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Tsunami Local Guidance
Top of Form
Local Planning Guidance on
Tsunami Response
SECOND EDITION
A Supplement to the Emergency Planning Guidance
for Local Governments
Arnold Schwarzenegger
Governor
State of California
Henry R. Renteria
Director
Governor’s Office of Emergency Services
OES Local Planning Guidance on Tsunami Response
110
State of California
Governor’s Office of Emergency Services
Preface
The research, the committee deliberations, and the writing of this document were supported by the National Oceanic and Atmospheric Administration (NOAA), the National Tsunami Hazard Mitigation Program, the National Earthquake Hazards Reduction Program of the Federal Emergency Management Agency (FEMA), and the California Governor’s Office of Emergency Services (OES) Earthquake Program.
The opinions and recommendations do not necessarily represent those of NOAA or FEMA. The contents do not guarantee the safety of any individual, structure, or facility in an earthquake or tsunami. Neither the Unites States nor the State of California, assumes liability for any injury, death, or property damage that results from an earthquake or a tsunami.
Local Planning Guidance on Tsunami Response
A Supplement to the Emergency Planning Guidance for Local Government
California Tsunami Steering Committee Members
Susan Asturias, San Diego County Office of Disaster Preparedness
Chris Bach, City of San Diego Office of Disaster Preparedness
Joyce Harris, Los Angeles County Office of Emergency Management
Mike Martinet, Los Angeles County Area G, Office of Emergency Planning
Ellen McNeill, Santa Monica Fire Department
Andy Rosenberger, Santa Barbara Fire Department
Mary Barron, Santa Barbara County Fire Department
Mike Mitchell, Santa Barbara Police Department
Lori Dengler, Department of Geology, Humboldt State University, Arcata
Tom Maruyama, San Mateo County Sheriff's Office of Emergency Services
Stasha Wyskiel, San Francisco Mayor’s Office of Emergency Services
Rich Eisner, Governor’s Office of Emergency Services, Coastal Region
Deborah Steffen, Governor’s Office of Emergency Services, Southern Region
Lloyd Darrington, Governor’s Office of Emergency Services, Telecommunications Branch
Fritz Patterson, Governor’s Office of Emergency Services, Law Branch
Catherine Firpo, Governor’s Office of Emergency Services, Coastal Region
Cathie Currie, Governor’s Office of Emergency Services, Southern Region
Tom Mullins, Governor’s Office of Emergency Services, Information and Public Affairs
Jane Hindmarsh, Governor’s Office of Emergency Services, PTAB
OES Project Staff
Richard Eisner, Coastal Region Administrator
Catherine Firpo
Brenna Carr
LaVange Guinn
Robert Foster
Kathleen Bailey
CONTENTS
Preface 2
Executive Summary 10
Introduction 11
Use of Model Inundation Maps 12
Limitations and Use of Inundation Projections 12
Development of Tsunami Plans 14
Evacuation Plans 15
Public Education Programs and Training 15
Exercises 16
Tsunami Warning System 17
Appendices
Appendix 1 - Acronyms and Terminology 19
Acronyms 19
Terminology 21
Appendix 2 - Tsunami Background Information 24
What is a Tsunami? What Causes It? 24
Tsunami Categories 25
Tsunamis in California 25
The Tsunami Threat to Northern California 26
The Tsunami Threat to Southern California 26
Near-Source Tsunami Detection 27
Near-Source Tsunami Warnings 27
The Pacific-Wide Tsunami Warning System 28
Local Government Evacuation Plans 28
North Coast Scenario 29
Historic California Tsunamis 30
Appendix 3 - Tsunami Planning 36
Tsunami Sample Planning Template 36
Management 36
Organizational Structure 36
Coordination of Disciplines 36
Non-Profits and Private Businesses 37
Public Information 37
Safety and Security 37
Information Dissemination 37
Operations 38
Fire Department 38
Hazardous Materials 38
Law Enforcement 39
Coroner 39
Medical and Health 40
Care & Shelter 41
Public Works and Utilities 41
Planning and Intelligence 43
Threat Analysis 43
Identification of Planning Gaps 43
Logistics 44
Support Requirements 44
Resources Data Bases 44
Finance and Administration 44
Continuity of Operations 44
Cost Tracking 44
Training and Exercises 45
Tsunami Response Training 45
Tsunami Awareness Programs 45
First Responder Training 45
Exercises 45
Appendix 4 - Sample San Mateo County Plan 46
Introduction 46
Background 46
Purpose 46
Activation 47
Concept of Operations 47
Relationship to Other Plans 48
Area Security 48
Area Re-entry 48
ENCLOSURE 1 49
KEY PHONE LIST
ENCLOSURE 2 50
COASTSIDE TSUNAMI CHECKLIST
ENCLOSURE 3 51
SAMPLE BRIEFING FORMAT
ENCLOSURE 4 52
SAMPLE EVACUATION ORDER
ENCLOSURE 5 53
ADVERTENCIA PARA EVACUACION
ENCLOSURE 6 54
WESTAR CABLE WARNING MESSAGE
ENCLOSURE 7 55
TRAFFIC CLOSURE POINTS
ENCLOSURE 8 56
REFERENCES
TSUNAMI WATCH CHECKLIST 58
TSUNAMI WARNING CHECKLIST 61
TSUNAMI OCCURRENCE CHECKLIST 65
TSUNAMI PROCEDURE 66
1.10.1 GENERAL 66
1.10.2 ASSUMPTIONS 66
1.10.3 ALERT SITUATIONS 67
DUMMY 67
WATCH 67
WARNING 67
CANCELLATION 67
1.10.4 SPECIFIC RESPONSIBILITIES 68
ATTACHMENTS
ATTACHMENT A 69
PRE-WATCH/WATCH MESSAGE
ATTACHMENT B 70
SAMPLE NEWS RELEASE (ENGLISH)
SAMPLE NEWS RELEASE (SPANISH)
ATTACHMENT C 71
TSUNAMI WATCH MESSAGE
-TSUNAMI/SEISMIC SEA WAVE WATCH
ATTACHMENT D 72
TSUNAMI WARNING MESSAGE
-TSUNAMI/SEISMIC SEA WAVE WARNING
ATTACHMENT E 73
TSUNAMI CANCELLATION MESSAGE
-TSUNAMI SEISMIC SEA WAVE CANCELLATION
ATTACHMENT F 74
AGENCIES CONCERNED WITH TSUNAMIS
ATTACHMENT G 76
INCIDENT COMMAND RESPONSIBILITIES
ATTACHMENT H 77
TSUNAMI TIME CURVES, CONVERSION TO/FROM GREENWICH MEAN TIME
Appendix 5 - Sample Santa Luisa Del Mar City Plan 78
Introduction 78
Concept of Operations 78
Hazard Analysis for Tsunami 78
Management 78
Organizational Structure 78
Coordination of Disciplines 79
Inclusion of Non-profits and Businesses 79
Public Information 79
Safety and Security 79
Information Dissemination 80
Office of Emergency Services 80
Police Department 81
Fire Department 81
Administration 81
Finance 81
Operations 81
Fire Department 81
Police Department 82
Public Works 82
Parks and Recreation 83
Medical/Health 83
Planning and Intelligence 84
Threat Analysis 84
Office of Emergency Services 84
Administration 84
Community Development 84
Police Department 84
Fire Department 84
Public Works 84
Logistics 85
Support Requirements 85
Data Bases 85
Administration 85
Community Development 85
Police Department 85
Fire Department 85
Public Works 85
Finance and Administration 85
Continuity of Operations 86
Cost Tracking 86
Responsibilities 86
Training and Exercises 86
LIKELIHOOD OF OCCURRENCE AND SEVERITY 87
TSUNAMI SEMS FUNCTIONS 88
TSUNAMI COMPONENT 89
POTENTIAL TSUNAMI RESPONSE 90
TSUNAMI RESPONSE ACTIONS 91
CONSEQUENCES 92
NOTIFICATION AND THREAT ANALYSIS 92
GENERAL NOTIFICATION PROCEDURES 93
Appendix 6 - Explanation of the Tsunami Watch and Warning System 94
THE TSUNAMI WARNING SYSTEM IN THE PACIFIC 94
OPERATIONAL PROCEDURES 94
DEFINITIONS 95
COMMUNICATIONS REQUIREMENTS AND METHODS 97
OBJECTIVE 97
COMMUNICATIONS SERVICES AVAILABLE 97
DISSEMINATION OF TSUNAMI WATCHES AND WARNINGS 98
SELECTION OF AGENCY 98
FUNCTION AND RESPONSIBILITIES OF DISSEMINATION AGENCY 98
ALL CLEAR PROCEDURE 98
SUMMARY OF WC/ATWC OPERATIONAL PROCEDURES 99
OPERATIONS 100
EARTHQUAKES IN THE ALASKA PENINSULA, GULF OF ALASKA, AND UNITED
STATES/CANADA WEST COAST (Unimak Pass to the California/Mexico Border) 100
EARTHQUAKES IN ALASKA'S ALEUTIAN ISLANDS (Attu to Unimak Pass) 100
EARTHQUAKES IN ALASKA'S BERING SEA 101
EARTHQUAKES IN THE PACIFIC BASIN OUTSIDE THE WEST COAST, BRITISH COLUMBIA AND ALASKA 101
TSUNAMI INFORMATION BULLETINS 101
Appendix 7 - Bibliography 102
Appendix 8 – Unified Command and SEMS 103
Appendix 9 – Legal Guidelines for Controlling Movement of People and Property 110
OES Local Planning Guidance on Tsunami Response
110
Executive Summary
The California Governor’s Office of Emergency Services convened a Tsunami Hazard Mitigation Workshop in 1997. The workshop was comprised of local, state and federal agencies representing coastal communities and programs. Even though participating local jurisdictions were aware of the tsunami threat, most had done little tsunami specific evacuation, mitigation, preparedness, response or recovery planning. The workshop participants identified a critical need for the development and distribution of up-to-date inundation maps to the communities at risk, as well as the development of guidance on how to use the maps for local government.
In October of 1997, representatives of coastal counties were brought together to identify and prioritize the areas along the California coastline to be mapped during the initial phase of the tsunami mitigation program. With funding from the National Tsunami Hazard Mitigation Program of National Oceanic and Atmospheric Administration (NOAA), Professor Costas Synolakis of the University of Southern California was selected to produce inundation projections for selected coastal areas. The areas chosen were: 1) San Francisco County and San Mateo County (Golden Gate through San Mateo), 2) Santa Barbara County, 3) San Diego County (Coronado to Encinitas), and 4) Los Angeles County (Santa Monica to Palos Verdes). Projections of tsunami inundation in Humboldt Bay and Crescent City will be provided by the NOAA Tsunami Inundation Mapping Effort (TIME) Center in Newport, Oregon as part of a national assessment of alternative modeling approaches (NOAA published initial inundation maps for Humboldt Bay and Crescent City in 1994).
There is agreement within the tsunami and emergency response communities that technology alone cannot protect coast habitats in the immediate area of a near-source tsunami. When a large subduction zone earthquake occurs nearby, the first tsunami waves may reach coastal communities within a few minutes of the event. Local populations at risk must be able to recognize the signs of impending tsunami hazards and seek higher ground immediately. Communities need to be aware of what areas are likely to be flooded. Local decision-makers need to understand the risk and be provided with mitigation tools in order to make informed planning decisions. Planners, emergency responders, and residents need to understand the multi-hazard ramifications of a very large local earthquake and its disruption to the community.
This planning guidance is intended to assist local governments in the initial development of a tsunami response plan and the procedures necessary to deal with a tsunami’s impact on their communities. This guidance covers three main areas:
· Use of Model Inundation Maps
· Development of tsunami specific plans including evacuation procedures
· Explanation of tsunami warning procedures.
While this planning guidance is designed for use by local governments, as defined in the Standardized Emergency Management System (SEMS), it may also be used for planning purposes by Operational Areas (OAs). State or federal agencies that support local governments through field offices will also find this a useful planning document.
Introduction
A tsunami (seismic sea wave, tidal wave) is a series of waves most commonly caused by an earthquake beneath the sea floor or by a large undersea landslide. In the open ocean, tsunami waves travel at speeds of up to 600 miles per hour but are too small to be observed. As the waves enter shallow water, they slow down and may rise to several feet or, in rare cases, tens of feet. Tsunamis can cause great loss of life and property damage where they come ashore. The first wave is almost never the largest; successive waves may be spaced tens of minutes apart and continue arriving for many hours. Since 1812, the California coast has had 14 tsunamis with wave heights higher than three feet; six of these were destructive. The Channel Islands were hit by a damaging tsunami in the early 1800s. The worst tsunami resulted from the 1964 Alaskan earthquake and caused 12 deaths and at least $17 million in damage to northern California. The April 25, 1992 Cape Mendocino earthquake produced a one-foot tsunami that reached Humboldt Bay in about 20 minutes after the shaking. Although not damaging, this tsunami demonstrated that a wave could reach our coastline quickly. Two general types of tsunamis could affect the coastal areas of California:
Local-source tsunami: If a large tsunami-genic earthquake occurs at or near the California coast, the first waves may reach coastal communities within minutes after the ground shaking stops. There is no time for authorities to issue a warning. Mitigation requires an understanding of areas at risk, areas of safety, evacuation routes and a trained public that understands the need to immediately move inland or to higher ground.
Though infrequent, California has experienced local tsunamis in the past, and paleotsunami evidence shows major tsunami impact in the recent geologic past. Risk is considered high along the north coast of California, from Crescent City to Cape Mendocino; moderate south of Cape Mendocino to north of Monterey; high south of Monterey to Palos Verdes; and moderate south of Palos Verdes to San Diego (see Historic California Tsunamis in Appendix 2.) Large local tsunamis may impact the entire California coastline. Waves from an earthquake at the Cascadia Subduction Zone could reach southern California in less than 2 hours.
Distant-source tsunami: Very large earthquakes in other areas of the Pacific Rim may also cause tsunamis which could impact California’s coast. The first waves would reach our coastline many hours after the earthquake occurred. Tsunami Warning Centers are responsible for alerting local officials, who may order evacuation. Effective mitigation requires an understanding of the tsunami warning system, local areas at risk, and evacuation planning.
Use of Model Inundation Maps
California coastal communities need to know the areas where damage is possible from a tsunami in order to prepare for and reduce losses. Local decision makers need to understand their risk in order to make informed planning decisions. The major steps in using the model inundation maps to develop a tsunami vulnerability analysis are:
· Transfer information from the model tsunami inundation maps to jurisdiction based maps.
· Analyze and confirm the inundation projections by field surveys and detailed topographic review.
· Develop map overlays for the following:
¨ Critical facilities (police, fire, city hall, public works facilities, airports, major supply warehouses)
¨ Special needs facilities (schools, public assembly, hospitals, convalescent homes)
¨ Special needs populations (e.g. non-English speakers, physically disabled, elderly, children)
¨ Transportation lifelines
¨ Hazardous materials sites and facilities
¨ Population demographics
· Identify boundaries of Tsunami Evacuation Zone with well-known landmarks, such as streets, railroad or freeway rights-of-way, parks, etc.
· Identify refuge areas within the Tsunami Evacuation Zone and their shelter capacity for evacuated population.
· Survey proposed evacuation routes to determine post earthquake function of bridges, adjacent buildings, and expected safety of adjacent land uses (avoid hazardous buildings and HazMat sites).
· Locate evacuation routes and alternates.
Limitations and Use of Inundation Projections
Ideally, tsunami response and evacuation planning should be based on reliable models of projected inundation at a given location and estimates of the probability of occurrence of earthquakes and tsunamis based on known as well as recurrence intervals. Unfortunately, both factors are limited by our knowledge of the tsunami history of the Pacific coast of California.