BID Beach Street Parking & Pedestrian Facility Improvements

CITY OF MUSKEGON
SUPPORT EMERGENCY OPERATIONS PLAN
Severe Weather Events
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INTENTIONALLY BLANK
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CITY OF MUSKEGON
SUPPORT EMERGENCY OPERATIONS PLAN
An all-hazards plan supporting the Muskegon County Emergency Operations Plan/Emergency
Action Guidelines, for use in the event of disaster or severe emergency of natural, human, wartime,
technological or terrorism origin.
March 20, 2023
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TABLE OF CONTENTS
Promulgation
Document........................................................................................................................................... 5
Approval and Implementation ........................................................................................................... 6
Record of Revisions........................................................................................................................... 7
Record of Distribution........................................................................................................................ 8
Basic Plan:
Purpose................................................................................................................................ 9
Scope................................................................................................................................... 9
Authorities and References.................................................................................................. 9
Plan Development and Maintenance................................................................................... 9
Situation Overview .............................................................................................................. 10
Planning Assumptions......................................................................................................... 11
Concept of Operations ........................................................................................................ 12
Organization and Assignment of Responsibilities................................................................ 13
Annexes:
Overview ............................................................................................................................. 16
Annex A, Direction, Control, and Coordination.......................................................... 17
Annex B, Communications and Warning................................................................. 19
Annex C, Damage Assessment............................................................................ 21
Annex D, Fire Services....................................................................................... 23
Annex E, Emergency Assistance, Housing, and Human Services................................. 25
Annex F, Public Health and Medical Services.......................................................... 27
Annex G, Public Information................................................................................. 29
Annex H, Public Safety and Mass Care.................................................................. 31
Annex I, Public Works........................................................................................ 33
Attachments:
Attachment A: Incident and Declaration Progression ........................................................... 35
Attachment B: Format for Declaring a Local "State of Emergency" ...................................... 36
Attachment C: Format for Requesting a Governor's Declaration and State Assistance ...... 37
Attachment D: Pre-identified Shelter Locations......................................................... 38
Annexes & Appendices:
Annexes and Appendices Overview ............................................................................................. 40
ESF #1, Transportation ................................................................................................................. 40
ESF #2, Communications ............................................................................................................. 43
ESF #3, Public Works and Engineering ........................................................................................ 46
ESF #4, Firefighting ...................................................................................................................... 52
ESF #5, Information and Planning ................................................................................................ 55
ESF #6, Mass Care, Emergency Assistance, Temporary Housing, and Human Services........... 60
ESF #7, Logistics .......................................................................................................................... 64
ESF #8, Public Health and Medical Services ................................................................................ 67
ESF #9, Search and Rescue ......................................................................................................... 71
ESF #10, Public Safety and Security ............................................................................................ 74
ESF #11, External Affairs .............................................................................................................. 80
Appendix 1, Severe Weather Event .............................................................................................. 85
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PROMULGATION DOCUMENT
Officials of the City of Muskegon, in conjunction with the County of Muskegon and Michigan State
Emergency Management (EM) agencies, have developed this Support Emergency Operations Plan that
will enhance the local emergency response capability.
This plan, when used properly and updated, will assist local government officials to accomplish their primary
responsibilities of protecting lives and property in their community. This plan and its provisions will become
official when it has been signed and dated below by the Chief Administrative Official (CAO) of the
municipality.
_______________________________________ 5/12/25
Chief Administrative Official Date
City of Muskegon
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APPROVAL AND IMPLEMENTATION
The Support Emergency Operations Plan, referred to in this document as the Support EOP, describes how
the City of Muskegon will handle emergency situations in cooperation with the Muskegon County
Emergency Management Program. The Support EOP assigns responsibilities to agencies for coordinating
emergency response activities before, during, and after any type of emergency or disaster. The Support
EOP does not contain specific instructions as to how each department will respond to an emergency; these
can be found in the plan annexes or separate Standard Operating Procedures (SOP).
The goal of the Support EOP is to coordinate emergency response efforts to save lives, reduce injuries,
and preserve property. The Support EOP addresses emergency issues before and after an emergency, but
its primary goals are to assemble, mobilize and coordinate a team of responders that can respond to any
emergency, and describe response procedures in relation to the county response procedures.
The Support EOP will use a graduated response strategy that is in proportion to the scope and severity of
an emergency. The City of Muskegon will plan, prepare and activate resources for local emergencies that
affect the local area (or a specific site) and/or widespread disasters that affect the entire state and/or nation.
The Support EOP was developed by an Emergency Operations Team (EOT) consisting of key departments
covering emergency functions such as law enforcement, fire, and public works. The team works to establish
and monitor programs, reduce the potential for hazard events in the community through planning, review,
and training, and assist the Muskegon County Emergency Management Program in developing and
maintaining the County EOP.
The Support EOP must be signed by the current CAO each time it is updated, with the exception of the
following activities:
1. Minor updates e.g. changing system names, grammar, spelling or layout changes
2. Updates to the annexes
These activities may be updated in the plan without the CAO signature by the following individuals:
1. Emergency Management Liaison
2. Department head responsible for an annex
Homeland Security Presidential Directive (HSPD) 5 facilitates a standard management approach to major
incidents, the National Incident Management System (NIMS). NIMS is administered as part of the National
Response Framework (NRF) which integrates the federal government into a single, all discipline, and all-
hazards plan. NIMS will provide a nationwide approach that enables federal, state, tribal and local
government agencies to "work effectively and efficiently together to prepare for, respond to, and recover
from domestic incidents, regardless of cause, size or complexity." This Support EOP has integrated NIMS
concepts, including the Incident Command System (ICS), and language to help incident management
operate in accordance to the NIMS using the guidance provided by the Department of Homeland Security
(OHS).
During an emergency, all response personnel will use the ICS to manage the incident and employ
emergency resources at the site. The Emergency Operation Center (EOC) will coordinate additional
resources when needed. This EOP will be used during community recovery after an emergency.
This plan supersedes all previous plans.
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RECORD OF REVISIONS
The following is a list of revisions made to the Support EOP. This chart tracks the date that changes
were made, reason for the changes, updated pages, and who made the revision.
Date Reason for Revision Page Numbers Revised By
5/12/25 Updated Entire Document All Timothy Kozal
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RECORD OF DISTRIBUTION
The following is a list of the individuals and facilities that have been provided a copy of the EOP in order to
conduct the assigned tasks addressed in this plan.
Name of Number of
Title of Recipient Agency Date
Recipient Copies
City of
Chief Administrative Jonathan
Muskegon
Official Seyferth
Muskegon City
Mayor Ken Johnson
Commission
Muskegon County Muskegon
Emergency Management Renee Gavin County Sheriffs
Coordinator Office
City of Muskegon
City of
Emergency Management Timothy Kozal
Muskegon
Liaison
Muskegon
Communications and
Jason Wolford County Central
Warning Official
Dispatch
Damage Assessment Dan City of
Official VanderHeide Muskegon DPW
Muskegon
Fire Services Official Timothy Kozal
Public Safety
Mass Care, Emergency City of
Jake Eckholm
Assistance, Housing, and Muskegon
Human Services Official Planning
Public Health and Medical Trinity Health
Chad Crook
Services Official EMS
Jonathan City of
Public Information Official
Seyferth Muskegon
Muskegon Public City of Muskegon
Information Center Timothy Kozal
Muskegon Emergency City of Muskegon
Operations Center Timothy Kozal
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BASIC PLAN
Purpose
The City of Muskegon has elected to incorporate into the Muskegon County Emergency
Management Program. As partners in the five phases of emergency management, mitigation,
preparedness, prevention, response and recovery, the City of Muskegon and the Muskegon
County Emergency Management Program share joint responsibilities. The City of Muskegon
Support EOP has been developed to identify these responsibilities. It is to be used in concurrence
with the County EOP. In accordance with Section 19 of the Michigan Emergency Management
Act (1976 PA 390, as amended), activation of this plan at the beginning of a disaster or
emergency also establishes eligibility to receive state assistance for disaster related expenses
incurred during a State of Emergency or Disaster declared by the Governor, for which federal
assistance is unavailable.
Scope
The City of Muskegon Support EOP is an adaptable document that can be applied to all hazards.
Due to the unique nature of emergencies, it may become necessary to deviate from the contents
of the plan when responding to an incident. Agencies that have been assigned supporting roles in
this plan have developed and will maintain SOPs that provide systematic instructions for
accomplishing their assigned functions. The local government conducts additional activities, such
as personnel training, participation in exercises, public information, land-use planning, etc., to
support emergency preparedness, mitigation, and response efforts. To facilitate efficient
emergency management operations, the City of Muskegon continues to implement the National
Incident Management System (NIMS).
Authorities and References
1. Authority of local officials during an emergency:
a. 1976 PA 390, as amended, local Emergency Management resolution,
b. City of Muskegon adoption of the Support EOP,
c. Executive Directive No. 2005-09, the state adoption of the NIMS,
d. The Robert T. Stafford Disaster Relief and Emergency Assistance Act,
e. Emergency Planning and Community Right to Know Act of 1986 (EPCRA) also known as
the Superfund Amendments and Reauthorizations Act (SARA), Title Ill,
f. Good Samaritan Law and Know Act of 1986.
2. References used to develop the Support EOP:
a. NIMS,
b. NRF,
c. Michigan Emergency Management Plan (MEMP), Michigan State Police, Emergency
Management and Homeland Security Division (MSP/EMSHD),
d. Pub 204, MSP/EMHSD.
Plan Development and Maintenance
To ensure that this Support EOP addresses the needs of the community and is consistent with
the Muskegon County EOP, this document was developed in a cooperative, whole community
effort between municipal government, local community, and the County Emergency Management
Program. The Support EOP is updated after every change of the municipal CAO or update to the
County EOP. After the plan is adopted by resolution of the Muskegon City Commission and
approved by the CAO, it is forwarded to the County Emergency Management Program. The plan
will be implemented, tested through exercises in concurrence with county officials, and
maintained in accordance with the standards of the Muskegon County EOP.
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This plan has been provided to all municipal departments, local elected officials, the County
Emergency Management Program and all agencies tasked within the document. It includes this
Basic Plan, which provides an overview of the municipality's preparedness and response
strategies, and functional annexes that describe the actions, roles and responsibilities of
participating organizations.
Situation Overview:
A. The City of Muskegon has taken various preparedness and incident management steps to
enhance capabilities in responding to incidents including:
1. The mitigation of potential hazards.
2. Identification of emergency response agencies and mechanisms that will protect life
and property before, during and after an emergency.
3. Tasking agencies, organizations, and individuals with specific functions and
responsibilities relative to emergency operations. Assigned tasks are explained in
further detail under the "Organization and Assignment of Responsibilities."
4. Integration with the Muskegon County EOP, Muskegon County hazard mitigation
plan, MEMP, etc.
5. The following table shows the five mission areas outlined in the NPG and the
examples of capabilities and activities that have been established to be executed by
the EM organization and within the scope of this EOP:
Mission Area Purpose Capabilities/Actions
Heighten security for potential targets,
Prevent, avoid, or stop an
Prevention investigate the nature and source of threats,
imminent, threatened, or actual
disrupt illegal activities, and apprehend
act of terrorism.
perpetrator, etc.
Develop plans through systematic planning
processes, establish effective public
information and warning systems to
Protect individuals and assets
Protection communicate significant hazards, create
against threats and hazards.
partnerships and networks between protection
elements, facilitate information sharing
between stakeholders, etc.
Identify and assess hazards and vulnerabilities,
develop mitigation plans that includes
Reduce the loss of life and mitigation strategies, implement mitigation
Mitigation property by lessening the measures in support of the strategies, provide
impact of future incidents. community with information on relevant
hazards and empower them to make informed
decisions, etc.
Activate EOC and establish a command-and-
control structure to support and coordinate
Respond quickly to save lives,
response activities, deploy resources and
protect property and the
supplies, activate Mutual Aid Agreements
Response environment, and meet basic
(MAA)/Memorandum of Understanding (MOUs,
human needs during/following
coordinate with multiple agencies and
an incident.
jurisdictions, facilitate the restoration of
Community Lifelines, etc.
Conduct Damage Assessment (DA), plan for
Recover and restore recovery at the same time as response actions
Recovery communities affected by an are taken, restore infrastructure, apply for
incident. disaster assistance and reimbursements,
consider mitigation opportunities while
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