EMERGENCY MANAGEMENT DOCTRINE FOR ONTARIO

Transcription

1 August 17, EMERGENCY MANAGEMENT DOCTRINE FOR ONTARIO EMERGENCY MANAGEMENT ONTARIO August 17, 2005

2 August 17, TABLE OF CONTENTS Introduction 4 Emergency Management 7 Key Principles of Emergency Management for Ontario 9 A Risk Management Approach 9 Business Continuity 11 A System of Partnerships 11 Emergency Management Programs 14 Ontario s Critical Infrastructure Assurance 15 Incident Management System 17 Legislation 19 Regulations and Emergency Management Program Standards 21 Guidelines and Recommended Practices 22 Plans and Procedures 23 The Complementary Roles of the Provincial Government and Communities 24 The Role of Emergency Management Ontario 25

3 August 17, Appendix A: Order in Council 26 Ministers Assigned a Special Responsibility Area for Emergencies Appendix B: Emergency Management Program Standards 29 Ontario Regulation 380/04 29

4 August 17, INTRODUCTION In the aftermath of the September 11 th, 2001 terrorist attacks, the Government of Ontario moved decisively to implement comprehensive reforms to emergency and disaster management, consistent with international best practices. These reforms were far-reaching and based, in part, on the detailed findings of an emergency management reform study then underway. At the heart of these reforms is the movement toward the adoption of comprehensive emergency management programs based on a risk management approach and including activities in the five core components of emergency management: prevention, mitigation, preparedness, response, and recovery. The aim of these reforms is to ensure that a proactive, coordinated and comprehensive approach to managing emergencies is in place to reduce the significant risks faced by Ontario communities. 1 The implementation of emergency management programs will ultimately save lives and money, protect property, public health and the environment, maintain economic stability, and help assure the continuance of critical infrastructure. This will be accomplished by preventing some emergencies before they occur, lessening the frequency and potential impact of others, and by speeding the recovery process following an event. In short, the end result will be a Province comprised of safe, secure, and disaster resilient communities. As part of the reforms, Ontario requires provincial ministries and communities to develop, implement, and maintain comprehensive emergency management programs and adopt standards for these programs through regulation. This requirement ensures that a consistent, accountable, and robust system of emergency management is established throughout the province. In addition, these new measures will be supported through the creation of a public safety culture in order to make the protection of lives and property a continuing priority throughout the province. This public safety culture has been created and fostered through activities such as public education that raise the profile of emergency management in Ontario. 1 Communities: This term includes municipalities and First Nations. NB; First Nations are not required to have mandatory risk-based comprehensive emergency management programs

5 August 17, The new emergency management concept, as set out in this doctrine, is embedded in the hierarchy of documents necessary to implement the concept, including legislation, regulations, guidelines, plans and procedures (see Figure 1). Taken together, these documents provide a strategic, coherent and integrated approach to emergency management in Ontario and assist in developing federal, provincial and municipal strategies to reduce risk around a common concept and terminology. Each level of document in the hierarchy is examined in more detail in the following sections. The main purpose of the Doctrine is to set out the overall framework for emergency management in the Province of Ontario in order to develop a common understanding of the concept. This, in turn, is meant to assist in the ongoing development and implementation of emergency management programs at the provincial and community levels, and in the establishment of linkages with other partners and stakeholders. Specifically, the Doctrine will focus on defining the following elements: Emergency Management; Key Principles of Emergency Management for Ontario; Legislation; Regulations and Emergency Management Program Standards; Guidelines and Recommended Practices; Plans and Procedures; the Complementary Roles of the Province and Communities; and, the Role of Emergency Management Ontario. This document was prepared by EMO with review and input from the Emergency Management Doctrine and Standards Committee (EMDSC) of Ontario. The Doctrine will be reviewed annually by EMO and the EMDSC to ensure it remains accurate, relevant, and continues to reflect the evolution of emergency management in Ontario and in other jurisdictions.

6 August 17, Figure 1: HIERARCHY OF EMERGENCY MANAGEMENT DOCUMENTS IN ONTARIO CONCEPT, KEY PRINCIPLES, HOW ALL THE PARTS FIT TOGETHER COMPREHENSIVE EMERGENCY MANAGEMENT PROGRAMS ESSENTIAL, COMPREHENSIVE NFPA 1600/2007 COMMUNITY/ PROVINCIAL GUIDELINES MINISTRY / COMMUNITY PLANS SUPPORTING PROCEDURES DOCTRINE LEGISLATION (EMA) ORDER IN COUNCIL REGULATIONS, STANDARDS GUIDELINES, RECOMMENDED PRACTICES PLANS PROCEDURES CONCEPT TRANSLATED TO LEGISLATION REQUIREMENTS FOR PROGRAMS SET OUT IN REGS WHAT (MANDATORY) WHAT (VOLUNTARY) HOW TO PLANS CREATED SUPPORTED BY PROCEDURES

7 August 17, EMERGENCY MANAGEMENT Emergencies, as defined under the Emergency Management Act, R.S.O. 1990, c.e.9, are situations or impending situations caused by the forces of nature, an accident, intentional act or otherwise that constitute a danger of major proportions to life or property. Although the focus of this definition is on the potential impacts to life and property, it is implicitly understood that major threats to social, environmental, political, and/or economic well-being may also be considered emergencies. Disasters are widespread or very severe emergencies. Emergencies are caused by hazards conditions or processes that have the potential to cause harm or loss to people and property. In basic terms, the hazard (undesirable event) produces adverse consequences and the possibility of an emergency. The identification and understanding of hazards, therefore, is an important first step in building an effective emergency management program to protect public safety. Currently, the Province of Ontario has identified 37 types of hazards in its Provincial Hazard Identification and Risk Assessment Report, in which hazards are classified according to general source: natural, technological, or human-caused. Emergency management is defined as organized and comprehensive programs and activities taken to deal with actual or potential emergencies or disasters. It is based on a risk management approach and includes activities in five components: prevention, mitigation, preparedness, response, and recovery. These components are illustrated in Figure 2. Prevention and mitigation refers to the actions taken to prevent the emergency itself (prevention and actions taken to reduce or eliminate the effects of an emergency (mitigation), Prevention and mitigation measures can greatly diminish the response and recovery activities required for certain emergencies and may result in a long-term, cost-effective reduction of risk. Prevention and mitigation measures are broadly classified as either structural or non-structural and include capital improvements, regulations, building codes and public education programs. Preparedness refers to those measures taken prior to the emergency or disaster to ensure an effective

8 August 17, Figure 2: COMPONENTS OF EMERGENCY MANAGEMENT MITIGATION/ PREVENTION This figure to be updated RECOVERY EMERGENCY MANAGEMENT RESPONSE PREPAREDNESS Prevention: Actions taken to prevent an emergency or disaster. Mitigation: Actions taken to reduce the effects of an emergency or disaster. Preparedness: Actions taken prior to an emergency or disaster to ensure an effective response. Response: Actions taken to respond to an emergency or disaster. Recovery: Actions taken to recover from an emergency or disaster. response. Preparedness measures include plans, training, exercises, public education, alerting and notification systems, procedures, organization, infrastructure, standards, etc. Response refers to measures taken to respond to an emergency. The aim of these measures is to ensure that a controlled, coordinated, and effective response is quickly undertaken at the outset of the emergency to minimize its impact on public safety. Recovery refers to those measures taken to recover from an emergency or disaster. The aim of these measures is to assist individuals, businesses and communities to return to a state of normalcy. Recovery measures include environmental clean-up, return of evacuees, emergency financial assistance, critical incident stress counseling, etc. A comprehensive emergency management program is one that incorporates a risk management approach and integrates activities in each of the five components of emergency management. As all emergencies are essentially local in nature, the implementation of emergency management programs in Ontario (through prevention, mitigation, preparedness, response, and recovery activities) begins at the community level.

9 August 17, KEY PRINCIPLES OF EMERGENCY MANAGEMENT FOR ONTARIO This section covers the key principles in Ontario s approach to emergency management: Risk Management; Business Continuity; and A System of Partnerships. RISK MANAGEMENT APPROACH In recent years, there has been a major conceptual shift in how people seek to cope with disasters from natural to human induced hazards. While humanitarian response capacities are vital and need continued attention, the focus on addressing risk underlines the recognition that human intervention designed to reduce the vulnerability of people and assets can reduce the impact of disasters. (1) Risk management is a proactive process to address risks. The province of Ontario s comprehensive programs are based on the five main components of emergency management: prevention, mitigation, preparedness, response, and recovery. The adoption of a risk management approach shifts the focus to include the causes of risk rather than only the emergencies that may result from risk. This allows resources to be allocated more effectively in order to prevent or minimize losses. Ontario requires communities and provincial ministries to develop and implement comprehensive emergency management programs. This requirement ensures that a consistent, accountable, and robust system of emergency management is established and maintained throughout the province. Risk management is a key process when addressing government or business continuity. These measures are supported through the creation of a risk management culture. Activities, such as public education, raise the profile of emergency management in Ontario making the protection of lives and property a continuing priority throughout the province. Through risk management processes the following is achieved: A greater understanding when dealing with risk issues;

10 August 17, Shifts the focus to the causes of risk rather than emergencies that may result from risk. This allows resources to be allocated effectively in order to prevent or minimize losses; Evaluates the level of risk associated with various hazards and permits the setting of emergency management program priorities and opportunities for action; Identifies risk reduction measures (prevention, mitigation, preparedness, response, recovery) that address specific identified risks; Reduces risks in a continual process to promote assessment and evaluation of hazards and risks; and, Focuses on the reduction of risk through the implementation of comprehensive emergency management programs, resulting in improved public safety. The doctrine recognizes that different governments and organizations may, quite appropriately, use slightly different processes and terminology to achieve the same aims. The process, however, should be consistent with accepted international risk management principles, which include but are not limited to: Establish the context, Identify risks, Analyze risks, Evaluate Risks, Treat/address risks, Communicate and consult, and Monitor and review.

11 August 17, It is important to emphasize that this process is ongoing and long-term. Risks and the measures put in-place to address them need to be routinely reviewed. Moreover, the measures to be implemented may be part of a long-term strategy extending over many years and involving many steps. A risk management approach provides a recognized, flexible, and effective means to reduce risk. It has direct application to emergency management, and results in a tailored comprehensive emergency management program to reduce high-priority risks. Organizations using risk management processes are able to identify and exploit opportunities, make good decisions quickly, respond to, and adapt to, unexpected events, and better equipped to meet their objectives. The implementation of emergency management programs, based upon risk management principles, will ultimately save lives and money, protect property and the environment, and maintain economic stability. CONTINUITY OF OPERATIONS/BUSINESS CONTINUITY Governments at all levels provide a vast array of services to the public. Disruption of some of these services could potentially impact public safety and security. Therefore, governments, must continue providing such critical services, or limit the disruptions, through emergencies. Continuity of Operations/Business Continuity is the component of the Emergency Management Program that ensures a government will be able to provide critical functions and services during an emergency. The business continuity process provides a framework for the determination of functions and services that are time-sensitive and critical, and utilizes a risk management approach to assure the continuity of such critical functions/ services by identifying and assessing hazards, risks and the impact of potential disruptions; to develop viable mitigation, response and recovery strategies and plans; to earmark resources; to train personnel; and to test and maintain plans. Business continuity should be an ongoing process that is supported by senior management, properly resourced, integrated into the government s emergency management planning framework and reviewed for currency from time to time. A SYSTEM OF PARTNERSHIPS If each community is made safer through the implementation of a comprehensive emergency management program, the province as a whole is also made safer.

12 August 17, This key principle underlines the fact that the reduction of risks to public safety in the Ontario context depends on the participation of many partners fulfilling specific emergency management responsibilities. In Ontario, emergency management is organized through a loosely linked, vertical structure of individuals and organizations with emergency management roles and responsibilities including: Individuals. Individuals are responsible for the safety, preparedness, and well being of themselves and their family. At a minimum, everyone should possess an awareness of the hazards that might affect him or her and be sufficiently prepared to deal with them. This should include being prepared to take care of themselves and their families for up to three days in the event of an emergency. Communities. In order to protect the lives and property of their citizens, each community, along with its private sector and volunteer organization partners, develops and implements an emergency management program tailored to local needs. In many cases, the response capability of the community (i.e. fire, police, emergency medical services, public works, etc.) will be sufficient to deal with routine incidents. Province. Certain provincial ministers develop, implement, and maintain emergency management programs for specific hazards and risks and/or emergency services that are complementary to the programs implemented by communities. During emergency response, a provincial ministry may implement its emergency response plan in support of a community. Emergency Management Ontario, as the overall provincial emergency management organization, is responsible for the promotion, development, implementation and maintenance of effective emergency management programs throughout Ontario, and for the coordination of these programs with the federal government. Emergency Management Ontario also provides advice and assistance for all on-going emergency management activities, maintains the Provincial Operations Centre on a 24/7 basis, and maintains the provincial emergency response plans. Federal Government. The federal government provides assistance to the provincial government when requested, and may take the lead during emergencies that clearly impact on federal jurisdiction, such as war or international crises. The implementation of a full range of effective emergency management program measures to reduce a particular risk will often involve the participation of a wide range of partners. Those involved in reducing the public safety risks of a single community might include, for example: individual citizens, families, businesses, neighbouring communities, provincial organizations such as conservation authorities, and various federal government organizations (in addition to the community itself). These partners would be involved in a full range of measures such as providing

13 August 17, emergency response assistance, implementing mitigation measures, conducting public education, implementing personal and home preparedness, etc. all aimed at reducing risk. The measures put in place to reduce the risk to public safety posed by nuclear facilities in Ontario are a good example of the intricate system of partners involved in the process. At the federal level, the Canadian Nuclear Safety Commission (CNSC), as the regulator of nuclear activities, ensures that preventive safety measures are implemented by the nuclear facility. The CNSC is also involved in emergency preparedness and response measures along with other federal organizations such as Public Safety and Emergency Preparedness Canada and Health Canada (with Health Canada taking the lead in the federal emergency response). At the provincial level, all ministries have roles and responsibilities involving the implementation of various prevention, mitigation, preparedness, response, and recovery measures, and/or in supporting provincial emergency management. EMO is responsible for coordinating the provincial response to an off-site nuclear emergency, with the assistance of provincial ministries as required. Similarly, at the community level, a number of directly affected and supporting communities, as well as their organizations such as police, fire and emergency medical services have roles. And finally, schools, businesses, families, volunteer groups and individuals all have specific roles and responsibilities as part of an effort to reduce risk. For a nuclear emergency that does not extend beyond the site of a nuclear generating station, responsibility for a response rests with the nuclear operator. As the above example makes clear, a reduction in risk depends on a system of partners at all levels, implementing a range of measures in concert with one another, according to their particular roles and responsibilities.

14 August 17, EMERGENCY MANAGEMENT PROGRAMS With the proclamation of the Emergency Management Act, Ontario experienced a fundamental shift in its concept for dealing with emergencies. Previously, the focus was on preparation of plans, covering mainly emergency preparedness and response arrangements. Now, however, the focus is on the development, implementation, and maintenance of comprehensive emergency management programs, which are mandatory for Ontario communities and provincial ministries. These programs will be the product of a risk management approach and will ultimately incorporate a full range of measures necessary to reduce priority risks (including prevention, mitigation, preparedness, response, recovery measures). Emergency management program standards for both communities and provincial ministries are be contained in regulations issued under the Emergency Management Act. These regulations will set out the minimum specific elements required to build, over time, a full emergency management program. Ministries fall into one of two program categories. All ministries are responsible for ensuring the continuity of their operations regardless of the type of emergency that occurs. Ministries not assigned special responsibility areas undertake only the Continuity of Operations Program. However, certain ministries, in addition to meeting their obligations for continuity of operations, have also been assigned special areas of responsibility (for specific types of emergencies or emergency services). These ministries undertake a Full Program and comprise the second category. In accordance with the phased, progressive approach to the implementation of standards, the regulations for Full Program ministries will first require emergency preparedness and response measures, followed later by emergency mitigation and recovery measures. Continuity of Operations Program ministries will also progress to the Comprehensive level as the depth and scope of their plans is increased to capture a broader range of risks, critical functions, controls, and responses. As a result of this progressive approach and the elements required by regulation, such as the preparation of mitigation strategies, the emergency management program for both communities and provincial ministries will evolve to include a wide range of tailored measures to deal with specific hazards and risks in each of the five components. Thus, the emergency management programs of communities and ministries will move from a rather general approach at the start to a much more effective and tailored program as they progress through the various levels.

15 August 17, ONTARIO S CRITICAL INFRASTRUCTURE ASSURANCE Critical infrastructure (CI) is defined as interdependent, interactive, interconnected networks of institutions, services, systems and processes that meet vital human needs, sustain the economy, protect public safety and security, and maintain continuity of and confidence in government. Critical infrastructure assurance is the application of risk management and business continuity management processes and techniques for the purpose of reducing the vulnerabilities of critical infrastructure in both the physical and cyber realms by decreasing the frequency, duration and scope of disruption and facilitating response and recovery. The Province of Ontario has developed the Ontario Critical Infrastructure Assurance Program (OCIAP), a province-wide program that identifies and assesses Ontario s key facilities, systems and networks, and their inter-dependencies and provides a strategy to assure their continuance during physical and cyber threats. The OCIAP recognizes that critical infrastructures are highly connected and interdependent, provincially, nationally and internationally. For example, because infrastructure is dependent on energy sources and common information technologies, problems can cascade through the infrastructure, thereby causing unexpected and increasingly serious failures of essential services. As the threats are ever changing and increasing in their scope and magnitude - from climate change to human caused threats - so too are the vulnerabilities. Clearly, these interdependencies make Ontario s infrastructure more vulnerable to disruption or destruction. The province s critical infrastructure assurance program uses a systems approach to identify vulnerabilities and to provide best practices for prevention and mitigation. It is a collaborative approach which includes all levels of government and the private sector. It is a voluntary program, focusing on raising the resiliency of the province s critical infrastructure and assuring continuance of services. The basis for the critical infrastructure assurance program is the application of risk management principles.. The program is based upon assessing the likelihood and the consequence of events from both natural and human caused threats that have the potential to seriously disrupt or destroy essential elements or functions of critical infrastructure. Critical infrastructure assurance also includes the principles of business continuity. The program improves the resiliency of critical infrastructure by allowing the continuance of function through the effects of a threat. Through the collaborative effort of government and the private sector, Ontario s critical infrastructure will be more disaster resilient and citizens can be assured that services will be more durable during

16 August 17, an adverse event.

17 August 17, INCIDENT MANAGEMENT SYSTEM The government of Ontario has determined that there is an urgent need to implement an approach to emergency management that will permit ministries, communities, organizations, institutions, and industry to operate cohesively. The Incident Management System (IMS) is a standardized system that defines the basic command structure, roles, and responsibilities required for the effective management of an emergency incident or situation. The Ontario IMS is modeled after the North American emergency management standards and recommended best practices that draw substantially from the National Fire Protection Association (NFPA) 1561 and the National Incident Management System (NIMS). Figure 4 illustrates the proposed Ontario IMS model. At each level of the model, whether at the Provincial Operations Centre, a ministry action group (MAG), the community, or at the site of the emergency (Incident Command Post), each group (Command, Operations, Logistics, Planning, Finance and Administration) maintains contact with its counterpart at all other levels. The structure of the IMS ensures that accurate information will flow in a timely manner between all emergency respondents. This is the key to an effective emergency response. All provincial ministries and communities are encouraged to implement the Ontario IMS as soon as possible. The IMS will be required by regulation, as part of the Comprehensive Emergency Management Program requirements for all ministries and communities in Ontario. See Figure 4: Ontario Provincial IMS on next page.

18 Ontario Provincial IMS Model August 17, Executive Authority Emergency Management Committee of Cabinet Strategic Operational Deputy Ministers Strategic Policy Committee Operations Executive Group Command Director Emergency Operations Operations Planning Logistics Safety Liaison Information Finance and Administration Provincial Emergency Operations Centre Command Dir Emergency Operations Ops Plans Log Primary Ministry MAG Tactical Safety Liaison Info Fin & Admin Command Dir Emergency Operations Ops Plans Log Supporting Ministry Supporting Ministry Safety Command Safety Liaison Head of Council Liaison Info Info Fin & Fin & Admin Ops Plans Log Admin Community Ops Section Command Incident Commander Plans Section Figure 4: Ontario Provincial IMS Incident Command Log Section Safety Liaison Info Fin & Admin Sect

19 August 17, LEGISLATION Federal and provincial laws, and their associated Orders in Council and regulations, are the legal basis for all emergency management activities undertaken in the province of Ontario. Under the constitutional division of powers, the management of public order and public welfare emergencies (the bulk of actual emergencies) is led by the provinces, with support from the federal government, while the reverse is true for war and international emergencies. In Ontario, the Emergency Management Act establishes the province s legal basis and framework for managing those emergencies falling within the public order and public welfare spheres. It does this by defining the authority, responsibilities, and safeguards accorded to provincial ministries, communities, and to specific individual appointments (such as the Chief of Emergency Management Ontario). The Emergency Management Act was proclaimed and came into full force and effect on April 15, Key provisions in the Act provide for 2 : The definition of emergency and emergency management program. The requirement that communities and provincial ministries develop and implement an emergency management program. In developing their emergency management programs, communities and ministries must conduct a hazard identification and risk assessment process and they must identify elements of critical infrastructure that might be affected by emergencies. The assignment of responsibility for a specific type of emergency and/or emergency services to a ministry by the Lieutenant Governor in Council. This is done by Order in Council. The authority for the head of council of a community to declare that an emergency exists in the community, to take any necessary action not contrary to law, and to implement the emergency response plan of the community. The authority for the Premier of Ontario to declare that an emergency exists in any part of Ontario, to take any necessary action not contrary to law, and to implement any of the province s emergency response plans. The Premier also has the authority to terminate both provincial and municipal emergency declarations. The appointment of a Chief, Emergency Management Ontario to be responsible for monitoring, coordinating and assisting in the promotion, development, implementation and maintenance of emergency management programs throughout Ontario. The Chief is also responsible for ensuring that these programs are coordinated with the programs of the Government of Canada. The requirement that the Lieutenant Governor in Council formulate emergency plans for nuclear facilities. 2 The key provisions of the Act have been paraphrased for illustrative purposes only. Reference should be made to the full text of the entire Act for the purposes of interpretation.

20 August 17, The authority for the Minister, Community Safety and Correctional Services, to make regulations setting standards for the development and implementation of emergency management programs. Under the Act, thirteen ministers of the Crown have been assigned responsibility for the preparation of emergency management programs and plans for a specific type of emergency and/or specific emergency services. The assignment of a special area of (emergency) responsibility to a Minister is done through an Order in Council (See Appendix A for the current Order in Council). All ministers presiding over a ministry that has not been assigned a specific type of emergency will be required to develop, implement, and maintain a Continuity of Operations program focused on internal emergency management functions, continuity of operations and government services. Ministers will determine which agencies; boards and/or commissions will be designated. If so these agencies, boards and/or commissions will be regulated under the Emergency Management Act.

21 August 17, REGULATIONS AND EMERGENCY MANAGEMENT PROGRAM STANDARDS Under the Emergency Management Act, the Minister of Community Safety and Correctional Services has been granted authority to make regulations setting standards for the development, implementation and maintenance of emergency management programs required by communities and provincial ministries. Regulations have been issued under the Act for both communities and provincial ministries setting out the required elements of an Essential emergency management program. All provincial ministers are responsible for the development, implementation, and maintenance of an emergency management program that includes continuity of operations. The program for provincial ministers and for communities is shown in Appendix B, the Standard for Emergency Management Programs in Ontario. This appendix also includes the standard for communities. In accordance with the progressive system of standards to be implemented, new regulations are expected to be issued setting out the required elements of a Comprehensive emergency management program. A comprehensive emergency management program represents a program that includes all five components of emergency management. Once this has been achieved, the stated aim is to move to a North American emergency management standard, equivalent or superior to the Comprehensive program. This standard is now being developed under the auspices of the National Fire Protection Association (NFPA), with the participation of Emergency Management Ontario and is scheduled for publication in December 2006.

22 August 17, GUIDELINES AND RECOMMENDED PRACTICES Guidelines and Recommended Practices refer to documents issued by Emergency Management Ontario which further develop the emergency management concept in accordance with recognized international practices, or which provide specific guidance in the development and implementation of emergency management programs. Guidelines and Recommended Practices are advisory in nature. The aim of these non-binding documents is both to provide rationale and background to the evolving emergency management concept in Ontario, and to facilitate program development and implementation through the provision of case studies, example documents, and detailed step-by-step procedures and guidelines. In short, they are meant to provide guidance to communities and provincial ministries on proven, effective means to develop and implement emergency management programs. They will also be of interest to partners and stakeholders as they develop complementary emergency management programs. Examples of these documents include the Community Emergency Management Program Handbook and the Guidelines for Provincial Ministry Emergency Management Programs in Ontario.

23 August 17, PLANS AND PROCEDURES Plans and procedures are documents that translate more general emergency management direction and guidance into specific methodologies to implement prevention, mitigation, preparedness, response, and recovery measures. In general, plans lay out aims, policies, basic concepts, organizational structures, roles and responsibilities. Procedures, which are more detailed, outline the steps and specific information required to implement various operations such as notification, public alerting, traffic control, and emergency operations centre activation.

24 August 17, THE COMPLEMENTARY ROLES OF THE PROVINCIAL GOVERNMENT AND COMMUNITIES Under the Emergency Management Act, the provincial government and communities have been given mutually supporting roles in emergency management, each level developing emergency management programs that address priority risks falling within their respective areas of jurisdiction. At the provincial level of government, thirteen ministers of the Crown have been assigned responsibilities for a specific type of emergency and/or specific emergency services through an Order in Council (refer to Appendix A). War Emergencies and other Peacetime Emergencies not specifically assigned to another minister are the responsibility of the Minister of Community Safety and Correctional Services. Ministers assigned a specific type of emergency and/or responsibility for emergency services (and hence their ministries) must put in place an emergency management program and plans that: (I) addresses emergencies falling within their special responsibility areas and (ii) that also support a more general emergency response if such assistance is requested. On a more fundamental level, these ministries are required to provide provincial leadership in the responsibility area, regardless of limitations in mandate. (For example, the Ministry of Agriculture and Food, is responsible for providing provincial leadership in addressing agricultural and food emergencies, although jurisdiction for those areas is shared with the federal government.) Partners such as communities and the federal government that are essential to reducing risk in the responsibility area must be identified and included in the development of an effective ministry emergency management program. Ministries assigned specific types of emergencies, therefore, are responsible as much for providing overall strategic direction as for the commitment of resources within their control. Communities, as the lowest tier of government, must have in place emergency management programs that address all of their priority risks. Where a provincial ministry has been assigned a special responsibility area that coincides with a priority risk at the community level, ministries will be involved, in varying degrees depending upon their mandate, in developing an emergency management program and plans to address that risk. This can mean supporting the emergency management program of a community (by assisting in emergency response if asked, for example) or it can mean leading the entire emergency management program (in the case of forest fires, for example). In developing their emergency management programs, therefore, ministries and communities need to consider and build on the complementary roles and mandates of one another.

25 August 17, THE ROLE OF EMERGENCY MANAGEMENT ONTARIO Under the Emergency Management Act, Emergency Management Ontario, as the overall provincial emergency management organization is responsible for the promotion, development, implementation and maintenance of effective emergency management programs throughout Ontario, and for the coordination of these programs with the federal government. In fulfilling this special coordination role, EMO maintains the Provincial Emergency Operations Centre on a 24/7 basis; coordinates provincial emergency response, when required; provides advice and assistance to communities and ministries in all areas of emergency management; and, maintains two provincial-level emergency response plans the Provincial Nuclear Emergency Response Plan, and the Provincial Emergency Response Plan. The Provincial Emergency Response Plan is a plan that is used to coordinate overall provincial emergency response and outlines how EMO and the ministries respond to widespread or large-scale emergencies. It is supported by ministry emergency response supporting plans that address assigned hazards (i.e. a minister s special responsibility area). The Provincial Nuclear Emergency Response Plan is a plan that is used to coordinate the overall provincial response to a nuclear emergency and outlines how individual ministries as well as designated municipalities will respond. EMO provides advice and assistance to communities and ministries during the emergency response phase, and may coordinate the overall provincial response under one of the two provincial-level plans. In accordance with its mandate, EMO undertakes activities within the following broad areas: Ministry Emergency Management Support Activities (e.g. ministry emergency management training); Community Emergency Management Support Activities (e.g. community emergency management coordinator training, standards, guidelines, best practices); Emergency Response Activities (e.g. coordination of the overall provincial emergency response, provision of advice and assistance to communities); Provincial Emergency Management Program Activities (e.g. program standards, provincial emergency information, preparation of provincial emergency plans); and, Organizational Support Activities (e.g. EMO Strategic Plan, administration)

26 August 17, APPENDIX A: ORDER IN COUNCIL

27 August 17,

28 August 17,

29 August 17, APPENDIX B: EMERGENCY MANAGEMENT PROGRAM STANDARDS EMERGENCY MANAGEMENT ACT ONTARIO REGULATION 380/04 No Amendments STANDARDS Notice of Currency:* This document is up to date. *This notice is usually current to within two business days of accessing this document. For more current amendment information, see the Table of Regulations Legislative History Overview. This is the English version of a bilingual regulation. Emergency management program co-ordinator PART I MINISTRY STANDARDS 1. (1) Every minister shall designate an employee of the ministry as the ministry s emergency management program co-ordinator and another employee as an alternate. O. Reg. 380/04, s. 1 (1). (2) The emergency management program co-ordinator and the alternate emergency management program co-ordinator shall complete the training that is required by the Chief, Emergency Management Ontario. O. Reg. 380/04, s. 1 (2). (3) The emergency management program co-ordinator shall co-ordinate the development and implementation of the ministry s emergency management program within the ministry and shall coordinate the ministry s emergency management program in so far as possible with the emergency management programs of other ministries, of municipalities and of organizations outside government that are involved in emergency management. O. Reg. 380/04, s. 1 (3). (4) The emergency management program co-ordinator shall report to the ministry s emergency management program committee on his or her work under subsection (3). O. Reg. 380/04, s. 1 (4). Emergency management program committee 2. (1) Every ministry shall have an emergency management program committee. O. Reg. 380/04, s. 2 (1). (2) The committee shall be composed of, (a) the ministry s emergency management program co-ordinator;

30 August 17, (b) a senior ministry official appointed by the minister; and (c) such ministry employees who are responsible for emergency management functions as may be appointed by the minister. O. Reg. 380/04, s. 2 (2). (3) The senior ministry official appointed under clause (2) (b) shall be the chair of the committee. O. Reg. 380/04, s. 2 (3). (4) The committee shall advise the minister on the development and implementation of the ministry s emergency management program. O. Reg. 380/04, s. 2 (4). (5) The committee shall conduct an annual review of the ministry s emergency management program and shall make recommendations to the minister for its revision if necessary. O. Reg. 380/04, s. 2 (5). Ministry action group 3. (1) Every ministry shall have a ministry action group. O. Reg. 380/04, s. 3 (1). (2) The group shall be composed of, (a) each deputy minister of the ministry or their designates; (b) the senior ministry official appointed to the ministry s emergency management program committee under clause 2 (2) (b); (c) the ministry s emergency management program co-ordinator; and (d) such other ministry employees as may be appointed by the minister. O. Reg. 380/04, s. 3 (2). (3) The senior ministry official who is a member of the group pursuant to clause (2) (b) may also be a deputy minister s designate to the group under clause (2) (a). O. Reg. 380/04, s. 3 (3). (4) The members of the group shall complete the annual training that is required by the Chief, Emergency Management Ontario. O. Reg. 380/04, s. 3 (4). (5) The group shall direct the ministry s response in an emergency, including the implementation of the ministry s emergency plan. O. Reg. 380/04, s. 3 (5). (6) The group shall develop procedures to govern its responsibilities in an emergency. O. Reg. 380/04, s. 3 (6). (7) The group shall conduct an annual practice exercise for a simulated emergency incident in order to evaluate the ministry s emergency plan and its own procedures. O. Reg. 380/04, s. 3 (7). (8) If determined necessary as a result of the evaluation under subsection (7), the group shall revise its procedures and shall make recommendations to the minister for the revision of the ministry s emergency plan. O. Reg. 380/04, s. 3 (8). (9) A member of the group must be available to be contacted on a 24-hour a day basis seven days a week. O. Reg. 380/04, s. 3 (9). (10) The group may at any time seek the advice and assistance of the following: 1. Officials or employees of any ministry. 2. Officials or employees of any other level of government who are involved in emergency management. 3. Representatives of organizations outside government who are involved in emergency management. 4. Persons representing industries that may be involved in emergency management. O. Reg. 380/04, s. 3 (10).

31 August 17, Emergency operations centre 4. (1) Every minister shall establish an emergency operations centre to be used by the ministry action group in an emergency. O. Reg. 380/04, s. 4 (1). (2) The emergency operations centre must have appropriate technological and telecommunications systems to ensure effective communication in an emergency. O. Reg. 380/04, s. 4 (2). Emergency information officer 5. (1) Every minister shall designate an employee of the ministry as the ministry s emergency information officer. O. Reg. 380/04, s. 5 (1). (2) The emergency information officer shall act as the primary media and public contact for the ministry in an emergency. O. Reg. 380/04, s. 5 (2). Ministry co-ordination 6. (1) Despite subsections 1 (1), 2 (1), 3 (1), 4 (1) and 5 (1), two or three ministers whose ministries have not been assigned additional responsibility for a specific type of emergency under subsection 6 (1) of the Act may jointly do any one or more of the following: 1. Designate one employee of one of the ministries as emergency management program coordinator for the ministries and one employee of one of the ministries as an alternate. 2. Establish a joint emergency management program committee for the ministries. 3. Establish a joint ministry action group for the ministries. 4. Establish a joint emergency operations centre for the ministries. 5. Designate one employee of one of the ministries as emergency information officer for the ministries. O. Reg. 380/04, s. 6 (1). (2) Subsections 1 (2) to (4) apply with necessary modifications to the emergency management program co-ordinator and alternate emergency management program co-ordinator for the ministries. O. Reg. 380/04, s. 6 (2). (3) The joint emergency management program committee shall be composed of, (a) the ministries emergency management program co-ordinator; (b) a senior official of one of the ministries appointed jointly by the ministers; and (c) such employees of the ministries who are responsible for emergency management functions as may be appointed jointly by the ministers. O. Reg. 380/04, s. 6 (3). (4) Subsections 2 (3) to (5) apply with necessary modifications to the joint emergency management program committee. O. Reg. 380/04, s. 6 (4). (5) The joint ministry action group shall be composed of, (a) each deputy minister of the ministries or their designates; (b) the senior ministry official appointed to the joint emergency management program committee under clause (3) (b); (c) the ministries emergency management program co-ordinator; and (d) such other employees of the ministries as may be appointed jointly by the ministers. O. Reg. 380/04, s. 6 (5).

32 August 17, (6) Subsections 3 (3) to (10) apply with necessary modifications to the joint ministry action group. O. Reg. 380/04, s. 6 (6). (7) Section 4 applies with necessary modifications to the joint emergency operations centre. O. Reg. 380/04, s. 6 (7). (8) Subsection 5 (2) applies with necessary modifications to the emergency information officer for the ministries. O. Reg. 380/04, s. 6 (8). (9) If two ministers designate one employee of one of the ministries as emergency management program co-ordinator for the ministries and one employee of one of the ministries as an alternate, but do not establish a joint emergency management program committee for the ministries or do not establish a joint ministry action group for the ministries, the ministries emergency management program coordinator shall serve on one of the ministries emergency management program committee or ministry action group, as the case may be, and the ministries alternate emergency management program coordinator shall serve on the other ministry s emergency management program committee or ministry action group, as the case may be, as determined jointly by the ministers. O. Reg. 380/04, s. 6 (9). (10) If three ministers designate one employee of one of the ministries as emergency management program co-ordinator for the ministries and one employee of one of the ministries as an alternate, but do not establish a joint emergency management program committee for the ministries or do not establish a joint ministry action group for the ministries, the ministers shall jointly appoint a second alternate emergency management program co-ordinator for the ministries and the ministries emergency management program co-ordinator, alternate and second alternate shall each serve on the emergency management program committee or ministry action group, as the case may be, for one of the ministries, as determined jointly by the ministers. O. Reg. 380/04, s. 6 (10). Emergency plan 7. The emergency plan that a minister is required to formulate under subsection 6 (1) of the Act shall be composed of, (a) a continuity of operations plan, as described in section 8 of this Regulation; and (b) if the minister s ministry has been assigned additional responsibility for a specific type of emergency under subsection 6 (1) of the Act, an emergency response plan for the specific type of emergency, as described in section 9 of this Regulation. O. Reg. 380/04, s. 7. Continuity of operations plan 8. A continuity of operations plan shall, (a) assign responsibilities to ministry employees, by position, for continuity planning and implementation; (b) identify the critical functions and services for which the minister is responsible; (c) assess the importance of the systems, infrastructure, assets and resources used in providing the critical functions and services for which the minister is responsible; (d) establish priorities for the resumption of any services that are made temporarily unavailable by an emergency; (e) contain a communications strategy;