Alameda County Catastrophic Earthquake Mass Care …€¦ · Alameda County Catastrophic Earthquake...

Alameda County

Catastrophic Earthquake

Mass Care and Shelter Plan March, 2010

Acknowledgment

“This project was supported by the CA Emergency Management Agency under Regional Catastrophic Grant Program # FY07/08 RCPGP #2008‐CP‐T8‐0018, OES ID 075‐95017, awarded by the US Dept. of Homeland Security.”

FY 07/08 RCPGP # 2008‐CP‐T8‐0018

Disclaimer

This document was prepared under a grant from FEMA’s Grant Programs Directorate, U.S. Department of Homeland Security. Points of view or opinions expressed in this document are those of the authors and do not

necessarily represent the official position or policies of FEMA’s Grant Programs Directorate or the U.S. Department of Homeland Security.

Record of Changes Change No. Copy No. Date Entered Posted By

Forward The vulnerability of the San Francisco Bay Area to earthquakes is well known. According to the

2008 Uniform California Earthquake Rupture Forecast,1 the probability of a magnitude 7.6 or greater earthquake in the Bay Area within the next 30 years is 63 percent. An earthquake of this magnitude will result in widespread and catastrophic damage.

A catastrophic earthquake in the Bay Area will immediately overwhelm local, regional and State emergency response capabilities. The region will need massive, rapid support from the Federal Government, other local governments in California, other states, and nonprofit and private-sector organizations. The effectiveness of the region’s response will affect the long-term recovery of the region’s communities and economy. An effective response will only be possible if comprehensive planning has taken place.

The Federal Government is providing funding under the Regional Catastrophic Planning Grant Program (RCPGP) to selected metropolitan areas throughout the United States to plan for catastrophic events. The San Francisco Bay Area is one of the metropolitan areas. The Department of Homeland Security’s Federal Emergency Management Agency (FEMA) is administering the program. The Bay Area Urban Area Security Initiative (UASI) Program is

implementing the RCPGP for 12 counties and two cities2 in the Bay Area. For fiscal year 2007/2008, the UASI Program has used RCPGP funding to prepare plans in five functional areas: Debris Removal, Mass Care and Sheltering, Mass Fatality, Mass Transportation/ Evacuation, and Volunteer Management.

This document, the Alameda County Catastrophic Earthquake Mass Care and Shelter Plan (Plan), has been prepared under the RCPGP. Mass Care and Shelter is a critical component of the response to an earthquake. A magnitude 7.9 earthquake on the San Andreas Fault will result in an estimated 329,900 people in the 12-county Bay Area region who will need shelter.

This Plan is a supporting component to the Alameda County Emergency Operations Plan and is an annex to the Alameda County Operational Area Mass Care and Shelter Plan, the platform upon which the Plan was constructed. The Plan is consistent with:

Applicable local and State plans and requirements

The 2008 Regional Emergency Coordination Plan (RECP), including the Regional Catastrophic Earthquake Mass Care and Sheltering Plan developed under the RCPGP as an incident-specific subsidiary plan to the RECP

The 2008 San Francisco Bay Area Catastrophic Earthquake Readiness Response Concept of Operations Plan, prepared by FEMA.

1 Edward H. Field, et al., The Uniform California Earthquake Rupture Forecast,

Version 2.0 (UCERF 2), (USGS Open File Report 2007-1437, 2008). Available at http://pubs.usgs.gov/ of/2007/1437/.

2 Alameda, Contra Costa, Marin, Monterey, Napa, San Benito, San Francisco, San, Santa Clara, Santa Cruz, Solano, Sonoma, the City of Oakland, and the City of San Jose.

Participation and Support The Alameda County Catastrophic Earthquake Mass Care and Shelter Plan was developed with the participation and support of the following:

Alameda County Sheriff’s Office – Office of Homeland Security & Emergency Services staff

Alameda County Sheriff’s Office – Support Services Unit

City of Berkeley

City of Dublin

City of Livermore

City of Pleasanton

TABLE OF CONTENTS

SECTION 1 PURPOSE ................................................................................................1

SECTION 2 AUTHORITIES AND REFERENCE......................................................2

2.1 OBJECTIVES ..............................................................................3

2.2 PLAN ASSUMPTIONS ..............................................................7

SECTION 3 CONCEPT OF OPERATIONS .............................................................11

3.1 ROLES AND RESPONSIBILITIES .........................................12

3.1.1. COUNTY SOCIAL SERVICES AGENCY .................. 12

3.1.2 SCHOOL DISTRICTS ..................................................13

3.1.3 AMERICAN RED CROSS............................................13

3.1.4 ALAMEDA COUNTY HEALTH CARE SERVICES

AGENCY .......................................................................13

3.1.5 COMMUNITY BASED ORGANIZATIONS (CBOs) .14

3.1.6 EDEN INFORMATION AND REFERRAL

SERVICES (2-1-1) ........................................................ 14

3.1.7 VOLUNTEER ORGANIZATIONS ACTIVE IN

DISASTER (VOAD) .....................................................14

3.1.8 THE PRIVATE SECTOR..............................................15

3.2 NOTIFICATION AND ACTIVATION OF THE COUNTY

EOC CARE & SHELTER BRANCH........................................15

3.3 INFORMATION........................................................................16

3.3.1 SHELTER ACTIVITY ..................................................17

3.3.2 INFRASTRUCTURE ....................................................17

3.4 SELECTING SHELTERING SITES ........................................17

3.5 TYPES OF SHELTER FACILITIES ........................................19

3.5.1 ARC SHELTERS...........................................................19

3.5.1.1 PUBLIC SCHOOL BUILDINGS ................20

3.5.1.2 GOVERNMENT-OWNED FACILITIES ...20

3.5.1.3 FACILITIES OWNED BY FAITH-BASED

ORGANIZATIONS .....................................20

3.5.2 SPONTANEOUS SHELTERS ......................................21

TABLE OF CONTENTS

CONTINUED PAGE TWO

3.5.3 SHELTER RESOURCES ..............................................21

3.5.4 SHELTER STAFFING ..................................................21

3.5.5 MEDICAL CARE IN SHELTER ..................................22

3.5.6 TRANSPORTATION OF PEOPLE ..............................23

3.5.7 FOOD SERVICES .........................................................23

3.5.8 ANIMAL CARE ............................................................23

TABLES

1. RECOMMENDED NUMBER OF SHELTER WORKERS NEEDED ACCORDING TO SHELTER SIZE .............................................................................................. 22

FIGURES

1. THE STRUCTURE OF THE OPERATIONAL AREA EMERGENCY OPERATIONS CENTER, BASED ON THE INCIDENT COMMAND SYSTEM ........................11

APPENDICES

1 ARC SHELTER FACILITY SURVEY ................................................................ 25

2 CARE AND SHELTER BRANCH CHECKLIST ............................................... 31

3 SHELTER ACTIVITY ........................................................................................... 32

4 ESTIMATED QUANTITIES OF RESOURCES TO SUPPORT SHELTER

RESIDENTS ......................................................................................................... 35

5 CATASTROPHIC EARTHQUAKE SCENARIO

SAN ANDREAS FAULT ............................................................................... 36

6 CATASTROPHIC EARTHQUAKE SCENARIO

HAYWARD FAULT ....................................................................................... 48

Alameda County Catastrophic Earthquake Mass Care and Shelter Page 1 of 56

Section 1 Purpose The purpose of the Alameda County Catastrophic Earthquake Care and Shelter Plan (Plan) is to describe the responsibilities and actions of organizations and agencies required for the coordination of a mass care and shelter response in the County. The Operational Area includes the cities and unincorporated jurisdictions of the County. This Plan provides an overview of objectives, assumptions, operational concepts, identifies relevant components of the emergency management organization within the Standardized Emergency Management System (SEMS) and Incident Command System (ICS), and identifies the public and private organizations responsible for providing mass care, shelter, and medical and public health services. More specifically, the Plan also provides direction on: staging, command, control and deployment of State and Federal resources; and coordination of local, regional, State, Federal, private-sector, and non-governmental organizations (NGO’s) that have a role in mass care and sheltering operations. This Plan is intended to be used in conjunction with the Alameda County Emergency Operations Plan (2007) and the all-hazards base provided by in Alameda County Operational Area Mass Care and Shelter Plan. The Plan does not address normal day-to-day emergencies or the well-established and routine procedures used in coping with such emergencies. Instead, the operational concepts reflected in this Plan focus on response to a potential large-scale, catastrophic earthquake incident which would generate unique and extreme situations and circumstances requiring unusual emergency coordination and responses. This Plan is a scenario-driven, function-specific operations plan for Alameda County and describes mass care and sheltering responses and operations in the aftermath of a catastrophic earthquake on the San Andreas Fault and, by association and similarity, a catastrophic earthquake on the Hayward Fault. Attached are the two separate catastrophic earthquake scenarios created to support development of four regional plans under the Regional Catastrophic Preparedness Grant Program (RCPGP) and this Plan. The scenarios are: 1) a re-occurrence of the 1906 San Andreas Fault Earthquake, and 2) an earthquake on the Hayward Fault. Descriptions, data and assumptions created to develop the two scenarios provide extreme and realistic contextual examples of the type of events which this plan, and incorporated reliance on the SEMS and subordinate ICS and Mutual Aid Systems, has been created to address. This information is attached in Appendix 5 – the Catastrophic Earthquake Scenario on the San Andreas Fault, and Appendix 6 - the Catastrophic Earthquake Scenario on the Hayward Fault. The Plan is a preparedness document designed to be read, understood and exercised prior to an emergency. It will be distributed to key employees of the County Social Services Agency,


Sheriff’s Department and other agencies, to guide the actions of those with response roles and responsibilities in the Alameda County OA Emergency Operations Center (EOC). Companion documents to this Plan are, as indicated, the existing Operational Area Care and Shelter Plan and the Local Government Template for Care and Shelter, which provides local government with a guide to coordinate care and shelter services in a city EOC. The Plan is a document that will continually evolve. The Plan was created in 2009/2010. Recommendations for improvement are solicited and will be carefully considered for revision.

Section 2 Authorities and References

Emergency response, like all governmental action, is based on legal authority. The Alameda County Plan is a support document to the overall Alameda OA Emergency Plan and companion document to the base County OA Care and Shelter Plan, and follows State and Federal guidelines for coordinating emergency response.

In accordance with the National Incident Management System (December 2008), this Care and Shelter Plan addresses the following components:

Preparedness. The Plan will be included in the training of the Social Service Agency and Sheriff’s Department’s emergency management personnel. Exercises will be based on concepts in this plan.

Communication. The Plan emphasizes the exchange of information about response activities between the organizations and management systems that support the provision of shelter services in the Operational Area

Resource Management. To support this responsibility of the Operational Area, Emergency Operations Center, Logistics Section, the Plan emphasizes the coordination of information needed for efficient management of shelter facilities and shelter support.

Command and Management. The Plan explains the incident organization structures used to coordinate shelter services in the Operational Area.

Ongoing Maintenance. The Plan is intended to be an evolving document, supported by lessons learned from after-action reports that follow exercises and response operations.

The Robert T. Stafford Disaster Relief and Emergency Assistance Act authorizes federal, state, and local government to provide emergency relief and support to people impacted by disaster.

According to California Health and Safety Code Section 34070 – 34072, local government must provide or contract with recognized community organizations to make emergency or temporary shelter available for people made homeless by a natural disaster or other emergency.

California’s State Emergency Plan (2009) puts local government at the first level of response for meeting the disaster needs of people in its jurisdiction. People seeking care and shelter immediately after an incident will look first to local government for assistance.

The California Emergency Services Act (Chapter 7 of Division 1 of Title 2 of the Government Code) provides the basic authorities for conducting emergency operations following a


proclamation of Local Emergency, State of Emergency, or State of War Emergency by the Governor and/or appropriate local authorities, consistent with the provisions of the Act.

Mutual aid may be requested and provided prior to, or after a declared emergency under the Master Mutual Aid Agreement. The Alameda County Emergency Operations Plan is published in accordance with the Emergency Services Act and provides overall county-wide authorities and responsibilities, and describes the functions and operations of government at all levels during extraordinary emergencies, including wartime The Standardized Emergency Management System (SEMS) Regulations (Chapter 1 of Division 2 of Title 19 of the California Code of Regulations) establishes the management organization to provide an effective response to multi-agency and multi-jurisdictional emergencies in California SEMS incorporates the use of the Incident Command System, the Master Mutual Aid Agreement and existing mutual aid systems, the Operational Area concept, and multi-agency or inter-agency coordination.

The California Civil and Government Code (CGC) contains several references to liability release (Good Samaritan Act) for those providing emergency services including:

CGC, Title 1, Division 4, Chapter 8, Sections 3100, 3101, and 3102, Declaration: Public Employees as Disaster Service Workers.

The Plan is intended to coordinate with the concept of operations and plans described in the Regional Catastrophic Earthquake Mass Care and Shelter Plan which has been developed by the Bay Area Urban Area Security Initiative.

2.1 Objectives

The Care and Shelter Plan is guided by the following objectives:

Provide effective coordination within the Operational Area of resources in support local governments and the unincorporated areas during incidents that require care and shelter operations.

Project the potential catastrophic impacts of and response to the earthquake

Define the planning assumptions

Identify agencies with roles in mass care and sheltering operations and define their roles

Describe the resources required for mass care and sheltering operations and mechanisms for integrating State and Federal resources into mass care and sheltering operations in Alameda County

This section provides a description of estimated, potential, operational priorities and response objectives. They apply to the mass care and shelter functional area and depict potential phases of response which might occur following a catastrophic earthquake in the Bay Area and Alameda County. As indicated, the focus of this Plan is a magnitude 7.9 earthquake on the San Andreas Fault or scaled response to a catastrophic earthquake on the Hayward Fault.

They are categorized, time-based, and provide a lose framework for the development of specific actions which could be developed, expanded on, and evaluated during the plan development process. The phases are:

Event occurrence (E) to E+72 hours: Initial analysis and action


E+72 hours to E+14 days: Establishment of shelters

E+14 days to E+60 days: Ongoing support of shelters

E+60 days to E+1 year: Transition from shelters to interim housing.3

Note: The phases are consistent with the phases the Federal Emergency Management Agency (FEMA) and the California Emergency Management Agency established for the San Francisco Bay Area Catastrophic Earthquake Readiness Response Concept of Operations Plan (CONPLAN), issued in September 2008. The phases have been adopted for incorporation and use in this Plan. They provide a mechanism for organizing the objectives and associated actions, regionally, and relate the actions described in the CONPLAN with those that will be developed for regional plans and this Plan. The phases that follow the actual occurrence of an earthquake will likely vary from those listed here depending on the severity, location, type, and extent of damage, and some of the actions described in the plans may be undertaken outside the specified phases. The variations of the phases are indicated in this document.

E TO E+72 Hours

The operational priorities are:

Identify the need for shelter

Initiate the supply network

Initiate shelter operations

The response objectives are:

Coordinate initial damage assessment and other situational reports related to mass care and shelter

Evaluate the current shelter resource capabilities of the agencies with mass care and shelter responsibilities

Evaluate the ability of the road network to move people and supplies into shelters

Develop situational awareness of the current and ongoing need for shelter in the general population

Open evacuation shelters

Evaluate the need to shelter jail populations

Notify all the agencies that will support shelter operations with staff and supplies

E+72 Hours to Days E+14


3 Of the four functional areas for which URS is preparing plans, only mass care and shelter addresses activities

beyond 60 days.


Provide shelter to those who need it Evacuate those who need to be evacuated

Develop an interim housing strategy


Initiate damage assessment and building inspections of shelter sites

Mobilize staff and supplies for shelter and evacuation sites

Begin to open shelters

Establish a Multi-Agency Coordination Group for shelter operations, as needed

Evaluate the access and functional needs of shelter residents

Identify shelter residents with critical medical conditions who cannot be served in general population shelters

Monitor the capability of currently open shelters to serve their residents

Provide information to the Construction/Engineering Branch about routes that must be opened to support shelter operations

Coordinate with the Evacuation Unit to locate and establish evacuation sites for transferring and receiving evacuees that provide:

Pickup points for initial collection of evacuees

Evacuation shelters to receive evacuees

Shelters for those without travel or other housing alternatives

Coordinate the movement of affected jail populations to shelters that are separate from the general population

Establish communication systems between mass care sites and Emergency Operations Centers

Initiate animal shelters

Support people who choose not to use shelters by providing information and bulk supplies to the extent possible

Initiate governmental and non-governmental systems for tracking displaced residents and re-unifying households

Prepare and disseminate information to local residents

Prepare and disseminate information to tourist populations

Collect data from damage assessments and building inspections of housing

Assess interim housing requirements

Initiate development of an interim housing strategy that describes interim housing options


Coordinate local interim housing operations with State and Federal governments through formation of a State-led Housing Task Force

Support Federal tele-registration for individual housing assistance

Establish Local Assistance Centers/Disaster Recovery Centers

E+14 Days to E+60 Days


Maintain full shelter capability

Fully integrate support for access and functional needs throughout the shelter system

Continue to support people who choose not to use shelters by providing information and bulk supplies to the extent possible

Maintain support of shelters for animals

Initiate the transition from shelters to interim housing


Maintain ongoing situational awareness of shelter activities

Evaluate safety assessments and building inspections of homes

Monitor and coordinate the capabilities of agencies, vendors, and other organizations to support shelters and displaced residents

Fully integrate resources for access and functional needs, animals, and resupply of shelters and distribution sites that support people outside shelters

Identify opportunities to close shelters and return residents to homes or available housing

Transition families from short-term solutions (e.g., hotels) to longer term solutions

Initiate coordination with Emergency Support Function #14 to develop community plans

Facilitate restoration of moderately damaged dwellings

E+60 Days to E+1 Year


Complete the transition of displaced families from shelters to interim housing

Develop and implement a long-term housing strategy

Transition families to permanent housing


Close shelters and end bulk distribution operations

Continue to implement interim housing programs


Provide wrap-around services to support those in interim housing

2.2 Plan Assumptions

The coordination of care and shelter operations among local jurisdictions assumes the following:

Incidents begin and end locally, and are managed at the lowest possible geographical, organization, and jurisdictional level.

The Care and Shelter response will meet the needs of the community first, before serving the purposes of government.

The American Red Cross Bay Area Chapter and local governments will commit all available resources to meet the needs of residents impacted by the incident.

Local government has established an emergency organization for addressing shelter operations.

Local government has responded to the sheltering needs by activating its emergency response plan and response teams.

Local government has taken actions to shelter victims prior to requesting assistance through the normal SEMS structure.

The local government, through its EOC, requests assistance for sheltering operations from the Operational Area.

Shelter facilities and support resources will be limited in the first few days following an incident where there has been widespread damage.

Shelters will be adaptable to the people they serve, providing accessible and culturally appropriate services.

Neighborhood organizations and local congregations will materialize to spontaneously provide care and shelter support independent of local government.

Some displaced residents will converge on public parks and open spaces, as an alternative to using indoor mass care shelters.

Some residents will choose to remain on their property, even if damaged, rather than move to a public disaster shelter.

The following section contains a summary of estimated scenario event impacts, needs and constraints which might influence response efforts. This information provides context for the objectives described previously.

Impacts

The scenario event is projected to have the following potential impacts related to mass care and shelter:

An estimated 329,900 people in the 12-county Bay Area region will seek shelter because of housing damage.


The pre-disaster shelter capacity of the 12-county Bay Area region is approximately 250,300 people; the shelter capacity shortfall will be approximately 79,600.

The estimated daily number of visitors in the Bay Area is 216,000. Of that, 20 percent, or approximately 42,400, will need short-term shelter until they are able to leave the region.

A higher percentage of the people who have access and functional needs will need shelter than the percentage of the general population who will need shelter.

Displaced residents who cannot find local shelter may have to seek shelter in or be relocated to other parts of California. Beyond the 12-county Bay Area region, the estimated shelter capacity in California is 620,700 people.

Shelters that are not pre-designated or known by government (i.e., spontaneous shelters) will open in communities shortly after the event.

Mega-shelters (facilities that can shelter more than 1,000 people) will open in the first week after the event to shelter large numbers of people seeking short-term shelter.

Large numbers of affected residents will choose not to use shelters and will stay near their residences in vehicles, tents, or other temporary shelters.

With the time projected to restore power and water systems, many displaced people, as well as those in undamaged homes, will choose to relocate to an existing shelter when their own resources are depleted.

Shelter populations will peak approximately 7 days after the event.

An estimated 218,300 animals will be brought to shelters or evacuated with owners.

Several county and State correctional facilities in the region will be damaged and will require evacuation.

Within 1 month of the event, an estimated 373,000 people will need interim housing because of damage to their residences.

Shelter Needs

The shelter needs which might result from the impacts of the scenario event are as follows:

Determination of who needs shelter services and the location of these people

Identification of people with access and functional needs

o Pre-event needs assessment to estimate total demand for establishment of integrated shelters

o Evaluation of residents to understand and address these needs

o Further evaluation of shelter residents to identify any special safety or security considerations (e.g., presence of sex offenders)

Identification of physical sites for:


o Evacuation shelters (for less than 24 hours)

o Sustained shelters (for more than 24 hours)

o Interim housing

Building inspections to ensure safe facilities for shelters

Identification of locations suitable for use as integrated shelters (i.e., shelters where the needs of those with access and functional issues and the needs of the general population can be met)

Identification of locations that would not be suitable for people with access and functional needs (e.g., no wheelchair access) and could not be used as integrated shelters

Access to shelter sites (transportation routes)

Utilities for shelter facilities

Staff and supplies to support shelters and meet the estimated demand for shelter

Specialized staff and supplies, including medical staff, durable medical equipment, and common medicines, to satisfy the estimated access and functional needs

Security inside and outside the shelter facility

Private areas in shelters to support access and functional needs populations

Hygiene and sanitation facilities and supplies

Feeding and distribution supplies, equipment, and staff

Transportation support for people who need services not provided in current shelters

Ongoing assessment of shelter resident needs

Animal shelters

o Co-located with shelters for people

o Animal-specific shelters

o Equipment and personnel

o Transportation of animals and people between shelters

o Systems to encourage owners to assume care for their own animals

o Provision of food, water, and other supplies

Housing Needs

The housing needs which might result from the impacts of the scenario event are:

Identification of the need for interim housing

o Building inspections

o FEMA intake for Individual Assistance


o State/Local Assistance Centers and Federal/State Disaster Recovery Centers

Identification of the existing supply of housing (e.g., rental units, hotels, campuses)

Identification of new housing alternatives (e.g., group sites, commercial sites)

Identification of “wrap-around” services (e.g., grocery stores, schools, health care)

Security for group housing sites

Constraints

The following factors might well act as constraints on local, State, Federal, and private-sector response efforts:

Damage to buildings pre-designated as shelters

Damage to infrastructure, including utilities and transportation routes

Movement of teams, staff, equipment, and supplies in a degraded environment

Availability of qualified staff to support shelters

Accurate identification of need for shelter and evacuation; updating of information throughout the operation

Availability of shelter sites over time

Companion animals: Shelters managed by the American Red Cross (ARC) allow service animals but not companion animals

Resource shortages (e.g., supplies, vendors, contractors)

Not all of the pre-designated shelters in the FEMA/ARC National Shelter System will be accessible, and those that are not would need modification to become so. This situation limits the government’s ability to meet the access and functional needs of a community’s population.

Most of the pre-designated shelters in the National Shelter System are in school buildings. The functionality of most school buildings will be limited until about 7 days after the event while inspections occur and resources become available.

Spontaneous shelters are not likely to be properly supported for several days and will need resources during that time.

Mega-shelters may not be pre-identified, and plans may not exist for opening and coordinating the management of mega-shelters.

Limited jail vacancies in the region may not allow for the consolidation of prisoners in similar facilities.

Housing restoration timelines will depend on the availability of financing; local, State, and Federal assistance; the availability of contractors; and local planning and permitting decisions.


Because of the dearth of available rental housing, tens of thousands of households will require rental housing outside the Bay Area, or interim housing units will need to be brought into the region or constructed.

Section 3

Concept of Operations

The Standard Emergency Management System (SEMS) is the emergency management organization required by California statute, Government Code 8607(a) for emergency response and disaster management in multi-agency and multi-jurisdiction emergencies. California governments must use SEMS in emergency response and disaster management to be eligible for any available disaster reimbursement funding for its personnel-related costs provided through state disaster assistance programs. Alameda County utilizes the principals of SEMS in its emergency response and disaster management activities.

SEMS incorporates the use of the Incident Command System (ICS). Organization is developed around the major functions that are required during any incident, whether large or small. The ICS is flexible, allowing expansion and contraction depending upon the size, demands and chronological stages associated with any given incident.

ICS establishes lines of supervisory authority and formal reporting relationships. There is complete unity of command as each position and person within the system has a designated supervisor. Direction and supervision follows established organizational lines at all times, and the system includes span of control limits throughout.

The Alameda County Operational Area coordinates care and shelter activities in its Emergency Operations Center (EOC), through the Operations Section, Care and Shelter Branch. Figure 1, below, shows the ICS framework utilized by Alameda County, in conjunction with and as an integral component of SEMS. The Care and Shelter Branch is positioned under the Operations Section. Cities may access county and mutual aid resources within the Operational Area through the Operational Area EOC. In support of residents in the unincorporated areas of the County, the Operational Area has care and shelter responsibilities similar to that of a local government.


The County Social Services Agency provides staff for the Care and Shelter Branch of the EOC when it is activated for an incident requiring care and shelter operations. The Care and Shelter Branch Director monitors and reports continuing needs for, as well as levels of provision for:

Shelter

Mass feeding

Registration and identification services

Functional needs of shelter residents

Care for service animals that may accompany shelter residents

The Care and Shelter Branch coordinates the activities of the Functional Assessment and Service Team (FAST) in Alameda County. FAST is comprised of representatives from community organizations and county departments who are trained to assess the special needs of people in shelters including (among others):

People with sensory or mobility disabilities

Elderly residents

People who use service animals

People who need medication.

The Care and Shelter Branch may request provision of the following resources from the Logistics Section:

1) Facility inspection

2) Shelter staff

3) Transportation

4) Additional facilities for warehousing, shelter, or distribution

3.1 Roles and Responsibilities

3.1.1 County Social Services Agency (SSA)

SSA is the lead agency for care and shelter response at the Operational Area level. SSA may support local government with additional staff to operate disaster shelters.

In addition to staffing the Care and Shelter Branch in the Operational Area EOC, SSA provides services through the following programs (these programs can supplement the response of local jurisdictions to persons with special needs):

Area Agency on Aging (AAA): services to seniors and people with disabilities.

Adult Protective Services (APS): services to adults with developmental disabilities, including mentally disabled adults and elderly persons.

Child Abuse & Children's Protective Services: services for children who are victims of neglect or lack family care (such as without family supervision post disaster).


In-Home Supportive Services (IHSS): in-home care services to low income elderly, blind, and people with disabilities.

Public Authority for IHSS: provides a registry of screened home care providers for IHSS recipients/consumers.

SSA also provides programs for child care, General Assistance, Medi-Cal, Housing Assistance, Food Stamps, and Supplemental Security Income, which disaster victims may need as part of their recovery.

The following entities support the County Social Services Agency in coordinating Care and Shelter operations.

3.1.2 School Districts

Standing agreements may exist between school districts and the American Red Cross (ARC) when shelters are needed in unincorporated areas. Thus, the first choice for shelter sites is a school facility. A liaison representing the school districts in Alameda County has a seat in the EOC, in the Logistics Branch.

Operational Area Emergency Management maintains a database of schools that have been inspected and designated as potential shelters by the ARC. The school districts that serve the unincorporated areas of the County are:

Castro Valley

Sunol Glen

Mountain House

Livermore Valley Joint

San Lorenzo

3.1.3 American Red Cross

ARC will partner with local government to help fulfill government’s legal responsibility of providing care and shelter for its citizens in a disaster. ARC will provide a representative in the Operational Area EOC, or provide a communications link to the Care and Shelter Branch to ensure that the Operational Area is informed of ARC response activities. After a major incident where there is widespread damage, ARC resources may not fully mobilize for as many as five days. Until ARC resources are fully mobilized, local government will be required manage, coordinate, and run all shelter operations.

ARC also provides shelter operations training to the public and to government employees. ARC standards for shelter services will guide the provision of services by the Operational Area Care and Shelter Branch.

3.1.4 Alameda County Health Care Services Agency

The Health Care Services Agency encompasses a variety of departments –Behavioral Health Care Services, Public Health, and Environmental Health.


Behavioral Health Care Services performs the following functions:

Assesses and activates the response to disaster mental health issues.

Provides mental health counselors to shelter facilities.

Ensures the continuation of care, treatment, and housing for those clients residing within the County mental health system before the incident.

Public Health includes Emergency Medical Care, an agency division which coordinates the immediate emergency medical response to an incident including emergency medical dispatch, and both emergency and non-emergency ambulance services.

Public Health and Environmental Health perform the following disaster response functions related to shelter operations:

Prevent the spread of communicable disease and disaster-related illness.

Provides public health nursing in disaster shelters.

Monitors food and water safety and sanitation issues in shelters.

Monitors, assesses, and reports on disaster health status in impacted communities.

3.1.5 Community Based Organizations (CBOs)

CBOs provide direct and ongoing services to people with special needs during non-disaster times and may be able to support the recovery of these residents following an incident. CBOs may support local jurisdictions with sheltering, language, and cultural sensitivity needs, and serve as a conduit for getting information to people that local government may have difficulty reaching. Many CBOs have existing contracts for services through the County Social Services and Health Care Services Agencies and can be contacted through those departments.

During incident operations, the County EOC Director will establish a liaison within the Operations Section to serve as a link to CBOs when the Operational Area requires community resources to address unmet needs of residents impacted by disaster. The Care and Shelter Branch Director can also contact CBOs through the 2-1-1 information line.

3.1.6 Eden Information and Referral Services (2-1-1)

Eden Information and Referral Services maintains a database of local community services available in Alameda County. The services in the database are accessible by government and individuals through the internet or by calling 2-1-1, a 24-hour number for people in search of daily emergency resources.

3.1.7 Volunteer Organizations Active in Disasters (VOAD)

In addition to local CBOs, national disaster relief organizations play a major role in response and recovery at the local level. Most of these organizations are part of the national network, VOAD. Some of the national organizations have local chapters that serve Alameda County. For an incident in Alameda County, the Care and Shelter Branch Director can contact the members of either the local or national VOAD through ARC. VOAD members include (among others):


Adventist Community Services

Distributes clothing, bedding, and food following a major disaster; also provides counseling.

Catholic Charities

Provides recovery assistance for families and individuals

Church World Services

Establishes and coordinates interfaith organizations.

Church of the Brethren

Provides child care services

Mennonite Disaster Services

Provides home repair and rebuilding services.

Nazarene Disaster Response & United Methodist Committee on Relief

Clean-up and rebuilding assistance, especially to older and disabled persons.

The Salvation Army

Provides mass feeding, distribution of clothing, counseling, and home clean-up.

Southern Baptist Convention

Provides mass feeding and post-disaster cleanup of homes.

3.1.8 The Private Sector

Businesses often donate goods or services to assist the community in its recovery from a disaster. Cities may establish pre-disaster agreements with local businesses to expedite the purchase or use of equipment and supplies required for shelter operations. According to the needs of the Operational Area, the EOC Director will establish a private sector liaison as part of the EOC Command Staff.

3.2 Notification and Activation of The County EOC Care and Shelter Branch

In compliance with SEMS local government agencies initiate actions for a care and shelter response within their jurisdiction’s affected areas based upon information received from local incident commanders and other sources. If a local government activates its EOC in response to an incident, the Operational Area will activate its EOC as well. Upon activation, SSA will deploy a representative to the County EOC in Dublin to staff the position of Care and Shelter Branch Director, under the Operations Section. The Care and Shelter Branch will coordinate requests for shelter resources made by local governments.


The Operational Area provides care and shelter to impacted residents of unincorporated areas of the County. A local government may also request resources from the Operational Area if its own care and shelter resources cannot meet people’s needs. To initiate care and shelter response in the unincorporated areas of the Operational Area, the Alameda County Sheriff activates the EOC, then notifies SSA that shelter services are needed and that staff are needed to manage the Care and Shelter Branch. SSA will coordinate shelter operations with ARC and the school district serving the impacted jurisdiction.

Appendix 1 provides an operational checklist for the Care and Shelter Branch Director. According to information gathered about the incident, the Branch Director may notify and activate other County agencies and non-government entities if their resources are needed to support a care and shelter response.

3.3 Information The primary duty of the Care and Shelter Branch Director is to coordinate resource requests and deployments with other branches and sections of the EOC. To coordinate response activities, the Branch Director collects information from a variety of sources and with the support of the Plans Section, develops and an Incident Action Plan that:

Assesses the situation

Defines the problem

Establishes priorities for Branch actions

The Care and Shelter Branch uses situation status reports from the Plans Section to make effective decisions about shelter services in impacted communities. The information from the situation status reports includes an immediate assessment of requirements for shelter and mass feeding, including:

Locations of people needing for shelter and food

Estimated number of people needing shelter

Availability of facilities for shelter

Availability of facilities capable of meeting any identified special needs, such as medically fragile evacuees

Level of staffing needed to support the estimated number of shelters, as well as shelter liaisons shifts in the EOC.

The Plans Section can gather initial assessment from the local governments and organizations (such as ARC) that initiate a shelter response. In the event of a sustained response, the Care and Shelter Branch Director will monitor and report continuing needs and the provision of the following services in order to maintain a common and verified source of information that all agencies responding to the incident can use to plan their response:

Shelter

Mass feeding

Registration and identification services


Service and companion animal care needs

Public health needs related to shelter residents

The Care and Shelter Branch Director records information on the internet-based Regional Incident Management System (RIMS). RIMS includes forms to collect the data most relevant for decision makers in other EOC sections and branches, as well as other levels of government.

Another source of assessment data comes from the County’s Functional Assessment and Service Team (FAST). Composed of trained representatives from organizations who understand the special needs of vulnerable people, FAST will deploy team members to shelters to discover unmet needs. Social Services Agency collects and interprets the information, and finds resources within the agency or through the EOC Human Services Branch.

3.3.1 Shelter activity

When multiple shelters are operating throughout the Operational Area, the Care and Shelter Branch Director collects information and manages situational awareness about shelter activity to ensure that the same level and quality of services is available to all impacted residents.

At regular times throughout the operational period, the Care and Shelter Branch Director requests an accounting from shelter managers of the number of people who are using each shelter. The same report should also include a summary of issues to be addressed and the status of supplies at each site. A sample form for reporting shelter activity is in Appendix 3.

The Care and Shelter Branch Director regularly compiles current shelter information and provides it to the Operations and Plans Sections Chiefs to support development of Incident Action Plans. Accurate shelter information serves as support for resource requests from other Operational Areas or from the State.

ARC monitors shelter activity through reports collected daily. The ARC representative in the Care and Shelter Branch provides these reports and serves as liaison for resource and information requests between the Operational Area and the ARC disaster relief operation.

3.3.2 Infrastructure

The Care and Shelter Branch should also work closely with the Logistics Section to monitor information about the status of transportation routes and lifeline infrastructure damage. Such information helps the Care and Shelter Branch to keep shelters supplied and supports decisions about when to close or combine shelters to provide more efficient services to residents.

3.4 Selecting Shelter Sites

Given the scale of an incident that causes the Operational Area to activate the EOC, multiple shelters over a wide geographical range may need to be opened and supported. According to the needs of residents and the availability of resources, shelters may have to be managed by various organizations.

The Care and Shelter Branch Director can estimate the need for shelters across the county through:


Damage assessment reports from first responders

Housing loss projections from such entities as the Associated Bay Area Governments (ABAG) or FEMA. These projections estimate the damages to housing inventories throughout Alameda County, according the materials and structures of buildings, as well as other factors.

The damage from a significant event, such as an earthquake, will greatly reduce the supply of available housing, especially for persons in multifamily units. Shelters may need to maintain operations for a longer period of time than during other incidents until adequate replacement housing is found for those remaining occupants.

The length of time that shelters are needed may determine the kinds of facilities selected for shelter. Some facilities may need to return to original purposes soon, in order to speed community recovery. The location of shelters and the length of time that they are open may also determine the services that will be needed to transition residents out of shelters and into housing. Information gathered from situation status reports from the Plans Section will help the Care and Shelter Branch to plan for the support of other County departments.

The Care and Shelter Branch Director matches the availability of shelter resources with the kinds of shelters needed to provide relief to residents immediately after the incident, or over a period of time. In some cases, a shelter may only be needed for less than 24 hours, in order to provide a safe place with limited services to residents who are able to return to their homes or to other living arrangements. For displaced residents who will need more time to transition to another home, the Operational Area may have to provide shelter for a number of days. The aim of the Care and Shelter Branch is to provide temporary shelter and the Branch Director works with County departments and other organizations to help people to move into more permanent housing as soon as possible.

Before selecting a facility for a shelter or deciding to support a shelter that was opened in advance of EOC activation, the Care and Shelter Branch Director makes a request through the Operations Section to the Damage/Safety Assessment Group within the Infrastructure Branch for building inspectors to ensure the safety of the facility.

In coordination with the Plans Section, the Care and Shelter Branch Director considers the following issues when choosing where to locate shelters in unincorporated areas:

Are there other resources, such as businesses or social service providers near the impacted neighborhoods? These entities are familiar with the residents and can ease the transition from emergency response to community recovery when shelters close.

What are the demographics of the impacted neighborhoods? How much support from government health and social services agencies will be needed, and for how long?

Can displaced residents easily reach the shelter (is the Operational Area able to provide transportation)?

Are routes available to transport supplies to and from the site?

What is the ability of the shelter to meet the needs of the population, including those of people with disabilities or other vulnerabilities?


County-supported shelters must be accessible to the general population, including people with functional needs. In the immediate hours and days after an incident, building damage, transportation disruption, and limited availability of resources may restrict access to some residents. However, as the situation improves over time, the Care and Shelter Branch aims to make shelters fully accessible.

Various social service programs within SSA and the Facilities Unit of the Logistics Section in the EOC can provide the Branch Director with standards for accessibility according to the Americans with Disabilities Act (ADA). In general, facilities selected as shelters should provide the following to allow residents with functional needs to be independent:

An accessible entrance to the shelter (e.g., a ramp if there are steps at the front, and doors that are easy to open, or are automatic)

Access to all shelter service areas (eating, sleeping and bathrooms)

Restrooms that allow for free access to toilet and washing facilities

Aisles clear of obstructions and navigable space for people with a visual or mobility functional need

In preparedness planning for disasters, ARC inspects potential shelter facilities for accessibility. If a pre-designated facility is selected to be used as shelter after the incident occurs, SSA staff and ARC assess the facility’s accessibility standards before opening it as a shelter. A site inspection form to be used before opening a shelter is in Appendix 1.

The Bay Area Super Urban Area Security Initiative Guide for Shelter Operations (2008) provides additional information about selecting shelter locations and meeting accessibility standards. The Local Government Template also lists accessibility standards for buildings used for shelter.

3.5 Types of Shelter Facilities In general, the Care and Shelter Branch coordinates operations among the following types of shelters in unincorporated areas of the County:

3.5.1 ARC Shelters

Because ARC has developed shelter operations standards that are reviewed and revised over years of disaster experience, the Operational Area can make the most efficient use of limited resources by supporting ARC shelters and encouraging the public to use them. ARC-managed shelters will be supplied primarily with ARC resources, which together with government staff and materials can increase the number and quality of services available to residents impacted by the incident.

In preparation for disasters, ARC identifies and surveys local facilities that can be used to shelter persons. ARC maintains a list of potential shelter sites throughout Alameda County, and has concluded agreements with the managers and owners of various facilities. ARC shares the list with SSA and the Alameda County Operational Area. The list of sites includes data on the basic features that will be needed after a disaster:


Location

Capacity

Bathrooms and showers

ADA accessibility

Floor plans, including available utilities.

Though ARC may identify shelter facilities in advance of a disaster, the actual buildings that are used after the incident will depend on the safety of the building and the surrounding neighborhood.

The following facilities may be used as shelters by ARC, local government, or by spontaneous organizations who may decide to open a shelter without first coordinating the operation with the County.

3.5.1.1 Public School Buildings

In cooperation with the County Department of Education, the Alameda Operational Area and ARC pre-designate public school buildings to use as shelters. California law (AB 2786) requires public school districts and school authorities to make their facilities available as public shelter sites in a declared disaster.

School gymnasiums and large multipurpose rooms can provide sleeping areas for large numbers of people. Schools also have kitchens and bathrooms scaled for large groups of people. However, school facilities may pose some limitations. An incident that occurs while school is in session may require the school to become a temporary shelter for its own student population. For security reasons, the Care and Shelter Branch Director may have to look for another site or arrange separate shelter spaces within the school to keep students apart from the general public. As part of community recovery, a school will need to return to its original purpose and government may have to support people who cannot transition from the shelter to replacement housing before the school shelter closes

3.5.1.2 Government-Owned Facilities

The Care and Shelter Branch Director may choose to use available government-owned community centers, senior centers, recreational facilities, or auditoriums as public shelters. Such facilities may have limitations. For example, local Recreation and Park Department sites are usually smaller than schools and some facilities lack adequate bathrooms and showers. Typical facilities may only accommodate less than 100 people. In a large scale event, it is more efficient to support a few larger shelters rather than a number of smaller facilities.

3.5.1.3 Facilities owned by Faith-Based Organizations

ARC may have pre-existing arrangements to use churches, temples, synagogues, or similar privately-owned facilities to house large numbers of people. Such facilities offer the following advantages:

They are most often rooted in the same communities as the residents impacted by the incident


The organizations that run such facilities typically include volunteers and members who are motivated to help people in need.

Such facilities typically have large multipurpose rooms and kitchen facilities.

If a faith-based organization opens a shelter independently of ARC, and asks the Operational Area for support, the Care and Shelter Branch Director should ensure that the shelter will be available to the general population, regardless of secular beliefs.

3.5.2 Spontaneous Shelters

After an incident, community groups, churches, or neighborhoods may open shelters on their own. The shelters meet an immediate need in communities that ARC or the Operational Area may not know about or are not yet able to address due to limited resources or restricted transportation. Because the shelters are spontaneous, the facilities may not be safe or appropriate to support people for several days. The organizations that initiate spontaneous shelters may request help from government to continue operations, however the Care and Shelter Branch Director can choose to deny the request and support ARC- or government-sanctioned shelters instead. The decision is based on information about the spontaneous shelter operations.

The Care and Shelter Branch gathers the following information on spontaneous shelters for the Incident Action Plan, which guides response activities of each Section of the EOC:

Number of people served by the shelter

Location of the shelter

Availability of government or ARC shelter resources to support the shelter

Possible integration of the spontaneous shelter with an ARC or government-supported shelter

If the spontaneous shelter serves a population that ARC or government agencies cannot reach, the Operational Area may choose to support it with resources. Government-supported shelters must provide equal service to all communities, as much as possible, given the changing availability of resources after an incident. The Care and Shelter Director must ensure that a spontaneous shelter will be able to provide the same standard of services found in an ARC- or government-supported shelter.

3.5.3 Shelter Resources

The table in Appendix 4 provides the Care and Shelter Branch Director with the recommended quantities of supplies that will be needed to support shelters throughout the Operational Area. Guidance for management of individual shelters can be found in the ARC Shelter Operations Management Toolkit (May 2008) and through use of the forms in the Local Government Template for Care and Shelter.

3.5.4 Shelter Staffing

Table 1 below gives the Care and Shelter Branch Director an estimate of the level of staffing needed to support shelters in the Operational Area. The Care and Shelter Branch works with the


Logistics Section to request and then provide government staff who serve as Disaster Service Workers during an incident. The staff chosen to work in shelters should be trained according to basic ARC shelter management guidelines.

Many of the tasks in a shelter have changing levels of activity throughout a day. For example, during the opening and closing of shelters, registration may require higher staffing numbers to efficiently process clients. During slower times, registration personnel could be moved to other positions in the shelter. Shifting personnel is appropriate and can help to cover different tasks when necessary.

Table 1. Recommended Number of Shelter Workers Needed According to Shelter Size

(A small shelter may have up to 200 residents; a large shelter may have 1,000 residents.)

Position Small Medium Large

Shelter manager 1 1 1

Shift supervisors 3 3 3

Registrar 1 1 1

Registration workers 1 2 5

Dormitory management supervisor 1 1 1

Dormitory management workers 2 5 10

Food service workers 6 14 28

Information (Help Desk) 2 4 6

Administrative assistant 1 1 1

Information Technology 1 1 1

Health services supervisor 1 1 1

Health services staff 1 2 5

Disaster mental health staff 2 4 8

Material support supervisor 1 1 1

Material support workers 1 2 4

Staff services worker 1 1 2

Security staff 1 2 4

Totals 27 46 82

Source: Adapted from Shelter Operations Management Toolkit (ARC, May 2008)

3.5.5 Medical Care in Shelters

ARC disaster nurses provide basic emergency medical and preventative health services in ARC-managed shelters. This includes first aid and simple pain relief. Representatives of FAST can assess functional needs and request support from the Medical Operations Branch when more serious medical conditions are found.


Depending on the level of damages sustained by hospitals and other healthcare facilities, the Care and Shelter Branch Director requests the Medical Operations Branch to arrange for the transfer of people with medical needs to those facilities. According to the level of need and the availability of medical resources, the Medical Operations Branch may designate specific shelter sites to care for people who are medically fragile and who need a higher level of care and supervision than what is available at public shelter sites.

3.5.6 Transportation of People

Many people will not be able to travel to shelters because they do not have vehicles or are located too far from a shelter. The Care and Shelter Branch Director works with the Ground Transportation Group in the Logistics Section to arrange transportation if needed.

Evacuation of people from impacted areas requires coordination with a number of Branches within the EOC and at several levels of government. The Alameda County Sheriff, in consultation with local law enforcement agencies, initiates mass evacuation in the Operational Area. Use of the highways throughout the County requires coordination with California Highway Patrol and Caltrans. Coordination with the Animal Control Group of the Law Enforcement Branch is needed when evacuees bring their animals to evacuation pickup points. See the Alameda County Evacuation Template (2007) for more information about issues involved in managing mass evacuation.

3.5.7 Food Services

The Care and Shelter Branch also coordinates feeding operations for the large numbers of people in shelters or who choose to stay near their damaged homes. The Logistic Section arranges the provision of food services, through contracts with private businesses. Large-scale feeding operations may require the support of experienced NGOs, such as ARC and the Salvation Army. The organizations that provide mobile feeding programs prioritize service according to where food is needed. A higher priority is given to low-income neighborhoods and areas where residents are unable to supply their own food. NGOs with disaster feeding experience can provide feeding for extended periods of time when locations and resources are limited. For example, ARC provides food in the following ways:

Mobile kitchens with the capacity to produce as many as 25,000 meals per day, based on available staff, supplies, and the menu plan.

Bulk distribution of individually packaged food to the general public through designated distribution points or to residents in shelters.

Service of prepared meals in shelters (prepared either on site or in large central kitchens established to supply a number of feeding locations).

3.5.8 Animal Care

Residents displaced from homes may need shelter for their pets. People with service animals that assist with functional needs can use general population shelters. However, when separate shelters are needed for pets, the Care and Shelter Branch Director requests support from the Animal Control Group of the Law Enforcement Branch. The goals of an Animal Control Group are:


Assess and respond to the incident

Rescue animals

Establish temporary emergency shelters to care for and house animals during an incident.

Collect information from all shelter sites and provide the data to the Care and Shelter Branch Director

Reunite people with their pets during the recovery phase

Arrange alternative shelter for animals that cannot be reunited with owners.

Because shelter residents may want to remain close to their pets, the Care and Shelter Branch Director should try to locate animal facilities near shelters for people.

The logistics of supporting animal shelter involve expertise and specialized material. Refer to the SUASI Guide for Shelter Operations for a detailed overview of animal shelters, including checklists and recommended supply inventories.


SHELTER FACILITY SURVEY


SHELTER FACILITY SURVEY (CONTINUED)


Primary Agency: Social Services Agency

Supervisor: Operations Section Chief

Your Responsibility: Provide coordination and staffing for mass care and shelter of victims.

Initiate incident log of your actions taken, beginning with your notification that an emergency exists.

Identify yourself as the Care and Shelter Operations Branch Director (on the organization chart in the EOC)

Obtain briefing from Operations Section Chief.

Read this entire checklist.

Coordinate with American Red Cross (ARC), and other community-based organizations to ensure that food, potable water, shelter, and other basic necessities are provided for residents of the unincorporated areas affected by the incident.

Assist ARC with inquiries and registration services to reunite families or respond to inquiries from relatives or friends.

Develop a Care and Shelter plan: Assess the situation, define the problem, and establish priorities.

Designate and brief staff as needed.

Coordinate activities with other Operations Section Branches.

Determine the availability of:

Shelter staffing

EOC staffing

Interim housing

Relief personnel

Public shelters

Mass feeding

Execute the Care and Shelter plan.

Establish liaison with Care and Shelter representatives in other Operational Area Agencies.

Assist ARC with the transition from operating shelters for displaced persons to interim or permanent family/individual housing.

Complete and maintain the Care and Shelter Status Report

Prepare objectives for the Care and Shelter Branch for the subsequent operations period; provide them to the Operations Section Chief prior to the end of the operational period and the next action planning meeting.

Evaluate progress of emergency efforts every operational period.

Recheck this list periodically and refer to the text of the Care and Shelter Plan.


Sample Care and Shelter Daily Reporting Form

Reporting Period: ________________

Data Elements Period To Date

Number of shelters open

1. List addresses of open shelters:

1.

2.

3.

4.

5.

Note: Add rows as needed.

2. Number of persons in shelters (specify a standard reporting time)

List populations of each site:

1.

2.

3.

4.

5.

3. Number of fixed feeding sites

List populations of each site:

1.

2.

3.

4.

5.


Sample Care and Shelter Daily Reporting Form (Continued)

4. Mobile feeding units (provided by ARC or other organizations)

5. Meals and snacks served

6. Bulk distribution sites (non-traditional): camp stoves, cooking supplies, individual/family-size tents, sleeping bags, etc.

7. Are the following areas are being addressed?

7A. Feeding, to include home sheltering, public shelters, and workers

1.

2.

3.

4.


7B. Basic first aid at public shelters and for home-sheltering

1.

2.

3.

4.


7C. Specifically address special needs populations

1.

2.

3.

4.



Sample Care and Shelter Daily Reporting Form (continued)

7D. Provide animal care and handling at shelter locations

1.

2.

3.

4.


Comments: Address how the Care and Shelter Branch is supporting each Operational Area shelter. In particular, address each of the questions that received a “No” response.


Resources 3,000

people Comment

Shelter sites 6 Assumes an average shelter population of 500 persons per shelter

Meals per day at shelters and other service delivery sites 12,900

Assumes at least 2 hot meals per day for 500 persons per shelter multiplied by 2 to account for meals at other sites plus 8% to account for staff

Cots or sleeping mats 3,000 Assumes 1 cot or sleeping mat per person in shelter

Blankets 6,000 Assumes 1 blanket per person in shelter (may need to upgrade to 2 per person in cold weather)

Cambros (specialized storage containers for hot food) 108

2 cambros can generally serve 240 meals per day assuming liners are used (entrée and one side; average of 5-oz serving size)

Cargo trucks 6 For bulk distribution and shelter support; 1 cargo truck per 500 persons

Passenger vans 2 For staff transport; 1 van for every 1,500 persons sheltered

Meals ready to eat (MREs) 42,000 For the first 3 weeks

Bottled water 3,000 Standard gallon containers for bulk distribution

Comfort kits 9,000 1/ person in shelter sites per week (for 3 weeks)

Generators 12 Two 15- to 25-kW generators for every shelter with 500 persons

Minimum staff per shelter site 264 See Table 3-1 for suggested shelter staff for individual shelters

Food preparation staff 13 10 food prep staff persons for every 10,000 meals

Fixed feeding staff 26 Number of meals per day ÷ 1,000 meals per vehicle/day 2-person crew*

Mobile feeding staff 51 Number of meals per day ÷ 500 meals per day, per vehicle, each with a 2-person crew


Appendix 5

Catastrophic Earthquake Scenario – San Andreas Fault

Introduction

This object of the Scenario and Data Assumptions Report (SDR) created by URS Corporation is to present scenarios and assumptions to support creation of four regional plans for the 12-county Bay Area under the Regional Catastrophic Preparedness Grant Program (RCPGP). The four plans are:

Debris Removal

Mass Care and Shelter

Mass Fatality

Mass Transportation and Evacuation

In addition, the earthquake scenarios and assumptions apply to the county and city plans that will be developed for each of these four regional plans. Scenarios and assumptions relating to the Catastrophic Earthquake and attendant assumptions directly relating to Mass Care and Shelter Planning have been taken from the SDR to bolster the Plan by providing context and a specific frame of reference for its utilization and for training. General Description of the Earthquake The earthquake scenario is a reoccurrence of the 1906 earthquake on the northern segment of the San Andreas Fault. The basis for the scenario is a HAZUS analysis originally performed by the Earthquake Engineering Research Institute with support from the U.S. Geological Survey and the California Emergency Management Agency (CalEMA) beginning in 2005 and modified by URS Corporation for purposes of the RCPGP. The characteristics of the earthquake used in the development of the scenario are: 1. The earthquake occurs in January at 2:00 pm Pacific Standard Time on a weekday. The

month and the time of the scenario earthquake were changed from those in the 1906 earthquake to maximize the potential impact on infrastructure and the population.

2. Similar to the 1906 event, a foreshock precedes the earthquake, followed approximately 20 to

25 seconds later by the main shock, which lasts 45 to 60 seconds. Otherwise, there is no advance warning of the earthquake.

3. The earthquake’s epicenter is just outside the entrance into the San Francisco Bay, west of

the Golden Gate Bridge.


4. The earthquake ruptures the northern San Andreas fault for approximately 300 miles from the San Juan Bautista area in the south to Cape Mendocino in the north. Shaking is felt in Oregon to the north, Los Angeles to the south, and Nevada to the east.

5. The earthquake has an estimated magnitude of M 7.9 with a Modified Mercalli (MM)

intensity of VIII (severe shaking/moderate to heavy damage) to IX (violent shaking/heavy damage) in widespread areas of the most severely affected counties. Pockets within the affected counties experience instrument intensity of MM X (extreme shaking/very heavy damage), particularly areas immediately adjacent to the fault and areas where liquefaction is likely to occur.

6. Ground shaking and damage are expected in 19 California counties, extending from the

Monterey County in the south to Humboldt County in the north, and into the San Joaquin Valley.

7. Damage will be catastrophic in the areas that experience shaking intensities of MM IX and X

and high or very high level of susceptibility for liquefaction (i.e., areas adjacent to the fault in Marin, San Francisco, San Mateo, Santa Clara, Santa Cruz, and Sonoma counties).

8. Counties along the fault outside the Bay Area, such as Mendocino, may sustain damage and

require response. 9. Central Valley counties such as Sacramento and San Joaquin may be affected immediately

by evacuations and other response actions. An earthquake of this magnitude will also have significant effects in the rest of California and the Nation. The rest of California and the Nation will be affected significantly by the need to respond, effects on the population, economic disruption, and media attention.

10. Threats and hazards resulting from shaking, surface fault rupture, and liquefaction include: 11. Structural and non-structural damage to buildings and infrastructure, including:

Structural and nonstructural damage to buildings and infrastructure, including widespread collapse of buildings

Widespread ignition of fires

Subsidence and loss of soil-bearing capacity, particularly in areas of liquefaction

Displacement along the San Andreas fault

Widespread occurrence of landslides

Hazardous materials spills and incidents

Dam/levee failure resulting in flooding

Civil disorder

12. Threats and hazards resulting from the main shock will be aggravated or recur during

aftershocks, which will continue for months after the main shock.


13. Despite the earthquake’s magnitude, it is not expected to generate a tsunami or a seiche. 14. Potable water supply systems suffer major damage due to the following:

Extensive damage to pipelines from ground deformation

Interruption of pumps and treatment due to power outages

Damage to treatment facilities, storage facilities, and distribution infrastructure

Contamination of potable water systems due to damaged lines.

15. Expected performance of potable water systems in Alameda County following the San

Andreas event are summarized below. Results are based on potable water pipeline and facility damage, as estimated using HAZUS.

Expected Number of Households in Alameda County Without Potable Water

Number of Households: 564,200

Day 1: 465,000

Day 3: 459,800

Day 7: 448,200

Day 30: 341,000

16. The earthquake results in massive power outages, and auxiliary power systems and

generators are not sufficient to meet critical needs. The expected performance of the regional power system in Alameda County is described in below. Results are based upon damage to electrical facilities, substations, and distribution circuits.

Expected Number of Households In Alameda County Without Electricity

Number of Households: 564,200

Day 1: 23,600

Day 3: 13,700

Day 7: 5,400

Day 30: 1,200

General Operational Assumptions 1. Within 24 hours:

County Chief Administrative Officers declare local emergencies.

The Governor proclaims a State of Emergency and requests that the President declare a disaster.


The President declares a Major Disaster, making Federal assistance available under the Robert T. Stafford Disaster Relief and Emergency Assistance Act of 1988 (42 U.S.C., 5121 – 5206 (2008)) (the Stafford Act).

The Department of Homeland Security (DHS) and FEMA implement the Catastrophic Incident Supplement to the National Response Framework and begin mobilizing Federal resources.

DHS activates or elevates the level of activation of all DHS command and coordinating facilities.

2. Due to extensive damage to buildings and transportation infrastructure in Oakland,

CalEMA’s Regional Emergency Operations Center (REOC) in Oakland is not functional; its functions are immediately assumed by the Regional Duty Officer until activation of the alternate REOC. In the event that an alternate REOC cannot be established in the Coastal Region, the Duty Officer will work with the CalEMA Executive Duty Officer to identify an alternate REOC outside the region. The Regional Duty Officer will provide the Operational Areas with contact information for the alternate REOC as soon as possible.

3. Similarly, FEMA Region IX’s Regional Response Coordination Center in Oakland is not

functional. FEMA will collocate with CalEMA at the SOC. 4. Outside the affected region, all elements of the Standardized Emergency Management

System (SEMS), including communications and mutual aid systems, are functional. 5. Operational Area Emergency Operations Centers (EOCs) experience some damage but are at

least partly operational. All other local government functions in the Operational Areas are severely compromised or focused entirely on response to the earthquake.

6. Response capabilities and resources of the cities, Operational Areas, and the State in the

region are quickly overwhelmed, or exhausted. 7. Operational Area EOCs are overwhelmed and challenged to effectively manage the

Operational Area response. 8. A detailed and credible common operating picture cannot be achieved for 24 to 48 hours (or

longer) after the disaster. As a result, response activities begin without the benefit or a detailed or complete situation and critical needs assessment.

9. First responders, providers of recovery services, and other critical response personnel are

personally affected by the disaster and may be unable to report to their posts for days due to damaged transportation infrastructure.

10. Once the President declares a disaster and commits Federal resources, the State and Federal

governments establish joint operations to provide assistance to local jurisdictions.


11. Massive assistance in the form of response teams, equipment, materials, and volunteers begin to flow towards the region, providing urgently needed resources but creating coordination and logistical support challenges.

12. Due to damage to transportation infrastructure, out-of-region mutual aid, State, and Federal

resources, as well as resources from other states cannot begin to arrive for up to 72 hours. General Assumptions Regarding Mass Care and Shelter

1. The San Andreas fault earthquake scenario is projected to cause greater damage to residential structures and generate a greater number of displaced households and people seeking shelter than other earthquake scenarios. The following outlines mass care and sheltering assumptions associated with the catastrophic earthquake scenario event. The assumption are primarily from HAZUS-MH but are supplemented with other available information.

Demographic Data

2. The 2009 populations for Alameda County and the Region as a whole are (Source: 2000 U.S Census, updated to 2009 figures suing California Department of Finance Data):

Alameda County: 1,556,500

Region: 8,133,500

3. The approximate number of visitors to the Bay Area and Region as a whole on a daily basis

are (Source: URS analysis using visitor totals provided by HVS Lodging Services)

Alameda County: 24,900

Region: 216,000

Access and Functional Needs Populations 4. Access and functional needs populations are those populations whose members may have

additional needs before, during, and after an incident in functional areas. These functional needs include, but are not limited to, the following:

5. Communication: Individuals who have limitations that interfere with the receipt of and

response to information will need that information provided in methods they can understand and use. They may not be able to hear verbal announcements, see directional signs, or understand how to get assistance due to hearing, vision, speech, cognitive, or intellectual limitations, and/or limited English proficiency.

6. Medical Care: Individuals who are not self-sufficient or who do not have adequate support

from caregivers, family, or friends may need assistance with: managing unstable, terminal or contagious conditions that require observation and ongoing treatment; managing intravenous therapy, tube feeding, and vital signs; receiving dialysis, oxygen, and suction administration; managing wounds; and operating power dependent equipment to sustain life. These


individuals require support of trained medical professionals. Note: The State of California has embraced the model of integrated shelters for all residents except those with extremely fragile medical conditions. The RCPGP does not include a component for analysis of medical sheltering, However, if counties and cities have plans for sheltering in place, those elements will/may be incorporated into the city and county shelter plans.

7. Maintaining Independence: Individuals requiring support to be independent in daily activities

may lose this support during an emergency or a disaster. Such support may include consumable medical supplies (diapers, formula, bandages, and other supplies) durable medical equipment (wheelchairs, walkers, and scooters), service animals, and/or attendants or caregivers. Supplying needed support to these individuals will enable them to maintain their pre-disaster level of independence.

8. Need for Supervision: Individuals may lose the support of caregivers, family, or friends or

may be unable to cope in a new environment (particularly if they have dementia, Alzheimer’s or psychiatric conditions such as schizophrenia or intense anxiety).If separated from their caregivers, young children may be unable to identify themselves; and when in danger, they may lack the cognitive ability to assess the situation and react appropriately.

9. Transportation: Individuals who cannot drive or who do not have a vehicle may require

transportation support for successful evacuation. This support may include accessible vehicles (such as lift-equipped or vehicles suitable for transporting individuals who use oxygen) or information about how and where to access mass transportation during an evacuation.

10. Available demographic data regarding populations with access and functional needs in

Alameda County and the Region as whole are described below.

Non-English Speakers/English as a Second Language (Source: 2000 U.S. Census; updated to 2009 figures using California Department of Finance data):


Region: 1,353,800

The estimated Homeless Population Alameda County and the Region as a whole are (Source: County surveys, 2007-2008):


Region: 34,300

The number of People with Access/Functional Needs Expected to Seek Shelter, by sub-group in Alameda County and the Region as a whole are (Source: URS analysis of U.S. Census Data, California Health Interview Survey, California Department of Finance, and local Chambers of Commerce, 2009):

Sensory Disability (all ages): 1,800 / 7,200

Physical/Mental/Self-Care Disability (5-15): 500 / 1,700


Physical/Mental/Self-Care Disability (16-64): 4,600 / 16,100

Physical/Mental/Self-Care Disability (65+) 3,500 / 14,200

Employment Disability (16-64): 5,500 / 20,800

Go-Outside-Home Disability (16-64): 3,300 / 12,300

Go-Outside-Home Disability (65+): 1,500 / 6,200

Within-County Commuters 21,200 / 95,700

Households without Vehicle: 2,100 / 11,600

Estimation of General Shelter Demand

11. An estimated 329,500 people are projected to seek shelter across the region after the San Andreas fault earthquake. HAZUS projections for displaced residents and people without homes in Alameda County are described below (Source: URS analysis of U.S. Census Data, California Health Interview Survey, California Department of Finance, and local Chambers of Commerce).

2009 population: 1, 556,500

Number of Displaced Households: 95,400

Number of Displaced People: 257,600

Number of People Seeking Shelter: 67,300

Shelter Shortfall

12. Most counties, including Alameda County, within the Bay Area Region rely on shelters managed by the American Red Cross (ARC) to meet the needs of displaced residents.

13. The National Shelter System (NSS) database, managed by ARC and FEMA, assumes a pre-

disaster shelter capacity of 250,300 people within the 12 counties. Though the NSS does not include every shelter pre-designated by governments or ARC, it is the most comprehensive database of shelters in the region.

14. In the NSS, “evacuation capacity” refers to shelter space that allows 20 sq. ft. per person.

Evacuation facilities are typically used for less than 24 hours. A shelter open for more than 24 hours accommodates fewer people because more space (40 sq. ft.) is allowed per person. Not all facilities can be used for both evacuation and shelter. The availability of equipment and staff to support shelters is not included in NSS calculation of capacity.

15. Existing evacuation and shelter capacity in the Alameda County, based on data from the

NSS, is provided below. If all NSS shelters are available across the region after the San Andreas earthquake, there is a shelter shortfall of 79,200 within the region.

Number of Shelters: 242

Evacuation Capacity: 77,800


Shelter Capacity: 37,100

16. Not all shelters will be available after the San Andreas fault earthquake, increasing the potential shortfall.

17. Of those that are available, only some will be accessible and/or able to meet the functional

needs of a community’s population. 18. Given the substantial shelter shortfall, facilities designated as evacuation shelters may serve

as shelters for periods longer than 24 hours. 19. The analysis below shows the functionality of schools that are designated as shelters in

Alameda County. The results are derived by selecting the NSS shelters that are schools and using HAZUS to project school building damage. The analysis also considers the ARC assumption that a building that is not functional as a school due to damage from the San Andreas fault earthquake will not be functional as a shelter.

Percent of Full Capacity

90 or Higher: Day 1: 0 Day 2: 0 Day 7: 55 Day 14: 69 Day 30: 94 Day 90: 94

90-75 Day 1: 0 Day 2: 0 Day 7: 104 Day 14: 92 Day 30: 70 Day 90: 70

75-50: Day 1: 42 Day 2: 50 Day 7: 10 Day 14: 8 Day 30: 5 Day 90: 5

Less than 50: Day 1: 127 Day 2: 119 Day 7: 0 Day 14: 0 Day 30: 0 Day 90: 0

20. In the development of the Mass Care and Shelter Plan, the level of functionality for school

buildings will be reconsidered in order to meet the overwhelming need for shelter.

21. In these four counties, the majority of schools designated as shelters will not be functional as schools until seven days after the event. Even if the school is determined to be functional soon after the event, a school district may not be ready to reopen the building as a school. The site may be available for shelter operations.

22. The presence of students in school facilities at the time of the San Andreas fault earthquake

will prevent those facilities from being used as shelters until students return home or are otherwise relocated.

23. Shelters in school facilities will need to close when the local community decides to resume

school operations. Alternative Shelter Options 24. Displaced residents who cannot find shelter within the region may seek shelter or be

relocated to other parts of California. NSS data for shelter capacity in California outside of the Bay Area region is:


Number of Shelter Sites: 4,070

Evacuation Capacity: 1,164,200

Shelter Capacity: 620,700

Spontaneous Shelters 25. Shelters that are not pre-designated or known by government will open in communities

within hours after the event. 26. Community-based organizations and faith-based organizations will initially manage

spontaneous shelters. 27. Spontaneous shelters are not likely to be properly supported for several days and will need

resources. Government-sanctioned shelters will also need resources when initial supplies are exhausted.

28. Local governments will decide whether to support spontaneous shelters or to consolidate the

shelters with government-sanctioned shelters. Mega-Shelters 29. Mega-shelters (facilities with populations greater than 1,000) will open in the first week after

the event to shelter large numbers of people seeking short term shelter (< E+ 14 days). Note: This threshold was used in the Bay Area SUASI Shelter Operations Guide (2008), developed with the support of ARC, California Department of Social Services, and local county stakeholders.

30. Mega-shelters must return to original use within E+114 days in order to speed community

recovery. 31. It is assumed that mega-shelters have not been identified, nor do plans exist for opening and

coordinating the management of mega-shelters. Note: ARC has developed statements of understanding with owners and managers of sites that could be used as mega-shelters or mega-evacuation sites.

Shelter Population Trends 32. Large numbers of displaced residents will choose not to use shelters and will stay with their

properties in tents or other temporary structures. 33. With the projected length of time for restoration of power and water systems, many of these

people will choose to relocate to an existing shelter when their own resources are depleted. 34. Aftershocks and other secondary effects of the earthquake event will cause additional

damage and increase shelter populations over time.


35. As described in the CONPLAN, shelter populations will peak approximately 7 days after the earthquake.

Animals Needing Shelter 36. Animal care is beyond the scope of the Mass Care and Shelter Plan. However, the following

assumptions are made regarding the number of companion animals that may need shelter across the region. The estimated number of animals requiring shelter is shown below (Source: FEMA CONPLAN, 2008, using updated population figures).

Number of Displaced Households: 404,300

60 Percent of Households have Animals: 242,600

50 Percent of Households with 2 or more Animals: 121,300

Total Displaced Animals: 363,900

Displaced Animals Brought to Shelters or Evacuated with Owners 218,300

37. ARC-managed shelters allow only service animals and do not allow other companion

animals. Note: The number of companion animals that are considered service animals has not been determined as part of this analysis.

38. Operational Areas and local governments will establish separate shelters for animals in areas

near the shelter sites for people. Population of Correctional Facilities 39. The capacities of county correctional facilities in Alameda County are (Source: snapshot

from daily prisoner count, September 10, 2009):

Two Jails (G. Dyer in Oakland and Santa Rita in Dublin) total 4,424 beds 40. Estimated damage to county and State correctional facilities in the region has not been

assessed. However, it is assumed that several of these facilities will be damaged and will require evacuation. Correctional facilities in the region have limited capacity to house additional prisoners who need be relocated due to facility damage.

41. It will be necessary to relocate inmates of damaged facilities out of the region. 42. Security and responsibility for State prisoners is a State responsibility. If State prisons are

damaged in the San Andreas fault earthquake, the counties currently hosting those facilities may not initially be able to depend on State law enforcement agencies to provide security.


Temporary Housing Needs

43. The Mass Care and Shelter Plan will include a temporary housing plan for a period of up to 12 months following the earthquake. Assumptions regarding temporary housing are described below.

Demand For Temporary Housing

44. Approximately 373,000 households in 192,000 residential structures will need some form of temporary housing until their housing units are repaired or restored, or until they find alternative permanent housing. Note: The number is equal to the “displaced households” produced by HAZUS using weighting factors developed by Charles Kircher. It consists of all households in completely damaged buildings, plus most households in extensively damaged units, and a small proportion of households in moderately damaged buildings.

45. The number of households requiring temporary housing may be underestimated if recovery

of critical sewer, water, and energy services takes longer than a few months. 46. Temporary housing needs will be driven by the timeline to restore damaged housing or

construct new housing. Projected interim housing needs for the region as a whole, based on housing recovery timelines are (Data based on recovery timeline for structures with complete, extensive and moderate damage, as determined through URS HAZUS analysis, 2009):

Units at one month following earthquake: 372,500

Units at three months following earthquake: 296,800

Units at six months following earthquake: 245,600

Units at twelve months following earthquake: 143,100

47. Housing restoration timelines are highly dependent on the availability of financing, local,

State, and Federal assistance, the availability of contractors, and local planning and permitting decisions.

48. It is likely that restoration of some structures will take more than 5 years and resources will

not be available to restore all damaged units. 49. Approximately 15 percent of households in the Bay Area have earthquake insurance. It is

likely that housing restoration resources (insurance, private financing, Federal grants and loans) will be insufficient to restore all damaged or destroyed housing.

Availability of Temporary Housing 50. Due to extensive damage to residential structures in an already tight housing market, the

demand for temporary housing will far outstrip the supply of units available for rent in the Bay Area. Based on restoration timelines, vacancy rates, and displaced households, only 25


percent of the peak housing need could be met by available units within the 12-county area. This proportion would gradually increase as housing units were repaired.

51. The shortage of housing in the Bay Area is exacerbated by the location of available units

relative to the demand for units. Temporary Housing Planning Assumptions 52. In planning temporary housing, there may be a trade-off between providing suitable housing

as quickly as possible, and reducing the number of times a family is required to move. 53. Access to schools, health care, grocery stores, and other amenities will affect decisions about

temporary housing. 54. Communities will need to find a balance between rebuilding smarter and safer and quickly

restoring housing units and speeding recovery. 55. Housing in or near the impacted communities will need to be provided to first responders and

recovery contractors. This may further exacerbate the housing shortage for displaced households.

56. A variety of temporary housing strategies may be employed to house displaced families,

including short-term solutions, such as hotels/motels, cruise ships, and smaller temporary housing units; and longer-term solutions, such as rental housing and larger temporary housing units, such as mobile homes.

57. Due to the dearth of available rental housing, in the Bay Area region, tens of thousands of

households will require rental housing outside the Bay Area and/or interim housing units (trailers, mobile homes, alternative units) will need to be brought in or constructed.

58. Adjoining counties, particularly Sacramento County, offer potential rental resources to

displaced Bay Area households (there are an estimated 21,200 vacant units in Sacramento). However, relocation to Sacramento would offer significant challenges to Bay Area residents, due to its distance from their current residences and places of work.

59. Housing assistance may come in the form of Federal, State, local rental assistance;

hotels/motels; new temporary units, such as trailers, mobile homes, park models, and alternative units; or converted commercial space.

60. At its peak capacity, FEMA has been able to lease-in more than 10,000 households per

month in temporary housing units (travel trailers and mobile homes), but this rate of production and installation may take several weeks to achieve, and is dependent on availability of suitable space for temporary housing units, ability to hook-up to utilities, and the challenges of installing units in an urban environment.


61. Significant numbers of people could permanently relocate from the Bay Area. Factors affecting individuals’ decisions to permanently relocate include: the speed and strength of economic recovery; the speed with which services, including schools, are restored; the distance from their original housing to which they temporarily relocate; and measures government puts in place to reduce the impact of future disasters.

Appendix 6

Catastrophic Earthquake Scenario – Hayward Fault An additional analysis was performed on transportation impacts resulting from an earthquake on the Hayward fault for the Transportation and Evacuation Plan and has relevance to this Plan. The scenario used is a magnitude 7.05 Hayward Fault rupture of the North and South segments. The Hayward Fault earthquake scenario has an impact on the region’s transportation network similar to that of the earthquake on the San Andreas Fault. However, certain facilities (particularly in the eastern part of the region) will be more severely affected by a Hayward Fault earthquake than an earthquake on the San Andreas Fault. On a regional level, the Hayward Fault earthquake is expected to result in a smaller number of shelterees and people who require evacuation, although individual jurisdictions, particularly those immediately adjacent to the Hayward Fault, will be more severely impacted. Damage to Transportation Infrastructure Data which follows lists the lifeline routes in the 12-county region and expected functionality following the earthquake. These routes are to be re-opened as soon as possible after an incident to allow for movement of evacuees and emergency workers and supplies within the region (Source: URS HAZUS analysis 2009). SR 24 from I-680 in Walnut Creek to SR-13/I-580 in Oakland - Contra Costa County segment Functionality immediately following earthquake:

Route High Bridges Low Tunnel Caldecott Tunnel Low

SR 24 from I-680 in Walnut Creek to SR-13/I-580 in Oakland – Alameda County segment Functionality immediately following earthquake:

Route Low Bridges


Low I-80 from US 101 in San Francisco to I-580 in Oakland - San Francisco and Alameda Counties Functionality immediately following earthquake:

Route Low to High (San Francisco side) Low (Oakland side) Bridge Bay Bridge: High Bay Bridge Approaches: Low

I-80 from I-780 in Vallejo to the Nevada state border – Solano County segment Functionality immediately following earthquake:

Route High Bridges Low (Vallejo) High (North of Vallejo to Solano County Line)

SR 92 from US 101 to I-280 in San Mateo County Functionality immediately following earthquake:

Route High Bridges High

US 101 from SR 170 in Los Angeles to I-280 in San Jose – Monterey County segment Functionality immediately following earthquake:

Route High Bridges High

US 101 from SR 170 in Los Angeles to I-280 in San Jose – San Benito County segment Functionality immediately following earthquake:

Route High Bridges Mainly High


US 101 from SR 170 in Los Angeles to I-280 in San Jose – Santa Clara County segment Functionality immediately following earthquake:

Route Medium (south of San Jose to County Line) Low (San Jose) Bridges Low to High (south of San Jose) Low (San Jose)

US 101 from I-280 to I-80 in San Francisco Functionality immediately following earthquake:

Route Medium Bridges Low to High

US 101 from the Golden Gate Bridge in Marin County to US 199 in Del Norte County – Marin County segment Functionality immediately following earthquake:

Route Medium to High (north of Golden Gate Bridge to Hwy 1) Low (Hwy 1 to Novato) High (Novato to County Line) Bridges Low to High (north of Golden Gate Bridge to Novato) High (Novato to County Line)

US 101 from the Golden Gate Bridge in Marin County to US 199 in Del Norte County – Sonoma County segment Functionality immediately following earthquake:

Route Low (southern County Line to Hwy 116) High (Hwy 116 to County Line – north) Bridges High

SRs 116,121, 12, 29 from US 101 in Petaluma through Napa to I-80 in Solano County – Sonoma County segment Functionality immediately following earthquake:

Routes


High Bridges High

SRs 116,121, 12, 29 from US 101 in Petaluma through Napa to I-80 in Solano County – Napa County segment

Functionality immediately following earthquake: Routes Low (western County Line to American Canyon) High (American Canyon to southern County Line and eastern County Line) Bridges High

SRs 116,121, 12, 29 from US 101 in Petaluma through Napa to I-80 in Solano County – Solano County segment Functionality immediately following earthquake:

Routes High Bridges High

I-280 from US 101 in San Jose to US 101 in San Francisco – Santa Clara County segment Functionality immediately following earthquake:

Route Low Bridges Low

I-280 from US 101 in San Jose to US 101 in San Francisco – San Mateo County segment Functionality immediately following earthquake:

Route Medium Bridges Mainly Low

I-280 from US 101 in San Jose to US 101 in San Francisco – San Francisco segment Functionality immediately following earthquake:

Route Medium Bridges Low to High


I-238/580 from I-880 in Alameda County east to I-5 – Alameda County segment Functionality immediately following earthquake:

Route: High Bridges Low (San Leandro to Livermore) Medium to High (Livermore to eastern County Line)

I-580 From I-80 to SR 24 – Alameda County Functionality immediately following earthquake:

Route: Low Bridges Low

680 from I-280 in San Jose to I-780 in Benicia – Santa Clara County segment Functionality immediately following earthquake:

Route Medium Bridges Low

I-680 from I-280 in San Jose to I-780 in Benicia – Alameda County segment Functionality immediately following earthquake:

Route High Bridges Low

I-680 from I-280 in San Jose to I-780 in Benicia – Contra Costa County segment Functionality immediately following earthquake:

Route High Bridges Low Low to High (north of Pleasant Hill)

I-680 from I-280 in San Jose to I-780 in Benicia – Solano County segment Functionality immediately following earthquake:

Route


High Bridge Benicia Bridge and Approaches: High

I-780 from I-680 in Benicia to I-80 in Vallejo – Solano County Functionality immediately following earthquake:

Route Medium Bridges High

Data below shows the projected number of evacuees within Alameda County requiring transportation assistance as a result of a Hayward Fault Earthquake (Source: 2000 U.S. Census, updated to 2009 figures using California Department of Finance data; URS HAZUS analysis 2009 and county sources, 2007-2009; Human Resources Agency in Alameda County, 2007, updated to 2009 figures using California Department of Finance Data; URS analysis using visitor totals provided by HVS Lodging Services).

Population Overall Population: 1,556,500 Evacuees Seeking Shelter: 77,800 Homeless: 5,400 Visitors/Tourists: 24,900 Out-of-County Commuters: 206,700 Evacuees Needing Transportation

General Population: 62,200 Homeless: 5,100 Visitors/Tourists: 17,400 Commuters from Other Counties 41,300 Total Evacuees: 126,100 Vehicle Types Evacuees in Mass Transit: 100,900 Evacuees in Demand Response Vehicles: 25,200

Transportation Resources The following data documents the potential, projected availability of transit vehicles and operations staff in Alameda County (from available data) for utilization following a Hayward Fault Earthquake (Source: National Transit Database, 2007; anecdotal information from MTC work conducted by URS; MTC Statistical Summary of Bay Area Transit Operators, March, 2007 and March, 2008; and estimations by URS).


Alameda-Contra Costa Transit District (AC Transit) Buses Number of Vehicles: 678 Actual available at 80% rate: 542 Number of Staff: 1409 Availability factor 30 days: 30% = 423 Staff Availability factor 60 days: 50% = 705 Staff

Light Rail, Heavy Rail and Ferry No resources available/apply Livermore/Amador Valley Transit (LAVTA) Buses Number of Vehicles: 74 Actual available at 10% rate: 7 Number of Staff: 100 Availability factor 30 days: 7 Availability factor 60 days: 7 Light Rail, Heavy Rail and Ferry No resources available/apply City of Alameda Ferry Service Ferry Number of Ferries: 5 Available: 5 City of Union City Transit Division Buses Number of Vehicles: 15 Actual available at 80% rate: 12 Number of Staff: 33 Availability factor 30 days: 10 Availability factor 60 days: 17

B A Note The following data shows the projected “functionality” of Transportations Systems in Alameda County following a Hayward Fault Earthquake (Source: URS HAZUS Analysis, 2009). Roads and Highways Damage Severity East part of the county - Medium to Low West part of the county - High Caltrans District 4 Emergency Operations Center – Low

Impacts • Access from the east (I-580/Altamont Pass) and north (I-680) should be available

• Possible closure of SR 24/Caldecott Tunnel due to landslides

• Possible damage to interchanges on I-80/880 north of Hayward


• Heavy damage to I-80 approach to the Bay Bridge, Hwy 92 approach to the San Mateo Bridge, and Hwy 84 approach to the Dumbarton Bridge

• Heavy damage to bridges connecting to the island of Alameda, with a possible

• isolation of the island

Transit Damage Severity Metropolitan Transportation Commission (MTC) Headquarters - Low AC Transit - High LAVTA - Low City of Union City Transit – High Impacts • Potential disruption to bus service on the East Bay along the bay side due to operator

unavailability and impacted facilities; however service in the Livermore Valley is not anticipated on being impacted.

Rail Damage Severity Bay Area Rapid Transit (BART) - High to Low Capital Corridor / Freight - High to Low Impacts Disruption of rail service Capital Corridor, BART, freight) along the waterfront.

Severe disruption to BART due to infrastructure damage at the Oakland wye, loss of the Transbay tube and other areas, Parts of BART may be non-operational for 2.5 years. However, possible limited service between Castro Valley and Dublin/Pleasanton.

Loss of track/rail bridges through Niles Canyon impacting Altamont Commuter Express and freight service; however service east of Niles possible.

Water Damage Severity Alameda Harbor Bay Service - High Alameda Oakland Ferry - High Port of Oakland – Medium Impacts Disruption of ferry service in the East Bay impacting the movement of passengers and First

Responders and particularly further isolating the island of Alameda.

Disruption of commerce into the port.


Air Damage Severity Oakland International - High to Medium Impacts Disruption of air service into and out of the region due to runways subject to liquefaction.

Roadways leading to the airport are expected to be damages to the fault rupture and liquefaction.

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