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Redacted Version – For Official Use Only

Citywide COOP Plan 1/24/2014 1/21

Citywide Continuity of Operations Plan (COOP) 2013

1. Acknowledgements

Citywide COOP Committee members:

Steve Behrndt, Bureau of Environmental Services

Sheila Black-Craig, OMF/Grants Office

Mary Ellen Collentine, Water Bureau

Nickole Cheron, Office of Neighborhood Involvement

Kathie Condon, Bureau of Emergency Communications

Kathleen Gardipee, Office of Commissioner Steve Novick

Art Hendricks, Parks and Recreation Bureau

Ronda Hollis, OMF/Risk Management

John Hunt, OMF/CityFleet

Suzanne Kahn, Bureau of Transportation

Bob Keita, OMF/Facilities

Logan Kleier, Bureau of Technology Services

Franco Lucchin, City Attorney’s Office

John McGregor, Bureau of Environmental Services

Liani Reyna, Police Bureau

David Rhys, Bureau of Human Resources

Kathy Roth, Bureau of Development Services

Doug Sticker, OMF

Bryan Tierney, Portland Parks and Recreation

Matt Tobey, Police Bureau

Joe Troncoso, Fire and Rescue

Kevin Veaudry-Casaus, Bureau of Planning and Sustainability

Additional Advisors and Participants: Neal Bialostosky,

Bureau of Technology Services Michael Croxton,

Bureau of Technology Services Don DePiero,

OMF/CityFleet John Dutt,

Office of Neighborhood Involvement Beth Fox,

Bureau of Technology Services Wendy Gibson,

OMF/Facilities

Carolyn Glass, Bureau of Technology Services

Craig Haynes, Bureau of Technology Services

Donny Leader, OMF/CityFleet

David Peters, Water Bureau

Brad Stevens, OMF

The Portland Bureau of Emergency Management facilitated citywide COOP planning. Carmen Merlo, Director David Blitzer, Operations Manager Jonna Papaefthimiou, Planning Manager Laureen Paulsen, Planning Program Specialist



2. Introduction

City government exists to ensure the safety and well-being of residents. Residents’ needs are greater during an emergency than at any other time. Every City office and bureau plays a role in the functioning of the City. Public safety and infrastructure bureaus provide many essential public services. Many bureaus that are not first responders also have constituents who depend on their services. Other bureaus have staff and resources well-positioned to serve the community after a disruption, and must play a role in response and recovery. And internal service providers are essential to the communication and functioning of all others.

Because every bureau has an important role to play, each City office and bureau has its own continuity of operations (COOP) plan that lays out the essential functions of that bureau and the personnel and resources needed to maintain those functions. These plans, developed by employees familiar with the needs and capabilities of their work groups and with operational knowledge of the functions they perform, are the basis of citywide preparedness.

This citywide plan is not intended to supersede bureaus’ operational plans. Rather, it identifies citywide systems that may aid in the implementation of multiple bureaus' COOP plans, highlights where there will likely be conflicting demands on limited City resources, and discusses how scarce resources may be allocated and essential functions prioritized in a major disaster.

This plan is intended to be accompanied by a transmittal letter with recommendations to improve preparedness through additional study, data collection, and investment.

3. Purpose

The purpose of this citywide continuity of operations plan is to provide a framework to help decision-makers set priorities and allocate resources in an emergency, in order to continue the City’s most essential functions when an incident impacts multiple bureaus and locations.

4. Objectives

The objectives of bureau COOP plans and citywide COOP planning are to:

Protect lives and minimize human suffering;

Protect essential public facilities, equipment, vital records, and assets;

Ensure the performance of essential functions; reduce or mitigate disruptions to other operations;

Ensure continuity of leadership;

Minimize damage to the environment and property;

Minimize economic and social disruption;

Achieve a timely and orderly recovery;

Provide a basis for further planning, exercises and training.



5. Scope

This plan is a framework to assist City decision-makers and employees during a major emergency. It is intended to inform, not constrain, their choices. Every incident will present issues that cannot be anticipated and that must be resolved in the context of the situation.

This is also a working document. It sets out a framework for response using the resources and information available from bureaus at the present time. This plan is intended to be updated at least every three years.

The recommendations made in this plan are intended to apply to all City bureaus and offices when multiple City entities are in COOP. Bureau plans should accord with this document, and are included in the appendix.

6. Essential functions

The City of Portland provides a range of services to residents and carries out an array of internal processes to support its operations. The services and processes that the City performs all have value; they improve residents’ quality of life, provide for the long-term success of the City, and help the City as a corporation function more or less smoothly. But following a disaster that threatens public health and safety, functions that improve quality of life, long-range opportunities, or administrative convenience may be discontinued for 30 days or more in order to focus on the provision of essential services.

Essential functions are defined in this plan as activities that:

1. Directly protect human life and public health, including the safety and health of City workers;

2. Protect the environment, public property, and physical infrastructure;

3. Support the delivery of services that the City or public will depend on in an emergency;

4. Minimize economic and legal losses to the City;

5. Uphold confidence in City government.

In order to accomplish City essential functions, every City bureau must:

Account for employees following a disaster at work;

Communicate with employees about whether / where to report for work;

Assess the safety and usability of its work locations;

Provide to the EOC a report on the status of bureau employees and a preliminary assessment of the bureau’s ability to perform essential functions;

Work to resume normal functioning as soon as possible.



In responding to a widespread emergency, most bureaus will also need to:

Procure goods and services;

Manage contracts;

Track expenditures, work hours, and type of work performed;

Process accounts payable and receivable;

Maintain or restore key administrative functions such as regulatory reporting;

Communicate with the public about service availability, efforts to restore service, and interim advice to the public.

Most bureaus have essential functions in addition to these, either to protect life, health, and property, minimize losses, and uphold confidence in government, or to maintain the ability of other bureaus to do that work. The essential functions unique to each bureau are identified in individual COOP plans and summarized in the table that follows. Bureaus were asked to identify essential functions for a pandemic and single-facility event as well as a citywide COOP event. Some functions that are identified as essential in bureau plans and listed below may still not be a priority in a citywide emergency.

Office or Bureau Summary of Unique Essential Functions

Auditor Serve on Disaster Policy Council (DPC). Provide public hearings and issues determinations for cases like code violations, land use, and towing; receive complaints from the public about the Police; investigate complaints about city services; support the City Council with official minutes and process their documents; review, approve, and disburse citywide vendor and payroll checks; approve all citywide contracts; manage citywide records and archives; recover costs incurred by the City in providing services.

Attorney Serve on DPC. Advise on City operations and initiatives; help the City limit its liability; defend the City in court; file legal documents on deadline; advise Council / DPC during meetings; advise on the meaning and application of laws; issue missing persons subpoenas; prepare documents; represent the City in legal negotiations; advise on contracts; prepare and review contracts, easements, deeds, permits, and other legal documents; assist in policy development; enforce the City’s rights under contracts; acquire property through condemnation.

Development Commission (PDC)

Ensure security and safety of buildings and tenants on PDC-owned or operated property; ensure safety and security of leased buildings.

Development Services (BDS)

Staff bureau EOC and City ECC/EOC. Conduct rapid and detailed damage assessments; perform field inspection of life-threatening situations and buildings; issue emergency/temporary permits; review structural plans; review fire life safety plans; provide



permitting for variety of repairs, remodels, upgrades, and new construction; review plans and inspect construction work; perform historic review, tree code review, land use reviews.

Emergency Communications (BOEC)

Serve on DPC; staff City ECC/EOC. Answer 911 calls; dispatch police, fire and medical resources; answer non-emergency public safety calls; communicate with city and county emergency managers.

Emergency Management (PBEM)

Serve on DPC; activate and staff City ECC/EOC. Serve as principal strategic advisor to the mayor on emergency management; communicate emergency notices to responders and the public; implement established emergency response plans; activate volunteers trained to assist in emergencies; implement policy directives of the City Council and DPC; maintain records of decisions, actions, and expenditures that occur after an emergency.

Environmental Services (BES)

Serve on DPC; staff City ECC/EOC. Operate pump stations; manage collection system; sewer service; surface drainage; wastewater treatment; emergency response/condition assessment; lab services; residuals processing; solids processing; spill response.

Equity and Human Rights (OEHR)

None in addition to basic functions.

Fire and Police Disability and Retirement Fund (FPD&R)

Process disability and pension benefits; authorize payments; pay death and funeral benefits; manage disability claims; audit medical bills and process payments.

Fire and Rescue (PF&R)

Serve on DPC. Provide fire suppression; emergency medical services; specialized rescue and response (Urban Search and Rescue "USAR", HazMat, marine, rope rescue, etc); logistical support to operations; maintain apparatus and equipment; investigate fires; assess fire damage; Harbor Master.

Government Relations (OGR)

Represent the City, advocate for City needs, and serve as liaison for the City with state and federal agencies and bodies.

Housing Bureau Serve on DPC. Coordinate severe weather shelter for homeless persons; finance and accounting services.

Management and Finance (OMF)

Chief Administrative

Officer (CAO)

Serve on DPC; provide governance.



CAO Business Operations Division

Staff City ECC/EOC. Accounts payable and receivable; manage grants

CAO Enterprise Business Solutions

Division

Provide emergency assignment of SAP roles and troubleshoot SAP.

CAO Public Finance and Treasury

Provide liquidity to pay payroll and accounts payable. Facilitate City debt issuance.

Human Resources Serve on DPC; staff City ECC/EOC. Process payroll and payroll payments (taxes); recruit personnel; administer health benefits; maintain employee and time records; labor relations contract administration.

Bureau of Internal Business Services

(BIBS) CityFleet

Provide vehicle and equipment repairs; provide fueling, field service, and fabrication repairs; procure parts; provide rental equipment.

BIBS Facilities Assess buildings; verify if buildings systems are working; provide inventory of occupiable buildings; monitor fuel supplies in emergency generators; provide back-up work sites; lease additional work space as needed; bring buildings back on-line; restore buildings.

BIBS Printing and Distribution

Deliver water samples from Bull Run to test lab; deliver Technology Services tape to archives / collect back-ups if needed; maintain bureau copiers and printers; perform deliveries for Risk and Occupational Health; deliver interoffice mail; deliver US Mail citywide; maintain permanent microfiche records; print copies.

BIBS Procurement Staff City ECC/EOC. Manage p-cards. Purchase / contract for goods/services/ technology/construction services/professional services; contract compliance.

BIBS Risk Management (Risk)

Stamp in tort claims; document losses; post exposure follow-up on occupational health exposures; workers comp time loss payments; accept payments; report losses; medical provider bill pay; report worker’s comp claims.

Revenue Invoke and communicate waiver of vendor requirements; secure and continue to deposit cash payments.

Technology Services (BTS)

Serve on DPC. Staff City ECC/EOC. Maintain or restore the following systems: 800 MHz radio, 911 Dispatch Center network, BOEC paging, BRASS, CAD, CAMIN, Cayenta, CrimeStats, Criminal Intelligence Unit, eCitation, email, FireNet, Fire Info System, FleetFocus, Fuel Management System, GIS, Hansen, internet access, Lien Accounting System, Jail Log, LinX NW, Maximo, mobile phones, Oracle WAM, Payment Gateway, Portland online, RegJIN, Pyxis, R-View, SAP, shared file servers, SmartZone, storage



area network, telephony, TrackIt, TRACS, VPN, Zetron.

Mayor Provide City leadership at DPC.

Neighborhood Involvement (ONI)

City and county information line (823-4000); provide emergency information to people with disabilities; support citizen crime prevention patrols; process noise variance and complaints; liquor license neighborhood notification; graffiti removal and abatement; staff the neighborhood resource center.

Portland Parks and Recreation (PPR)

Serve on DPC. Staff bureau EOC and City ECC/EOC; maintain designated public buildings; fuel vehicles at Mt. Tabor and East Delta Park; respond to fire in natural areas; may be called on to assist with: debris removal, mass care points, emergent volunteers, points of distribution, landslide assessment. Ensure public safety in parks (patrols); open community centers and provide programs for youth, adults, and seniors; maintain park facilities; provide summer lunch programs; provide before- and after-care programs at SUN schools when schools are open; provide services throughout the City such as small engine repair, electrical repair, carpentry, building mechanical systems inspection and repair, and welding and sheet metal services.

Planning and Sustainability (BPS)

Provide technical services such as GIS; coordinate with haulers to ensure collection of solid waste, recycling and compostables; run Curbside Collection Hotline (823-7202); staff City ECC/EOC.

Portland Police Bureau

Serve on DPC; staff City ECC/EOC and bureau EOC. Respond to calls for emergency service; patrol precincts; investigate major crimes.

Portland Bureau of Transportation (PBOT)

Serve on DPC; staff bureau EOC including Dispatch. Clear debris; assess damage to public infrastructure; restore emergency transportation routes; stabilize and rebuild structures; repair signals; provide sewer emergency response and repairs.

Portland Water Bureau

Serve on DPC; staff City ECC/EOC and bureau EOC. Water treatment at Headworks, Lusted Hill, and groundwater if running; water supply and distribution; water storage and pump station operation; water analysis; water sampling; regulatory compliance; maintain employee access to and prevent unauthorized access to critical facilities; detect and repair leaks and breaks; generate bills and deposit payments.



7. Assumptions

In planning for a citywide COOP event, this plan makes the following assumptions:

An emergency could happen at any time, with or without warning;

Multiple bureaus will be operating in COOP mode;

The City’s Emergency Operations Center (EOC) will be activated;

The DPC will convene at the EOC.

The City owns an emergency center, which is maintained by PBEM. During a small-to-medium-sized incident, the center is often activated as the Emergency Coordination Center (ECC). The ECC supports the work of multiple bureaus managing a planned event or emergency incident.

In a large incident, the City’s emergency center is activated as the Emergency Operations Center (EOC). In the EOC, response objectives and allocation of City resources are decided for the City as a whole.

The mayor, a bureau director or a bureau incident commander can request that the ECC or EOC be activated to support a planned event or emergency incident. The PBEM Director has the authority to activate the ECC and EOC.

8. Planning Scenario

Many different events could trigger a COOP activation. Possible triggers are discussed in the section “Activation.” However, it is useful for planning purposes to develop a scenario to test the concept of operations. This plan takes as its planning scenario the earthquake described in the 2012 Threat and Hazard Identification and Risk Assessment (THIRA) for the Portland Urban Area, developed by the Portland Urban Area’s Regional Disaster Preparedness Organization. The THIRA scenario is:

At 8:32 a.m. on a Monday in March, a 7.1 magnitude earthquake strikes along the Portland Hills fault zone in the Portland Urban Area. It is followed a short time later by a 6.0 aftershock.

The impacts of this event would be in many ways similar to those for a Cascadia subduction zone earthquake, and where the THIRA does not provide details of estimated impacts, The Oregon Resilience Plan: Reducing Risk and Improving Recovery for the Next Cascadia Earthquake and Tsunami, Report to the 77th Legislative Assembly from the Oregon Seismic Safety Policy Advisory Commission (February 2013) was used. The scenario implies the following additional impacts:

Electrical service is disrupted in many parts of the City, including downtown, and is not expected to be fully restored for more than 30 days;

Water service is disrupted. Most areas are without water pressure; where it is flowing, pressure is low and the water must be boiled. Water service is not expected to be restored for more than 30 days;



Fuel shortages are anticipated to occur soon; liquid fuel infrastructure is disrupted;

Wireline and wireless communications are disrupted. Limited wireless and wireline communications are expected to be restored in a few days;

Many bridges and overpasses are damaged. One Willamette River crossing is expected to be opened to limited loads in 12 hours. Major highways are not expected to be opened for more than 30 days;

Sewer service is disrupted in many areas and is not expected to be restored for more than 30 days;

Many buildings, including many City structures, are badly damaged. Most unreinforced masonry buildings and some other older structures are collapsed or partially collapsed.

According to the City’s adopted Basic Emergency Operations Plan, the Earthquake Annex, and the Emergency Transportation Routes IGA, bureau COOP plans, and practice of City first responders, the following responses will be automatically triggered following a major quake:

Within half an hour, the DPC will assemble on a conference line via telephone or satellite phone. Following this meeting, DPC members will likely agree to make their way to the City’s EOC.

PBEM staff and other trained City EOC responders will immediately make their way to the EOC and being to activate the center. As information becomes available (via public safety radio, amateur radio, telephone, satellite phone, internet, news report, social media) EOC staff will collect information via WebEOC (a website database) and begin to assemble a situation status report to inform responders and decision-makers. They will also prepare an emergency declaration for the Mayor.

Fire and Rescue employees at each fire station will first assess their personnel, equipment and building. They will then patrol their respective Fire Management Areas, evaluating the situation and reporting conditions to their battalion chief. They will also provide urgent assistance wherever possible.

Fire Inspector/EMTs and volunteer Amateur Radio Operators (AROs) will make their way to each fire station. Fire Inspector/EMTs will interface with members of the public, who come to the fire station seeking assistance. AROs will establish radio communications with the City and County Emergency Operations Centers.

Police officers will check-in with their precinct via radio. If normal communications are disrupted and members cannot contact their direct supervisor, they will go to their precinct/RU for coordination and dispatch. If members are unable to go to their precinct/RU they will go to the closest fire station or contact office. They will then be dispatched to support emergency operations, including efforts to prevent looting and theft of City resources (including fuel).

BOEC will continue to take calls for service and dispatch police, fire, and medical resources.



PBOT will activate its emergency operations center if the building is safe for use. Crews will be reassigned to begin clearing established life-safety routes. Other crews will make their way to equipment storage areas, pick up assessment equipment, and then begin inspecting bridges.

BDS will activate its emergency operations center and essential employees will report there immediately.

BES will activate its emergency operations center in North Portland. Bureau employees who are assigned to the BEOC or City EOC will respond per the Bureau and City response plan. Qualified BES employees at critical facilities will inspect those facilities for damage, operability status and continued habitability as a work station. About half of all BES employees are considered essential to emergency response and immediate restoration and continuity of Bureau operations. Essential Bureau employees will be expected to report to their normal reporting location, or to another primary Bureau facility, or if that is not possible, to one of several alternate reporting locations around the City. From there employees should make contact with an EOC for further instructions.

Water will activate its emergency operations center, collocated with the City's ECC/EOC. Water employees who are designated to work in ICS positions will respond to the BEOC or City EOC as required. Water will participate in a unified command structure. Water Bureau Damage Assessment Teams will begin rapid assessments of damage to water bureau facilities and infrastructure as access allows. Water Bureau employees working at critical facilities will assess facilities for operational status and damage in order to provide a system situational status as quickly as possible. Detailed damage assessments for a disaster declaration or to develop project worksheets will be provided by qualified and trained personnel. Essential Water Bureau employees will report to designated work sites, or if damaged, to alternate work sites, or will report in available work status to designated reporting locations. Employees designated as non-essential may be required to backfill vacant essential employee positions.

Volunteer Neighborhood Emergency Teams will assemble, establish an operating base and triage center, and begin door-to-door checks and search and rescue activities.

Most City employees will exit their building, check in with their floor warden, and then attempt to go home, where they will await instructions.

9. Concept of operations

9.1. City and Employee Readiness and Preparedness

Every bureau has a continuity plan for its own operations, and the City also has adopted a Basic Emergency Operations Plan with appendices that specifically address response to floods, earthquakes, and terrorism, and annexes that address emergency functions like communication, command and control, and debris management.

Most City facilities have a safety plan that addresses what to do during an emergency in the building, such as a fire, and have assigned floor wardens to help account for people



following a building evacuation. Public safety and infrastructure bureaus also generally have established practices (often but not always documented in written form) for responses to emergency situations such as localized flooding and snow and ice. Many but not all City workplaces have emergency supplies such as food, water, and flashlights on hand.

Some bureaus encourage employee home preparedness, but efforts are ad hoc. No City bureau consistently provides training or supplies for its employees’ home preparedness.

9.2. Activation, Alert, and Notification

The Citywide COOP plan is activated by an event that disrupts the normal business operations of multiple bureaus, necessitates a reduction in City service levels, and creates a situation where it is likely that the City will need to allocate scarce resources among City bureaus. Many events could activate the citywide COOP plan, including:

Major earthquake;

Pandemic;

Widespread social unrest (riots and looting);

Total loss of data from key BTS data centers.

The mayor would make the decision to activate a citywide COOP event. He might do this before or after conferring with the Disaster Policy Council, and he might or might not make an emergency declaration at the same time.

Following a decision to activate the citywide COOP plan, the PBEM director would attempt to notify other commissioners and bureau directors via telephone, email, radio, or messenger. PBEM would also initiate citywide notification of the City’s COOP status using whatever methods were functional and likely to reach employees and the public most quickly, including: news media, website posting, all-City email, social media, signs posted at City buildings, OPB radio broadcast. PBEM Public Information Officers (PIOs) would coordinate with other bureaus to provide bureau-specific information where needed.

Following notification that the citywide COOP plan had been activated, bureaus that had not already activated their own COOP plans would do so. For most bureaus, this would mean assembling their COOP team, dispatching any first-responders to the EOC or the field, and sending other employees home to await instructions, or asking them to shelter in place if travel was not safe.

9.3. Relocation

As stated earlier, the DPC would convene via conference line and then make their way to the EOC. Incident commanders and first responders would make their way to their bureau’s EOC or begin to travel their pre-established damage assessment or response routes. Initially, bureaus would likely establish one or more incident commanders in the field, and bureaus would then form a unified command in the EOC or virtually after the EOC was activated and the DPC assembled.



Following a citywide COOP activation, all bureau directors, acting bureau directors, or director designees, including those who do not serve on the DPC, are responsible for reporting their bureau’s status to the EOC within twelve hours. They may communicate via email, telephone, in person, or via ham radio from a fire station. Information that will initially be required by the EOC will be:

Status of employees who were at work during the event (safe, injured, deceased, unaccounted for);

Status of bureau facilities;

Essential bureau functions being carried out;

Essential bureau functions compromised;

Resource needs to resume essential functions;

Estimated time to resume essential functions.

Information may initially be incomplete; bureau directors should still report the requested information to the best of their ability. They will receive instructions on when and how to check in again.

The EOC will receive an initial status inventory of City facilities from Facilities within twelve hours and will work to refine this information over the following days. Reports from Facilities and from bureau directors will supplement information from responders, other EOCs and ECCs, news and social media to create a more complete operational picture. Decisions about response priorities, resource allocation, and work assignments, including work space, will be made through the EOC.

9.4. Organizational Structure

During a citywide COOP event, the City will provide direction and control using the Incident Command System (ICS). In this structure, the DPC will give policy direction to a single Incident Commander or several Commanders working together as a Unified Command. City staff assigned directly to the EOC will receive task assignments from their supervisor within the ICS structure, and not through their bureau.

The PBEM Director will communicate with bureau directors about work priorities and assignments, resources available to bureaus, and recalling staff to work following a COOP activation. When additional employees are recalled to work, each bureau will be responsible for contacting its staff and directing them when and where to work.

9.5. Reconstitution

The DPC will assign a reconstitution team and leadership as soon as the initial situation is stabilized.

10. Continuity Facilities

The City’s facility strategy immediately following a COOP event will necessarily be to operate from buildings which remain functional or to work from home following the incident, while seeking to develop an inventory of other working buildings. The following buildings are seismically reinforced, have generators, and are expected to be immediately functional in most scenarios:

The City’s Emergency Operations Center, 9911 SE Bush Street



911 Dispatch Center, 3732 SE 99th Avenue

1900 Building, 1900 SW 4th Avenue

City Hall, 1221 SW 5th Avenue (no power to outlets)

East Precinct, 737 SE 106th Avenue

North Precinct, 449 NE Emerson Street

Police Training Division, 7214 N Philadelphia Street

Police Traffic Division , 4735 E Burnside Street (adjacent parking garage may collapse)

Water Pollution Control Lab, 6543 N Burlington Street (high liquefaction risk)1

All Fire Stations (high liquefaction risk at 55 SW Ash Street and 848 North Tomahawk Island Drive)

Interstate Complex, 2010 N Interstate Avenue (new buildings only)

Wastewater Treatment Plant, 5001 N Columbia Boulevard (some buildings only, high liquefaction risk)

The following BES pump stations:

o Ankeny, 30 SW Naito Parkway (high liquefaction risk)

o Fanno Basin, 6895 SW 86th Avenue (high liquefaction risk)

o Sullivan, 211 NE Everett Street

o Hayden Island 1740 N Jantzen Beach Center (high liquefaction risk)

o Inverness, 12002 NE Inverness Drive (high liquefaction risk)

o Swan Island CSO, 4299 N Port Center Way (high liquefaction risk)

Some additional City buildings may be usable, but with the City’s current information, it is not possible to predict which other facilities will be functional; even with improved information, this would be impossible to know with certainty. Many important buildings, such as the Portland Building, would protect occupants during an earthquake, but would likely require significant repairs before they could be used again.

For bureaus with multiple offices or work areas, the spaces that remain functional will likely serve as the back-up for that bureau’s other spaces; if a Fire Station is inoperable, adjacent Fire Stations will expand their Fire Management Area responsibilities to cover the area of the inoperable station; if a Police Precinct is inoperable, other precincts will absorb additional staff and command responsibilities. BES, Water, and PBOT all have multiple buildings that can provide some back-up to other facilities. Both the City’s Emergency Operations Center and the 911 Dispatch Center also have mobile command posts that could be set up in an open area if the EOC or Dispatch Center became inoperable. These contingencies are discussed in bureau COOP plans, and bureaus should enact these strategies as necessary when their own COOP plans are activated.

Following a COOP event, the City will quickly endeavor to develop an assessment of other working buildings and begin to assign bureaus or work groups to available work spaces.

1 Other structures may also experience liquefaction; these locations are estimated to have a high risk based on LiDAR imaging of sediment.



OMF/Facilities will also work to repair City facilities and lease additional office space as soon as the situation has stabilized and resource needs are known.

If facility resources are scarce and some bureaus are unable to continue essential functions or meet incident response objectives because of a lack of facility space, the facility of one bureau may be put to use for another bureau. This decision would be made by Unified Command in consultation with the Disaster Policy Council (DPC) to reflect the incident objectives and the City’s priorities generally -- protect lives and minimize suffering, protect public resources, and maintain or restore essential services.

A table of Portland City facilities that are essential and may require back-up, or that could provide back-up to an essential facility, are provided in Appendix 1. The Portland Building, the Police Bureau’s Central Precinct, and PBOT’s Kerby Building are probably the three most important City facilities that may also be seismically vulnerable. The current back-up plan for these facilities is for Central Precinct functions to disperse to other precincts and to other downtown office space, probably including Police and Fire Disability and Retirement Fund, the Revenue Bureau, the 1900 Building, and the Housing Bureau; essential functions from PBOT’s Kerby Building will be backed up in open areas on-site, and functions of the Portland Building will be dispersed to other City offices around the city. The City of Portland Bureau of Emergency Management is also working with Multnomah County to explore whether the City and the County may be able to share space or obtain new space jointly following a COOP event. The City and the County EOCs already provide mutual back-up.

11. Vital Systems and Equipment

Each bureau COOP plan identifies systems and equipment that are vital to that bureau. Some needs are unique to each bureau, such as specialized equipment and access to their own databases. Bureaus should address the protection of these resources in their bureau COOP plans, and look to their Incident Commander or the City’s Unified Command to help them restore those resources if they are lost in a major incident.

Some essential resources are common to many bureaus, and could potentially be shared or re-allocated among bureaus in a disaster. Fuel and heavy equipment are the resources most likely to be allocated at a citywide level. (Access to computers, telephones, radios, City file servers, and IT services may also be scarce resources allocated at a citywide level; these are addressed in sections on “Communications” and “Vital Records.”)

11.1 Fuel

The Oregon Resilience Plan and the City’s Local Energy Assurance Plan (LEAP) suggest that fuel shortage may quickly become a regional problem following a significant seismic event. The State of Oregon has a Petroleum Contingency Plan that includes a fuel allocation program to provide gas and diesel to state emergency services and essential service providers (utilities, telecommunications, public transit, sanitation services). State law allows the Oregon Department of Energy to implement emergency response actions when fuel shortages are anticipated, including rationing, and also requires commercial gas stations to set aside at least 5% of their fuel for state agencies; Portland could request use of this fuel from the state.

The City’s daily fuel use is about 8,000 gallons per day (gas and diesel together); in an emergency, fuel use is estimated at 21,000 gallons per day. The City has a total (gas and diesel) fuel tank capacity of 167,000 gallons. This includes both fuel in fueling stations and



fuel stored in generator storage tanks and tanks that serve stationary equipment at City facilities.

During normal operations, Portland Police consume the most fuel on a daily basis. During an emergency, the Portland Bureau of Transportation uses about 26% of the City’s fuel; with Portland Police and Portland Fire and Rescue as the next biggest users. Appendix 2 lists the City locations that have fueling capacity.

Following a COOP event that also disrupts businesses throughout much of the City, the City may immediately limit fueling at City locations to emergency responders. Fueling stations should be secured or checked frequently because they may be a target for theft. As a citywide policy, all emergency response equipment should be parked with a full tank.

11.2 Heavy Equipment

Many bureaus own heavy equipment such as front-end loaders, dump tracks, and backhoes. Each bureau maintains an inventory of their equipment; these are not reproduced here. However, much of this equipment could be shared among bureaus if one bureau experienced a catastrophic loss or a more overwhelming need than others.

11.3 Resource Inventory and Allocation Process

Although the absolute need for fuel or any other item following a disaster cannot be predicted, the City can anticipate scarcities and develop strategies to understand and respond to them during emergency incidents.

Following a COOP incident, bureaus will initiate response using their own equipment, fuel, generators, and employees. Bureau Incident Commanders will work to protect life safety and stabilize the situation. They will quickly develop a rough inventory of their own available resources in order to organize their response.

As bureaus develop awareness of their own resources and resource needs, they should roll this information up to the City EOC. They can accomplish this by recording the information in WebEOC, if they have access to it, or by verbally reporting via phone or radio on their resource situation—what they have and what they need. The City EOC will request information from bureaus if they do not report on specific resources of citywide concern.

The City Emergency Operations Center will develop an operational picture for the City as a whole and, as scarcities come to light, they will work to meet those needs. They will seek to obtain fuel and equipment through mutual aid or contract agreements. However, if sufficient resources cannot be obtained in time from outside sources, the Incident Command in the City EOC may direct one bureau to make resources available to another bureau to meet the City’s overall priorities for incident response. Like the decision to turn one bureau’s building over to another, this choice would be made in consultation with the DPC, and would reflect the incident objectives and the City’s overarching response priorities.

12. Continuity Communications

In our planning scenario, the following communications impacts are likely: Mobile phone network would be immediately overwhelmed;



Mobile phone towers might topple or lose power; after 8 hours, generators would run out of fuel; The loss of electric power would foreclose the use of email; City landline phones and internet networks would be disrupted where data lines were

damaged; bridges and aerial lines are particularly vulnerable; 800 MHz towers in the West Hills might topple or lose power, creating dead spots in the network; A large microwave antenna could be misaligned by shaking, creating temporary dead spots in the network; it would need to be manually re-adjusted to work again. The City’s 2012 Basic Emergency Operations Plan includes a Communications Annex that describes the City’s communications and information technology infrastructure and establishes a concept of operations for the use of those systems in an emergency. This plan section is intended to supplement the Communications Annex by describing the communications capacity of individual bureaus and identifying how they may communicate with each other and the City EOC in the early stages of a response, while more communications are brought back on-line. For more detailed technical information about radio channels and assignments, refer to the 2012 Portland UASI Region Tactical Interoperable Communications Field Operations Guide (TICFOG), which contains technical reference material to aid communications personnel, and lists interoperability channels. The primary system for communication with the City Emergency Operations Center is landline telephone. The failover path for voice communications with the City Emergency Operations center is: 1. Landline phone/GETS; 2. Cell phone/WPS, cell phone text messaging; 3. 800 MHz radio; 4. VHF radio; 5. Satellite phone; 6. Amateur radio; 7. Field runners. The ECC also utilizes email via Intranet, Internet and WebEOC to transmit data. If the Internet or Intranet is unavailable, satellite Internet is the method of last resort. The primary system for field response is the public safety emergency radio system. The failover path for field voice communications is: 1. 800 MHz radio; 2. Cell phone/WPS; 3. VHF radio; 4. Satellite phone; 5. Amateur radio; 6. Field runners. All bureaus have access to landline telephones on a city exchange, which is not a public exchange and is more resilient than other landline phones. Many bureaus also provide city-issued mobile phones to field staff. These are served by commercial mobile phone networks. All bureaus also have access to City email, which is dependent on the Portland Building data center and the physical network infrastructure centered at the 911 Dispatch



Center. All EOC responders have access to the Portland instance of WebEOC, a web-based emergency information sharing system that is cloud-hosted. Accessing WebEOC requires accessing the Internet. In addition to these citywide communications resources, individual bureaus have the following communications resources. Each bureau COOP plan discusses their emergency communications capacities in greater detail.

User 800 MHz VHF Amateur

Police X

Fire X X X

Water X Limited X

BES X

PBOT X

BDS X

BOEC X Limited

Parks X

PBEM X X X

Operating a radio takes some knowledge and skill; employees who do not regularly use radios are unlikely to make efficient use of them in an emergency. It is possible that radios are a resource that would be re-allocated between bureaus in an emergency. Radios should only be issued to experienced users; if an inexperienced operator needs radio communications, a radio and a radio operator should be assigned together.

BTS manages the public safety emergency radio system, telephones, and email for the City. Because these modes are managed by different work groups and staff have different skillsets, it is unlikely that email, phones, and radio service will compete for resources as the City works to restore communications. In the event that resource scarcity requires some prioritization, the order would be: 1. Public safety emergency radio system; 2. Landline phones; 3. Email. Restoration of mobile phone service would depend on private carriers. Incident communications are separate from public information; public messaging will be managed through the incident’s Public Information Officer (PIO). In a major event such as the planning scenario, the PIO will work in coordination with PIOs from other agencies and jurisdictions using a Joint Information System. A Joint Information Center (JIC) will operate from the City EOC. If communications systems are severely disrupted or many people are displaced and therefore difficult to reach, the City may utilize public messages to recall City employees or direct them to check-in points. The recall of City employees is discussed in “Human Resources.”



This section describes tools for communication, not who should tell what to whom. Communications in an emergency should follow ICS principles; task assignments follow objectives set by the incident commander(s), and responders receive assignments from their immediate supervisor and make resource requests to that supervisor. ICS principles also hold that while formal communications (resources requests and task assignments) follow the chain of command, the informal exchange of information is also critical, and that information should be shared freely. In addition to direct communication with responders in the field and face-to-face discussions in the EOC and BEOCs, WebEOC should be a good source of information about the incident, including regular situation status reports and copies of incident action plans.

13. Vital Records

Vital records include information that is needed to perform essential functions (e.g. responder contact lists) and public records that must be preserved. In this plan, databases that contain vital information are also considered vital records (e.g. SAP, TRIM). The City provides two repositories for vital records: City Archives and BTS servers. Bureaus should store copies of their vital records in one of these two locations; bureaus are solely responsible for any records not stored in Archives or on BTS servers. 13.1 Physical Records Archives manages both physical records (papers, photographs, and objects) and electronic records. Physical records are stored in a relatively new, secure, seismically-reinforced building designed for this purpose. Copies of papers in the City’s permanent document collection are also copied on microfiche and provided to State Archives. It is reasonable to assume that physical records stored with Archives are secure in an emergency. It may take some time to access these records following a disruptive event. 13.2 Electronic Records Archives’ electronic records are on BTS servers. Many other essential documents and databases are also stored on the BTS servers, which are housed primarily in the Portland Building data center. The Portland Building, and therefore the data center, are vulnerable to damage by earthquake, structural fire, and similar events. All the data in the BTS data center is also backed up at the City’s 911 Dispatch Center. Following an event that severely damaged or destroyed the Portland Building data center, all data would be recoverable from the 911 Dispatch Center back-up. If both these sites were compromised, the data would be lost; it is not stored “in the cloud” or backed up anywhere outside the City of Portland. Beginning in spring 2014, City email and other files can be stored in the cloud with Microsoft Office 365. This will significantly increase the disaster resilience of the City’s email and other individual documents stored in the cloud. However, Microsoft Office 365 will not host databases, so information stored in a database like TRIM or SAP will not have any greater resilience. If the Portland Building data center were compromised and the City had to restore it from the data at the 911 Center, that process would take at least two weeks; for a complete re-build, there is a strong possibility that it would take longer. Steps to re-create the City’s data center would include: Purchasing new servers and having them shipped to Portland;



Identifying a new location (the City does not own a suitable facility); Developing a rebuild-team; only two City employees could supervise this process, and outside contracting for the rebuild would be complicated because the current system is not systematically documented; Re-installing systems one at a time, which could take up to one day each. The priority order for restoration of databases would be determined by the incident objectives at the time the rebuild started. It would not be possible to access any of the data stored in the data center until the center was re-built and the system re-installed. Because of the possibility that the data center will be down for several weeks following a widespread emergency, bureaus need to plan to function for at least two weeks, without access to information stored in databases on the City servers. Many processes that depend on City-hosted databases could be carried out on an interim basis with manual back-ups, such as paper work orders and utility atlases. Data could then be entered into the system retroactively once the data center was restored. A few databases are so data-intensive that manual back-ups are not feasible; GIS and SAP are two examples. Some GIS functions could be replicated with local copies of ARC GIS running on individual machines. Some SAP functions could be replicated in Excel. Individual bureaus must be responsible for developing manual processes or locally-hosted solutions to fulfill the purpose of their City-hosted databases to sustain emergency response for several weeks following a widespread disaster.

14. Human Capital

Employee safety is always an important concern. The City has responsibility for the well-being of employees while they are at work, and employees care about the well-being of their colleagues. Bureaus should develop and practice appropriate emergency response procedures in every workplace. Bureau safety committees support this effort.

Employees are also the City’s most important resource for emergency response and continuity of operations; the City cannot accomplish anything without employees to do the work. Employee home preparedness is key to employees’ responding during a disaster. City support for home preparedness is discussed in the Concept of Operations under “preparation.”

Each bureau has different staffing needs during a COOP event. Bureau COOP plans must identify essential employees and set expectations for both essential and non-essential employees about their roles, including whether to come back to work or stay at home, where to look for more information, and how employees are to check in if they are unable to come to work.

14.1 Response to an emergency

Immediately following an emergency, each bureau has a responsibility to account for employees that are at work at the time the incident occurred; bureau directors or their designees will report this information to the City EOC within 12 hours. Where employees are harmed or unaccounted for, the City will prioritize efforts to assist or locate employees who were at work during an emergency, and to inform employees’ families of their status.



Employees who have immediate responsibilities in an emergency should be identified in their bureau COOP plans and instructed by their bureau when to come back to work and where to report, including any alternate reporting locations.

14.2 Returning to work after an emergency

Bureau COOP plans should direct employees who are not at work during a disaster and who do not have any immediate response role to wait to be recalled following a disaster. Bureau COOP plans should also advise those employees on where to look for instructions following a disruptive event, and how they may expect to receive a recall notice. Media reports, the websites www.portlandoregon.gov or www.publicalerts.org, and the City/County information referral number 503-823-4000 are resources available to all employees. Supervisors may also contact individual employees directly to inform them of work expectations. Bureau COOP plans should outline procedures for this.

Within a few days, bureaus will begin to recall additional staff to support or relieve essential employees. It is the responsibility of employees to come back to work when they are recalled, or report on their inability to do so. Even if some communication mechanisms are not working (e.g. supervisor did not call, City website is down), it is still the responsibility of the employee to look for other ways to obtain the information and report. If communications within the City are still limited, the City will also post signs on functioning City buildings, which should include all Fire Stations.

14.3 Reporting employee status, not returning to work

In order to plan for resumption of additional functions following a disaster, the City will need to account for its workforce, including employees not yet being recalled to work. It is the responsibility of employees who are not yet being recalled to check-in with their bureau when a procedure exists to do so. Employees can find out about check-in procedures the same way they find out about being recalled to work. The mechanisms used to account for employees will depend upon what systems are functional following an earthquake, but it will likely include providing status and contact information via email or coming to a designated employee check-in station. It will include some way for employees who have left the area or are unable to travel to work to check-in remotely.

When employees are checking in but not reporting to work they should provide, at a minimum, their name, job title, bureau, supervisor’s name, current contact information (phone, email, and physical residence) and whether they are well and available to work. If they are not available to work, they need to give the reason(s) for this and state when they expect to be able to return to work- as they would if they called in sick.

14.4 Employee contact information

In order for the City to account for its entire workforce, and to report to employees’ families about the status of people who were at work during an emergency, the City must have access to current contact information for all employees following an emergency, including an emergency that shuts down the data center. Employee contact information can be tracked in SAP, and the Office of Management and Finance can make that SAP



information available to bureaus if requested. It is the responsibility of each bureau to remind employees to enter and update their personal contact information in ESS for uploading to SAP, and to extract that information from SAP and store it securely.

14.5 Pay during an emergency

The City will make every effort to issue payroll on the City’s regular pay schedule.

Following a disaster, the City may ask or require employees to work overtime. Employees may also be asked to perform work outside their normal duties or classification. In order for employees to eventually be paid for all the work they do, it is important that employees adhere to the time reporting expectations at their worksite each day. Bureaus are responsible for tracking time for their own employees and for any other employees reporting to worksites they supervise (where they are directing employees and resources). Time tracking procedures during an emergency may be different from the time reporting employees are accustomed to (e.g. employees may be asked to complete paper timesheets and describe their work). This will be important to account for overtime or pay differentials that may be owed following a disaster, and also for the City to benefit from federal assistance for force account labor that may be available to offset costs following a disaster.

14.6 Benefits following an emergency

Human Resources will staff its benefits service as soon as possible following a disaster, in order to provide information to employees about the City benefits available to them and how to access those benefits following a disruption. The City may also coordinate with the Red Cross or similar service providers to connect City employees with support services, particularly where those services enable employees to return to work or stay at work in support of City recovery efforts.

15. Orders of Succession and Delegations of Authority

Orders of succession are established in City code and bureau COOP plans. Delegations of authority are established in bureau COOP plans. During a citywide emergency, the Mayor will generally delegate to the Incident Commander(s) the authority to direct City resources in support of the policies and objectives established by the DPC.

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