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Douglas County Emergency Operations Plan: Agency Roles and Coordination, Study notes of Engineering

The Douglas County Emergency Operations Plan (EOP), which includes the contents of the Base Plan, Douglas County Elected Officials, Departments & Agencies, and their roles during an emergency or disaster. Agencies such as the Douglas County Sheriff's Office, American Red Cross, Salvation Army, and others are listed, along with their responsibilities and the decision-making process for activating the Emergency Operations Center (EOC).

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2021 Douglas County Emergency Operations Plan (EOP)
Adopted by the Douglas County Board of County Commissioners September 14, 2021
Emergency Operations Base Plan
Douglas County Comprehensive Emergency Management Plan
2021 Version 1.0
Douglas County
Emergency Operations
Plan
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2021 Douglas County Emergency Operations Plan (EOP) Adopted by the Douglas County Board of County Commissioners September 14, 2021

Emergency Operations Base Plan

Douglas County Comprehensive Emergency Management Plan

2021 – Version 1.

Douglas County

Emergency Operations

Plan

CONTENTS

  1. Comprehensive Emergency Management Plan (CEMP) / Current Supporting Plans / Annexes List
  • BASE PLAN
  • Promulgation
  • Introduction.....................................................................................................................................................
    • Supersession
    • Purpose
    • Scope
    • Authority
    • Concept of Emergency Management
    • Situation
      • Geography
      • Demographics........................................................................................................................................
    • Hazard Vulnerability & Risk Analysis
    • EOP Implementation & Maintenance
  • Concept of Operations
    • General
    • NIMS
    • Community Lifelines
    • Plan Activation...........................................................................................................................................
    • Incident Typing
    • Field organization
    • Unified command
    • Law Enforcement
    • Fire Services
    • Incident Management Team (IMT)
    • Amateur Radio Emergency Service (ARES)
    • Search and Rescue.....................................................................................................................................
    • Animal Response Team
    • Utility Services
    • Emergency Operations Center (EOC)
    • State of Emergency
    • Disaster Declarations
    • Delegation of Authority
    • Joint Information System & Center
    • Information collection and dissemination
    • Multi-Agency Coordination
      • Coordination with Field Response
      • Coordination with Local Jurisdictions, Agencies and Special Districts
      • Coordination with the North Central Region (NCR)...............................................................................
      • Coordination with State and Federal Agencies
    • Disaster Finance........................................................................................................................................
    • Logistics & Resource Mobilization
    • Short Term Recovery
    • Annexes and Supporting Plans
  • Roles and Responsibilities
    • General
    • Policy Group..............................................................................................................................................
    • Agency Administrator
    • Douglas County Elected Officials, Departments & Agencies
      • Douglas County Elected Officials
      • Douglas County Emergency Services Agencies
      • County Departments and Functions
    • Partnership of Douglas County Governments
    • Douglas County Emergency Support and Affiliated Agencies
    • State & Federal Agencies
    • Emergency Operations Center..................................................................................................................
    • Emergency Support Function Annexes
  • EMERGENCY SUPPORT FUNCTION ANNEXES - ESF 1 – Transportation - ESF 2 – Communications, IT and CyberSecurity - ESF 3a – Public Works - ESF 3b – Debris Management - ESF 4 – Fire Fighting - ESF 5 – Emergency Management - ESF 6 – Mass Care - ESF 6a – Animal Sheltering & Issues - ESF 7a – Logistics and Resources - ESF 7b – Donations Management....................................................................................................... - ESF 7c – Volunteer Management - ESF 8a – Public Health - ESF 8b – Mass Fatality - ESF 9 – Search and Rescue - ESF 10 – Hazardous Materials - ESF 11 – Environmental, Agricultural and Natural Resources - ESF 12 – Public Services, Utilities - ESF 13a – Law Enforcement - ESF 13b – Evacuation & Traffic Control - ESF 14 – Recovery - ESF 15a – Public Information - ESF 15b – Warning & Communications
  • HAZARD SPECIFIC ANNEX SUMMARIES - Active Threat (Internal to Douglas County buildings or locations) - Cyber Security - Hazardous Materials............................................................................................................................ - Mass Fatality........................................................................................................................................ - Power Outage (to be developed at a later date) - Public Health Emergency - Severe Weather - Terrorism - Wildland Fire
  • GENERAL APPENDICES
      1. Record of Changes..........................................................................................................................
      1. Signatures
      1. Policies
      • 3A. Adoption of the national incident management system (NIMS)
      • 3B. Emergency and Disaster Authorization (EDAR)
      • 3C. Emergency and Disaster Finance Policy
      • 3d. Adoption of the Emergency Operations Plan
      • 3E. PDCG IGA for Disaster-Emergency Mutual Aid and Disaster-Emergency Resource Assistance
      1. References
      • 4A. Douglas County Delegation of Authority and Addenda
      • 4B. State of Emergency Declaration – Sample Verbiage
      • 4C. Local Disaster Declaration – Sample Verbiage
      • 4D. Incident Complexity Analysis (Wildfire)
      1. Acronyms & Key Terms..................................................................................................................
      • 5A. Acronyms
      • 5B. Key Terms
      • 5C. ICS Summary
      • 5D. Emergency Operations Center (EOC) Organization
  • ATTACHMENTS
      1. Fire District Map
      1. DCSO Patrol District Map

and other agencies that have significant responsibilities associated with recovery from a

disaster.

Per the Emergency Delegation of Authority Resolution ( EDAR, General Appendices, 3B ),

Douglas County Emergency Services (DCES) is directed by the Office of Emergency

Management (OEM) and supported by the Facilities, Fleet and Emergency Support

Services (FFESS) staff and is defined as a cross-functional collaborative group

representing all Elected Official Offices, Departments, and Divisions who participate

and/or have a role in emergency management and preparedness for Douglas County

Government. The DCES is responsible for working collaboratively to revise the Plan.

The DCES group is responsible for collaborating to ensure all County elected officials are

alerted of EOC activations and are aware of status before, during and after an incident.

Occasionally there will be status updates for potential hazards or emergencies that have

the potential to affect Douglas County.

In addition, the following verbiage was added to all Douglas County and DCSO job

descriptions in 2015. In the event of an emergency/disaster in or near the county, all

County employees are expected to make every effort to be available to assist the County

Manager, Elected/Appointed Officials and Department Directors to ensure the continued

operation of any and all necessary County functions. This may mean being available to

perform additional duties and hours beyond what is normally required.

The Douglas County Office of Emergency Management (DCOEM) is responsible for

required periodic updates and revisions to this document. The DCOEM will develop

training and exercise programs to familiarize City and County personnel, emergency

officials, volunteer organizations, and other appropriate private sector organizations

with the provisions of the EOP. It is also responsible for the dissemination of emergency

planning and response information to the citizens of Douglas County.

The EOP is a document that will evolve as it is tested during exercises and real incidents.

The EOP will be reviewed by all Emergency Management partners and updated

periodically. This document will serve as one of many tools meant to improve

coordination among all Emergency Management partners including those at the

Federal, State and Local government level, voluntary disaster relief organizations, and

the private sector. The mission of the collaborating agencies is to enhance public safety,

protect lives, property and the environment, and restore affected communities quickly

and efficiently following a disaster. All participating agencies, departments and

enterprises are responsible for understanding their roles within the Douglas County

EOP.

The EOP is organized into five parts:

1. The Base Plan: This section introduces the overall EOP and gives it authority,

provides the general planning concept, outlines standard or commonly accepted

agency responsibilities at a county level, and identifies legal authorities and

references. The EOP is considered a public document, although specific phone

numbers or names may be removed prior to public distribution.

2. Emergency Support Function (ESF) Annexes: Each Annex contains a general

description of the function, the major response and recovery responsibilities of

the function, and identifies primary and support agencies. These are planning

documents, not procedural documents, and are typically available for public

view. Lead agencies may identify other planning efforts or procedures that assist

in the execution of the ESF. These documents may fall under different rules or

requirements for public availability.

3. Hazard Specific Annexes: Hazard-specific information relating to the unique

responsibilities and resource requirements of the type of disaster most likely to

be faced in Douglas County are collected in these documents. Hazard-specific

information is based on the 2021 Local Hazard Mitigation Plan (LHMP). Most

Annexes are typically available for public view; however, some Annexes may

contain sensitive information and may be removed prior to public release.

4. General Appendices: The Appendices include policies and references, acronyms

and key terms, and an ICS Summary.

5. Attachments: These documents may provide specific information or tools such

as maps, sample or actual contracts and agreements, phone lists, specialized

county programs or policies or diagrams. Attachments serve to augment the

EOP; while some attachments may be available for public view most are not due

to the sensitive nature of their content and are not considered public

documents. This part of the EOP is updated more frequently than the rest of the

plan to reflect changes in best practices and standard operating procedures.

SUPERSESSION

Upon completion and formal adoption, this plan will supersede and replace the existing

Douglas County Emergency Operations Plan (EOP) dated September 2016.

with the disaster agencies of municipalities situated within its borders. Likewise, when

resources are unavailable with Douglas County, the county shall look to the State to

provide assistance and support. To facilitate cooperation, this Plan is applicable to all of

Douglas County, but does not supersede or replace municipal or state emergency

operations plans, nor is it meant to replace department or agency operating procedures.

It is a guideline meant to be scalable for either small events or large incidents that

require multi-agency coordination.

The Plan is organized into five major sections:

1. The Base Plan : This section introduces the overall EOP and gives it authority,

provides the general planning concept, outlines standard or commonly accepted

agency responsibilities at a county level, and identifies legal authorities and

references. The EOP is considered a public document, although specific phone

numbers or names may be removed prior to public distribution.

2. Emergency Support Function (ESF) Annexes : Each Annex contains a general

description of the function, the major response and recovery responsibilities of

the function, and identifies primary and support agencies. These are planning

documents, not procedural documents, and are typically available for public

view. Lead agencies may identify other planning efforts or procedures that assist

in the execution of the ESF. These documents may fall under different rules or

requirements for public availability.

3. Hazard Specific Annexes : Hazard-specific information relating to the unique

responsibilities and resource requirements of the type of disaster most likely to

be faced in Douglas County are collected in these documents. Hazard-specific

information is based on the 2015 Local Hazard Mitigation Plan (LHMP). Most

Annexes are typically available for public view; however, some Annexes may

contain sensitive information and may be removed prior to public release.

4. General Appendices : The Appendices include policies and references, acronyms

and key terms, and an ICS Summary.

5. Attachments : These documents include the component documents or

references to documents that constitute the Comprehensive Emergency

Management Plan (CEMP) and other documents that may provide specific

information or tools such as maps, sample or actual contracts and agreements,

phone lists, specialized county programs or policies or diagrams. Appendices

serve to augment the EOP; while some appendices may be available for public

view most are not due to the sensitive nature of their content and are not

considered public documents. This part of the EOP is updated more frequently

than the rest of the plan to reflect changes in best practices and standard

operating procedures.

SCOPE

The EOP applies to all incidents or events within the geographic boundaries of Douglas

County and uses the all-hazard approach and addresses a full range of complex and

constantly changing requirements in anticipation of, or in response to, threats or acts of

major disasters (natural or technological), terrorism and other emergencies. The EOP

also applies to any event that may affect Douglas County regardless of location or size.

This includes events in neighboring jurisdictions, large-scale events within the State of

Colorado, or any situation where Douglas County may be called upon for Mutual Aid.

The EOP is always activated and in use in one sense or another, but escalation due to a

large-scale event may occur at any time and can be accommodated due to the flexible

nature of the Plan.

The EOP does not specifically address long-term reconstruction, redevelopment, and

mitigation measures as these are covered in separate plans in the CEMP.

The EOP embraces the concept of scalability, and therefore may be expanded or

contracted to suit any size, scope, scale, or magnitude of events, including catastrophic

incidents. While the plan is not intended for use in the response or recovery of

incidents which are considered part of the daily operating procedures, the plan may be

helpful if standard events coincide and cause a strain on Douglas County’s resources.

Douglas County is responsible for emergency response operations in all unincorporated

areas of Douglas County and in cooperation with all jurisdictions located in Douglas

County.

AUTHORITY

Federal

1. Robert T. Stafford Disaster Relief and Emergency Assistance Act and

Amendments (Volume VI Public Law 93-288 as amended by Public Law 100-

2. Homeland Security Act and Information Sharing Act of 2002

3. Post-Katrina Emergency Management Reform Act of 2006

4. County Resolution No. R012-092, approving Intergovernmental Agreement

for Emergency Management State-wide, September 11, 2012,

AND

5. County Resolution No. R0 21 - ___, defining Emergency and Disaster

Authorizations and approving the Douglas County Emergency Operations

Plan, September ___, 20 21.

CONCEPT OF EMERGENCY MANAGEMENT

Emergency Management employs a comprehensive approach to all-hazards planning

and focuses on a collaborative effort with a wide range of partners. This shared

responsibility becomes a collection of disciplines that together seek to build a more

prepared and disaster resilient community. To support this, Emergency Management

performs a support and coordination role, not a command and control function. There

are five phases of emergency management: prevention, mitigation, preparedness,

response and recovery.

  • Prevention efforts attempt to avoid or stop an incident from occurring all

together.

  • Mitigation involves actions to minimize or reduce the adverse effects resulting

from a disaster.

  • Preparedness encompasses the planning, training and exercising of emergency

equipment, policy and procedures.

  • Response includes actions taken during the incident to address the immediate

and short-term threats to life, property, environment and the social, economic

and political structure of the community.

  • Recovery involves the implementation of programs needed to help communities

return to normal. Recovery can be loosely categorized as short- and long-term

actions.

SITUATION

GEOGRAPHY

Douglas County’s land area covers approximately 844 square miles. The County lies

close to the center of the State along the I-25 Corridor between the major urban activity

centers of Denver and Colorado Springs. It encompasses over 540,000 acres of a varied

topography of mountains, foothills, riparian corridors, and grasslands. The county is

lightly wooded, mostly with ponderosa pine, with broken terrain characterized by

mesas, foothills and small streams. Cherry Creek and Plum Creek rise in Douglas County

and flow north toward Denver and into the South Platte River. Both were subjected to

flash flooding in the past, Plum Creek being partially responsible for the Denver flood of

1965. Cherry Creek and Plum Creek are now dammed.

Elevations range from a low of 5,400 feet in the northeastern area to the high point of

9,836 feet at Thunder Butte in the Pike National Forest.

Douglas County’s vegetation includes pine, spruce, and fir trees in the Pike National

Forest and gamble oak, mountain mahogany, and choke cherry in the foothills.

Cottonwood trees, willows, and grasses inhabit the riparian ways and blue gramma,

switch grass, and winter wheat grasses can be found on the grassland prairie.

Douglas County’s

wildlife includes

deer, elk, coyote,

mountain lion,

fox, hawk, black

bear, the

Preble’s meadow

jumping mouse

(a threatened

species) and is

the nesting

ground of the

Sharp-tailed

Grouse.

The County’s natural amenities accommodate a wide variety of residential categories

ranging from agricultural and pastoral to remote mountain settings to urban living. As of

2019 , the County includes seven incorporated municipalities including Aurora (part),

Castle Pines, Castle Rock, Larkspur, Littleton (part), Lone Tree, and Parker.

Approximately 18% of the land area of the County is urban and the majority of the

County population resides in the northern tier. The majority of the land area in the

County remains in rural (non-urban) land use. More than one-fourth (140,932 acres) of

the County is national forest land within the Pike National Forest. Three State recreation

areas and parks are situated within Douglas County: Roxborough State Park, Chatfield

Reservoir State Recreation Area, and Castlewood Canyon State Park. Major waterways

Table 1 – 2019 Douglas County Population & Land Use Area Information

2019 Population

Est a/o 1.1. 20

(of total County Population)

Land

Area

(Acres)

(of total County Area) Unincorporated Area Primary Urban Area __* 130,^

Castle Pines SUA 4,670 1. 3 % 2,650 >1% Chatfield Urban Area 1,620 0% 6,910 1% Pinery SUA 11,800 3. 2 % 5,491 1% Roxborough SUA 9,390 2. 5 % 2 , 449 > 1 % Municipal Planning Areas (unincorporated)

**Rural (Non-urban) **** 30,800 8. 3 % 440,225 82 % Unincorporated Population 205,800 55.6% 487,646 91% Municipalities City of Castle Pines 11,770 3. 2 % 6,101 1% Town of Castle Rock 72,770 19.7% 21,303 4% Town of Larkspur 195 .1% 935 >1% City of Lone Tree 16,300 4. 4 % 6,104 1% Town of Parker 60,125 16 .3% 14,12 0 3% City of Aurora 2,330. 6 % 1,454 >1% City of Littleton 710. 2 % 159 >1% Incorporated Urban Population

Urban Population 336,700 91% Rural Population 33,300 9% Countywide Total 370,000 537,

_ The community of Highlands Ranch, with a population of 105,417 comprises 51 % of the population of the Unincorporated Population. Source: US Census 2018 estimates ** Includes 140,932 acres in the Pike National Forest and 8,463 acres in Chatfield, Roxborough and Castlewood Canyon State Parks. Source: Douglas County Population 2011 Estimates Report; Douglas County Community Planning and Sustainable Development._*

HAZARD VULNERABILITY & RISK ANALYSIS

Douglas County enjoys a semi-arid climate. The county averages 19 inches of rain and 79

inches of snow annually. Summer high temperatures average 86 degrees and winter

low temperatures average 18 degrees. Douglas County is geographically diverse area

with three distinct zones running north to south. A majority of the western part of the

County is covered by the Pike National Forest, highly timbered in Ponderosa Pine and

Scrub Oak with numerous recreational areas and several residential areas enclosed by

the forest. This heavily forested region transitions into the central area of the county

with an extensive Wildland-Urban Interface boundary. The central area of the county is

comprised by the urban and sub-urban areas of the I-25 corridor with a substantial mix

of residential, business and industrial construction and includes the densely populated

areas of Highlands Ranch, Parker, Lone Tree, Castle Pines, Castle Rock, and Larkspur.

The eastern portion of the county is largely suburban and rural although it also

encompasses the Town of Parker on the north. Within this eastern area of the county

the rural residential areas of the Pinery, Franktown and Russellville lie within the

northern portion of the Black Forest presenting extensive areas of Wildland Urban

Interface.

Douglas County is vulnerable to many natural hazards and technological events that

may cause a disaster. Possible natural hazards include wildland fires, floods, severe

weather, winter storms, hail, floods, drought, and earthquakes. There is also the threat

of terrorism or man-made incidents such as nuclear, biological, or chemical attack or

accidents. These hazards and vulnerabilities are described in detail in the Hazard

Vulnerability Analysis (Table 2 ). For further detail on the Profile for each Hazard or

Threat please reference the 2021 Douglas County Local Hazard Mitigation Plan (LHMP)

(estimated completion date June 20 21 ). The LHMP replaces the Threat and Hazard

Identification and Risk Assessment (THIRA) Plan found in many Colorado jurisdictions.

The LHMP provides for a Whole Communities approach to natural hazard and risk

identification for Douglas County. Man-made hazards and risks are identified and

assessed in the EOP.

Eleven Mile, Strontia Springs

  • Class 2 (one failure) Rampart, J.O. Hill, Pinery, Wauconda, Spring Gulch, Million Dollar have a domino effect and cause the failure of the downstream dams.
  • The largest threat is the Cheesman Reservoir dam.
  • The inundation maps show the Trumbull area under 53 feet of water ten minutes after a catastrophic failure of Cheesman Dam.
  • Flooding in Westcreek area led to damage to homes and roads. The dam in Westcreek has now been reinforced.
  • Douglas County owns more than twenty watershed protection and flood control reservoirs. Numerous drainage and detention structures are present throughout the County which may pose a local flood risk to downstream properties.

Hazard / Threat

Description /

Frequency

Threatened

Areas

Notes

Drought

  • Can occur year-round, typically worsening during hot summer months with low relative humidity levels. - All areas of Douglas County - Hazard Profile:Spatial Extent – SignificantLikelihood of Future Occurrence – HighMagnitude / Severity – MediumSignificance – Medium - During dry periods, there is an increase in ignition fuel, creating greater fire danger. - Drought also causes stress to wildlife populations, reducing them in numbers from normal water years due to starvation, encroaching into residential neighborhoods seeking food, etc. - Can lead to water rationing for the human population.

Hazard / Threat

Description /

Frequency

Threatened

Areas

Notes

Earthquake

  • At least 4 major faults exist within Douglas County.
  • The frequency is unpredictable and will not be anticipated by the majority of the population.
  • No major earthquakes have historically occurred in the County.
  • The projected maximum quake is 5.5.
  • Projected Vulnerability: o 1 household displaced in 500 year earthquake, 31 households displaced in 250 year event. o $77.5 million in estimated total damage from 500 year event o $1.087 billion in estimated total damage from 2500 year event. - All areas of Douglas County - Hazard Profile:Spatial Extent – SignificantLikelihood of Future Occurrence – MediumMagnitude / Severity – LowSignificance – Medium

Hazardous

Materials

Release -

Fixed Facility

  • Businesses can operate 24 hours a day and may expose a risk at any time.
  • Substantial numbers of businesses have reported hazardous chemical inventories to the DC Local - All areas of Douglas County - Hazard Profile:Spatial Extent – SignificantLikelihood of Future Occurrence – LowMagnitude / Severity – MediumSignificance – Medium