opportunities shall be an
operational task of the Administrative and Training Officer (ATO) of the
Office of Emergency Preparedness. The ATO shall maintain close
communication with the State Training Officer of the LOEP as to the
availability of training opportunities, coordinate classes for local
personnel and maintain tracking of courses taken, develop methods of
sharing to information with other emergency management personnel within
the jurisdiction, as well as arrange training and educational
opportunities for non-emergency management personnel, particularly local
elected and appointed officials. The ATO, conducts on an annual basis,
training and information sharing workshops with all EOC representatives
from various agencies. These workshops are conducted at the Emergency
Support Function (ESF) level. Workshops include the review of existing
EOC/ESF standard operating procedures, review of organization changes
that affects EOC or field disaster response operations, updates key
personnel lists and identifies training needs of new personnel, and
orientation to improvements or changes to EOC/ESF resources or
materials. From time to time, the ATO may undertake more intensive work
sessions with elements of the emergency response organizations in order
to enhance unified disaster planning.
2. Develops and conducts disaster exercises.
The Director of the Office of Emergency Preparedness shall continue to
exercise all levels of the City government in emergency preparedness and
response operations. Annually, a minimum of one full-scale functional
exercise that utilizes all levels of City government shall be conducted.
This functional exercise shall include the Mayor, elected and appointed
officials, independent authorities, and such non-governmental agencies
as shall be determined appropriate.
The Director of the Office of Emergency Preparedness shall participate
in the development and execution of annual Mass Casualty Incidents. This
participation may include scenario development, site selection, and
recruitment of resources and personnel.
The Director of the Office of Emergency Preparedness shall continue to
provide assistance to private industry, non-profit organizations, and
community organizations through the offering of training, joint drills
and exercises, response and recovery plan development, and information
sharing. Included in this effort are the following organizations:
* Association of Contingency Planners (ACP)
* New Orleans Tourist and Information Bureau
* New Orleans Hospital Association
The Director shall also develop evaluation procedures either
independently or in conjunction with other participants, in order to
evaluate exercises and to incorporate necessary changes into the
disaster response organization.
3. Coordinates, facilitates and encourages other elements of city
government in emergency preparedness and response planning efforts.
The Director shall continue ongoing programs of directing and
facilitating City agencies in the improvement of service providing
during disasters through the development of emergency response
self-assessments, long-term action plans, agency contingency plans, ESF
standard operating procedures, and other mechanisms that may be
identified.
The City of New Orleans requires every agency of the City government to
perform emergency response self-assessments of their abilities to
continue to provide essential services during and following a major
emergency or disaster. The City further requires that corresponding
long-term action plans to address identified short-comings be developed
by each agency of the City and submitted to the Office of Emergency
Preparedness for review and inclusion in coordinated action activities.
4. Participates in state level exercises.
Annually, in conjunction with the Louisiana Statewide Hurricane
Exercise, the Office of Emergency Preparedness will sponsor and
coordinate a Parish wide exercise of the local government's emergency
management organization. To enhance the State's exercise, the OEP
Director shall develop scenarios based upon expected local impacts of
the exercise storm. If local impacts from the exercise storm are deemed
less than needed to exercise the full emergency response organization,
than the OEP may independently develop scenarios that would allow for
the exercise of all city/parish resources.
5. Coordinates disaster preparedness training activities with others in
such areas as shelter operations, transportation, hospitals and nursing
homes, hurricane evacuation and recovery, etc. The OEP shall work in
conjunction with all elements of the disaster response organization to
enhance emergency response training. Activities shall include
identification of School Board and Dept. Of Health staffs to be trained
in shelter management operations, providing educational workshops and
seminars to public and private entities, develop and direct committees
assembled to address critical issues of emergency response, develop
specialized informational brochures directed at select elements of the
community, and other activities as may be identified.
B. City Departments, Constitutional Authorities, and All Emergency
Response Agencies.
1. Ensure personnel are trained in appropriate plans and standard
operating procedures (SOP's) for disaster operations.
The City of New Orleans requires that every City/Parish agency prepare
an Agency Disaster Report assessing their ability to respond to any
disaster or emergency that may either affect their agency or which may
call upon that agency to perform response or relief efforts. Each
agency, as part of the assessment process , is required to address
numerous issues, including the disaster role of the agency, the validity
of existing plans and procedures, the training of employees in their
disaster response roles, family preparedness, and emergency use and
acquisition of resources.
Once the self-assessment is completed, each agency is then required to
develop and implement, with the assistance of the Office of Emergency
Preparedness, a Long Term Action Plan which will enhance their emergency
preparedness and disaster response.
2. Attend, or provide senior staff as representatives to disaster
training exercises.
The City of New Orleans, in order to develop a citywide awareness of
disaster response functions, requires that each agency designate an
Emergency Coordinating Officer (ECO). The ECO is responsible for the
preparing and maintaining of emergency preparedness and disaster
response plans and procedures for their agency. Part of this
responsibility includes participation in disaster training exercises and
drills as may be available.
C. OEP Shelter Coordinator
1. Provides shelter management training program to designated shelter
managers and disaster services personnel.
2. Maintain trained volunteer cadre for disaster response in areas of
mass feeding, damage assessment, etc.
3. Participate in disaster exercises when requested.
4. Develop recruitment programs that will provide the additional
manpower required to respond to a major emergency such as a hurricane.
D. Chief Administrative Officer
1. Ensure training programs are conducted for municipal personnel with
disaster responsibilities.
2. Ensure participation of key emergency response personnel in City
disaster exercises.
3. Conduct local emergency exercises.
E. Orleans Parish School Board.
1. Ensure identification and training of shelter personnel for public
shelters utilizing public school locations.
2. Conduct disaster education programs and staff training.
F. Emergency Medical Service
1. Conduct annual mass casualty exercise in order to test response
capabilities of emergency response agencies and medical facilities.
2. Conduct oral critique and written after-action reports for the mass
casualty exercises.
IV. DRILLS, EXERCISES TRAINING SESSIONS
The City of New Orleans government will conduct at least one functional
or full scale training exercise annually, which will test the response
capabilities of all functions of city government, as well as the private
organizations, Parish school system and other agencies required to
respond to disasters.
These tests will be conducted by the Director of the Office of Emergency
Preparedness and will be reviewed and assessed as to readiness by
participants. Qualified observers may assist Emergency Preparedness
personnel in evaluating the drills.
Private organizations, such as nursing homes, will be assisted by
Emergency Preparedness personnel in conducting disaster drills as
requested, and when required by State Law.
On a rotating basis in accordance with the schedule developed with the
State Division of Emergency Management, the City shall conduct natural
hazard, national security and technological exercises.
The Office of Emergency Preparedness shall conduct hurricane briefings
and training sessions with the Mayor and his staff, Department Heads,
municipal officials and all other governmental and private emergency
response agencies.
On request, the Office of Emergency Preparedness shall brief elected
officials on emergency management activities and hurricane preparedness.
The Office of Emergency Preparedness shall conduct hurricane and
emergency management seminars when requested.
The Office of Emergency Preparedness shall participate in regional
emergency preparedness planning sessions with other parishes and
municipalities.
Part 2: PUBLIC AWARENESS and EDUCATION
I. GENERAL
One of the principal goals of the Office of Emergency Preparedness is
the education of residents and visitors towards the natural and manmade
hazards that do or may threaten our community. Many of the emergency
preparedness and management functions directed at informing the public
of events or rapidly developing situations is detailed in ESF-14, Public
Information.
II. CONCEPT OF OPERATIONS
The coordination of public information activities is a shared
responsibility of the Office of Emergency Preparedness and the Office of
Communications. Public information procedures are divided into three
phases: continuing education, pre-disaster preparation, and
post-disaster recovery. Continuing education is intended to increase
awareness of disaster potential, improve education on ways to protect
life and property, and expand information on the availability of
assistance and services. Pre-disaster preparation briefs the public on
imminent danger, and provides details about evacuation and sheltering
procedures. During the post-disaster phase, the public is informed on
such matters as disaster assistance, health precautions, long term
sheltering, and other important issues involving the community's
recovery operations.
Specific tasks include the development and delivery of pre-disaster
information and education programs, the coordination of all City Public
Information Officers, the initiation of the proper news releases,
announcements, etc., and the making of arrangements for printing
adequate literature to facilitate the goal of educating and informing
the public. The Office of Emergency Preparedness and Office of
Communications shall also devise a mechanism whereby the largest
possible segment of the population can be sufficiently educated in
disaster events to minimize panic and misunderstanding, including
elderly and special needs population.
III. TASKS
A. Office of Emergency Preparedness
1. The preparation and dissemination of a general public education
program in order to attain high public morale, minimize fear and panic
and obtain full individual participation in Emergency Preparedness
activities and maximum public support of the emergency management plan.
Public education is the focus of the activities of the OEP
Administration and Training Officer (ATO). Although all members of the
OEP staff participate in public education, it is primarily the ATO who
is responsible for the development of education programs. The ATO shall
either utilize materials prepared by other agencies such as the
Louisiana Office of Emergency Preparedness, and the Federal Emergency
Management Agency (FEMA), or shall develop materials directed at the
specific needs or concerns of our local population.
The ATO participates with other organizations in the presentation of
disaster preparedness materials and programs. Such programs include
corporate emergency preparedness/disaster presentations, presentations
to civic and professional organizations, annual hurricane awareness
seminars, and special event presentations.
The ATO is the OEP staff member who coordinates and facilitates required
family preparedness seminars for City government employees. They are
designed to educate employees to their families' needs in anticipation
that the employee will not be available to assist in family disaster
preparedness and response activities, and to educate families whose City
employee spouse, parent, or guardian may not be available for an
extended time following a disaster. The seminars discuss potential
hazards to the City, evacuation options, job responsibilities, and other
subjects.
2. To conduct public information programs providing regular reports to
the public on Emergency Preparedness activities. The public information
programs include news features on television and radio. Public forums,
joint presentations, and speaking engagements will also be conducted.
3. Annually, assist business and media with publication of disaster
preparedness and evacuation information.
4. In times of disaster, advise the public of developments and
procedures for locating emergency services. During a disaster, the OEP
directs calls to the Office of Public Advocacy. Public Advocacy provides
current and accurate information to the public.
5. Develop procedures and mechanisms for the notification of persons who
can not rely on traditional media sources.
The OEP works closely with the Human Relations Commission to identify
and explore the feasibility of alternative notification methods,
including new technology designed to assist the hearing and sight
impaired.
Local television stations can also use header and footer scrolls across
their programming in order to notify the hearing impaired of emergency
situations.
The OEP works with the home health care industry to provide emergency
preparedness information and educational materials. The EOC also,
through ESF-8, Health and Medical, provides status reports of
approaching tropical storms to home health providers to assist them in
preparing their clients for severe weather.
6. The OEP shall maintain a working relation with the electronic media
for the prompt dissemination of emergency related information.
In times of concern for developing events, or actual emergency, local
media organizations will participate in the dissemination of public
emergency information. Major local television stations will be present
in the EOC upon clearance from the Office of Communications, and provide
information from the EOC.
During an emergency, the OEP will utilize Cox Cable to facilitate
information dissemination. 8. Following a major disaster such as a
hurricane, coordinate with State and Federal agencies on news releases
and other information being made available to the public. Areas within
ESF-14 are designated for State and Federal agencies, where they will be
provided work space in close proximity to media briefing and work areas.
They will be joined by City public information officers (PIOs) who are
trained in EOC public information procedures (See ESF-14, Public
Information).
9. Develop procedures and mechanisms to provide proper identification
for key response and recovery personnel, for governmental, private
relief, and corporate entities.
10. Develop procedures for public identification of shelters, critical
recovery services and centers prior to and immediately following a major
disaster when all normal public information systems may be inoperable.
The OEP will, via ESF-6, Mass Care, and ESF-14, Public Information,
issue constantly updated information on available shelters prior to and
during disaster operations, and will utilize extraordinary means when
called upon following a disaster to provide updated information.
11. The OEP shall develop procedures for providing information to
transient and homeless populations through the procedures as outlined in
the Severe Weather Shelter Program.
B. Office of Communications
1. Develop adequate educational materials for dissemination to the
public prior to the disaster.
2. Coordinate and develop all news releases to be delivered by elected
officials, and consult with other city departments and agencies in
development of appropriate bulletins affecting their activities in which
the public must be informed.
3. Literature in the form of pamphlets, flyers, circulars, etc., will be
made available for public distribution. The literature will cover all
aspects of emergency and disaster response.
4. Develop educational and informational literature that will be
disseminated to the public concerning disasters. Information from
private relief agencies will be included.
5. Prepare and disseminate information to tourists and transient
populations as to conditions and best actions to take, time permitting.
6. City officials will be made aware of procedures to be followed in
disseminating material and information to the public to avoid confusion.
7. In the event of a major emergency, activate and man the ESF-14,
Public Information, and its media-center within the Emergency Operations
Center, and operate it under protocols to be established in conjunction
with the Mayor's Office and the Office of Emergency Preparedness.
8. Prior to hurricane season, assist in the establishment of ESF-14
procedures and operational guidelines, and conduct media orientations to
EOC facilities and procedures.
9. Assist the Office of Public Advocacy in operating EOC Citizen
Information Center, and for the coordination of information to be given
out and in following up reports received by this hotline.
10. Provide technical assistance in developing public service
announcements that can be prepared before hurricane season for later
broadcast, when circumstances may not allow adequate preparation time.
Public service announcements are developed jointly between the OEP and
Office of Communications. Prior to each hurricane season, the
representatives of the OEP shall meet with the Office of Communications
to evaluate the need for the development of public service announcements
that can be made and stored until needed. Although such "canned"
announcements may be developed, live announcements from the EOC shall
remain the preferred method. Scripts that reflect numerous contingencies
are developed and on file within the OEP, and allow for the editing of
information for specific events.
11. Encourage local television and radio stations in development of
special programs on hurricanes and other possible disasters.
C. Other Departments and Agencies
1. Other departments/divisions of the City will coordinate efforts with
the OEP in the development of educational tools to be distributed to the
public.
2. Other agencies will assure that their personnel are aware of
procedures for disseminating information during an emergency or during
the recovery from a disaster, and that these procedures include not
giving out information that has not been cleared by the Emergency
Operations Center.
ANNEX I: HURRICANES
RESPONSE (PHASE II: WARNING, EVACUATION, AND SHELTERING)
City of New Orleans Comprehensive Emergency Management Plan.
PART 1: WARNING
I. GENERAL
Evacuation planning and actual implementation has to be based upon
certain assumptions. It must be understood that the need to evacuate
elements of the population can occur at any time, events resulting in
evacuations occur with various amounts of lead time and every evacuation
will be unique and offer unexpected challenges to those conducting the
evacuation. Evacuations in response to hazardous material spills or
sudden severe weather are provided with little or no warning, and often
have to be accomplished after the fact, and in a disaster response
environment. Throughout the Parish persons with special needs, require
special consideration regarding notification, transportation, and
sheltering. Resources of equipment, facilities and personnel are more
difficult to locate and coordinate when an evacuation is required during
late night or early morning hours. If possible, advance warning should
be given so an evacuation can be coordinated. Adequate provisions should
be maintained at all times in order to conduct a warning or alert of an
area.
Certain hazards, such as a hurricane, provide some lead time for
coordinating an evacuation. However, this can not be considered a
certainty. Plus, the sheer size of an evacuation in response to an
approaching hurricane creates the need for the use of community-wide
warning resources, which cannot be limited to our City's geographical
boundaries. Evacuation of major portions of our population, either in
response to localized or citywide disasters, can only be accomplished if
the citizens and visitors are kept informed of approaching threats on a
timely schedule, and if they are notified of the need to evacuate in a
timely and organized manner. If an evacuation order is issued without
the mechanisms needed to disseminate the information to the affected
persons, then we face the possibility of having large numbers of people
either stranded and left to the mercy of a storm, or left in an area
impacted by toxic materials.
In this day of high-speed communication and wide-spread availability of
information, mechanisms do exist to transmit emergency related
information to the vast majority of the community. For our most serious
threat, hurricanes, information from the National Hurricane Center in
Miami and our local office of the National Weather Service, can reach
the general population through local governments and mass media outlets.
It is the responsibility of the Office of Emergency Preparedness to
guarantee that not only is the public alerted, but that other emergency
response organizations and personnel are alert and in position to meet
the real or potential threat.
Warning for an emergency requires notification at two levels:
notification of public officials and response organizations and the
warning of the general public. The mechanisms chosen to accomplish these
critical events must be rapid in execution and comprehensive in
application. This annex outlines the procedures which will be
implemented for notifying the emergency response network of its
activation, and of informing the general public of the potential or
actual occurrence of life threatening events and hazards.
The extent and methods of warnings issued will be determined by the
Director of the Office of Emergency Preparedness, and are based upon the
geographic area impacted. When events necessitate the immediate
evacuation of threatened individuals, these decisions may be made by the
on scene Incident Commander. Decisions affecting larger geographic areas
will be made by the Director of the Office of Emergency Preparedness in
conjunction with the Superintendent of Fire and Superintendent of
Police.
General evacuations that may result from an approaching hurricane will
be ordered by the Mayor of the City, upon the recommendation of the
Director of the Office of Emergency Preparedness. The area affected by
the warning may range from blocks and portions of neighborhoods, to the
entire city.
II. CONCEPT OF OPERATIONS
The Office of Emergency Preparedness has the overall responsibility for
reception and dissemination of warning information through the city.
If the EOC is rendered unusable, the City of New Orleans Mobile Command
Center can be utilized to serve as a temporary Emergency Operations
Center. Warnings of potential or actual emergencies can be received at
the Parish Warning Point from the following sources:
1. National Weather Service (NWS) maintains its office in Slidell, LA.
The NWS forecasts weather conditions and originates severe weather
bulletins concerning the area. This information is received at the OEP
via weather teletype, NOAA radio, and telephone.
2. Emergency Alert System - Replacing the former Emergency Broadcast
System (EBS), the EAS can be used by numerous agencies not only to warn
the public, but to receive information from other emergency warning and
response organizations.
A. Types of Warnings
1. Severe Weather: Severe Weather warnings are issued by the National
Weather Service when severe thunderstorms are expected to affect an area
producing winds in excess of 57 mph, or hail 3/4-inch or greater.
2. Tornado Watches and Warnings: Tornado Watches and Warnings are issued
by the National Weather Service when conditions are favorable for
tornadoes to develop or one has been sighted/reported respectively.
3. Marine Advisories: Marine Advisories are issued on a regular basis by
the National Weather Service. Those related to tropical weather systems
are issued every 6 hours to report the location and strength of a
tropical depression, tropical storm or hurricane. In addition to this
information, the Marine Advisory provides predicted strength and
forecast positions of the storm at 12, 24, 36, 48 and 72 hours.
4. Tropical Storm/Hurricane Watches and Warnings: Tropical
Storm/Hurricane Watches and Warnings are issued as part of the Marine
Advisory when a storm may, or is expected to affect a land mass. A Watch
is generally issued when a storm might affect an area within 36 hours,
while a Warning is issued when a storm is expected to affect an area
within 24 hours. Since Hurricanes contain both hurricane force winds (74
mph or greater) and Tropical Storm force winds (40-74 mph), both may be
established for a coastal area. The Hurricane Watch/Warning will be
issued for the area where the hurricane force winds are expected or are
possible, whereas the Tropical Storm Watch/Warning will be issued for
areas on either side of the Hurricane Watch/Warning.
5. Localized Evacuations: Localized Evacuations may be ordered or
recommended when an emergency occurs, which affects a relatively small
area, such as a Hazardous Materials release or a large fire. Localized
Evacuation would also include river or lake flooding caused by strong,
sustained easterly winds in low lying areas outside the levee protection
system.
B. Methods of Notification
1. Officials and Organizations: The notification of key officials and
organizations in the City can be accomplished by several means. Upon
notification of an emergency, the Director of the Office of Emergency
Preparedness will determine who is to be notified based upon the
severity, type, and location of the occurring emergency.
a. Emergency Hotline Telephone System: The "Mayor's Hotline" is a
pre-programmed telephone system which connects the EOC.
b. Emergency Preparedness FAX: Situational updates and messages of a
non-immediate nature can be transmitted to city/parish agencies, other
municipalities, emergency operations centers, and the State EOC.
c. Landline and Mobile Telephone Systems: EOC keeps a comprehensive
listing of telephone numbers to be called for varying situations. Key
officials and personnel are listed by business phone, home phone, mobile
phone, and electronic pager number. The general public will be notified
of emergencies by all means possible when it is determined to be
necessary by the Director of the Office of Emergency Preparedness.
Warning bulletins will be disseminated by the Office of Emergency
Preparedness, coordinated with the Office of Communications. Warnings
will generally include areas affected and precautions to be taken.
d. Emergency Alert System (EAS): The Emergency Alert System is the
primary means of advising the public of a localized emergency. The
primary EAS stations for New Orleans are WWL (870 AM) and WLMG (101.9
FM). The EAS can be contacted by telephone and radio.
2. Media: The broadcast media provide a major part of the city's
capability to warn the public in a timely manner.
a. A combination of Live Media Statements and Pre-recorded Messages will
be used as a disaster situation develops. Once the Emergency Operations
Center is activated, the task of updating the media falls to the Office
of Communications.
b. Mobile Public Address Systems: New Orleans Police Department
personnel can be called upon to use the public address systems built
into their vehicles.
PART 2: EVACUATION
I. GENERAL
The safe evacuation of threatened populations when endangered by a major
catastrophic event is one of the principle reasons for developing a
Comprehensive Emergency Management Plan. The thorough identification of
at-risk populations, transportation and sheltering resources, evacuation
routes and potential bottlenecks and choke points, and the establishment
of the management team that will coordinate not only the evacuation but
which will monitor and direct the sheltering and return of affected
populations, are the primary tasks of evacuation planning. Due to the
geography of New Orleans and the varying scales of potential disasters
and their resulting emergency evacuations, different plans are in place
for small-scale evacuations and for citywide relocations of whole
populations.
Authority to issue evacuations of elements of the population is vested
in the Mayor. By Executive Order, the chief elected official, the Mayor
of the City of New Orleans, has the authority to order the evacuation of
residents threatened by an approaching hurricane.
Evacuation procedures for special needs persons with either physical or
mental handicaps, including registration of disabled persons, is covered
in the SOP for Evacuation of Special Needs Persons.
Major population relocations resulting from an approaching hurricane or
similar anticipated disaster, caused the City of New Orleans Office of
Emergency Preparedness to develop a specific Hurricane Emergency
Evacuation Standard Operating Procedures, which are appended to the
Comprehensive Emergency Management Plan.
The SOP is developed to provide for an orderly and coordinated
evacuation intended to minimize the hazardous effects of flooding, wind,
and rain on the residents and visitors in New Orleans. The SOP provides
for the evacuation of the public from danger areas and the designations
of shelters for evacuees.
II. CONCEPT OF OPERATIONS
The Hurricane Emergency Evacuation Standard Operating Procedure is
designed to deal with all case scenarios of an evacuation in response to
the approach of a major hurricane towards New Orleans. It is designed to
deal with the anticipation of a direct hit from a major hurricane. This
includes identifying the city's present population, its projected
population, identification of at-risk populations (those living outside
levee protection or in storm-surge areas, floodplains, mobile homes,
etc.), in order to understand the evacuation requirements. It includes
identifying the transportation network, especially the carrying-capacity
of proposed evacuation routes and existing or potential traffic
bottlenecks or blockages, caused either by traffic congestion or natural
occurrences such as rising waters. Identification of sheltering
resources and the establishment of shelters and the training of shelter
staff is important, as is the provision for food and other necessities
to the sheltered. This preparation function is the responsibility of the
Office of Emergency Preparedness.
Conduct of an actual evacuation will be the responsibility of the Mayor
of New Orleans in coordination with the Director of the Office of
Emergency Preparedness, and the OEP Shelter Coordinator.
The SOP, in unison with other elements of the Comprehensive Emergency
Management Plan, is designed for use in all hazard situations, including
citywide evacuations in response to hurricane situations and addresses
three elements of emergency response: warning, evacuation, and
sheltering.
1. Warning: Formulates a comprehensive system for public information,
early recognition of impending storms, and dissemination of emergency
warning.
2. Evacuation: Formulates an effective procedure for orderly evacuation
of residents and visitors within available warning time.
3. Sheltering: Formulates a comprehensive system of accessible shelters
of adequate size.
The SOP is limited as it is not designed to address the protection of
personal and real property, yet is developed to cover the total New
Orleans geographic area. The timely issuance of evacuation orders
critically impacts upon the successful evacuation of all citizens from
high-risk areas. In determining the proper time to issue evacuation
orders, there is no substitute for human judgement based upon all known
circumstances surrounding local conditions and storm characteristics.
Information received from the National Hurricane Center concerning the
storm's tract will allow the focusing on either a landfall, paralleling
or exiting storm scenario. Information involving local conditions such
as pre-hurricane rainfall, tide schedules, and the amount of pre-storm
publicity, must be taken into account, as are the various known
circumstances that are explained in the information summary portion of
the Hurricane Evacuation Plan, in determining when an evacuation order
should be issued. Any assumption regarding where and how the storm will
likely make landfall involves clear and constant communication with the
National Hurricane Center, the local office of the National Weather
Service, State OEP and various local agencies that are monitoring either
the storm's progress or other elements of the city's preparedness to
weather the storm's passage.
The City of New Orleans will utilize all available resources to quickly
and safely evacuate threatened areas. Those evacuated will be directed
to temporary sheltering and feeding facilities as needed. When specific
routes of progress are required, evacuees will be directed to those
routes. Special arrangements will be made to evacuate persons unable to
transport themselves or who require specific life saving assistance.
Additional personnel will be recruited to assist in evacuation
procedures as needed.
Slow developing weather conditions (primarily hurricane) will create
increased readiness culminating in an evacuation order 24 hours (12
daylight hours) prior to predicted landfall. Disabled vehicles and
debris will be removed from highways so as not to impede evacuation. In
local evacuations involving more than fifty (50) families (i.e. 50
single dwelling units), staging areas may be established at the closest
available public area outside the threatened area. Upon arrival at the
staging area, evacuees will be directed to the appropriate shelter
facility. Evacuees will be encouraged to stay with friends or relatives
in non-threatened areas whenever possible. Security measures will be
employed to protect the evacuated area(s) in accordance with established
procedures and situations.
The use of travel-trailers, campers, motorcycles, bicycles, etc., during
the evacuation will be allowed so long as the situation permits it.
Public information broadcasts will include any prohibitions on their
use. Transportation will be provided to those persons requiring public
transportation from the area. (See Special Needs Transportation, ESF-1).
An orderly return to the evacuated areas will be provided after the
Mayor determines the threat to be terminated. Transportation back to the
evacuated area after threat termination will be provided as available.
III. EVACUATION ORDER
A. Authority
As established by the City of New Orleans Charter, the government has
jurisdiction and responsibility in disaster response. City government
shall coordinate its efforts through the Office of Emergency
Preparedness
The authority to order the evacuation of residents threatened by an
approaching hurricane is conferred to the Governor by Louisiana Statute.
The Governor is granted the power to direct and compel the evacuation of
all or part of the population from a stricken or threatened area within
the State, if he deems this action necessary for the preservation of
life or other disaster mitigation, response or recovery. The same power
to order an evacuation conferred upon the Governor is also delegated to
each political subdivision of the State by Executive Order. This
authority empowers the chief elected official of New Orleans, the Mayor
of New Orleans, to order the evacuation of the parish residents
threatened by an approaching hurricane.
B. Issuance of Evacuation Orders
The person responsible for recognition of hurricane related preparation
needs and for the issuance of an evacuation order is the Mayor of the
City of New Orleans. Concerning preparation needs and the issuance of an
evacuation order, The Office of Emergency Preparedness should keep the
Mayor advised.
IV: HURRICANE EVACUATION PROCEDURES
It must be understood that this Comprehensive Emergency Management Plan
is an all-hazard response plan, and is applicable to events of all
sizes, affecting even the smallest segments of the community. Evacuation
procedures for small scale and localized evacuations are conducted per
the SOPs of the New Orleans Fire Department and the New Orleans Police
Department. However, due to the sheer size and number of persons to be
evacuated, should a major tropical weather system or other catastrophic
event threaten or impact the area, specifically directed long range
planning and coordination of resources and responsibilities efforts must
be undertaken.
A. Evacuation Time Requirements
Using information developed as part of the Southeast Louisiana Hurricane
Task Force and other research, the City of New Orleans has established a
maximum acceptable hurricane evacuation time standard for a Category 3
storm event of 72 hours. This is based on clearance time or is the time
required to clear all vehicles evacuating in response to a hurricane
situation from area roadways. Clearance time begins when the first
evacuating vehicle enters the road network and ends when the last
evacuating vehicle reaches its destination.
Clearance time also includes the time required by evacuees to secure
their homes and prepare to leave (mobilization time); the time spent by
evacuees traveling along the road network (travel time); and the time
spent by evacuees waiting along the road network due to traffic
congestion (delay time). Clearance time does not refer to the time a
single vehicle spends traveling on the road network. Evacuation notices
or orders will be issued during three stages prior to gale force winds
making landfall.
> Precautionary Evacuation Notice: 72 hours or less
> Special Needs Evacuation Order: 8-12 hours after Precautionary
Evacuation Notice issued
> General Evacuation Notice: 48 hours or less
B. Evacuation Zones
Evacuation (vulnerability) zones provide a base to model traffic
movements from one geographic area to another. It is necessary to revise
the evacuation zones from time to time due to data generated by new
generations of storm-surge modeling .
Evacuation zones are designed to meet several functions: (1) In coastal
areas they must reflect the areas in each storm scenario which will need
to be evacuated due to storm-surge inundation; (2) They should relate as
closely as possible to available population data information, such as
enumeration districts, census tracts, zip code areas, transportation
analysis zones, etc.; and (3) They need to be describable in a manner
that persons in the area will be able to understand.
Evacuation zones will be developed pending further study.
C. Evacuation Routing and Traffic Control
New Orleans is surrounded by water. The Lake Pontchartrain Causeway
leads to the north, the I-10 twin spans head east, I-10 runs east-west
and the Crescent City Connection and the Huey P. Long bridges cross over
the Mississippi River. Evacuation presents unique and distinct
challenges.
Principle traffic control is provided by the New Orleans Police
Department. The movement of evacuating vehicles during a hurricane
evacuation requires specific traffic control efforts to insure the
maximum roadway capacity and to expedite safe escape from hurricane
hazards.
1. Bridge closures will be announced as necessary.
2. NOPD officers will be stationed at critical intersections and roadway
segments
3. All available tow trucks shall be positioned along key roadway
segments, and disabled vehicles will be removed from traffic lanes. No
repairs will be done to vehicles along the evacuation routes.
4. Manual direction of traffic will be supplemented by physical barriers
that are adequately weighted and which are placed to channel traffic and
prevent unnecessary turning and merging conflicts.
5. The movement of mobile homes and campers along evacuation routes will
be banned after a hurricane warning is issued. A disabled mobile home
could block the only escape route available. Such vehicles are difficult
to handle late in an evacuation due to sporadic wind conditions.
6. Boat owners must be made aware of time requirements for moving or
securing vessels. Optimally, industrial and recreational vessels should
be moved to safe harbor during or before a hurricane watch.
7. Emergency Response to Accidents/Breakdowns - The intensity of traffic
during a hurricane evacuation will always be accompanied by a certain
number of traffic accidents and breakdowns. Although roadway shoulders
are available for vehicles in distress, the movement of such vehicles to
these areas is often difficult and disruptive. It is recommended that at
least two traffic control personnel be positioned at each key roadway
link/intersection so that one can assist disabled vehicles as needed.
Two vehicles should also be positioned at each critical link to
facilitate the removal of immobilized vehicles, however, as resources
(two vehicles) are available.
8. Safe evacuation is predicated upon the movement of vehicles over
critically low points on evacuation routes prior to the occurrence of
flooding. Route blockages can happen prior to the arrival of a
hurricane. Those roadways that historically experience flooding due to
rainfall alone should be monitored for vehicle distress and help.
D. Evacuation Clearance Times
Clearance time is the time required to clear the roadways of all
vehicles evacuating in response to a hurricane situation. Clearance time
begins when the first evacuating vehicle (as defined by a hurricane
evacuation behavioral response curve) enters the road network and ends
when the last evacuating vehicle reaches an assumed point of safety.
Clearance time includes the time required by evacuees to secure their
homes and prepare to leave (referred to as mobilization time). Clearance
time DOES NOT RELATE to the time any one vehicle spends traveling on the
road network. Clearance time allows for the last vehicle leaving to
reach its destination or the parish line, whichever comes first.
Assumptions - Clearance time is based on a set of assumed conditions and
behavioral responses. It is likely that an actual storm will differ from
a simulated storm for which clearance times are calculated in this
report. Key assumptions guiding the analysis are grouped into five
areas: 1. Population Data
2. Storm Scenarios
3. Behavioral Characteristic of the Evacuating Population
4. Roadway Network and Traffic Control Assumptions
5. Evacuation Zones
The clearance times facing Orleans Parish for a severe hurricane will
necessitate proper traffic control and early evacuating decision making.
The evacuation must be completed before the arrival of gale force winds.
Evacuation should also start when school is not in session and when
there is at least eight (8) hours of daylight included in the evacuation
time allowed. Provisions must be made for the removal of disabled
vehicles. Flooding of roadways due to rainfall before a hurricane
arrives could close off critical evacuation routes rendering evacuation
impossible.
V. TASKS
A. Mayor
* Initiate the evacuation.
* Retain overall control of all evacuation procedures via EOC
operations.
* Authorize return to evacuated areas.
B. Office of Emergency Preparedness
* Activate EOC and notify all support agencies to this plan.
* Coordinate with State OEP on elements of evacuation.
* Assist in directing the transportation of evacuees to staging areas.
* Assist ESF-8, Health and Medical, in the evacuation of persons with
special needs, nursing home, and hospital patients in accordance with
established procedures.
* Coordinate the release of all public information through ESF-14,
Public Information.
* Use EAS, television, cable and other public broadcast means as needed
and in accordance with established procedure.
* Request additional law enforcement/traffic control (State Police, La.
National Guard) from State OEP.
C. New Orleans Police Department
* Ensure orderly traffic flow.
* Assist in removing disabled vehicles from roadways as needed.
* Direct the management of transportation of seriously injured persons
to hospitals as needed.
* Direct evacuees to proper shelters and/or staging areas once they have
departed the threatened area.
* Release all public information through the ESF-14, Public Information.
D. Regional Transit Authority
* Supply transportation as needed in accordance with the current
Standard Operating Procedures.
* Place special vehicles on alert to be utilized if needed.
* Position supervisors and dispatch evacuation buses.
* If warranted by scope of evacuation, implement additional service.
E. Louisiana National Guard
* Provide assistance as needed in accordance with current State
guidelines.
F. Animal Care and Control
* Coordinate animal rescue operations with the New Orleans SPCA.
G. Public Works
* Make emergency road repairs as needed.
H. Office of Communications
* Release all public information relating to the evacuation.
PART 3: SHELTERING
(See ESF-6, Mass Care)
Emergency shelter operations are the responsibility of the Office of
Emergency Preparedness Shelter Coordinator. Shelters are provided by the
Orleans Parish School Board, while manager training and support
activities and supplies are provided by the Office of Emergency
Preparedness.
Reassessment of facilities is an on-going process conducted jointly by
the School Board, and Emergency Preparedness Division. The shelter
activation list is updated yearly, and takes into consideration new
school construction, school closings and renovations.
A. Shelter Demand
Shelter demand is currently under review by the Shelter Coordinator.
Approximately 100,000 Citizens of New Orleans do not have means of
personal transportation. Shelter assessment is an ongoing project of the
Office of Emergency Preparedness through the Shelter Coordinator.
The following schools have been inspected and approved as Hurricane
Evacuation Shelters for the City of New Orleans: Laurel Elementary
School
Walter S. Cohen High School
Medard Nelson Elementary School
Sarah T. Reed High School
Southern University Multi Purpose Center
Southern University New Science Building
O. Perry Walker High School
Albert Wicker Elementary School
It should not be assumed that all of the approved shelters listed above
will be opened in the event of a hurricane or other major tropical
storm. The names and locations of open shelters will be announced when
an evacuation order is issued. This list is not for public information
and should not be duplicated and distributed. In the event that shelters
are opened, people who go to their nearest listed location may find, for
one reason or another, that the facility is not open as a shelter,
forcing them to seek an alternate location. It is also possible that
people anticipating the opening of shelters may arrive before shelters
are set-up and ready to receive them. For these and other reasons,
shelters which are to be used will not be identified until they are
ready to open and not until an evacuation order, related public
announcement is made.
Last Resort Refuges and Super Shelters are described in specific SOPs
covering their applications.
NEX I: HURRICANES
RECOVERY (PHASE III)
City of New Orleans Comprehensive Emergency Management Plan
I. GENERAL
Following a disaster, once the principal threat has passed and the
primary concern of protection of citizens from harm has been addressed,
it becomes critical to public safety to ensure the speedy yet orderly
recovery of the community. Recovery functions include continued,
potentially long-term response operations (such as debris removal and
disposal, infrastructure repair, etc.), liaison with State and Federal
response and recovery agencies, damage assessment, response to basic
needs of citizens whom may have lost their homes, possessions,
businesses, or jobs. Emergency management has to be prepared to address
the long-term operations needed to return the community to normalcy.
II. CONCEPT OF OPERATIONS
The lead agency responsible for coordinating recovery operations
following a natural or man made disaster is the Office of Emergency
Preparedness. The Director of the Office of Emergency Preparedness shall
serve as the initial contact with the Louisiana Office of Emergency
Preparedness for the coordination of recovery efforts. In the event of a
major or catastrophic event, the activated ESFs within the EOC shall
provide liaison services to their corresponding State and Federal ESFs
and related agencies. Following the establishment of a local Disaster
Field Office (DFO), the Director of Emergency Preparedness shall
designate the person(s) to serve as local liaison with the DFO. For
certain hazard or incident specific incidents, the lead response agency
may continue to be the City's principle coordinating representative.
Once into the recovery phase of a major disaster, ESF-5, Planning and
Information, shall assume the liaison function with the State recovery
staff, as will appropriate representatives of the various activated City
agencies involved in recovery operations. Coordination for the
establishment of Disaster Relief Centers, additional staging areas, and
other sites that may be needed for coordinated assistance will primarily
be the responsibility of ESF-7, Resource Support, and its support
agency.
A. Damage Assessment
The Director of the Office of Emergency Preparedness shall designate a
Damage Assessment Officer to supervise assigned persons in a Damage
Assessment Unit (DAU). This unit will have three functional components:
1. Public Sector Damage Assessment Team(s), which will be responsible
for assessing the damage inflicted upon publicly-owned property.
2. Private Sector Damage Assessment Team(s), which will be responsible
for collecting information on housing and business losses.
3. Human Needs Assessment Team(s), are persons assigned to collect field
information on the needs of the community following a disaster that has
severely impacted facilities and other community assets that are
depended upon for daily living, and to report back to the EOC.
Specific damage assessment procedures and responsibilities can be found
in Standard Operating Procedure for Damage Assessment. Impact to the
local economy shall be ascertained however possible, but will rely on
the following organizations for preliminary information and periodically
revised data:
1. Property Appraiser's Office (value of damaged or destroyed
properties)
2. City Planning Commission (impact on jobs, etc.)
3. ESF-18, Business and Industry (business specific losses)
Information gathered shall be monitored for inclusion in Situation
Reports by ESF-5, Information and Planning. Initial damage assessments
shall be accomplished by participation in flyovers conducted by the
Louisiana National Guard. City representatives will participate in the
flyover. Flyovers will also be used to initially develop a needs
assessment for goods and services needed by the community as a result of
the disaster. Needs assessment data and information will be tracked by
ESF-5, Information and Planning, and distributed to human service
response agencies. Other methods used to assess physical damages and
develop needs and services estimates include:
1. Additional flyovers.
2. City vehicles, such as trucks, automobiles, off-road vehicles, etc.
3. Riverside damage assessment shall be conducted by the Harbor Police.
4. Where damage is extensive, and roads may not be passable, damage
assessment teams may resort to foot patrols.
B. Human Services
Location of Disaster Relief Centers and other recovery operation sites
shall be the joint responsibility of ESF-7, Resource Support, and the
Damage Assessment Teams, which will scout undamaged or lightly damaged
facilities while conducting field surveys. Prior to hurricane season, a
list of potential buildings should be compiled that meet the criteria
for a Disaster Relief Center or other recovery function. These
facilities shall then be checked by damage assessment teams for
potential use following a disaster. An inventory of city owned
properties will also be available in the EOC and certain facilities,
such as large community centers, shall be reviewed for use at the time.
Multiple sites shall be identified and geographically positioned to
serve the impacted populations without placing burdens upon those who
may have lost their private transportation resources as a result of the
disaster. Regional Transit Authority may be called upon to provide free
transit to recovery centers located along existing bus routes. Recovery
center staffing patterns shall be developed along accepted state and
federal guidelines and provided from city, state and private agencies.
Feeding and food and supply distribution sites shall be established
following a disaster in geographically distributed sites across the
Parish. Feeding sites shall be established by ESF-6, Mass Care, in
conjunction with ESF-11, Food and Water. The Southeast Louisiana Chapter
of the American Red Cross and the Salvation Army shall provide the lead
in establishing and operating these sites. The Second Harvest Food Bank
shall provide leadership in the acquiring and distribution of food and
water. ESF-15, Volunteers and Donations, shall direct outside resources
to the appropriate sites where these volunteer services can best be
used. Temporary living areas shall be established when possible on city
owned property. ESF-7, Resource Support, shall assist in the location
and acquisition of non city owned property. The New Orleans Housing
Authority shall be called upon to assist with public housing for the
temporarily displaced.
C. Infrastructure
Following a disaster of such magnitude that far exceeds the City's and
State's ability to meet the needs of the community and results in the
requesting and granting of a Presidential Disaster Declaration, the
Office of Emergency Preparedness shall, as previously described, at the
request of the Federal Emergency Management Agency or Louisiana Office
of Emergency Preparedness, establish Disaster Relief Centers for
individuals seeking recovery assistance. These sites shall be
established at geographically strategic sites, providing all affected
citizens with access to available programs, and shall provide
representatives from numerous federal, state, local, and private relief
agencies. Locations of the centers, as well as information on FEMA's
teleregistration program, shall be made known via ESF-14, Public
Information, and all other available information outlets (see ESF-14,
Public Information).
For affected governments and qualified not-for-profit organizations, a
Public Officials Briefing shall be held. At the briefing, public
officials shall be oriented on available assistance and procedures, and
shall receive "Notice Of Interest" forms to be filed with state and
federal officials. Subsequent "Project Applications" shall be filed with
FEMA for further processing. State and federal authorities will evaluate
the project applications and determine justification for assistance.
City of New Orleans Department personnel shall serve as the City's
principal representatives in preparation of disaster application forms,
monitoring of projects to completion and certification, and disbursement
of relief funds. The City shall also coordinate the development of
Disaster Survey Reports and review and represent the City in
negotiations for restitution of losses with federal and state officials.
Debris removal shall be coordinated and executed by ESF-3, Public Works
and Engineering. Fallen trees and similar debris shall be disposed of to
the extent possible. Methods for disposal of non-mulchable debris shall
be determined by ESF-3, in conjunction with local and state
environmental officials. Administrative procedures for financial
transactions, cost accounting, grants management, document tracking and
payroll processing will be implemented by ESF-7, Resource Support.
Following deactivation of the EOC, these functions shall be continued by
those agencies that staff ESF-7. Procedures and instructions for
preparing Disaster Survey Reports and tracking disaster costs have been
developed by the City. The City also provides training and instruction
on these procedures.
ANNEX I: HURRICANES
MITIGATION (PHASE IV)
City of New Orleans Comprehensive Emergency Management Plan
I. GENERAL
Mitigation includes those activities, policies or programs developed and
adopted by government officials which will reduce, eliminate, or
alleviate damage caused by disasters. Proper and coordinated planning is
a prerequisite to effective and efficient procedural changes required in
addressing hazard mitigation. The City of New Orleans currently
participates in, or has commenced the initial stages of several programs
intended to reduce the risk to lives and to minimize damage to public
and private properties.
II. CONCEPT OF OPERATIONS
Mitigation programs include coordinated city, state and federal efforts
that are currently in place, such as the National Flood Insurance
Program, or future actions designed to reduce the loss of life and
extensive property damage.
A. National Flood Insurance Program (NFIP)
The City of New Orleans is a participant in the National Flood Insurance
Program (NFIP). The City's participation is conducted by the City
Planning Commission (CPC). Citizens may receive information as to the
NFIP rating of their properties at the City Hall (CPC) office. As much
of the development now in place in New Orleans was developed prior to
adoption of NFIP standards and rating zones, it is anticipated that
should a major hurricane strike our area, that many structures, both
private and public, would have to be rebuilt or replaced by structures
meeting NFIP standards.
B. Future Plans
Future mitigation plans include:
1. Drainage network management.
2. Protection of wetlands and marshes.
3. Floodplain management.
4. Preservation of the levee system.
5. Providing hurricane shelter.
6. Restricting imprudent development.
7. Mitigation actions following natural disasters and post-disaster plan
development.
In response to a major destructive storm, future plans call for the
preparation of a post disaster plan that will identify programs and
actions that will reduce or eliminate the exposure of human life and
property to natural hazards. To direct the City's hurricane recovery
operations, the Mayor will appoint a Recovery Task Force (RTF). The RTF
shall include the Chief Administrative Officer, the Director of the
Emergency Preparedness, Public Works Director, Public Utilities
Director, Director of Safety and Permits and any others as directed by
the Mayor. Staff shall be provided by those appointed, as well as by
those elements of the OEP responsible for recovery operations. The RTF
shall provide the following tasks:
1. Review and decide upon emergency building permits.
2. Analyze and recommend hazard mitigation options, including
reconstruction or relocation of damaged public facilities.
3. Coordinate the preparation of the post-disaster redevelopment plan.
4. Recommend amendments to the Comprehensive Emergency Management Plan,
and other appropriate policies and procedures.
5. Coordinate with state and federal officials disaster assistance.
In order to ensure broad-based local participation in guiding long-term
redevelopment, the following recommendations are submitted:
1. That the RTF be tasked with overseeing long-term disaster recovery
and mitigation efforts, once the life threatening aspects of a major
disaster has passed, as an adjunct operation of the OEP.
3. That the RTF shall develop periodic reports on recovery efforts and
operations for submission to the Mayor and City Council.
4. That the RTF focus on such issues as Building Code modifications,
zoning and land use management, building code compliance and
enforcement, retrofitting public facilities, local legislation designed
to reduce the risk of life and property in areas vulnerable to the
impacts of predictable, recurring hazards. |
