Introduction

The Clarke County Emergency Operations Plan (EOP) is an all-hazards plan developed to address the county’s unique environmental, technological, and human-caused hazards. The EOP posted on the county website is an abbreviated version that explains in general terms how the government will respond as well as how it will communicate with residents, business owners, and visitors.

The complete EOP is a detailed 300-page document Clarke County government uses to prevent, prepare for, respond to, and recover from an emergency or disaster. “Government” includes the Fire, EMS & Emergency Management department, the county’s three volunteer fire and rescue companies, law enforcement (Sheriff’s Office and Berryville Police), as well as neighboring first responders and agencies. Additionally, the government’s detailed EOP identifies and assigns specific areas of responsibility for coordinating resources to support the county’s response to an emergency or disaster.

The county’s EOP is consistent with the National Incident Management System (NIMS) and the National Response Framework (NRF) and utilizes the FEMA Comprehensive Planning Guide (CPG 101) concepts for guidance that follow an Emergency Support Functional format.

All agencies and organizations assigned responsibility under the EOP maintain a level of preparedness to support its implementation, including establishing written policies and procedures, training personnel, and participation in emergency exercises.

The EOP is a living document and is routinely updated and revised to reflect lessons learned during incident response or exercise training.

The Code of Virginia, §44-146.19, Powers and duties of political subdivisions, requires each local jurisdiction and inter-jurisdictional agency to prepare and keep a current local emergency operations plan. Every four years, each local agency shall conduct a comprehensive review and revision of its emergency operations plan to ensure that the plan remains current, and the locality’s governing body shall formally adopt the revised plan.

Stakeholders should direct comments, edits, and questions to Fire, Rescue, and Emergency Management Chief Wayne Whetsell at (540) 955-5113 or wwhetsell@clarkecounty.gov.

Note: Links to sign up for emergency notifications are at the bottom of this page.

Goals and Objectives

The primary goals of the EOP are for the preservation of life, protection of property, protection of the environment, participation of the whole community, and continuity of operations consistent with NIMS and the NRF. In addition, the overall objective of the EOP is to ensure the effective management of disaster incidents by coordinating operations, ensuring a common operating picture, and managing resources between all stakeholders in support of on-scene operations throughout all of the emergency management mission areas. This includes:

• Coordinating emergency operations throughout the county;
• Coordinating activities with appropriate federal, state, county, local, non-governmental organizations (NGOs), and private entities;
• Responding to requests for resources and support;
• Establishing priorities and de-conflicting demands for resources and support;
• Coordinating any mutual aid Emergency Management Assistance Compact (EMAC) requests;
• Activating and using communications systems;
• Preparing and disseminating fully accessible emergency public information, warnings, and alerts;
• Collecting, evaluating, and disseminating damage information and other essential incident-related data; and
• Restoring essential services to the citizens.

Planning Assumptions and Considerations

As a basis for knowledge and operations, the following are assumptions and considerations that Emergency Management Department (EMD) and stakeholders should understand when planning and responding to emergency incidents:

• Incidents begin and end at the local level and are typically managed at the lowest possible government level;
• An incident can occur with little or no warning, at any time, in any area of the county. It can escalate more rapidly than the ability of any local response organization to address it;
• An incident may threaten human life, cause property or environmental damage, and have economic impacts on individuals, governments, and the business community;
• Citizens are prepared to be independent for 3-days after the onset of a disaster;
• Nursing and assisted living facilities have effective emergency plans and memorandums of understanding (MOUs) to provide for services that will be needed during an emergency;
• Incident management activities will be initiated and conducted using the principles contained in the NIMS and the NRF;
• The combined expertise and capabilities of government at all levels, the private sector, and non-governmental organizations will be required to prevent, prepare for, respond to, and recover from disasters;
• All county departments and agencies will support the EOP to the level of their abilities, resources, and expertise;
• When an incident or event occurs, the county will utilize its resources first, augmented as needed by resources available through community-to-community mutual aid. Local governments will request state assistance if an incident exceeds or is expected to exceed local capabilities;
• To ensure the continuity of government, all departments and agencies will develop their Standard Operating Guidelines for emergency operations encompassing staffing, succession authority and key position responsibilities, response protocols, technical guidance, the concept of operations, administration, resource requirements, and checklists that support this EOP. These plans should be implemented concurrently with the EOP but are subordinated to the overarching core coordinating structures, processes, and protocols detailed in the EOP;
• Day-to-day functions that do not contribute directly to the emergency operation may be suspended for the duration of the emergency/disaster. Resources that would normally be required for those daily functions will be redirected to perform tasks supporting the emergency response;
• Citizens and visitors of the county expect government officials to keep them informed and provide guidance and assistance in an incident. The information must be accessible to all stakeholders, including government agencies and the public;
• A large-scale emergency or disaster will generate widespread media and public interest that is prolonged, requiring an extended commitment of resources;
• Different categories of critical infrastructures, such as medical facilities, electrical substations, and sewer lift stations, have been identified and are recorded by address and geographic latitude, and longitude and maintained at the county Emergency Operation Center (EOC); and
• A particularly intense event could have a devastating impact upon many primary residences in Clarke County. This could necessitate the local governments agreeing to provide temporary emergency measures to facilitate shelter needs, such as establishing tent cities, temporary mobile housing areas, relaxation of zoning regulations, waiver of inspection fees, etc.

Capability Assessment

The Local Capability Assessment for Readiness (LCAR) document is a resource that summarizes the jurisdiction’s prevention, protection, response, or recovery capabilities involving defined hazards. Updated annually with the assistance of the Virginia Department of Emergency Management (VDEM), it provides a snapshot of the jurisdiction’s preparedness capabilities and limitations, resources, and is a basis for developing training, acquiring equipment, or defining personnel needs.

Emergency Management Mission Areas

Clarke County recognizes that most emergencies occur with little or no advanced warning, requiring near immediate commitment and deployment of all obligated resources and personnel. The coordination of this response is achieved through the NRF’s five mission areas: Prevention, Protection, Mitigation, Response, and Recovery. While not every disaster or emergency will require coordination through all the mission areas, general response activities and emergency operations are accomplished through area-specific objectives.

PREVENTION
Prevent, avoid or stop an imminent, threatened, or actual act of terrorism and usually involves the following actions:

• Heightened inspections;
• Improved surveillance and security operations;
• Investigations to determine the whole nature and source of the threat;
• Public health surveillance and testing processes;
• Immunizations;
• Isolation/Quarantine; and
• Law enforcement operations aimed at deterring, preempting, interdicting, or disrupting illegal activity.

PROTECTION
Protect citizens, residents, visitors, and assets against the most significant threats and hazards in a manner that allows the county’s interests, aspirations, and way of life to thrive. Protection can involve the following actions:

• Emergency operations planning, training, exercises, and updates;
• Identification of gaps and development of capabilities;
• Public information, education, and outreach;
• Development and inclusion of volunteers and NGOs;
• Participation in mutual aid agreements and interstate/international compacts;
• Incident Action Planning; and
• Support to local jurisdictions.

MITIGATION
Reduce the loss of life and property by lessening the likelihood of impacts of future incidents. Mitigation actions may involve the following:

• Risk reduction through increasing protection of infrastructure and resources;
• Reduction of impact on infrastructure by elevating, relocating, or retrofitting;
• Update of local zoning and codes for future buildings and facilities; and
• Educating governments, businesses, and the public on measures to reduce the likelihood/impacts of hazards.

RESPONSE
Respond quickly to save lives, protect property and the environment, and meet basic human needs after an incident.
Pre-Impact Response Phase: Hazard Control and Assessment. The county will identify and assess the threat or hazard and begin to select control and mitigation strategies. Primary operational priorities may include:

• Dissemination of accurate and timely emergency public information and warnings;
• Intelligence gathering and assessment of the evolving situation;
• Resource allocation and coordination; and
• Incident access and control.

Impact Response Phase: Protective Action Implementation. The county will select protective actions appropriate to the evolving situation and deploy additional primary and support resources in this phase. Operational priorities may include:

• Dissemination of accurate and timely emergency public information and
• warnings;
• Situational Assessment;
• Law Enforcement, EMS, Firefighting, Search and Rescue, Public Health, and
• Hazardous Materials Response;
• Evacuation or shelter in place; and
• Coordination of resources and mutual aid.

Assessment and Allocation of Short-Term Needs: Short-term operational needs are determined and dependent upon actions and assessments during the Impact Response Phase. These operations often transcend the response and recovery phases. Short-term needs may include:

• Dissemination of accurate and timely emergency public information and warnings;
• Situational Assessment;
• Mass Care (Feeding and Shelter Operations);
• Access and Security;
• Public health efforts such as decontamination; and
• Determination of need for (continued) mutual aid.

Generally, local governments are expected to meet residents’ immediate basic health and safety needs in an incident. State or federal resources may supplement those of the local government if the needs exceed the response capability of the local government and mutual aid resources. The county may provide specialized resources needed by local governments. It will assist when the scope of the incident is widespread and there is a clear need for centralized incident management and resource allocation.

RECOVERY
Recovery focuses on the timely restoration, strengthening, and revitalization of infrastructure, housing, a sustainable economy, health, social, cultural, historical, and environmental fabric of communities affected by an incident.

The federal emergency recovery process is initiated when the president of the United States issues a Presidential Disaster Declaration (PDD). This declaration makes a series of Federal Disaster Assistance programs available to aid Clarke County in its recovery until the return of normal operations. The basis for the declaration is the determination by the president that the incident is of such severity and magnitude that the associated response is beyond state and local capabilities.

If federal assistance is required, the State Coordinating Officer (SCO) (or designee) will interface directly with representatives of the federal government. If the SCO determines that the span-of control needs to be expanded, a Deputy SCO may be designated to ensure coordination between federal and state agency representatives and to anticipate any needs or conflicts in response or recovery as the incident progresses. Recovery actions can include the following:

• Physical restoration of essential services, facilities, and infrastructure;
• Facilitating processes and application for recovery funding sources;
• Coordinating and assisting with the recovery of other community and social services; and
• Assisting as necessary with economic recovery and stabilization.

Concepts of Operations (CONOPS)

The coordination responsibilities to manage incidents within Clarke County are designed to enable the execution of the EOP through the local government with the appropriate departments and agencies and integrate into state, federal, non-governmental organizations, and the private sector for a comprehensive approach to incident management. The following concepts of operations shall specifically apply:

• The Commonwealth of Virginia Emergency Services and Disaster Law of 2000, as amended, provides that emergency services organizations and operations will be structured around the existing constitutional government. Clarke County’s organization for emergency operations consists of existing government departments, non-governmental and private sector emergency response organizations;
• Clarke County’s emergency management program consists of the County Administrator (Director of Emergency Management). The emergency preparedness program's day-to-day activities are delegated to the Chief of Fire, Rescue, and Emergency Management (Emergency Management Coordinator). In conjunction with the County Administrator (Director of Emergency Management), the Chief will direct and control emergency operations in times of emergency and issue directives to other services and organizations concerning disaster preparedness and response. The County Administrator’s Office, in collaboration with the Public Information Officer (PIO), is responsible for all emergency public information;
• The EMD day-to-day activities include developing and maintaining the EOP and other planning documents, maintaining the county EOC in a constant state of readiness, and other responsibilities outlined in local and state regulation;
• The county must be prepared to bear the initial impact of a disaster on its own. Help may not be immediately available from the local, regional, state, or federal government.
• All appropriate, locally available resources should be fully committed before requesting assistance from the state. Requests for assistance will be made to the Virginia Emergency Operations Center (VEOC) directly through the State Coordinator or indirectly through WebEOC;
• With support from designated local officials, the Director of Emergency Management (County Administrator) will exercise direction and control from the EOC during disaster operations. This may include the issuance of orders to evacuate large areas or other protective actions;
• At a minimum, all persons functioning in the EOC shall be trained to the appropriate level as per the adopted County NIMS Plan. Other specific training associated with respective functions shall be considered;
• Department and division leaders will develop and maintain detailed emergency plans and
• SOGs necessary for their respective areas of responsibility. These plans will include identification of resources necessary to execute their plans effectively;
• Department leaders will establish a Continuity of Operations Plan (COOP) that is specific to their respective areas of responsibility and coincides with the County Continuity of Government (COG) found in Section 3 of the EOP;
• All agencies will continue to be responsible for protecting and preserving vital records essential for the COG;
• Accurate records of disaster-related expenditures will be maintained in accordance with policies and procedures established by the Director of Joint Administrative Services or their designee. All disaster related expenses will be documented to provide a basis for reimbursement if federal or state disaster assistance is needed; 
• The County Joint Administrative Services will create emergency project expense codes that allow the proper recording of disaster-related expenses;
• EMD will submit disaster-related reports to the VEOC through WebEOC. These reports include:
      o Initial Damage Assessment Reports;
      o Daily Situational Reports; and
      o Requests for Assistance.
• Emergency assistance may be made available from neighboring jurisdictions in accordance with local mutual aid agreements or the Statewide Mutual Aid (SMA) agreement. Additionally, emergency resources may be sent to assist adjoining jurisdictions. Such assistance will be in accordance with existing mutual aid agreements or, in their absence, as directed by the Director of Emergency Management or their designee as necessary and feasible;
• Support by military units may be requested through the VEOC. Military forces will support and assist local responders and receive direction from the local Director of Emergency Management or their designated representative. This will include mission type requests, including objectives, priorities, and other information necessary to accomplish the overall mission; and
• Clarke County will help disaster victims obtain post-disaster assistance, such as temporary housing and low-interest loans.

Declaration of Local Emergency

A Local Emergency Declaration may be declared by the Director or Coordinator of Emergency Management or their designee with the consent of the Board of Supervisors and as per the Code of Virginia §44-146.21, Declaration of local emergency. A declaration should be made when a coordinated response among several local agencies/organizations must be directed or when it becomes necessary to incur substantial financial obligations to protect the health and safety of persons and property or provide assistance to the victims of a disaster. The Board of Supervisors, by resolution, should declare an emergency to exist whenever the threat or the actual occurrence of a disaster threatens to be of sufficient severity and magnitude to require significant expenditures and coordinated response to prevent or alleviate the loss of life, injuries, property damage, financial loss, hardship, or suffering.

A local emergency declaration activates the response and recovery programs of all applicable local and inter-jurisdictional EOPs. It authorizes the furnishing of aid and assistance in accordance with those plans. In the event the Clarke County Board of Supervisors cannot convene due to the disaster, the Director or Coordinator of Emergency Management or an elected official may declare a local emergency. This is subject to confirmation of the Board of Supervisors at its next regularly scheduled meeting or at a special meeting within forty-five (45) days of the declaration, whichever occurs first.

Notification of a local emergency declaration will occur to the VEOC and directly to the VDEM Region 2 Coordinator through WebEOC and phone. This is standard practice during emergencies in which the VEOC may not be activated or when the event is not affecting all or other parts of the Commonwealth. When the VEOC is activated, submitting a situation report reflecting activation status and declaring a local emergency is sufficient.

Continuity of Government

The local government does not stop for a disaster as essential functions and services are still required during an emergency. Depending on the size and severity of the emergency, several departments or the entire county government may be involved in the disaster operations. The county takes an all-hazards approach and established guidelines for addressing three types of disruptions to services:

• Loss of use to critical facilities;
• Loss of services due to a reduction in the workforce; or
• Loss of services due to equipment or systems failure.

Each department should develop and maintain a Continuity of Operations Plan (COOP) and be prepared within 12-hours of activation to relocate operations or operate in a virtual setting to continue essential functions. Not all departments may be involved in the response recovery. Each department will determine what is needed to continue providing essential functions and services during an emergency. COOP is considered good business practice and includes the following objectives:

• Ensures the continuous performance of any agency's essential functions, operations, and services during an emergency;
• Protects essential facilities, equipment, vital records, and other assets;
• Reduces or mitigates disruptions to operations; and
• Achieves a timely and orderly recovery from an emergency and resumption of full service to customers.

Activation of the Emergency Operation Plan

This plan and all associated Annexes (ESF, Support, or Incident Specific) may be executed when:

• Any disaster threatens or occurs in the County, and a local disaster is declared by the County Administrator under the provisions of Section §44-146.21, the Commonwealth of Virginia Emergency Services and Disaster Law of 2000, as amended, or;
• The Governor declares a State of Emergency, or;
• When a disaster exists without an emergency declaration in place; or
• As a basis for training and pre-disaster preparedness.

Activation of the Emergency Operation Center

The Director of Emergency Management or Coordinator may activate the EOC when any of the following conditions exist:

• There is an imminent threat to public health or safety on a large scale;
• An extensive multi-agency/jurisdiction response and coordination will be required to resolve or recover from the emergency or disaster event;
• The disaster affects multiple political subdivisions within jurisdictions that rely on the same resources to resolve major emergency events; or
• The local emergency ordinances are implemented to control significant emergency or disaster events.

Incident Management Actions

The sequence below describes incident management actions ranging from initial threat notifications to early coordination efforts to assess and disrupt the threat, initial activation of the ESF structure, and resource deployment to support incident response and recovery operations. These actions do not necessarily occur in sequential order as many may be undertaken concurrently in response to single or multiple threats or incidents. The decision-making process when making decisions and establishing priorities during an incident should consider the following:

LIFE SAFETY

• Threat to responders
• Threat to the public

INCIDENT STABILIZATION

• Damage potential
• Incident complexity
• Infrastructure protection

PROPERTY CONSERVATION

• Real property threatened
• Environmental impact
• Economic impact

Threat Notification and Assessment

County departments, agencies, and non-governmental organizations report threats and potential incidents using established communication lines and reporting channels. Once an incident has occurred, the Director/Coordinator of Emergency Management or their designee will make an initial determination to initiate the coordination of information sharing and incident management activities.

Non-Emergency/Normal Operations

Actions implemented during non-emergency or non-disaster periods that will prepare the locality for potential emergency response if necessary include:

• Develop, review, and exercise emergency operations plans and standard operating guidelines through training and education for all departments and agencies, nongovernmental entities;
• Provide public information and educational materials to the public via municipal newsletter, brochures, publications, directories, municipal websites, social media, and other media;
• Ensure the accuracy of emergency contact lists, resource lists, and emergency contracts; and
• Update, review, and maintain the Emergency Operations Plan.

Communication and Dissemination of Warnings and Information

Public communication and dissemination of warnings and information will be provided through Clarke County’s mass notification system, social media, and other available media as determined by the county’s PIO. Depending on the severity of the incident, an iPAWS request will be made for alerting the public through the federal warning system. Consideration will be made to alert individuals with sensory or cognitive disabilities and others with access and functional needs in the workplace, public venues, and in their homes.

Internal department and agency notifications and information sharing will be conducted via email or phone for non-emergent communications that is not time-sensitive, or the county’s mass notification system using SMS texting for emergent communications requiring an immediate action or response.

Clarke County uses CodeRED® as a rapid emergency notification service to distribute emergency messages via telephone to targeted areas or to the entire county in the event of fires, chemical spills, evacuations, lockdowns, downed power lines, lost individuals, natural disasters, abductions, water system problems, bomb threats, or other emergencies.

ClarkE-News is a free newsletter sent via email to subscribers every other Wednesday. Each issue highlights county government news as well as news from agencies serving Clarke residents. ClarkE-News can be used as a means of emergency communication.

Text-to-911 technology allows people who are unable to speak to reach 911 dispatchers. Text-to-911 is for individuals who are deaf, hard-of-hearing, or have speech disabilities; individuals who are in situations where it is not safe to place a voice call to 911; and/or individuals who are incapable of speaking because of a medical emergency that affects voice. (If you can speak, call 911.)