A Compendium of Best Practices and Lessons Learned for Improving Local Community Recovery from Disastrous Hazardous Materials Transportation Incidents (2012)

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C-1 There are two approaches commonly followed in developing recovery plans. The first is to develop a recovery section to the community’s emergency operations plan (basic plan) that outlines recovery information applicable to all hazards. The recovery plan from the County of San Diego, California, is presented as an example of this type of overarching recovery plan. The information presented in this appendix is taken directly from the referenced document. Sample Recovery Plans “San Diego County Emergency Services Organization and County of San Diego – Recovery Plan,” County of San Diego, CA, URS Corporation, April 2007 (www.llis.gov) Relationship to Response opeRations Response operations provide the foundation of the San Diego OA [Operational Area] Recovery Plan. Recovery operations typically begin concurrently with, or shortly after, commencement of response operations. For example, cost recovery and resource demobilization are recovery functions that begin during the response phase as costs are incurred and resources are mobilized. In recognition of recovery’s close relationship to response, the Operational Area will staff the position of Recovery Coordinator as a member of the Operational Area EOC [Emergency Operations Center] staff to coordinate recovery activities from the Operational Area EOC during the incident response phase. Depending on the nature, type, and severity of the disaster, the Recovery Coordinator may expand the Recovery Organization and may have additional branches and units established under it during the response phase. Under the Operational Area EOC’s SOPs [Standard Operating Procedures], an Initial Damage Estimate (IDE) is developed during the emergency response phase to support a request for a gubernatorial proclamation and for the state to request a presidential declaration. During the recovery phase, this assessment is refined to a more detailed level. This detailed damage/safety assessment will be needed to apply for various state and federal disaster financial assistance programs. Short-term recovery operations may continue to be coordinated from the Operational Area EOC after the response phase is over, if required. Under the San Diego OAEP [Operational Area Emergency Plan], termination of the emergency’s response phase is concurrent with the deactivation of the Operational Area EOC; however, continued coordination from the response phase into the recovery phase is necessary to identify high-priority areas for resumption of utilities, liability concerns, financing, and recovery ordinances. shoRt-teRM ReCoVeRY opeRations Short-term recovery operations include all agencies and jurisdictions participating in the Operational Area’s disaster response. Activities are generally coordinated from within the EOC and recovery activities begin during the response phase of the emergency. A P P E n D I x C Sample Recovery Plans (continued on next page)

C-2 A Compendium of Best Practices and Lessons Learned Sample Recovery Plans (Continued). “San Diego County Emergency Services Organization and County of San Diego – Recovery Plan,” County of San Diego, CA, URS Corporation, April 2007 (www.llis.gov) The key objectives of short-term recovery operations are to restore shelter, jobs, services, and facilities quickly and efficiently. These operations include • Utility restoration; • Expanded social, medical, and mental health services; • Re-establishment of government operations; • Transportation route restoration; • Debris removal and cleanup operations; • Building safety inspections; and • Abatement and demolition of hazardous structures. Emergency actions may be taken to address specific conditions such as • Suspension of evictions; • Request utilities to provide bill relief; • Waiver of permit fees for damage repairs; • need for temporary housing and business space; and • Change or alter traffic patterns. Short-term recovery operations for the Operational Area will transition into long-term recovery operations at the direction of the Operational Area EOC Director. If the EOC is not activated at the time of transition, the Director of the County OES will make the determination to transition. At the local government level, the jurisdiction’s Director of Emergency Services or similar position shall make the determination. Under most circumstances, the transition from short- to long-term recovery operations will occur within 90 days of the termination of the emergency or close of the incident period. The 90-day time period is intended only as a guide. Transition to long-term recovery operations may occur at any time within or after the 90-day period, depending on the severity of the emergency and the effectiveness of the coordinated local, state, and/or federal response. lonG-teRM ReCoVeRY opeRations The primary goal of long-term recovery operations is to rebuild safely and wisely, reducing future hazards and optimizing community improvements. The major objectives of these operations include • Reconstructed public facilities; • Coordinated delivery of long-term social and health services; • Improved land use planning and implementation; • An improved EOP; • Re-establishment of the local economy to pre-disaster levels; • Recovery of disaster-related costs; and • Effective integration of mitigation strategies into recovery planning and operations. Hazard mitigation actions will be coordinated and employed in all activities by all jurisdictions in order to ensure a maximum reduction of vulnerability to future disasters. Each affected jurisdiction is responsible for their own approach to mitigation, which could include zoning variances, building codes changes, plan reviews, seismic safety elements, and other land use planning techniques. Local jurisdictions and special districts within the Operational Area will strive to restore essential facilities through repair, reconstruction, improvement, or mitigation during long-term recovery operations. Redevelopment agencies within the Operational Area will play a vital role in rebuilding commercial areas. Jurisdictions and special districts will also continue to assist individual citizens and private businesses through long-term recovery operations with continued provision of local services and information regarding state and federal assistance programs.

Sample Recovery Plans C-3 The county OES [Office of Emergency Services]/EOC Director may appoint a Recovery Manager to lead long-term recovery operations. The newly appointed Recovery Manager will perform his or her duties through county OES under the direction of the OES/EOC Director and will direct long-term recovery activities in the unincorporated areas; while acting as a central resource for recovery activities in the incorporated jurisdictions. Local jurisdictions and special districts may, or may not, designate a new position title to manage long-term recovery functions. Debris Removal and Management Overview Major disasters can generate enormous volumes of debris in short periods of time. Debris clearance, removal, and disposal operations must be implemented quickly to protect public health and safety of the local population. The County of San Diego Disaster Debris Recycling and Handling Plan is presented in Appendix I. Debris removal and management within the county will be coordinated through the county OES Recovery Coordinator/Manager; however, each city and the county is responsible for disaster debris cleanup within their jurisdictional boundaries unless alternative arrangements are made. Information for debris handling and removal will be coordinated through the countywide 2-1-1 hotline that will refer residents to their appropriate jurisdiction’s hotline and website. Standardized press releases and public information will be coordinated through the Joint Information Center (JIC) for recycling, household hazardous waste, and debris handling. The speed of initial debris clearance, removal, and disposal operations depends upon the depth of pre-disaster planning by Operational Area jurisdictions and special districts. Recycling Debris recycling processes are provided in the County of San Diego Disaster Debris Recycling and Handling Plan (see Appendix I). To conserve the regional landfill capacity and to follow the state policy to maximize all diversion options in order to reduce the amount of solid waste that must be disposed, it is the county’s intent that disaster-related debris be recycled or centrally held until it can be processed for maximum recycling. Recycling and processing costs are considered a cost of debris clearance if local debris management plans, existing prior to the disaster, provide for separate handling and cost accounting for disaster-created debris. The county’s Disaster Debris Recycling and Handling Plan is consistent with the California Integrated Waste Management Board (CIWMB) Disaster Debris Plan as well as FEMA’s Debris Management Guide (FEMA 322). Local jurisdictions are encouraged to develop disaster debris plans as part of individual emergency operations plans. Debris Clearance Disaster debris may fall on roadways and block access to certain neighborhoods or communities. Clearance of this debris from roadways to allow the safe passage of emergency vehicles is a response function. Curbside Debris Removal Removal of debris located within public right-of-way is referred to as curbside debris removal. Debris may be placed within the right of way by the disaster, or by residents and businesses as private lots are cleaned. Debris located within the public right of way is a threat to general public health and safety, and its removal is considered a short-term recovery function. Private Property Debris Removal Private property debris removal (PPDR) is generally not eligible because it is the responsibility of the individual property owner. If the debris on private business and residential property is so widespread that public health, safety, or the economic recovery of a community is threatened, FEMA may fund PPDR, but FEMA must approve this activity in advance and all appropriate Rights of Entry (ROEs) must be secured. (continued on next page)

C-4 A Compendium of Best Practices and Lessons Learned Sample Recovery Plans (Continued). “San Diego County Emergency Services Organization and County of San Diego – Recovery Plan,” County of San Diego, CA, URS Corporation, April 2007 (www.llis.gov) Demolition Demolition of disaster-damaged structures may be eligible for emergency work assistance if the work is necessary to • Eliminate an immediate threat to lives, public health, and safety; • Eliminate immediate threats of significant damage to improved public or private property; • Ensure the economic recovery of the affected community to the benefit of the community at large; • Mitigate the risk to life and property by removing substantially damaged and associated appurtenances as needed to convert property acquired through a FEMA hazard mitigation program to uses compatible with open space, recreation, or wetlands management practices. Removal of slabs or foundations and covering of pads and driveways that do not present a health or safety hazard (except for structures in a FEMA-funded buyout program) is not eligible for reimbursement. As with PPDR, demolition of private structures requires approval by FEMA prior to start of work, and appropriate agreements with local governments to hold the federal government free from damages due to performance of the work must be in place. Demolition also requires condemnation by an authorized local official in accordance with state and local law. Direct Federal Assistance When the state and local government lack the capability to perform or contract for eligible emergency work and/or debris removal under sections, Direct Federal Assistance (DFA) may be available for curbside debris removal, PPDR, demolition, or vessel salvage operations. FEMA will provide DFA through a mission assignment to another federal agency - upon request of the state - when the State and local government certify they lack the capability to perform or contract for the requested work. The duration of mission assignments for debris removal is limited to 60 days from the disaster declaration date. The Federal Coordinating Officer (FCO) may approve extensions for up to an additional 60 days, if a state or local government demonstrates a continued lack of capability to assume oversight of any debris removal mission. Economic Recovery Economic recovery is typically conceptualized within the framework of long-term recovery operations associated with major disasters. Special attention to economic recovery generally is not required as a result of local emergencies. While it is important that local, state, and federal agencies move as quickly as possible to address the economic impacts of major or catastrophic events, economic revitalization efforts must also be based on a sound understanding of the economic landscape before and after the disaster to ensure that recovery is sustainable. Government efforts should strive to enhance regional competitiveness and support long-term development of the regional economy. To this end, it is important that Operational Area jurisdictions and special districts work not only with federal and state officials, but also with the region’s business leaders and the San Diego Regional Chamber of Commerce during all aspects of economic recovery. The foundation of economic recovery is the restoration of critical public infrastructure and resumption of public services needed to get businesses up and running again and get people back to work. For declared major disasters, FEMA’s PA program is integral to economic recovery as the primary infrastructure recovery funding mechanism. If an incident demands large-scale evacuation or renders a significant portion of the region’s housing stock damaged or inhabitable, repopulation is another essential economic recovery element. For declared major disasters, FEMA’s IA temporary housing programs will facilitate repopulation efforts to facilitate economic recovery.

Sample Recovery Plans C-5 The U.S. Department of Commerce Economic Development Administration (EDA) is the primary federal agency within ESF #14 under the nRP [nRF] with responsibility for supporting coordinated long-term recovery following natural disasters. EDA’s participation in major disaster recovery efforts has traditionally supplemented the lead roles assigned to FEMA. In addition to its ESF-14 role, EDA may be tasked by FEMA to perform economic impact evaluations or carry out other specific tasks. San Diego Regional Economic Indicators The County Land Use and Environment Group (LUEG) and the San Diego Regional Chamber of Commerce collaborate to maintain a database of economic indicators measuring the monthly vitality of the San Diego economy. Indicators are displayed in a Briefing Book format generated by the county’s performance management software. Indicators that are tracked include – Economic Indexes – Sales Statistics – Employment Data – Stock Indexes – Housing Indicators – Tourism Industry Statistics – Mortgage Rates – Charity Donation Data Agencies that could be consulted for economic and demographic indicators include the following: • San Diego Association of Governments (www.sandag.org): Provides demographics; jobs, wages, and economic impact by traded cluster. • California Employment Development Dept. (www.edd.ca.gov): Provides jobs and wages by occupation; jobs by industrial sector; number of companies and size of companies by employees by sector; total employment; unemployment rate. • California Association of Realtors (www.car.org): Provides median home price by county; housing affordability. • San Diego Association of Realtors (www.sdar.org): Provides median home price and number of homes sold by zip code. • San Diego Regional Chamber of Commerce (www.sdchamber.org): Provides gross regional product. • San Diego Business Journal annual Book of Lists (www.sdbj.com): Provides largest companies by sector. • Centre City Development Corp. (www.ccdc.com): Provides demographics and new construction data on downtown San Diego. The second approach is to develop a stand-alone hazardous materials plan that includes a recovery component. The plan from Contra Costa County, California, is an example of that type of planning activity. The information presented in this appendix is taken directly from the referenced document. Sample Hazardous Materials Plan “Contra Costa County Hazardous Materials Area Plan, County of Contra Costa,” California, William Walker, MD Health Services Director, Randall L. Sawyer, Hazardous Materials Division Director, and Michael P. Wedl, Hazardous Materials Specialist, December 2005 shelteR-in-plaCe & eVaCuation plans The following procedures have been developed to safeguard the public affected by a hazardous materials incident: 1. Determine the properties of the hazardous materials involved, including toxicity, physical, chemical, fire, explosion, quantity, concentration, vapor pressure, density, and potential health effects; 2. Evaluate area topography, meteorology, hydrology, demography, and facility characteristics, including the delineation of potentially impacted areas. (continued on next page)

C-6 A Compendium of Best Practices and Lessons Learned Sample Hazardous Materials Plan (Continued). “Contra Costa County Hazardous Materials Area Plan, County of Contra Costa,” California, William Walker, MD Health Services Director, Randall L. Sawyer, Hazardous Materials Division Director, and Michael P. Wedl, Hazardous Materials Specialist, December 2005 3. Determine whether shelter in place or evacuation is necessary; 4. The affected public are to shelter in place first, and remain sheltered in place until it is determined that an evacuation is necessary; 5. Timely notification of the affected public through activation of the Community Warning System (CWS); 6. Coordinate available information with responding agencies and Emergency Medical Services (EMS) to determine logistics (i.e., evacuation routes, mass-care facilities, shelter and reception areas). 7. Hospitals will be notified by EMS of shelter in place and shelter-in-place release. Cleanup 1. Overall operations for returning the incident scene to a normal condition are the responsibility of the IC. It is the policy of Contra Costa County that the IC identify and encourage the responsible party to take prompt remedial action. a. Prompt remedial action by the responsible party includes funding the cost of containment, removal, disposal, and restoration of the scene to a normal condition under the direction of the Contra Costa County Health Officer. b. When the responsible party accepts responsibility for a hazardous materials incident, responding agencies may submit any claims for the recovery of costs to the responsible party. Each agency is responsible for documenting their costs incurred during the incident and submitting them to the responsible party. 2. CCHS-HazMat will assume mitigation and cleanup responsibilities whenever the responsible party is a. Unknown; b. Unable to pay; c. Unwilling to accept responsibility; or d. not conducting an adequate cleanup. 3. CCHS-HazMat’s policy is to only commit county funds to clean up a hazardous materials incident when an imminent threat to human health or the environment exists and no responsible parties have been identified. Incidents where the identified hazardous material is not presenting an imminent threat, CCHS-HazMat staff will advise and assist the IC with cleanup functions, but will not commit county funds. Cleanup must ultimately meet health and safety standards as prescribed by the Contra Costa County Health Officer. The Contra Costa County Health Officer is the local government authority for determining when a. The cleanup operation is complete; and b. Secured areas may be reopened (e.g., buildings, roadways, waterways and evacuated areas, etc.) 4. The IC should not sign to pay for cleanup costs unless previously approved by the Department Chief, City Manager, or County Administrator. 5. The Contra Costa County Board of Supervisors, by Resolution 86/543, has authorized the California Highway Patrol (CHP) to clean up hazardous materials spills and commit county funds in the event of life-threatening hazardous materials releases (see Appendix 13-4). eMeRGenCY FunDinG aCCess 1. Local funds may be accessed through CCHS-HazMat on incidents when an imminent threat to human health or the environment exists and no responsible parties have been identified or will not assume financial responsibility for cleanup costs. County funds are normally limited to $5,000 per incident. 2. On incidents where a responsible party has not been identified or does not assume financial responsibility for cleanup costs, state funds may be accessed through the State Office of Emergency Services (State OES) at (800) 852-7550 (24 hours).

Sample Recovery Plans C-7 a. Access to the emergency reserve account for hazardous materials incidents must be in accordance with the guidelines contained in the California Environmental Protection Agency - Department of Toxic Substances Control’s (CAL EPA-DTSC) document entitled “Funding for Hazardous Materials Incidents Using the Emergency Reserve Account.” This form is available through CAL EPA-DTSC or CCHS-HazMat. b. All incidents involving state funding must be reported to the CAL EPADTSC. Funding requests must be approved prior to funds being spent. no retroactive payments will be made. 3. On incidents where a responsible party has not been identified or does not assume financial responsibility for cleanup costs, and when local and state funds are not available or costs will exceed local and state resources, federal funds may be accessed through the United States Coast Guard (USCG) and the United States Environmental Protection Agency (US-EPA). a. USCG and US-EPA can be contacted at the following (see Appendix 13-5 for explanation of zones): i. USCG Sector San Francisco located on Yerba Buena Island (415) 399-3547 (24 hours). ii. All county areas: US-EPA Emergency Spill Response Section (415) 744-2000 (24 hours). b. Funding requests must be approved prior to funds being spent. no retroactive payments will be made. c. All incidents involving federal funding must be reported to the national Response Center at (800) 424-8802 (24 hours).