Functional Annex 21

City of Newport News EOP FA 21

Functional Annex 21Refuge of Last Resort

Primary Agency: Division of Emergency ManagementSupport Agencies: Police Department, Fire Department, City Manager’s Communications Group (PIO and 311 Call Center), 911 Communications

PurposeThe purpose of the Refuge or Last Resort Functional Annex 21 is to act as a guide for identifying and selecting potential location, public or private, to be used as a Refuge of Last Resort (ROLR). This annex will also marshal the implementation of ROLR selection and the proper activation and deactivation of ROLRs. The purpose of a ROLR is to provide a convenient safer location for person(s) caught in a hazardous environment, particularly evacuees.

Scope and ApplicabilityDuring an all-hazards incident, circumstances and conditions may necessitate the City of Newport News to open ROLRS. ROLRs have been identified and designated at select locations and will be disclosed to the public at the time of an emergency by Emergency Support Function (ESF) 15 – External Affairs (Public Information Officer (PIO) or his/her designee). This annex will be used prior to the need for activation of a ROLR through the identification, selection, and implementation sections. Through this annex ROLRs will be activated in the event of an impacting incident during which evacuations are still in progress and evacuees are caught in the hazardous environment.

DefinitionRefuge of Last Resort (ROLR): A refuge of last resort serves as a last means of providing a relatively safer area of refuge from immediate incident/event impacts until it is safe to re-locate. They provide no shelter services to those seeking refuge and are not intended as an alternative to conventional evacuation and sheltering. The use of a refuge of last resort is strictly to accommodate any person(s) stranded during evacuation for the imminent and/or immediate hazardous conditions. Upon the cessation of these hazardous conditions the refuge of last resort will be terminated as a location for refuge.Refuges of last resort are only temporary, they are expected for the short term to provide shelter from an immediate hazardous environment and are not equipped, nor expected, to support evacuees in any long term situation.

Planning Assumption ROLR locations are not in high hazard areas.

o Flood zone, surge zone, etc. The City of Newport News will have a standing Memorandum of Agreement with every privately

owned ROLR location.

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No services will be provided by the City of Newport News at a ROLR location

Roles and Responsibilities The Roles and Responsibilities for the activation of a ROLR will include the agencies and personnel of the City of Newport News and will include those private individuals who are operating the ROLR and those seeking refuge in the ROLR.

Emergency Management Will provide training and proper paperwork for the establishment

o Training will include how to properly prepare the building for a hurricane, how to activate the building as a ROLR, and how to maintain the ROLR during its activation.

o Paperwork will include record keeping material and waivers for entrants to sign. Will give advanced warning to the building owner of pending activation. Will ensure the deactivation of a ROLR and vacating of entrants from the premises after the

cessation of the hazardous environment. Will provide transportation for evacuees whose original transportation has become wrecked. This

transportation will be to a safer location, such as a shelter, and will be executed through the same means as seen on pg. FA 18-1 and FA 18-2 of the Newport News EOP.

City Manager’s Communications Group (PIO and 311 Call Center) Aid in the communication of ROLR activation and locations to the public

911 Communications Aid in the communication of ROLR activation and locations to the public

Fire Department Respond to emergencies at the ROLR locations.

Police Department Aid in the communication of ROLR activation and locations to the public. Respond to emergencies at ROLR locations. Possibly aid in the deactivation of ROLR locations.

The ROLR Location Owner/Refuge Manager The owner is expected to ensure that their premises are ready to be activated as a ROLR once they

receive prior warning of its pending activation for an impending incident. Ensuring the building is in order to properly and safely secure evacuees.

o There are a proper number of working bathrooms for the maximum occupancy.o There is no damage or disrepair to the building that could pose a threat to the buildings

structural integrity.

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Ensuring either themselves or a thereby designated on site manager will be present to open and activate their ROLR.

The owner of the ROLR will be protected under Virginia Code § 44-146.23, Immunity from Liability, so long as there is no compensation received for their activation of their premises as a ROLR.

No person will be turned away unless the ROLR has met its maximum capacity. No person will be forced to leave the premises for any reason other than they have disobeyed the

no alcohol, firearms, or illegal substances rule or they pose a significant risk to others taking refuge or the refuge itself.

Any use of the structure after the deactivation of the premises as a ROLR by Newport News personnel is fully upon the responsibility of the owner.

Entrants Any evacuee choosing to take refuge in a ROLR must sign a waiver upon their entrance. There is a policy of no alcohol, firearms, or illegal substances within the ROLR Vacating of the premises by the entrants will begin immediately upon the deactivation of the ROLR. Entrants must bring their own food, water, provisions, medical supplies, and bedding that they may

need.

Concept of OperationIdentification and Selection of ROLR Locations ROLR Necessities

o The structure is NOT located in the surge zone or flooding zone o The structure is ADA complianto The structure has proper restroom facilities for men and women o Available parking to meet the intended capacity of the shelter, including ADA designated

spaceso There is a standing MOA with the facility if not a jurisdiction-owned/operated structureo Must have an on-site manager during its activation.o The facility has cleaning and janitorial supplies on site to support the capacity of the shelter

ROLR Structural and Locational Determinantso Buildings which show signs of neglect or disrepair, in the opinion of the structural engineer,

should be excluded as potential refuges.o Buildings which appear not to have received attention from professional architects and

engineers should be excluded as potential refuges.o Building must have the proper steel and masonry construction with limited window surfaces

to withstand high winds and debris. o Building must have secure internal space to properly protect occupantso Buildings located near major evacuation routes (within 0.5 miles is optimal, with 1 mile

maximum distance as seen in Attachment A) but not located in flood or storm surge zones, or adjacent to drainage areas (creeks, rivers, canals).

o The location should not be near any tall trees or towers which could fall on the refuge

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When to Activate a Refuge of Last Resort A ROLR will be activated during the time in which evacuation is still in progress and/or there are

evacuees caught without shelter. There is or will be an environment that is immediately hazardous environment. A ROLR should be activated prior to the hazardous environment to ensure evacuees can reach the

location in a safer environment. The activation should not be made public excessively prior to the hazardous environment so to

avoid an assumed use as a shelter. These are merely guidelines and thus the decision to activate any ROLR will ultimately be up to the

discretion of the local EOC.Where to Activate a Refuge of Last Resort Locations that are not in disrepair and still retain their structural integrity. The proper minimum requirements of a ROLR are still intact at the site. The location owner or thereby designated refuge manager of the refuge is on site.How to Activate a Refuge of Last Resort Inform the owner or thereby designated refuge manager of the potential use of their premises as a

ROLR once evacuations have begun. Keep informed on the refuge manager’s ability to open the refuge. Ensure a ROLR is operating Inform the public of ROLR locations and activation

o Use of local radio broadcastso IPAWS (Integrated Public Alert & Warning System)o Emergency and governmental personnelo Any other means as determined through the Newport News EOP section FA3

How to Deactivate a Refuge of Last Resort Emergency or governmental personnel will deactivate the location as a ROLR in person on the

premises.o They will ensure that the entrants properly vacate and continue their evacuation.o Will determine any assistance required in evacuating or providing medical care to the

entrants.o They will confirm the location is fully closed under the purpose as a ROLR.

Liabilities The City of Newport News

o Building and Premises Damages The City of Newport News will not be held liable for any damages that may occur to

the building and premises designated as a refuge of last resort prior, during, and after its activation.

o Entrants Damages

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The City of Newport News holds no liability for any injuries or damages that may occur to any person(s) or property using a refuge of last resort. Those that use a refuge of last resort within the City of Newport News do so with the understanding that they themselves are responsible for the safety of their person and property. This responsibility is forever present from the moment they enter the premises to the moment they leave the premises.

o Structural Soundness The City of Newport News does not hold the duty to inspect the buildings or enforce

any building codes designed to make the buildings safe for use as a refuge. The Selected Refuges of Last Resort

o Building and Premises Damages The building owner is liable for any damages to their building and premises prior to,

during, and after its activation as a refuge of last resort.o Evacuee Damages

The building owner does not hold liability for those damages to personal property, injuries, or death to those who choose to use the refuge of last resort. This liability is taken upon by those who resort to taking refuge in these locations.

o Structural Soundness Upon notice that a structure will be used as a refuge, the owner holds the duty to

warn potential entrants, such as the City of Newport News, of any known or potential dangers. The building owner retains their duty to inspect their premises for dangerous conditions and to keep their building up to governmental and regulatory standards.

Disclaimer

The City of Newport News and the premises owner hold no liability for any injuries, damages, or deaths that may occur to any person(s) or property choosing to use a refuge of last resort. Those that choose to use a refuge of last resort within the City of Newport News do so with the understanding that they themselves are responsible for the safety of their person and property. This responsibility is forever present from the moment the evacuee moves toward the use of a refuge of last resort, through their stay in the refuge, and into their continued evacuation from the area. The refuge of last resort is a means of assisting those caught in the hazardous environment while evacuating and by no means will these structures be considered or treated as shelters. It is understood that the refuge of last resort is not up to the same standards and regulation of a shelter and as such holds a higher risk for those persons and property choosing to use a refuge of last resort.

Appendix A – ROLR Locations

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Location Name Address City, State, Zip Code Public or Private

Deer Park Elementary School

11541 Jefferson Ave Newport News, VA, 23601

Public

Greenwood Elementary 13640 Woodside Lane Newport News, VA, 23608

Public

Lee Hall Elementary School

17346 Warwick Boulevard

Newport News, VA, 23603

Public

Saunders Elementary School

853 Harpersville Road Newport News, VA, 23607

Public

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Attachment A – Areas 0.5 Miles and 1 Mile from Evacuation Routes

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Attachment B – Evacuation Routes, Shelters, and Current ROLR Locations

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Attachment C – Flood and Surge Zones Upper Newport News

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Attachment D – Flood and Surge Zones Lower Newport News

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Functional Annex 21

Documents

Transcript of Functional Annex 21