MSP/EMHSD Publication 110a: May 2011 Planning Template Only Draft – NOT FINAL
(NAME OF JURISDICTION) CONTINUITY OF GOVERNMENT PLAN
A SUPPORT PLAN TO THE (NAME OF JURISDICTION) EMERGENCY OPERATIONS PLAN
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ACRONYM GUIDE
The following acronyms are used in this plan. For consistency and brevity purposes, acronyms are used extensively for frequently appearing terms once they have been initially identified in the plan text. Certain terms may not have an acronym if an acronym is not commonly used in place of the term or using an acronym would prove unnecessarily confusing for plan readers.
AAA Area Agency on Aging
AAR After-Action Report
AEOC Alternate Emergency Operations Center
AOF Alternate Operating Facility
ARC American Red Cross – Michigan
ASG Alternate Seat of Government
BIA Business Impact Analysis
BPA Business Process Analysis
CGC Continuity Guidance Circular
COG Continuity of Government
COOP Continuity of Operations Plan (or Planning)
DERG Devolution Emergency Relocation Group
DHS U.S. Department of Homeland Security
DRC Disaster Recovery Center
DWG Devolution Working Group
EMAC Emergency Management Assistance Compact
EMAP Emergency Management Accreditation Program
EMC Emergency Management Coordinator
EOC Emergency Operations Center
EOP Emergency Operations Plan
ERG Emergency Relocation Group
ESF Emergency Support Function
FEMA Federal Emergency Management Agency
HSPD Homeland Security Presidential Directive
HSPD-20 Homeland Security Presidential Directive 20, “National Continuity Policy,” May 9, 2007
IAP Incident Action Plan
IC Incident Commander
ICP Incident Command Post
ICS / IMS Incident Command System / Incident Management System
IT Information Technology
JFO Joint Field Office
LSB Legislative Service Bureau
MCOGP Michigan Continuity of Government Plan
MDTMB Michigan Department of Technology, Management and Budget
MEF Mission Essential Function
MEMAC Michigan Emergency Management Assistance Compact
MEMP Michigan Emergency Management Plan
MIVOAD Michigan Voluntary Organizations Active in Disaster
MSP/EMHSD Michigan (Department of) State Police, Emergency Management and Homeland Security Division
NEF National Essential Function
NGO Nongovernmental Organization
NIMS National Incident Management System
NRF National Response Framework
NSPD-51 National Security Presidential Directive 51, “National Continuity Policy,” May 9, 2007
OFIR Office of Financial and Insurance Regulations (within the Michigan Department of Insurance and Regulatory Affairs)
PA / PAGP Public Assistance / Public Assistance Grant Program
PMEF Primary Mission Essential Function
RPO Recovery Point Objective
RRCC Regional Response Coordination Center
RTO Recovery Time Objective
SCAO State Court Administrative Office
SEOC State Emergency Operations Center
TTE Testing, Training and Exercising
UC Unified Command
Executive Office / Executive Branch (no acronyms used)
Local Courts (Judiciary / Judicial Branch) (no acronyms used)
Local Legislative Body / Legislative Branch (no acronyms used)
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TABLE OF CONTENTS
ACRONYM GUIDE
EXECUTIVE SYNOPSIS
PLAN PURPOSE AND SCOPE 1
AUTHORITIES AND REFERENCES 2
Local Authorities and References 2
State Authorities and References 2
Federal Authorities and References 3
Definitions 3
SITUATION AND ASSUMPTIONS 11
Essential Functions 11
National Essential Functions 11
Primary Mission Essential Functions 11
Mission Essential Functions 11
Continuity of Government vs. Continuity of Operations Planning 12
Planning Assumptions 12
Continuity Policy 14
COG Planning Phases 15
Initiating Conditions 15
OPERATIONS AND ORGANIZATION 17
Incident Assessment 17
Direct Resource Requests 17
Resource Augmentation 17
Mutual Aid 17
MEMAC Assistance 17
State Government 17
EMAC Assistance 17
Federal Government – Assistance under Stafford Act and National Response Framework 18
Pre-Staging of Federal Resources 18
Declaration of National Emergency 18
COG Provisions in the Emergency Operations Plan 19
COG Lead 19
COG Team 19
Executive Official 19
Local Courts 20
Legislative Body 20
Other Key Elected or Appointed Officials 20
Clerk 20
Register of Deeds 20
Prosecutor 20
Sheriff / Chief of Police 20
Treasurer 20
Local Support Jurisdictions 20
COG Function within the EOC/AEOC Structure 21
COG Operational Phases 21
Phase I – Activation and Relocation (0-12 hrs) 21
Phase II – Alternate Facility Operations (12 hrs -30 days) 22
Phase III – Reconstitution and Termination 23
Activation of COG Operation 23
EMC Notification 24
Key Official Notification 24
COG Team Notification 24
Other Continuity Personnel Notification 24
Local Support Jurisdiction Notification 24
Coordination with State Government 24
Coordination with Federal Government 24
Emergency Operations Support Facilities 25
EOC 25
AEOC 25
SEOC/ASEOC 25
Federal JFO / Other Federal Offices 25
ASG and AOFs 25
Orders of Succession for Key Officials 26
Unexpected Reduction in Local Government Workforce 26
Work Stoppage / Strike 26
Pandemic Disease Outbreak 26
Budget Reduction 27
Other Causes 27
Conduct of Elections 27
Conduct of Judicial Proceedings 28
Conduct of Legislative Process 28
Continuity of State Government 28
Continuity of Local Support Jurisdictions 29
Economic Stabilization 29
Financial Institutions 29
Budget 29
Business / Economic Development Services 29
Payments to Other Governments, Businesses and Individuals 30
Preservation of Public Health and Safety 30
Emergency Authorities 30
Michigan Constitution of 1963 30
Michigan Emergency Management Act 30
Emergency Powers of the Governor Act 31
Public Health Code 31
Suspension of Business of Banks and Savings Association Act 31
Declaration of a State of Energy Emergency Act 32
Fire Prevention Code 32
Local Charters and Ordinances 32
Directing / Compelling Evacuation 32
Imposition of Martial Law 32
Use of Michigan National Guard Resources for Public Safety 32
Imposition of Isolation or Quarantine 33
Federal Public Health Services Act 33
Public Health Code 33
Animal Industry Act 33
Health and Safety of Persons in Correctional Institutions 33
Health and Safety of Students at Public Education Institutions 33
State and Local Health Department Functions 34
Law Enforcement Functions 35
Supplemental Law Enforcement Functions 36
Vital Records Protection / Preservation 37
Weapons of Mass Destruction Attacks – Special Considerations 38
Emergency Communications Plan for COG Operations 38
Health and Safety Plan for COG Operations 38
Public Information Plan for COG Operations 39
Public Information Officer 39
State Public Information Officer 39
Joint Public Information Team 39
Joint Information Center 40
Broadcast / Print Media 40
(Name of Jurisdiction) Web Site 40
Operational Communications for Continuity Incidents 40
Communication with State Government 40
Communication with Federal Government 40
Communication with Educational Institutions 41
Communication with Private Sector Organizations 41
Devolution of Operations Plan 41
Reconstitution and Termination 41
Post-Incident Review / After-Action Report 41
Plan Review and Maintenance 41
Testing, Training and Exercise 42
Figure 1: Continuity Planning Implementation Process 43
Figure 2: Federal Support Process in the State of Michigan for COG Operations 44
TASKS AND EXECUTION 45
Roles and Responsibilities 45
Emergency Management Coordinator 45
Chief Elected Official 46
COG Team 46
Department / Agency Directors 47
Public Information Officer 47
ASG Director 48
ASG Coordination Liaison 49
EOC/AEOC Incident Management Section Chief 49
EOC/AEOC Operations Section Chief 49
EOC/AEOC Operations Section / Staging Branch 50
EOC/AEOL Logistics Section Chief 50
EOC/AEOC Planning Section Chief 50
EOC/AEOC Planning Section / Resource Unit 51
State Roles and Responsibilities 51
Governor / Lt. Governor 51
Supreme Court Chief Justice 52
Legislative Service Bureau 53
Nongovernmental Organization Roles and Responsibilities 53
ATTACHMENTS 54
Attachment 1: Referenced Support COG Plans and COOPs 57
Attachment 2: COG Team Roster 58
Attachment 3: Essential Functions List 59
Attachment 4: Business Impact Analysis for Essential Functions 60
Attachment 5: Business Impact Analysis: Recovery Time Objective Estimates for Essential Functions 61
Attachment 6: Business Process Analysis for Essential Functions: 30-Day Resource Requirements 62
Attachment 7: Orders of Succession 63
Attachment 8: Delegations of Authority 64
Attachment 9: AEOC for Continuity Operations: Specifications and Locations 65
Map of AEOC Location(s) 66
Attachment 10: AOF and ASG: Specifications and Locations 67
AOF and ASG Selection Criteria 67
ASG Space Considerations 67
AOF Space Considerations 67
Layout Considerations 67
Geographic Considerations 67
Hazard Considerations 67
Access / Security Considerations 78
Logistical Considerations 68
Ownership / Management Considerations 68
Facility Readiness Considerations 68
Cost Considerations 69
AOFs: Specifications and Locations 69
ASG: Specifications and Locations 70
ASG Operational Procedures 71
Purpose 71
Scope of Activities 71
Facility Establishment 71
Location and Layout 71
Onsite Management 72
Incident Information Management System 72
Staff Reception, Security and Processing 72
Registration for Support Services 73
Accommodations for ASG Staff 73
Medical Services 74
Transportation Services 74
Family Services 74
Animal Care Services 74
ASG Logistics 74
Administration and Finance 75
JIC 75
Task Assignments Specific to ASG Operations 76
Human Services Department 76
Animal Control Department 76
Health Department 76
Legal Department 76
Area Agency on Aging 77
Technical Department 77
Finance Department 77
Police / Sheriff Department 77
Security / Reception / Registration Center Layout for ASG Facility 78
Attachment 11: Vital Records Log 79
Attachment 12: Essential Function Relocation Groups 80
Devolution of Operations Plans for Essential Functions 81
Attachment 13: Testing, Training and Exercise Log 82
Attachment 14: Sample Public Information Materials for Continuity Operations 83
Sample Press Releases 83
Sample Public Service Announcements 85
Sample Web Site Announcements 86
Attachment 15: COG Planning Phases and Primary Considerations 89
COG Planning Phases and Primary Considerations: Summary 89
Identification of Essential Functions 90
Prioritization of Essential Functions 91
Establishing Continuity Protective Measures 92
Orders of Succession 92
Delegations of Authority 92
AEOC 93
AOFs / ASG 93
Continuity Communication and IT Systems 94
Vital Records Management 94
Human Capital 95
Testing, Training and Exercises 97
Responding to Continuity Incidents 98
Continuity Program Management System 98
Attachment 16: Michigan Constitution: COG Provisions 101
Article I: Declaration of Rights 101
Article II: Elections 101
Article III: General Government 101
Article IV: Legislative Branch 101
Article V: Executive Branch 102
Article VI: Judicial Branch 103
Article VII: Local Government 104
Article VIII: Education 105
Article IX: Finance and Taxation 106
Attachment 17: Select Michigan Statutes with COG Provisions 107
Act 390, Public Acts of 1976, the Emergency Management Act 107
Act 302, Public Acts of 1945, the Emergency Powers of the Governor Act 108
Act 202, Public Acts of 1959, the Emergency Interim Executive Succession Act 108
Act 227, Public Acts of 1963, the Emergency Interim Judicial Succession Act 108
Act 303, Public Acts of 2000, the Emergency Interim Local Succession Act 109
Act 207, Public Acts of 1941, the Fire Prevention Code 109
Act 368, Public Acts of 1978, the Public Health Code 109
Act 431, Public Acts of 1984, the Management and Budget Act 109
Act 150, Public Acts of 1967, the Michigan Military Act 109
Act 380, Public Acts of 1965, the Executive Organization Act 109
Act 191, Public Acts of 1982, the Declaration of State of Energy Emergency Act 110
Act 232, Public Acts of 1978, the Suspension of Business of Banks and Savings and Loans Associations Act 110
Attachment 18: Relevant Federal Government COG Guidance Materials 111
Attachment 19: Checklist of Major Continuity Functions and Capability Gap Analysis 112
Attachment 20: Continuity Policy 115
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(NAME OF JURISDICTION) CONTINUITY OF GOVERNMENT (COG) PLAN
EXECUTIVE SYNOPSIS
PURPOSE: Provide an organizational and operational framework to ensure the continuation of Constitutional and legal governance within (name of jurisdiction), subsequent to a catastrophic disaster, emergency, or other incident. This plan addresses all three branches (Executive, Judicial, and Legislative) of (name of jurisdiction) government, in accordance with standards and guidelines prescribed by the federal Department of Homeland Security (DHS) and Federal Emergency Management Agency (FEMA) and set forth in relevant provisions of the Michigan Constitution of 1963 (e.g., Article III, Section 2, Separation of Powers of Government; Article IV, Section 39, Continuity of Government in Emergencies; Article VII, Local Government; etc.), relevant Michigan statutes and the Michigan Continuity of Government Plan (MCOGP).
SCOPE: Activities related to the: 1) coordinated and timely relocation of (name of jurisdiction)’s three branches of government to an Alternate Seat of Government (ASG); 2) protection of the safety and health of (name of jurisdiction) residents; 3) protection and continuation of Constitutionally-mandated government processes; 4) protection and continuation of Constitutionally-mandated elections to ensure a stable democracy; 5) stabilization of the economy and economic institutions within (name of jurisdiction); 6) protection and continued availability of vital records, resources and assets; 7) continuation of Essential Functions of (name of jurisdiction)’s government; and 8) reconstitution of (name of jurisdiction)’s government once the disaster, emergency or incident has been effectively addressed.
INITIATING CONDITIONS: This plan will be initiated upon the event of a catastrophic disaster, emergency or other incident that significantly impacts (name of jurisdiction) to the extent that effective and timely functioning of (name of jurisdiction)’s government is not possible without appropriate continuity measures.
DEVELOPMENT: The (insert correct title of EMC) and (name of jurisdiction) COG Team are responsible for development of the COG Plan. The (insert correct title of EMC) will request applicable (name of jurisdiction) departments and agencies to develop a Continuity of Operations Plan (COOP) for their Essential Functions using MSP/EMHSD Publication 110a (or similar guidance). All COOPs will be cross-referenced to the (name of jurisdiction) COG Plan. Similarly, the (insert correct title of EMC) may request that local support jurisdictions of (name of jurisdiction) complete their own COG Plan (also using Publication 110a or similar) with the stipulation that such plans be appended to the (name of jurisdiction) COG Plan. See Attachment 1.
INVOLVED ENTITIES: All areas of (name of jurisdiction) government have roles and responsibilities in a COG operation. However, the following sectors of (name of jurisdiction) government and nongovernmental organizations (NGOs) have been specifically identified as having particularly key support roles and responsibilities in the planning for and/or implementation of a COG operation:
· Executive offices (list those included under this heading)
· Legislative body (indicate name of legislative body, i.e., Board of Commissioners, City Council or similar)