HomeMy WebLinkAbout3/3/2004 - STAFF REPORTS (9) 1
Date: March 3, 2004
To: City Council
From: Fire Chief and Emergency Services Coordinator
APPROVE THE 2004 CITY OF PALM SPRINGS SEMS MULTIHAZARD FUNCTIONAL
RESPONSE PLAN
RECOMMENDATION:
It is recommended that the City Council approve the 2004 City of Palm Springs SEMS
Multihazard Functional Response Plan.
SUMMARY:
The SEMS Multihazard Functional Response Plan, also known as the City Emergency
Response Plan, addresses the City's planned response to emergencies associated with
natural disasters and technological incidents. The 2004 Response Plan has been
updated and reformatted, and will replace the 1996 Multihazard Functional Plan
currently in effect.
BACKGROUND:
The California Emergency Services Act provides the basic authority for conducting
emergency operations following a proclamation of local emergency, state of emergency
or state of war emergency by the Governor and/or appropriate local authorities.
The California Emergency Plan, which is promulgated by the Governor, is published in
accordance with the Emergency Services Act, describes the functions and operations of
government at all levels during extraordinary emergencies, including wartime. The Act
states, in part, that "the State Emergency Plan shall be in effect in each political
subdivision of the state, and the governing body of each political subdivision shall take
such actions as may be necessary to carry out the provisions thereof'. Local emergency
plans are therefore, considered to be extensions of the California Emergency Plan.
The Standardized Emergency Management System (SEMS) provides for an effective
response to multi-agency and multi-jurisdictional emergencies in California. SEMS is
based on the Incident Command System (ICS), and incorporates existing mutual aid
systems, the Operational Area Concept, and multi-agency or inter-agency coordination.
SEMS is an integral component of the Palm Springs Emergency Plan.
The Federal Department of Homeland Security, through the State of California, through
the Riverside County Operational Area, made grant funds available to the City of Palm
Springs to develop and update its emergency plans in 2003. The City's Emergency
Services Coordinator along with Terra Firma Enterprises compiled this plan during 2003.
The final draft of the plan was submitted to the State Office of Emergency Services for
approval in January, 2004 and approved in February, 2004, contingent upon adoption by
the Palm Springs City Council.
104
March 3, 2004
Page 2
The plan does not address normal day-to-day emergencies or the well-established
procedures used in coping with such emergencies. Instead, the operational concepts
reflected in this plan focus on potential large-scale disasters that can generate unique
situations requiring unusual emergency responses.
This plan is a preparedness document, designed to be read, understood, and exercised
prior to an emergency. The City's Emergency Services Coordinator has the
responsibility to ensure that emergency plans are in place and that the City is prepared
to respond to large-scale emergencies.
APPROVED: A' 4,1,
Jq
RY A/FREET BLAKE G. GOETZ /�
FIRE CHIEF EMERGENCY SERVI¢ES
COORDINATOR
APPROVED:
� A c?
DAVID H. READY
CITY MANAGER
SEMS'MULTIHAZARD FUNCTIONAL RESPONSE PLAN
CONTENTS OF PLAN
INTRODUCTION
PAGE NO.
Acknowledgments ................................................................................................ Intro - 2
Foreword............................................................................................................... Intro - 3
Letter of Promulgation...............................:........................................................... Intro - 6
Record of Revisions.............................................................................................. Intro - 7
DistributionList ..................................................................................................... Intro - 8
Department/Agency Concurrence......................................................................... Intro - 9
PART ONE
BASIC PLAN
SectionOne, Basic Plan ................................................................................. Part One-3
Section Two, Authorities and References..................................................... Part One-23
Section Three, Mutual Aid.............................................................................. Part One-29
Section Four, Threat Summary and Assessments......................................... Part One-37
PART TWO
EMERGENCY ORGANIZATION FUNCTIONS
Management Section.................................................................................. Part Two- M-1
Support Documentation .................................................................Part Two- MS-1
Operations Section .................................................................................... Part Two - 0-1
Support Documentation ................................................................Part Two - OS-1
Planning/Intelligence Section.......................................................................Part Two - P-1
Support Documentation ................................................................ Part Two - PS-1
Logistics Section.........................................................................................Part Two - L-1
Support Documentation .................................................................Part Two - LS-1
Finance/Administration Section ..................................................................Part Two - F-1
Support Documentation ................................................................ Part Two - FS-1
APPENDIX
City of Palm Springs EOC Notification List .....................................................Appendix -3
Essential Contacts Notification List.................................................................Appendix -5
City of Palm Springs EOC Numbers ...............................................................Appendix -7
City of Palm Springs Introduction 1
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
ACKNOWLEDGMENTS
This plan is was prepared and edited by Wendy Haddock Milligan of Terra Firma
Enterprises and Blake Goetz with the Palm Springs City Fire Department. The following
vital documents were used as reference information in compiling this plan:
FEMA SLG 101: "State and Local Guidance 101"
FEMA CPG 1-8a: "State and Local Emergency Operations Plans"
OES: "Local Government Emergency Planning Guidance"
OES: "SEMS Guidelines"
City of Palm Springs MultiHazard Functional Response Plan, December 1996
The recommendations and suggestions included in this plan are intended to improve
emergency preparedness, response and recovery and to satisfy the Standardized
Emergency Management System requirements as presented in Title 19 of the California
Code of Regulations. Although Terra Firma Enterprises stands by the quality of its
products, it is understood that disaster preparedness is not an exact science, and this
Emergency Response Plan does not guarantee the safety of any individual, structure, or
organization in a disaster. Terra Firma Enterprises assumes no liability for deaths,
injuries, or property damage resulting from a disaster.
City of Palm Springs Introduction 2
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
INTRODUCTION
FOREWORD
This SEMS Multihazard Functional Plan (MHFP) addresses the City of Palm Springs's
planned response to extraordinary emergency situations associated with natural
disasters, technological incidents, and national security emergencies. The plan does
not address normal day-to-day emergencies or the well established and routine
procedures used in coping with such emergencies. Instead, the operational concepts
reflected in this plan focus on potential large-scale disasters that can generate unique
situations requiring unusual emergency responses.
This plan is a preparedness document—designed to be read, understood, and
exercised prior to an emergency. It is designed to include the City of Palm Springs as
part of the California Standardized Emergency Management System (SEMS).
This plan provides basic planning information. City departments must prepare standard
operating procedures and, in some cases, more detailed checklists that will describe
their internal operations under emergency conditions.
ASSUMPTIONS:
• The City of Palm Springs is primarily responsible for emergency actions and will
commit all available resources to save lives, minimize injury to persons, and
minimize damage to property.
• The City of Palm Springs will utilize SEMS in emergency response operations.
• The Director of Emergency Services, City Manager, will coordinate the City's
disaster response in conformance with its Emergency Services Ordinance.
• The City of Palm Springs will participate in the Riverside County Operational
Area.
• The resources of the City of Palm Springs will be made available to local
agencies and citizens to cope with disasters affecting this area.
• The City will commit its resources to a reasonable degree before requesting
mutual aid assistance.
• Mutual aid assistance will be requested when disaster relief requirements exceed
the City's ability to meet them.
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
EMERGENCY MANAGEMENT GOALS:
Provide effective life safety measures and reduce property loss.
• Provide for the rapid resumption of impacted businesses and community
services.
• Provide accurate documentation and records required for cost recovery efforts.
ORGANIZATION OF THE SEMS MHFP:
• Part One - Basic Plan. Overall organizational and operational concepts relative
-to response and recovery, as well as an overview of potential hazards. Intended
audience—EOC Management Team.
• Part Two - Emergency Organization Functions. Description of the emergency
response organization and emergency action checklists and reference material.
Intended audience—EOC staff.
• Appendix — Contains all of the emergency organization's notification numbers
and other essential numbers. Intended audience—EOC staff.
ACTIVATION OF THE SEMS MHFP:
• On the order of the official designated by the City of Palm Springs's
Ordinance No. 2.20, provided that the existence or threatened existence
of a Local Emergency has been proclaimed in accordance with the
ordinance.
• When the Governor has proclaimed a State of Emergency in an area
including this jurisdiction.
• Automatically on the proclamation of a State of War Emergency as
defined in California Emergency Services Act (Chapter 7, Division 1,
Title 2, California Government Code).
• A Presidential declaration of a National Emergency.
• Automatically on receipt of an attack warning or the observation of a
nuclear detonation.
APPROVAL AND PROMULGATION:
This SEMS MHFP will be reviewed by all departments/agencies assigned a primary
function in the Emergency Responsibilities Matrix (Part Two, Management Section).
Upon completion of review and written concurrence by these departments/agencies, the
City of Palm Springs Introduction 4
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
SEMS MHFP will be submitted to the State Office of Emergency Services for review
and then to the City Council for review and approval. Upon concurrence by the City
Council, the plan will be officially adopted and promulgated.
TRAINING, EXERCISING, AND MAINTENANCE OF SEMS
MHFP:
The City Emergency Services Coordinator (Assistant Fire Chief) is responsible for
coordination and scheduling of training and exercising of this plan. The City of Palm
Springs's Emergency Management Organization will conduct regular exercises of this
plan to train all necessary City staff in the proper response to disaster situations.
The SEMS MHFP will be reviewed annually to ensure that plan elements are valid and
current. Each responsible organization or agency will review and upgrade its portion of
the SEMS MHFP and/or modify its SOP/EOP as required based on identified
deficiencies experienced in drills, exercises or actual occurrences. Changes in
government structure and emergency response organizations will also be considered in
the SEMS MHFP revisions. The City Emergency Services Coordinator is responsible for
making revisions to the SEMS MHFP that will enhance the conduct of response and
recovery operations. The City Emergency Services Coordinator will prepare, coordinate,
publish and distribute any necessary changes to the plan to all City departments and
other agencies as shown on the distribution list on page 8 of this SEMS MHFP.
The City Emergency Services Coordinator will also review documents that provide the
legal basis for emergency planning to ensure conformance to SEMS requirements and
modify as necessary.
City of Palm Springs Introduction 5
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
Approval Date:
LETTER OF PROMULGATION
TO: OFFICIALS, EMPLOYEES, AND CITIZENS OF CITY PALM SPRINGS
The preservation of life and property is an inherent responsibility of local, state, and
federal government. The City of Palm Springs has prepared this SEMS Multihazard
Functional Plan (MHFP) to ensure the most effective and economical allocation of
resources for the maximum benefit and protection of the civilian population in time of
emergency.
While no plan can prevent death and destruction, good plans carried out by
knowledgeable and well trained personnel can and will minimize losses. This plan
establishes the emergency organization, assigns tasks, specifies policies and general
procedures, and provides for coordination of planning efforts of the various emergency
staff and service elements utilizing the Standardized Emergency Management System
(SEMS).
The objective of this plan is to incorporate and coordinate all the facilities and personnel
of the City into an efficient organization capable of responding to any emergency.
This SEMS Multihazard Functional Plan is an extension of the California Emergency
Plan. It will be reviewed and exercised periodically and revised as necessary to meet
changing conditions.
The City Council gives its full support to this plan and urges all officials, employees, and
citizens, individually and collectively, to do their share in the total emergency effort of
the City of Palm Springs.
Concurrence of this promulgation letter constitutes the adoption of the Standardized
Emergency Management System by the City of Palm Springs. This SEMS MHFP will
become effective on approval by the City Council.
Mayor
City of Palm Springs
City of Palm Springs Introduction 6
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
RECORD OF REVISIONS
Date Section Page Numbers Entered By
City of Palm Springs Introduction 7
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
DISTRIBUTION LIST
DEPARTMENTS/AGENCIES RECEIVING
COPIES OF THE SEMS MHFP: NO. OF COPIES
Governor's OES, Southern Region 2
Riverside County Operational Area — Riverside County Emergency Services Division 2
City Emergency Operations Center 2
Mayor/ City Council 2
Director of Emergency Services (City Manager) 2
Finance Department 1
City Clerk 1
City Attorney 1
Library, City (One Cataloged as Reference Volume) 2
Planning Department 2
Building Department 2
Police Department 2
Fire Department 2
Aviation 1
Procurement and Contracting 1
Human Resources 1
Information Technology 1
Community Redevelopment and Economic Development Department 1
Public Works and Engineering 1
Parks and Recreation 1
EOC POTENTIAL STAFF MEMBERS
City of Palm Springs Introduction 8
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
DEPARTMENT/AGENCY CONCURRENCE
AGENCY/DEPARTMENT REPRESENTATIVE TITLE
City Manager David Ready City Manager
Fire Department Bary Freet Fire Chief
Police Department Gary Jeandran Police Chief
Public Works& Engineering David Barakian City Engineer
Aviation Barry Griffith
Planning Doug Evans Planning Director
Building Don Duckworth Building Director
Finance and Treasury Tom Kanarr Finance Director
Procurement and Contracting Harold Good Procurement and
Contracts Director
Economic Development and John Raymond Director of Community
Community Redevelopment ' & Economic Development
Information Technology James Smith Information Technology
Director
Human Resources Sue Mills Human Resources
Director
Parks/Recreation and Facilities Scott Mikesell
City Clerk Trisha Sanders City Clerk
Library Barbara Roberts Librarian
Riverside County OES Bonnie Reed
American Red Cross Martin Ayala
State OES Sonia Brown
City of Palm Springs Introduction 9
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Page.intended to be blank.
City of Palm Springs Introduction 10
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
PART ONE
BASIC PLAN CONTENTS
Page
SECTION ONE, BASIC PLAN ................................................................................One-3
Purpose .................................................................................................................. One-3
Authorities and References......................................................................................One-3
Preparedness Elements...........................................................................................One-3
Concept of Operations.............................................................................................One-3
Preparedness Phase .......................................................................................One-3
Increased Readiness ..............................................................................One-4
Response Phase .....................................................................................One-4
Pre-Emergency........................................................................................One-4
Emergency Response .............................................................................One-4
Sustained Emergency....... ......................................................................One-6
Recovery Phase ..............................................................................................One-6
MitigationPhase ..............................................................................................One-6
Hazard Identification and Analysis...........................................................................One-7
Standardized Emergency Management System (SEMS) ........................................One-7
Field Response Level ......................................................................................One-7
Local Government Level..................................................................................One-7
OperationalArea..............................................................................................One-7
Regional...........................................................................................................One-8
State ................................................................................................................One-9
Federal Emergency Management............................................................................One-9
Continuity of Government........................................................................................One-9
Public Awareness and Education ............................................................................One-9
Training and Exercises ..........................................................................................One-10
Alerting and Warning .............................................................................................One-10
Federal Alerting and Warning Systems..................................................................One-10
State Alerting and Warning Systems ....................................................................One-12
Operational Area Alerting, Notification and Warning Systems ..............................One-15
Local Alerting and Warning Systems ....................................................................One-17
Emergency Conditions and Warning Actions.........................................................One-18
SECTION TWO, AUTHORITIES AND REFERENCES .........................................One-23
General..................................................................................................................One-23
Emergency Proclamations.....................................................................................One-23
Local Emergency...........................................................................................One-23
Stateof Emergency .......................................................................................One-24
Stateof War Emergency................................................................................One-25
Authorities..............................................................................................................One-25
Federal...........................................................................................................One-25
State ..............................................................................................................One-25
City of Palm Springs Part One - 1
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Local ..............................................................................................................0 n e-26
SECTION THREE, MUTUAL AID .........................................................................One-29
Introduction............................................................................................................One-29
MutualAid System.................................................................................................One-29
MutualAid Regions................................................................................................One-29
Mutual Aid Coordinators ........................................................................................One-30
Participation of Volunteer and Private Agencies ...................................................One-30
Emergency Facilities Used for Mutual Aid .............................................................One-31
Policies and Procedures ........................................................................................One-31
Authorities and References,................................................................... ...............One-32
Chart 1 - Mutual Aid Systems Flow Chart......................................................One-33
Chart 2 - Mutual Aid Coordinators Flow Chart...............................................One-34
Chart 3 - State Mutual Aid Regions Map .......................................................One-35
SECTION FOUR, THREAT SUMMARY AND ASSESSMENTS...........................One-37
CityMaps.......................................................................................................One-40
Threat Assessment 1 - Major Earthquake .....................................................One-43
Threat Assessment 2 - Hazardous Material Incident.....................................One-59
Threat Assessment 3 - Flooding....................................................................One-65
Threat Assessment 4 - Fire ...........................................................................One-71
Threat Assessment 5A -Transportation: Major Air Crash ..............................One-73
Threat Assessment 5B -Transportation: Train Derailment.............................One-75
Threat Assessment 5C -Transportation: Truck Incident.................................One-77
Threat Assessment 6 - Civil Unrest ...............................................................One-79
Threat Assessment 7 - Terrorism ..................................................................One-81
Threat Assessment 8 — National Security......................................................One-83
Threat Assessment 9 — Landslide..................................................................One-87
City of Palm Springs Part One -2
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
SECTION ONE
BASIC PLAN
PURPOSE
The Basic Plan addresses the City's planned response to emergencies associated with
natural disasters and technological incidents. It provides an overview of operational
concepts, identifies components of the City's emergency management organization
within the Standardized Emergency Management System (SEMS), and describes the
overall responsibilities of the federal, state and county entities and the City for protecting
life and property and assuring the overall well-being of the population.
AUTHORITIES AND REFERENCES
Disaster response and recovery operations will be conducted as outlined in Concept of
Operations, and in accordance with the enabling legislation, plans, and agreements
listed in Part One, Section Two-Authorities and References.
PREPAREDNESS ELEMENTS
The City will place emphasis on: emergency planning; training of full time, auxiliary and
reserve personnel; public awareness and education; and assuring the adequacy and
availability of sufficient resources to cope with emergencies. Emphasis will also be
placed on mitigation measures to reduce losses from disasters, including the
development and enforcement of appropriate land use, design and construction
regulations.
CONCEPT OF OPERATIONS
Operations during peacetime and national security emergencies involve a full spectrum
of activities from a minor incident, to a major earthquake, to a nuclear detonation.
There are a number of similarities in operational concepts for peacetime and national
security emergencies. Some emergencies will be preceded by a build-up or warning
period, providing sufficient time to warn the population and implement mitigation
measures designed to reduce loss of life and property damage. Other emergencies
occur with little or no advance warning, thus requiring immediate activation of the
emergency operations plan and commitment of resources. All agencies must be
prepared to respond promptly and effectively to any foreseeable emergency, including
the provision and utilization of mutual aid (see Part One, Section Three-Mutual Aid).
Emergency management activities during peacetime and national security emergencies
are often associated with the four emergency management phases indicated below.
However, not every disaster necessarily includes all indicated phases.
Preparedness Phase
The preparedness phase involves activities taken in advance of an emergency. These
activities develop operational capabilities and effective responses to a disaster. These
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
actions might include mitigation activities, emergency/disaster planning, training and
exercises and public education. Those identified in this plan as having either a primary
or support mission relative to response and recovery should prepare Standard
Operating Procedures (SOPs)/Emergency Operating Procedures (EOPs) and checklists
detailing personnel assignments, policies, notification rosters, and resource lists.
Personnel should be acquainted with these SOPs/EOPs and checklists through periodic
training in the activation and execution procedures.
Increased Readiness
Increased readiness actions will be initiated by the receipt of a warning or the
observation that an emergency situation is imminent or likely to occur soon.
Actions to be accomplished include, but are not necessarily limited to:
• Review and update of emergency plans, SOPs/EOPs, and resources
listings.
• Dissemination of accurate and timely emergency public information.
• Accelerated training of permanent and auxiliary staff.
• Inspection of critical facilities.
• Recruitment of additional staff and Disaster Services Workers.
• Mobilization of resources
• Testing warning and communications systems.
Response Phase
Pre-Emergency
When a disaster is inevitable, actions are precautionary and emphasize
protection of life. Typical responses might be:
• Evacuation of threatened populations to safe areas.
• Advising threatened populations of the emergency and apprising them of
safety measures to be implemented.
• Advising the Riverside County Operational Area of the emergency.
• Identifying the need for mutual aid and requesting such through the
Riverside County Operational Area via the Palm Springs Police/Fire Dispatch
Center or the City EOC.
• Proclamation of a Local Emergency by local authorities.
Emergency Response
During this phase, emphasis is placed on saving lives and property, control of the
situation and minimizing effects of the disaster. Immediate response is
accomplished
within the affected area by local government agencies and segments of the
private sector.
One of the following conditions will apply to the City during this phase:
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The situation can be controlled without mutual aid assistance from outside
the City.
• Evacuation of portions of the City are required due to uncontrollable
immediate and ensuing threats.
• Mutual aid from outside the City is required.
• The City is either minimally impacted, or not impacted at all, and is requested
to provide mutual aid to other jurisdictions.
The emergency management organization will give priority to the following
operations:
• Dissemination of accurate and timely emergency public information and
warning to the public.
• Situation analysis.
• Resource allocation and control.
• Evacuation and rescue operations.
• Medical care operations.
• Coroner operations.
• Care and shelter operations.
• Access and perimeter control.
• Public health operations.
• Restoration of vital services and utilities.
When local resources are committed to the maximum and additional resources
are required, requests for mutual aid will be initiated through the Riverside
County Operational Area. Fire and law enforcement agencies will request or
render mutual aid directly through established channels. Any action which
involves financial outlay by the jurisdiction, or a request for military assistance,
must be authorized by the appropriate local official. If required, State Office of
Emergency Services (OES) may coordinate the establishment of one or more
Disaster Support Areas (DSAs) where resources and supplies can be received,
stockpiled, allocated, and dispatched to support operations in the affected
area(s).
Depending on the severity of the emergency, a Local Emergency may be
proclaimed, the local Emergency Operating Center (EOC) may be activated, and
Riverside County Operational Area will be advised. The State OES Director may
request a gubernatorial proclamation of a State of Emergency. Should a State of
Emergency be proclaimed, state agencies will, to the extent possible, respond to
requests for assistance. These activities will be coordinated with the State OES
Director.
State OES may also activate the State Operations Center (SOC) in Sacramento
to support State OES Regions, state agencies and other entities in the affected
areas and to ensure the effectiveness of the state's SEMS. The State Regional
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
EOC (REOC) in Los Alamitos, or an alternate location, will support the Riverside
County Operational Area.
If the Governor requests and receives a Presidential declaration of an
Emergency or a Major Disaster under Public Law 93-288, he will appoint a State
Coordinating Officer (SCO). The SCO and an appointed Federal Coordinating
Officer (FCO) will coordinate and control state and federal recovery efforts in
supporting local operations. All emergency response efforts and initial recovery
support will be coordinated by the REOC.
Sustained Emergency
In addition to continuing life and property protection operations, mass care,
relocation, registration of displaced persons, and damage assessment operations
will be initiated.
Recovery Phase
As soon as possible, the State OES Director, operating through the SCO, will bring
together representatives of federal, state, county, and city agencies, as well as
representatives of the American Red Cross, to coordinate the implementation of
assistance programs and establishment of support priorities. Disaster Application
Centers (DACs) or telephonic centers may also be established, providing a 'one-stop"
service to initiate the process of receiving federal, state and local recovery assistance.
The recovery period has major objectives which may overlap, including:
• Reinstatement of family autonomy.
• Provision of essential public services.
• Permanent restoration of private and public property.
• Identification of residual hazards.
• Plans to mitigate future hazards.
• Recovery of costs associated with response and recovery efforts.
Mitigation Phase
Mitigation efforts occur both before and following disaster events. Post-disaster
mitigation is part of the recovery process. Eliminating or reducing the impact of hazards
which exist within the City and are a threat to life and property are part of the mitigation
efforts. Mitigation tools include:
• Local ordinances and statutes (zoning ordinance, building codes and enforcement,
etc.).
• Structural measures.
• Tax levee or abatements.
• Public information and community relations.
• Land use planning.
• Professional training.
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HAZARD IDENTIFICATION AND ANALYSIS
A hazard analysis has indicated that the City may be at risk to certain incidents and to
national security emergencies. These hazards are identified in Part One, Section Four
-Threat Assessments, which also provide general and specific information on their
possible impact on the jurisdiction.
STANDARDIZED EMERGENCY MANAGEMENT SYSTEM (SEMS)
In an emergency, governmental response is an extraordinary extension of responsibility
and action, coupled with normal day-to-day activity. Normal governmental duties will
be maintained, with emergency operations carried out by those agencies assigned
specific emergency functions. The Standardized Emergency Management System
(SEMS) has been adopted by the City of Palm Springs for managing response to multi-
agency and multi-jurisdiction emergencies and to facilitate communications and
coordination between all levels of the system and among- all responding agencies.
Chapter 1 of Division 2 of Title 19 of the California Code of Regulations establishes the
standard response structure and basic protocols to be used in emergency response and
recovery.
Fully activated, the SEMS consists of five levels: field response, local government,
operational areas (countywide), OES Mutual Aid Regions, and state government.
Field Response Level
The field response level is where emergency response personnel and resources, under
the command of an appropriate authority, carry out tactical decisions and activities in
direct response to an incident or threat. SEMS regulations require the use of the
Incident Command System (ICS) at the field response level of an incident. The ICS
field functions to be used for emergency management are: command, operations,
planning/intelligence, logistics, and finance/administration.
Local Government,Level
Local governments include cities, counties, and special districts. Local governments
manage and coordinate the overall emergency response and recovery activities within
their jurisdiction. Local governments are required to use SEMS when their emergency
operations center is activated or a local emergency is proclaimed in order to be eligible
for state funding of response-related personnel costs. Local governmental levels shall
provide the following functions: management, operations, planning/intelligence,
logistics, and finance/administration. Local jurisdictions are responsible for overall
direction of personnel and equipment provided for emergency operations through
mutual aid (Government Code Section 8618). Additional details relative to the
organization and responsibilities of the SEMS elements at each of the levels are
provided in Part Two, Management Section.
Operational Area
Under SEMS, the operational area is defined in the Emergency Services Act as an
intermediate level of the state's emergency services organization consisting of a county
and all political subdivisions within the county area. Political subdivisions include cities,
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a city and county, counties, district or other local governmental agency, or public agency
as authorized by law. The operational area is responsible for:
• Coordinating information, resources and priorities among local governments within
the operational area,
• Coordinating information, resources and priorities between the regional level and
the local government level, and
• Using multi-agency or inter-agency coordination to facilitate decisions for overall
operational area level emergency response activities.
The Riverside County Fire Department/OES is the lead agency for the Riverside County
Operational Area which includes the City of Palm Springs.
Activation of the Operational Area EOC during a State of Emergency or a Local
Emergency is required by SEMS regulations under the following conditions:
1) A local government within the operational area has activated its EOC and
requested activation of the operational area EOC to support their emergency
operations.
2) Two or more cities within the operational area have proclaimed a local emergency.
3) The county and one or more cities have proclaimed a local emergency.
4) A city, city and county, or county has requested a governor's proclamation of a state
of emergency, as defined in the Government Code Section 8558(b).
5) A state of emergency is proclaimed by the governor for the county or two or more
cities within the operational area.
6) The operational area is requesting resources from outside its boundaries. This does
not include resources used in normal day-to-day operations which are obtained
through existing mutual aid agreements.
7) The operational area has received resource requests from outside its boundaries.
This does not include resources used in normal day-to-day operations which are
obtained through existing mutual aid agreements.
If the Riverside County Operational Area is activated, the Riverside County Fire
Department/OES will be the Operational Area Coordinator for Riverside County and will
have the overall responsibility for coordinating and supporting emergency operations
within the county. The Operational Area Coordinator and supporting staff will constitute
the Operational Area Emergency Management Staff. The Riverside County Fire
Department's EOC will fulfill the role of the Operational Area EOC.
Regional
Because of its size and geography, the state has been divided into six mutual aid
regions. The purpose of a mutual aid region is to provide for the more effective
application and coordination of mutual aid and other emergency related activities.
State OES has also established three Administrative Regions (Coastal, Inland and
Southern). These Administrative Regions are the means by which State OES maintains
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
day-to-day contact with emergency services organizations at local, county and private
sector organizations.
In SEMS, the regional level manages and coordinates information and resources
among operational areas within the mutual aid region and also between the operational
areas and the state level. The regional level also coordinates overall state agency
support for emergency response activities within the region.
State
The state level of SEMS manages state resources in response to the emergency needs
of the other levels and coordinates mutual aid among the mutual aid regions and
between the regional level and state level. The state level also serves as the
coordination and communication link between the state and the federal disaster
response system.
FEDERAL EMERGENCY MANAGEMENT
The Federal Emergency Management Agency (FEMA) serves as the main federal
government contact during emergencies, major disasters and national security
emergencies.
CONTINUITY OF GOVERNMENT
A major disaster or national security emergency could result in the death or injury of key
government officials and/or the partial or complete destruction of established seats of
government, and public and private records essential to continued operations of
government. Government at all levels is responsible for providing continuity of effective
leadership, authority and adequate direction of emergency and recovery operations.
The California Government Code Section 8643(b) and the Constitution of California
provide the authority for state and local government to reconstitute itself in the event
incumbents are unable to serve. Part Two, Management Section provides complete
details on the Continuity of Government Program in California.
PUBLIC AWARENESS AND EDUCATION
The public's response to any emergency is based on an understanding of the nature of
the emergency, the potential hazards, the likely response of emergency services and
knowledge of what individuals and groups should do to increase their chances of
survival and recovery.
Public awareness and education prior to any emergency are crucial to successful public
information efforts during and after the emergency. The pre-disaster awareness and
education programs must be viewed as equal in importance to all other preparations for
emergencies and receive an adequate level of planning. These programs must be
coordinated among local, state and federal officials to ensure their contribution to
emergency preparedness and response operations. Emergency Public Information
procedures are addressed in Part Two, Management Section.
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TRAINING AND EXERCISES
Training and exercises are essential at all levels of government to make emergency
operations personnel operationally ready. All emergency plans should include provision
for training.
The objective is to train and educate public officials, emergency response personnel
and the public. The best method for training staff to manage emergency operations is
through exercises.
Exercises are conducted on a regular basis to maintain the readiness of operational
procedures. Exercises provide personnel with an opportunity to become thoroughly
familiar with the procedures, facilities and systems which will actually be used in
emergency situations. There are several forms of exercises: Table Top, Functional, and
Full Scale.
ALERTING AND WARNING
Warning is the process of alerting governmental forces and the general public to the
threat of imminent extraordinary danger. Dependent upon the nature of the threat and
the population group at risk, warning can originate at any level of government.
Success in saving lives and property is dependent upon timely dissemination of warning
and emergency information to persons in threatened areas. Local government is
responsible for warning the populace of the jurisdiction. Palm Springs will utilize various
modes of alerting and warning the community. The following information describes the
various systems and provides an explanation of the "Emergency Conditions and
Warning Actions" through which these system may be accessed.
FEDERAL ALERTING AND WARNING SYSTEMS
EAS Emergency Alert System The Emergency Alert System (EAS) is designed
for the broadcast media to disseminate emergency public information. This system
enables the President, and federal, state and local governments to communicate with
the general public through commercial broadcast stations.
This system uses the facilities and personnel of the broadcast industry on a volunteer
basis. EAS is operated by the broadcast industry according to established and
approved EAS plans, standard operating procedures and within the rules and
regulations of the Federal Communications Commission (FCC). FCC rules and
regulations require all participating stations with an EAS operating area to broadcast a
common program. Each broadcast station volunteers to participate in EAS and agrees
to comply with established rules and regulations of the FCC.
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EAS can be accessed at federal, state, and local levels to transmit essential information
to the public. Message priorities under Part 73.922(a) of the FCC's rules are as follows:
• Priority One Presidential Messages (carried live)
• Priority Two EAS Operational (Local) Area Programming
• Priority Three State Programming
• Priority Four National Programming and News
Presidential messages, national programming and news will be routed over established
network facilities of the broadcast industry. State programming will originate from the
state operations center and will be transmitted through the state using the state's
CLERS VHF/UHF radio relay stations.
The .FCC has established committees of broadcast industry personnel at each
governmental level to develop EAS plans. These include:
• Federal The EAS Advisory Committee
• State State Emergency Communications Co
• Local Operational Area Emergency Communications Committee
NAWAS National Warning System
NAWAS is a dedicated wire-line system that provides two-way voice communications
between federal warning center, state warning points and local warning points. If the
situation ever presents itself, NAWAS is a nationwide system developed to send
warnings of impending attack throughout the nation. The system may be activated from
two federal facilities that are staffed 24 hours daily: the National Warning Center (North
American Air Defense Command, Colorado Springs) and the Alternate National
Warning Center (Olney, Maryland).
During major peacetime emergencies, state agencies may use portions of NAWAS
augmented by state and local systems. Each state has a warning point that controls the
NAWAS connection within the state. See State Level CALWAS for more information.
Tests
NAWAS is tested three times daily at unscheduled times. The state warning point,
OES, acknowledges the test for California. If OES does not respond, the alternate,
CHP, will acknowledge the test. Immediately following the national test, the state
NAWAS test is conducted.
NWS National Weather Service
The National Weather Service transmits continuous weather information on 162,40,
162.475, and 162.55 MHZ frequencies. Weather Service severe weather broadcasts
are preceded with a 1,050 MHZ tone that activates weather monitor receivers equipped
with decoders. The Weather Service can also access NAWAS to announce severe
weather information.
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STATE ALERTING AND WARNING SYSTEMS
CALWAS California Warning System
CALWAS is the state portion of NAWAS that extends to communications and dispatch
centers throughout the state. The State Office of Emergency Services headquarters
ties into the federal system through the Warning Center in Sacramento. Circuits then
extend to county warning points. The California Highway Patrol headquarters in
Sacramento is the state's alternate warning point. Both state and federal circuits are
monitored 24 hours a day at the Warning Center, the alternate point and each of the
local warning points. Counties not on this system will receive warning through other
means (normally over the California Law Enforcement Telecommunications System
[CLETS]).
Immediately following the NAWAS test through the Warning Center, the state conducts
the CALWAS test. On alternate Wednesdays, the alternate state warning point, CHP,
conducts a test at 10:00 a.m. local time.
Backup systems for CALWAS includes:
• CESFRS California Emergency Services Fire Radio System
• CESRS California Emergency Services Radio System
• CLEMARS California Law Enforcement Mutual Aid Radio System
• CLERS California Law Enforcement Radio System
• CLETS California Law Enforcement Telecommunications System
CESFRS California Emergency Services Fire Radio System
CESFRS is the statewide communications network, available to all fire agencies. The
three available channels have been designated Fire White #1, #2 and #3. White #1 is
authorized for base station and mobile operations. White #2 and White #3 are for
mobile and portable use only. All three white channels are designated by the Federal
Communications Commission as "Intersystem" channels and are intended solely for
inter-agency fire operations, i.e. mutual aid. White #2 and White #3 are intended for on-
scene use only.
CESRS California Emergency Services Radio System
CESRS serves as an emergency communications system for OES and county
emergency services organizations. The system assists in the dissemination of warning
information and to support disaster and emergency operations. The system may be
used on a day-to-day basis for administrative emergency services business. Statewide
communications are provided through a number of microwave interconnected mountain
top relays. It operates under appropriate FCC rules and regulations and is administered
by the State of California through the Office of Emergency Services.
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CLEMARS California Law Enforcement Mutual Aid Radio System
CLEMARS was established to provide common police radio frequencies for use
statewide by state and local law enforcement agencies during periods of man-made or
natural disasters or other emergencies where inter-agency coordination is required. It
operates under appropriate FCC rules and regulations and is administered by the State
of California through the Office of Emergency Services.
Participation in CLEMARS is open to all California Law Enforcement agencies which are
eligible to operate on radio frequencies authorized by the FCC for the Police Radio
Service. In addition, the agency's political subdivision must be a signatory to the
California Disaster and Civil Defense Master Mutual Aid Agreement and have
developed a mutual aid response capability with trained personnel who will respond
when requested by their operational area or regional mutual aid coordinator to provide
required assistance.
The Regional Law Enforcement Coordinator is responsible for coordination of use of the
system within the Mutual Aid Region. The City of Palm Springs participates in
CLEMARS and is licensed for mobile and base station communications.
CLETS California Law Enforcement Telecommunications System
CLETS is a high-speed message switching system which became operational in 1970.
CLETS provides law enforcement and criminal justice agencies access to various data
bases and the ability to transmit and receive point-to-point administrative messages to
other agencies within California or via the National Law Enforcement
Telecommunications System (NLETS) to other states and Canada. Broadcast
messages can be transmitted intrastate to participating agencies in the Group Bulletin
Network and to regions nationwide-via NLETS. CLETS has direct interface with the
FBI-NCIC, NLETS, DMV, Oregon and Nevada. The State provides the computer
hardware, switching center personnel, administrative personnel, and the circuitry to one
point in each county. The local agencies provide the circuitry and equipment which link
them to their county termination point. The CLETS terminal in the City of Palm Springs
is housed at the Police Department. The CLETS Information Manual is located in
Police/Fire Communications. The County of Riverside provides the local interface,
known as JDIC (Justice Data Interface Controller).
EAS Emergency Alert System
Each state has been divided into a number of EAS operational areas, consisting of one
or more counties within radio reception range of EAS stations serving the area.
California has thirty EAS Operational Areas (OA). Almost all AM-FM and TV broadcast
stations have national defense emergency authorizations and several of these are
protected from fallout. The purpose of EAS in California is to provide warning,
emergency information, guidance, instructions and news of a manmade or natural threat
to the public safety, health and welfare.
One primary station in each OA assumes the function of the Common Program Control
Broadcast Station for the OA. It is called the CPCS-1 station. If for any reason a
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CPCS-1 is unable to carry out this responsibility, either primary or alternate broadcast
stations assigned as CPCS locations, will be activated in descending order. CPCS
assignments are made by the FCC, not the State or local governments. OAs are urged
to develop EAS systems that employ a system whereby the local OES feeds all the
radio stations simultaneously and not just the CPCS-1 station.
See the Federal EAS description for Program Priorities. Message priorities are as
follows:
Priority One Immediate and positive action without delay is required to save
lives.
Priority Two Actions required for the protection of property and instructions to
the public requiring expedient dissemination.
• Priority Three Information to the public and all others.
EDIS Emergency Digital Information System
The EDIS provides local, state and federal agencies with a direct computer link to the
news media and other agencies during emergencies. EDIS supplements existing
emergency public information systems such as the Emergency Alert System. By
combining existing data Input Networks with a digital radio Distribution System, EDIS
gives authorized agencies a direct data link to the news media and other agencies.
The main purpose of EDIS is to distribute official information to the public during
emergencies. However, a system that is not used day-to-day will not be used with
confidence during an emergency. Therefore, certain non-emergency uses of EDIS are
permitted so long as they do not interfere with more urgent transmissions.
EDIS may be used to transmit information in the following categories, listed in priority
order:
• FLASH Alerts and warning of immediate life-safety value to members of the
public.
• NEWS Information of immediate benefit to the public. Releases in this
category may include reports of unusual natural, social or
technological events; notices of government activities requiring
specific action by members of the public; road and traffic
information and instructions for those affected by an emergency.
• INFO Advisory messages for coordination between government and the
news media. Topics might include: times and locations of news
briefings, schedules for media tours of emergency scenes, "pool
coverage" arrangements, airspace restrictions.
• TEST Transmissions to verify operation of equipment and for training of
originating personnel.
Senders of EDIS messages should bear in mind that almost anyone can obtain the
equipment to receive EDIS messages. Confidential or sensitive information should
never be transmitted over EDIS.
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(Reference: Emergency Digital Information System Plan [EDIS], July 1991, written
by the OES Telecommunications Division.)
OASIS Operational Area Satellite Information System
The OASIS project, funded under the Earthquake Hazards Reduction Act of 1986, was
established to create the most robust communications system possible using leased
transponder space from commercial satellite operators. The result is the establishment
of a system which allows virtually uninterruptible communication between state, regional
and operational area level EOCs.
OASIS is a system that consists of a communications satellite, multiple remote sites and
a hub.
The satellite is in a stationary or geo-synchronous orbit above the earth's equator. A
high frequency (HF) radio system and a satellite communications network were
constructed to link all 58 counties with State OES and other state agencies for disaster
communications as well as day-to-day traffic. The system, which uses technology
similar to cellular telephones, has 60 channels. When a user picks up the line, the
system automatically searches for the best available channel.
The equipment necessary for the remote sites includes a six-foot diameter dish antenna
using Very Small Aperture Terminal or VSAT technology. These sites were originally
set up by OES and are capable of conducting six simultaneous voice conversations and
one data channel at a rate of 9600 baud.
The final component is the hub. The hub is a large external dish antenna and a network
control station which is managed by OES personnel. The hub provides access control
for the system and can control up to 800 remote stations. OES personnel will use the
hub to define the network, detect trouble and serve as an emergency alert network for
other OES personnel.
OPERATIONAL AREA ALERTING, NOTIFICATION AND WARNING
SYSTEMS
OASIS - Operational Area Satellite Information System
The County of Riverside has State Office of Emergency Services OASIS equipment
installed in the County EOC. OASIS is a system that consists of a communications
satellite, multiple remote sites and a hub. Through this system the County has the
capability of contacting any other County in California either through voice or data
transmission. The system also allows the County to have direct access to the State
Office of Emergency Services and other participating state agencies.
EAS Emergency Alert System
The Common Program Control Station (CPCS) is a primary station in an operational
area which, preferably, has special communication links with appropriate authorities,
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(i.e., National Weather Service, Civil Defense, Government authorities, etc.) As
specified in the State EAS Operational Plan. The primary CPCS station is responsible
for coordinating the carriage of common emergency program for its area. If it is unable
to carry out this function, other Primary Stations in the operational area will be assigned
the responsibility as indicated in the State EAS Operational Plan. Riverside County
Operational Area CPCS stations are:
Zone-1 KFRG 95.1 San Bernardino
Zone-1 KXFG 92.9 San Bernardino
Zone-2 KDES 104.7 Palm Springs
Zone-3 KZXY 102.3 Victorville
Zone-4 KHYZ 99.5 Mountain Pass
Zone-4 KHWY 98.9 Essex
Zone-4 KRXV 98.1 Yermo
Zone-5 KATY 101.3 Idyllwild
Examples of emergencies identified by Riverside County Operational Area which may
warrant either immediate or delayed response under EAS by the broadcast industry are
earthquake, serious fires, heavy rains and flooding, widespread power failures, severe
industrial accidents and hazardous material accidents.
EAS activation can be authorized by any one of the following parties:
• Director of Emergency Services or designee
• Assistant Director of Emergency Services
• Emergency Operations Center Watch Commander
• Authorized representative of the National Oceanic and Atmosphere Administration
(NOAA)
CUBE Caltech/U.S. Geological Survey Broadcast of Earthquakes
The CUBE system is the product of a cooperative effort between the California Institute
of Technology and the United States Geological Survey. Earthquake data is collected
at Caltech Seismological Laboratory in Pasadena and is reduced to provide earthquake
time, location and magnitude. This information is then transmitted to a commercial
paging system where it is broadcast to government and private sector subscribers'
paging units. These pagers may be carried by personnel or connected to a personal
computer that receives the information and displays it on a map. The CUBE project
offers the following capabilities to government:
• Automatically provides near real-time locations and magnitudes of earthquakes;
• Automatically provides estimates of the distribution of ground shaking following
significant earthquakes, and;
• Warns of imminent ground shaking in the seconds following an earthquake, but
before waves actually reach sites that may be damaged.
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Subscribers within Riverside County government include emergency management
personnel from the following departments: CAO, Sheriff, Fire and Public Works,
Computers are located in each of the following locations: County/Operational Area
EOC, Fire and Public Works Departmental Operations Centers.
LOCAL ALERTING AND WARNING SYSTEMS (See Part Two, Operations
Support Documentation, Alerting and Warning)
Cable TV
The City has an agreement with Time Warner Cable to provide the public with alerting
and notification of various disaster situations. This system includes break into all TVs
that are a part of this cable system. The City's Cable Channel 17 will provide directions
to the citizens via scrolled information. This includes a "leader" that will scroll across
any TV station that is turned on directing viewers to tune to their local cable channel for
more information.
Emergency Alert System (EAS) -
The EAS is administered by the Sheriff of Riverside County. Activation of the Riverside
County EAS shall be for emergency events and conditions of concern to a significant
segment of the population of Riverside County. The message must be a voice
message, it may be prerecorded and it must originate from the Sheriff's
Communications Center.
Radio
The City of Palm Springs has an agreement with KDES FM/KPSI AM Radio Station to
provide the public with alert and notification of various disaster situations.
Other warning systems utilized by the City of Palm Springs include mobile emergency
vehicle sirens and loudspeakers, helicopters using PA systems, local TV and radio and
door-to-door notification by Neighborhood Watch Block Captains and law enforcement
volunteers, explorers and reserve police officers.
EMERGENCY CONDITIONS AND WARNING ACTIONS
Methods of warning state and local governments of specific emergency conditions are
described below:
Earthquake
Earthquakes occur without warning. OES could receive notification of an earthquake as
well as subsequent information, including damage reports, from various sources, such
as:
• University of California Seismological Observatory, Berkeley
• California Institute of Technology, Pasadena
• Water Resources Department
• OES Regional Offices
• Local Governments
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• Federal/State Agencies
• Honolulu Observatory
This information may be received through NAWAS, radio, teletype and/or telephone and
would be further disseminated as appropriate using any or all of these means. The
State Warning Center has a seismic alarm system that activates during earthquakes,
prompting duty personnel to investigate the disturbance.
Earthquake Advisories
Earthquake Advisories are statements by OES regarding scientific assessment that,
within a specified period (usually 3-5 days) there is an enhanced likelihood for
damaging earthquakes to occur in areas designated in the Advisory. Advisories are not
formal predictions and are issued following earthquakes in which there is concern about
subsequent damaging earthquakes. The basis of the advisories is existing knowledge
of the seismic history and potential of the area under consideration.
Local Government
Upon notification of an Earthquake Advisory from OES, local government should;
disseminate information to key personnel, ensure the readiness of systems
essential to emergency operations; implement protective and mitigative actions;
provide guidance to the public on appropriate precautionary actions.
Notification Process
The Office of Emergency Services will notify State agencies, local governments
and designated Federal agencies of all Earthquake Advisories through a
telecommunications and radio fan-out process.,
The method of contact to State agencies, local governments and Federal agencies
will vary depending upon the availability of communications. Systems to be used
may include: The California Warning System (CALWAS), the California Law
Enforcement Telecommunications System (CLETS), the California Emergency
Services Radio System (CESRS), FAX and commercial telephone service.
OES WILL FOLLOW A FOUR-STEP PROCESS IN ISSUING AND CANCELING
ADVISORIES:
1. Information regarding additional seismic activity will be disseminated in the
form of an Earthquake Advisory. The Advisory will include information on
the background of the Advisory, the areas included in the Advisory and the
period of time in which the Advisory is in effect. The Earthquake Advisory
will be issued to jurisdictions determined to be located within the area
of enhanced risk. Advisories are usually issued for a 3-5 day period. OES
will keep local governments advised of any updates on the situation as they
become available.
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In most instances, the notification of the issuance of an Earthquake Advisory
will be to the affected counties via CLETS, followed by an announcement
over CALWAS. It is the responsibility of county offices that receive the
Advisory to forward the information immediately to all cities within the county
and county emergency services coordinators. City offices that receive the
Advisory should, in turn, forward the information to the city emergency
services coordinator.
2. Following the issuance of the Earthquake Advisory to jurisdictions within the
area of enhanced risk, OES will issue a Notice of Earthquake Advisory to
State departments, specified Federal agencies and all other counties in the
State.
The Notice of Earthquake Advisory is issued for informational purposes. No
specific actions are recommended to jurisdictions receiving this notice,
except at the discretion of local officials. It will be disseminated via the same
telecommunications systems as the Earthquake Advisory.
3. OES will inform the news media and public of an Earthquake Advisory by the
issue of an Earthquake Advisory News Release.
4. At the end of the period specified in the initial Advisory, OES will issue an
End of Earthquake Advisory Period message. This cancellation message
will be issued over the same telecommunications systems as were used to
initially issue the Advisory and Notice of Advisory to State agencies, local
government, specified Federal agencies, the news media and the public. An
Advisory may be extended if scientific assessments continue to indicate
reasons for such a continuation.
Earthquake Prediction (Short-Term)
The Short-Term Earthquake Prediction Response Plan provides direction and guidance
to State agencies for responding to (1) a prediction that an earthquake may occur within
a few hours to a few days or (2) issuance of an Advisory regarding an increase
likelihood that a damaging earthquake may occur. When implemented, the actions
recommended within this Plan will result in increased operational readiness and
preparedness of Stage agencies to deal effectively with a short-term earthquake
prediction and with the predicted earthquake, should it occur.
Formal predictions include specific identification of expected magnitude, location, time
and likelihood of occurrence (i.e., probability), that have been rigorously reviewed and
confirmed by the California Earthquake Prediction Evaluation Council (CEPEC).
Fire
Initial warnings of major conflagrations are normally issued by the affected area through
the Operational Area and/or OES Regional Fire Coordinator, using whatever means of
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communications are appropriate and available. Requests for mutual aid follow the
same channels.
Flood
A flood emergency is normally preceded by a buildup period that permits marshaling of
forces as required to combat the emergency. During the buildup period, OES
cooperates with the National Weather Service and the State Department of Water
Resources by relaying pertinent weather information and river bulletins to local
government officials in the affected areas. OES receives this information over selected
circuits and relays it to OES Regions through the OES private line teletype system and
to law enforcement agencies via CLETS.
Flood Stages and Bulletins
During periods of potential flooding in Southern California, the National Weather
Service, Riverside County, will issue the appropriate bulletins typically from San Diego.
After receiving these messages, the state Warning Center transmits these messages
immediately on CLETS to local governments in areas that are likely to be affected.
Hazardous Materials
Potential hazardous materials situations are identified during the planning phase by the
Riverside County Fire Department Hazardous Materials Unit. Area Plans address in
detail the specifics for hazardous materials planning for the local area. Initial
notifications of an incident are made by the responsible party or the responding agency
to the California Warning Center in Sacramento at 800/852-7550 as soon as the
incident occurs. The Warning Center then makes notifications to various state agencies
and the regional duty officer.
Seismic Sea Wave (Tsunami)
NAWAS is an integral part of the Tsunami alerting system. Reports of major
earthquakes occurring at any point in the Pacific Basin which may generate seismic sea
waves are transmitted to the Honolulu Observatory for evaluation. The Observatory staff
determines action to be taken and relays it over the NAWAS circuits to inform the West
Coast states. The State NAWAS circuit is used to relay the information to local Warning
Points in coastal counties. This information is also transmitted to local jurisdictions over
appropriate radio systems, teletype and telephone circuits to ensure maximum
dissemination.
A Tsunami Watch Bulletin is issued if an earthquake has occurred in the Pacific Basin
and could cause a tsunami. A Tsunami Warning Bulletin is issued when an
earthquake has occurred and a tsunami is spreading across the Pacific Ocean. When a
threat no longer exists, a Cancellation Bulletin is issued. The City of Palm Springs is
not in a Tsunami inundation area.
Severe Weather Warning
These include severe weather bulletins and statements relating to special weather
conditions. Bulletins are issued by National Weather Service offices in California when
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severe weather is imminent. By agreement, the National Weather Service office issues
the bulletin and transmits the information to the state Warning Center on the National
Weather Service teletype circuit. The Warning Center, in turn, relays the information to
the affected areas.
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SECTION TWO
AUTHORITIES AND REFERENCES
GENERAL
The California Emergency Services Act (Chapter 7 of Division 1 of Title 2 of the
Government Code), hereafter referred to as the Act, provides the basic authorities for
conducting emergency operations following a proclamation of Local Emergency, State
of Emergency or State of War Emergency by the Governor and/or appropriate local
authorities, consistent with the provisions of the Act.
The Standardized Emergency Management System (SEMS) Regulations (Chapter 1 of
Division 2 of Title 19 of the California Code of Regulations), hereafter referred to as
SEMS, establishes SEMS as the effective response to multi-agency and multi-
jurisdictional emergencies in California. SEMS is based on the Incident Command
System (ICS) adapted from the system originally developed by the Firefighting
Resources of California Organized for Potential Emergencies (FIRESCOPE) program.
SEMS incorporates the use of ICS, the Master Mutual Aid Agreement and existing
mutual aid systems, the Operational Area concept, multi-agency or inter-agency
coordination and OASIS.
The California Emergency Plan, which is promulgated by the Governor, is published in
accordance with the Act and provides overall statewide authorities and responsibilities,
and describes the functions and operations of government at all levels during
extraordinary emergencies, including wartime, Section 8568 of the Act states, in part,
that "the State Emergency Plan shall be in effect in each political subdivision of the
state, and the governing body of each political subdivision shall take such action as may
be necessary to carry out the provisions thereof'. Local emergency plans are,
therefore, considered to be extensions of the California Emergency Plan.
EMERGENCY PROCLAMATIONS
Local Emergency
A Local Emergency may be proclaimed by the City Council or by the City Manager as
specified by ordinance adopted by the City Council. A Local Emergency proclaimed by
the City Manager must be ratified by the City Council within seven days. The governing
body must review the need to continue the proclamation at least every twenty one days
until the Local Emergency is terminated. The Local Emergency must be terminated by
resolution as soon as conditions warrant. Proclamations are normally made when there
is an actual incident or threat of disaster or extreme peril to the safety of persons and
property within the city, caused by natural or man-made situations.
The proclamation of a Local Emergency provides the governing body with the legal
authority to:
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y If necessary, request that the Governor proclaim a State of Emergency and/or
request a Presidential declaration.
Promulgate or suspend orders and regulations necessary to provide for the
protection of life and property, including issuing orders or regulations imposing a
curfew within designated boundaries.
• Exercise full power to provide mutual aid to any affected area in accordance with
local ordinances, resolutions, emergency plans, or agreements.
• Request state agencies and other jurisdictions to provide mutual aid.
Require the emergency services of any local official or employee.
Requisition necessary personnel and materials from any local department or
agency.
• Obtain vital supplies and equipment and, if required, immediately commandeer the
same for public use.
• Impose penalties for violation of lawful orders.
• Conduct emergency operations without incurring legal liability for performance, or
failure of performance. (Note: Article 17 of the Emergency Services Act provides
for certain privileges and immunities.)
State of Emergency
A State of Emergency may be proclaimed by the Governor when:
• Conditions of disaster or extreme peril exist which threaten the safety of persons
and property within the state caused by natural or man-made incidents.
• He is requested to do so by local authorities.
• He finds that local authority is inadequate to cope with the emergency.
Whenever the Governor proclaims a State of Emergency:
• Mutual aid shall be rendered in accordance with approved emergency plans when
the need arises in any county, city and county, or city for outside assistance.
• The Governor shall, to the extent he deems necessary, have the right to exercise
all police power vested in the state by the Constitution and the laws of the State of
California within the designated area.
• Jurisdictions may command the aid of citizens as deemed necessary to cope with
an emergency.
• The Governor may suspend the provisions of orders, rules or regulations of any
state agency; and any regulatory statute or statute prescribing the procedure for
conducting state business.
• The Governor may commandeer or make use of any private property or personnel
(other than the media) in carrying out the responsibilities of his office.
• The Governor may promulgate, issue and enforce orders and regulations deemed
necessary.
City of Palm Springs Part One - 24
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
State of War Emergency
Whenever the Governor proclaims a State of War Emergency, or if a State of War
Emergency exists, all provisions associated with a State of Emergency apply, plus:
• All state agencies and political subdivisions are required to comply with the lawful
orders and regulations of the Governor which are made or given within the limits of
his authority as provided for in the Emergency Services Act.
AUTHORITIES
The following provides emergency authorities for conducting and/or supporting
emergency operations:
Federal
Robert T. Stafford Disaster Relief and Emergency Assistance Act of 1988 (Public Law
93-288, as amended).
Federal Civil Defense Act of 1950 (Public Law 920), as amended.
NRT-1, Hazardous Materials Emergency Planning Guide and NRT-1A Plan Review
Guide (Environmental Protection Agency's National Response Team).
State
Standardized Emergency Management System (SEMS) Regulations (Chapter 1 of
Division 2 of Title 19 of the California Code of Regulations) and (Government Code
Section 8607(a).
Standardized Emergency Management System (SEMS) Guidelines.
California Emergency Services Act (Chapter 7 of Division 1 of Title 2 of the Government
Code).
"Good Samaritan" Liability
California Emergency Plan.
California Natural Disaster Assistance Act (Chapter 7.5 of Division 1 of Title 2 of the
Government Code).
California Hazardous Materials Incident Contingency Plan.
California Health and Safety Code, Division 20, Chapter 6.5, Sections 25115 and
25117, Chapter 6.95, Sections 2550 et seq., Chapter 7, Sections 25600 through 25610,
dealing with hazardous materials.
Orders and Regulations which may be Selectively Promulgated by the Governor during
a State of Emergency.
City of Palm Springs Part One -25
►.,A �P y
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
Orders and Regulations Promulgated by the Governor to Take Effect upon the
Existence of a State of War Emergency.
California Master Mutual Aid Agreement, September 1975
Local
City of Palm Springs's Emergency Services Ordinance No. 2.20 adopted June, 1984 by
the City Council.
y p g ofution_No adopting;.!the, SEMS rMultihazard Functional
Git of PaIrn S riri s Res;,
Plan (__0Q), adQptad
Resolution No. 20378 adopting Workmen's Compensation Benefits for Disaster Service
Workers, adopted June 19, 2002.
City of Palm Springs Resolution No. 16499, Palm Springs Fire Department Wildland
Fire Resource Authorization, June 15, 1988.
City of Palm Springs and City of Cathedral City Automatic Aid, Minute Order 4143,
March 16, 1988.
City of Palm Springs and the Bureau of Indian Affairs Assistance Agreement, Minute
Order 4044, 5036 dated October 21, 1987 and July 15, 1992 respectively.
City of Palm Springs and the USDI Bureau of Land Management Agreement 2506,
dated October 21, 1987, Minute Order 4044.
City of Palm Springs and the United States Forest Service Cooperative Agreement,
dated April 4, 1984, Resolution No. 14990.
City of Palm Springs and Riverside County Fire Department Automatic Aid adopted
September 6,1978, Resolution No. 12757.
Riverside County Operational Area Organization Agreement adopted December 1995.
Riverside County Multi-Agency Coordination System, December 1996.
Riverside County Hazardous Material Area Plan.
Riverside County Multihazard Functional Plan adopted ------------.
REFERENCES
Federal Response Plan (FEMA).
Disaster Assistance Procedure Manual (State OES).
California Emergency Resources Management Plan.
California Master Mutual Aid Agreement.
City of Palm Springs Part One - 26
w 0'
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
Disaster Assistance Procedure Manual (State OES).
California Emergency Resources Management Plan.
California Master Mutual Aid Agreement.
California Law Enforcement Mutual Aid Plan.
California Fire and Rescue Operations Plan.
City of Palm Springs Part One - 27
/aA3 9
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
Page intended to be blank.
City of Palm Springs Part One - 28
"�D
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
SECTION THREE
MUTUAL AID
INTRODUCTION
The foundation of California's emergency planning and response is a statewide mutual
aid system which is designed to ensure that adequate resources, facilities and other
support is provided to jurisdictions whenever their own resources prove to be
inadequate to cope with a given situation(s). The basis for the system is the California
Disaster and Civil Defense Master Mutual Aid Agreement, as provided for in the
California Emergency Services Act. This Agreement was developed in 1950 and has
been adopted by the state, all 58 counties and most incorporated cities in the State of
California. The Master Mutual Aid Agreement creates a formal structure wherein each
jurisdiction retains control of its own facilities, personnel and resources, but may also
receive or render assistance to other jurisdictions within the state. State government is
obligated to provide available resources to assist local jurisdictions in emergencies. It is
the responsibility of the local jurisdiction to negotiate, coordinate and prepare mutual aid
agreements. Mutual aid agreements exist in law enforcement, fire services, building and
safety, medical and public works and emergency managers (EMMA).
MUTUAL AID SYSTEM
A statewide mutual aid system, operating within the framework of the Master Mutual Aid
Agreement,allows for the progressive mobilization of resources to and from emergency
response agencies, local governments, operational areas, regions and state with the
intent to provide requesting agencies with adequate resources. The general flow of
mutual aid resource requests and resources within mutual aid systems are• depicted in
the diagram in Chart 1.
The statewide mutual aid system includes several discipline-specific mutual aid
systems, such as fire and rescue, law, medical and public works. The adoption of
SEMS does not alter existing mutual aid systems. These systems work through local
government, operational area, regional and state levels consistent with SEMS.
Mutual aid may also be obtained from other states. Interstate mutual aid may be
obtained through direct state-to-state contacts, pursuant to interstate agreements and
compacts, or may be coordinated through federal agencies.
MUTUAL AID REGIONS
Mutual aid regions are established under the Emergency Services Act by the Governor.
Six mutual aid regions numbered I-VI have been established within California. The City
of Palm Springs is within Region VI. Each mutual aid region consists of designated
counties. Region VI is in the OES Southern Administrative Region. (See Chart 3)
City of Palm Springs Part One -29
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
MUTUAL AID COORDINATORS
To facilitate mutual aid, discipline-specific mutual aid systems work through designated
mutual aid coordinators at the operational area, regional and state levels. The basic
role of a mutual aid coordinator is to receive mutual aid requests, coordinate the
provision of resources from within the coordinator's geographic area of responsibility
and pass on unfilled requests to the next level.
Mutual aid requests that do not fall into one of the discipline-specific mutual aid systems
are handled through the emergency services mutual aid system by emergency
management staff at the local government, operational area, regional and state levels.
The flow of resource requests and information among mutual aid coordinators is
illustrated in Chart 2.
Mutual aid coordinators may function from an EOC, their normal departmental location
or other locations depending on the circumstances. Some incidents require mutual aid
but do not necessitate activation of the affected local government or operational area
EOCs because of the incident's limited impacts. In such cases, mutual aid coordinators
typically handle requests from their normal work location. When EOCs are activated, all
activated discipline-specific mutual aid systems should establish coordination and
communications with the EOCs:
• When an operational area EOC is activated, operational area mutual aid system
representatives should be at the operational area EOC to facilitate coordination and
information flow.
• When an OES regional EOC (REOC) is activated, regional mutual aid coordinators
should have representatives in the REOC unless it is mutually agreed that effective
coordination can be accomplished through telecommunications. State agencies
may be requested to send representatives to the REOC to assist OES regional staff
in handling mutual aid requests for disciplines or functions that do not have
designated mutual aid coordinators.
• When the State Operations Center (SOC) is activated, state agencies with mutual
aid coordination responsibilities will be requested_ to send representatives to the
SOC.
Mutual aid system representatives at an EOC may be located in various functional
elements (sections, branches, groups or units) or serve as an agency representative,
depending on how the EOC is organized and the extent to which it is activated.
PARTICIPATION OF VOLUNTEER AND PRIVATE AGENCIES
Volunteer agencies and private agencies may participate in the mutual aid system along
with governmental agencies. For example, the disaster medical mutual aid system
relies heavily on private sector involvement for medical/health resources. Some
volunteer agencies such as the American Red Cross, Salvation Army, Radio Amateur
Civil Emergency Services, Community Emergency Response Teams and others are an
City of Palm Springs Part One -30
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
essential element of the statewide emergency response to meet the needs of disaster
victims. Volunteer agencies mobilize volunteers and other resources through their own
systems. They also may identify resource needs that are not met within their own
systems that would be requested through the mutual aid system. Volunteer agencies
with extensive involvement in the emergency response should be represented in EOCs.
Some private agencies have established mutual aid arrangements to assist other
private agencies within their functional area. For example, electric and gas utilities have
mutual aid agreements within their industry and established procedures for coordinating
with governmental EOCs. In some functional areas, services are provided by a mix of
special district, municipal and private agencies. Mutual aid arrangements may include
both governmental and private agencies.
Liaison should be established between activated EOCs and private agencies involved in .
a response. Where there is a need for extensive coordination and information
exchange, private agencies should be represented in activated EOCs at the appropriate
SEMS level.
EMERGENCY FACILITIES USED FOR MUTUAL AID
Incoming mutual aid resources may be received and processed at several types of
facilities including; marshaling areas, mobilization centers and incident facilities. Each
type of facility is described briefly below.
Marshaling Area: Defined in the Federal Response Plan as an area used for the
complete assemblage of personnel and other resources prior to their being sent directly
to the disaster affected area. Marshaling areas may be established in other states for a
catastrophic California earthquake.
Mobilization Center: Off-incident location at which emergency service personnel
and equipment are temporarily located pending assignment, release or reassignment.
For major area-wide disasters, mobilization centers may be located in or on the
periphery of the disaster area.
Incident Facilities/Staging Areas: Incoming resources may be sent to staging
areas, other incident facilities or directly to an incident, depending on the circumstances.
Staging areas are temporary locations at an incident where personnel and equipment
are kept while awaiting tactical assignments.
POLICIES AND PROCEDURES
• Mutual aid resources will be provided and utilized in accordance with the California
Master Mutual Aid Agreement.
• During a proclaimed emergency, inter-jurisdictional mutual aid will be coordinated at
the county, operational area or mutual aid regional level.
• Because different radio frequencies are in use among most agencies, local
agencies should provide incoming mutual aid forces with portable radios having
local frequencies.
City of Palm Springs Part One - 31
/�Iq y3
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
• The City of Palm Springs will make mutual aid requests through the Riverside -
County Operational Area via the City EOC or the Police/Fire Communications
Center. Requests should specify, at a minimum:
• Number and type of personnel needed.
• Type and amount of equipment needed.
• Reporting time and location.
• Authority to whom forces should report.
• Access routes.
• Estimated duration of operations.
• Risks and hazards.
AUTHORITIES AND REFERENCES
Mutual aid assistance may be provided under one or more of the following authorities:
• California Master Mutual Aid Agreement.
• California Fire and Rescue Emergency Plan.
• California Fire Assistance Agreement 2002-2006
• California Law Enforcement Mutual Aid Plan.
• Robert T. Stafford Disaster Relief and Emergency Assistance Act (Public Law
93-288, as amended)-provides federal support to state and local disaster
activities.
City of Palm Springs Part One - 32
�D14 All
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
Chart 1
MUTUAL AID SYSTEM FLOW CHART
Mutual Aid System Concept:
General Flow of Requests and Resources
STATE STATE
AGENCIES
Other
REGIONS
REGION STATE AGENCIES OPERATIONAL
AREAS
Unaffected
OPERATIONAL
AREAS LOCAL LOCAL
GOVERNMENTS GOVERNMENTS
in CA in CA
OPERATIONAL
AREA Unaffected
LOCAL
GOVERNMENTS
in Op.Area
Affected
LOCAL
GOVERNMENTS
Resource Requests
CA - Operational Area
City of Palm Springs Part One - 33
/DA 10
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
Chart 2
MUTUAL AID COORDINATORS FLOW CHART
Mutual Aid Coordinators:
General Flow of Resource Requests and Information
Discipline-specific Mutual Aid Systems
SEMS Emergency Fire&Rescue Law Disaster Other Systems
Enforcement Medical/Health
LEVEL Services System System System as developed
I
r
STATE
Chief, Law Disaster
Fire& Enforcement Medical/ Functional
Rescue Coordinator Health Coordinator
Coordinator Coordinator
al
rator
REGIONALFire& Law Disaster
} Rescue Enforcement Medical/ Functional
Coordinator Coordinator Health Coordinator
Coordinator
ncyentOPERATIONALAREAFire& Law Disaster
Rescue Enforcement Medical/ Functional
Coordinator Coordinator Health Coordinator
Coordinator
ncyentLOCAL
GOVERNMENT
Law Disaster Functional
Fire Chief Enforcement Medical Coordinator
Coordinator Coordinator
Resource Requests
Information Flow&
Coordination
City of Palm Springs Part One- 34
�aA��
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
CHART 3
STATE MUTUAL AID REGION MAP
DES
CALIFORNIA
01! 1
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City of Palm Springs Part One - 35
/n A �7
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
Page intended to be blank.
City of Palm Springs Part One - 36
/O/4rV�
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
SECTION FOUR
THREAT SUMMARY FOR CITY OF PALM SPRINGS
This section of the Basic Plan (Part One) consists of a series of threat summaries based
on the City of Palm Springs's hazard analysis. This hazard analysis study was
conducted in 1996 by the City's Emergency Services Coordinator. The purpose is to
describe the area at risk and the anticipated nature of the situation, which could result
should the event threaten or occur.
Geographic Characteristics, population at risk to each identified hazard, and
potential hazard considerations on which the plan is based: The City of Palm
Springs is located within Riverside County Region VI Southern Administrative Region
of State Office of Emergency Services. It is located in the Coachella Valley in eastern
Riverside County. It has a residential population of approximately 42,807 (census 2000)
and a seasonal population of up to 100,000 residents and guests. Palm Springs
consists of 96.2 square miles and is approximately 33% residential and
commercial/industrial. The remaining 60 square miles (66%) is undeveloped land,
The City has a major hospital (Desert Regional Medical Center). The Medical Center is
a 393-bed full service acute care facility that includes a Level II trauma center. There
are four full service elementary schools, one Middle School, one High School and one
alternative school within the City of Palm Springs that are administered by the Palm
Springs Unified School District. The city has a regional airport (Palm Springs
International Airport), numerous large and small hotels, shopping centers and
commercial/industrial zones. Interstate 10 and State Hwy. 111 traverse the City as well
as several main arterial roadways.
• An earthquake could impact major segments of, or the total population.
• Many major highways (and rail lines) traverse or pass near the City and
transportation incidents (including hazardous material incidents) as well as
pipeline ruptures or illegal dumping could affect the City. The City has some
industry and faces the potential for hazardous materials incidents from the
stationary hazardous materials users as well.
• Many areas of the City may be subject to flooding, due to flash flooding, urban
flooding (storm drain failure/infrastructure breakdown), river channel overflow,
downstream flooding, etc.) The City has historically been vulnerable to tropical
storms and severe winter storms.
• A transportation incident such as a major air crash, train derailment or trucking
incident could impact areas within the City.
• A civil unrest incident could impact areas within the City or the entire City.
• The entire Coachella Valley is considered as a risk area for a nuclear event or
act of terrorism; therefore both sheltering and evacuation should be considered.
Neither the City nor the County of Riverside has the capability to plan for the
City of Palm Springs Part One - 37
ohd/ f
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
organized evacuation of the valley therefore, the extent of planning at this time is
restricted to assisting and expediting spontaneous evacuation. In the increased
readiness stage, expedient shelters will be utilized as appropriate and
information will be provided to the public as the City no longer maintains public
fallout shelters.
• The City of Palm Springs is not within the planned range of a radioactive plume
of a nuclear power plant.
Any single incident or a combination of events could require evacuation and/or
sheltering of the population.
The City has its own police and fire departments and also relies on a local volunteer
organizations for assistance in emergency response, communications, and other
necessary emergency services.
City staff has been designated to coordinate all SEMS functions. Although City
personnel has been designated to coordinate all SEMS functions, City staff may be
insufficient to conduct the tasks, and the City will therefore rely on assistance from
volunteers.
During the response phase, the City EOC or Police/Fire Communications Center is the
coordination and communication point to the Riverside County Operational Area.
The following threat assessments identify and summarize the hazards that could impact
the City of Palm Springs.
Threat Assessment 1 - Major Earthquake
Attachment 1 - Fault Map
Attachment 2 - Modified Mercalli Scale
Attachment 3 - Richter Scale
Threat Assessment 2 - Hazardous Materials
Threat Assessment 3 - Flooding
Threat Assessment 4 - Major Fire/Wildland Fire
Threat Assessment 5 - Transportation
A. Major Air Crash
B. Train Derailment
C. Major Highway Incident
Threat Assessment 6 - Civil Unrest
City of Palm Springs Part One -38
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
Threat Assessment 7 - Terrorism
Threat Assessment 8 - National Security Emergency
Threat Assessment 9 - Landslide
City of Palm Springs Part One - 39
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
City of Palm Springs - MAP
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City of Palm Springs Part One- 40
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
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City of Palm Springs Part One - 41
PAX if3
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
• The City of Palm Springs will make mutual aid requests through the Riverside
County Operational Area via the City EOC or the Police/Fire Communications
Center. Requests should specify, at a minimum:
• Number and type of personnel needed.
• Type and amount of equipment needed.
• Reporting time and location.
• Authority to whom forces should report.
• Access routes.
• Estimated duration of operations.
• Risks and hazards.
AUTHORITIES AND REFERENCES
Mutual aid assistance may be provided under one or more of the following authorities:
• California Master Mutual Aid Agreement.
• California Fire and Rescue Emergency Plan.
• California Fire Assistance.Agreement 2002-2006
• California Law Enforcement Mutual Aid Plan.
• Robert T. Stafford Disaster Relief and Emergency Assistance Act (Public Law
93-288, as amended)-provides federal support to state and local disaster
activities.
City of Palm Springs Part One - 32
ooASN
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
Chart 1
MUTUAL AID SYSTEM FLOW CHART
Mutual Aid System Concept:
General Flow of Requests and Resources
H
I STATE
AGENCIES
Other
REGIONS
REGION STATE AGENCIES OPERATIONAL
AREAS
Unaffected
OPERATIONAL
AREAS LOCAL LOCAL
GOVERNMENTS GOVERNMENTS
In CA in CA
OPERATIONAL
AREA Unaffected
LOCAL
GOVERNMENTS
In Op.Area
Affected
LOCAL
GOVERNMENTS w ,
Resource Requests
CA - Operational Area
City of Palm Springs Part One - 33
10 A ��
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
Chart 2
MUTUAL AID COORDINATORS FLOW CHART
Mutual Aid Coordinators:
General Flow of Resource Requests and Information
Discipline-specific Mutual Aid Systems
SEMS Emergency Fire&Rescue Law Disaster Other Systems
Enforcement Medical/Health
LEVEL Services System System System as developed
I
or
STATE
Chief, Law Disaster
Fire& Enforcement Medical/ Functional
Rescue Coordinator Health Coordinator
Coordinator Coordinator
al
rator
REGIONALFire& Law Disaster
'} Rescue Enforcement Medical/ Functional
Coordinator Coordinator Health Coordinator
Coordinator
ncyentOPERATIONALAREAFire& Law Disaster
Rescue Enforcement Medical/ Functional
Coordinator Coordinator Health Coordinator
Coordinator
ncyentLOCAL
GOVERNMENT
Law Disaster Functional
Fire Chief Enforcement Medical Coordinator
Coordinator Coordinator
Resource Requests
Information Flow &
Coordination
City of Palm Springs Part One -34
1aAs10
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
CHART 3
STATE MUTUAL AID REGION MAP
U E ,S'
CALIFORNIA
RDGI°MYW M°°°C
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City of Palm Springs Part One - 35
�r► gS9
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
s
Page intended to be blank.
City of Palm Springs Part One - 36
/D jgof
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
SECTION FOUR
THREAT SUMMARY FOR CITY OF PALM SPRINGS
This section of the Basic Plan (Part One) consists of a series of threat summaries based
on the City of Palm Springs's hazard analysis. This hazard analysis study was
conducted in 1996 by the City's Emergency Services Coordinator. The purpose is to
describe the area at risk and the anticipated nature of the situation, which could result
should the event threaten or occur.
Geographic Characteristics, population at risk to each identified hazard, and
potential hazard considerations on which the plan is based: The City of Palm
Springs is located within Riverside County Region VI Southern Administrative Region
of State Office of Emergency Services. It is located in the Coachella Valley in eastern
Riverside County. It has a residential population of approximately 42,807 (census 2000)
and a seasonal population of up to 100,000 residents and guests. Palm Springs
consists of 96.2 square miles and is approximately 33% residential and
commercial/industrial. The remaining 60 square miles (66%) is undeveloped land,
The City has a major hospital (Desert Regional Medical Center). The Medical Center is
a 393-bed full service acute care facility that includes a Level II trauma center. There
are four full service elementary schools, one Middle School, one High School and one
alternative school within the City of Palm Springs that are administered by the Palm
Springs Unified School District. The city has a regional airport (Palm Springs
International Airport), numerous large and small hotels, shopping centers and
commercial/industrial zones. Interstate 10 and State Hwy. 111 traverse the City as well
as several main arterial roadways.
• An earthquake could impact major segments of, or the total population.
• Many major highways (and rail lines) traverse or pass near the City and
transportation incidents (including hazardous material incidents) as well as
pipeline ruptures or illegal dumping could affect the City. The City has some
industry and faces the potential for hazardous materials incidents from the
stationary hazardous materials users as well.
• Many areas of the City may be subject to flooding, due to flash flooding, urban
flooding (storm drain failure/infrastructure breakdown), river channel overflow,
downstream flooding, etc.) The City has historically been vulnerable to tropical
storms and severe winter storms.
• A transportation incident such as a major air crash, train derailment or trucking
incident could impact areas within the City.
• A civil unrest incident could impact areas within the City or the entire City.
• The entire Coachella Valley is considered as a risk area for a nuclear event or
act of terrorism; therefore both sheltering and evacuation should be considered.
Neither the City nor the County of Riverside has the capability to plan for the
City of Palm Springs Part One -37
ip A�9
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
organized evacuation of the valley therefore, the extent of planning at this time is
restricted to assisting and expediting spontaneous evacuation. In the increased
readiness stage, expedient shelters will be utilized as appropriate and
information will be provided to the public as the City no longer maintains public
fallout shelters.
• The City of Palm Springs is not within the planned range of a radioactive plume
of a nuclear power plant.
Any single incident or a combination of events could require evacuation and/or
sheltering of the population.
The City has its own police and fire departments and also relies on a local volunteer
organizations for assistance in emergency response, communications, and other .
necessary emergency services.
City staff has been designated to coordinate all SEMS functions. Although City
personnel has been designated to coordinate all SEMS functions, City staff may be
insufficient to conduct the tasks, and the City will therefore rely on assistance from
volunteers.
During the response phase, the City EOC or Police/Fire Communications Center is the
coordination and communication point to the Riverside County Operational Area.
The following threat assessments identify and summarize the hazards that could impact
the City of Palm Springs.
Threat Assessment 1 - Major Earthquake
Attachment 1 - Fault Map
Attachment 2 - Modified Mercalli Scale
Attachment 3 - Richter Scale
Threat Assessment 2 - Hazardous Materials
Threat Assessment 3 - Flooding
Threat Assessment 4 - Major Fire/Wildland Fire
Threat Assessment 5 - Transportation
A. Major Air Crash
B. Train Derailment
C. Major Highway Incident
Threat Assessment 6 - Civil Unrest
City of Palm Springs Part One - 38
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
Threat Assessment 7 - Terrorism
Threat Assessment 8 - National Security Emergency
Threat Assessment 9 - Landslide
City of Palm Springs Part One - 39
/ViV/
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
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City of Palm Springs Part One - 41
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
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City of Palm Springs Part One - 42
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
THREAT ASSESSMENT 1
MAJOR EARTHQUAKE
GENERAL SITUATION
The City of Palm Springs is in the vicinity of several known active and potentially active
earthquake faults including the San Andreas, the San Jacinto, and the Elsinore faults
(see Attachment 1, map). New faults within the region are continuously being
discovered. The January 17, 1994 magnitude 6.7 Northridge Earthquake (thrust fault)
which produced severe ground motions, caused 57 deaths, 9,253 injuries and left over ,
20,000 displaced. Scientists have stated that such devastating shaking should be
considered the norm near any large thrust earthquake.
Recent reports from scientists of the U.S. Geological Survey and the Southern
California Earthquake Center say that the Coachella Valley has a 20% chance of a 8.0
or more magnitude earthquake in the foreseeable future (30 years).
A major earthquake occurring in or near this jurisdiction may cause many deaths and
casualties, extensive property damage, fires and hazardous material spills and other
ensuing hazards. The effects could be aggravated by aftershocks and by the
secondary affects of fire, hazardous material/chemical accidents and possible failure of
the waterways and dams. The time of day and season of the year would have a
profound effect on the number of dead and injured and the amount of property damage
sustained. Such an earthquake would be catastrophic in its affect upon the population
and could exceed the response capabilities of the individual cities, Riverside County
Operational Area and the State of California Emergency Services. Damage control and
disaster relief support would be required from other local governmental and private
organizations, and from the state and federal governments.
Extensive search and rescue operations would be required to assist trapped or injured
persons. Emergency medical care, food and temporary shelter could be required by
injured or displaced persons. Identification and burial of many dead persons could pose
difficult problems; public health would be a major concern. Mass evacuation may be
essential to save live downwind from hazardous material releases. Many families would
be separated particularly if the earthquake should occur during working hours, and a
personal inquiry or locator system could be essential to maintain morale. Emergency
operations could be seriously hampered by the loss of communications and damage to
transportation routes within, and to and from, the disaster area and by the disruption of
public utilities and services.
The economic impact on the City of Palm Springs from a major earthquake would be
considerable in terms of loss of employment and loss of tax base. Also, a major
earthquake could cause serious damage and/or outage of computer facilities. The loss
City of Palm Springs Part One -43
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
of such facilities could curtail or seriously disrupt the operations of banks, insurance
companies and other elements of the financial community. In turn, this could affect the
ability of local government, business and the population to make payments and
purchases.
SPECIFIC SITUATION
General
Palm Springs shares many of the hazards associated with earthquake faults in
Southern California. More recent studies of the eastern knot of the San Andreas near
San Gorgonio Pass, reveal that this area is more advanced in the cycle of strain
accumulation than the western knot at the Cajon Pass. A growing body of geologic
evidence suggests that the south-central segment of the San Andreas fault is ruptured
repeatedly by a characteristically large event such as the 1857 Fort Tejon earthquake,
Richter magnitude 7.9.
Recent earthquake activity around the southern San Andreas, including the June, 1992
Landers-Big Bear quakes, have prompted scientists to increase their studies of this
area. The San Andreas Fault represents the greatest threat to Palm Springs.
However, the San Jacinto Fault also represents a significant threat to the City and
should not be discounted.
An 8.0 or greater earthquake here in Riverside County on the San Gorgonio Fault to the
Salton Sea segment, could cause thousands of casualties, extensive major property
damage, disruption in communication, utility services, supply and distribution systems
and general panic. It could be aggravated by aftershocks and landslides, fires,
hazardous material spills and explosions. An earthquake of this magnitude could
directly affect all of Riverside County and most of southern California, causing a critical
demand on mutual aid resources and competition for national relief.
Ground Shaking
The most significant earthquake action in terms of potential structural damage and loss
of life is ground shaking. Ground shaking is the movement of the earth's surface in
response to a seismic event. The intensity of the ground shaking and the resultant
damages are determined by the magnitude of the earthquake, distance from the
epicenter, and characteristics of surface geology. This hazard is the primary cause of
the collapse of buildings and other structures.
It is generally understood that an earthquake does not in itself present a seismic hazard,
but that it becomes a hazard when it occurs in a highly urbanized area. Therefore, the
significance of an earthquake's ground shaking action is directly related to the density
and type of buildings and number of people exposed to its effect.
City of Palm Springs Part One -44
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
Liquefaction
Many areas may have buildings destroyed or unusable due to the phenomenon of
liquefaction. Liquefaction is a phenomenon involving the loss of shear strength of a soil.
The shear strength loss results from the increase of poor water pressure caused by the
rearrangement of soil particles induced by shaking or vibration. Liquefaction has been
observed in many earthquakes, usually in soft, poorly graded granular materials (i.e.,
loose sands), with high water tables. Liquefaction usually occurs in the soil during or
shortly after a large earthquake. In effect, the liquefaction soil strata behave as a heavy
fluid. Buried tanks may float to the surface and objects above the liquefaction strata
may sink. Pipelines passing through liquefaction materials typically sustain a relatively
large number of breaks in an earthquake. In Palm Springs the Spa Hotel and some
areas downtown may be susceptible to the effects of liquefaction.
DAMAGE TO VITAL PUBLIC SERVICES, SYSTEMS AND FACILITIES
Bed Loss in Hospitals
Palm Springs has one major medical facility: Desert Regional Medical Center. Public
service agencies and volunteer personnel would be used to assist in the care of the
injured.
Several of the acute care hospitals in Riverside County may be lost due to structural
damage. This will impair the number of,beds available and create the need for several
field hospitals. Most of the subscribing hospitals to the Riverside County Department of
Health will be controlled by the Department as to the availability of beds and transfer of
patients.
Although a percentage of the remaining beds could be made available by discharging or
transferring non-emergency patients, it will probably be necessary to receive an
immediate influx of emergency medical aid and/or export some of the seriously injured
to out-of-county facilities.
Communications - Telephone System
Telephone communication systems may fail due to physical damage of equipment,
facilities and support utilities. Circuits could be overloaded by telephone receivers being
knocked off their cradles and/or individuals trying to call in and out of the area. There
may be an immediate telephone communications blackout following the earthquake,
with partial communications being restored after the first 24 to 72 hours. 9-1-1 may also
be disrupted.
The commercial carriers will institute network control procedures to regain control of the
situation as quickly as possible. Priorities have been assigned to all critical circuits
transiting the key facilities, based on established criteria. Through the EOC staff,
City of Palm Springs Part One -45
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
Verizon has granted "priority" restoration of phone service to key city phone systems
and key city officials home residences.
Radio Systems
Most 2-way radio communications systems consists of a source of power, an antenna,
and a radio. Emergency power failures have been the primary cause of
communications shortfalls in past disasters. The presumed scarcity of propane and
gasoline after this earthquake will strictly limit the viability of surviving communications
sites, since these are the primary fuels for backup generators.
Frequent maintenance of equipment in installations according to approved seismic
specifications could reduce the failure potential. Developing alternate power sources
such as wind, solar and/or battery banks, could extend operating capabilities with a
reduction in fuel consumption.
Earthquake movement has little effect on properly installed antenna systems. Most
failures are due to the failure of the building or structure supporting the antenna.
Repeaters, used to extend the antenna's range, are positioned on mountain tops.
Antennas and related structures are expected to remain about 70% viable. Mobile
relays may be 60% effective and microwave systems 30% or less.
Agencies and organizations relying upon microwave repeaters should develop back-up
communication capabilities. The Riverside County Fire Department for example,
recognized that a fraction of an inch shift in a microwave's alignment could disrupt
communications capability with the eastern half of the County. It is now establishing an
alternate dispatch center in the Coachella Valley.
Solid state electronics has produced communication devices which are small,
lightweight and dependable. The amount of damage they sustain will depend on their
location and how well they are secured. Fixed 2-way public radio systems are expected
to operate at about 40% effectiveness for the first 12 hours following a major
earthquake.
R.A.C.E.S. may be called upon to provide support communications. However,
circumstances may limited them to a 50% response of their registered members.
Commercial Broadcasters
Palm Springs has commercial TV and commercial radio broadcasters within its city
limits. These broadcasters provide the majority of the Coachella Valley with television
and radio services.
Following the earthquake, local media will be limited by the disruption of public utilities
and damage to their facilities. Radio broadcasts from structurally intact stations may be
transmitted using tapes and scripts prepared in advance. Subsequent transmission of
City of Palm Springs Part One - 46
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
information will be done using the Emergency Alert System (EAS). Even though most
of the public will be relying on battery powered (including car radios), the EAS will play a
key role in disseminating information.
Dam and Flood Control Channels
Palm Springs has no dams or reservoirs within its city limits. Seasonal flooding with
failure of the White Water Channel could cause flooding of golf courses, hotels, and
homes located adjacent to the flood channels. With major disruptions in power and
communications systems, warning may not be received to initiate an organized
evacuation or broadcast warnings via emergency radio stations. If a credible prediction
was initialed, then preparation for a damaging earthquake could begin and residents
and business owners, within flood areas could be directed to assembly areas and stay
there to wait for official word regarding their safe reentry. This method of direction and
control could substantially reduce potential loss of life, if enough warning is available.
Landslides
Landslides may constitute a life safety hazard on or near the base of the San Jacinto
Mountain and in the southern hills and canyons south of the City. Landslides may also
occur during aftershocks in areas already weakened by the first shock. Large boulders
and/or soft soil could be jarred loose. Secondary health problems due to resulting high
concentrations of dust could cause problems for victims and rescue workers.
Electrical Power
Major power plants are expected to sustain some damage due to liquefaction and the
intensity of the earthquake. Up to 60% of the system load may be interrupted
immediately following the initial shock. According to representatives of Southern
California Edison Company, the electrical power will not be rerouted and will be lost for
an undefined period of time. Much of the imported power is expected to be lost. In
some areas of greatest shaking it should be anticipated that some of the distribution
lines, both underground and surface, will be damaged. Much of the affected area may
have service restored in days; damaged areas with underground distribution may
require a longer time. Loss of Southern California Edison transmission lines is possible.
Fire Operations
Although total collapse of fire stations is not expected, possible disruption of utilities,
twisted doors and loss of power can create major problems. Numerous fires due to
disruption of power and natural gas networks can be expected. The area's water supply
may be greatly impacted. Connections to major water sources, water mains and
storage facilities may be damaged resulting in an unstable water supply for Fire and
Rescue Operations. Fire and Rescue personnel will need to complete a preliminary
assessment to determine and establish response and recovery needs. In addition, Fire
City of Palm Springs Part One-47
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
and Rescue Operations may take days because of the disruption to the transportation
corridors. The movement of department personnel and equipment may be very difficult.
Secondary responses by the fire service after assessment will be to accomplish search
and rescue of trapped persons. Major problems the Fire Service should expect are loss
of power and water, jammed doors, restricted mobility due to debris, possible loss of
primary dispatch capability and delays in reaching maximum effectiveness due to
personnel shortages.
Highways and Bridges
Palm Springs is located south of a major overland access route. Interstate 10, the
principal east-west freeway extends from the Arizona border to the San Bernardino
County line northwest of Beaumont. This 150 mile stretch consists of primarily divided
multi-lane traffic with many overpasses and bridges.
The San Andreas fault crosses 1-10 just east of Indio in the Coachella Valley and could
severely limit access to the City.
Most of the lengths are unpopulated with bridge and overpass collapse capable of
isolating vehicle occupants in the and desert regions of the Coachella Valley. Road
buckling could cause traffic accidents, if not anticipated, including vehicles transporting
hazardous materials. Freeway off and on ramps remaining intact may provide limited
access and egress to portions of the system.
Other major transport routes and streets in Palm Springs are vulnerable to minor and
moderate structural damage. Flooding and sewage discharge could cause some
streets and Highway 111 to be impassable. Falling rocks along Hwy 111, trees, utility
lines and poles, could not only block traffic, but damage vehicles and injure occupants.
In areas with multi-story buildings, transportation access will be determined by the
amount of building debris landing in the roadways and the width of the streets.
Effectiveness of road clearance operations will be determined by the access and
availability of equipment to the problem areas, the availability of and access to fuel and
maintenance, and the ability to communicate with and mobilize crews to staging
locations. Palm Springs lacks sufficient resources to clear anything other than the most
minor road blockage.
Natural Gas
Natural gas is supplied to the City through facilities of the Southern California Gas
Company. Analysis of the natural gas supply system can be considered in two phases:
bulk supply lines from out of state and local distribution via a network consisting of
underground storage and pumping stations.
City of Palm Springs Part One - 48
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
Imported supplies could be interrupted by damage where two 30 inch in diameter lines
cross the San Andreas in the San Gorgonio Pass. These transmission lines, running
the enter width of Riverside County and crossing all three major fault traces, provide
40% of the natural gas distributed throughout Southern California with the transmission
division headquarters located in Banning. Damage to these pipelines will necessitate
temporary dependence upon underground storage.
Many portable LPG tanks are not properly secured and even a minor tremor could
dislodge them. Once their connections are severed or if they become damaged, the
potential for fire and explosion are very high.
Petroleum Fuels
Most major pipelines cross the San Andreas Fault, and pipeline breakage is expected.
There is a possibility of fire where pipeline failures occur. Priorities will have to be
established to assure adequate fuel for emergency crews. Ruptures of numerous lines
due to fault breaks on the San Andreas are most likely. Fire is a serious threat if leaking
products are ignited and a considerable environmental concern if leaked into the
ground.
Two high pressure liquid gas lines run near the City's northern boundary parallel to the
railroad tracks. These lines are parallel to the San Andreas Fault, also. A rupture in
these lines could release up to 900,000 gallons of product. This is the approximate
capacity of product between the detector shutoff valves located near Banning and
Thousand Palms.
Railroads
Major rail transport lines near Palm Springs include the Southern Pacific, and Union
Pacific Railway Companies. Rails, cars, supporting bridges, overpasses, and
electrically operated switching mechanisms are susceptible to damage.
The Southern Pacific, a major Southern California supply route, enters the Coachella
Valley from Imperial County along the eastern shore of the Salton Sea. It follows
Highway 111 and then Interstate 10 through the Coachella Valley. Because of the close
proximity of the rail lines as they parallel almost the entire length of the San Andreas
Fault, particularly in the area near the City, extensive damage could occur. This may
include bent rails, overturned cars (including possible carriers of hazardous materials)
and damage to supporting structures.
Airports
There is one major airport in the Coachella Valley, Palm Springs International Airport.
The primary hazards at this site is damage to terminal, runways, air traffic control tower,
hangars, and fuel storage facilities.
City of Palm Springs Part One -49
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
Palm Springs International Airport runway is expected to remain operational, with
potential minor to moderate damage. Emergency actions may need to be taken to
control air space, prioritize use of available air transport, and restrict access to the
facility. Nearby Banning Airport is located in an area of anticipated high shaking
intensity with potential moderate to major damage expected.
In addition to Palm Springs International Airport, the area hosts other smaller airfields:
Thermal, Bermuda Dunes, Desert Center and Blythe Airports. Thermal Airport is
located in a high potential liquefaction area. Desert Center Airport is relatively isolated
in an area of sparse population to the east of the fault. Bermuda Dunes Airfield is
located close to the fault rupture zone, but is not within the liquefaction area. Blythe
Airport is sufficiently distant from the fault zones to experience little, if any damage.
Sanitation Systems
Palm Springs' sanitation services are provided by the city's waste water treatment
facility located on Mesquite Road near Demuth Park. This facility may be damaged and
operate in a limited capacity following a disaster.
Waste water supply and sewage lines, storage reservoirs pumping plants, treatment
ponds, treatment plants and solid and liquid waste disposal sites will sustain varying
degrees of damage depending on their location relative to the affected fault, soil
conditions and adequate facility design to withstand shaking.
Disruption of the sewage system will result in sewage flowing in some streets and
streams where human contact can result. Public notice in such cases will be important.
Overflow of sewage through manholes and from ponds can be expected due to breaks
in mains and loss of power. Gas mains will be broken, causing natural gas to migrate
into sewers. Rupture of underground gasoline storage tanks will result in infiltration of
gas into sewers. Consequently, there is the possible danger of the collection of
explosive gas in sewers and the flow of untreated sewage in some street gutters. Many
house connection sewers will break and plug, causing them to become inoperative.
Although extensive damage may affect the sewage collection system, the damage will
not be sufficient in most areas to significantly impair the system's ability to convey waste
water. This is because most of the system conveys by gravity.
Water Supply
In the event of a major earthquake, most water systems within the City will suffer some
damage. Water distribution pipelines vary from 2 inches to 54 inches or more in
diameter. Pipe materials vary from cast iron to welded steel and asbestos cement to a
variety of plastic materials. The damage to distribution pipelines is expected to vary
with pipe material, soil type slide conditions, degree of corrosion, design and installation
practices, and joint type. In local distribution lines of under twelve inches in diameter,
City of Palm Springs Part One - 50
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
there will be hundreds of breaks and thousands of leaks. Breaks in house service
connections will be common.
The Desert Water Agency has been proactive in installation "Earthquake" valves on it's
larger reservoirs to prevent an uncontrolled flow of water following a major earthquake.
Pumping plants are generally more compact structures and with the exception of related
electrical equipment and transformers, will probably not suffer as much damage as
distribution reservoirs. Large pumping plants will suffer damage closely related to
ground acceleration and to the soils on which they were constructed. Damage is
anticipated to be primarily related to pipeline rupture and transformer damage.
BUILDINGS
The following buildings will be considered:
1. Residential buildings
2. Schools and churches
3. Businesses and industrial facilities
4. Medical and custodial care facilities
5. Governmental buildings
6. Grocery stores
7. Hardware stores
8. Gas stations
9. Pharmacies
RESIDENTIAL BUILDINGS
Single family homes are expected to suffer some structural damage and loss of
contents, although not general collapse. Wood frame structures which have natural
flexibility will probably sustain less damage than brick and masonry. Many newer Palm
Springs homes (post 1970) are built of wood frame construction with chicken wire
beneath the stucco. This provides added structural cohesiveness.
Mobile homes in Palm Springs could be subject to shifting off their foundation supports.
Attached awnings, porches and skirting could be subject to separation and utilities could
be sheared off where they enter the coach. Seldom would actual collapse of the
structure itself occur unless nearby trees and power poles toppled.
Multi-story residential units are generally more vulnerable to higher shaking intensities
and therefore pose a grater life safety hazard. There are no residential high-rises in
Palm Springs.
SCHOOLS AND CHURCHES
There are many schools and churches in the City which will sustain varying degrees of
damage. During the Coachella Valley quake (magnitude 5.9 Richter scale), schools
City of Palm Springs Part One -51
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
sustained light damage totaling $32,000, 1986 dollars loss. Church loss was not
reported specifically. Schools in general are earthquake resistant and may withstand
intensities of up to VIII on the Modified Mercalli scale (see Attachment 3) although
general panic and fright will result. Poorly built or designed churches or perhaps day
care centers may experience partial collapse and interiors will experience heavy
damage. None of these facilities reported damage following the June 28, 1992 Landers
Quake,
BUSINESS AND INDUSTRIAL FACILITIES
There are many licensed businesses operating in Palm Springs. Retail shops, light
industrial, and hotel operations are the primary businesses. Many businesses will suffer
major dollar losses due to damaged stock, interruption of business and damage to
structures. Some of the older brick and wood joist structures may suffer moderate to
severe damage. Well built ordinary structures will suffer slight to moderate damage at a
VII level of the Modified Mercalli scale. At a level IX, specially designed earthquake
resistant structures may suffer serious damage and lesser buildings will be damaged. If
the quake is significant, fright and panic will result and selective entrapments will result.
Hazardous materials facilities may cause long term significant problems including health
implications.
MEDICAL AND CUSTODIAL CARE FACILITIES
The primary provider of medical services will be Desert Regional Medical Center. This
facility is a 393 bed, fully licensed and accredited general/acute care hospital and Level
II Trauma Center. Their services include the following:
1) , 24 hour fully equipped emergency room with specially trained personnel.
2) Intensive Care Unit
3) Coronary Care Unit
4) Post Coronary Care Unit
5) Fully equipped and staffed Cardiology, Laboratory, Gastrointestinal,
Hematological, Radiological and Surgical Facilities.
Upon receiving notification of a medical emergency, Desert Hospital External Disaster
Plan 091-00 will be put into effect by the appropriate hospital authority. Referral of
patients or victims will be made to other emergency facilities which may be used for the
treatment of casualties as determined by this Plan.
In addition to the hospital, there are many immediate care facilities and nursing facilities
in Palm Springs. These facilities are, perhaps, the most difficult because of the non-
ambulatory nature of some of the occupants. Specific planning is imperative to deal
with the probability of evacuation and relocation of persons involved. Critical care
facilities may suffer loss of power, telephones and sanitation. Damage and interruption
of the orderly flow of activities may result beginning at a level VI of the Modified Mercalli
scale.
City of Palm Springs Pan`.One- 52
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
GOVERNMENT BUILDINGS
Palm Springs government buildings vary in criticality and structural design to a great
degree as do other structures throughout the City. It is critical that certain branches of
city government continue to function after the initial shock. Because of the structural
design and construction, the City EOC is expected to withstand a significant shock, and
damage is anticipated to remain minimal. Fire stations are generally not earthquake
resistant, but because of the redundancy of stations, the fire protection system will
remain intact. Stations 441 and 443 may be hardest hit due to their location and
construction and could suffer major damage due to ground shaking and settling, Fire
Station #443 at 590 E. Racquet Club Road has had a seismic retrofit to its apparatus
room following the Landers earthquake.
GROCERY STORES
There are major grocery stores in the City and several smaller ones. Because of the
fast-paced nature of our society, we are very dependent upon our ready supply of food.
However, following a major earthquake, that source will be severely interrupted.
Structural damage not withstanding, most stores will suffer major damage and
disruption inside because of inventory damage. Shelves are not designed to contain
products subjected to any appreciable degree of shaking. Clean up will be a major
problem before the public may, once again, use the facility. Also, since most stores
receive deliveries on a daily basis, resupply will be a serious concern requiring an
overall logistical effort.
HARDWARE STORES
Following a major earthquake, rescuing people from damaged structures will be a first
priority. Hardware stores should be secured in order to procure emergency supplies to
aid in the rescue efforts. Short term, following-up on reconstruction work will also be
initially relying heavily on the supplies available through local hardware stores.
However, it should be noted that these stores have only minimal building materials on
hand.
GAS STATIONS
With a limited amount of gas stations in the City, fuel sources are going to quickly
become quite critical, Special attention will have to be paid to gas stations to insure that
their hazard potential is kept low (from fire or a hazardous materials incident through
leakage) and at the same time they remain a viable source of fuel to aid in the recovery
operation.
PHARMACIES
Besides the obvious need for medical supplies, a great number of people are also
dependent on prescription medicines. Unfortunately, pharmacies are as vulnerable to
City of Palm Springs Part One - 53
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
internal damage as are grocery stores. Most of their inventory is kept on unprotected
shelves and a great deal of cleanup and restocking will be required before the
pharmacies will once again be operational.
EMERGENCY RESPONSE ACTIONS
Emergency response actions associated with the above situations are presented in
Checklist Actions in Part Two of this Plan.
Attachments:
1 - Fault Map
2 - Modified Mercalli Intensity Scale
3 - Richter Scale
City of Palm Springs Part One - 54
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
ATTACHMENT 2, THREAT SUMMARY 1
MODIFIED MERCALLI INTENSITY SCALE
I Not felt. Marginal and long-period effects of large earthquakes.
II Felt by persons at rest, on upper floors, or favorably placed.
III Felt indoors. Hanging objects swing. Vibration like passing of light trucks.
Duration estimated. May not be recognized as an earthquake.
IV Hanging objects swing. Vibration like passing of heavy trucks; or sensation of a
jolt like a heavy ball striking the walls. Standing motor cars rock. Windows,
dishes, doors rattle. Glasses clink. Crockery clashes. In the upper range of IV,
wooden walls and frames creak.
V Felt outdoors; direction estimated. Sleepers wakened. Liquids disturbed, some
spilled. Small unstable objects displaced or upset. Doors swing, close, open.
Shutters, pictures move. Pendulum clocks stop, start, change rate.
VI Felt by all. Many frightened and run outdoors. Persons walk unsteadily.
Windows, dishes, glassware, broken. Knickknacks, books, etc., off shelves.
Pictures off walls. Furniture moved or overturned. Weak plaster and masonry D
cracked. Small bells ring (church, school). Trees, bushes shaken (visibly, or
heard to rustle).
VII Difficult to stand. Noticed by drivers of motor cars. Hanging objects quiver.
Furniture broken. Damage to masonry D, including cracks. Weak chimneys
broken at roof line. Fall of plaster, loose bricks, stones, tiles, cornices (also
unbraced parapets and architectural ornaments). Some cracks in masonry C.
Waves on ponds; water turbid with mud. Small slides and caving in along sand
or gravel banks. Large bells ring. Concrete irrigation ditches damaged.
Vill Steering of motor cars affected. Damage to masonry C; partial collapse. Some
damage to masonry B; none to masonry A. Fall of stucco and some masonry
walls. Twisting, fall of chimneys, factory stacks, monuments, towers, elevated
tanks. Frame houses moved on foundations if not bolted down; loose panel
walls thrown out. Decayed piling broken off. Branches broken from trees.
Changes in flow or temperature of springs and wells. Cracks in wet ground and
on steep slopes.
IX General panic. Masonry D destroyed; masonry C heavily damaged, sometimes
with complete collapse; masonry B seriously damaged. (General damage to
foundations.) Frame structures, if not bolted, shifted off foundations. Frames
City of Palm Springs Part One - 56
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
cracked. Serious damage to reservoirs. Underground pipes broken.
Conspicuous cracks in ground. In alluviated areas, sand and mud ejected,
earthquake fountains, sand craters.
X Most masonry and frame structures destroyed with their foundations. Some well-
built wooden structures and bridges destroyed. Serious damage to dams, dikes,
embankments. Large landslides. Water thrown on banks of canals, rivers, lakes,
etc. Sand and mud shifted horizontally on beaches and flat land. Rails bent
slightly.
XI Rails bent greatly. Underground pipelines completely out of service.
XII Damage nearly total. Large rock masses displaced. Lines of sight and level
distorted. Objects thrown into the air.
Definition of Masonry A, B, C, D:
Masonry A. Good workmanship, mortar, and design; reinforced, especially laterally,
and bound together by using steel, concrete, etc.; designed to resist lateral forces.
Masonry B: Good workmanship and mortar; reinforced, but not designed in detail to
resist lateral forces.
Masonry C: Ordinary workmanship and mortar; no extreme weaknesses like failing to
tie in at corners, but neither reinforced nor designed against horizontal forces.
Masonry D: Weak materials, such as adobe; poor mortar; low standards of
workmanship; weak horizontally.
City of Palm Springs Part One - 57
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
ATTACHMENT 3
RICHTER SCALE
The Richter Scale is widely known, but often is a misunderstood scale. It is based on
logarithms. Each whole number increase represents an increase in ground movement
of 10 times. 7.0 represents ten times the ground movement of 6.0. 8.0 represents ten
times the ground movement of a 7.0, and ten times ten, or 100 times the ground
movement of a 6.0. However, for every whole number increase on the Richter Scale,
there is a 31 .5 increase in the amount of energy released. Therefore, a 7.0 earthquake
(Richter) is 31.5 times as strong as a 60. An 8.0 is 31.5 times as strong, or 992.25
times as strong as a 6.0.
City of Palm Springs Part One - 58
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
THREAT ASSESSMENT 2
HAZARDOUS MATERIALS INCIDENT
GENERAL SITUATION
Because of Palm Springs' close proximity to Interstate 10 and Highway 111, the release
of a hazardous material to the environment could cause a multitude of problems that
can be discussed in a general manner. The significance of the problems to the
environment, property, or human health is dependent on the type, location and quantity
of the material released. Although hazardous material incidents can happen almost
anywhere, certain areas are at higher risk. Jurisdictions near roadways that are
frequently used for transporting hazardous materials and jurisdictions with industrial
facilities that use, store, or dispose of such materials all have an increasing potential for
major mishaps, as do jurisdictions crossed by certain railways, waterways, airways and
pipelines.
Releases of explosive and highly flammable materials have caused fatalities and
injuries, necessitated large-scale evacuations and destroyed millions of dollars worth of
property. Toxic chemicals in gaseous form have caused injuries and fatalities among
emergency response teams and passers-by. When toxic materials have entered either
surface or ground water supplies, serious health effects have resulted. Releases of
hazardous chemicals have been especially damaging when they have occurred in
highly populated areas and/or along heavily traveled transportation routes.
SPECIFIC SITUATION
Many forms of hazardous materials are present in Palm Springs. They are present in
permanent storage locations, roadway and railway transport medium, long distance
pipelines, and at various industrial and agricultural sites. Palm Springs' proximity to its
rail and highway transportation routes, and various light industries, has a growing
potential for serious hazardous materials incidents. Interstate 10 and Highway 111 are
heavily traveled by trucks. They carry every conceivable type of hazardous material
including gasoline, pesticides and compressed chlorine materials. The railroad- lines
traveling north of Palm Springs also carry hazardous cargos. Fortunately, the railroads
have a good safety record with regard to the transportation of hazardous materials.
Transportation of chlorine is of particular concern. The local water district consumes
large quantities of compressed chlorine and that product is transported and delivered on
a daily basis in and around the city. With the recent hazardous materials disclosure
legislation we have a growing knowledge of where they are used or stored.
City of Palm Springs Part One -59
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
TRANSPORTATION ACCIDENTS
The amount of hazardous materials transported over rail and roadways on a daily basis
is unknown, but estimated to be steadily increasing as our economy grows. There is
the potential for a hazardous materials incident almost anywhere on the highways and
roads through out Palm Springs. The greatest concern focuses on Interstate 10. The
most vulnerable areas along these routes are considered to be the on/off ramps and
interchanges near the City.
A major concern with the trucking industry is the safe operation of the trucks. With the
deregulation of the trucking industry, spot checks of trucks in many states, including
California, have shown that 25 percent or greater of these trucks currently in service are
not in safe enough condition to be operated on public highways.
Besides the immediate effect of a hazardous materials incident on scene, there are also
ancillary effects. For instance, the impact on waterways and drainage systems, and the
evacuation of schools, business districts, and residential areas.
Traffic on railroads is not as prevalent as on truck routes, but pose a much greater
problem when an accident is involved due to the volumes of hazardous materials on
board.
There is a moderate amount of air traffic along the airways above the City. However,
the potential for a hazardous materials incident still exists, especially with respect to
military operations.
PIPELINES
There are many pipeline distribution systems near Palm Springs. Specifically water,
natural gas, and petroleum products. Although water in and of itself is not considered a
hazardous material, a rupture of a main line with a major release could have serious
side effects. A major pipeline carrying natural gas parallels Interstate 10 north of the
city. This pipeline brings gas from the southwestern states into Southern California.
INDUSTRY SUPPORT
Some light industries are moving into areas near Palm Springs. To support these
industries, the city may realize an increase in the transportation of highly toxic and
corrosive materials into and out of the city. Along with the use of hazardous materials
comes the problems of hazardous waste management and disposal. With many
hazardous waste disposal sites closing, this means more transportation of these
materials.
City of Palm Springs Part One - 60
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
BUSINESS USER ACCIDENTS
There are several businesses that have large amounts of hazardous materials:
1. The Desert Water Agency, the City Wastewater Treatment Facility and Knott's
Water Park use large amounts of chlorine gas to purify water. They often have
one ton containers unloading at their facilities.
2. Local pool supply warehouses maintain large inventories of chlorine and acid. The
City is also home to a number of smaller chemical users such as school
laboratories and medical facilities.
CLANDESTINE DUMPING
Clandestine dumping is the criminal act of disposing of toxic materials and hazardous
waste on public or private property. As the costs and restrictions increase for legitimate
hazardous waste disposal sites, it can be anticipated that illegal dumping of hazardous
materials will increase proportionately.
EMERGENCY RESPONSE ACTIONS
Emergency response actions applicable to all common hazards are presented in the
Checklist Actions in Part Two of this Plan. For specific information refer to the
Riverside County Hazardous Materials Area Plan. Appropriate facility listings, materials
and quantities for businesses operating within Palm Springs are located at the Palm
Springs Fire Department Administrative Offices - 300 N. El Cielo Road, Palm Springs.
Attachments:
1. Major Rail and Truck Transportation Corridors
2. Petroleum Pipelines
City of Palm Springs Part One - 61
/0�4 93
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
ATTACHMENT 1 , THREAT SUMMARY 2
MAJOR RAIL AND TRUCK TRANSPORTATION
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City of Palm Springs Part One • 62
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
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City of Palm Springs Part One - 64
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
THREAT ASSESSMENT 3
FLOODING
GENERAL SITUATION
The size and frequency of a flood in a particular area depends on a complex
combination of conditions, including the amount, intensity and distribution of rainfall,
previous moisture condition and drainage patterns.
The magnitude of a flood is measured in terms of its peak discharge, which is the
maximum volume of water passing a point along a channel. Floods are usually referred
to in terms of their frequency of occurrence, 50 or 100 years.
The primary effect of flooding is the threat to life and property. People and animals may
drown; structures and their contents may be washed away or destroyed; roads, bridges,
and railroad tracks may be washed out; and crops may be destroyed.
Floods may also create health hazards due to the discharge of raw sewage from
damaged septic tank leach fields, sewer lines, and sewage treatment plants and due to
flammable, explosive, or toxic materials carried off by flood waters. In addition, vital
public services may be disrupted.
Floods are generally classed as either slow-rise or flash floods. Slow-rise floods may
be preceded by a warning time lasting from hours, to days, or possibly weeks.
Evacuation and sand bagging for a slow rise flood may lessen flood related damage.
Conversely, flash floods are the most difficult to prepare for due to the extremely short
warning time, if available at all. Flash flood warnings usually require immediate
evacuation within the hour. On some occasions adequate warning may be impossible.
Once flooding begins, personnel will be needed to assist in rescuing persons trapped by
flood waters, securing utilities, cordoning off flood areas, and controlling traffic. These
actions may overtax local agencies, and additional personnel and resources may be
required. It is anticipated that existing mutual aid resources would be used as
necessary to augment local resources.
COUNTY RESPONSE
The Department of Public Works Emergency Response Plan involves numerous stages
of response for affected county departments, cities and agencies. Prioritized warning
and alerting stages will be activated according to established procedures. Some of the
agencies to be contacted include the County's Emergency Operations Center and all
Riverside County Departments, U.S. Army Corps of Engineers, Office of Emergency
Management and the cities that lie within the 100-year flood inundation area.
City of Palm Springs Part One - 65
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
SPECIFIC SITUATION
Although the City of Palm Springs has taken significant steps to reduce or eliminate
flooding within the City, the City is still subject to flooding. The topography of the city
varies from above sea level to areas actually below sea level. Areas subject to flooding,
drain either naturally into flood controls, washes or creeks. Most can handle normal
flows. Areas subject to flooding are located throughout the city, although low-lying areas
of the City are particularly susceptible.
Flooding can be rapid and quite severe during the period of July and August. Winter
rains are generally widespread, but flash flood potential is less due to steady rainfall.
However, there is a danger to motorists who may attempt to drive through flooded
washes on N. Indian Avenue, Vista Chino, Golf Club Drive and Araby Road.
During times of heavy rainfall and reservoir water release, flood control channels and
basins are at risk of overflowing their banks. This includes, but is not limited to the
Whitewater Channel, and the Coachella Valley Water District Flood Channel, Tahquitz
Creek and Palm Canyon Wash. The Tahquitz Creek, runs west to east through the
length of City, the Whitewater River runs along the north to east side of the City, and the
Palm Canyon Wash runs west to east through the southern section of the city.
Specific flood characteristics are depicted in a flood insurance study developed by the
Federal Insurance Administration and Riverside County flood control documents.
According to the existing FEMA flood plain maps that show the 100-year flood
boundaries and flood depths, the City of Palm Springs is within the overflow area. See
Attachment 1 - City Map - Flood Hazard Map.
Health hazards could present themselves to residential dwellings and businesses in the
affected areas if proper flood clean-up actions are not conducted immediately.
Contamination due to flooded sewage systems pose the greatest risk to health and
safety of persons in the affected areas.
EMERGENCY READINESS STAGES
Flood in the special risk areas can occur rapidly or slowly depending on the heaviness
and severity of rainfall. Emergency preparedness will be based on three stages of
response actions.
Stage I (Flood Watch)
Light to Moderate rain. Monitor storm to establish precise nature of flood risk. Alert key
personnel. Ensure availability of Shelters (if it is later necessary to evacuate and look
after local people). Ensure availability of sandbags at pre-designated locations
City of Palm Springs Part One - 66 Q
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
Stage II (Flood Warning or Urban and Small Stream Advisory)
Moderate to heavy rain. Monitor storm constantly to establish precise nature of flood
risk and evolving situation. Establish liaison with all emergency services agencies and
consider whether to set up Emergency Operations Center. Deploy staff to risk areas to
monitor river levels. If needed alert staff to open shelters. Deploy reserve sand bags.
Post flood warnings in affected areas.
Stage III (Flood Statement)
Continuation of heavy rain. Threat to private property and persons. Areas should be
evacuated. In addition to the Flood Warning activities, open shelters, assist with
evacuations of flooded areas, deploy staff to assist in spreading flood warnings, liaison.
with media to pass on important information.
EVACUATION ROUTES
It is expected that most major streets (Palm Canyon, Ramon Road, Tahquitz Way and
Sunrise) will be open. As such, evacuation should be easily facilitated. All roads that
cross major washes (Vista Chino, Indian Canyon, Gene Autry and Araby), are subject to
frequent flooding and subsequent closure. The Hwy 111, Ramon Road and Mid-Valley
Parkway bridges will allow east/west evacuations. (See Map, Attachment 2). Other
pertinent information relating to evacuation operations are Part Two, Operations
Section.
EMERGENCY RESPONSE ACTIONS
Emergency response actions applicable to all common hazards are presented in the
Checklist Actions in Part Two of this Plan.
Attachments:
1 . Flood Hazard Map
2. Evacuation Routes
City of Palm Springs Part One - 67
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
Attachment 1 - Flood Hazard Map
Large FEMA flood hazard maps are located
in the City Engineering Division.
City of Palm Springs Part One -68
1n ,4 90
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
Attachment 2- Evacuation Routes
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City of Palm Springs Part One -69
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
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City of Palm Springs Past One - 70
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
THREAT ASSESSMENT 4
FIRE
GENERAL SITUATION
Fire is a continuous threat in Palm Springs. The major areas of concern are the
wildland and urban interfaces. Some homes now border major forests and brush areas.
With hundreds of people living near and visiting our wildland areas, the probability of
human caused fires is growing. Although occurring with less frequency, the threat of
fire from lightning strikes also exists.
As a general rule, the dry seasons are a major time for an increase in the number of
wildland fires and structure fires. The standard "shake roof' is a particular hazard as is
the poor control of flammable growth around structures. During the times of the strong
"Santa Ana" winds, fire danger is particularly high.
The increase of industrial complexes and transportation and utility networks pose a
threat which is not seasonal, but rather year around. Associated with industry and
transportation networks in the ever-present problem of hazardous materials. Although
not necessarily a wildland threat, a fire occurring in an urban area involving hazardous
materials could have serious consequences.
SPECIFIC SITUATION
Since the city is mostly urban, but with some desert areas, problems vary in degree.
Reaction time (due to geography and distance) is a factor as is equipment availability,
personnel requirements, strategy and tactics. While attempting to predict where a major
fire may occur is difficult, an educated assessment may be made in general terms.
The San Jacinto mountains are extremely difficult to traverse and many times are totally
inaccessible except for aircraft. Winds in these mountainous areas sometimes exceed
80 miles per hour.
Transportation fires involving hazardous materials are of growing concern. The main
area of concern to the city is Interstate 10 and the rail lines through Palm Springs.
EMERGENCY RESPONSE ACTIONS
Emergency response actions associated with the above situations are presented in
Checklist Actions in Part Two of this Plan.
Attachment:
1. Fire Hazard Map
City of Palm Springs Part One - 71
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
ATTACHMENT 1 , THREAT SUMMARY 4
FIRE HAZARD MAP
City of Palm Springs Part One - 72
SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
THREAT ASSESSMENT 5-A
TRANSPORTATION: MAJOR AIR CRASH
GENERAL SITUATION
A major air crash that occurs in a populated residential area can result in considerable
loss of life and property. The impact of a disabled aircraft as it strikes the ground
creates the likely potential for multiple explosions, resulting in intense fires. Regardless
of where the crash occurs, the explosions and fires have the potential to cause injuries,
fatalities and the destruction of property at and adjacent to the impact point. The time of
day when the crash occurs may have a profound affect on the number of dead and
injured. Damage assessment and disaster relief efforts associated with an air crash
incident will require support from other local governments, private organizations and in
certain instances from the state and federal governments.
It can be expected that few, if any, airline passengers will survive a major air crash. The
intense fires, until controlled, will limit search and rescue operations. Police barricades
will be needed to block off the affected area. The crowds of onlookers and media
personnel will have to be controlled. Emergency medical care, food and temporary
shelter will be required by injured or displaced persons. Many families may be
separated, particularly if the crash occurs during working hours; and a locator system
should be established at a location convenient to the public. Investigators from the
National Transportation and Safety Board and the Riverside County Coroners Office will
have short-term jurisdiction over the crash area and investigations will be completed
before the area is released for clean up. The clean-up operation may consist of the
removal of large debris, clearing of roadways, demolishing unsafe structures and towing
of demolished vehicles.
It can be anticipated that the mental health needs of survivors and the surrounding
residents will greatly increase due to the trauma associated with such a catastrophe. A
coordinated response team, comprised of mental health professionals, should take a
proactive approach toward identifying and addressing mental health needs stemming
from any traumatic disaster.
It is impossible to totally prepare, either physically or psychologically, for the aftermath
of a major air crash. However, since Southern California has become one of the
nation's most overcrowded air spaces, air crash incidents are no longer a probability but
a reality. Therefore, air crash incidents must be included among other potential
disasters.
City of Palm Springs Part One - 73
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
SPECIFIC SITUATION
The City of Palm Springs is located in the eastern portion of Riverside County. The City
is comprised of residential, commercial and industrial areas. The City contains major
freeway systems such as the Interstate 10 on the north and Hwy. 111 on the south.
The skies above Palm Springs are occupied by aircraft originating and departing from a
number of airports located in Southern California. The airports nearest to Palm Springs
which handle the greatest amount of air traffic are as follows:
The Los Angeles International Airport (LAX)—It is the fourth busiest airport in the
world and has experienced a four percent air traffic growth rate. Planes arrive and
depart at a rate of one per minute.
The Ontario Airport—It is ranked 46th busiest airport nationally in terms of air traffic
that it handles and is experiencing a 3 percent growth rate which is projected to
continue.
Aircraft flying over Palm Springs are located in the Class B Terminal Control Area
(TCA). The TCA is airspace restricted to large, commercial airliners. Each TCA has an
established maximum and minimum altitude in which a large aircraft must travel.
Smaller aircraft desiring to transit the TCA may do so by obtaining Air Traffic Control
clearance. The aircraft may then proceed to transit when traffic conditions permit.
Aircraft departing from other than PSP, whose route of flight would penetrate the TCA,
are required to give this information to Air Traffic Control on appropriate frequencies.
Pilots operating small aircraft often rely on geographical landmarks, rather than charts,
to indicate geographical landmarks of the Southern California basin, he/she may
misinterpret a particular landmark and inadvertently enter the restricted TCA airspace.
This misunderstanding may result in a mid-air collision.
EMERGENCY RESPONSE ACTIONS
Emergency response actions applicable to all common hazards are presented in the
Checklist Actions in Part Two of this Plan.
Additional aircraft emergency information can be found in the City of Palm Springs,
Airport Emergency Plan.
City of Palm Springs Part One - 74
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
THREAT ASSESSMENT 5-13
TRANSPORTATION: TRAIN DERAILMENT
GENERAL SITUATION
A major train derailment that occurs in the local area can result in loss of life and
property. As a train leaves its track, there is no longer any control as to the direction it
will travel. Potential hazards could be overturned rail cars, impact into normal traffic
and the release of it's contents.
Each of these hazards encompass many threats, such as a hazardous materials
incident, fire, severe damage to either adjacent buildings or vehicles and loss of life of
those in either adjacent buildings or vehicles and pedestrians.
SPECIFIC SITUATION
There is only one vehicular train track crossing in the City of Palm Springs. It is located
at Tipton Road and Hwy 111 in the far north west portion of the city. There is no
residential population within 1 mile of that location. Both North Indian Avenue and Palm
Drive have bridges that cross the rail tracks. The Palm Springs rail station is located off
North Indian Avenue and could be the site of a railway incident. Within the southside
easement of the train tracks, there is currently one 20" high pressure liquid petroleum
pipeline. A train derailment could cause this pipeline to rupture resulting in a
catastrophic fire.
EMERGENCY RESPONSE ACTIONS
Emergency response actions applicable to all common hazards are presented in the
Checklist Actions in Part Two of this Plan.
City of Palm Springs Part One - 75
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City of Palm Springs Part One - 76
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
THREAT ASSESSMENT 5-C
TRANSPORTATION: TRUCKING INCIDENT
GENERAL SITUATION
A major truck incident that occurs in a populated industrial area or residential area can
result in considerable loss of life and property. When a truck is involved in an accident,
there is no longer control as to the direction the truck will travel. Potential hazards could
be overturned tank trailers, direct impact either into a residence or industrial building, or
entering into the normal flow of traffic.
Each of these hazards encompass many threats, such as hazardous materials incident,
fire, severe damage to either adjacent buildings or vehicles, and loss of life of
pedestrians or those in either the adjacent buildings or vehicles.
SPECIFIC SITUATION
The City of Palm Springs is located within the eastern section of Riverside County. It is
served by one major freeway, several major north-south truck routes and contains one
truck stop terminal located at the northern end of the City. Highway 111 is also a major
east-west routes that serves the City.
EMERGENCY RESPONSE ACTIONS
Emergency response actions applicable to all common hazards are presented in the
Checklist Actions in Part Two of this Plan.
Attachment:
1. Truck Transportation Corridor Map
City of Palm Springs Part One - 77
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SEMS MULTIHAZARD FUNCTIONAL RESPONSE PLAN
ATTACHMENT 1 - TRUCK TRANSPORTATION
CORRIDOR MAP
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THREAT ASSESSMENT 6
CIVIL UNREST
GENERAL SITUATION
The spontaneous disruption of normal, orderly conduct and activities in urban areas, or
outbreak of rioting or violence that is of a large nature referred to as civil unrest. Civil
unrest can be the result of long-term disfavor with authority. Civil unrest is usually noted
by the fact that normal on-duty police and safety forces cannot adequately deal with the
situation until additional resources can be acquired or it may require deeper long term
solutions to prevent the problem from happening again in the future.
SPECIFIC SITUATION
Situations of Civil Unrest may include, but not be limited to:
• Neighborhood problems whether or not stemming from extended social
situations.
• Problems with authority and other causes of unrest.
• Problems in the school system, on and off campus - problems that often stem
from individuals' and groups' inability to interact in an appropriate social
manner.
EMERGENCY RESPONSE ACTIONS
Role of Human Rights Commission: To review situations that are either a part of
Civil Unrest or can potentially be seen as such. The commission feels it can be
effective as far as being a "communication tool" in times of crisis. The commission can
access the religious community as well as obtain help from the therapeutic community
as well as other volunteers. The Human Rights Commission can act as a consulting
force with regard to social and civil rights issues. In times of crisis, the Human Rights
Commission is there to think about the long term consequences.
See Human Rights Commission "Rules of Procedure in Part Three of this plan.
Additional information can be found in the Riverside County Fire Department, "Civil
Disturbance Response Plan 4/1193".
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THREAT ASSESSMENT 7
TERRORISM
GENERAL SITUATION
In the wake of the 1993 World Trade Center bombing in New York and the Oklahoma
City bombing in 1995, terrorism became a serious concern for emergency management,
emergency responders, and the public at large. However, the recent attack on the
World Trade Center and the Pentagon has now elevated our concern about terrorism to
a level we never imagined, and requires us to be prepared to respond to situations that
go beyond the terrorist incident scenarios that we are familiar with.
Terrorism is defined as the use of fear for intimidation, usually political goals. Terrorism
is a crime where the threat of violence is often as effective as the commission of the
violent act itself. Terrorism affects us through fear, physical injuries, economic losses,
psychological trauma, and erosion of faith in government. Terrorism is not an ideology.
Terrorism is a strategy used by individuals or groups to achieve their political goals.
Terrorists espouse a wide range of causes. They can be for or against almost any
issue, religious belief, political position, or group of people of one national origin or
another. Because of the tremendous variety of causes supported by terrorists and the
wide variety of potential targets, there is no place that is truly safe from terrorism.
Throughout California there is nearly limitless number of potential targets, depending on
the perspective of the terrorist. Some of these targets include: abortion clinics, religious
facilities, government offices, public places (such as shopping centers), schools, power
plants, refineries, utility infrastructures, water storage facilities, dams, private homes,
prominent individuals, financial institutions and other businesses.
SPECIFIC SITUATION
To conduct a threat assessment for our City, the Planning Team must consider a great
variety of situations:
What groups might exist or operate within my City:
• Right wing groups
• Ethnic groups with ties to international terrorists
• Anti abortion extremists
What are the obvious structural targets:
• Government
• Religious
• Racial or of a specific national origin
• Business
• Public infrastructure
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What are the significant dates to a particular terrorist group:
• April 19th (Waco, OK Bombing, etc.)
• Dates significant to religious or racial groups
• September 11
What are the potential personal targets:
• Government officials
• Religious or ethnic leaders
• Business persons
• Visiting dignitaries
• Leaders of radical groups
What special events are held that might be a terrorist target:
• Conventions or meetings
• Newsworthy trials
• Religious or ethnic festivals
EMERGENCY RESPONSE ACTIONS
Emergency response actions associated with the above situations are presented in
Checklist actions in Part Two of this plan.
More detailed information may be found in the City's Terrorism Response Plan.
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THREAT ASSESSMENT 8
NATIONAL SECURITY EMERGENCY (NUCLEAR
INCIDENT)
GENERAL SITUATION
As a result of the recent restructuring of the Soviet Union, the likelihood of nuclear war
is significantly reduced. Therefore, identifying likely targets in the event of a nuclear war
is not pertinent. However, terrorist activities and radiological materials accidents are still
likely. Terrorist activities could result in nuclear weapons being detonated.
The following is provided for information and planning purposes:
Air Burst
An air burst, by definition, is when a nuclear weapon is detonated and the fireball does
not touch the surface of the earth. Usually, the weapon is set to detonate at a height of
between 5,000 and 15,000 feet. Air bursts are generally selected for their capability to
generate high over-pressure and shock effect over large areas, as well as to ignite fires
for great distances. Neither radiation nor radioactive fallout is considered to be a
significant factor in the event of an air burst.
Surface Burst
A nuclear detonation is considered to be a surface burst when the fireball generated
touches the surface of the earth. Surface bursts could include water bursts, under-
water bursts and underground bursts.
Surface bursts produce large amounts of radioactive fallout. Therefore, some targets
may be selected not only for the purpose of destroying facilities, but to also use the
downwind fallout to prevent access or restrict movement in large geographical areas.
Detonation of a nuclear bomb can produce various damaging effects. Included are
blast and over-pressure, intense heat and light, nuclear radiation (fission and fusion),
electromagnetic pulse, and for surface bursts, radioactive fallout.
Blast
When the weapon is detonated, a tremendous pressure is developed. This over-
pressure rapidly expands outward in all directions, creating extremely high winds. The
expansion continues until the over-pressure is reduced to normal pressure. The rapid
outward expansion of air creates a vacuum which must equalize. The winds then
reverse to the opposite direction and continue until the air pressure is equalized.
Damage and injury are caused not only by the outward expansion phase of the wind
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and pressure, but also in the opposite direction when the air is rushing back to fill the
vacuum. It is believed that an ordinary California home would be destroyed at about 1.5
to 2 psi, often 2 to 5 miles from the detonation.
NOTE: Over-pressure is rated in pounds per square inch (psi). Normal pressure at sea
level is 14.7 pounds per square inch. Therefore, if the pressure is increased to 15.7 psi,
the over-pressure would be 1 psi.
Thermal Radiation
A burst of intense light and heat. This phenomenon can initiate fires as well as produce
casualties. A one-megaton explosion can produce flash-blindness up to 13 miles on a
clear day, or 53 miles on a clear night. Thermal radiation can cause skin and retinal .
burns many miles from the point of detonation. A one-megaton explosion can cause
first-degree burns at distances of approximately 7 miles, second-degree burns at
approximately 6 miles, and third- degree burns at approximately 5 miles from ground
zero. Detonation of a single thermonuclear weapon could cause many thousands of
burn casualties.
Initial Radiation
Defined as that radiation emitted during the first minute after detonation, it is comprised
of gamma rays and neutrons. For large yield weapons, the range of the initial radiation
is less than that of the lethal blast and thermal radiation effects. However, with respect
to small yield weapons, the initial radiation may be the lethal effect with the greatest
range.
Fallout
Produced by surface debris drawn into and irradiated by the fireball, then rising into the
atmosphere and eventually returning to earth. When a nuclear detonation occurs,
fission products and induced radioactive material from the weapon casing and debris
that was pulled up into the fireball returns to earth as fallout. A source of ionizing
radiation, fallout may be deposited miles from the point of detonation and thus affect
people otherwise safe from the other effects of the weapon. The radiation danger
associated with fallout decreases as the radioactive material decays. Decay rates
range from several minutes to several years.
Electromagnetic Pulse (EMP)
Intense electric and magnetic fields that can damage unprotected electronic equipment.
This effect is most pronounced in high altitude bursts (above 100,000). Surface bursts
typically produce significant EMP up to the 1 psi over-pressure range, while air bursts
produce somewhat less. No evidence exists suggesting that EMP produces harmful
effects in humans.
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SPECIFIC SITUATION
The San Onofre Nuclear Generating Station (SONGS) is located on the Pacific Coast in
the northwest portion of San Diego County approximately 4 miles southeast of the City
of San Clemente, Surrounding San Onofre is a Basic Emergency Planning Zone
approximately 10 miles in radius within which certain precautionary actions and plans
must be prepared. This zone does not include any portion of Riverside County.
Beyond this zone is Public Education Zone (PEZ) approximately 20 miles in radius in a
northeasterly direction that does include the extreme southwestern tip of Riverside
County. Within this area, residents will be provided a public education program
concerning the relating hazards and protective actions that might result from an
accident at SONGS. Riverside County must be able to protect the residents from
hazards posed by a nuclear generating plant accident. Beyond this zone is an area that
could be affected by radioactive fallout being deposited in such a manner as to
detrimentally affect the human food chain which includes all of Riverside County. This
area is identified as the Ingestion Pathway Zone. Specifically, the primary threat is that
of radioactive iodine 131 being deposited upon fodder consumed by dairy cows and
subsequently appearing in the milk at the public market place.
A detailed discussion on radiation hazards and their effects on humans along with a
description of the operation of a nuclear power generating facility and the hazards
posed thereby are contained in the State of California Nuclear Power Plant Emergency
Response Plan and in other documents.
The State Nuclear Power Plant Emergency Response Plan assigns to the County of
Riverside responsibility for certain actions to protect the public and the environment
within Riverside County from the affects of an accident that might occur at the San
Onofre Nuclear Generating Station. That Plan also lists the support and assistance
available from various State and Federal organizations.
Riverside County has limited capability to carry out the responsibilities assigned. Within
these capabilities, it will make every effort to meet its responsibilities. For those
responsibilities which cannot be met by local capabilities the County will ask for
assistance from either the State or Federal government.
EMERGENCY RESPONSE ACTIONS
Response activities to the nuclear materials threat will consist of in-place protection
measures, relocation and spontaneous evacuation.
The population at risk is 45,000 night-time residents and 75,000 or (slightly more) during
the day time. The City has insufficient fallout shelter spaces for its residents. The
fallout shelter identification program is no longer maintained and utilized within the State
of California. Emergency response actions applicable to all common hazards are
presented in the Checklist Actions in Part Two of this Plan.
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THREAT ASSESSMENT 9
LANDSLIDE
GENERAL SITUATION
Landslide is a general term for a falling mass of soil or rocks; vertical movement of small
pieces of soil. "Mudslide" (mudflow) is a flow of very wet rock and soil. The primary
effects of landsliding or mudsliding can include:
• abrupt depression and lateral displacement of hillside surfaces over distances of up
to several hundreds of feet.
• disruption of surface drainage.
• blockage of flood control channels and roadways.
• displacement or destruction of improvements such as roadways, buildings, oil and
water wells.
The speed with which landsides can occur vary considerably from rapid rockfalls to
virtually imperceptible movements down slope under the pull of gravity. Soil creep is a
very slow type of earth flow movement. It occurs mainly in solids containing clay. Most
landslides are shallow, ranging up to perhaps 100 feet in depth and limited in extent to
generally less than 100 acres. Most are not presently in motion (active), but have
moved down slope to a position of stability and have remained.
SPECIFIC SITUATION
Most of the developed portions of the City of Palm Springs are relatively flat and are not
subject to a significant landslide hazard. The Hillside Area located adjacent to the San
Jacinto Mountains contain existing landslides and are likely to experience future
landslide activity.
EMERGENCY RESPONSE ACTIONS
Emergency response actions applicable to all common hazards are presented in the
Checklist Actions in Part Two of this Plan.
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MINUTE ORDER NO.
APPROVING THE ADOPTION OF THE
2004 CITY OF PALM SPRINGS SEMS
MULTIHAZARD FUNCTIONAL RESPONSE
PLAN
I HEREBY CERTIFY that this Minute Order, approving the adoption of the 2004 City of
Palm Springs Multihazard Functional Response Plan was adopted by the City Council of
the City of Palm Springs, California in a meeting thereof held on the 3rd day of March,
2004.
BY: City Clerk
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