Mass Evacuation Incident Annex - National Hurricane Conference

Evacuation Planning
Mass Evacuation Incident Annex
Contents
• Relationship to Existing Plans
• Background
• Planning Partners
• Purpose
• Scope
• Types of Evacuations
• Types of Evacuees
• Types of Evacuation Resources
• Critical Consideration
• Planning Process + Timeline
• Next Steps
Relationship to Existing Plans
Presidential Policy Directive – 8: National Preparedness
Interagency Incident Annexes
Mass Evacuation
Incident Annex
Background
•
•
The conduct of evacuation operations is generally a state and local
responsibility, however federal mass evacuation support may be
provided:
‒
When a Governor requests federal assistance; or
‒
In the absence of a specific request from a Governor, the President may provide
accelerated Federal assistance and Federal support where necessary to save
lives, prevent human suffering, or mitigate severe damage.*
Federal mass evacuation support may be provided for notice and nonotice incidents, including severe weather events (e.g., hurricanes,
tsunamis), earthquakes, malevolent acts (e.g., terrorism), and industrial
accidents (e.g., nuclear power plant).
*Source: The Robert T. Stafford Disaster Relief and Emergency Assistance Act, Sec. 402:
General Federal Assistance (42 U.S.C. 5170a)
Planning Partners
Co-Leads
• FEMA Recovery Directorate
• FEMA Response Directorate
Collaborative Planning Team
• RSF Primary Agencies and Supporting
Organizations
• ESF Primary and Support Agencies
• Faith-Based Organizations
• Other Whole Community Partners
Core Planning Team Members
• American Red Cross
• Corporation for National and Community
Service
• Department of Defense
• Department of Health and Human
Services
• Department of Homeland Security
• Department of Justice
• Department of Transportation
• General Services Administration
• National Voluntary Organizations Active
in Disaster
• U.S. Army Corps of Engineers
• U.S. Department of Agriculture
Purpose
• Describe the integration and synchronization of
federal capabilities to support state and local
evacuations of evacuees and animals, including
household pets, assistance animals, and service
animals.
• Clarify and de-conflict roles and responsibilities of
agencies and organizations involved in evacuation
operations.
• Describe the national-level decision-making structure
for evacuation operations.
• Highlight the importance of pre-incident evacuation
planning and preparation (e.g., host-state
agreements, evacuee tracking systems).
• Clarify the federal government’s role in supporting reentry operations.
Scope
• Applicable to notice and no-notice incidents that pose a
significant threat to the impacted population.
• Include all activities associated with risk, impact, and general
population evacuation including but not limited to:
‒
‒
Evacuee triage, identification, tracking, reunification
Host state/jurisdiction identification
‒
‒
‒
‒
‒
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Public information
Embarkation from threatened/impacted area
Short and long-haul multi-modal transportation
Debarkation in host jurisdiction
Sheltering
Re-entry
‒
Command, control, and coordination
• Addresses evacuation and re-entry operations, but will not
address the provision of mass care services for
sheltering/temporary housing.
• Includes international evacuations of U.S. citizens and
repatriation of international visitors during a domestic incident.
Pre- and Post-Incident Evacuations
Pre-Incident Evacuation
•
•
•
Conducted before an incident to move the
threatened population away from a potential
incident area when warning (advance notice) is
available
Federal resource requirements for a pre-incident
evacuation are based on the expected magnitude
of the incident and request of the Governor of
the potentially impacted state
Post-Incident Evacuation
•
Conducted after an incident when it is unsafe for
the affected population to remain in the incident
area
•
The limited amount of time between when the
incident occurs and when the evacuation is
initiated means that responders will be unable to
pre-position resources
•
Transportation resources and infrastructure may
be damaged as a result of the incident, requiring
inspection and repair
•
Persons within the affected jurisdiction who
would have been otherwise able to self-evacuate
in a pre-incident environment may require
evacuation assistance
•
Response activities, including ongoing search
and rescue operations and influx of other lifesustaining resources, may adversely impact
evacuation operations
Transportation resources and infrastructure will
be operating under steady-state conditions
Types of Evacuees
An evacuee is an individual who is departing or has departed a designated area
where a threat to life and property exists due to the threat or occurrence of a natural
or man-made incident.
• Self-Evacuee: Individuals and/or households with the personal transportation means to
evacuate from a potentially dangerous area prior to, during, or after a disaster incident.
• Transportation-Assisted Evacuee: Individuals requiring transportation assistance to
leave a potentially dangerous or disaster-affected area and/or to comply with an
evacuation order. Transportation assistance may also be required for tourists who do
not immediately have a means to evacuate.
• Medical Evacuee: If an evacuee is identified with medical needs prohibiting the
evacuee from traveling or sheltering with the general population, the individual would be
stabilized and then medically evacuated or sheltered.
Types of Evacuation Resources
Tracking and Manifesting Systems
•
National Mass Evacuation Tracking System – NMETS
(FEMA)
•
Joint Patient Assessment and Tracking System –
JPATS (HHS)
Regulating Systems
•
TRANSCOM Regulating and Command & Control
Evacuation Systems – TRAC2S (DoD)
National Evacuation Contracts
•
Global Air Transportation Execution System – GATES
(DoD)
•
National Medical Transport and Support Services
(FEMA)
•
Noncombatant Evacuation Operation Tracking
System/Emergency Accountability Tracking System –
NTS/EATS (National Guard Bureau)
•
Evacuation Planning and Operational Support for
Motor Coaches (FEMA)
•
Air Transportation Support Services (FEMA)
•
Aviation Ground Support (FEMA)
Reunification Systems
•
National Emergency Family Registry and Locator
System – NEFRLS (FEMA)
•
“Safe and Well” Website (American Red Cross)
•
Unaccompanied Minors Registry (FEMA, National
Center for Missing and Exploited Children)
Decision Support Tools and Personnel
•
HURREVAC (FEMA, USACE, NOAA)
•
Evacuation Liaison Team – ELT (DOT)
•
National Disaster Medical System – NDMS (HHS)
Critical Considerations (1 of 4)
• Individuals with Disabilities and Others with Access and Functional Needs: Accommodations
must be made for children and adults with disabilities and others with access and functional needs in
the absence of universal access. These needs may include practical and/or functional assistance in
communication, mobility, maintaining independence, and medical care. Accessible transportation,
waypoints, assembly points, holding areas, etc., will need to be utilized or automatically modified for
accessibility.
• Host-State Agreements: Host state agreements or state-to-state mutual aid agreements are
necessary to ensure the coordinated evacuation of evacuees from the impacted state to a host state.
• Host Communities: Before selecting host communities, assess the ability of the community to
support shelter operations and associated wrap around services (e.g., facilities, infrastructure, and
lead time to provide resources to the location).
• Tracking: In order to ensure that government assisted evacuees receive the appropriate support
services (including services related to the tracking, transportation, and reunification of evacuees with
their animals and belongings); a tracking system must be put in place, as early as possible.
• Shelter-In-Place vs. Evacuation: State and local jurisdictions may determine that it is safer for
certain populations to shelter in place than to evacuate.
Critical Considerations (2 of 4)
• Environmental Contamination: Evacuation efforts may be impacted during a large-scale
hazardous materials (HAZMAT) incident. Evacuation decision-makers should consult with available
HAZMAT officials as appropriate regarding the location of embarkation/debarkation sites and
evacuation routes.
• Evacuee Decontamination: State and local officials have primary responsibility for evacuee
screening and decontamination operations in response to a HAZMAT incident. Without appropriate
decontamination and proof of decontamination, neighboring states/jurisdictions may resist accepting
evacuees that are contaminated.
• Public Health: Evacuation sites must establish adequate sanitation and hygiene stations to accept
the displaced population and reduce the spread of illness and disease.
• Animal Needs Assessment: An immediate assessment of the animal population requiring
evacuation should be conducted by trained personnel in order to determine transportation, mass
care, and additional support requirements, as well as to provide recommendations on appropriate
courses of action.
• Animals: During evacuation and re-entry operations, animals will require tracking, embarkation,
transportation, debarkation, care, feeding, and sheltering support.
Critical Considerations (3 of 4)
• Personal Identification: Some evacuees may be unable to present personal identification when
requested/required during evacuation/re-entry operations.
• Public Information: Accessible public Information notices will be necessary to facilitate timely, safe,
and organized evacuation and re-entry processes: instructional messaging (i.e. where to go for
government assisted evacuation locations, facilities that can provide resources for evacuation/reentry, what to bring, and sheltering-in-place instructions) and general welfare messaging (i.e. safety
advisories, resource information).
• Evacuee Sustainability: Adequate feeding, hydration, and sanitation/hygiene services will be
required along evacuation routes.
• Governmental/Non-Governmental Information Sharing: Governmental and non-governmental
mass care/emergency assistance service providers require information about the movement of
evacuees (e.g., expected arrival time, number of evacuees) to prepare for and provide essential
mass care/emergency assistance services.
• Undocumented Non-Citizens: Undocumented non-citizens who are receiving federal disaster
assistance have no immunity from deportation, and may be reticent to evacuate.
• Health Systems: Health systems must plan for crisis standards of care and scarce resource
utilization during mass evacuations.
Critical Considerations (4 of 4)
• Critical Infrastructure: A mass evacuation could present a range of implications for many of the
critical infrastructure sectors within the affected jurisdiction(s) and nationally. The evacuation could
directly affect critical infrastructure operations, supply lines, and/or distribution systems.
• Reunification: Reunification services should be considered and incorporated throughout the
evacuation process to mitigate the burden of responding to the high volume of requests from
concerned family, friends and colleagues to locate individuals within the disaster-impacted area and
ensure that unaccompanied children are accounted for and quickly reunited with parents/guardians.
• Children: Appropriate commodities (e.g., hydration, diapers) will be necessary for children who are
in the temporary care of educational, child care, medical, juvenile justice, recreational, or other
applicable facilities and may be unable to reunify with their parents or legal guardians.
• Re-Entry Timelines: Jurisdictions may permit re-entry at different times.
• Evacuees with Weapons: Individuals may attempt to evacuate while in possession of firearms and
other weapons.
Planning Process + Timeline
Next Steps
• Subject Matter Input: Conduct interviews with remaining key stakeholders to collect
organization- and agency-specific information (e.g., capabilities and limitations).
• Identify Topics for Further Analysis: Identify outstanding issues and challenges that
may impact or hinder evacuation operations, and seek resolution through policy
changes or course of action development, where possible.
• Courses of Action: Facilitate working group sessions, comprised of a range of
planning partners, to identify proposed courses of action to recommend to senior
leadership to resolve issues and challenges.
• Concept of Operations: Incorporate approved courses of action, identified
coordination/decision-making structures, federal evacuation resources and capabilities
into a concept of operations.
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FEMA
Mass Evacuation Incident Annex
Planning Team
FEMA-MEIA@fema.dhs.gov
The information contained within this document is subject to change by the Mass Evacuation Incident
Annex Core Planning Team and will be reflected within the Information Analysis Brief (IAB)