CA OES, Tsunami Local Guidance

Local Planning Guidance on
Tsunami Response
SECOND EDITION

A Supplement to the Emergency Planning Guidance
for Local Governments

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 ii

Executive Summary

Introduction

Use of Model Inundation Maps

Limitations and Use of Inundation Projections

Development of Tsunami Plans

Evacuation Plans

Public Education Programs and Training

Exercises

Tsunami Warning System

Appendices

Acronyms and Terminology

Acronyms

Terminology

Tsunami Background Information

What is a Tsunami? What Causes It?

Tsunami Categories

Tsunamis in California

The Tsunami Threat to Northern California

The Tsunami Threat to Southern California

Near-Source Tsunami Detection

Near-Source Tsunami Warnings

The Pacific-Wide Tsunami Warning System

Local Government Evacuation Plans

North Coast Scenario

Historic California Tsunamis

Tsunami Planning

Tsunami Sample Planning Template

Management

Organizational Structure

Coordination of Disciplines

Non-Profits and Private Businesses

Public Information

Safety and Security

Information Dissemination

Operations

Fire Department

Hazardous Materials

Law Enforcement

Coroner

Medical and Health

Care & Shelter

Public Works and Utilities

Planning and Intelligence

Threat Analysis

Identification of Planning Gaps

Logistics

Support Requirements

Resources Data Bases

Finance and Administration

Continuity of Operations

Cost Tracking

Training and Exercises

Tsunami Response Training

Tsunami Awareness Programs

First Responder Training

Exercises

Sample San Mateo County Plan

Introduction

Background

Purpose

Activation

Concept of Operations

Relationship to Other Plans

Area Security

Area Re-entry

Relationship to Other Plans

Area Security

Area Re-entry

ENCLOSURE 1
KEY PHONE LIST
Sheriff

ENCLOSURE 2
COASTSIDE TSUNAMI CHECKLIST

ENCLOSURE 3
SAMPLE BRIEFING FORMAT

ENCLOSURE 4
SAMPLE EVACUATION ORDER

ENCLOSURE 5
ADVERTENCIA PARA EVACUACION

ENCLOSURE 6
WESTAR CABLE WARNING MESSAGE

ENCLOSURE 7
TRAFFIC CLOSURE POINTS

ENCLOSURE 8
REFERENCES

TSUNAMI WATCH CHECKLIST

TSUNAMI WARNING CHECKLIST

TSUNAMI OCCURRENCE CHECKLIST

TSUNAMI PROCEDURE
1.10.1 GENERAL
1.10.2 ASSUMPTIONS
1.10.3 ALERT SITUATIONS

DUMMY

WATCH

WARNING

CANCELLATION

1.10.4 SPECIFIC RESPONSIBILITIES

ATTACHMENTS

ATTACHMENT A
PRE-WATCH/WATCH MESSAGE

ATTACHMENT B
SAMPLE NEWS RELEASE (ENGLISH)
SAMPLE NEWS RELEASE (SPANISH)

ATTACHMENT C
TSUNAMI WATCH MESSAGE

TSUNAMI/SEISMIC SEA WAVE WATCH

ATTACHMENT D

TSUNAMI WARNING MESSAGE

TSUNAMI/SEISMIC SEA WAVE WARNING

ATTACHMENT E

TSUNAMI CANCELLATION MESSAGE

TSUNAMI SEISMIC SEA WAVE CANCELLATION

ATTACHMENT F

AGENCIES CONCERNED WITH TSUNAMIS

ATTACHMENT G
INCIDENT COMMAND RESPONSIBILITIES

ATTACHMENT H
TSUNAMI TIME CURVES, CONVERSION TO/FROM GREENWICH MEAN TIME

Sample Santa Luisa Del Mar City Plan

Introduction

Concept of Operations

Hazard Analysis for Tsunami

Management

Organizational Structure

Coordination of Disciplines

Inclusion of Non-profits and Businesses

Public Information

Safety and Security

Information Dissemination

Office of Emergency Services

Police Department

Fire Department

Administration

Finance

Operations

Fire Department

Police Department

Public Works

Parks and Recreation

Medical/Health

Planning and Intelligence

Threat Analysis

Office of Emergency Services

Administration

Community Development

Police Department

Fire Department

Public Works

Logistics

Support Requirements

Data Bases

Administration

Community Development

Police Department

Fire Department

Public Works

Finance and Administration

Continuity of Operations

Cost Tracking

Responsibilities

Training and Exercises

Explanation of the Tsunami Watch and Warning System

THE TSUNAMI WARNING SYSTEM IN THE PACIFIC

OPERATIONAL PROCEDURES

DEFINITIONS

COMMUNICATIONS REQUIREMENTS AND METHODS
OBJECTIVE

COMMUNICATIONS SERVICES AVAILABLE

DISSEMINATION OF TSUNAMI WATCHES AND WARNINGS
SELECTION OF AGENCY
FUNCTION AND RESPONSIBILITIES OF DISSEMINATION AGENCY
ALL CLEAR PROCEDURE
SUMMARY OF WC/ATWC OPERATIONAL PROCEDURES
OPERATIONS
EARTHQUAKES IN THE ALASKA PENINSULA, GULF OF ALASKA, AND UNITED STATES/CANADA WEST COAST (Unimak Pass to the California/Mexico Border)
EARTHQUAKES IN ALASKA'S ALEUTIAN ISLANDS (Attu to Unimak Pass)
EARTHQUAKES IN ALASKA'S BERING SEA
EARTHQUAKES IN THE PACIFIC BASIN OUTSIDE THE WEST COAST, BRITISH COLUMBIA AND ALASKA
TSUNAMI INFORMATION BULLETINS
LIKELIHOOD OF OCCURRENCE AND SEVERITY 103
TSUNAMI SEMS FUNCTIONS
TSUNAMI COMPONENT
POTENTIAL TSUNAMI RESPONSE
TSUNAMI RESPONSE ACTIONS
CONSEQUENCES
NOTIFICATION AND THREAT ANALYSIS
GENERAL NOTIFICATION PROCEDURES
BIBLIOGRAPHY

Unified Command and SEMS

Legal Guidelines for Controlling Movement of People and Property During

an Emergency

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 Humbolt 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.
Three factors affect the accuracy of inundation projections: the quality of the mathematical model of tsunami wave propagation, the detail of data on topography and bathymetry (underwater topography), and the assumptions made about the origins and mechanism of tsunami generation.
The mathematical models now being used by NOAA and the State of California for projecting tsunami inundation are based on a consensus in the scientific community about the propagation of waves from deep ocean to shallow coastal conditions. Furthermore, the models have been calibrated against actual recent tsunamis in Japan. A more important factor in the accuracy of inundation projections is the detail in the topographical and bathymetrical data. A lack of detail in mapping offshore bathymetry, or even seasonal changes in beach conditions, can have a significant impact on model output.
Identifying the origin or mechanism of “tsunami genesis” poses additional problems for inundation modeling. Tsunami waves generated from near-source or near-shore earthquakes, or underwater landslides, may vary in impact from those generated by distant subduction zone earthquakes. In order to avoid the conflict over tsunami origin, inundation projections are based on worst-case scenarios. Since the inundation projections are intended for emergency and evacuation planning, flooding is based on the highest projection of inundation regardless of the tsunami origin. As such, projections are not an assessment of the probability of reaching the projected height (probabilistic hazard assessment) but only a planning tool.

Inundation projections and resulting planning maps are to be used for emergency planning purposes only. They are not based on a specific earthquake and tsunami. Areas actually inundated by a specific tsunami can vary from those predicted. The inundation maps are not a prediction of the performance, in an earthquake or tsunami, of any structure within or outside of the projected inundation area.

Development of Tsunami Plans

Information gathered during the transfer of the model inundation maps to local map overlays will be the basis for identifying both high priority responses and the steps to reduce potential dangers. The estimates can also be used to determine where damage is likely to occur, which areas and segments of the population are at the greatest risk, and to develop an evacuation route with a traffic control plan. A tsunami plan can identify what can be done to improve public safety and indicate where a community may need resources after a tsunami.
The development of a Tsunami Plan requires a multi-disciplinary approach and should involve local specialists (emergency responders, planners, engineers, utilities, and community based organizations). The city or county administrative officer should appoint a Tsunami Plan Working Group and designate a chairperson, usually the emergency services manager. The Tsunami Plan Working Group should include representatives from the following agencies:

· Law Enforcement
· Emergency Management
· Public Works
· Land Use Planning
· Social Services
· Fire Suppression
· American Red Cross
· Transportation providers
· Non-governmental and Community Based Organizations
· Warning Coordination Meteorologist from the regional NWS office
· Education Community

The Work Group will determine the best way to accomplish the planning process, develop an overall work program, and set a time schedule for completion (See Tsunami Plan Checklist and Sample San Mateo County Plan in Appendix 3).
One of the most critical elements of a Tsunami Plan is the Evacuation and Traffic Control Plan. Local governments are responsible for developing evacuation plans for possible implementation in response to a near or distant-source event. A distant-source tsunami event may allow several hours to evacuate. A near-source tsunami may require immediate self-evacuation through areas damaged by the earthquake and at some risk of aftershocks. Each jurisdiction should analyze how much time an evacuation would require and build that into the decision-making procedure. While developing its plan, each jurisdiction should decide how best to handle the occurrence of both earthquakes and tsunamis. Evacuation plans should also take into account the special needs of evacuees, including the medically fragile, mobility impaired, deaf, blind, and those who speak no English or English as a second language.

Evacuation Plans

Elements to consider in developing an evacuation plan are:
· Locate optimum evacuation routes. The primary objective is to move up and inland, away from the coast.
· Develop an evacuation route traffic control plan. This should be tasked to the public safety agencies. Public safety agencies should use their auxiliaries and volunteers to staff traffic control points.
· Identify refuge areas with the capacity to shelter the evacuated population. Select landmarks, school facilities, or other well-known public facilities.
· Develop simplified maps depicting tsunami evacuation zones, evacuation routes, and refuge areas.
· Develop notification and evacuation procedures with public safety agencies and distribute to field personnel.
· Disseminate maps and procedures to public. Ensure maps and procedures are posted in assembly facilities and areas, schools, special facilities, included in telephone books, etc.

After the plan has been completed, it is essential to develop education, training, and exercise programs for city and county employees as well as for the residents in the community. (See sample Evacuation Checklist in Appendix 3).

Public Education Programs and Training

A sustained public outreach program is needed to gain the long-term grassroots support of coastal populations and to institutionalize tsunami preparedness and mitigation. Such a program should encourage consistent information between local government and the community at risk. Innovative approaches should be encouraged at many different levels. Training is a crucial component for a successful tsunami response program. Local jurisdictions may want to develop a comprehensive program, based upon a training needs assessment. One of the most important means of educating the public is through tsunami education in the public schools. There are several areas that local jurisdictions may want to consider when developing a “Tsunami Training and Awareness Program”:
· Existing employee orientation and training programs and staff briefings
· First Responder training and exercise programs
· Incorporating tsunami education into existing earthquake programs in the public schools.
· “Tsunami Awareness Programs” for the public, including the special needs populations.

Questions to consider when evaluating existing employee training programs:
· What training already exists?
· What additional areas of training will be needed?
· How can these elements best be incorporated into current training programs?

Questions to consider regarding tsunami awareness programs:
· What training is needed to reach the various population types (e.g. elderly, business, transient, tourist, etc.)?
· How can training be delivered to best reach the community?
· How can tsunami education be incorporated into existing earthquake or all hazard mitigation programs?
· Does the awareness training for personnel and volunteers include a quick orientation?

Questions to consider regarding First Responder training programs:
· What First Responder training already exists that can be used by the local jurisdiction?
· Where does the First Responder training fit with other training elements?
· Does the jurisdiction need to develop First Responder training?
· Does the jurisdiction need assistance in developing its training?

Questions to consider when looking at employee training:
· What training needs to be implemented for dispatch centers?
· What training is needed for fire and rescue?
· What training is needed for EMS? HazMat?
· What training is needed for law enforcement?

Exercises

Communities can benefit by developing and implementing an exercise program to test the training received on the tsunami response plan. Important considerations are:
· How can development of a separate exercise program for tsunami improve the communities’ ability to respond to a tsunami?
· Who should develop, conduct, and maintain the new tsunami response exercise program?
· Does the jurisdiction have the resources to conduct such exercises?
· In what creative ways can funding be found for an exercise program?

Tsunami Warning System

The West Coast and Alaska Tsunami Warning Center in Alaska (WC/ATWC) and the Pacific Tsunami Warning Center (PTWC) in Hawaii monitor potential tsunamis. A regional Tsunami Warning or Watch is issued based on earthquake location and magnitude. When an earthquake of 7.5 or larger occurs within the Pacific basin, the warning centers issue warnings and watches. Areas within a 3-hour tsunami travel time of the epicenter will be placed in a Tsunami Warning status, and areas within a 3-6 hour tsunami travel time will be placed in a Tsunami Watch status. Tsunami estimated time of arrival will be disseminated for the tide stations within the Tsunami Warning and Watch areas. Additional bulletins are issued by the warning centers at hourly intervals until the advisories are either canceled or the existence of a damaging tsunami is confirmed. The information is transmitted to the Governor’s Office of Emergency Services Warning Control Center and local emergency managers (See Appendix 4 for explanation of Tsunami Warning and Watch and sample messages).
When the California Office of Emergency Services Warning Center (WC) receives the information from WC/ATWC via NAWAS and/or California Law Enforcement Teletype System (CLETS), the WC/ATWC will announce what areas the message is for, whether it is an Information Bulletin, a Tsunami Watch, or a Tsunami Warning. The Warning Center does not undertake any threat analysis. All information received is passed directly to the Operational Areas via CLETS, California Alert and Warning System (CALWAS) and Emergency Alert System (EAS). Once the information has been sent out the following actions are taken:

· Verification is made with the printed copy received via National Weather Service (NWS) satellite. The information is re-transmitted via CLETS to all sheriff’s offices (SO) of coastal counties and most local police departments (PD). Turn-around time from NWS to CLETS and out is a matter of a few seconds.

NOTE: If the bulletin is only informational and a tsunami has not been generated, or is not expected, then no further action is taken by the WC.

· The WC immediately polls all SOs of the 19 coastal counties and the CHP dispatch to verify that they received the bulletin via CALWAS. If not, then it is repeated to those counties that need the information. All 19 coastal counties’ SOs are advised to check CLETS for the hard copy and to advise if not received.

· Verbal notification is then made to the OES Executive & Regional Duty Officers (EDO,RDO) and the following agencies:

¨ California Division of Mines and Geology
¨ Utilities such as Pacific Bell, San Onofre and Diablo Canyon nuclear plants and the California Utilities Emergency Association (CUEA).
¨ Department of Water Resources
¨ FEMA Region IX
¨ California National Guard
¨ Department of Fish and Game, Oil Spill PR
¨ Department of Parks and Recreation.
¨ State Lands Commission
¨ American Red Cross
¨ Department of Health Services Duty Officer
¨ Department of Toxic Substances Control Duty Officer
¨ US Fish and Wildlife Service
¨ Emergency Medical Services Authority
¨ Federal Aviation Administration
¨ Any other notifications as requested by OES Duty Officers

“All Clears” are issued two hours after the last damaging wave. However, if there is no confirmation of a wave within two hours, the “all clear” is the responsibility of the local government regardless of whether a tsunami has been generated. This requires that the local government is able to observe the waves from a safe distance/height.

A word of caution: Tidal gauges are not a reliable source of information if a damaging tsunami has occurred.

As part of their tsunami plans, Operational Areas should develop procedures for disseminating the information to local jurisdictions and special districts. Local governments should work with the appropriate Operational Area or region to develop the elements of their notification system.

Appendices
Appendix 1 Acronyms and Terminology

Acronyms and Terminology

Acronyms

ARB Air Resources Board
CALTRANS California Department of Transportation (DOT in State Agency Tables)
CALOSHA California Occupational Safety and Health Administration
CALWAS California Alert and Warning System
CCC California Conservation Corps
CDC California Department of Corrections
CDF California Department of Forestry and Fire Protection
CDFA California Department of Food and Agriculture
CHP California Highway Patrol
CLETS California Law Enforcement Teletype System
CNG California National Guard
CYA California Youth Authority
DFG California Department of Fish and Game
DHS California Department of Health Services
DIR California Department of Industrial Relations
DMAT Disaster Medical Assistance Team
DOD United States Department of Defense
DOE United States Department of Energy
DOE United States Department of Education
DOJ California Department of Justice
United States Department of Justice
DOT United States Department of Transportation
DPR California Department of Pesticide Regulation
DTSC California Department of Toxic Substances Control
DWR California Department of Water Resources
EAS Emergency Alert System
EMSA California Emergency Medical Services Authority
EOC Emergency Operations Center
EOPT Emergency Operations Planning & Training (an OES Division)
ETA Estimated time of arrival
FEMA Federal Emergency Management Agency
FOSC Federal On Scene Coordinator
FRERP Federal Radiological Emergency Response Plan
FRP Federal Response Plan
FTB California Franchise Tax Board
HHS United States Department of Health and Human Services
HMICP Hazardous Materials Incident Contingency Plan
ICG/ITSU The International Coordination Group for the Tsunami Warning System in the Pacific.
ITIC International Tsunami Information Center
LFA Lead Federal Agency
MLLW Mean Lower Low Water
NAWAS National Alert and Warning System
NCP National Oil and Hazardous Substances Pollution Contingency Plan
NEHRP National Earthquake Hazard Reduction Program
NEST Nuclear Emergency Support Team
NOAA National Oceanic and Atmospheric Administration
NRT National Response Team
NTHMG National Tsunami Hazard Mitigation Program
NWS National Weather Service
OA Operational Area
OEHHA California Office of Environmental Health Hazard Assessment
OES California Office of Emergency Services
PTWC Pacific Tsunami Warning Center
REOC Regional Emergency Operations Center (OES)
SEMS Standardized Emergency Management System
SEP State Emergency Plan
SSWWS Seismic Sea Wave Warning System
SOC State Operations Center
SWRCB California State Water Resources Control Board
THRUST Tsunami Hazard Reduction Using System Technology
TIME Tsunami Inundation Mapping Effort
TWC Tsunami Warning Center
USNSN United States National Seismic Network
UTC Universal Coordinated Time
WC Warning Center (OES)
WC/ATWC West Coast/Alaska Tsunami Warning Center
WCM Warning Coordination Meteorologist
WMD/NBC Weapons of Mass Destruction/Nuclear, Biological, Chemical
USCG United States Coast Guard
US EPA United States Environmental Protection Agency

Terminology

Amplitude: The rise above or drop below the ambient water level as read on a tide gauge.

Arrival Time: Time of arrival, usually of the first wave of the tsunami, at a particular location.

Bathymetry: The measurement of the depths of oceans, seas, etc.

Bore: Traveling wave with an abrupt vertical front or wall of water. Under certain conditions, the leading edge of a tsunami wave may form a bore as it approaches and runs onshore. A bore may also be formed when a tsunami wave enters a river channel, and may travel upstream penetrating to a greater distance inland than the general inundation.

CREST: Consolidated Reporting of Earthquakes and Tsunamis. A project funded through the Tsunami Hazard Mitigation Federal/State Working Group to upgrade regional seismic networks in Alaska, Washington, Oregon, California, and Hawaii and to provide real-time seismic information from these networks and the United States National Seismic Network to the tsunami warning centers.

ETA: Estimated Time of Arrival. Computed arrival time of the first tsunami wave at coastal communities after a specific earthquake has occurred.

First Motion: Initial motion of the first wave. A rise in the water level is denoted by R, a fall by F.

Free Field Offshore Profile: A profile of the wave measured far enough offshore so that it is unaffected by interference from harbor and shoreline effects.

Harbor Resonance: The continued reflection and interference of waves from the edge of a harbor or narrow bay. This interference can cause amplification of the wave heights and extend the duration of wave activity from a tsunami.

Horizontal Inundation Distance: The distance that a tsunami wave penetrates onto the shore. Measured horizontally from the mean sea level position of the water's edge, it is usually measured as the maximum distance for a particular segment of the coast.

Inundation: The depth, relative to a stated reference level, to which a particular location is covered by water.

Inundation area: An area that is flooded with water.

Inundation Line (limit): The inland limit of wetting, measured horizontally from the edge of the coast, defined by mean sea level.

Leading-Depression Wave: Initial tsunami wave is a trough, causing a draw down of water level.

Leading-Positive Wave: Initial tsunami wave is a crest, causing a rise in water level. Also called a leading-elevation wave.

Local/Regional Tsunami: Source of the tsunami is within 1000 km of the area of interest. Local or near-field tsunami has a very short travel time (30 minutes or less), mid-field or regional tsunami waves have travel times on the order of 30 minutes to 2 hours.
Note: "Local" tsunami is sometimes used to refer to a tsunami of landslide origin.

Maremoto: Spanish term for tsunami

Marigram: Tide gauge recording showing wave height as a function of time.

Marigraph: The instrument which records wave height.

MLLW: Mean Lower Low Water. The average low tide water elevation often used as a reference to measure run-up.

Ms: Surface Wave Magnitude. Magnitude of an earthquake as measured from the amplitude of seismic surface waves. Often referred to by the media as "Richter" magnitude.

Mw: Moment Magnitude. Magnitude based on the size and characteristics of the fault rupture, and determined from long-period seismic waves. It is a better measure of earthquake size than surface wave magnitude, especially for very large earthquakes. Calibrated to agree on average with surface wave magnitudes for earthquakes less than magnitude 7.5.

Normal Earthquake: An earthquake caused by slip along a sloping fault where the rock above the fault moves downward relative to the rock below.

Period: The length of time between two successive peaks or troughs. May vary due to complex interference of waves. Tsunami periods generally range from 5 to 60 minutes.

Run-up: Maximum height of the water onshore observed above a reference sea level. Usually measured at the horizontal inundation limit.

Seiche: An oscillating wave (also referred to as a seismic seawave) in a partially or fully enclosed body of water. May be initiated by long period seismic waves, wind and water waves, or a tsunami.

Strike-Slip Earthquake: An earthquake caused by horizontal slip along a fault.

Teletsunami: Source of the tsunami is more than 1000 km away from area of interest. Also called a distant-source or far-field tsunami. Travel time is greater than 2 hours.

Thrust Earthquake: Earthquake caused by slip along a gently sloping fault where the rock above the fault is pushed upward relative to the rock below. The most common type of earthquake source of damaging tsunamis.

Tidal Wave: Common term for tsunami used in older literature, historical descriptions, and popular accounts. Tides, caused by the gravitational attractions of the sun and moon, may increase or decrease the impact of a tsunami, but have nothing to do with their generation or propagation. However, most tsunamis (initially) give the appearance of a fast-rising or fast-ebbing tide as they approach shore, and only rarely appear as a near-vertical wall of water.

Travel Time: Time (usually measured in hours and tenths of hours) that it took the tsunami to travel from the source to a particular location.

Tsunami: A Japanese term derived from the characters "tsu" meaning harbor and "nami"
meaning wave. Now generally accepted by the international scientific community to
describe a series of traveling waves in water produced by the displacement of the sea floor associated with submarine earthquakes, volcanic eruptions, or landslides.

Tsunami Earthquake: A tsunamigenic earthquake which produces a much larger tsunami than expected for its magnitude.

Tsunamigenic Earthquake: Any earthquake which produces a measurable tsunami.

Tsunami Magnitude: A number that characterizes the strength of a tsunami based on the tsunami wave amplitudes. Several different tsunami magnitude determination methods have been proposed.

Tsunami Background Information

What is a Tsunami? What Causes It?

A tsunami is a system of gravity waves formed in the sea by a large-scale disturbance of sea level over a short duration of time. A tsunami can be generated by submarine volcanic eruptions, displacement of submarine sediments, coastal landslides into a bay or harbor, meteor impact, or by vertical displacement of the earth's crust along a subduction zone/fault. The latter is by far the most frequent cause of tsunamis and, for all practical purposes, the primary cause of tsunamis capable of propagation across an ocean basin. The rupture of the earth's crust also generates a major earthquake, which can be detected and measured by seismic instrumentation throughout the world. However, because not all major coastal or near-coastal earthquakes produce tsunamis, there is no operational method to determine whether a tsunami has been generated by an earthquake except to note the epicenter of the earthquake and then detect the arrival of the characteristic waves at a network of tide stations.

In the deep and open ocean, tsunamis travel at speeds of 500 to 1,000 kilometers per hour (300 to 600 miles per hour). The distance between successive crests can be as much as 500 to 650 kilometers (300 to 400 miles). However, the successive tsunami waves in the deep sea have such great length and so little height they are not visually recognizable from a surface vessel. In the open ocean, the height of the waves may be no more than 30 to 60 centimeters (1 or 2 feet), and the passing waves produce only a gentle rise and fall of the sea surface. During the April 1946 tsunami impact in Hawaii, ships standing off the coast observed tremendous waves breaking on shore but did not detect any change in sea level at their offshore locations.

Upon reaching shallower water, the speed of the advancing wave diminishes, its wavelength decreases, and its height may increase greatly, owing to the piling up of water. The configuration of the coastline, shape of the ocean floor, and character of the advancing waves all play important roles in the destruction wrought by tsunamis along any coast, whether near the generating area or thousands of kilometers from it. Consequently, detection of a relatively small tsunami at any locality warrants immediate reporting to spread the alarm to all coastal localities of approaching potentially dangerous waves.

The force and destructive effects of tsunamis should not be underestimated. At some places, the advancing turbulent front is the most destructive part of the wave. However, where the rise is quiet, the outflow of water to the sea between crests may be rapid and destructive, sweeping all before it and undermining roads, buildings, and other infrastructure with its swift currents. During withdrawals of the sea, ships can be thrown against breakwaters, wharves, and other craft, or washed ashore and left grounded.

In the shallow waters of bays and harbors, tsunamis can initiate a seiche, a seismic seawave in an enclosed body of water. If the tsunami period is influenced by the close proximity of a bay or harbor, the seiche is amplified with each succeeding wave. Under these circumstances, maximum wave activity is often observed much later than the arrival of the first wave.

A tsunami is not one wave, but a series of waves. The elapsed time between successive wave crests at a given point is usually 10 to 45 minutes. Oscillations of destructive proportions may continue for several hours, and several days may pass before the sea returns to its normal state. Frequently, the second or third wave is the most destructive. In the 1964 Cresent City tsunami, most of the deaths were caused by the debris-carrying second wave.

Tsunami Categories

A tsunami can be categorized as local, regional, or Pacific-wide. Those terms describe the potential destruction relative to the tsunami source area.

Local (near-source) tsunamis occur soon after the generating event and allow little time for warning and evacuations. Their impact may be large, but in a limited area. For example, in 1958, waves from a local tsunami in Lituya, Alaska ran up 485 meters, but destruction was focused on a small area.

Regional (intermediate) tsunamis are by far the most common. Destruction may be limited because the energy released was not sufficient to generate a destructive Pacific-wide tsunami, or because the source area limited the destructive potential of the tsunami. These events can occur within 15 minutes to 2 hours after the generating event. Areas affected by the tsunamis may not have felt the generating event.

Pacific-wide (distant source) tsunamis are much less frequent, but have a far greater destructive potential. The waves are not only larger initially, but they subject distant coastal areas to their destructive impact as they cross the Pacific basin. For example, the Chilean tsunami of May 22, 1960, spread death and destruction across the Pacific from Chile to Hawaii, Japan, and the Philippines. These events may have long lead times (up to 6 hours), but the breadth of the destruction is wide.

Tsunamis in California

Since 1812, 14 tsunamis with wave heights higher than three feet have struck the California coast. Six of these waves were destructive. The Santa Barbara Channel Islands were hit by a tsunami in the early 1800’s. The worst tsunami in recent history resulted from a 1964 Alaskan earthquake and that caused 12 deaths and at least $17 million in damage in northern California. The 1992 Cape Mendocino earthquake produced a 0.5 meter tsunami that reached Humboldt Bay about 15 minutes after the shaking. Although not damaging, this tsunami demonstrated that locally generated tsunamis can reach our coastline quickly.

The 1992 Cape Mendocino tsunami triggered more comprehensive analysis of historic tsunami events in California. Research findings now support the belief that the risk from locally generated (nearshore) tsunamis is 1) high along the coast from Crescent City to Cape Mendocino, 2) moderate south of Cape Mendocino to north of Monterey, 3) high south of Monterey to Palos Verdes, and 4) moderate south of Palos Verdes to San Diego.

Paleoseismic evidence suggests that large earthquakes capable of producing local tsunamis recur every two or three hundred years along the Cascadia Subduction Zone (see Figure # 1). Large earthquake-generated tsunami events in Southern California are believed to have similar return periods. In the Cascadia Subduction Zone, a locally generated tsunami may reach the shore in minutes or tens of minutes.

The Tsunami Threat to Northern California

The tsunami hazard on the north coast of California affects a predominantly rural area, with populations concentrated in low-lying coastal communities near the estuaries of large rivers. About 20,000 people live or work in areas of potential inundation, and an even greater number of tourists and visitors travel through potential inundation areas each year. The economy is resource and tourist-based. The area suffers from chronically higher unemployment than other parts of the state. The largest industrial centers are located along low-lying coastal sand pits and near harbors. These areas are particularly vulnerable to both tsunami flooding and strong shaking damage. Populated areas are isolated from each other and from regional urban centers. Roads, communication links, and critical lifelines connecting populated areas are extremely vulnerable to disruption from strong shaking, tsunami inundation, and other likely effects of a large Cascadia earthquake.

The Cape Mendocino region and the coastal and offshore areas of Humboldt and Del Norte Counties are among the most seismically active areas in the United States. Since 1980, there have been five earthquakes close to magnitude 7, and an additional six of magnitude 6 or larger. This contrasts significantly with the rest of the Pacific Northwest, where large or damaging earthquakes have been relatively infrequent in recent historical times.

The April 25, 1992 earthquake, with a moment magnitude of 7.1, was located onshore from the town of Petrolia at a depth of about 11km. The location and orientation of rupture strongly suggested a Cascadia Subduction Zone origin. This earthquake also produced many of the effects expected from a larger Cascadia Subduction Zone event: coastal uplift, strong ground shaking, and a locally generated tsunami that was detected at coastal tide gauges within 15 minutes of the earthquake. The tsunami, although not damaging, raised the concerns of agencies responsible for disaster planning and response.

The Tsunami Threat to Southern California

There is concern that a Cascadia event may have significant impacts on Southern California, similar to those experienced in Crescent City after the 1964 Alaskan earthquake, since the distance between Cascadia and Southern California is about the same as the distance from Alaska to Eureka. Indeed, tide gauges in Santa Barbara detected the tsunami generated by the April 25, 1992 Cape Mendocino earthquake. While not damaging, this event indicates that the southern California coastline is vulnerable to Cascadia events. Several poorly documented local tsunamis caused some damage to southern California communities in the 1800s. Historic records suggest that three tsunamis produced flooding in the Santa Barbara area during this period.

In addition, the Working Group on California Earthquake Probabilities of the Southern California Earthquake Center (SCEC) has identified the Palos Verdes, Santa Cruz Island, and Santa Rosa Island faults as active and potentially tsunamigenic. The displacement between the North American and Pacific plate is accommodated in part by the movements along strike-slip faults, some of which are in the offshore borderland. Strike-slip faults were not believed capable of generating damaging tsunamis before the 1994 Mindoro, Philippines event when a strike-slip onshore fault generated a tsunami large enough to move a 6,000-ton barge one mile inland. There is also suggestive evidence of episodes of vertical displacement capable of conventional tsunami generation associated with the offshore extension in the Palos Verdes fault.

The impacts of an earthquake on the Palos Verdes fault, and the resulting tsunami, may affect the Ports of Los Angeles and Long Beach, like the 1964 Alaska quake affected Anchorage. The resulting damage would be far larger than the $17 million in damage seen in 1964 in Crescent City. Recent field surveys and modeling (1992-1996) by Professor Costas Synolakis have projected a 4 meter (13 ft.) tsunami that would cause extensive damage and flooding along flat coastlines such as those in Santa Monica Bay or in Orange and San Diego Counties. Communities that are sandwiched between the ocean and other bodies of water -- such as wetlands, river inlets, or salinas -- are at very high risk due to the possible overland flow and simultaneous tsunami attacks from multiple directions.

The densification of land use in Southern California and the continued development in areas exposed to coastal and riverine inundations have increased the risk of property damage and loss of life from future tsunamis. Even in locales where the tsunami hazard may be small, the land use development in areas subject to inundation and ground subsidence increases the overall risk. The rapid arrival of waves from a local event and the long duration of tsunami wave action intensify the risk from near-shore events. Future tsunamis may cause economic losses in coastal communities dependent on marine and harbor commerce. Losses to the tourist industry and harbor facilities in the Ports of Los Angeles, Long Beach, and San Diego could be very high, even for small events. Additional risk is posed by the potential release of toxic pollutants due to the failure of marine oil-transfer facilities and terminals.

Near-Source Tsunami Detection

At present, detection of near-source tsunamis is possible only where the shore can be observed. The first visible indication of an approaching tsunami is often a recession of water caused by the trough preceding an advancing wave. Any withdrawal of the sea, therefore, should be considered a warning of an approaching wave. On the other hand, a rise in water level may be the first event. Tide-gauge records of the Chilean tsunami of May 22,1960, generally showed a rise in water level as the first indication of this tsunami.

Near-Source Tsunami Warnings

There is agreement within the tsunami and emergency response communities that technology alone, automated warnings that can take up to 15 to 20 minutes to issue, cannot protect coastal inhabitants located 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 minutes of the event. Local populations at risk should be able to recognize the signs of impending tsunami hazards, such as strong, prolonged ground shaking, and seek higher ground immediately. Communities should be informed, or determine themselves, which areas are likely to be flooded. Development, publication and distribution of inundation maps that define the inundation area, and designation of evacuation routes that indicate safe regions in which to assemble evacuees, can accomplish this. An effort to project potential inundation areas for selected communities in the state is underway.

Planners, emergency responders, and residents should try to assess and project the impacts of a very large local earthquake. At-risk regions need near-real-time determination of earthquake source information to assess the nature of the hazard in order to optimize emergency response. Local decision makers need to understand their risk and be provided with mitigation tools in order to make informed planning decisions.

The Pacific-Wide Tsunami Warning System

The West Coast & Alaska Tsunami Warning Center (WC/ATWC) in Alaska, and the Pacific Tsunami Warning Center (PTWC) in Hawaii monitor potential tsunamis. A Regional Tsunami Warning/Watch is issued based on earthquake location and magnitude, generally exceeding M7.5 (M7.0 for the Aleutians). Areas within a 3-hour tsunami travel-time zone of the epicenter will be placed in a Tsunami Warning status. Areas within a 3-6 hour travel-time zone will be placed in a Tsunami Watch status. Tsunami ETAs will be disseminated for the tide stations within the Tsunami Warning and Watch areas. Agencies contacted then evaluate the probability of a tsunami reaching their area and decide on appropriate action.

Local Government Evacuation Plans

Local governments are responsible for developing evacuation plans for possible implementation in response to near or distant-source events. A distant-source tsunami event may allow several hours to evacuate. Each jurisdiction should analyze how much time a thorough evacuation would require and build that into its decision-making procedures. For instance, if it would take three hours to evacuate a densely populated area, an evacuation decision must be made when the first probable tsunami wave arrival time is a little more than three hours away.

A near-source tsunami may require immediate self-evacuation through areas damaged by the earthquake and at high risk of aftershocks. Evacuation plans should take into account potential earthquake damage when planning routes to use for evacuation. When developing a plan, each jurisdiction should decide how best to handle the occurrence of both an earthquake and a tsunami. Evacuation plans should take into consideration the special needs of the evacuees. Some of the special needs groups include the injured, the medically fragile, the aged, infants and young children, the handicapped, and non-English speakers or those who speak English as a second language. Care, shelter, communication, and transportation should be available at evacuee staging areas.

North Coast Scenario

Historic California Tsunamis
Tsunamis Of California

This is a list of tsunamis that have affected coastal California since the early 1800’s
(Taken from Tsunamis Affecting the West Coast of the United States, 1806-1992, Lander, J.F., Lockridge, P.A. and Kozuch, M.J. 1993)

Federal Agencies
Hawaii Tsunami Warning Center
National Weather Service, Redwood City

State Agencies
California Office of Emergency Services Warning Center
California OES Coastal Region
State Parks and Beaches Day Time Phone No
State Parks and Beaches 24 Hr Dispatch
California Highway Patrol, Redwood City Office

San Mateo Area Office of Emergency Services
Office
Room B-1 EOC
Command Section
Operations Section
Logistics Section
(Message Center)

q Prepare Tsunami Information Statement to pass to public (Enclosure 6). Cable Television and Emergency Alert Stations will pass information.
q Contact Westar Cable System Emergency Coordinator (name) to initiate Tsunami Warning Video and messages on Channels 6, 17 and 28.
q Prepare written warnings for the general public (Enclosure 4 and 5).
q Prepare plans for evacuation of equipment away from inundation areas.

SPECIFIC ACTIONS TO BE TAKEN BY EACH AGENCY UPON NOTIFICATION OF A TSUNAMI WARNING, INDICATING THAT A TSUNAMI HAS BEEN DETECTED, AND THAT WARNING AND EVACUATION OF THREATENED AREAS SHOULD BE INITIATED.
q Complete all items on Tsunami Watch Checklist above.
q Initiate warning and evacuation of threatened areas.
q Confirm Tsunami Warning with American Red Cross. Confirm opening of shelters.
q Move equipment away from threatened areas.
q Maintain contact with the San Mateo Area OES to provide situation updates and coordinate evacuation and road closures.
q Secure evacuated areas. Cordon off evacuated areas. Mark evacuated areas with placards.
q Maintain evacuation for a minimum period of two hours after arrival of last wave or upon ALL CLEAR transmitted by San Mateo Area OES.
q
SPECIFIC ACTIONS TO BE TAKEN BY EACH AGENCY IF TSUNAMI OCCURS AND DAMAGE RESULTS
q Maintain full evacuation until minimum of two hours after arrival of last wave or upon ALL CLEAR from San Mateo Area OES. Additional waves may occur.
q After a two-hour safety period, secure damaged areas from re-entry by non-residents and property owners, emergency responders, and the press.
q Initiate windshield damage assessment. Compile Coastside Damage Assessment Report for dissemination to San Mateo Area OES.
q Request San Mateo County Public & Environmental Health Departments inspect damaged areas to ensure areas are safe for residents.
q Upon approval by County Health that areas are safe for resident re-entry, allow residents, property owners, responders, the press, and other authorized individuals to enter area.
q Based on damage, consider Declaration of Emergency or Disaster.
q Establish response priorities and mutual aid requirements. Keep San Mateo Area OES up-to-date on events in damaged areas.

We have been warned by the National Weather Service that a Tsunami, or seismic sea wave, (may have) (has been) generated in the Pacific and may strike our coast. If a wave was generated, it will arrive here at approximately ___________

Tsunamis have done great damage on the California coast. The most recent one in 1964 killed 12 people in Crescent City. They were not evacuated in time or were allowed to return to the evacuated area too soon. This tsunami also did damage in our area. A 1960 tsunami killed 61 in Hawaii and damaged our coast.

Our responsibility is to warn everyone within the inundation area shown on the map on the back of this briefing sheet, and to insure that special facilities in the risk area are evacuated. Temporary staging areas are being established at the Farallone View Elementary School, LeConte and Kanoff in Montara and Half Moon Bay High School on Lewis Foster Drive in Half Moon Bay. Information will be given to you at these locations as to when or if American Red Cross Shelters will be opened at these locations.

A tsunami is not a single wave, but a series of waves. Keep people out of the risk area until you are advised that re-entry may begin. Waves may be as far apart as one hour and may be as high as twenty feet on this section of coast.

Traffic Control Points may be set up at strategic locations to reduce traffic flow toward the coast. If you are on a Traffic Control Point, you may allow the following people through after warning them of the danger and expected time of arrival:
· residents who have a local address on their driver’s license
· boat owners who can give you either a berth or CF number
· commercial trucks enroute to non-affected areas
· emergency services personnel including Red Cross Volunteers enroute to support operations

We have been warned by the National weather Service that a tsunami, or seismic sea wave (may have been) (has been) generated in the Pacific and may strike our coast. If a wave was generated, it will arrive here at approximately ____________.

Under provisions of the Emergency Services Ordinance of the City of Half Moon Bay, I am ordering all persons in the risk area to evacuate to either Farallone View Elementary School or Half Moon Bay High School. Personnel evacuating from Point Montara, Princeton by the Sea, or El Granada should evacuate to Farallone View Elementary School located at LeConte and Kanoff in Montara. Personnel evacuating from Miramar, Highland Park, and Half Moon Bay should evacuate to Half Moon Bay High School on Lewis Foster Drive. You should be able to return to your homes within six hours. Security patrols will prevent anyone from entering the evacuated areas.

Tsunamis have done great damage on the California coast. The most recent one in 1964 killed 12 people in Crescent City. They were not evacuated in time or returned to the evacuated area before the all-clear signal was given. This tsunami also did damage in our area. A 1960 tsunami killed 61 in Hawaii six hours after a warning had been issued. Only those who ignored the warning were killed.

A tsunami is not a single wave but a series of waves. Stay out of the risk area until you are advised that reentry may begin. Waves may be as far apart as one hour and up to twenty feet high on this part of the coast.

There is no way to determine in advance the size of tsunamis in specific locations. A small tsunami at one beach can be a giant wave a few miles away. Don't let the modest size of one make you lose respect for all.

All tsunamis - like hurricanes - are potentially dangerous even though they may not strike each coastline or do damage when they do strike.

Never go down to the beach to watch for a tsunami. The wave moves much faster than you can run.

Sooner or later, tsunamis visit every coastline in the Pacific. This means that Tsunami Warnings apply to you if you live in any Pacific coastal area.

During this emergency, local police, fire, and emergency services officials are trying to save your life. Give them your fullest cooperation.

Nos han advertido que un aguaje (maremoto) ha sido generado en el Oceano Pacifico y amenaza a nuestra costa maritima, segun el servicio federal metereologico. Las olas llegeran aqui aproximadamente a las [TIME OF ARRIVAL].

Se encuentra usted en una area de riesgo de aguaje o inunclacion? Esto significa que el fuerte oleaje podria alcanzar o inundar esta area y se le advierte que para su seguridad abandone immediatamente esta area y proceda a un lugar mas seguro hasta que las autoridades le informen que ha pasado el peligro.

Se avisa a todos los residentes afectados alejarse del area y proceder a: Farallone View Elementary School on LeConte y Kanoff en Montara or Half Moon Bay High on Lewis Drive en Half Moon Bay. Por favor permanezcan en el lugar indicado hasta que las autoridades les informen que pueden volver a sus hogares.

Maremotos han hecho muchos daños a la costa de California. En el mas reciente en 1964 perecieron 12 personas en Crescent que no se han evacuado a tiempo o que han vuelto al area evacuada antes que las autoridades han dado la señal. Este maremoto tambien ha hecho daños en nuestra area. En otro maremoto en 1961, 61 personas perecieron en Hawaii 6 horas despues de la advertencia. Solamente perecieron los que han desconocido la advertencia.

Un aguaje no es una sola ola sino una serie de olas con fuerza mayor que ias las comunes. Esten fuera del area de peligro hasta que las autoridades dicen que pueden volver. Las olas a veces se separan hasta una hora, y pueden alcanzar hasta una altura de 20 pies (6 metros).

No se puede prevenir la altura de un maremoto en avance. Un pequeño maremoto en una playa puede ser gigante en pocos kilometros de distancia. No pierden responcto por los maremotos cuando uno es pequeno!

Todos los maremotos pueden ser peligrosos, aun cuando no tocan todas las areas de peligro y no dañan todas las areas que tocan. Nunca se baja hasta la playa para observar un maremoto. Las olas corren mucho mas rapido que nosotros.

Antes o despues, maremotos tocan todas las costas pacificas. Eso quiere decir que las advertencias pueden occurir en todas las areas de la costa.

Durante estas emergencia, las autoridades de seguridad publica intentan protegerle. Por favor den su cooperacion completa.

Westar Cable Company will place Tsunami Warning Messages on Channels 17 and 28 to warn people in the danger zones to evacuate. Additionally, an OES Tsunami Warning Video may be shown on Channel 6. Coordination for a tsunami message will be made through Mr./Ms ________ at Westar Cable. After normal work hours, Mr./Ms__________ can be paged

at__________. Mr. Fischer will confirm the validity of the request for the tsunami tape by contacting County Communications at ________, or the Office of Emergency Services at _____________.

The Following tape message will be played on Westar Cable Television Channels 17 and 28.

"A tsunami, or seismic sea wave, has been generated in the Pacific and may strike our coast. If the wave was generated, it will arrive here at approximately ___________. All persons in risk areas (low areas adjacent to the ocean) are ordered to evacuate to safe areas. Staging areas have been established at the Farallone View Elementary School on LeConte and Kanoff in Montara or Half Moon Bay High School on Lewis Drive in Half Moon Bay. You should be able to return to your homes within six hours. Security patrols will prevent anyone from entering the evacuated areas. Additional information is available on the Emergency Alert System. A tsunami information film is being played on Channel 6 and will provide some useful information."

Abe, K., Tsunami Propagation in Rivers of the Japanese Islands, Continental Shelf Research, Volume 5, Number 6, February 1986.

Ayre, R.S. with D.S. Mileti, Earthquake and Tsunami Hazards in the United States: A Research Assessment , Institute of Behavioral Science, University of Colorado, Boulder, CO, 1975.

Cox, D.C. and G. Pararas-Carayannis, Catalog of Tsunamis in Alaska, Environmental Data Service, Boulder, CO, March 1976.

Garcia, A.W. and J.R. Houston, Flood Insurance Study: Tsunami Predictions for Monterey and San Francisco Bays and Sound, Technical Report H-74-3, US Army Engineer Waterways Experiment Station, Vicksburg, MS, May 1974.

Houston, J.R. and A.W. Garcia, Flood Insurance Study: Tsunami Predictions for Pacific Coastal Communities, Technical Report H-74-3. US Army Engineer Waterways Experiment Station, Vicksburg, MS, May 1974.

Houston, J.R., R.W. Whalin, A.W. Garcia, and H.L. Butler, Effect of Source Orientation and Location in the Aleutian Trench on Tsunami Amplitude Along the Pacific Coast of the Continental United States, Technical Report H-75-4, US Army Engineer Waterways Experiment Station, Vicksburg, MS, July 1975.

Lida, K., D.C. Cox, and G. Pararas-Carayannis Preliminary Catalog of Tsunamis Occurring in the Pacific Ocean, HIG 67-10, Data Report Number 5, Hawaii Institute of Geophysics, University of Hawaii, Honolulu, August 1967.

Kowalik, Z., "Computation of Tsunami Amplitudes Resulting from a Predicted Major Earthquake in the Shumagin Seismic Gap", Geophysical Research Letters, Volume 11, Number 12, December 1984.

McCulloch, D.S., "Evaluating Tsunami Potential", US Geological Survey Professional Paper 1360, 1985.

Murty, T.S., Seismic Sea Waves: Tsunamis, Bulletin 198, Department of Fisheries and the Environment, Ottawa, Ontario, Canada, 1977.

Pararas-Carayannis, G., Catalog of Tsunamis in Hawaii, Environmental Data Service, Boulder. CO. March 1977.

San Mateo County Planning Department, San Mateo County Seismic Safety Element of the General Plan and Hazard Synthesis Maps, 1976.

Sokolowski, T.J., "The Alaska Tsunami Warning Center's Responsibilities and Operations", Science of Tsunami Hazard, Volume 3, Number 1, December 1985.

Soloviev, S.L., and Ch. N. Go, Catalogue of Tsunamis on the Western Shore of the Pacific Ocean, (Canadian translation of Fisheries and Aquatic Science - Number 5077), Canada Institute for Scientific and Technical Information, National Research Council, Ottawa, Ontario, Canada, 1984.

Soloviev, S.L., and Ch.N. Go, Catalogue of Tsunamis on the Eastern Shore of the Pacific Ocean, (Canadian translation of Fisheries and Aquatic Science - Number 5078), Canada Institute for Scientific and Technical Information, National Research Council, Ottawa, Ontario, Canada, 1984.

Steinbrugge, KV., Earthquakes, Volcanoes, and Tsunamis: An Anatomy of Hazards, Skandia America Group, New York, NY, 1982.

SPECIFIC ACTIONS TO BE TAKEN BY EACH AGENCY UPON NOTIFICATION OF TSUNAMI WATCH INDICATING THAT A TSUNAMI MAY OCCUR.

ALL PREPARATIONS FOR WARNING AND EVACUATION ARE PLACED ON HOLD UNTIL A TSUNAMI WARNING IS RECEIVED.

q Upon notification of a Tsunami Watch, initiate recall of OES personnel and activate the Area OES office Emergency Operations Center (EOC). The OES office EOC will be used as the initial EOC for short period responses. If time permits, and if directed by the Area Coordinator, or if a tsunami occurs, the full scale EOC will be activated.
q Establish and maintain a Tsunami Master Log of all key information, contacts, actions taken, and related information. Information in log should include time of event and point of contact (with phone number).
q Assemble available information on Tsunami Watch. Sources of Information:
· California Office of Emergency Services Warning Center
· California Coastal Region OES
· National Weather Service, Redwood City
· Alaska Tsunami Warning Center
· Pacific Tsunami Warning Center
q Senior OES representative determines recommended initial course of action for jurisdictions and agencies.
q Conduct briefings for key personnel at Area OES or city EOCs as appropriate.
q Assign off-duty San Mateo Area OES personnel as follows:
q Area Coordinator and Assistant Area Coordinator to Redwood City
q Public Information Officer to Redwood City
q District Administrators (one each) to Pacifica and Half Moon Bay
q Confirm that coastal communities and key agencies have received Tsunami Watch information and have established procedures for evacuation of endangered areas. Relay to the communities and agencies the recommended initial course of action and Area OES Point of Contact/phone number. NOTE: Public Safety Communications is responsible to provide an initial alert to all affected jurisdictions and agencies.

NOTE: INDIVIDUAL JURISDICTIONS RETAIN AUTHORITY TO EVACUATE THEIR AREAS.
q Upon notification of a Tsunami Warning, initiate recall of Area OES response personnel and activate the Area OES Office Emergency Operations Center (EOC). The OES Office EOC will be used as the initial EOC for short period responses. If time permits, and if directed by the Area Coordinator, or if a tsunami occurs, the full scale San Mateo Area EOC will be activated.

DUMMY
An unscheduled "test" message to determine time required for disseminating messages.

Area Coordinator and Assistant Area Coordinator
- Collect and interpret tsunami messages (ATTACHMENT A)
- Coordinate and disseminate area-wide response with jurisdictions and agencies
- Ensure watch/warning information is provided to media and public ASAP
- Designate facility for emergency operations for concerned agencies
- Maintain liaison with State OES for rapid access to mutual aid
- Prepare final report or memorandum at cancellation or end of event
- Review supplemental information (ATTACHMENTS)

Public Information Officer

- Maintain liaison with media and prepare news releases (ATTACHMENT B)

Line 3 Refers to the arrival time of ground-transmitted seismic waves (NOT tsunami or tidal waves) in Greenwich Mean Time (GMT or "Zulu") at the Palmer Observatory. Convert to local time using ATTACHMENT H.

Residents of affected areas are urged to keep tuned to your local Emergency Alert System station (KNBR 680; KGO 810; KCBS 740) for further information. People should stay away from low lying coastal areas until further notice. A tsunami is a series of waves and may be dangerous for several hours after the initial wave arrives at any particular point.

Un aguaje (maremoto) ha sido generado en el Oceano Pacifico y amenaza a nuestra costa maritima. Se avisa a todos los residentes afectados alejarse del area y proceder a:
_________________________________________________________________________
(Enter name and address of mass care shelter)

Por favor permanezcan en el lugar indicado hasta que las autoridades les informen que pueden volver a sus hogares.

Un aguaje no es una sola ola sino una serie de olas con fuerza mayor que las olas comunes. En 1964, 12 personas perecieron en un aguaje en Crescent City, California y otras 61 personas perecieron en Hawaii durante el aguaje de 1961. En nuestra costa las olas de un aguaje pueden alcanzar hasta una altura de 20 pies (6 metros).

Se encuentra usted en una area de riesgo de aguaje o inundacion? Esto significa que el fuerte oleaje podria alcanzar o inundar esta area y se le advierte que para su seguridad abandone immediatamente esta area y proceda a un lugar mas seguro hasta que los autoridades le informe que ha pasado el peligro.

For information to all Sheriffs, Police Chiefs, California Highway Patrol, and Emergency Services Directors of coastal cites:

A severe earthquake has occurred at_______________________________(location). It is not known, repeat, not known at this time that a tsunami has been generated. You will be kept informed as further information becomes available.

For information to all Sheriffs, Police Chiefs, California Highway Patrol, and Emergency Services Directors of coastal cites:

A severe earthquake has occurred at_______________________________(location). A tsunami has been generated which is spreading over the Pacific Ocean. Wave heights cannot be predicted. The tsunami may cause great damage to coastal cities in the Pacific area.

Wave heights (these are not necessarily maximum) have been reported to (Alaska/ Hawaii) as follows:

No tsunami reports have been received. No tsunami/seismic sea wave has been generated. Warning/Watch status is canceled. All agencies assume all clear upon receipt of this message.

California Highway Patrol Redwood City Office (Responsible for Highway Marker 3.700 (south of Devil’s Slide) to Monterey County Line)

California Highway Patrol San Francisco Office (Responsible for Highway Marker 3.700 (south of Devil’s Slide) through Pacifica)

California Highway Patrol Area Dispatch Center (Dispatches all area Highway Patrol vehicles)

Police (24 HR Dispatch)
Fire
Coastside Opportunity Ctr
Cabrillo School District
Half Moon Bay High School
Farallone View
Elementary School

T (Tango) Denver MST 2300 0300 0600 0900 1200 1500 1700 2000

U (Uniform) San Francisco PST 2200 0100 0400 0700 1000 1300 1600 1900

*Summary*	II. DUTIES, RESPONSIBILITIES, AND POWERS To understand the duties and responsibilities that arise during an emergency, review of the various legal concepts that apply both prior to and during the emergency is necessary. Note that for the purposes of this guideline, the term “governing body” refers to that of a city, county, or city and county.
Q.	*WHAT ARE THE LEGAL AUTHORITIES TO ORDER AN EVACUATION?*
A.	The primary authorities cited in this document are derived from the California Constitution, Government Code, Penal Code, Emergency Services Act, and case law. A governing body may impose voluntary or mandatory evacuation orders pursuant to the general police power with which government is imbued. The preferred practice is to order an evacuation pursuant to statutory authority, e.g. the Emergency Services Act.
Q.	*WHAT IS THE POLICE POWER?*
A.	The authority to control the movement of persons and property arises from the police power of the state. The police power enables governments to take action for the good of the public -- governing bodies may enact laws, ordinances, or regulations to protect the health, safety, morals, or general welfare of the population. Fitts v. Superior Court, (1936) 6 Cal. 2d 230, 234. Of course, the police power is used everyday for building restrictions, licensing, and other similar activities. Similarly, the police power also provides governing bodies with flexibility to meet emergency situations. California Supreme Court— The Supreme Court of California has described the police power as the inherent power of the government to enact laws that protect the order, safety, and health of society. In re Ramirez (1924) 193 Cal. 633 BASIS FOR AUTHORITY: *California Constitution* Local governing bodies derive their basic powers from the state Constitution, just as the state entities do. Strumsky v. San Diego County Employees Retirement Assn. (1974) 11 Cal.3d 28, 36. California’s Constitution expressly authorizes counties and cities to make and enforce all local, police, sanitary and other laws. Cal. Const. art. XI, § 7.
	California Constitution Article XI, § 7 “A county or city may make and enforce within its limits all local, police, sanitary, and other ordinances and regulations not in conflict with general laws.”
	*Statutory Authority* The state constitution expressly empowers local governments to create rules and to enforce any non-conflicting regulation. The legislature has codified this constitutional intent for the counties to have the powers of the state, including the power to regulate movement of people and property.
	Government Code § 23002 “The several existing counties of the State and such other counties as are hereafter organized are legal subdivisions of the State.”
*Police Powers During an Emergency*	Pursuant to the police power, the Legislature has enacted specific statutes pertaining to the movement of persons and property. Even so, the police power does not require statutory enactment for authorities related to exigent circumstances. The Courts of the United States and California have provided rulings defining the limits of the police power. Essentially, the extent of the police power is proportional to the extent of the emergency. Police powers flow from the law of necessity, and “in an emergency, the scope of permissible regulation may increase.” Adkins v. State of California, (1996) 50 Cal.App.4th 1802, 1810.

WHAT CONSTITUTES AN EMERGENCY?

A.

Emergency Services Act Definition

An “emergency” is well established in California as meaning “an unforeseen situation calling for immediate action. Los Osos Valley Associates v. City of San Luis Obisbo, (1994) 30 Cal. App. 4th 1670, 1681. An emergency is also defined as a situation of ‘grave character and serious moment,’ which is evidenced by an ‘imminent and substantial threat to public health or safety. Los Osos at 1673; County Sanitation Dist. No. 2 v. Los Angeles County Employee’s Assn. (1985) 38 Cal. 3d 564, 586, 592 cert. denied 474 U.S. 995 (1985).

The California Emergency Services Act” and the Standardized Emergency Management System have a specific definition of an “emergency: Cal. Govt. Code § 8558, Cal. Code Regs., tit. 19, § 2402(e).

“...conditions of disaster or of extreme peril to the safety of persons and property...” Cal. Govt. Code § 8558(b), (c) (Describing “state of emergency” and “local emergency.”).

The conditions that cause an emergency may be natural or human caused. For example, the California Emergency Services Act specifically enumerates the following conditions: Cal. Govt. Code § 8558.

· air pollution,
· fire,
· flood,
· storm,
· epidemic,
· riot,
· drought,
· sudden and severe energy shortage,
· the Governor’s warning of an earthquake or volcanic prediction,
· probable or imminent enemy attack

Penal Code Definition

The Penal Code provides a further definition of emergency as “any condition which results in, or which could result in the response of a public official in an authorized emergency vehicle, or any condition which jeopardizes or could jeopardize public safety and results in or could result in, the evacuation of any area, building, structure, vehicle or of any other place which individuals may enter.” Cal. Penal Code § 148.3(c) (defining false report of an emergency).

Q.	*WHO HAS THE AUTHORITY TO USE POLICE POWERS TO RESTRICT THE MOVEMENT OF PEOPLE AND PROPERTY?*
A.	The Governor, delegates of the Governor, local governing bodies and their designated representatives, statutorily designated law enforcement agents, and statutorily authorized government employees have the authority to restrict the movement of people and property in an emergency situation. Local government may enact legislation under the authority of the state’s police power. Local law enforcement agencies may be used to enforce or assist in the implementation of the legislation. Some of the legal subdivisions of the state that have the authority to restrict movement of people and property are: · local governing body of counties, or whomever is authorized to act on their behalf; · local governing body of cities, or whomever is authorized to act on their behalf; · statutorily designated law enforcement officers; · statutorily designated health and public safety employees; and · Governor.
	Generally, the local governing body, or whomever the local governing body has authorized to restrict the movement of people and property during an emergency is primarily responsible for ordering an evacuation, quarantine, curfew, or other restriction on travel. This authorization may be in the form of an ordinance, resolution, or order that the local governing body has enacted. A. COUNTIES Authorities: · All the counties of this state are deemed to be legal subdivisions of the state. Cal. Const., Art. II, § 1; Cal. Govt. Code § 23002. · Case law establishes that a county exercises only those powers that are granted by the state. Marin County v. Superior Court of Marin County (1960) 563 Cal. 2d 633. · Counties are not municipal corporations since counties are not, like municipal corporations, incorporations of the inhabitants of specified regions for purposes of local government. In re Miller’s Estate (1936) 5 Cal. 2d 588; Dillwood v. Riecks (1919) 42 Cal. App. 602. · Any county may make and enforce within its limits all local, police, sanitary and other ordinances and regulations not in conflict with the general laws. Cal. Const. Art II, § 7. · All counties have the power to promote the public health and general welfare of its citizens. Goodall v. Brite, (1936) 11 Cal. App. 2d 540. In addition, any county may disseminate information to the public concerning the rights, duties, properties and activities of the county. Cal. Govt. Code §§ 25, 207.5.
	Charter county In those cases where the county has been granted a charter from the state and that charter has been approved by the state legislature, then those charter counties shall have all the powers that are provided by the state constitution or by statute for the counties. Cal. Const. Art. XI, §§ 4(g), (h). In contrast, a general law county is created and granted only those powers set forth by statute and the common law. Throughout the State, if there is a conflict between state law and a county charter provision, the local law generally prevails except where the intent of a general state law is to establish a state policy. In those instances, state law prevails. Pearson v. Los Angeles County (1957) 49 Cal.2d 624; Shean v. Edmonds (1948) 89 Cal. App. 2d 315.
	County Sheriff The Sheriff shall prevent and suppress any affrays, breaches of the peace, riots and insurrections which come to his knowledge, and investigate public offenses which have been committed. Cal. Govt. Code § 26602. The Sheriff also has the responsibility for closing areas to the public Cal. Penal Code §§ 409, 409.5, 409.6. and consequently to order an evacuation. (see later discussion of Penal Code § 409.5).

	As county director of emergency services	If the board of supervisors adopts a resolution by unanimous vote, electing that the sheriff hold the office of county director of emergency services, ex officio, the sheriff shall perform the duties prescribed by state law and executive order, the California Disaster and Civil Defense Master Mutual Aid Agreement, mutual aid operational plans adopted pursuant thereto and by county ordinances and resolutions. Cal. Govt. Code §§ 22620-22623.
	*Note:*	Not all counties have elected to have the sheriff perform the duties of the county director of emergency services. Verify who has been given that responsibility for a county. Cal. Const. Art. XI, § 4.
B. CITIES Authorities: · The state legislature is the entity that prescribes the procedures for city formation and provides for city powers. Cal. Const. Art. XI, § 2(a). · A city charter may provide for that city having the power to make and enforce all ordinances and regulations in respect to municipal affairs, subject only to those restrictions and limitations provided in their charter and in respect to other matters, the city shall be subject to the general laws. Cal. Const. Art. XI, § 4(a). · A city may make and enforce within its limits all local, police, sanitary, and other ordinances and regulations not in conflict with the general laws. Cal. Const. Art. XI, § 7. · A city may adopt regulations designed to promote the health and welfare of the people. DeAryan v. Butler (1953) 119 Cal. App. 2d 674; cert. denied 74 S.Ct. 863. A state statute addressing an area of statewide concern is deemed applicable to charter and general law cities. DeVita v. County of Napa (1995) 9 Cal. 4th 763.

Chief of Police

“For the suppression of riot, public tumult, disturbance of the peace, or resistance against the laws or public authorities in the lawful exercise of their functions, the chief of police has the powers conferred upon sheriffs by general law and in all respects is entitled to the same protection.” Cal. Govt. Code § 41601.

The Chief of Police shall perform such other services as general law and the city ordinances require. Cal. Govt. Code § 41611.

Just like the Sheriff, the Chief of Police has the power to close areas to the public and consequently to order an evacuation. (See later discussion of § 409.5)

WHAT POWERS DO LAW ENFORCEMENT HAVE REGARDING EVACUATIONS?

A.

Penal Code
§ 148.2

Penal Code
§ 402

Penal Code
§ 409

Penal Code
§ 409.3

Penal Code
§ 409.5

Penal Code
§ 409.6

There are six specific statutes, in addition to the California Emergency Services Act, that provide methods for enforcing the restriction on movement of people and property.

Provides for punishment of persons interfering with firefighters or rescue personnel during the discharge of their duties. Also makes it an offense to disobey orders given by firefighters or other public officers.

Pertains to interfering with personnel at the scene of an emergency. Similar to Penal Code § 148.2, specifically broadens the conditions and types of personnel protected by the statute.

Prohibits persons from remaining in the area of a riot or an unlawful assembly, after being warned to disperse.

Provides that law enforcement has authority to control or manage an accident scene except for patient care.

Allows specified law enforcement officers to close or restrict access to an area.

Allows specified law enforcement officers to close or restrict access to an avalanche area, and provides for forcible removal from the area.

*Exception to § 148.2*	PENAL CODE § 148.2. This section is primarily used when people interfere with emergency measures implemented by a public safety agency. There are four chargeable conditions under this section. First, every person that intentionally resists or interferes with fire department personnel or emergency rescue personnel discharging their duties may be charged for this crime. Cal. Penal Code § 148.2.1. Second, a person may be guilty under this section if he or she disobeys the order of any firefighter or public officer. Cal. Penal Code § 148.2.2. Third, in case of a fire, a person who causes a fire’s extinguishment to be postponed because of any act of disorderly conduct is also chargeable under this section. Cal. Penal Code § 148.2.3. Fourth, a party who exerts influence on another person to delay or hamper the extinguishment of a fire may be charged under this section. Cal. Penal Code § 148.2.4. Any volunteers or employees of a public firefighting agency are considered “emergency rescue personnel” when actively engaged in rescue of persons and property during an emergency. Cal. Penal Code § 245.1 A private paramedic is not considered “emergency rescue personnel” for the purposes of § 148.2. People v. Olsen (1986) 186 Cal. App. 3d 257.
	PENAL CODE § 402. Penal Code section 402 provides that interfering with personnel at the scene of an emergency is a criminal act. “Every person who intentionally travels to, or stops at, an emergency scene for the purpose of viewing the scene or the actions of the public safety personnel and impedes the personnel from discharging their duties is guilty of a misdemeanor.” Additionally, this section prohibits persons from interfering with rescues by impeding emergency vehicles or personnel while rescuers are traveling to or from an emergency scene for the purpose of protecting lives or property.
Causes of Emergencies	Traveling to, or stopping at, an emergency scene is permissible if a person’s employment requires viewing of the scene. This exception is probably limited to members of the media. To avoid liability, each potential violator should be analyzed to determine whether viewing of the scene could be considered “part of the duties of their employment.” The term “emergency,” as explained in section 402 (c), means any incident that involves injured persons, property damage, or a threat to the safety of persons or property. Penal Code § 402 lists various causes of emergencies, including: · fire, · explosion, · airplane crash, · flooding, · windstorm damage, · railroad accident, · traffic accident, · power plant accident, · toxic chemical spill, and, · biological spill. This list is merely illustrative. The code expressly includes any other natural or human-caused event.
	PENAL CODE § 409. Penal Code section 409 provides that failure to disperse from the area of a riot or an unlawful assembly is a criminal act. “Every person remaining present at the place of any riot, rout, or unlawful assembly, after the same has been lawfully warned to disperse, except public officers and persons assisting them in attempting to disperse the same, is guilty of a misdemeanor.” The legislature intended that this section and related sections provide the means for officers to control any willful and malicious obstruction of the public’s free use of a public way. In re Bacon (1966) 49 Cal. Rptr. 322. *Offender’s Guilt is Inferred* Whether a person is guilty of the offense of assembling for the purpose of disturbing the peace or for failure to disperse does not depend on whether the assembly’s purpose was consummated. People v. Anderson (1931) 117 Cal. App. 763. The offense of “remaining at place of riot” does not require that an individual actively participated in a riot or an unlawful assembly. People v. Sklar (1930) 111 Cal. App. Supp. 776.
	PENAL CODE 409.5 Penal Code section 409.5 provides that specified law enforcement officers may close or restrict access to an area in the event of a disaster. *Advantages/ Limitations* The advantage of using Penal Code § 409.5 to restrict the movement of people or property is that it allows specified law enforcement officers to close an area by a verbal order on an immediate and/or selective basis. The disadvantage is that the announcement or orders may vary from officer to officer, increasing the likelihood of non-uniformity which could provide a basis for subsequent litigation. Close supervision and coordination are essential. The agencies and persons that have the authority to restrict the movement of people and property under Penal Code § 409.5 are: · California Highway Patrol, · Sheriff’s Office, · Police Department, · Marshal’s Office, · Any officer or employee of the Department of Forestry and Fire Protection designated a peace officer by subdivision (g) of Cal. Penal Code § 830.2, · Any officer or employee of the Department of Parks and Recreation designated a peace officer by subdivision (f) of Cal. Penal Code § 830.2, · Any officer or employee of the Department of Fish and Game designated a peace officer under subdivision (e) of Cal. Penal Code § 830.2, Any publicly employed full-time lifeguard or publicly employed full-time marine safety officer while acting in a supervisory position in the performance of his or her official duties.

*Note:*	Local health officer	If the calamity creates an immediate menace to the public health, the local health officer may close the area where the menace exists pursuant to the conditions set forth in this section.
Other Subdivisions 409.5(c) 409.5(d)	Subdivisions (c) and (d) of section 409.5 pertain to unauthorized persons entering or refusing to leave a closed area. These sections also pertain to restricted entry into a closed area by members of the media, the general public, and affected residents. *Unauthorized person entering a closed area or refusing to leave a closed area.* “Any unauthorized person who willfully and knowingly enters an area closed pursuant to subdivision (a) or (b) and who willfully remains in the area after receiving notice to evacuate or leave shall be guilty of a misdemeanor. *Restricted entry into a closed area for media and residents.* “Nothing in this section shall prevent a duly authorized representative of any news service, newspaper, or radio or television station or network from entering the areas closed pursuant to this section.” The media’s statutory right of access to disaster areas was clarified in the case of Leiserson v. City of San Diego in 1986. One of the issues in the case was whether a member of the media could have their access restricted because the area was “unsafe” to enter. The court reasoned that “press representatives must be given unrestricted access to disaster scenes unless police personnel at the scene reasonably determine that such unrestricted access will interfere with emergency operations.” Leiserson v. City of San Diego, (1986) 184 Cal. App. 3d 41, 51. *“…duly authorized representative…”* The term “duly authorized representative” refers to individuals recognized by their employer and major city police or sheriff department as a working member of the press. L.A. Free Press v. City of Los Angeles (1970) 9 Cal. App. 3d 448, 451. In 1984 the State Attorney General opined that the term “duly authorized” refers to a person authorized access by a news station, newspaper, radio or television network having duly authorized the individual to be its representative at the disaster location. 67 Ops. Cal. Atty. Gen. 535 (1984).

Order to evacuate	Whether Penal Code § 409.5 permits law enforcement officers to forcibly evacuate an area is not clear.
Issues	Because of a variety of issues concerning the implementation of this approach, many jurisdictions decided to warn the person and either have that person sign a waiver form if the person refused to leave, or fully document the giving of the notice to leave and that person’s refusal to leave.
	Alternative Another alternative would be to have the officer order the evacuation, and should that person refuse to leave the area, the officer would arrest that person under Penal Code § 148.
Evacuation order	Rather than relying on Penal Code § 409.5, the local governing body should consider issuing an evacuation order that specifies the following: · whether the order is for voluntary or mandatory evacuation; · who is going to enforce the order (police, sheriff, director of emergency services, fire department, etc.); · what they are authorized to do (evacuate, use reasonable force to remove someone from an area); · the relevant time period; and · that the evacuation is issued under provisions of the Emergency Services Act, thereby invoking the penalty provisions of the Act and affording the immunities accorded.
	PENAL CODE § 409.6 Penal Code section 409.6 differs slightly from section 409.5, most noticeably in that it expressly authorizes the use of reasonable force to remove an unauthorized person from the closed area. (a) Whenever a menace to the public health or safety is created by an avalanche, officers of the Department of the California Highway Patrol, police departments, or sheriff’s offices, any officer or employee of the Department of Forestry and Fire Protection designated a peace officer by subdivision (g) of Section 830.2, and any officer or employee of the Department of Parks and Recreation designated a peace officer by subdivision (f) of Section 830.2, may close the area where the menace exists for the duration thereof by means of ropes, markers or guards to any and all persons not authorized by that officer to enter or remain

	within the closed area. If an avalanche creates an immediate menace to the public health, the local health officer may close the area where the menace exists pursuant to the conditions which are set forth above in this section. *The media is allowed the same freedom of access to an area of avalanche danger that they have at any disaster scene:* § 409.6(d) Nothing in this section shall prevent a duly authorized representative of any news service, newspaper, or radio or television station or network from entering the areas closed pursuant to this section.
Definition of an avalanche	An avalanche, for the purpose of this section, would include avalanches of snow and mudslides. Additionally, volcanic activity is also subject to the provisions of § 409.6. Volcanoes are covered under this section because of the potential for avalanches resulting from a volcano’s pyroclastic flow. Pyroclastic flows are streams of hot ash and rock fragments, mixed with hot air and other gases, that move rapidly along the ground surface. Pyroclastic flows can occur when a large mass of rock avalanches from the side of a volcanic dome. Volcanic Hazards (1987) U.S. Govt. Print. Off. 194 - 389. Penal Code 409.6 may be used to facilitate an emergency area closure whenever a menace to the public health or safety is created by an avalanche. The law enforcement officers may close the area that threatens the public, and may also close the area surrounding any emergency field command post or any other command post regardless of whether that command post is located near the avalanche. Cal. Penal Code § 409.5(b).
Differences between 409.5 and 409.6	Penal Code 409.6 is similar to section 409.5 except that it applies specifically to avalanches, including snow, mud, and volcanic. This section would also apply to mudslides and landslides. Unlike 409.5, the use of reasonable force to remove persons who were given notice to leave the area is expressly provided for in section 409.6.
	Alternative As with Penal Code § 409.5, the option remains to have the officer order the evacuation, and should that person refuse to leave the area, the officer could arrest that person under Penal Code § 148.

Evacuation order	Rather than relying on Penal Code § 409.6, the local governing body may issue an evacuation order that specifies the following: · whether the order is for voluntary or mandatory evacuation; · who is going to enforce the order (police, sheriff, director of emergency services, fire department, etc.); · what they are authorized to do (evacuate, use reasonable force to remove someone from an area); · the relevant time period; and · that the evacuation is issued under provisions of the Emergency Services Act, thereby invoking the penalty provisions of the Act and affording the immunities accorded.
	III. EMERGENCY SERVICES ACT / STANDARDIZED EMERGENCY MANAGEMENT SYSTEM
Q.	*IS THE EMERGENCY SERVICES ACT A FACTOR IN CONTROLLING MOVEMENT OF PEOPLE AND PROPERTY?*
A.	The various statutory provisions and the police power of the state that allow for controlling the movement of people and property during an emergency may be utilized independently or in conjunction with the Emergency Services Act. Immunity from liability is generally greater if the provisions of the Emergency Services Act are employed. To illustrate the differences, the discussion below explains the Emergency Services Act beginning with Government Code § 8550.
State responsibility	Section 8550 codifies the legislative intent that the state is responsible to mitigate the effects of those emergencies “which result in conditions of disaster or in extreme peril to life, property, and the resources of the state, and generally to protect the health and safety and preserve the lives and property of the people of the state.” This section also confers emergency power on the Governor, the Director of the Office of Emergency Services, and the chief executives and governing bodies of political subdivisions of this state.
“Political subdivision” defined	Government Code Section 8557(c) defines “political subdivision” to include “any city, city and county, county, district, or other local governmental agency or public agency authorized by law.”

	By enacting the Emergency Services Act, the legislature merged civil defense, disaster response, and mutual aid into one operational concept. As a result, each political subdivision has the authority and obligation to plan and participate in emergency situations.
Q.	*HOW DOES MUTUAL AID RELATE TO CONTROLLING THE MOVEMENT OF PEOPLE AND PROPERTY?*
A.	Mutual Aid may be rendered under the authority and protection of the Emergency Services Act even though a local emergency has not been proclaimed. There must exist an emergency affecting life and property of such a magnitude that the local entity is unable to combat it with its available resources, and outside assistance is required. That outside assistance is termed “mutual aid” Cal. Govt. Code § 8559 for the purposes of the Emergency Services Act.
	Advantage If a local government renders mutual aid in the absence of a local emergency proclamation, it may do so and still be within the auspices of the Emergency Services Act. The advantage of proclaiming a local emergency is that it conclusively establishes the actions were within the Emergency Services Act. Compliance with the Act provides local government greater immunities such as immunity from liability for itself and its employees. Soto v. California (1997) 56 Cal. App. 4th 196.
Master Mutual Aid Agreement	The Emergency Services Act does not specifically define “mutual aid.” Cal. Govt. Code §§ 8615-8618. Instead, the Act merely references the Master Mutual Aid Agreement, approved emergency plans, and the authority for rendering such aid during a war emergency or state of emergency. Cal. Govt. Code §§ 8560, 8561, 8615, 8616. Mutual aid must be consistent with the Master Mutual Aid Agreement and the Standardized Emergency Management System. Cal. Govt. Code § 8617, Cal. Code Regs. tit. 19, § 2415(c). In periods other than a state of war emergency, state of emergency, or local emergency, the Emergency Services Act refers to the Master Mutual Aid Agreement and local ordinances, resolutions, agreements, or plans as authority for the exercise of mutual aid powers. Cal. Govt. Code §§ 8560, 8561, 8617. The Master Mutual Aid Agreement suggests that mutual aid means the interchange of services and facilities on a local, county-wide, regional, state-wide and interstate basis to combat the effects of disasters which may result from such calamities as flood, fire, earthquake, pestilence, war, sabotage and riot, and is intended to be available in the event of a disaster of such magnitude that is, or is likely to be, beyond the control of a single political subdivision and requires the combined forces of several political subdivisions to combat.

Q.	*WHAT ARE THE ADVANTAGES TO A LOCAL GOVERNMENT OF PROCLAIMING A LOCAL EMERGENCY PRIOR TO ENACTING ORDERS CONTROLLING THE MOVEMENT OF PEOPLE AND PROPERTY?*
A.	The immunities of the “Emergency Services Act” provide more protection than those offered by the “State Tort Claims Act.” In the event of litigation, however, a local government will have to establish that it was acting in accordance with the Emergency Services Act” in order to use its protection. Adkins v. State of California (1996) 50 Cal. App. 4th 1802.
	*Local Proclamation of Emergency* The easiest way to prove a local governing body was acting underneath the protection of the Emergency Services Act is when a “state of local emergency” has been proclaimed by the local governing body.
	In-county resources By proclaiming a state of local emergency, there is a finding that an emergency exists and that mutual aid is needed to assist that entity. Even if only in-county resources are utilized, the Master Mutual Aid Agreement and any local agreements to provide mutual aid should be sufficient to establish that the Emergency Services Act applies. Cal. Govt. Code §§ 8615-8617, 8631.
	Out-of-county resources If out-of-county assistance is needed, requests for mutual aid should follow the procedures set forth by the Office of Emergency Services, including obtaining mission numbers from OES for responding agencies. This is particularly important for possible reimbursement of extraordinary expenses in the event of a proclaimed “State of Emergency” or in the event of a presidential declaration of disaster when state or federal disaster relief funds become available.
Proclaim early	If there are grounds for proclaiming a “local emergency,” for a number of reasons, proclaim it at the earliest possible time. By doing so, the proclamation provides for the following: · alerting and activating the mutual aid system; · invoking and disseminating emergency orders at the earliest possible time; and · meeting the requisites for seeking the Governor’s proclamation of a “State of Emergency.”
	Issue orders and regulations Another advantage to proclaiming a local emergency is authorization of the local governing body to issue “orders and regulations necessary to provide for the protection of life and property.” Cal. Govt. Code § 8634. This provision is particularly important because enhanced control over the movement of people and property during an emergency is available. For example: · The local governing body may expand the category of persons who are authorized to announce and enforce the orders; · the failure to obey the order is a misdemeanor subject to fine and/or imprisonment; Cal. Govt. Code § 8665. · The use of an order avoids the legal ambiguities that exist in using Penal Code section 409.5 when used to restrict movement into or out of a disaster area.
Q.	*WHAT ARE THE CONSEQUENCES OF NOT PROCLAIMING A LOCAL EMERGENCY?*
*No Local Proclam-ation*	If a state of local emergency is not proclaimed, then the only remaining authorities that would allow restrictions on the movement of people and property would be statutorily authorized officials, and the governing body’s use of the police power. Additionally, in order for a local agency to receive the immunity afforded by the Emergency Services Act, the parties would have to establish that mutual aid was provided in accordance with the act. This would require proving that the emergency response was accomplished in accordance with the State Emergency Plan, the Master Mutual Aid Agreement, or local mutual aid agreements or plans. Cal. Govt. Code §§ 8560 et seq.
*Actions under the ESA*	If a local government entity were to be sued, it would have to establish that it was acting under the provisions of the Emergency Services Act in order to receive the protection offered by the Emergency Services Act. Although a proclamation of an emergency is not a prerequisite to establish that actions occurred pursuant to the ESA, such a proclamation facilitates establishing that the ESA applies.
Q.	*WHAT IS THE BEST WAY TO RECEIVE EXPANDED IMMUNITY PURSUANT TO THE EMERGENCY SERVICES ACT?*
A.	The best way to insure that a local government or agency is protected by the immunities of the Emergency Services Act is to: · Establish a local plan, · Have the plan approved by the local governing body, · Have the plan reviewed by OES, · Verify that the plan is consistent with the State Emergency Plan as adopted by the Governor. Cal. Govt. Code §§ 8560, 8568, 8569. A second method for claiming the expanded immunities of the California Emergency Services Act is to establish that mutual aid was provided in accordance with the Emergency Services Act, the Master Mutual Aid Agreement, the Standardized Emergency Management System, and the procedures set forth by the Office of Emergency Services. “All mutual aid systems and agreements shall be consistent with SEMS and the Master Mutual Aid Agreement.” Cal. Code Regs., tit. 19, § 2415(c).

Mutual aid outside OES procedures	On occasion, there may be assistance rendered according to local agreement, or merely a request for assistance, without utilizing the formalized OES mutual aid procedures. This often occurs within an operational area.
	Operational Area “An intermediate level of the state emergency services organization, consisting of a county