Emergency Operations Plan Basic Plan - CLINTON COUNTY, OHIO - Clinton County Ohio
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Clinton County Emergency Management Agency
CLINTON COUNTY, OHIO
Emergency Operations Plan
Basic Plan
Revised
July 2021
This plan defines roles and responsibilities in order to mitigate, prepare for, respond
to, and recover from the effects of all hazards, including natural disasters, manmade
disasters, and major accidents.Clinton County Emergency Operations Plan
Basic Plan
July 2021
Table of Contents
Table of Contents .................................................................................................................................. 1
PROMULGATION STATEMENT ............................................................................................................... 3
RECORD OF CHANGES .......................................................................................................................... 4
CHANGE RECOMMENDATION(S) .......................................................................................................... 5
PRIMARY & SUPPORTING AGENCIES ................................................................................................... 6
Agencies ................................................................................................................................................. 6
1. Primary Agency. .......................................................................................................................... 6
2. Supporting Agencies. .................................................................................................................. 1
Background ............................................................................................................................................ 1
3. Formation. ................................................................................................................................... 1
Introduction............................................................................................................................................ 1
4. Purpose. ...................................................................................................................................... 1
5. Scope........................................................................................................................................... 1
6. Situation. ..................................................................................................................................... 1
7. Assumptions. .............................................................................................................................. 3
8. Policies. ....................................................................................................................................... 3
Concept of Operations .......................................................................................................................... 4
9. General Operations. ................................................................................................................... 4
Specific Operations ............................................................................................................................... 5
10. Plan Activation. ......................................................................................................................... 5
11. Notifications.............................................................................................................................. 6
12. EOC Coordination. .................................................................................................................... 8
13. Emergency Declaration Process. ............................................................................................. 9
14. Resource Support..................................................................................................................... 9
15. Financial Recovery. ............................................................................................................... 10
Roles and Responsibilities ................................................................................................................. 10
16. Phased Approach. ................................................................................................................. 10
17. Continuity of Government. .................................................................................................... 11
18. Plan Development and Maintenance. ................................................................................. 13
19. Authorities. ............................................................................................................................. 14
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20. References............................................................................................................................. 15
GLOSSARY ........................................................................................................................................... 16
21. Definitions.............................................................................................................................. 16
22. Acronyms. .............................................................................................................................. 19
Attachments........................................................................................................................................ 20
Attachment 1 - Sample Local Emergency Proclamation. .......................................................... 21
Attachment 2 - Primary and Supporting Government Agencies Matrix. ................................... 22
Attachment 3 - EOP Distribution Chart ....................................................................................... 23
Attachment 4 - EOC Representative Descriptions. .................................................................... 24
Attachment 5 - Pre-Incident/Disaster EOC Representative Checklist. ..................................... 26
Attachment 6 - EOC Recall Notification Checklist. ..................................................................... 28
Attachment 7 - EOC Arrival Checklist. ......................................................................................... 31
Attachment 8 - EOC Shift Change Checklist. .............................................................................. 34
Attachment 9 - Common Operating Picture (COP) Designation and Orion Damage Assessment
License Plan. ................................................................................................................................ 35
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Basic Plan
July 2021
PROMULGATION STATEMENT
Preparedness to cope with the effects of a disaster must include an integrated emergency
management system involving all departments of local government and private support
agencies, as well as community organizations and individual citizens.
Disasters necessitate a sudden escalation in the material needs of a community and a
reorganization of resources and personnel in order to address emergency response. Many
lives can be lost in the confusion and disorganization that result from the lack of a full
planning effort. Therefore, it is necessary to develop an effective, coordinated response and
recovery operation.
Planning for population protection must be a cooperative effort to minimize the effects of all hazards,
protect lives and property, and restore the stricken area to its pre-disaster status with a minimum
social and economic disruption.
This plan is a statement of policy regarding emergency management and assigns tasks and
responsibilities to county officials, department heads, and various agencies and organizations
explaining their roles during, before, and after an emergency or disaster situation. It is developed
pursuant to Section 5502 and 3750 of the Ohio Revised Code, Chapter 4501:3-6 of the Ohio
Administrative Code, the National Incident Management System (NIMS), Homeland Security
Presidential Directive (HSPD-5), and Clinton County Commission Resolution #881 dated December
8, 1989 establishing the Clinton County Emergency Management Agency.
President, Clinton County Board of Commissioners Date
Chairman, Clinton County Emergency Management Date
Agency Executive Committee
Director, Clinton County Emergency Management Date
Agency
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RECORD OF CHANGES
Date Changes Made Initials
Apr 2021 Plan re-written and converted from Departmental to ESF format TBB
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July 2021
CHANGE RECOMMENDATION(S)
Recommended changes, corrections, additions, and deletions to the Clinton County Emergency
Operations Plan: Any user of this plan is encouraged to recommend changes to this plan that the
user feels in their professional judgement could enhance or clarify a particular portion of the area
being addressed. Suggested changes should be submitted to the Clinton County Emergency
Management Agency Director for coordination, comment, review, concurrence with impacted
partners, and approval. Please include the page number when making suggestions.
Plan Name, Org, Page Paragraph Suggested Should
Version Contact Change Read
Date Information
Page 5Clinton County Emergency Operations Plan
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PRIMARY & SUPPORTING AGENCIES
This plan incorporates the following entities:
American Red Cross (Central Ohio Chapter) Jurisdictional Chief Elected Officers
Civil Air Patrol Jurisdictional Fire Districts
Clinton Co. Administrator Jurisdictional Law Enforcement Agencies
Clinton Co. Agricultural Society Jurisdictional Public Works
Clinton Co. Amateur Radio Association Adams Township
(ARES/RACES) Chester Township
Clinton Co. Animal Shelter (Dog Warden) Clark Township
Clinton Co. Auditor Office Green Township
Clinton Co. Building & Zoning Jefferson Township
Clinton Co. Board of Developmental Disabilities Liberty Township
Clinton Co. Board of Commissioners Marion Township
Clinton Co. Community Action Richland Township
Clinton Co. Coroner Union Township
Clinton Co. Early Intervention Vernon Township
Clinton Co. Economic Development Washington Township
Clinton Co. Emergency Management Agency Wayne Township
Clinton Co. Engineer Office Wilson Township
Clinton Co. Fire Chiefs’ Association City of Wilmington
Clinton Co. GIS Department Village of Blanchester
Clinton Co. Health District Village of Clarksville
Clinton Co. Help Me Grow Central Coordination Village of Martinsville
Clinton Co. Humane Society Village of Midland
Clinton Co. Human Resources Village of Sabina
Clinton Co. Job & Family Services Village of New Vienna
Clinton Co. Maintenance Department Village of Port William
Clinton Co. OH State Univ. Extension Office Mental Health Recovery Board (MHRBWCC)
Clinton Co. Port Authority Montgomery County United Way (HelpLink 2-1-1)
Clinton Co. Regional Planning Commission Ohio Voluntary Organizations Active in Disaster
Clinton Co. Sheriff’s Office Wilmington Area Ministerial Alliance
Clinton Co. Solid Waste District
Primary agencies are noted in bold. Agencies marked with “*” contain key response partners (fire,
emergency service, and law enforcement). For a listing of Emergency Support Function (ESF) roles,
see attached Emergency Support Function Plans.
Agencies
1. Primary Agency.
1.1. Clinton County Board of Commissioners.
1.2. Clinton County Emergency Management Agency Executive Committee.
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1.3. Clinton County Emergency Management Agency (EMA).
2. Supporting Agencies.
2.1. Local Political Jurisdictions.
Background
3. Formation.
3.1. The Clinton County Emergency Management Agency was created on 9 December 1989 by a
joint countywide agreement (Resolution #881) amongst the County Commissioners, the eight
municipal councils, and the thirteen boards of township trustees.
3.2. The purpose of the agency is to coordinate civil defense activities, disaster preparedness
plans, emergency response communications, and the management of resources needed during
disaster situations.
Introduction
4. Purpose.
4.1. The purpose of the Clinton County Emergency Operations Plan (EOP) is to outline
predetermined emergency management activities and operations for agencies within the county
that will allow rapid response, efficient use of resources, and maximize recovery from
emergencies.
4.2. This plan defines roles and responsibilities in order to mitigate, prepare for, respond to, and
recover from the effects of all hazards, including natural disasters, manmade disasters, and
major accidents.
4.3. All political subdivisions of Clinton County, Ohio are able to activate and use this plan in
efforts to mitigate an active disaster response and recovery effort.
5. Scope.
5.1. This plan provides flexible organizational structures capable of meeting the varied
requirements of many emergency scenarios with the potential to require activation of the
Emergency Operations Center (EOC), to include the Multi-Agency Coordination System (MACS)
with executive-level officials and implementation of the Clinton County EOP.
5.2. When implemented, this plan coordinates activities to organize and supplement the efforts
of the emergency response agencies in order to protect the public. It assists in establishing
priorities, allocating resources, and conducting all appropriate emergency management
functions (e.g. coordination with neighboring jurisdictions and state agencies).
5.3. This plan can apply to all hazards regardless of cause.
6. Situation.
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6.1. The Clinton County Emergency Management Agency (EMA) is organized in accordance with
Section 5502.271 of the Ohio Revised Code (ORC), operating under the authority of the Clinton
County Board of Commission.
6.2. According to the results of the 2010 U.S. Census, Clinton County’s estimated 2017
population is 42,009. The county contains one (1) city and seven (7) villages within thirteen (13)
townships. The City of Wilmington is the county seat and is the population center of the county
with a population of approximately 12,398.
6.3. Major transportation routes in Clinton County are I-71, US 22, US 68, SR 3, SR 28, SR 73,
SR 134, SR 350, SR 729, SR 730, and SR 380. There are two rail lines crossing thru Clinton
County operated by CSX and Indiana & Ohio Central Railroad, Inc.
6.4. Other features include Cowan Lake and Caesar Creek State Parks and multiple streams and
tributaries supporting the drainage area of the Little Miami River and the Scioto River watershed.
6.5. The risk assessment portion of the Clinton County Hazard Mitigation Plan (HMP) details the
hazards and vulnerabilities that could lead to declared emergencies. The risk assessment
portion of the HMP was completed in August 2020. The following is a summary of the major
findings:
6.6. For more detailed information on probable risks to population and environment (e.g.
likelihood, Hazard and Vulnerability scores, and audience impacts), refer to the Hazard Mitigation
Plan.
Rank Threat/Hazard Score Haz Group Haz Type
1 Severe Wind & Tornadoes 4.25 Natural Meteorological
2 Utility Failure 4.04 Human-Caused Accidental
3 Severe Summer Weather 3.94 Natural-Caused Meteorological
4 Drug Misuse & Addiction 3.93 Human-Caused Intentional
5 Hazardous Materials 3.92 Human-Caused Accidental
6 Epidemic/Pandemic 3.90 Natural-Caused Accidental
7 Severe Winter Weather 3.65 Natural-Caused Meteorological
8 Flooding 3.48 Natural-Caused Meteorological
9 Terrorism 3.19 Human-Caused Intentional
10 Extreme Temperatures 3.11 Natural-Caused Meteorological
11 Drought 2.73 Natural-Caused Meteorological
12 Invasive Species 2.60 Natural-Caused Accidental
13 Dam Failure 2.29 Human-Caused Accidental
14 Wildfire 2.26 Natural-Caused Meteorological
Human-Caused Accidental
15 Landslides, Erosion, and 2.23 Natural Geological
Subsidence
16 Earthquakes 1.85 Natural Geological
6.7. Clinton County uses short-term and long-term strategies to reduce the chance that a defined
hazard will impact the community. For more details, refer to the Hazard Mitigation Plan.
6.8. Clinton County’s ability to prepare for and respond to potential hazards is limited to the
availability of local resources such as equipment, facilities, and personnel. To understand their
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capabilities, each jurisdiction should conduct its own capabilities assessment. For additional
resources to augment the response shortfalls, a Clinton County Resource Directory is integrated
with this plan.
6.9. The Clinton County Resource Directory contains 24-hour contact numbers for persons and
resources that may be required for emergency response and recovery.
6.10. Clinton County has statewide and local mutual aid agreements that will be activated in the
event of capabilities within the county are not sufficient for response and recovery from an
emergency. Copies of agreements are on file at the Board of Commissioners and EMA offices.
6.11. In addition, EMA, in coordination with the Clinton County Board of Commissioners, will
request assistance during emergencies through the Ohio Emergency Management Agency as
needed.
7. Assumptions.
7.1. Clinton County and its jurisdictions will continue to be exposed to the hazards identified as
part of the Hazard Mitigation Plan, as well as others that may develop in the future.
7.2. Emergencies requiring mutual aid organizations or state-level assistance may occur at any
time.
7.3. Emergencies may require coordination and cooperation among diverse governmental and
private organizations in order to protect the lives and property of Clinton County residents.
7.4. Government officials will continue to recognize their responsibilities with regard to the public
safety and exercise their authority to implement this Emergency Operations Plan in a timely
manner when confronted with real or threatened disasters.
7.5. Clinton County and its political subdivisions have capabilities including labor, equipment,
supplies, et cetera.
7.6. Assistance may be available when requested.
7.7. Organizations tasked with emergency responsibilities have identified personnel and
resources and developed internal Standard Operating Procedures (SOPs) to ensure compliance
with the Clinton County EOP.
7.8. Organizations listed in this EOP shall regularly update internal SOPs and notification call
lists.
7.9. Communication capabilities are adequate to provide a coordinated countywide response.
7.10. If properly implemented, this plan will reduce or prevent disaster-related losses.
7.11. Planning assumptions.
8. Policies.
8.1. This plan applies to all agencies and organizations with assigned responsibilities in the
Clinton County EOP.
8.2. Requests for emergency assistance will be resolved at the lowest level of direction and
control. Unresolved requests will normally flow upwards to the County EOC and then State EOC
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(when activated), or EMA Director and then the State EMA Watch Office (when the EOC is not
activated).
8.3. This plan is applicable when:
8.3.1. An Incident Commander (IC) determines that an emergency is significant enough to
exceed the response and mutual aid capability necessary to contain an incident.
8.3.2. By the EMA Director in response to an indication of a potential or pending disaster or
emergency or matters involving civil defense.
8.3.3. By direction through a local emergency or disaster declaration by any of the political
jurisdictions located within Clinton County.
8.4. All local field operations will use Incident Command System (ICS) and National Incident
Management System (NIMS) principles.
8.5. Local field operations will provide information (formal and informal reporting) to the EOC.
8.6. Primary and Supporting Agencies will assist with the coordination and information collection
to create a unified situational awareness throughout the EOC.
8.7. All organizations are responsible for the development and maintenance of their own internal
guidelines, plans, and notification procedures. No part of this plan is intended to supplant an
agency or department SOP/SOGs.
8.8. Document costs of emergency operations and damages to government property and certain
non-profit organizational facilities in anticipation of potential federal reimbursement under
established disaster relief and recovery programs.
8.9. Each Primary and supporting agency or department will maintain written agreements in the
form of Memorandums of Understanding (MOU) as necessary with any other agency that is
required in support of this plan.
8.10. Each agency and requesting jurisdiction is responsible for any costs associated with use of
this plan.
8.11. All agencies with responsibilities in this plan will keep track of their department finances to
include, but not limited to, timesheets (including any overtime), compensation amounts, material
and supply costs, et cetera when activated by the EOC.
8.11.1. Agencies and departments will forward this information on to the EOC, as requested,
for estimating cost of the incident as a whole, as well as any cost recovery efforts if
applicable.
Concept of Operations
9. General Operations.
9.1. It is the responsibility of government to undertake comprehensive management of
emergencies in order to protect life and property from the effects of hazardous events.
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9.2. The chief executive officers of each jurisdiction are ultimately responsible for protecting lives
and property within their jurisdiction in an emergency or disaster situation.
9.3. Chief executive officers may exercise all necessary local emergency authority for response
by issuing an emergency declaration. Suggested language is in Attachment 1 to the Basic Plan,
Sample Local Emergency Declaration.
9.4. The role of the County EOC is to provide a central command and control capability to enable
response courses of action to emergencies at the county level (spanning operational to strategic
level) to include:
9.4.1. Collect, gather and analyze intelligence/data.
9.4.2. Decision making to protect life and property.
9.4.3. Disseminate decisions and implementation instructions to all concerned agencies and
the public.
9.4.4. Maintain continuity and operational capability of the organization.
9.4.5. Provide direction, coordination, and logistical support to responders.
9.4.6. Recruit manpower/volunteers, procure equipment and supplies, and provide Just-In-
Time (JIT) capabilities to responders during an emergency.
9.5. Other levels of government may provide resources not available at the local level. When the
emergency exceeds local government’s capability to response, mutual aid may be employed.
9.5.1. If shortfalls still exist, assistance from the Ohio EMA will be requested through either
the State Watch Office or the State Emergency Operations Center (SEOC) when activated.
The federal government may provide assistance and resources to the state when needed.
Federal assistance usually is extended to aid in recovery from major disasters.
9.6. Day-to-day functions which do not contribute directly to response actions to an emergency
may be suspended or reassigned to other personnel not tasked for the duration of the
emergency.
9.7. All public information and news releases regarding response efforts will be coordinated by a
County Public Information Officer (PIO). See ESF-15: Public Information for more detail.
Specific Operations
10. Plan Activation.
10.1. This plan is activated through Clinton County Emergency Management Agency (EMA) by
any requesting agency having response or recovery responsibilities including:
10.1.1. An emergency declaration by a local political jurisdiction.
10.1.2. An active Incident Commander.
10.1.3. A forecasted event by Clinton County EMA.
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10.2. When the EOC is activated, the Primary agencies are tasked with specific implementation
roles as outlined in the entirety of the EOP.
10.3. When there is a major emergency or disaster affecting one jurisdiction in Clinton County, a
local Emergency Operations Center (EOC) may be established in a local government building with
the jurisdiction where the incident(s) occurred. The local jurisdiction can request County EOC
support in the following ways:
10.3.1. Activating the County EOC (EOC) in support of that community, assisting the
operations through coordination which may include augmentation of manpower, equipment,
and materials.
10.3.2. EMA will determine the need to open the EOC and at what level.
10.3.3. Activation may or may not be contingent on a Declaration of Emergency by Clinton
County Board of Commissioners.
10.4. Requesting the deployment of a Command 400 vehicle to the scene of an incident to
support the active IC is made through Hamilton County Dispatch at (513) 825-2260. Requesting
organization will be expected to support the vehicle with diesel fuel during the response.
10.5. Department Operations Centers (DOC) may be established by agencies/departments such
as the Health District or Highway Department.
10.6. For a major emergency or disaster affecting two or more jurisdictions in Clinton County, the
County EOC may be activated at any of the following locations.
10.6.1. Primary: Clinton County Sheriff’s Office, 1645 Davids Drive, Wilmington, OH 45177.
10.6.2. Alternate: County Annex, 111 S. Nelson Avenue, Wilmington, OH 45177.
10.6.3. Tertiary: Any facility with space and internet access to support operations within the
county.
10.6.4. Contingency: Any facility in or outside the border of the county with contingency
communications capabilities to support EOC operations. This option may rely mainly on
manual methods for tracking, coordinating, and displaying of information.
10.6.5. Virtual: When conditions are not conducive to be in close physical proximity to others
or key member(s) not in the local area but necessary for the response, or access to a
suitable facility is delayed or not possible at the time.
10.7. The County EOC will be manned by ESF primary and support agency appointees. Support
staff will be provided by EMA volunteers.
10.8. In an emergency activation, Clinton County and its political jurisdictions’ personnel will
utilize the processes, guides, protocols and procedures detailed in ICS and NIMS for the
command and management of emergency responses, including transitioning to a unified
command structure where each jurisdiction will participate in the decision-making process.
11. Notifications.
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11.1. EMA will be contacted by the local elected officials, agency/department heads, or the IC to
perform coordination activities.
11.2. The following Emergency Notification System (ENS) lists shall be established by EMA for
initial notifications and communicating messages to key audiences:
11.2.1. County Employees. Intended as a means of rapid notification of a time-sensitive or
safety situation impacting operations. Examples include snow emergency, facility
evacuation, or implementation of a departmental Continuity of Operations Plan.
11.2.2. EOC. Intended for recall notification of EOC representatives of activation, report
location, report time, and any applicable special instructions.
11.2.3. County All-Call. Intended as a means to reach local law enforcement and fire
departmental chiefs and key members of the medical community during the onset or
forecasted incident considered a FEMA Type III, II, or I event. Intended audience for this call
includes law enforcement and fire departmental chiefs and deputies and key medical points
of contact. Incident complexity by type:
11.2.3.1. Type V (5). Usually a routine response from a single agency or function (mutual
aid for fire response). Examples include a vehicle fire, medical response to an
injured/sick person, or a high-risk felony traffic stop. A planned version event could
include a 5K or a 10K road race.
11.2.3.2. Type IV (4). Involves multiple-agency and/or functions for response,
containment, and support. Examples include a barricaded suspect, contained hazardous
materials (HazMat) spill, large commercial fire, or localized flooding event. Planned
events could include a march, protest, festival, fair, or parade.
11.2.3.3. Type III (3). A serious incident requiring EOC activation to support a multi-
jurisdictional or countywide response that exceeds the capabilities of first responders.
Examples include a HazMat release requiring evacuations, an active aggressor, large
body aircraft mishap in a low population density area, or limited tornado or severe
weather damage to a neighborhood or small community. Planned events could include
county fair or auto racing event.
11.2.3.4. Type II (2). A major incident resulting in significant damage and often
exceeding the response capability of the county lasting days to weeks (or longer).
Examples include massive tornado damage, railroad tank car HazMat leak requiring
multi-day evacuations and sheltering of an entire section of a jurisdiction, or a large body
aircraft mishap in a high population density area. Planned events can include a VIP visit,
large demonstration or strike, or an event of national significance.
11.2.3.5. Type I (1). A catastrophic multi-county or regional event exceeding all local or
state resources and requiring mutual aid from other states and the federal government.
Examples include major hurricane (Category 3, 4, 5), multi-level terrorist attack, or
employment of CBRN weapon (chemical, biological, radiological, or nuclear). Planned
events could include a political convention, Super Bowl, or presidential visit.
11.2.4. Volunteer Reception Center (VRC). Intended to provide initial notification to key VRC
staff and facility coordinators of activation.
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11.2.5. Family Assistance Center (FAC). Intended to provide initial notification to key FAC
staff and facility coordinators of activation.
11.2.6. Elected Officials. Intended to provide consistent message delivery to jurisdictional
Chief Elected Officials and critical non-first response departments.
11.2.7. Tier II Reporting Facilities. Intended as a courtesy notification for environmental
coordinators for businesses reporting bulk hazmat storage to the Local Emergency Planning
Committee (LEPC) that a serious incident has occurred and to request they perform a post-
disaster reconnaissance of their operations. Any damage or hazmat releases shall be
reported with extremely hazardous substance (EHS) prioritized for response.
11.2.8. Public Severe Weather Notifications. A means for residents or workers located in
Clinton County to sign up for free severe weather alerts (voice, text, or email).
11.2.9. Public Emergency Alerts. A means for residents or workers located in Clinton County
to sign up for free emergency alerts (voice, text, or email).
11.2.10. Community Stakeholders. Intended to provide consistent message delivery to key
community stakeholder members, groups, and business sectors.
11.3. EOC Activation: EMA will notify ESF personnel typically through mobile phone or automated
messaging calls. Once activated, ESF personnel will notify support agencies or branch personnel
by any means available regarding the activation.
11.4. In events with ample warning or lead time, EMA (or the EOC if activated) will call the
directors of Primary and Supporting Agencies as soon as practical to be on standby or a
scheduled report time.
11.5. During events with no warning, or when determined the plan requires activation, EMA will
call the directors of Primary and Supporting Agencies for full activation.
11.6. Coordination between the Primary and Supporting Agencies and the EOC is by mobile
phones, virtual video, land mobile radios (LMR), or any other means available as necessary.
11.7. Any information going to the public needs to be coordinated with the PIO and the Joint
Information Center (JIC) if activated.
11.7.1. General procedures and responsibilities for emergency public information are
detailed in the Clinton County Emergency Operations Plan, ESF-15: Public Information.
12. EOC Coordination.
12.1. Any affiliated agency within this plan may be asked to come into the EOC (in person or if
running virtually) and act as a liaison for the function. This person needs to be able to make
quick, decisive, and effective decisions for the incident as a whole and have full authority to do
so on behalf of the agency.
12.2. The ESF representative in the EOC will serve as the liaison between the supplying agency
and the EOC. On-site personnel at an incident location should not bypass the IC to send
information to the EOC, via their ESF representative or other member.
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12.3. Local EOCs or DOCs will coordinate their activities with and request additional resources
through the County EOC.
12.4. All records of emergency management activities for the active response are maintained at
the County EOC and then later digitized and archived via the EMA office with Records & Archives.
12.5. Deactivation of the County EOC is done by the Director of Clinton County EMA or designee
when it is determined to be appropriate. Deactivation of local EOCs or DOCs is the responsibility
of agency/department heads.
12.6. The EOC will use virtual meeting capabilities as a means of coordination between entities
not in the same physical location, but have access to the internet or phone communications.
12.6.1. EMA shall input appropriate information into WebEOC to ensure the SEOC has
visibility of actions at the county level, situational reports, resource requests, et cetera.
13. Emergency Declaration Process.
13.1. Within the physical limits of a city or village, the mayor will make a city or village
declaration of emergency or disaster.
13.2. A County Declaration will be made by the Board of Commissioners.
13.3. A County Declaration must be made before a State Declaration can be requested, and
such a request to the state can only be made when all county resources and capabilities are fully
committed and in the process of being exhausted with little relief in sight.
13.3.1. City or villages must first draw from mutual aid through county jurisdictions. When all
county resources and capabilities are fully committed or exhausted, the request is then
elevated to the SEOC or Watch Office.
13.4. If state assistance is required, the local head of government issuing the request will
coordinate with Clinton County EMA to collect the necessary information to request state
assistance through the Ohio EMA.
14. Resource Support.
14.1. Local jurisdictions shall request resource support through the County EOC. The EOC will
seek to fill requests from other local jurisdictions (e.g. Emergency Management Assistance
Compact (EMAC)), higher levels of government, and other agencies in accordance with existing or
emergency-negotiated mutual aid agreements and memorandums of understanding.
14.2. If all available local resources are committed, including mutual aid, and assistance is still
required, the Clinton County EMA will coordinate a request for state assistance through the Ohio
EMA. All communications to the SEOC will come from the County EOC.
14.3. Requests for federal assistance are made by the Governor of the State of Ohio upon the
recommendation from the Ohio EMA Executive Director when the resources of the state are not
able to fulfill the needs of the emergency.
14.4. All new agreements and understandings brokered for a specific event will be entered into
the duly authorized officials and will be formalized in writing as soon as possible. Such
assistance may take the form of equipment, supplies, personnel, or other available capability.
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14.5. Expenses for material support will be the responsibility of the requesting jurisdiction and
should be approved by the Chief Elected Official of the affected jurisdiction prior to submittal to
the EOC.
15. Financial Recovery.
15.1. Clinton County EMA, in coordination with Ohio EMA and/or FEMA, assists in the
administration of state and/or federal emergency programs that allow local political jurisdictions
and their response/support agencies to address immediate emergency needs, recover costs,
and begin rebuilding following an emergency.
15.2. The following are just some of these programs. The procedures for these programs are
addressed in state and federal guidance documents and laws.
15.2.1. Small Business Administration Loans (SBA).
15.2.2. Federal Individual Assistance (IA).
15.2.3. Public Assistance (PA).
15.3. To assist in potential reimbursement following a disaster, organizations will coordinate to
document extraordinary costs incurred during response and recovery operations. These
extraordinary costs include, but are not limited to, personnel overtime, equipment costs, and
contractual costs for emergency services. See ESF-14: Recovery for more information.
Roles and Responsibilities
16. Phased Approach.
16.1. Effective emergency management happens in phases. The following describes specific
actions that every agency/department that have roles and responsibilities need to take in each
phase.
16.1.1. Mitigation.
16.1.1.1. Participate in hazard identification process and identify and correct
vulnerabilities.
16.1.2. Preparedness.
16.1.2.1. Develop and maintenance of internal guidelines, plans and notification
procedures. Seek and attend any training and/or education opportunities regarding
preparedness, response, and recovery of emergency and hazardous situations.
16.1.2.2. Ensure all identified personnel are trained on their responsibility according to
this plan, department, SOPs/SOGs that support this plan.
16.1.2.2.1. To include EOC operations, ICS, and the NIMS.
16.1.2.3. No part of this plan is intended to supplant agency SOPs/SOGs.
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16.1.2.4. Participate in training and exercises to validate this plan and developmental
SOPs/SOGs.
16.1.2.5. Maintain current inventories of resources available.
16.1.2.6. Develop mutual aid agreements (MAA) and memorandums of understanding
(MOU) with surrounding jurisdictions and private sector.
16.1.3. Response.
16.1.3.1. Maintain direct control of locally owned resources including managing,
monitoring, and tracking of locally owned resources.
16.1.3.2. Identify lifesaving and essential services priorities.
16.1.3.3. Identify, obtain, prioritize, and allocate available transport resources.
16.1.3.4. Coordinate with the County EOC.
16.1.3.5. Perform tasks necessary to conduct evacuation and restoration.
16.1.4. Recovery.
16.1.4.1. Continue to render transportation support when and where required as long as
emergency conditions exist.
16.1.4.2. Phase down operations as appropriate.
16.1.4.3. Keep detailed records of expenses in case there is a potential for federal or
state reimbursement.
16.1.4.4. Evaluate response by participating in an After Action Review (AAR) and
identifying shortfalls and necessary change to improve future response.
17. Continuity of Government.
17.1. The Board of Commissioners of Clinton County and the Chief Executives of all or the
majority of the other political subdivisions within the county have entered into a written
agreement establishing a Countywide Emergency Management Agency in accordance with the
Ohio Revised Code (ORC) 5502.271.
17.2. All local political jurisdictions have entered into Countywide Emergency Management
Resolution (or “Ordinance”) authorizing the formation of the Clinton County Disaster
Services/Emergency Management Organization on 8 December 1989 (Resolution #881) for
Clinton County to provide for emergency management functions. This agreement also covers
civil defense for all political jurisdictions.
17.3. During response operations, elected officials will act in concert on policy making (not
operational) issues such as authorizing procurement of resources, declaration of emergency or
disaster, financial terms or spending limits, and care of legal issues.
17.4. For Clinton County, the authority to make policy decisions comes from ORC 305.30 and
County Resolution 1254-99.
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17.5. Clinton County Administrator’s Office has responsibilities to review insurance information
and other assets to ensure benefits and resources are fully utilized.
17.6. Board of Commissioners negotiates and approves any and all contracts for services with
private vendors and ensures compliance with historical preservation laws.
17.7. Clinton County Prosecutor’s Office reviews all legal documents, ensuring that contracts and
agreements are legally sufficient for the county and townships. City and villages have their own
legal counsel.
17.8. Clinton County Auditor’s Office performs functions outlined in the ORC.
17.9. Essential functions of government cannot be disrupted for extended periods of time
without compromising the ability to perform its mission and functions. The following is for
Clinton County government (see Clinton County Continuity of Operations Plans for more
information).
17.10. The following lines of succession have been determined in order to ensure that executive
decision makers are available in the event of an emergency.
17.10.1. Clinton County Board of Commissioners:
17.10.1.1. Person #1.
17.10.1.2. Person #2.
17.10.1.3. Person #3.
17.10.1.4. Person #4.
17.10.2. Clinton County Emergency Management Agency:
17.10.2.1. Clinton County EMA Director.
17.10.2.2. EMA Executive Committee Chairman.
17.10.2.3. EMA Executive Committee Vice Chairman.
17.10.2.4. Mutual aid from EMA Directors in Ohio Homeland Security Region 6.
17.10.3. Townships: In accordance with township policy.
17.10.4. City or Village: In accordance with the jurisdiction policy.
17.10.5. Line of succession for each county agency or department head is in accordance
with department policy.
17.11. Organizations that have emergency response and recovery responsibilities addressed in
this EOP are listed in Appendix 2, Emergency Service Organizations. Detailed activities for each
agency with regard to specific functions are listed in the appropriate Emergency Support
Functions (ESF) section of this EOP.
17.12. Primary Agencies identified in each section of this EOP need to:
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17.12.1. Identify a sufficient number of representatives responsible to respond to the EOC
when activated, who will assist with discipline/function in coordination and communication
with local, state, and federal partners and other EOCs throughout response and recovery of
an event.
17.12.1.1. Ensure that sufficient representatives are identified for 24-hour operations at
the EOC and at the site of the emergency as needed.
17.12.1.2. Alternative members may need to be identified to ensure they have suitable
internet access from home in the event of a virtual EOC during conditions that members
may not operate from the office or another workspace.
17.12.2. Maintain listings of these personnel and phone numbers where they can be
reached on a 24-hour basis.
17.12.3. Each department shall provide a letter on department letterhead listing the
appointed members in a line of succession. This information will be used to update and
maintain a contact database.
17.12.4. Provide regular briefings and updates to personnel recalled to the Clinton County
EOC.
17.12.5. Departments will maintain records and report annually to Clinton County EMA the
NIMS and ICS status of trained individuals for the following:
17.12.5.1. Ensure appointed department personnel are trained in the NIMS and ICS.
Members should complete and maintain records of completing the following FEMA
Independent Study Courses (see Attachment 5, Preparedness Phase for *NEW* EOC
Representative training links and timeframe information). The following courses only
need to be completed once.
17.12.5.1.1. IS-700.b National Incident Management System.
17.12.5.1.2. IS-800.d National Response Framework, An Introduction.
17.12.5.1.3. IS-100.c Introduction to Incident Command System, ICS-100.
17.12.5.1.4. IS-200.c Basic Incident Command System for Initial Response.
17.12.5.2. Ensure appointed department personnel attend the initial Clinton County EOC
Operations Course for local processes and procedures.
17.12.5.3. Ensure appointed department personnel either (a) participate in an exercise
in their EOC capacity, or (b) attend the Clinton County EOC Operations Course as a
refresher once every two years. Real-world EOC activation and participation will count for
this requirement.
17.12.6. Protection of vital records that are stored on county-owned or leased servers are
maintained and backed up as part of the County’s Continuity of Operations Plan. All other
forms and locations of vital records are the responsibility of each agency or department.
18. Plan Development and Maintenance.
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18.1. The contents of this plan must be known and understood by those people responsible for
its implementation. The County EMA Director is responsible for briefing staff members and
County officials concerning their role in emergency management in general and the contents of
this plan in particular.
18.2. Each organization tasked with responsibilities in the Clinton County EOP is responsible for
coordinating updates and changes with the EMA regarding its portion(s) of the plan based upon
deficiencies identified by emergencies, drills, exercises, changes in government structure, and
emergency organization.
18.3. An annual review of the EOP will be conducted by EMA ensuring that necessary changes to
the Clinton County EOP are prepared, coordinated, published, and distributed.
18.4. Reviews will be based on after-action reviews of actual incidents, of EMA’s annual exercise
of the EOP, and of other organization-required exercises. Proposed changes from local
jurisdictions and departments having responsibilities in the EOP will also be incorporated.
18.5. Proposed changes will be given to each agency that has a primary or support role within
the plan and given ample time to review, discuss, and edit and make additions, corrections, or
deletions before the plan is finalized through signature of the agency or department head.
18.6. A complete update of the Clinton County EOP is scheduled on a rotating three-year (3-year)
cycle reviewed by the Ohio Emergency Management Agency.
18.7. During the cycle, the Clinton County EMA will conduct at least one exercise based on the
Homeland Security Exercise Evaluation Program, which will incorporate the activation of the
Emergency Operations Center and field operations of several functions.
18.8. Orientation seminars and functional drills will be held at least once in the cycle for training
of individuals who have responsibility in this plan.
18.9. Copies of the Clinton County EOP will be distributed electronically to the Chief Elected
Official of each jurisdiction, and also available on the Clinton County EMA website making it
available to the public.
18.9.1. Items noted as needing to be restricted due to identifying a vulnerability or could
possibly disclose a technique, tactic, or procedure that could put responders, elected
officials, or critical systems at risk, may be referenced as needed in the plan, but published
in a separate restricted document for official use only.
18.10. Local political subdivisions and adjoining jurisdictions are responsible for maintaining
current its operations plans per Ohio Administrative Code, Rules, 4501:3-6-01.
19. Authorities.
19.1. Federal.
19.1.1. “The Robert T. Stafford Disaster Relief and Emergency Assistance Act,” as amended
42nd U.S.C. Sections 5121, et al.
19.1.2. Homeland Security Presidential Directive 5, Management of Domestic Incidents.
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19.1.3. Homeland Security Presidential Directive 7, Critical Infrastructure Identification,
Prioritization, and Protection.
19.1.4. Homeland Security Presidential Directive 8, National Preparedness.
19.1.5. Disaster Mitigation Act of 2000, Public Law 106-390.
19.1.6. Post-Katrina Emergency Management Reform Act of 2006, Public Law 109-295.
19.1.7. Federal Disaster Assistance for Disasters Declared on or after November 23, 1988,
44 CFR Part 13.
19.1.8. Uniform Administration Requirements for Grants and Cooperative Agreements to
State and Local Governments, 44 CFR Part 13.
19.2. State.
19.2.1. Ohio Revised Code Section 305.30, Duties and Powers of County Commissioners.
19.2.2. Ohio Revised Code, Sections 935.27 - 935.28 Dangerous and Wild Animal.
19.2.3. Ohio Revised Code Section 3750, State Emergency Response Commission.
19.2.4. Ohio Revised Code, Section 5502.21, Emergency Management Definitions.
19.2.5. Ohio Revised Code, Section 5502.26, Countywide Emergency Management Agency.
19.2.6. Ohio Revised Code, Section 5502.271, Program for Emergency Management.
19.2.7. Ohio Revised Code, Section 5502.30, Immunity from Liability.
19.2.8. Ohio Revised Code, Section 5502.35, Exercising Emergency Management Powers
Outside Jurisdiction.
19.2.9. Ohio Revised Code, Section 5502.37, Emergency Management Prohibitions.
19.2.10. Ohio Revised Code, Section 5502.40, Emergency Management Assistance
Compact.
19.2.11. Ohio Administrative Code, Rules, Chapter 2750.
19.2.12. Ohio Administrative Code, Rules, Chapter 4501:3-6.
19.2.13. Ohio Administrative Code, Rules, Chapter 4937.
19.3. Local.
19.3.1. Resolution #881 dated December 8, 1989 establishing the Clinton County
Emergency Management Agency.
20. References.
20.1. Federal.
20.1.1. Federal Emergency Management Agency (FEMA), Comprehensive Preparedness
Guide-101, Washington D.C., March 2011.
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20.1.2. FEMA, National Response Framework, Washington D.C., October 2019.
20.1.3. FEMA, Guidance on Planning for Integration of Functional Needs Support Services in
General Population Shelters, November 2010.
20.1.4. FEMA, Public Assistance, Debris Management Plan
20.1.5. National Fire Protection Association (NFPA) 1600, Standards on Disaster/Emergency
Management, 2019.
20.1.6. FEMA 9500 Series Policy.
20.1.7. FEMA Debris Management Guide 325.
20.1.8. FEMA Public Assistance Guide 322.
20.1.9. FEMA Public Assistance Policy Digest 321.
20.2. State.
20.2.1. Ohio Emergency Operations Plan, 2018.
20.2.2. Ohio’s Volunteer Management Guidelines, September 2018.
20.2.3. State of Ohio, Acute Mass Fatality Management, Local Jurisdiction Guidance, 2015.
20.2.4. Ohio EMA Public Assistance, Damage Assessment Field Guide.
20.2.5. County Emergency Operations Plan Development Guidance, undated.
20.3. Local.
20.3.1. Clinton County Resource Directory.
20.3.2. Clinton County Directory of Officials.
20.3.3. Clinton County Hazard Mitigation Plan, 2016.
GLOSSARY
21. Definitions.
21.1. Common Operating Picture - A single display of relevant information shared by more than
one command. A common operational picture facilitates collaborative planning and assists all
echelons to achieve situational awareness.
21.2. Continuity of Operations - An effort within individual executive departments and agencies
to ensure that Primary Mission Essential Functions (PMEFs) continue to be performed during a
wide range of emergencies including localized acts of nature, accidents, and technological or
attack-related emergencies.
21.3. Department Operations Center - An Emergency Operations Center (EOC) specific to a single
department or agency. The focus of a DOC is on internal agency incident management and
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response. DOCs are often linked to and, in most cases, are physically represented in a combined
agency EOC by authorized agent(s) for the department or agency.
21.4. Emergency Operations Center - The physical location or virtual space at which the
coordination of information and resources to support incident management (on-scene
operations) activities normally take place. During a pandemic, an EOC may operate in a virtual
space to help protect critical staff coordinating response and recovery efforts. An EOC may be a
temporary facility or may be located in a more central or permanently established facility,
perhaps at a higher level of organization within a jurisdiction. EOCs may be organized by major
functional disciplines (e.g. Fire, Law Enforcement, Medical Services), by jurisdiction (e.g. Federal,
State, Regional, Tribal, City, County), or by some combination thereof.
21.4.1. Virtual Emergency Operations Center - Operating a Common Operating Picture from
more than one remote location due to an extenuating situation or circumstance.
21.5. Emergency Operations Plan - An ongoing plan for responding to a wide variety of potential
hazards. It outlines the roles and responsibilities of various entities involved and by what
authority.
21.6. Emergency Support Function - Provide the structure for coordinating interagency support
for a response to an incident. They are mechanisms for grouping functions most frequently used
to provide support both for declared disasters and emergencies under the Stafford Act and for
non-Stafford Act incidents.
21.7. Hazard - Source of potential danger or adverse condition; an emergency incident or
physical condition that has the potential to cause fatalities, injuries, property and infrastructure
damage, et cetera; generally described as natural, technological, or human caused.
21.8. Incident Commander - The individual responsible for all incident activities, including the
development of strategies and tactics and the ordering and release of resources. The IC has
overall authority and responsibility for conducting incident operations and is responsible for the
management of all incident operations at the incident site.
21.9. Incident Command System - A standardized on-scene emergency management construct
specifically designed to provide an integrated organizational structure that reflects the
complexity and demands of single or multiple incidents without being hindered by jurisdictional
boundaries. The ICS is the combination of facilities, equipment, personnel, procedures, and
communications operating within a common organizational structure designed to aid in the
management of resources during incidents. It is used for all kinds of emergencies and is
applicable to small, as well as large and complex, incidents. ICS is used by various jurisdictions
and functional agencies, both public and private, to organize field-level incident management
operations.
21.10. Jurisdiction - A political subdivision within Clinton County; range or sphere of authority;
typically associated with a geographic region.
21.11. Local Emergency Operations Center - A central command and control facility responsible
for carrying out the principles of emergency preparedness and emergency management, or
disaster management functions, at a strategic level in an emergency situation and ensuring the
continuity of operation.
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21.12. Memorandum of Understanding - A written understanding or agreement between
agencies/organizations or jurisdictions that set guidelines for cooperation; typically outlines
liability and financial responsibilities.
21.13. Mitigate - Sustained actions taken to reduce or eliminate long-term risk to human life and
property from natural, human-caused, and technological hazards and their effects.
21.14. Mobile Incident Command Post - A temporary facility or vehicle designated to signify the
physical location of the tactical-level, on-scene Incident Command and the management
organization. It typically comprises the Incident Commander and immediate staff and may
include other designated incident management officials and responders, as well as private
sector, nongovernmental, and volunteer organizations. An example of a mobile incident
command post is Command 400. Command 400 is under the direction of the Greater Cincinnati
Hazardous Materials Unit and is an available resource for deployment to incidents in Clinton
County via EMA.
21.15. Mutual Aid - Agencies and/or jurisdictions assisting one another by furnishing personnel,
equipment, or expertise in a specified manner.
21.16. Mutual Aid Agreement - An agreement between agencies and/or jurisdictions that they
will assist one another on request by furnishing personal equipment and/or expertise in a
specified manner.
21.17. National Incident Management System - System providing a consistent nationwide
approach for governments (local, tribal, state, and federal), the private sector, and
nongovernmental organizations to work effectively and efficiently together to prepare for,
respond to, and recover from emergency incidents regardless of cause, size, or complexity.
21.18. Natural Disasters - An emergency situation posing significant danger to life and property
that results from a natural cause.
21.19. Ohio Revised Code - Contains all acts passed by the Ohio General Assembly and signed
by the Governor.
21.20. Primary Agency - The agency that has the mission, role, or statutory obligation to provide
a service or capability to within a particular jurisdiction.
21.21. Promulgation - To make known by open declaration, publish, proclaim formally, or put into
operation.
21.22. Prepare - A continuous cycle of planning, organizing, training, equipping, exercising,
evaluating, and taking corrective action in an effort to ensure effective coordination during
incident response.
21.23. Respond - Activities that address the short-term, direct effects of an incident. This
includes immediate actions to save lives, protect property, and meet basic human needs.
21.24. Recover - The development, coordination, and execution of service and site restoration
plans; the reconstitution of government operations and services; individual, private sector,
nongovernmental, and public assistance programs to provide housing and to promote
restoration; long-term care and treatment of affected persons; additional measures for social,
political, environmental, and economic restoration; evaluation of the incident to identify lessons
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