Ord. 2641 - Amend ordinance 2315, Emergency Operations Plan COUNCIL BILL NO. 3290
ORDINANCE NO. 2641
AN ORDINANCE AMENDING ORDINANCE NO. 2315 TO REPEAL AND REPLACE THE
CITY OF WOODBURN EMERGENCY OPERATIONS PLAN (PREVIOUSLY REFERRED TO
AS THE EMERGENCY MANAGEMENT PLAN)
WHEREAS, ORS 401 provides that cities may establish an emergency
management agency; and
WHEREAS, as an emergency management agency, one of the City's
functions is to maintain a current emergency operations plan; and
WHEREAS, the Woodburn Emergency [Management] Operations Plan was
previously established and adopted through the City's Emergency
Management Ordinance No. 2315; and
WHEREAS, the Plan develops and specifies the rules and responsibilities of
emergency management personnel and responders in the City; and
WHEREAS, in conjunction with Marion County Emergency Services, the City
of Woodburn has worked with Alliance Solutions Group Inc. to redraft our local
Emergency Operations Plan; NOW, THEREFORE,
THE CITY OF WOODBURN ORDAINS AS FOLLOWS:
Section 1. Section 5 of Ordinance 2315 is amended to read as follows:
Emergency Operations Plan. The procedures to prepare for and
carry out any activity to prevent, minimize, respond to or recover
from emergencies within the City of Woodburn are set out in the
2025 City of Woodburn Emergency Operations Plan which is
incorporated herein by reference.
Section 2. THE FULL TEXT OF THE EMERGENCY OPERATIONS PLAN IS
ON FILE FOR REFERENCE IN THE OFFICE OF THE CITY RECORDER.
Approved as to form: ---
City A for ey Date
Page 1 Council Bill No. 3290
Ordinance No. 2640
Approved:
Frank Lonergan',Aayor
Passed by the Council
Submitted to the Mayor S
Approved by the Mayor
Filed in the Office of the Recorder
ATTEST:
Heather Pierson, City Recorder
City of Woodburn, Oregon
Page 2 Council Bill No. 3290
Ordinance No. 2640
City of Woodburn
Emergency Operations
PlanPlan
November 2025
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I.Introductory Material
PromulgationStatement
A.WOODBURNEMERGENCY OPERATIONS PLANPROMULGATION
The primary role of government is to provide for the welfare of its citizens. The welfare
and safety of citizens arenever more threatened than during disasters. The goal of
emergency management is to ensure thatmitigation, preparedness, response, and
recovery actions exist so that public welfare and safety is preserved.
The WoodburnEmergency Operations Plan provides a comprehensive framework for
city-wide emergency management. It addresses the roles and responsibilities of
government organizations. It providesa link to local, State, Federal, and private
organizations and resources that may be activated to address disasters and emergencies in
Woodburn.
TheWoodburnEmergency Operations Plan ensures consistency with current policy
guidance and describes the interrelationship with other levels of government. The plan
will continue to evolve, responding to lessons learned from actual disaster and emergency
experiences, ongoing planning efforts, training and exercise activities, and Federal
guidance.
Therefore, in recognition of the emergency management responsibilities ofWoodburn
government and with the authority vested in me as the Chief Executive Officer of
Woodburn, I hereby promulgate the WoodburnEmergency Operations Plan.
____________________________________
Frank Lonergan
Mayor, City of Woodburn
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Approval and Implementation
A.This plan supersedes the City of WoodburnEmergency Operation Plan dated August 2014.
The transfer of management authority for actions during an incident is done through the
execution of a written delegation of authority fromthe city of Woodburnto the incident
commander. This procedure facilitates the transition between incident management levels.
The delegation of authority is a part of the briefing package provided to an incoming incident
management team. It should include both the delegation of authority and the specific
limitations onthat authority.
The WoodburnEmergency Operations Plan delegates the City Manager’sauthority to
specific individuals ifhe or she is unavailable. The chain of succession in a major emergency
or disaster is as follows:
1.Emergency Program Manager
2.Incident Commander
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Record of Changes
All updates and revisions to the plan will be tracked and recorded in the following
table.This process will ensure the most recent version of the plan is disseminated and
implemented by emergency response personnel.
Change #Date Part AffectedDate PostedWho Posted
Comprehensive plan revision
through Oregon Emergency
Plan Update2011
Management Emergency
Operations Plan Planning Project
Woodburn
Major changes to the plan were
Plan update2025 August 2025Emergency
made throughout the document
Planning Team
Council
Dec 2025Taken to Council for ApprovalDecember 2025WPD
approval
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Record of Distribution
Copies of this plan have been provided to jurisdictions, agencies, and people. Updates will be
provided when available. Recipients will be responsible for updating their respective Emergency
Operations Plans upon receivingchanges. The City of WoodburnEmergency Program Manager
will direct the distribution ofplan updates; however,the Emergency Program Manageris
ultimately responsible for disseminatingall plan updates.
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Table of Contents
I.Introductory Material...................................................................................................1
Promulgation Statement.............................................................................................................1
Approval and Implementation....................................................................................................2
Record of Changes.....................................................................................................................4
Record of Distribution................................................................................................................6
Table of Contents.......................................................................................................................8
II.Purpose, Scope, Situation Overview, and Assumptions..............................................10
Human Caused Incidents...........................................................................................................33
Technological Hazards..............................................................................................................35
Hazardous Analysis..................................................................................................................38
Capability Assessment..............................................................................................................38
Mitigation Overview.................................................................................................................39
Planning Assumptions..............................................................................................................40
III.Concept of Operations................................................................................................42
IV.Organization and Assignment of Responsibilities................................................44
Nongovernmental Organizations...............................................................................................52
Continuity of Government........................................................................................................53
V.Direction and Control.................................................................................................56
VI.Information Collection and Dissemination.................................................................66
VII.Communications.........................................................................................................68
VIII.Administration, Finance, and Logistics......................................................................70
IX.Plan Development and Maintenance...........................................................................74
X.Authorities and References.........................................................................................76
XI.Appendix A................................................................................................................78
Emergency Declaration Form...................................................................78
XII.Appendix B................................................................................................................80
Mutual Aid Agreements............................................................................80
XIII.Appendix C................................................................................................................82
Glossary of Terms......................................................................................82
XIV.Appendix D................................................................................................................92
Emergency Support Functions (ESF).......................................................92
Emergency Support Function Definitions..................................................................................93
XV.Appendix E................................................................................................................96
Acronyms...................................................................................................96
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II.Purpose, Scope, Situation Overview, and Assumptions
A.Purpose
The cityof WoodburnEOP provides a framework for coordinated response and recovery
activities during an emergency. This plan is primarily applicable to extraordinary situations
and is not intended for use in response to typical day-to-day emergency situations. This EOP
complements the Marion County EOP, the State of Oregon Comprehensive Emergency
Management Plan (CEMP), and the National Response Framework (NRF). It also identifies
critical tasks needed to support a wide range of response activities.
B.Scope
The city EOP is intended to be invoked whenever the city must respond to an unforeseen
incident or planned event, the size or complexity of which exceeds those normally handled
by routine operations. Such occurrences may include natural or human-caused disasters and
may have an impact on the city itself, neighboring cities, unincorporated areas of the county
surrounding Woodburn, or a combination thereof. This plan is intended to guide the city’s
emergency operations only and to complementand support implementation of the emergency
response plans of the various local governments, special districts, and other public-and
private-sector entities within and around the city, but it is not intended to supplant or take
precedence over them.
The primary users of this plan are City department heads and emergency planning groups,
leaders of local emergency support volunteer organizations, and others who may participate
in emergency response efforts. The public is welcome to review non-sensitive parts of this
plan to better understand the processes by which the city manages risks and disasters.
C.SituationOverview
The City of Woodburnis exposed to many hazards, all of which have the potential to affect
the community. Possible natural hazards include droughts, floods, wildfires, and winter
storms among others. Other threats such as an active shooter, armed assault, and industrial
accident (list not all inclusive) could also adversely impact the community. This section of
the EOP describes the community demographics, hazards and threats, hazard analysis and
planning assumptions.
Additionally, the hazards have been analyzed by their impact onCommunity Lifelines.
According to FEMA, a lifeline enables continuous operation of critical government and
business functions and is essential to human health and safety or economic security. Lifelines
are considered the most fundamental services in a community that, when stabilized, enable
all other aspects of society to function. When disrupted, decisive intervention (e.g., rapid
service re-establishment or employment of contingency response solutions) is required to
stabilize an incident. There are eight Community Lifelinescomprised of numerous
components and subcomponents(see figure 1-1):
1.Safety and Security
2.Food, Hydration, Shelter
3.Health and Medical
4.Energy
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5.Communications
6.Transportation
7.Hazardous Materials
8.Water Systems
Not every incident will impact all lifelines or their components. Lifelines and components are
fixed, but subcomponents may be adjusted as necessary. Component level assessment is
required to determine the statusof each lifeline.
Figure 1-1 Community Lifelines and Components
D.Characteristics
The City of Woodburn is in northern Marion County, Oregon, approximately 30 miles south
of Portland and 15 miles north of Salem along the Interstate 5 corridor. With a population of
about 30,000 residents, Woodburn is one of the fastest-growing communitiesin the mid-
Willamette Valley. The city serves as a regional commercial hub, anchored by the Woodburn
Premium Outlets—designated as a StormReady® Community by the National Weather
Service—which attracts a high volume of local and out-of-area visitors, particularly on
weekends and during holiday seasons. Additionally, the Marion Area Multi-Agency
Emergency Telecommunications Center (METCOM 911) is located within the city and co-
located with the Woodburn Police Department, serving as the regional 9-1-1 call-taking and
dispatch center.
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Woodburn is a culturally diverse community, with a significant percentage of the population
identifying as Hispanic or Latino. Many residents speak Spanish as their primary language,
making culturally and linguistically appropriate emergency communication essential. The
city also has a growing number of senior residents and households with limited
transportation, underscoring the importance of accessible sheltering, evacuation support, and
health care services during emergencies.
The city is bisected by the Union Pacific Railroad’s main freight line, and is intersected by
Interstate 5 and Oregon Route 214, which increases the risk of transportation-related
hazardous materials (HAZMAT) incidents. Local agricultural and food processing industries
also contribute to the presence of chemical storage and HAZMAT risks within the city.
These factors, combined with regional vulnerability to natural hazards such as flooding,
windstorms, ice events, and earthquakes, make multi-hazard planninga priority.
Fire protection and emergency medical services are provided by the Woodburn Fire District,
which operates three fire stations, including centrally located Station 21. The district is
staffed by a combination of career and volunteer personnel and provides fire suppression,
technical rescue, and community risk reduction services. The Fire District is part of the
Marion County Fire Defense Board and maintains mutual aid agreements with surrounding
agencies to ensure surge capacity during large-scale incidents.
Law enforcement services are provided by the Woodburn Police Department, headquartered
in the city’s Public Safety Building. The department includes patrol units, detectives, school
resource officers, and a strong community engagement division. The department maintains
close coordination with the Marion County Sheriff's Office and Oregon State Police,
particularly for large-scale incidents involving transportation routes or cross-jurisdictional
impacts.
Medical care in Woodburn is supported by a network of clinics and urgent care centers.
These include:
Legacy Medical Group –Woodburn Health Center (1475 Mt. Hood Ave):
Provides primary care, internal medicine, and behavioral health services.
Salud Medical Center (Yakima Valley Farm Workers Clinic) (1175 Mt. Hood
Ave): Offers full-spectrum care including OB/GYN, dental, behavioral health,
pharmacy, and WIC services with bilingual staff.
Salem Health Medical Clinic and Urgent Care –Woodburn (105 Arney Road):
Provides primary care, laboratory services, imaging, and urgent care open daily.
Legacy Silverton Medical Center, located approximately 10 miles southeast ofthe
city of Silverton, offers emergency services, a 48-bed acute care facility, and
specialized inpatient care.
During emergency incidents, Woodburn activates its Emergency Operations Center (EOC),
staffed by trained city personnel. The city collaborates closely with Marion County
Emergency Management, and other regional partners for coordinated preparedness, planning,
and incident response. The EOC serves as the central coordination point for city-wide
operations, resource management, and public information dissemination.
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To further understand the community’s capacity to withstand and recover from disasters,
planners reviewed data from the National Economic Resilience Data Explorer (NERDE).
Based on the U.S. Census Bureau American Community Survey (2018–2022) 5-year
estimates, key indicators for Woodburn include:
Median Gross Rent is $1,563 per month.
Median Monthly Owner Cost is $1,515.
Median Property Taxes are $2,954.
Average Per-Capita Income is $37,991
Figure 1-2 Census Tract
Figure 1-3 CRCI Indicator
CRCI Indicator Name
Percent without a HS Diploma
23.67%
Percent Age 65 and Older
19.20%
Percent with a Disability
17.85%
Percent of Households without a Vehicle
5.54%
Percent of Households with Limited English
8.55%
Percent Single-Parent Households
23.53%
Percent of Households without a Smartphone
16.48%
Percent Mobile Homes Relative to Housing
12.67%
Percent Owner-Occupied Housing
69.00%
Number of Hospitals per 10,000 People
9.00%
Number of Medical Practitioners per 1,000 People
6.25
Percent without Health Insurance
11.81%
Percent Below Poverty Level
11.25%
Median Household Income
$71,444
Percent ofUnemployed Labor Force
3.64%
Percent Unemployed Women in the Labor Force
6.04%
Percent Workforce Employed in Predominant Sector
21.53%
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Income Inequality (Gini Index)0.4 8
Social/Civic Organizations per 10,000 People
0.66
Percent without Religious Affiliation
54.11%
Percent Inactive Voters
10.67%
Population Change
0.21
*Denotes indicators that are not available from the U.S. Census Bureau at the
Census Tract level and have been imputed from County data.
In addition, analysts used FEMA’s Resilience Analysis and Planning Tool (RAPT) to
evaluate the Community Resilience Challenge Index (CRCI) within the Woodburn census
tracts. The CRCI is a composite measure assessing social, economic, housing, and
infrastructure vulnerabilities. Figures 1-2show the boundaries of these census tracts, and
Table 1-3 provides the average values of relevant CRCI indicators for these areas.
E.Hazard Profile
FEMA divides threats and hazards into three categories to include: natural, technological,
and human-caused. Hazards and threats can adversely impact the community in a variety of
ways. FEMA has developed Community Lifelines to increase disaster operations
effectiveness. Community Lifelines represent the most fundamental services in the
community that, when stabilized, enable all other aspects of society.
The planning team applied the Community Lifelines construct when assessing and estimating
impacts from future incidents. To account for changing climate, analysts and the planning
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team examined the Climate Risk and Resilience (ClimRR)portal and Climate Explorer
tools to estimate future impacts for some natural hazard incidents and project what impacts
may look like by the year 2050. Analysts assessed the Representative Concentration Pathway
(RCP) 4.5 data to project future impacts to the city of Woodburn.
Recognizing the disparity in modeling approaches between available climate tools, planners
weighed CLIMRR data more heavily in the emergency operations planning process because
it used high-resolution, dynamically downscaled models that reflected localizedclimate
impacts with greater precision critical for assessing risks to specific infrastructure and
vulnerable populations. In contrast, NOAA’s Climate Explorer provided county-level,
statistically downscaled data that was better suited for identifying broader historical trends
and informing regional planning context.
F.Natural Hazards
The city of Woodburnis exposed to a wide range of natural hazards, all of which have the
potential to disrupt Community Lifelines, generate injuries and/or fatalities, and damage
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property and the environment. Based on a review of FEMA’s National Risk Index (NRI)
online tool, natural hazards that could impact the city of Woodburninclude:
1
https://climrr.anl.gov/climateprojections
2
https://crt-climate-explorer.nemac.org/cards_home/?area-id=41047&zoom=7&lat=44.7195662&lon=-
123.0103708&id=tmax&city=Woodburn%2C+OR&county=Marion%2BCounty&fips=41047
3
https://www.fema.gov/flood-maps/products-tools/national-risk-index
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1.Droughts
2.Earthquakes
3.Floods
4.Hailstorms
5.Heat and cold waves
6.Ice storms
7.Strong wind incidents
8.Tornados
9.Volcanoes
10.Wildfires
11.Winter weather
The subsequent sections below describe each of the natural hazards and projected impacts to
the city of Woodburnbased onFigure 1-4and the National Risk Index.
Figure 1-4 National Risk index
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G.Drought
A drought is a long period of abnormally low precipitation that persists long enough to
produce a serious hydrologic imbalance. Based on an analysis of FEMA NRI data collected
from 2000 to 2021, the region averages nearly .6 drought events per year; however, the
expected annual losses from a drought event are very low when compared to other natural
hazards. An analysis of the ClimRR portal and Climate Explorer climate modeling tools
revealed the following projections by the year 2050:
1.ClimRR Data Analysis
a.The days without precipitation are expected to decrease by 7 days by 2050 (40
days).
b.Annual precipitation total is expected to increase by about 2.5 inches.
c.The maximum average annual temperature is projected to increase by 2.2F.
2.Climate Explorer Data Analysis
a.The number of dry days annually is projected to increase by 2050 to about 6 days
when compared to today.
b.Annual precipitation total is expected to increase by about .75 inches.
c.The maximum average annual temperature is projected to increase by about 2.6.
3.Drought Impact Analysis: Drought is an increasing concern for Woodburn, Oregon,
particularly during late summer and early fall when precipitation is minimal, and
temperatures remain elevated. The city obtains its municipal water supply from deep
wells.
Prolonged drought can reduce groundwater recharge, increase irrigation demand, and
challenge the city’s ability to meet water needs for residents, schools, and businesses.
The surrounding region is heavily agricultural, with water-intensive crops such as
berries, nursery stock, and grass seed all highly sensitive to water shortages and
temperature extremes. Drought also increases wildfire risk in rural and wildland-
urban interface areas west and south of the city, though Woodburn is primarily
urbanized. Fire danger may increase near adjacent agricultural lands and undeveloped
parcels.
Ecologically, drought may impact stream flows and aquatic habitats along the
Pudding River and Mill Creek tributaries, though they do not serve as primary
drinking water sources for the city. In response, the City of Woodburn may
implement voluntary or mandatory water restrictions, conduct public outreach on
conservation practices, and coordinate with Marion County Emergency Management,
the Oregon Water Resources Department, and regional water providers to support
drought mitigation and contingency planning. Planners anticipate impacts to the
following Community Lifelines during a severe drought:
a.Food, Hydration, Shelter: A drought may result in higher food prices due to
limited supply of produce, higher cost of meat products due to agriculture losses,
and require the implementation of water restrictions as available drinking water
sources become depleted.
b.Water Systems: A prolonged drought can deplete drinking water sources and in
severe cases, cause wells to run dry.
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H.Earthquakes
Social and geological records show that Oregon has a history of seismic incidents. According
to FEMA’s NRI tool data, the region around the city of Woodburn has a 0.304% chance of
annual occurrence. Planners expect impact severity from a future earthquake to increase due
to increasing population growth and development of infrastructure to support the state’s
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population increase. Based on a review of the United States Geological Service (USGS)
Earthquake Hazard Map areas in western Oregon, the Oregon coastline has the highest risk
of an earthquake occurrence. Based on model outputs, areas in west central Oregon have a
lower risk. Recent research suggests that the Cascadia Subduction Zone can produce
earthquakes with a magnitude of 9.0. The Mt.Angel Fault, which traverses Marion County,
increases the potential of future earthquakes in this region. The fault runs past Woodburnand
Mt. Angel, before terminating at the Waldo Hills on the Willamette Valley’s eastern edge.
The most recent, significant earthquake incident affecting Marion County occurred on
February 28, 2001 (Nisqually earthquake). Researchers estimated the epicenter of this 6.8-
magnitude earthquake to be near Anderson Island in PierceCounty, Washington. The
earthquake impacted western Washington and western Oregon. Residents in Marion County
felt the tremor. Oregon did not experience any severe impacts; however, analysts estimated
$1 to $2 billion in economic losses for the affected region. Figure 1-5 displays a map
showing peak ground accelerations having a 2 percent probability of being exceeded in 50
years.
Figure 1-5 USGS Earthquake Hazard Map for Oregon
4
https://www.usgs.gov/media/images/earthquake-hazard-map-showing-peak-ground-accelerations-having-2-percent-proba
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1.Earthquake Impact Analysis: Woodburn, Oregon, is at moderate to high seismic risk,
vulnerable to both Cascadia Subduction Zone (CSZ) and local crustal fault
earthquakes. The city lies within the broader impact area of the CSZ, a 600-mile
offshore fault capable of producing magnitude 8.0–9.0+ earthquakes. A full rupture of
this zone would result in prolonged, intense ground shaking across western Oregon,
including Woodburn. In addition, nearby crustal faults such as the Mt. Angel Fault,
located less than 10 miles east of the city, pose a more localized but potentially
damaging threat with little or no warning.
In a major seismic event, structural damage is expected to be widespread particularly
affecting unreinforced masonry buildings, older homes, and critical infrastructure not
retrofitted to current seismic standards. Transportation networks, including major
corridors like Interstate 5, local roadways, and bridges, could suffer severe
disruptions, isolating parts of the community and hindering emergency response,
evacuation, and supply distribution.
Essential facilities such as the Legacy Medical Group, Woodburn Health Center,
local urgent care clinics, public schools, and City Hall may experience operational
challenges or temporary closures due to power loss, structural damage, or staff
shortages. Injured or displaced residents would require emergency medical care and
displaced residents mass care sheltering potentially exceeding local capacities and
necessitating activation of regional mutual aid.
While Woodburn is not at risk for direct tsunami inundation, a CSZ earthquake could
generate statewide cascading impacts, delay external assistance and strain regional
logistics and emergency response resources. Additionally, secondary hazards such as
landslides especially in elevated terrain east of the city near the Waldo Hills could
damage transportation routes, utility lines, and homes in affected areas.
To reduce potential impacts, Woodburn’s mitigation efforts should include continued
seismic retrofitting of public buildings and bridges, public education on earthquake
preparedness, and coordination with Marion County and the Oregon Department of
Emergency Management on regional response and recovery planning. Given the high
likelihood for a no-notice incident, promoting personal preparedness and conducting
regular earthquake drills are critical components of community resilience.
A major earthquake is expected to disrupt each of the eight FEMA Community
Lifelines as described below:
a.Communications: Earthquake induced damage to communications infrastructure
may limit community communication channels to include electronic financial
transactions.
a.Energy: An earthquake may limit the delivery of fuel into the city from suppliers
and destroy pipelines greatly reducing fuel supplies to the region. Power lines and
power generation facilities will be impacted across the region leading to
widespread poweroutages.
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b.Food, Hydration, Shelter: An earthquake may damage homes and businesses
resulting in displaced residents and a need for temporary shelters. Supply lines for
food, agriculture and general materials will be greatly impacted with roads and
bridges destroyed. Furthermore, water treatment facilities, underground pipelines,
and wells will likely experience impacts resulting in potential water shortages.
c.Hazardous Materials: An earthquake causing damage to facilities storing
HAZMAT could contaminate the environment if released and/or expose nearby
populations to airborne concentrations of toxic vapors.
d.Health and Medical: An earthquake will likely cause a mass casualty scenario and
many medical facilities within the region could sustain damage affecting patient
capacity. Patient movement to nearby medical facilities may be limited due to
damaged/unsafe roadways.
e.Safety and Security: An earthquake may quickly overwhelm first responders due
to the widespread anticipated damage. Following the disaster, search and rescue
teams could be needed; government functions/services may not be able to operate
for an extended period. Looting, especially during nighttime hours may occur.
f.Transportation: An earthquake may prevent or limit travel to and from the city of
Woodburn affecting supply chains, residents’ ability to evacuate or travel, and
delay first responder arrival times following 9-1-1 emergency calls.
g.Water Systems: An earthquake may cause damage to potable water and
wastewater infrastructure and lead to contamination or damage of the potable
water distribution system infrastructure resulting in drinking water disruptions for
an extended period.
I.Floods
Woodburn is vulnerable to flooding due to its proximity to the Pudding River, Mill Creek,
and several smaller tributaries within the Pudding River watershed. Seasonal rainfall, rapid
snowmelt, or intense storm events can cause these waterways to exceed their banks, resulting
in localized or widespread flooding. Historical flood events, such as those in February 1996
and January 2012 demonstrate the city’s susceptibility to both riverine flooding and urban
flash flooding, particularly in low-lying areas, thedowntown corridor, and neighborhoods
adjacent to stormwater drainage channels. While Silver Creek and Abiqua Creek are located
southeast of Woodburn and outside the city’s immediate boundaries, flood events in the
broader watershed can still influence regional hydrology and emergency response
coordination.An analysis of the ClimRR portal and Climate Explorer modeling tools
revealed the following projections by the year 2050:
1.ClimRR Data Analysis
a.Annual precipitation total is expected to increase by 2 inches.
b.The maximum average annual temperature is projected to increase by 2.5F,
increasing the likelihood of rapid snow melting during the spring season.
2.Climate Explorer Data Analysis
a.Annual precipitation total is expected to increase by about .75 inch.
b.The maximum average annual temperature is projected to increase by 2.1F.
c.The number of days with high precipitation (> 1 inch) are projected to remain the
same.
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Flood impacts in Woodburn can be significant, with potential consequences including
property damage, transportation disruptions, utility outages, and temporary displacement
of residents. Roadways near drainage channels, culverts, and low-lying areas, especially
in parts of the city adjacent to the Pudding River and Mill Creek tributaries—are
particularly vulnerable to overtopping, ponding, or erosion, which can impede emergency
response and delay essential services. Flooding may also affect critical public
infrastructure, including stormwater systems, sanitary sewer lines, and electrical
substations, increasing the risk of service interruptions and environmental hazards. Key
community assets such as Legacy Medical Group –Woodburn Health Center, local
schools, and city government buildings may experience access limitations or operational
disruptions if roadways or utility services are compromised by floodwaters.
While generally adequate, the city's urban drainage system may become overwhelmed
during high-intensity rainfall. Debris-blocked culverts and saturated soils can exacerbate
flood conditions. Furthermore, the increased frequency of heavy rain due to climate
change is expected to raise the likelihood and severity of future floods.
At-risk populations including low-income households, seniors, individuals with mobility
challenges, and residents living in the floodplain may face greater hardships due to
displacement, health risks, or limited access to recovery resources. Flooding can also
affect agricultural operations around Woodburn by damaging crops, contaminating water
supplies, and creating economic ripple effects across the region.
Woodburn participates in the National Flood Insurance Program (NFIP) and has adopted
floodplain development regulations in line with FEMA standards. However, continued
mitigation efforts, such as culvert upgrades, green infrastructure improvements, public
education campaigns, and early warning systems are essential to reduce the city’s long-
term flood risk. Coordination with Marion County Emergency Management and local
watershed groups enhances regional preparedness and response capacity.
The city planning team anticipates disruptions to the following Community Lifelines as a
result from a flood incident:
a.Communications: Flood induced damage to communications infrastructure may
limit community communication channels to include electronic financial
transactions.
b.Energy: A flood may limit the delivery of fuel into the city from suppliers. If
flooding impacts power transfer stations, power outages are likely to last the
duration of the event, depending on the impact’s severity, the rebuilding of power
stations may take weeks.
c.Food, Hydration, Shelter: Flooding may cause food shortages due to the inability
to deliver supplies, agriculture losses, and flood damage to homes and businesses
may result in displaced residents.
d.Hazardous Materials: A flood incident impacting facilities storing HAZMAT
could contaminate areas near and downstream of the facility if released.
e.Health and Medical: Patient transport to nearby medical facilities may be
hindered due to impassible roadways.
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f.Safety and Security: Flooding could delay first responder response times and may
require search and rescue efforts; government functions/services may not be able
to operate for an extended period.
g.Transportation: Floodwaters may prevent travel to and from the city of Woodburn
affecting supply chains, residents’ ability to evacuate or travel, and delayed first
responder arrival times following 9-1-1 emergency calls.
h.Water Systems: Flooding may cause damage to potable water and wastewater
infrastructure and contaminate the potable water distribution system resulting in
drinking water disruptions.
The City of Woodburn, in coordination with Marion County Emergency Management and
the National Weather Service, continues to prioritize flood preparedness through public
outreach, stormwater system maintenance, early warning capabilities, and response
coordination with regional partners.
J.Hailstorm
According to FEMA’s National Risk Index (NRI) data, three hailstorm incidents have been
recorded in or near the city of Woodburn over the past 34 years, averaging approximately 0.1
incidents per year. Historical records from Marion County and adjacent counties indicate that
hailstorms are rare in this region, largely due to the Willamette Valley’s temperate maritime
climate, which typically lacks the atmospheric instability and convective energy necessary
for frequent severe thunderstorm activity. Key ingredients for hail-producing storms—such
as high moisture content, intense updrafts, and vertical instability—are generally less
prevalent in western Oregon compared to other parts of the U.S. However, as global ocean
surface temperatures continue to rise, projections suggest that the frequency and intensity of
convective storms may increase over time, including in historically low-risk regions. While
Woodburn and much of Marion County experience relatively stable weather patterns and
limited extreme convective activity, future climatic shifts could increase the risk for severe
weather, including hail-producing thunderstorms.
1.Hailstorm Impact Analysis: While hailstorms are infrequent in Woodburn, Oregon,
they do occur occasionally,during spring and summer thunderstorms. Although not as
common or intense as those in the central United States, hail events in western
Oregon can still cause localized property damage, agricultural losses, and safety
hazards, especially when hailstones exceed ½ inch in diameter. Even smaller hail can
damage sensitive crops, dent vehicles, break windows, and cause damage to siding
and roofs.
Woodburn’s surrounding agricultural economy, which includes nurseries, berry
farms, vineyards, and row crops, is particularly susceptible to hail-related damage. A
single severe storm can lead to reduced yields, damaged plants, and significant
economic loss, especially for high-value or export-dependent crops. In addition to
direct crop impacts, hail can damage irrigation systems, greenhouse structures, and
farm equipment, further compounding recovery costs.
Urban impacts may include damaged vehicles, broken windows, flooding from
clogged storm drains, and short-term power outages if hail coincides with strong
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winds or lightning. Public infrastructure such as roofs, HVAC systems, and solar
panels may be impacted, particularly on older or unreinforced buildings.
Additionally, outdoor pedestrians have an increased risk of injury during sudden
hailstorms when thereis limited warning or shelter access.
While the frequency of large hail in Woodburn is relatively low, climate models
suggest that the intensity of convective storms may increase over time, potentially
increasing the probability of severe hail events. Most hail incidents are reported
through the National Weather Service (NWS) or emergency dispatch systems and
may trigger automated alerts through IPAWS or the city’s mass notification platform.
Mitigation efforts include maintaining emergency communication systems,
encouraging property maintenance and insurance coverage, and promoting protective
actions during thunderstorm warnings. Agricultural operations may benefit from hail
netting, crop insurance, and participation in early warning networks such as the
Oregon Hazards Lab.
The city planning team anticipates disruptions to the following Community Lifelines
from a hailstorm:
a.Energy: A hailstorm may damage energy infrastructure resulting in localized
power outages.
b.Food, Hydration, Shelter: A hailstorm may cause external damage to homes and
businesses.
c.Hazardous Materials: A hailstorm may impact facilities storing HAZMAT which
could contaminate the environment if released.
d.Health and Medical: A hailstorm may increase the number of high-impact injuries
from people being pummeled by hail and result in delayed care and medical
facilities.
e.Water Systems: Hailstorm may cause damage to potable water and wastewater
infrastructure and lead to contamination of the potable water distribution system
resulting in drinking water disruptions.
K.ColdWaves
FEMA defines a cold wave as a rapid drop in temperature within a 24-hour period
accompanied by extremely low temperatures sustained over an extended duration. The
specific temperature thresholds that classify an event as a cold wave are regionally defined
by the National Weather Service (NWS) and vary based on local climate norms. Cold waves
are rare in the city of Woodburn, given the relatively mild winter climate of the Willamette
Valley. A review of FEMA’s National Risk Index (NRI) data identified three reported cold
waves in the Woodburn area between 2005 and 2021, representing an average of 0.2
incidents per year. These events, while infrequent, can pose risks to vulnerable populations,
including the elderly, unsheltered individuals, and those with subpar sheltering (inadequate
heating or insulation).Cold waves may also result in localized impacts, such as burst pipes,
increased demand for heating energy, and minor transportation disruptions due to icy road
conditions. However, widespread or prolonged community impacts are unlikely.
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To assess potential future trends, experts conducted an analysis of the ClimRR portal and
NOAA’s Climate Explorer modeling tools. The results revealed the following projections by
the year 2050:
1.ClimRR Data Analysis
a.The maximum average annual temperature is projected to increase by 2.2F
b.The minimum average annual temperature is projected to increase by 2.6F.
2.Climate Explorer Data Analysis
a.The number of days annually with a maximum temperature below 32F is
projected to decrease by 3.5 days by 2050 when compared to today.
b.The number of days annually with a minimum temperature below 32F is
projected to decrease by 14.7 days by 2050 when compared to today.
c.The minimum average annual temperature is projected to increase by about 2.1F.
3.Cold Wave Impact Analysis: Cold waves, while relatively infrequent in Woodburn,
Oregon, can have significant consequences when arctic air masses settle over the
region. These events bring extended periods of subfreezing temperatures, often
accompanied by freezing rain, snow, or ice,and pose risks to vulnerable populations,
infrastructure, and public safety. Historical cold snaps in the Willamette Valley have
resulted in school closures, transportation disruptions, and increased demand for
emergency services.
In Woodburn, the greatest risks during cold waves include frozen or burst water
pipes, power outages, unsafe road conditions, and increased medical emergencies
related to hypothermia, frostbite, and carbon monoxide poisoning from improper
heating methods. Prolonged freezing temperatures can stress heating systems,
increase household energy costs, and place a heavy burden on low-income residents
and seniors, particularly those without access to reliable home heating. In rural areas
around Woodburn, cold waves may affect livestock health, damage irrigation
infrastructure, and disrupt agricultural operations.
Cold temperatures often exacerbate existing social vulnerabilities, especially among
unhoused individuals, residents of manufactured housing, and those with limited
mobility or access to transportation. Local shelters and warming centers (if available)
mayexperience sudden increases in demand, requiring coordination with community
partners and Marion County Emergency.
Critical services such as Legacy Woodburn Medical Center, schools, and municipal
utilities must be prepared for cold-weather continuity challenges, including staff
shortages, increased patient load, and infrastructure strain. Cold waves may also
trigger cascading impacts if freezing temperatures are followed by melting and
refreezing, creating widespread ice hazards on roads, sidewalks, and driveways.
Woodburn’s mitigation strategies for cold weather should include public education on
winter preparedness, identification of at-risk populations, coordination with local
faith-based and nonprofit organizations, and activation of emergency communication
systems to disseminate warming shelter/center information and protective action
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guidance. Incorporating winter weather response protocols into training exercises and
seasonal planning will enhance the city's overall resilience to extreme cold waves:
a.Food, Hydration, Shelter: Some homes and businesses may lack adequate heating,
leaving occupants without sufficient warmth and increasing the risk of frozen
pipes that could burst and cause water damage. During prolonged cold events, the
city may need to open community warming shelters or centers to protect
vulnerable residents.
b.Health and Medical: Increase in the number of patients experiencing frostbite,
viruses, sickness, and/or hypothermia could strain local medical capabilities.
c.Transportation: Regional airport delays or flight cancellations in the most severe
cold wave incidents are possible.
d.Security and Safety: The effectiveness of fire services may be limited due to
freezing conditions and fighting structural fires with water. Government services
may be limited or shutdown during extreme events.
L.Heat Waves
FEMA defines a heat wave as a period of abnormally and uncomfortably hot and unusually
humid weather typically lasting two or more days. Heat waves are expected to increase in the
city of Woodburn. A review of FEMA’s NRI data revealed 34 reported incidentsfrom 2005
to 2021, or 2.1 incidents annually. An analysis of the ClimRR portal and Climate Explorer
modeling tools revealed the following projections by the year 2050:
1.ClimRR Data Analysis
a.The maximum average annual temperature is projected to increase by 2.2F
b.The minimum average annual temperature is projected to increase by 2.6F.
2.Climate Explorer Data Analysis
a.The number of days annually with a maximum temperature above 90F is
projected to increase by 6.6 days by 2050 when compared to today.
b.The number of days annually with a minimum temperature above 95F is
projected to increase by almost 3.2 days by 2050 when compared to today.
c.The number of days annually with a maximum temperature above 100F is
projected to increase by 1 day by 2050 when compared to today.
3.HeatWave Impact Analysis: Like cold waves, heat waves can cause adverse impacts
onsome underserved population groups such as individuals over the age of 65,
homeless populations, those living in poverty, or groups with pre-existing health
conditions. Based on the analysis of the climate projection data above, planners
project an increase in the frequency and severity of heat wave incidents by 2050 when
compared to 2024 as temperatures continue to trend upward. Planners anticipate
disruptions to the following Community Lifelines as a result from a heat wave
incident:
a.Energy: Potential grid disruptions and energy shortages during peak periods of
heat.Potential for Public Safety Power Shutoffsand rolling brownoutsthroughout
the area.
b.Food, Hydration, Shelter:Homes and businesses may lack air conditioning;
community cooling shelters/centers may be needed during prolonged heat
incidents.
c.Health and Medical: Potential for increased patient volume at medical facilities
due to impactedpopulation.
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d.Water Systems: Warmer temperatures may result in lower chlorine levels in water
systems, potentially increasing the presence of harmful bacteria and viruses.
M.Ice Storms
Ice storms in Woodburn occur periodically, with significant events affecting the area
approximately once every few years. The city’s location in the Willamette Valley makes it
susceptible to freezing rain, particularly when cold air becomes trapped near the surface
during winter storms. The most recent major ice storm occurred in February 2021, causing
widespread hazardous conditions across the region. Ice storms in Woodburn typically result
in:
Dangerous road conditions due to ice accumulation
Widespread power outages caused by downed power lines and fallen trees
Obstructed roadways, impacting emergency response and public access
Disruptions to emergency and utility services
The Woodburn Emergency Operations Plan (EOP) prioritizes public safety by coordinating
response efforts among city officials, emergency responders, utility providers, and partner
organizations. Pre-storm preparedness includes issuing public warnings, coordinating with
the National Weather Service, activating warming centers, and ensuring that emergency
personnel are ready to respond to downed power lines and road hazards.
During the storm, law enforcement, fire services, and public works crews monitor conditions,
clear priority routes, and assist vulnerable populations. Residents are advised to stay indoors,
avoid unnecessary travel, conserve energy, and maintain emergency supplies including food,
water, flashlights, and blankets.
Post-storm recovery operations focus on:
Power restoration
Clearing debris and fallen trees
Inspecting and repairing damaged infrastructure
Aiding affected residents
According to FEMA’s National Risk Index (NRI), officials reported 43 ice storm incidents in
the Woodburn area between 1946 and 2014, averaging 0.6 incidents per year. More recent
data from the National Weather Service (NWS) from 2014 to 2023 indicates a slight increase
to one incident annually, reflecting the need for continued preparedness and response
planning. An analysis of the ClimRR portal and Climate Explorer modeling tools revealed
the following projections by the year 2050:
1.ClimRR Data Analysis
a.Annual precipitation total is expected to increase by 2.5 inches.
b.The minimum average annual temperature is projected to increase nearly 2.2F.
c.The maximum average annual temperature is projected to increase by 2.6F,
increasing the likelihood of precipitation falling in the form of ice verses snow in
the winter months.
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2.Climate Explorer Data Analysis
a.Annual precipitation total is expected to decrease by about .75 inches.
b.The number of days annually with a maximum temperature below 32F is
projected to decrease by 3.5 days by 2050 when compared to today.
c.The number of days annually with a minimum temperature below 32F is
projected to decrease by 14.7 days by 2050 when compared to today.
d.The minimum average annual temperature is likely to increase by about 2.1F.
3.Ice Storm Impact Analysis: Ice storms pose a significant seasonal hazard for
Woodburn, Oregon, particularly between December and February, when freezing rain
events are most likely to occur. Located in the Willamette Valley near the Cascade
foothills, Woodburn is vulnerable to cold air pooling and temperature inversions,
which can lead to ice accumulation on roads, power lines, trees, and structures. The
February 2021 ice storm that impacted large portions of the Willamette Valley is a
recent example of thedisruptive and damaging effects such storms can bring to the
region.
Impacts from a severe ice storm in Woodburn would include widespread power
outages due to ice-laden trees falling onto power lines and transformers. These
outages may persist for multiple days, especially in rural areas and where tree canopy
is dense. Ice will impact transportation routes as roadways become icy and
impassable, particularly on hilly terrain and elevated surfaces such as bridges. The
event will result in school closures, increased number and frequency of vehicle
accidents, and delayed emergency response times. Local medical facilities will likely
experience increased patient volume from slips and falls on ice covered surfaces. An
ice storm will adversely impact the local economy as many businesses will likely
close or experience a significant reduction in sales during the event.
Public infrastructure including water systems, emergency communications towers,
traffic signals, and municipal buildings may sustain damage or experience service
interruptions. Legacy Woodburn Medical Center may need to rely on backup
generator power to operate during power outages. Residents with access and
functional needs, including the elderly and those dependent on electrical medical
devices, are especially at risk during prolonged outages.
Additionally, ice storms can have cascading impacts on other lifelines, including
communications, and food, hydration, shelter, particularly if road closures affect
deliveries or regional utility crew accessibility. Tree damage and debris removal are
oftenextensive and can overwhelm local public works resources. The city may also
face significant cleanup and recovery costs after the event.
Woodburn’s preparedness measures for ice storms should include pre-storm public
information, coordination with utility providers, activation of warming centers, and
prioritization of critical infrastructure for debris clearance and restoration. Regular
trimming of trees near power lines, ensuring emergency fuel supplies, and training for
response personnel on cold-weather operations can further reduce community risk.
Planners anticipate disruptions to the following Community Lifelines as a result from
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an ice storm:
a.Communications: An ice storm may damage communications infrastructure by
limiting communication channels within the community to include electronic
financial transactions.
b.Energy: A severe ice storm may cause widespread, prolonged power outages.
c.Food, Hydration, Shelter: Planners anticipate possible food shortages due to the
inability to deliver supplies and travel to stores/restaurants as well as minor
property damage to homes and businesses from fallen tree limbs.
d.Health and Medical: An ice storm may increase patient volume at local clinic(s)
due to slips and falls, especially elderly and/or disabled residents resulting in
longer wait times.
e.Safety and Security: Icy roadways may delay response times of first responders.
An ice storm may force government functions/services to close for 1-2 days
and/or until power is restored.
f.Transportation: Icy roadways may limit travel resulting in temporary supply chain
shortages, flight cancellations or delays at regional airports. Local businesses may
experience short-term profit losses due to a reduced customer base; an increase in
traffic accident numbers is also expected.
N.Strong Wind:
Strong winds consist of damaging winds, often originating from thunderstorms, that are
classified as exceeding 58 miles per hour. Strong winds associated with severe thunderstorms
rarely occur in the region. Planners analyzed FEMA’s NRI data which identified three
incidents spanning a 34-year period, or 0.1 incidents annually. The ClimRR tool projects a
slight decrease in average wind speeds by the year 2050. The city planning team does not
anticipate significant changes in future strong wind development when compared to today.
1.Strong Wind Impact Analysis: Strong wind does occur within the areatypically
during fall and winter storms, driven by Pacific frontal systems and strong pressure
gradients. Occasional wind gusts may also accompany summer thunderstorms,
particularly during convective weather patterns. These wind events, while generally
less intense than those in coastal or Columbia River Gorge regions, can still produce
gusts of 40 to 60 mph, especially in open rural areas surrounding Woodburn or during
more intense frontal systems.
The primary impacts of strong winds in Woodburn include downed trees and power
lines, resulting in localized power outages, obstructed roadways, and property
damage to homes, outbuildings, and commercial structures. Older structures,
unreinforced buildings, and manufactured homes are particularly vulnerable to roof or
siding damage. Falling limbs and airborne debris create hazards for pedestrians,
motorists, and emergency responders. Key corridors such as Highway 214, Highway
99E, and adjacent rural access roads may be temporarily blocked, delaying
emergency response and disrupting transportation.
Utility outages can affect operations at the Legacy Medical Group –Woodburn
Health Center, area schools, and critical facilities, especially for electrically
dependent populations. Disruption of power may also impair telecommunications,
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heating/cooling systems, and municipal water service if pumps or treatment systems
are impacted. In some events, wind occurs alongside heavy rain or freezing rain,
which can increase the likelihood of infrastructure damage or saturated soil-related
hazards, such as localized tree uprooting or minor slope instability.
Agricultural operations around Woodburn are also vulnerable during high winds, with
potential damage to greenhouses, irrigation infrastructure, and unharvested crops,
particularly during storms in the fall. Post-storm cleanup and debris removal can
strain public works departments, utilities, and private landowners, especially when
damage is widespread.
Preparedness actions in Woodburn should include routine tree maintenance along
roadways, pre-storm public messaging, coordination with utility providers, and
priority restoration planning for critical facilities. Emergency management should
ensure that debris removal contracts and mutual aid agreements are in place, and
residents are encouraged to secure outdoor objects and prepare for short-term power
outages. Planners anticipate disruptions to the following Community Lifelines
following strong winds:
a.Communications: Strong windscould damage communications infrastructure
such as cell phone towers. Strong windsmay cause prolonged power outages due
to fallen poles or downed power lines.
b.Food, Hydration, Shelter: Strong winds may cause minor to moderate damage to
some homes and businesses. Businesses may have to shut down temporarily to
make repairs.
c.Transportation: Strong windsmay down trees and block roadways causing
temporary travel disruptions until crews are able to clear the roadways of debris.
Large vehicles, such as commercial trucks, trailers, vans, etc., may be overturned
on roadways.
O.Tornado:
The risk of a tornado impacting Woodburn is considered low, as tornadoes rarely occur in
western Oregon. The region’s geography and maritime-influenced climate generally limit the
development of the strong convective storms necessary to produce tornadoes. However,
weak tornadoes and funnel clouds have occasionally been documented in the Willamette
Valley, typically associated with localized severe thunderstorms.
In Oregon, most tornadoes are rated EF-0 to EF-1 on the Enhanced Fujita Scale, producing
minor to moderate damage such as broken tree limbs, damaged roofs, and overturned sheds
or vehicles. On rare occasions, tornadoes have reached EF-2 or higher, though such events
are highly unusual west of the Cascades.
Woodburn is not located in a designated high-risk tornado zone, but emergency planning
should still consider the potential for strong winds, falling trees, and localized structural
damage from isolated severe weather events.
1.Tornado Impact Analysis: Although tornadoes are relatively rare in western Oregon,
they remain a credible low-probability, high-impact hazard for Woodburn. While
infrequent, tornadoes can occur with little warning and cause considerable localized
destruction.The primary impacts of a tornado in Woodburn would include structural
damage to homes and businesses, particularly those with older construction or
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unreinforced elements. Manufactured homes and outbuildings are especially
vulnerable. Wind speeds associated with even low-end tornadoes (EF0–EF2) can
cause roof loss, window breakage, fallen trees, and utility pole failures, leading to
power outages, blocked roads, and injuries from flying debris.
Critical facilities such as schools, City Hall, and Legacy Woodburn Medical Center
may experience disruptions if impacted directly or indirectly through infrastructure
damage or road obstructions. Emergency response may be delayed due to debris-
covered streets or loss of communications. Additionally, if a tornado occurs during
school or business hours, mass care and reunification may be required for displaced
individuals.
While tornadoes in Oregon tend to be brief and narrow in path, their unpredictable
nature makes public alerting and preparedness planning essential. Tornadoes may
also occur as part of a larger convective storm system, bringing lightning, hail, and
flash flooding, compounding response challenges.
Woodburn’s preparedness measures should include activation of the Emergency Alert
System (EAS) and Wireless Emergency Alerts (WEA), public education on tornado
safety, and designated shelter-in-place protocols for schools and public buildings.
Continued coordination with the National Weather Service (NWS), use of NOAA
weather radios, and public drills can improve awareness and community resilience
against these sudden-impact events. In this scenario, all eight Community Lifelines
would likely experience disruptions as projected below:
a.Communications: Depending on the path of the tornado, it could damage
communications infrastructure such as cell phone towers and disrupt cell phone
service.
b.Energy: A tornado may likely cause extended power outages for customers, due
to fallen power poles.
c.Food, Hydration, Shelter: An EF3 tornado may cause severe damage to any
structure in its path; the community may need to establish temporary shelters and
housing for displaced residents.
d.Hazardous Materials: A tornado that impacts a facility storing HAZMAT could
cause a HAZMAT release that adversely affects the environment and nearby
populations.
e.Health and Medical: Patient transport to nearby medical facilities may be
impossible due to impassible roadways from debris left behind by the tornado. A
tornado may damage or destroy local medical clinics depending on the path and
reduce patient capacity.The current EMS resources could become overwhelmed
and may not be adequate to support response operations immediately after the
tornado.
f.Safety and Security: A tornado will likely trigger the immediate activation of
search and rescue teams. Search and rescue/victim recovery will take several
hours or days. First respondersmay experience delays with emergency calls due
to debris in roadways; government functions/services may not be able to operate
for an extended period due to damage sustained from the tornado.
g.Transportation: The tornado may impact travel on roadways depending on the
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tornado’s path.
h.Water Systems: A tornado could destroy the community’s water and/or may
damage potable water or wastewater infrastructure causing disruptions to potable
and wastewater services for several days or weeks.
P.Volcano:
According to the U.S. Geological Service (USGS), volcanoes embedded throughout the
Cascade Mountain Range have erupted in the past and will erupt again. Recent eruptions at
Mt.St. Helens in southern Washington demonstrate the power and impacts that Cascade
volcanoes can unleash when they do erupt. The Cascade Mountains poses the greatest threat
for volcanic activity. Those regions include Mt.Hood, which most recently erupted about
200 years ago. Mt. Jeffersonhasnot erupted for about 15,000 years butisnot considered to
be extinct.Mt.Jefferson, Oregon's second-highest peak, is a stratovolcano. While the
volcano has experienced significant eruptions in the past, with the most recent major activity
occurring around 15,000 years ago, it is currently classified with a "Low/Very Low" threat
potential by the USGS.
1.Volcano Impact Analysis: Woodburn, Oregon, while not located in immediate
proximity to an active volcano, is still subject to potential volcanic hazards due to its
location within the Pacific Northwest, a region influenced by the Cascade Volcanic
Arc. The most prominent volcanic threats to Woodburncome from Mt.Hood, and
Mt.Jefferson, which are located within a 50-100-mileradius.The primary hazard for
volcanic activity is ash fall.The city planning team projects the following
Community Lifeline disruptions from a volcanic eruption:
a.Communications:A volcanic eruption could impact communications
infrastructure depending upon the severity of the ash fall around and within the
city.
b.Energy:Ash fall could impact energy substations leading to prolonged power
outagesas well as fuel scarcity.
c.Health and Medical:Falling ash could impact respiratory issues of residents).
d.Food, hydration, shelter:Drinking water sources could become contaminated
leading to disruptions. Food and water supply chainsmay be disrupted leading to
shortages.Farm and agricultural impacts could be significant and pose an
economic impact to agricultural industry in the region.
e.Safety and Security:First responders may become overwhelmed and government
functions/services may not be able to operate for an extended period due to
cleanup efforts.
f.Transportation:Roadways may become overcrowded due to evacuating
populations, and visibility may be severely affected. Regional air traffic may be
shut down due to airborne volcanic ash.
g.WaterSystems:The community’s potable water and wastewater infrastructure
could lead to disruptions that would last for several weeks or months.
Q.Wildfires:
Wildfires are a natural part of Oregon's ecosystem and occur frequently throughout the state,
particularly in forested and rangeland areas. While the Willamette Valley including
Woodburn is not among the highest-risk wildfire zones in Oregon, it is surrounded by
agricultural lands, grass fields, and rural properties that may be susceptible to field fires,
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equipment-caused ignitions, or wind-driven vegetation fires during the dry season.
Communities near the wildland-urban interface (WUI) especially those near forested terrain
to the east, such as the Cascade foothills face increased risk during extended periods of heat
and drought.
Most wildfires in Oregon occur between June and October, coinciding with the region’s dry
season. An estimated 70% of wildfires in Oregon are human caused, including debris
burning, equipment uses, and recreational activities. The remaining 30% are typically caused
by lightning, with most lightning-caused fires concentrated in eastern and southern Oregon.
Woodburn itself is in a low to moderate wildfire risk zone, according to Oregon Department
of Forestry wildfire hazard maps. While the city is not directly surrounded by dense forest,
agricultural field fires and wind-blown embers from regional wildfires (such as those in the
Santiam Canyon or Cascade foothills) can pose indirect risks to air quality, infrastructure,
and evacuation planning. During recent fire seasons, large wildfires, such as the 2020 Labor
Day fires impacted nearby areas in Marion County,causing degraded air quality, sheltering
operations, and the need for coordinated public information efforts. An analysis of the
ClimRR portal modeling tool revealed the following projections by the year 2050:
1.ClimRR Data Analysis
a.Annual precipitation total is expected to increase by about 2.5 inches.
b.The minimum average annual temperature is projected to increase by nearly
2.2F.
c.The maximum average annual temperature is projected to increase by 2.6F.
d.Average wind speeds are predicted to not change much from current averages.
e.Annual fire weather index is expected to remain relatively the same.
2.Wildfire Impact Analysis: Due to the city’s location within the Willamette Valley and
its proximity to agricultural lands, grasslands, and rural-urban interface zones,
Woodburn remains vulnerable to future wildfires, particularly during late summer and
early fall. While the immediate city core is not heavily forested, wind-driven grass
and brush fires in surrounding areas could threaten homes, infrastructure, and critical
transportation routes.
Climate projections suggest that hotter, drier summers and increased drought
conditions may contribute to more frequent and intense wildfiresacross western
Oregon, including Marion County. If a wildfire approached or impacted the city,
evacuations of residents and businesses may be necessary, leading to temporary
displacement and potential economic losses from business interruptions,
infrastructure damage, and service disruptions. A worst-case scenario could involve
significant structural damage or destruction to homes and public buildings within or
near Woodburn, particularly if fueled by high winds and dry vegetation.
Given these risks, wildfire preparedness, defensible space planning, and coordinated
evacuation procedures are critical components of the city's emergency operations and
hazard mitigation strategies.
The city planning team anticipates disruptions to all eight Community Lifelines as
described below:
a.Communications: Wildfire could damage or destroy communications
32
infrastructure such as cell phone towers and communication equipment,reducing
communication channels within the city.
b.Energy: Wildfire could destroy utility infrastructure leading to prolonged power
outages.
c.Food, Hydration, Shelter: Wildfire could cause widespread structural damage to
homes and businesses. Wildfirecould cause widespread structural damage to
homes and businesses, and emergency shelters, and housing may be a priority
during recovery efforts. The acquisition of bottled drinking water may be
necessary.
d.Hazardous Materials: Fires could destroy facilities storing HAZMAT and
adversely affect populations located downwind of chemical plumes.
e.Health and Medical: A wildfire could destroy medical facilities, and EMS may
not be available to respond due to evacuation orders.
f.Safety and Security: A wildfire may require search and rescue team activation.
The local fire department may be occupied with the fire and have a reduced
capacity to support other emergencies. First responders will become overwhelmed
and government functions/services may not be able to operate for an extended
period due to damage and/or evacuation.
g.Transportation: A wildfire may result in closed roadways eliminating access to
the city of Woodburn. Additionally, roadways may become overcrowded due to
evacuation efforts.
h.Water Systems: A wildfire could destroy the community’s potable water and
wastewater infrastructure leading to disruptions that could last for several weeks
or months.
R.Winter Weather:
FEMA defines winter weather as a winter storm in which the main types of precipitation are
snow, sleet, or freezing rain. This type ofstorm occurs often in the city of Woodburn. A
review of FEMA’s NRI data revealed 18 incidents from 2005 to 2021, or 1.1 incidents
occurring annually. An analysis of the ClimRR portal and Climate Explorer modeling tools
revealed the following projections by the year 2050:
1.ClimRR Data Analysis
a.Annual precipitation total is expected to increase by about 2.5 inches.
b.The minimum average annual temperature is projected to increase by 2.2F.
c.The maximum average annual temperature is projected to increase by 2.6F.
2.Climate Explorer Data Analysis
a.Annual precipitation total is expected to increase by about .75 inches.
b.The number of days annually with a maximum temperature below 32F are
projected to decrease by 3.5 days by 2050 when compared to 2024.
c.The number of days annually with a minimum temperature below 32F is
projected to decrease by 14.7 days by 2050 when compared to today.
d.The minimum average annual temperature is projected to increase by about 2.1F.
3.Winter Weather Impact Analysis: Future temperatures are projected to rise while
annual precipitation amounts decrease slightly. This may increase the likelihood of
precipitation falling as rain or freezing rain during the winter months in the mid-
century timeframe. Planners anticipate a decrease in the number of winter weather
incidents annually. A worst-case winter weather scenario is expected tohaveimpact
33
onthe following Community Lifelines:
a.Energy: A worst-case winter storm may cause power outages.
b.Food, Hydration, Shelter: Homes without power and/or ineffective heating
sources may needto go to a temporary warming center. A winter storm could
delay the resupply of goods from outside sources due to unsafe road conditions.
c.Health and Medical: Patient transport to nearby medical facilities may be
impossible or delayed due to impassible roadways. EMS response times to
emergencies may increase and become overwhelmed.
d.Safety and Security: Winter weather may cause first responderdelays to
emergencies; government functions/services may shut down for one to two days.
e.Transportation: Icy or snow-covered roadways may limit travel to and from the
city of Woodburn, affecting supply chains and increasing first responder response
time to emergencies. Winter weather may also result in delayed or cancelled
flights in the region.
Human Caused Incidents
A.These incidents are intentionally created by humans with the intent of harming life,
information, operations, the environment and/or property. They are also referred to as
adversarial threats. These types of events often occur with little or no advanced warning,
making them difficult to predict.
Cybersecurity involves protecting the infrastructure by preventing, detecting, and
responding to cyberattacks.City planners must be cognizant that prolonged outage of a
digital infrastructure could cause civil unrest and an increase in criminal activity.
B.CyberAttacks
Unlike physical threats that prompt immediate action, cyberattacksare often difficult to
identify and comprehend. Among these dangers are viruses that erase entire systems,
intruders breaking into systems and altering files, intruders using someone else’s
computer or device to attack others, or intruders stealing confidential information. The
spectrum of cyber risks is limitless; threats, some more serious andsophisticated than
others, can have wide-ranging effects on the individual, community, organizational, and
national level. These risks include:
a.Organized cybercrime, state-sponsored hackers, and cyber espionage can pose
security risks to our country, as well as at the national scale.
b.Transportation, power, and other services may be disrupted by large-scale
cyberattacks.The extent of the disruption is highly uncertain as it may be
determined by many unknown factors such as the target and size of the incident.
c.Vulnerability to data breach and loss increases if an organization's network is
compromised; information about a company, its employees, and its customers can
be at risk.
d.Individually owned devices such as computers, tablets, mobile phones, and
gaming systems that connect to the Internet are vulnerable to intrusion. Personal
information may be at risk without proper security.
2.Cyber Incident Impact Analysis:Large-scale cyber incidents may overwhelm
government and private sector resources by disrupting the Internet and/or taxing
critical infrastructure information systems. Complications from disruptions of this
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magnitude may threaten lives, property, the economy, and national security.Planners
anticipate impact to the following community lifelines:
a.Communications: A cyberattackcould damage or disrupt communications
infrastructure such as cell phone towers and computer equipment reducing
communication channels within the city.
b.Energy: A cyberattackcould impact utility infrastructure,leading to prolonged
power outages. Gas stations may be limited in the ability to dispensefuel
products.
c.Food, Hydration, Shelter: A cyberattackmay cause business disruptions and could
impact distribution of food to the local populace creating economic hardships.
The acquisition of bottled drinking water may be necessary.
d.Hazardous Materials: A cyberattackcould cause the shutdown of critical
HAZMAT processes leading to potential fire and/or release of HAZMAT and
adversely affect populations located downwind if a chemical plume occurs.
e.Health and Medical: A cyberattackcould degrade medical facilities,and EMS
may not be available to respond due to communication issues.
f.Safety and Security: A cyberattackmay cause civil unrest and criminal activity to
occur. First responders could become overwhelmed and government
functions/services may not be able to operate for an extended period due to digital
disruptions.
g.Transportation: A cyberattackcould impact mass transit (e.g., buses, trains, etc.)
preventing the transport of goods and services to the area. Additionally, the loss
of transportation could impact the ability for some residents to commute to
receive supplies, employment, and assistance.
h.Water Systems: A cyberattackcould have impact on the community’s potable
water and wastewater infrastructure leading to disruptions.
C.Terrorism:
Terrorismis defined asthe use of force or violence against persons or property in violation of
the criminal laws of the United States for purposes of intimidation, coercion, or ransom. It is
difficult to determine the scope of a terrorist threat to the city of Woodburn. Although the
area may include some potential targets, it is impossible to predict future terrorist events.
Residents and tourists must rely on law enforcement surveillance and local threat levels.
Depending on the extent of the action, the community may experience economic loss, utility
disruptions, injuries, and fatalities, and/or structural damage from explosions or gun fire.
1.Terrorism Impact Analysis:Planners do not consider a terrorism incident probable for
thecity of Woodburn. However, secondary effects from an attack on a larger city or
transportation component could adversely affect Woodburnresidents. An act of
terrorism could result in a mass casualty incident and impact the local economy.
Planners project the following Community Lifeline impacts from a terrorist event:
a.Communications:A terrorist attack could include disruption of service to local
communication nodes.This disruption could cause delays in first responders
providing services for the local community.
b.Energy:A terrorist attack could result in a power grid shutdown and prolonged
power outage).
c.Health and Medical: Aterrorismincident could result in gunshot injuries and
fatalities and a potential mass casualty incident which overwhelms local medical
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resources. Indirect exposure to contamination for HAZMATor Weapons of Mass
Destruction could cause casualtiesthat require specialized care. The city could
require mutual aid assistance from neighboring jurisdictionsandescalate response
to higher levels if available.
d.Safety and Security:Local responders could order shelter-in-place or lockdown
for residents until the threat is eliminated. The city may require law enforcement
mutual aid assistance from neighboring jurisdictions.
e.Transportation:An incident may shut down roadways near the incident during the
response and following the event to aid the investigation. Some businesses may
be forced to shut down during the investigation resulting in economic losses.
f.Water Systems:An attack on the city’s water supply could shut down potable
water and wastewater infrastructure leading to disruptions that may last several
days.
Technological Hazards
These incidents involve materials created by humans that pose a unique hazard to the public
and environment. The jurisdiction needs to consider incidents that are caused by accident
(e.g., mechanical failure, human mistake, mass transit incident), resultingfrom an emergency
caused by another hazard (e.g., flood, storm).
A.Hazardous Materials (HAZMAT):
Hazardous materials (HAZMAT) incidents in Woodburn may originate from fixed-site
facilities, transportation-related accidents, or illegal drug lab activity. This hazard profile
includes chemical and radiological materials, with particular attention to substances stored
and handled by public works departments, such as water purification chemicals (e.g.,
chlorine compounds). While the planning team considers the probability of a significant
incident as low, the presence of these materials still presents a potential public health and
safety risk and warrants identification in the city's hazard analysis.
An analysis of Oregon’s Community Right-to-Know (CR2K) database identified
approximately 78 active facilities in or near Woodburn reporting onsite hazardous
substances. Common materials include herbicides, pesticides, lead-acid batteries, and
petroleum products such as propane, gasoline, and diesel fuel. Additionally, a review of the
Environmental Protection Agency’s (EPA) Envirofacts database identified 141 EPA-
regulated facilities located within or immediately adjacent to the city limits.
The planning team also considered transportation-related HAZMAT scenarios, which may
pose a greater risk to Woodburn due to the volume and frequency of hazardous substances in
transit. The city is bisected by the Union Pacific Railroad’s main north-south freight line,
which runs directly through the heart of Woodburn and supports the transport of petroleum
products, industrial chemicals, and other hazardous substances. A railcar derailment or
release incident within city limits could result in airborne toxic exposure, flammable vapor
clouds, or hazardous runoff, with downwind and downstream impacts depending on wind
direction, stormwater pathways, and proximity to sensitive populations.
In addition to rail, Woodburn is traversed by Interstate 5 (I-5) and Oregon Route 214, both of
which are heavily used by commercial and hazardous materials carriers. The planning team
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identified a tanker truck crash or chemical spill along I-5 or OR214 particularly near
interchanges or densely populated areas as one of the most likely HAZMAT threats to the
city. A release in this corridor could create significant local hazards, including the need for
evacuation, shelter-in-place orders, and road closures. These routes are adjacent to residential
areas, commercial zones, and critical infrastructure, increasing the potential for cascading
impacts.
The severity of impact from a HAZMAT release is influenced by multiple factors, including:
Type, quantity, and toxicity of the substance released
Physical state of the material (gas, liquid, or solid)
Weather conditions (e.g., temperature, wind speed/direction, precipitation)
Proximity to sensitive receptors (e.g., schools, homes, water bodies)
Timeliness and coordination of emergency response actions
The planning team identified the following Community Lifeline impacts from a tanker truck
HAZMAT release scenario.
1.HAZMAT Event Impact Analysis: Woodburn, Oregon, faces a credible risk of
HAZMAT incidents due to its proximity to agricultural operations, transportation
routes, and commercial use of chemicals. While Woodburn is a small community,
many facilities routinely store, use and/or transport pesticides, herbicides, fuels,
fertilizers, and industrial chemicals. Potential HAZMAT incidents could occur
through fixed-site facility accidents, transportation spills (via highway or rail), or
improper storage and handling of chemicals by agricultural users or businesses.
Transportation-related hazardous materials (HAZMAT) risks in Woodburn primarily
stem from Interstate 5 and Oregon Highway 214, which run through and near the city
and serve as major transportation corridors for commercial vehicles. These routes are
commonly used by trucks transporting fuel, agricultural chemicals, and industrial
materials. Additionally, several local farms, nurseries, and agribusinesses in the
surrounding area store and use regulated substances such as anhydrous ammonia,
diesel fuel, and chemical solvents, which could pose a local risk if accidentally
released.
While Woodburn is served by the Union Pacific Railroad, which runs through the
city, it is not a designated hazardous materials offloading site. However, the presence
of rail corridors through the city and neighboring areas introduces a secondary risk,
particularly in the event of a derailment, large-scale release, or the need for a regional
evacuation involving multiple jurisdictions.
The impacts of a HAZMAT incident in Woodburn could include toxic exposure to
the public or responders, evacuations or shelter-in-place orders, contamination of soil
or water, and disruption of daily operations. Sensitive populations such as children,
seniors, and individuals with respiratory conditions are at the greatest risk during a
chemical release. A worst-case scenario could overwhelm local emergency response
capabilities and require mutual aid or support from the Oregon State Fire Marshal’s
Office and the Oregon Department of Environmental Quality (DEQ).
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The Woodburn Fire District serves as the primary responder for hazardous materials
(HAZMAT) incidents within city limits. The district coordinates closely with Marion
County Emergency Management and regional HAZMAT response teams, including
Salem Fire Department’s Regional HAZMAT Team 13, for technical-level support.
Theyrelyon external resources for advanced containment, decontamination, and
environmental mitigation efforts.
Public notification and protective action decisions would be disseminated through
Marion County’s Everbridge mass notification system, NOAA Weather Radio, and
local public safety agencies. These systems ensure timely and accessible alerts for
impacted populations.
Mitigation strategies include ensuring local facilities that store or handle hazardous
substances are registered through Oregon’s Community Right-to-Know (CR2K)
Program, that response plans are in place, and that first responders are trained in
Hazardous Waste Operations and Emergency Response (HAZWOPER) procedures.
Public education on shelter-in-place procedures and the use of protective action
zones, as outlined in the Emergency Response Guidebook (ERG), can further
enhance community readiness:
a.Food, Hydration, Shelter: Depending on the location and severity of the release,
the incident commander may issue evacuation or shelter-in-place orders. The city
may need to coordinate temporary shelter operations with food and water
distribution for displaced residents.
b.Hazardous Materials: A significant release could contaminate the surrounding
environment, including surface waters. Depending on the chemical’s properties,
airborne concentrations may pose a risk to downwind populations and
ecosystems.
c.Health and Medical: A HAZMAT release could result in a mass casualty scenario.
While Woodburn has local clinics and urgent care facilities, there is no hospital
within city limits. Self-reporting patients may seek care locally, but those
requiring advancedtreatment or decontamination would be transported to
hospitals in nearby cities such as Silverton or Salem.
d.Safety and Security: Local first responders (fire service, EMS, and law
enforcement personnel) supporting the incident may not be able to assist other
emergency calls resulting in delayed response time and capabilities.
e.Transportation: Road closures may be necessary on Interstate 5, Highway 214, or
adjacent corridors based on wind direction and plume modeling. Law
enforcement would implement traffic control and rerouting to ensure public safety
and minimize exposure.
f.Water Systems: Depending on the location and nature of the spill, there is
potential for contamination of drinking water infrastructure. Timely detection,
notification, and isolation of affected systems are critical to prevent public health
impacts.
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Hazardous Analysis
The City of Woodburnhazard analysis has been incorporated into the Marion County Multi-
Jurisdictional All-Hazard Mitigation Plan Volume II dated April 6, 2023
Capability Assessment
This assessment evaluates the capabilities of Woodburn, Oregon’s EOP, aimed at addressing
the city’s preparedness and response mechanisms in the face of natural and man-made
disasters. The purpose is to identify areas of strength, opportunities for improvement, and
provide actionable recommendations to enhance the city’s overall emergency management
capability.
The City of WoodburnEmergency Planning Team works with the surrounding cities and
Marion County Emergency Management staff on a regular basis. A cooperative working
relationship and team approach between the city and other municipal governments for
emergency response is a major strength upon which the city relies. Prevention, protection,
response, recovery, and mitigation capabilities are taken into consideration along with the
adequacy of training, equipment, and personnel needs. The city is dependent upon the local
municipalities for assistance for search and rescue, fire and rescue services, major hazardous
material response capabilities, EMS backup, bomb squad response, police tactical responses,
and assistance in emergency operations staffing and support. Additionally, emergency
services are provided by Woodburn Ambulancefor emergency medical ambulance services.
While the city maintains a capable emergency service capability, the following items were
identified in coordination with the city emergency planning teamas areas for improvement:
A.Goal (End-State)-Goal (End-State):Improve emergency shelter readiness through
standardized resource management, planning, and stakeholder coordination.
1.Objective (Purpose):Ensure the accessibility, reliability, and efficiency of
emergency shelters by implementing a standardized framework for shelter
identification, resource allocation, supply management, and interagency coordination
to enhance preparedness and operational readiness during disasters.
2.Line of Effort:Establish Shelter Locations and Supplies: These intermediate
objectives will help ensure that shelters are identified and stocked to meet community
needs during an emergency.
a.Identify and Document Shelter Locations: Compile and maintain an updated list
of designated emergency shelters, including public buildings, community centers,
and temporary facilities.
b.Assess Shelter Capacity and Resources: Evaluate the capacity of each shelter,
including back-up power, available space, sleeping arrangements, sanitation
facilities, pets, and accessibility for individuals with disabilities.
c.Coordinate with Local Organizations: City departments should work with non-
profits and community organizations to ensure clear procedures, logistical
support, and coordination of services for shelter operations.
B.Goal (End-State)–Strengthen regional collaboration, resource sharing, and response
coordination by improving processes for managing mutual aid agreements.
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1.Objective (Purpose)–To ensure the effectiveness and reliability of mutual aid
agreements by conducting a thorough review and update process, fostering stronger
inter-agency cooperation, and ensuring timely, coordinated responses during
emergencies and disasters.
2.Line of Effort: Enhance Mutual Aid Agreements
These intermediate objectives will help ensure that mutual aid agreements are
comprehensive, up-to-date, and capable of supporting efficient, coordinated responses
in emergencies.
a.Assess Current Agreements: Conduct a comprehensive review of existing mutual
aid agreements listed in Appendix B of this plan to identify gaps, outdated
provisions, and areas for improvement.
b.Engage Stakeholders: Collaborate with relevant local, regional, and state
agencies, including emergency services, law enforcement, healthcare providers,
and utility companies, and local businesses to gather input and ensure all parties'
needs and expectations are addressed.
c.Define Clear Roles and Responsibilities: Establish clear roles, responsibilities,
and expectations for each party involved in mutual aid agreements, ensuring
clarity in both routine and emergency situations.
d.Update Resource Sharing Processes: Revise and standardize processes for
resource sharing (personnel, equipment, supplies) to improve efficiency and
responsiveness during mutual aid activation.
e.Develop Communication and Coordination Plans: Strengthen communication
channels and coordination strategies among participating agencies to ensure
seamless operations during crises.
f.Create Training and Exercise Opportunities: Develop and implement training
programs and simulation exercises for all involved parties to ensure readiness and
familiarity with updated agreements and response procedures.
g.Ensure Legal and Regulatory Compliance: Review and update mutual aid
agreements to comply with current legal and regulatory requirements, ensuring
alignment with state and federal guidelines.
h.Sign and Publish Mutual Aid Agreement: All responsible parties will sign and
publish all new or revised mutual aid agreements.
i.Monitor and Evaluate Performance: Implement a system for regularly monitoring
the effectiveness of mutual aid agreements and make continuous improvements
based on lessons learned from exercises and real-world events.
Mitigation Overview
The City of Woodburnwill conduct mitigation activities as an integral part of the emergency
management program. Mitigation is intended to eliminate hazards, reduce the probability of
hazards causing an emergency, or lessen the consequences of unavoidable hazards.Mitigation
should be a pre-disaster activity, although mitigation may also occur inthe aftermath of an
emergency with the intent of avoiding repetition of the situation.The Woodburnmitigation
plan is incorporated into the Marion County Hazard Mitigation Plan.
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Planning Assumptions
1.Essential city services maybe maintained if conditions permit.
2.An emergency will require prompt and effective response and recovery operations by
city emergency services, disaster relief, volunteer organizations, and the private
sector.
3.All emergency response personnelare trained and experienced in operating under the
NIMS/ICS protocol.
4.Each responding city agency will utilize existing directives and procedures in
responding to major emergencies/disasters.
5.Environmental, technological, and civil emergencies may be of a magnitude and
severity that State and Federal assistance is required.
6.County support forcity emergency operations is based on the principlethat
emergencies start at the local level. The city will be responsible for utilizing all
available local resources along with initiating mutual aid and cooperative assistance
agreements before requesting assistance from the County.
7.Considering shortages of time, space, equipment, supplies, and personnel during a
catastrophic disaster, self-sufficiency will be necessary for the first hours or days
following the incident.
8.Parts or all the city of Woodburnmay be affected by environmental and technological
emergencies within or near city lines.
9.A terrorist-related incident or attack could occur without warning.If such an attack
occurs, Woodburncould be subject to radioactive fallout or other weapons of mass
destruction hazards.In accordance with national nuclear civil protection policy, two
options have been developed to counteract such a threat: population protection and
shelter-in-place procedureswithin the incident annex
10.Outside assistance may not be available in most major emergency/disaster situations
that affect Woodburn. Although this plan defines procedures for coordinating such
assistance, it is essential for Woodburnto be prepared to carry out disaster response
and short-term actions on an independent basis.
11.Control over city resources will remain at the city level even though the Governor has
the legal authority to assume control in a State Declaration of Emergency.
City communication and offices may be destroyed or rendered inoperable during a
disaster. Normal operations can be disrupted during a general emergency; however,
the city can still operate effectively if public officials, first responders, employees,
and volunteersare:
a.Familiar with established policies and procedures.
b.Assigned pre-designated tasks.
c.Provided with assembly instructionson where to go in the event of an emergency.
d.Formally trained in their duties, roles, and responsibilities required during
emergency operations.
12.The city will continue to be exposed to the hazards noted above, as well as others that
may develop in the future.
13.The city has limited resources and depends upon regional and other local
governments and agencies for support as well as the volunteer, nonprofit, and private
sectors.
14.It is possible for a major disaster to occur at any time and at any place in the city. In
some cases, dissemination of warning and increased readiness measuresmay be
possible.Many disasters and incidents can occur; however,with little or no warning.
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15.Local government officials recognize their responsibilities for the safety and well-
being of the public and will assume their responsibilities in the implementation of this
emergency plan.
16.Proper implementation of this plan will reduce or prevent disaster-related losses.
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III.Concept of Operations
Primary roles involved during the initial emergency response will focus on first responders, such
as fire districts and the police department, sometimes involving hospitals, local health
departments, and regional fire and Hazmat teams. Typically, as the emergency evolves and the
immediate response subsides, a transition period will occur during which emergency responders
will hand over responsibility for active coordination of the response to agencies or organizations
involved with recovery operations. In all emergency situations and circumstances, saving and
protecting human lives receive priority.
The basic concept of emergency operations focuses on managing and using all available
resources at the local level for effectively responding to all types of emergencies. Local
government has the primary responsibility for emergency management functions and for
protecting life and property from the effects of emergenciesand disasterincidents. This EOP
should be used when the city of Woodburnor local emergency response agencies are reaching or
have exceeded their abilities to respond to an emergency incident and not in response to day-to-
day operations.
Responsibilities include management and coordination of large-scaleincidents, as well as
identifying and obtaining additional assistance and resources for emergency response agencies
from the County, State, and/or Federal government through the city Emergency Management
Official.
IfWoodburnrequires additional resources beyond its immediate capabilities during an
emergency, the city Emergency Operations Center (EOC), Emergency Program Manager, or
Incident Commanderwill submit a formal request to the Marion CountyEmergency
Management Office. This request will be based on a thorough assessment of the situation,
identifying critical gaps in personnel, equipment, medical supplies, shelter support, or other
essential services necessary for response and recovery efforts. The request will be communicated
through established channels, direct communication with county officials, or other designated
protocols. The county will review the request and coordinate the deployment of available
resources or escalate the need to the state if necessary. The city EOC will maintain situational
awareness and ensure the efficient integration of incoming support into response operations
while providing regular updates to county officials.
A.Response Priorities
1.Lifesaving/Protection of Property: This focuseson efforts to save lives of persons
other than City employees and their dependents. It may include prevention or
mitigation of major property damage if results of such damage would likely present
an immediate danger to human life.
2.Incident Stabilization: This focuseson protection of mobile response resources,
isolation of the impacted area, and containment (if possible) of the incident.
3.Property Conservation: This focuseson the protection of public facilities essential to
life safety/emergency response, protection of the environment whenever public safety
is threatened, and protection of private property.
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B.Incident Management
When an emergency arises and normal organization and functions of city government are
insufficient to effectively meet response requirements, the Emergency Program Manager(or
designee) will activate and implement all or part of this EOP. In addition, the Emergency
Program Managermay partially or fully activate and staff the City EOC based on the
emergency’s type, size, severity, and anticipated duration. Concurrently, all involved city
emergency services will implement their respective plans, procedures, and processes and will
provide the Emergency Program Managerwith the following information:
1.Operational status.
2.Readiness and availability of essential resources.
3.Changing conditions and status of resources (personnel, equipment, facilities,
supplies, etc.).
4.Significant concerns and issues dealing with potential or actual loss of life or
property.
C.Initial Actions
Upon activation of all or part of this EOP, the IC (or designee) will immediately implement
the actions outlined below:
1.Alert threatened populations and initiate evacuation as necessary.
2.Initiate emergency sheltering procedures with the American Red Cross and other
community partners if evacuation procedures are activated.
3.Instruct appropriate city emergency service providers to activate necessary resources.
4.Assign radio frequencies and communications equipment, implement a
communications plan, and confirm interoperability among EOC staff and response
agencies.
5.Request the City Council to prepare and submit a formal Declaration of Emergency
through Marion County Emergency Management when local resources are
determined not to meet the need of local emergency operations. The official
declaration may be preceded by a verbal statement.
6.Prepare to staff the City EOC as appropriate for the incident with maximum 12-hour
shifts.
7.City personnel and support staff will be deployed to restore normal activity and
provide essential community services as soon as possible followingan emergency
incident.
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IV.Organization and Assignment ofResponsibilities
A.Organization
Local and County agencies and response partners may have various roles and responsibilities
throughout thedurationof the emergency. Therefore, it is particularly important that the
command structure for the city of Woodburnbe established to support response and recovery
efforts and maintain a significant amount of flexibility to expand and contract as the situation
changes. Typical duties and roles may also vary depending on the severity of impacts, size of
the incident(s),and availability of local resources.Thus, it is imperative to develop and
maintain depth within the command structure and response community.
The County Emergency Management Director (EMD)is responsible for emergency
management planning and operations for the area of the county lying outside the
incorporatedlimits of municipalitiesof the county. The city, or other designated officialsof
each city within the county (pursuant to city charter or ordinance), is responsible for city
emergency management planning and operations.(These responsibilities may be shared with
Marion County Emergency Management under an agreement.).
The city conducts all emergency management functions in accordance with NIMS. To assist
with training and preparing essential response staff and supporting personnel to incorporate
ICS/NIMS concepts in all facets of an emergency, each agency and department is responsible
for ensuring critical staff are identified and trained at a level enabling effective execution of
existing response plans, procedures, and policies.
During a city-declared disaster, control is not relinquished to County or State authority but
remains at the local level for the duration of the event.Some responsibilities may be shared
under mutual consent.
Most city departments have emergency functions in addition to their normal duties.For
emergency planning and response purposes, WoodburnFire District (WFD) will be
considered a department (with limitations) within the city. WFDshall retain all legal and
financial responsibilities as a separate entity. Each city department is responsible for
developing and maintaining its own emergency management procedures.Specific
responsibilities are outlined below, as well as in individual annexes.
B.Assignment of Responsibilities
The city manager shall appoint an Emergency Operations Manager who will be responsible
foremergency management, direction, and control in a time of disaster. The Emergency
Operations Manager will be empowered to assume executive control over all departments,
divisions, and offices of the City of Woodburnduring a State of Emergency. The Marion
County Sheriff’s Office, Public Works Director, WoodburnFire District Chief may assume
the role of IC and is responsible for performing such duties as causing emergency measures
to be enforced and designating emergency areas. Marion County Health and Human Services
mayassume incident command in ahealth epidemic emergency.
An emergency declared by the IC shall authorize specific emergency powers and shall exist
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for the period set forth in the declaration,but it shall not exceed two weeks.
The City Council should convene as soon as practical to ratify the declaration.The State of
Emergency may be extended by the City Council for additional periods of time, as necessary.
The Order of Succession for Declaring an Emergency for the City of Woodburn:
1.City Manager
2.Emergency Program Manager
3.Incident Commander (if time does not permit access to the others authorized, the
Incident Commander may declare a state of emergency)
Based on incident levels the Emergency Program Managermay implement this plan,
followed by the IC if the Emergency Program Manageris unavailable. The Mayor, City
Council, City Manager, Department Heads, and IC each have the authority to activate the
EOC.If one or more of the above actions are implemented, a report of such action will be
made to the Mayor and City Council at the first available opportunity.
1.Emergency Program Manager
Roles and responsibilities of individual staff and agencies are described throughout
the plan to further clarify the City’s Emergency Management structure.
The Emergency Program Manageris responsible for ensuring coordinated and
effective emergency response systems are developed and maintained. Existing
government agencies will perform emergency activities closely related to those they
perform routinely.
Specific positions and agencies are responsible for fulfilling their obligations as
presented in this EOP and individual annexes. The IC (or designee) will provide
overall direction of response activities for all city departments.In accordance with
State statute (ORS 401.305), the IC (or designee) may take extraordinary measures in
the interest of effective emergency management. Department heads willstill maintain
administrative authority overtheir employees and equipment unless directed
otherwise by theEmergency Program Manager(or designee). Each department or
agency will be responsible for having its own SOPs to be followed during response
operations.
Outside assistance, whether from other governmentaljurisdictions or from organized
volunteer groups, will be requested and used only to assist existing city services, and
then only when the situation threatens to expand beyond the city’s response
capabilities, or a previously established MOU is in place (i.e. Red Cross for
sheltering).
2.Management
The Mayor, and City Council play a crucial role in maintaining policy oversightand
public communication andwill be called upon to ratify disaster assistance if required.
General responsibilities of the Mayorand City Council include the following tasks:
a.Establish emergency management authority by city ordinance.
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b.Adopt an EOP and other emergency management–related plans, resolutions and
ordinances.
c.Declare and/or ratify a State of Emergency and request assistance through the
County, State, or Federal Government as appropriate.
d.Act as a liaison to the community during activation of the EOC.
e.Act on emergency funding needs.
f.Attend timely incidentupdate briefings.
g.Support the overall preparedness program in terms of its budgetary and
organizational requirements.
3.City Manager
The City Manageris responsible for the following tasks:
a.Appoint an Emergency Management Director.
b.Ensure all city departments develop, maintain, and exercise their respective
service annexes to this plan.
c.Support the overall preparedness program in terms of its budgetary and
organizational requirements.
d.Implement the policies and decisions of the governing body.
e.Ensure all city departments develop, maintain, and exercise their respective
essential functions and responsibilitiesto this plan.
f.Directing the emergency operational response of city services.
g.Ensuring, through the Mayor and City Council, that plans are in place for the
protection and preservation of City records
4. City Department Heads
Department heads work closely with the Emergency Program Managerin developing
local emergency plans and contribute essential resources for response efforts.City
department and agency heads and their staff develop, plan, and train to learn internal
policies and procedures for meeting response and recovery needs safely. Department
and agency heads that are not assigned a specific function in this plan will be
prepared to make their resources available for emergency duty at the direction of the
Emergency Program Manager. All city departments have the following
responsibilities:
a.Allow selected personnel to participate in the EOC.
b.Direct the emergency operational response of department resources.
c.Allow selected personnel to participate in the development of operating guidelines
to implement assigned duties within this EOP.
d.Allow selected personnel to participate in training and exercising this plan to ensure
preparedness.
e.Establish internal lines of succession of authority.
f.Protect department vital records, materials, facilities, and services.
g.Notify department personnel of impending emergencies.
h.Assign personnel to the EOC.
i.Develop and maintain mutual aid agreements to augment resources and
department-specific inventories of resources needed and availabilityto them in an
emergency.
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C.Responsibilities by Community Lifeline
FEMA's Community Lifelines are essential services that enable communities to function and
recover in times of disaster. These lifelines include Safety and Security, Food, Water,
Shelter, Health and Medical, Energy, Communications, Transportation, and Hazardous
Materials. They are critical for ensuring stability and resilience in emergency situations.
Local governments, emergency responders, and community organizations share the
responsibility of maintaining and restoring these lifelines during crises. This involves
coordinating resources, providing essential aid, and ensuring public safety. By strengthening
these lifelines, communities can minimize disruptions, protect lives, and accelerate recovery
efforts.
1.Safety and Security
a.Woodburn Police Department may be responsible for the following tasks:
i.Provide a representative to the EOC.
ii.Provide emergency response according to department SOPs and
guidelines.
iii.Protect life and property and preserve order.
iv.Evacuate disaster areas.
v.Provide law enforcement and criminal investigation.
vi.Isolate damaged areas.
vii.Provide traffic control, crowd control, and site security (including security
for critical facilities).
viii.Provide damage reconnaissance and reporting.
ix.Provide support for Fire District and Public Works Department emergency
operations as requested.
x.Safeguard essential department records.
xi.Maintain internal notification/call rosters.
xii.Actively participate in the emergency planning process; develop and
maintain mutual aid agreements, supporting SOPs, and annexes necessary
for department response.
b.Marion County Sheriff’s Officemay beresponsible for the following tasks:
i.Protect life and property and preserve order.
ii.Evacuate disaster areas.
iii.Provide law enforcement and criminal investigation.
iv.Isolate damaged areas.
v.Provide traffic control, crowd control, and site security (including security
for critical facilities).
vi.Provide damage reconnaissance and reporting.
vii.Provide support for Fire District and Public Works Department emergency
operations as requested.
viii.Safeguard essential department records.
ix.Maintain internal notification/call rosters.
x.Actively participate in the emergency planning process; develop and
maintain mutual aidagreements, supporting SOPs, and annexes necessary
for department response.
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xi.Provide Search and Rescue capabilities.
c.Firefighting (WoodburnFire District)WFDis responsible for the following tasks
during an emergency:
i.Provide a representative to the EOC.
ii.Provide emergency response according to WFDSOPs and guidelines.
iii.Provide pre-hospital emergency medical services.
iv.Inspect shelters and damaged areas for fire hazards.
v.Assist law enforcement personnel in alert and warning and evacuation
operations.
vi.Provide support to law enforcement and emergency response as requested.
vii.Safeguard essential department records.
viii.Maintain internal notification/call rosters.
ix.Provide fire prevention and inspection to prevent loss of life, loss of
property, and damage to the environment.
x.Actively participate in the emergency planning process; develop and
maintain mutual aid agreements and supporting SOPs and annexes
necessary for department response.
d.City Legal Counsel coordination with the City of Woodburnis responsible for the
following tasks in the event of an emergency:
i.Advise city officials regarding the emergency powers of local government
and necessary procedures for invocation of measures to:
ii.Implement wage, price, and rent controls.
iii.Establish rationing of critical resources.
iv.Establish curfews.
v.Restrict or deny access.
vi.Specify routes of egress.
vii.Limit or restrict use of water or other utilities.
viii.Advise on the removaldebris from publicly or privately owned property.
ix.Review and advise city officials regarding possible liabilities arising from
disaster operations, including the exercising of any or allthe above
powers.
x.Prepare and recommend local legislation to implement the emergency
powers required during an emergency.
xi.Advise city officials and department heads regarding record keeping
requirements and other documentation necessary for the exercising of
emergency powers.
xii.Thoroughly review and maintain familiarity with current ORS 401
provisions as they apply to county or city government in disasters.
xiii.Prepare and maintain supporting SOPs and annexes.
e.Emergency Program Manager
i.Establish procedures for employing temporary personnel for disaster
operations.
ii.Establish and maintain a staffing reserve.
iii.Coordinate deployment of reserve personnel to city departments requiring
augmentation.
iv.Conduct ongoing hazard awareness and public education programs.
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2.Food, Hydration, Shelter
a.Woodburn Police Department
i.Evacuation and population protection
ii.Identify high hazard areas and corresponding number of potential evacuees.
iii.Coordinate evacuation planning, including:
(a)Movement control
(b)Transportation needs
(c)Emergency Public Information materials
(d)Prepare and maintain supporting SOPs and annexes.
b.WoodburnFire District
i.May provide shelter within the fire station as mission, space, and
resources are available.
ii.Oversee shelter and reception locationat fire station.
iii.Provide Health and medical.
c.Marion County Healthand Human Services
i.See Marion County EOP for Marion County Health and Human Services
roles and responsibilities
d.Emergency Program Manager
i.Establish procedures for employing temporary personnel for disaster
operations.
ii.Establish and maintain a staffing reserve.
iii.Coordinate deployment of reserve personnel to city departments requiring
augmentation.
iv.Conduct ongoing hazard awareness and public education programs.
v.Develop and maintain procedures for sheltering in place.
vi.Compile and prepare emergency information for the public in case of
emergency.
vii.Arrange for media representatives to receive regular briefings on the
City’s status during extended emergency situations.
viii.Secure printed and photographic documentation of the disaster situation.
ix.Handle unscheduled inquiries from the media and the public.
x.Be aware of Spanish-only-speaking and/or bilingual population centers
within the cityand prepare training and news releases accordingly.
xi.Define responsibilities of city departments and private sector groups
xii.Prepare and maintain supporting SOPs and annexes.
3.Health and Medical
a.WoodburnFire District
i.Coordinate provision of EMS
ii.Request additional EMS assets as necessary.
iii.Initial lifesaving and treatment
b.SalemHospital
i.Treatment of casualties
c.Marion County Health and Human Services
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i.See Marion County EOP for Marion County Health and Human Services
roles and responsibilities
d.Marion County Medical Examiner
i.Provide death notifications.
4.Energy(Power and Fuel)
a.Portland General Electricis the main power producing company within the area
and may aid as requested by the WoodburnPublic Works Department.
b.City of WoodburnPublic Works Department
i.Energy and utilities–related responsibilities include the following tasks:
ii.Work with local energy facilities to restore damaged energy utility
infrastructure and accompanying systems.
iii.Coordinate temporary emergency power generation capabilities to support
critical facilities until permanent restoration is accomplished.
iv.Coordinate information from the damage assessment team. The damage
assessment team is comprised of personnel from City departments with
assessment capabilities and responsibilities such as the Woodburn Police
Department, Woodburn Fire District, and Public Works Department.
v.Train and provide damage plotting team members to the EOC.
vi.Assist in reporting and compiling information regarding deaths, injuries,
and dollar amount damage to tax-supported facilities and to private
property.
vii.Assist in determining the geographic extent of the damaged area.
5.Communications
a.Marion Area Multi-Agency Emergency Telecommunications (METCOM9-1-1)
i.Responsible for emergency communication between emergency
responders.
b.Emergency Program Manager
i.Comply withemergency purchasing procedures and/or a disaster
contingency fund.
ii.Maintain records of emergency-related expenditures for purchases and
personnel.
b.Administration/Finance Department is responsible for the following tasks:
i.Compile estimates of damage for use by City officials in requesting
disaster recovery.
ii.Evaluate the effect of damage on the City’s economic index, tax base,
bond ratings, insurance ratings, etc. for use in long-range recovery
planning.
6.Transportation
a.City public works personnel are responsible for the following tasks in an
emergency:
i.Provide a representative to the EOC.
ii.Assessment damage to streets, bridges, traffic control devices, wastewater
treatment system, and other public works facilities.Assist in damage
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assessment of other city infrastructure and residential buildings.
iii.Remove debris.
iv.Barricade hazardous areas.
v.Coordinate the condemnation of unsafe structures.
vi.Provide support fortrafficand evacuation operations.
vii.Provide support to the police departmentand fire district emergency
operations, as requested.
b.WoodburnSchool District
i.WoodburnSchool District could provide transportation via school buses
7.HAZMAT
a.Salem HAZMAT Team #13.
i.Oil and Hazardous Materials responsibilities include the following tasks:
(a)Conduct oil and hazardous materials (chemical, biological, etc.)
response, including spill containment, short-and long-term clean-up,
planning, and coordination.
(b)Assess the health effects of a hazardous materials release.
(c)Identify the needs for hazardous materials incident support from
regional and State agencies.
(d)Disseminate protective actioninstructions(e.g. evacuation, shelter-in-
place).
(e)Prepare and maintain supporting SOPs and annexes.
ii.Radiological Protection: General responsibilities include the following
tasks:
(a)Establish, maintain, and coordinate a radiological monitoring and
reporting network throughout the county; provide input to the
statewide Oregon Emergency Response System (OERS) at 800-452-
0311.
(b)Secure initial and refresher training for instructors and monitors.
(c)Under fallout conditions, provide city and county officials and
department heads with information regarding fallout rates, fallout
projections, and allowable doses.
(d)Provide monitoring services and advice at the scene of accidents
involving radioactive materials.
(e)Prepare and maintain supporting SOPs and annexes.
b.Woodburn Police Departmentis responsible for the following tasks:
i.Protect life and property and preserve order.
ii.Evacuate disaster areas.
iii.Provide law enforcement and criminal investigation.
iv.Isolate damaged areas.
v.Provide traffic control, crowd control, and site security (including security
for critical facilities).
8.WaterSystems
a.City public works personnel are responsible for the following tasks in an
emergency:
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i.Assessment damage to wastewater treatment system and other public
works facilities.
ii.Direct repair of critical city facilities followed by priority restoration of
streets and bridges. See Appendix F, Critical Facilities List.
iii.Barricade hazardous areas.
iv.As necessary, augment sanitation services.
Nongovernmental Organizations
A.Nongovernmental organizations (NGOs) play enormously important roles before,
during, and after an incident. In the city of Woodburn, NGOs such as the American Red
Cross provide sheltering, emergency food supplies, counseling services, and other vital
support services to support response and promote the recovery of disaster victims. NGOs
collaborate with responders, governments at all levels, and other agencies and
organizations.The roles of NGOs in an emergency may include the following tasks:
1.Train and manage volunteer resources.
2.Identify shelter locations and needed supplies.
3.Provide critical emergency services to those in need, such as cleaning supplies,
clothing, food and shelter, and assistance with post-emergency cleanup.
4.Identify those whose needs have not been met and help coordinate the provision of
assistance.
B.Individual and Households
Although not formally a part of the city’s emergency operations, individuals and households
play an important role in the overall emergency management strategy. Community members
can contribute by taking the following measures:
1.Reduce hazards in their homes.
2.Prepare emergency supply kits and household emergency plans.
3.Monitor emergency communications.
4.Volunteer with established emergency response organizations.
5.Enroll in emergency response training courses.
6.Sign up for emergency alerts.
C.County Response Partners
The County EMD has been appointed under the authority of the Board of County
Commissioners. The County EMD is responsible for developing a county-wide emergency
management program to facilitate a coordinated response to a major emergency or disaster.
This program is developed through cooperative planning efforts with the incorporated and
unincorporated communities of the county. Roles and responsibilities of county emergency
management include the following tasks:
1.Serve as the lead agency forall natural and man-made disasters.
2.Provide resources when requested, if available.
3.Forward requests for a Declaration of Emergency to the Oregon Department of
Emergency Management when requested resources are not available.
4.Actively participate in the emergency planning process.
D.State Response Partners
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Under the provisions of ORS 401.055 through 401.155, the Governor has broad
responsibilities for the direction and control of all emergency activities in a State-Declared
Emergency. The director of ODEM is delegated authority by ORS 401.260 to 401.280 to
coordinate all activities and organizations for emergency management within the State and to
coordinate in emergency response with other states and the Federal government.
Under the direction and control of department heads, agencies of the state government
represent the StateEmergency Support Functions. Responsibility for conducting emergency
support functions is assigned by the Governor to the department best suited to carry out each
function applicable to the emergency. Some state agencies may call upon their federal
counterparts to provide additional support and resources, following established procedures
and policies for each agency.
E.Federal Response Partners
Federal response partners are typically requested by ODEM if state resources become limited
or specialized services are needed. In most instances, federal resources become available
following a formal declaration of emergency by the Governor. Thus, procedures and policies
for allocating and coordinating resources at the federal level follow the Oregon CEMP and, if
necessary, the National Response Framework (NRF).
Continuity of Government
A.The city has not formalized a City Continuity of Operations (COOP) or a Continuity of
Government (COG) plan to date.
Emergencies may disrupt normal business activities. Refer to the table belowfor the roles of
government during an emergency.
City Lines of Succession
Emergency OperationsEmergency Policy and Governance
Chief of Police
City Council Quorum
Fire Chief
Mayor
City Manager
Council President
Public Works Director
CityManager
Table 1-6 Policy and operational lines of
succession during an emergency
B.Each city department is responsible for pre-identifying staff patterns showing a line of
succession in management’s absence. Lines of succession for each department can be
found in the department’s head office. All employees should be trained in the protocols
and contingency plans required to maintain leadership within the department. The
Emergency Program Managerwill provide guidance and directions to department heads
to maintain continuity of government and operations during an emergency. Individual
departmentheads within the city are responsible for developing and implementing
COOP/COG plans to ensure continued delivery of vital services during an emergency.
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1.Preservation of Records
It is the responsibility of elected officials to ensure that all legal documents of both
public and private nature recorded by the designated official (i.e., tax assessor, police
department) be protected and preserved in accordance with applicable State and local
laws. Examples include ordinances, resolutions, meeting minutes, land deeds, and tax
records.
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V.Direction and Control
A.Authority to Initiate Actions
1.Emergency Powers
a.City of WoodburnDisaster Declaration Process.The authority to declare a state
of emergency is delegated to the City Manager. If the City Manager is unable to
act due to absence or incapacity, the Emergency Program Manager is delegated
authority. If in the judgment of the Incident Commander, time doesnot permit
access to the others authorized, the Incident Commander may declare a state of
emergency. The City Council shall convene as soon as practical to ratify the state
of emergency declaration.
b.A declaration of a State of Emergency by the City of Woodburnis the first step in
accessing disaster assistance butmust first go through Marion Countyif there isa
request for state assistance. The WoodburnCity Council has legal authority under
ORS 401 to declare a local State of Emergency.
c.If a quorum of councilors cannot be assembled within a reasonable period,the
authority to declare a state of emergency is delegated to the City Manager. If the
City Manageris unable to act due to absence or incapacity, the Emergency
Program Manager is delegated authority. If in the judgment of the Incident
Commander, time does not permit access to the others authorized, the Incident
Commander may declare a state of emergency. The City Council shall convene as
soon as practical to ratify the state of emergency declaration.”. ODEM has set
forth the following criteria necessary in declaring a local emergency:
i.Incident time and date.
ii.Describe the circumstances impacting an identified area.
iii.Identify the problems for which assistance is needed.
iv.Clearly state what has been done locally to respond to the impact and needs.
2.Marion County Declaration Process
a.When an emergency or disaster arises, and it is determined conditions have
progressed past the staffing power, equipment, or other resource capabilities of
the affected municipality, the County Emergency Management Directorwill
request the following officials activate this EOP and the County EOC:
i.Public WorksDirector or designee.
ii.Emergency Management Board Designee (EMBD).
b.Marion County’s local declaration process involves an escalation through the
EMBD for a formal declaration of emergency or disaster. The declaration will be
forwarded to the State of Oregon through OERS and ODEM for review by the
Governor. If the Governor issues an emergency or disaster declaration, ODEM
will be contacted via OERS for allocation of State resources to support the
response.
c.Resource requests and emergency/disaster declarations must be submitted by the
City Emergency Program Managerto the County EMD according to provisions
outlined under ORS Chapter 401. The request for a State of Emergency
declaration will be documented using the Emergency Declaration Template and
should be accompanied by a current Incident Status Report (ICS Form 209:
Incident Status Summary). The declaration may be communicated via radio, fax,
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or telephone and followed by a hard copy submission.
d.Assign responsibility for implementation of the EOP.
e.In the case of emergencies involving fires threatening life and structures, the
Conflagration Act (ORS 476.510) can be invoked by the Governor through the
Office of State Fire Marshal. This act allows the State Fire Marshal to mobilize
and fund fire resources throughout the State during emergency situations. The
WoodburnFire District Fire Chief and Marion County Fire Defense BoardChief
will assess the status of the incident(s) and, after all criteria have been met for
invoking the Conflagration Act, notify the State Fire Marshal via OERS.The
State Fire Marshal reviews the information and notifies the Governor, who
authorizes the act.
B.Command Responsibility for Specific Actions
1.General guidance of emergency operations
a.Designate individuals or departments responsible for overseeing and providing
direction for emergency response operations.
b.The City Emergency Program Managerhas the responsibility for maintaining the
readiness of the EOC and identifying and training support staff. City departments
will be requested to designate personnel who can be made available to be trained
by the City Emergency Planning Group and to work in the EOC during a major
disaster. Other departments may be requested to aid in a major emergency.
2.Inter-jurisdictional Coordination
a.Municipalities
The city is responsible for the direction and control of city resources during
emergencies, including requesting additional resources from mutual aid sources.
For resources not covered under mutual aid, requests shall be directed to Marion
County Emergency Management.
b.Mutual Aid
State law (ORS 402.010 and 402.015) authorizes the City to enter into
cooperative assistance agreements with public and private agencies in accordance
with their needs. Personnel, supplies, and services may be used by a requesting
agency if the granting agency cooperates and extends such services.
State law (ORS 402.210) authorizes the creation of an intrastate mutual assistance
compact among local governments within the State.The compact streamlines the
process by which a local government requests assistance and temporarily acquires
resources.
c.Special Service Districts
These districts provide services such as fire protection and water delivery systems
not provided by city or county government. Each is governed by an elected Board
of Directors and has policies separate from city and county government.They
often overlap with city and county boundary lines and thus may serve as primary
responders to emergencies within their service districts.
d.Private Sector
Disaster response by local government agencies may be augmented by business,
industry, and volunteer organizations. The Emergency Program Manager(or
designee) will coordinate response efforts with business and industry; this
includes aiding, as appropriate, in action taken by industry to meet state
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emergency preparedness regulations governing businesses providing essential
services, such as utility companies. Schools, hospitals, nursing/care homes and
other institutional facilities are required by Federal, State, or local regulations to
have disasterplans. The Emergency Program Managerwill also work with
voluntary organizations to provide certain services in emergency situations,
typically through previously established agreements. In the preparedness context,
essential training programs will be coordinated by the sponsoring agencies of
such organizations as the American Red Cross, faith-based groups, amateur radio
clubs, Community Emergency Response Teams (CERT), etc.
e.County Government
MarionCounty Emergency Management, as defined in the County EOP, provides
direct county agency support at the local level and serves as a channel for
obtaining resources from outside the county structure, including the assistance
provided by State, regional, and Federal agencies. Local resources (personnel,
equipment, funds, etc.) should be exhausted or projected to be exhausted before
the County requests State assistance.
f.State Government
TheOregon Department of Emergency Management, as defined in the State of
Oregon CMEP provides support to the local level and serves as a channel for
obtaining resources from outside the State structure, including the assistance
provided by the Federal government. The state will work through the county to
provide resources.
g.Federal Government
The ODEMmay ask for assistance from the Federal Government; this is done in
dire circumstances. State emergency management will ask for an initial damage
assessmentfrom the county,to present to FEMA. If the costs meet the threshold,
a Presidential Declaration may be declared,and locals are able to work with
FEMA to recover 75% of costs associated with responding to the disaster.
3.Transition to Recovery
a.Demobilization
As the emergency progresses and the immediate response subsides, a transition
period will occur during which emergency responders will hand responsibility for
active coordination of the response to agencies or organizations involved with
short-and long-term recovery operations.
b.Recovery
Recovery comprises steps the city will take during and after an emergency to
restore government function and community services to levels existing prior to
the emergency.Recovery is both a short-and long-term process.Short-term
operations seek to restore vital services to the community and provide for the
basic needs of the public, such as bringing necessary lifeline systems (e.g., power,
communication, water and sewage, disposal of solid and hazardous waste, or
removal of debris) to an acceptable standard while providing for basic human
needs (e.g., food, clothing, and shelter). Once stability is achieved, the city can
concentrate on long-term recovery efforts, which focus on restoring the
community to a normal or improved situation. The recovery period is also an
opportune time to institute mitigation measures, particularly those related to the
recent emergency. This is also the phase of reassessing the applications,
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processes, and functions of all annexes of this disaster plan for deficiencies.
Resources to restore or upgrade damaged areas may be availablethrough grants,
if it can be shown additional repairs will mitigate or lessen the chances of damage
caused by another similar disaster in the future.
C.Incident Command System
In Oregon, implementation of NIMS and ICS is necessary during an emergency incident.
NIMS is a comprehensive, national approach to incident management, applicable to all
jurisdictional levels and across functional disciplines. ICS is a standardized, flexible, and
scalable, all-hazard incident management system designed to be utilized from the time an
incident occurs and continue until the need for management and operations no longer exists.
The ICS structure can be expanded or contracted, depending on the incident’s changing
conditions. The system consists of practices for managing resources and activities during an
emergency response.It can be staffed and operated by qualified personnel from any
emergency service agency and may involve personnel from a variety of disciplines. As such,
the system can be utilized for any type or size of emergency, ranging from a minor incident
involving a single unit to a major emergency involving several agencies and spanning
numerous jurisdictions.ICS allows agencies to communicate using common terminology and
operating procedures. It also allows for effective coordination and allocation of resources
throughout an incident’s duration.
The City has established a NIMS/ICS compliant EOC command structure, supporting
activation and operational procedures, and position checklists. This information is contained
within this EOP; however, this document is not an EOC manual. A typical ICS
organizational chart for the city is presented in Figure 1-7.
Incident Executive
CommanderGroup
Liaison OfficerPIO
Safety Officer
Operations Planning Logistics Finance/
ChiefChiefChiefAdmin.
Chief
Figure 1-7 Incident Command Structure
Plain language will be used during a multi-jurisdictional emergency response occurring in the
city and is essential to public safety, especially the safety of first responders and those
60
affected by the incident. The use of common terminology enables area commanders, State
and local EOC personnel, Federal operational coordinators, and responders to communicate
clearly with each other and effectively coordinate response activities, regardless of an
incident’s size, scope, or complexity. The ability of responders from different jurisdictions
and disciplines to work together depends greatly on their ability to communicate with each
other.
In certain instances, more than one ICS position may be managed by a single staff person due
to limited personnel and resources available in the city. Thus, it is imperative for all primary
and alternate EOC staff to be trained inICS functions as well as those in their areas of
expertise. Regularly exercising ICS, including sub-functions and liaison roles with volunteers
and other support staff, will improve overall EOC operation efficiency and add depth to the
existing City emergency management programand response organizations.
1.Command Staff
a.Incident Commander
The IC is responsible for the following tasks:
i.Approve and support implementation of an Incident Action Plan (IAP).
ii.Coordinate activities supporting the incident or event.
iii.Approve release of information through the PIO.
iv.Perform the duties of the command staff if no one is assigned to the
position.
v.Establish an on-scene command post at the scene to maintain close contact
andcoordination with the EOC.
b.Safety Officer
The Safety Officer is generally responsible for the following tasks:
i.Identify initial hazards, determine personal protective equipment
requirements, and define decontamination areas.
ii.Implementing site control measures.
iii.Monitor and assess the health and safety of response personnel and
support staff (including EOC staff).
iv.Prepare and implement a site Health and Safety Plan and update the IC
regarding safety issues or concerns, as necessary.
v.Exercise emergency authority to prevent or stop unsafe acts.
c.Public Information Officer
A lead PIO will coordinate and manage a larger public information network
representing local, County, regional, and State agencies, tribalentities, political
officials, and other emergency management stakeholders. The PIO’s duties
include the following tasks:
i.Develop and coordinate the release of information to incident personnel,
media, and the public.
ii.Coordinate information sharing among the public information network
using a Joint Information System and, if applicable, establishing and
staffing a Joint Information Center.
iii.Implement information clearance processes with the IC.
iv.Conduct and/or manage media briefings and implement media-monitoring
activities.
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d.Liaison Officer
Specific liaison roles may be incorporated into the command structure established
at the City and/or County EOC, depending on the type of emergency incident.
Liaisons represent entities and organizations such as hospitals, school districts,
tribes, public works/utility companies, and volunteer services such as the
American Red Cross. Responsibilities typically associated with theliaison role
include the following tasks:
i.Serve as the contact point for local government officials, agency or tribal
representatives, and stakeholders.
ii.Coordinate information and incident updates among interagency contacts,
including the public information network.
iii.Provide resource status updates and limitations among personnel,
capabilities, equipment, and facilities to the IC, government officials, and
stakeholders.
iv.The annexes attached to this plan contain general guidelines for the city
governmental entities, organizations, county officials and departments to
carry out responsibilities assigned at the City EOC or other designated
facility where response efforts will be coordinated.
2.General Staff
a.Operations Chief
The Operations Chief position is typically filled by the lead agency managing
response activities for a specific type of incident. The Operations section is
organized into functional units representing agencies involved in tactical
operations. The following agencies are typically included in the Operations
Section:
i.Fire (emergencies dealing with fire, earthquake with rescue, or hazardous
materials).
ii.Law Enforcement (incident(s) involving civil disorder/disturbance,
significant security/public safety concerns, transportation-related
accidents, and/or criminal investigations).
iii.Public Health Officials (contamination issues, disease outbreaks, and/or
emergency incidents posing threats to human, animal, and environmental
health).
iv.Public Works (incidents resulting in major utility disruptions, damage to
critical infrastructure, and building collapse).
v.Private entities, companies, and NGOs may also support the Operations
section.
The Operations Chief is responsible for the following tasks:
i.Provide organizational support and direct the implementation of
operational plans and field response activities.
ii.Develop and coordinate tactical operations to carry out the Incident Action
Plan.
iii.Manage and coordinate various liaisons representing community response
partners and stakeholders.
iv.Direct IAP tactical implementation.
v.Request resources needed to support the IAP.
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b.Planning Chief
The Planning section is responsible for forecasting future needs and actions
related to the response effort while ensuring implementation of appropriate
procedures and processes.This section is typically supported by four primary
units: Resources, Situation, Documentation, and Demobilization.
The Planning Chief is responsible for the following tasks:
i.Collect, evaluate, and distribute information regarding the incident and
provide a status summary.
ii.Prepare and disseminate the IAP.
iii.Conduct planning meetings and develop alternatives for tactical
operations.
iv.Maintaining resource status.
c.Logistics Chief
The Logistics section is typically supported by the units responsible for Supply,
Food, Communications, Medical, Facilities, and Ground Support. Depending on
the incident’s type and size, these units can be divided into two branches: Service
and Support. The Logistics Chief is responsible for the following tasks:
i.Provide and manage resources to meet the needs of incident personnel.
ii.Manage various coordinationof resources, such as transportation-related
equipment, EOC staff support services, supplies, facilities, and personnel.
iii.Estimate future support and resource requirements.
iv.Assist with development and preparation of the IAP.
3.Finance/Administration
a.The Finance/Administration Section is specific to thetype ofincident and severity
of resulting impacts. In some instances, agencies may not require assistance, or
only a specific function of the section may be needed. These functions can be
staffed by a technical specialist in the Planning section. Potential unitsassigned to
this section include:
i.Compensation/Claims, Procurement, Cost, and Time.
ii.Monitoring costs related to the incident.
iii.Maintaining accounting, procurement, and personnel time records.
iv.Conducting cost analyses.
D.Unified Command
In some incidents, several organizations may share response authority. ICS has the advantage
of combining different local, County, regional, State, and Federal agencies into the same
organizational system, maximizing coordination of response activities, and avoiding
duplication of efforts. A structure called Unified Command (UC) allows the IC position to be
shared among several agencies and organizations,each with jurisdiction. UC members retain
their original authority but work to resolve issues in a cooperative fashion to enable a more
efficient response and recovery.
In a large incident involving multiple jurisdictions and/or regional, State, and Federal
response partners, a UC may replace a single organization IC. Each of the four primary ICS
sections may be further subdivided, as needed.In smaller situations, where additional people
are not required, the IC will directly manage all aspects of the incident organization.
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E.Emergency Operations Center
Response activities will be coordinated from an EOC and will be activated upon notification
of a possible or actual emergency and based upon the incident level of the emergency. The
EOC will track, manage, and allocate appropriate resources and personnel.During large-
scale emergencies, the EOC will, in fact, become the seat of government for the duration of
the crisis.
1.EOC Activation
a.During emergency operations and upon activation, the EOC staff will assemble
and exercise direction and control, as outlined below.
b.The EOC will be activated by theCity Manager,Mayor, City Council,
Emergency Program Manager, or IC. The IC will assume responsibility for all
operations and direction and control of response functions.
c.The Emergency Program Managerwill determine the level of staffing required
and will alert the appropriate personnel, agencies, and organizations.
d.Emergency operations will be conducted by city departments, augmented as
required by trained reserves, volunteer groups, and forces supplied through
mutual aid agreements. County, State, and Federal support will be requested if the
situation dictates.
e.Communications equipment in the EOC will be used to receive information,
disseminate instructions, and coordinate emergency operations.
f.Department heads and organization leaders are responsible for emergency
functions assigned to their activities, as outlined in their respective annexes.
g.The EOC will normally operate on a 24-hour basis, rotating on 12-hour shifts, or
as needed.
h.As soon as itispractical, the IC will notify the County when the city EOC is
activated. County Emergency Management should be briefed, and a preliminary
determination made of whether a request for disaster declaration is likely.
i.Periodic updates will be issued to MarionCounty Emergency Management as the
situation requires.
2.Emergency Operations Center Location
a.The City of WoodburnEOC is established at a location in which City officials can
receive information relevant to the emergency and provide coordination and
control of emergency operations. The primary location for the City EOC is:
WoodburnPolice Department
1060 Mount Hood Avenue
Woodburn, OR 97071
b.If necessary, an alternate location for the City EOC is:
Woodburn Fire DistrictStation #21
1776 Newberg Highway
Woodburn, Oregon 97071
If environmental conditions do not allow direction and control functions to be
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conducted from any of the above facilities, alternate locations will be identified,
selected, and announcedby the Emergency Program Manager.
If during an emergency it becomes necessary to relocate the EOC, the Emergency
Program Managerwill designate a facility and alert all responding agencies and
the County of the new EOC location and revised contact information. If time
allows, the relocated EOC will be confirmed as operational prior to the
deactivation of the existing EOC. The existing EOC will be closed in accordance
with de-activation procedures.
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VI.Information Collection and Dissemination
A.Information Collectionand Dissemination
1.Disaster information managed by the City of WoodburnEmergency Operations
Center is coordinated through agency representatives located in the EOC. These
representatives collect information from and disseminate information to counterparts
in the field. These representatives also disseminate information within the EOC that
can be used to develop courses of action and manage emergency operations.
2.Detailed procedures that identify the type of information needed, where it is expected
to come from, who uses the information, how the information is shared, the format
for providing the information, and specific times the information is needed are
maintained at the City of WoodburnEOCor at the City Records Office.
3.The Planning Section (if utilized) in the EOC will be responsible for the collection,
analysis, and dissemination of incident-specific information through various
mechanisms, including situation status reports, briefings, email communication,
maps, andgraphics.
4.During an activation of the EOC, a situation report will be developed and issued at
the end of each operational period or more frequently if necessary. Each department
will gather and provide information to the Planning Section. The Planning Section
will be responsible for analyzing and developing a draft situation report that will be
reviewed and approved by the EM Program Managerbefore release.
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VII.Communications
A.Communications
Traditional communication lines, such as landline telephones, cellular phones, internet/e-
mail, and radio, will be used by city response personnel throughout the duration of response
activities.
The City of Woodburnhas access to the public alerting system called Everbridge. METCOM
9-1-1 is co-located with the police department and has the ability to activate emergency
public alerts as well as IPAWS(Integrated Public Alert and Warning System).
The Emergency Program Managershall provide the public with educational/ instructional
materials and presentations on subjects regarding safety practices and survival tactics for the
first 72 hours of a disaster.Emergency notification procedures are established among the
response community, and call-down lists are updated and maintained through each individual
agencyor department.
1.External partners can be activated and coordinated through city EOC
communications.
2.Alert and Warning (Woodburn Police Department)
a.Once an emergency has occurred, the following tasks are necessary to ensure the
proper agencies are notified, helping to facilitate a quick and coordinated
response.
b.Disseminate emergency public information, as requested.
c.Receive and disseminate warning information to the public and key County and
City officials and mobilize City staff as necessary.
d.Prepare and maintain supporting SOPs and annexes.
3.Communication Systems(Woodburn Police Departmentand METCOM 911)
4.The following tasks are necessary to ensure the city maintains reliable and effective
communication among responders and local government agencies during an
emergency:
a.Establish and maintain emergency communications systems for all city
departments (including the WoodburnFire District).
b.Manage and coordinate all emergency communicationsoperated within the EOC,
once activated.
c.Coordinate use of all public and private communication systems necessary during
emergencies.
d.Maintain internal notification/call rosters.
e.Maintain a communications link between the EOC and field operations.
f.Participate in the emergency planning process; prepare and maintain SOPs and
annexes supporting this plan.
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VIII.Administration, Finance, and Logistics
A.General Policies
This section outlines general policies for administering resources, including the following:
1.Funding and Accounting
a.During an emergency, the city is likely to find it necessary to redirect city funds to
effectively respond to the incident.The authority to adjust department budgets
and funding priorities rests with the City Council; emergency procurement
authority is delegated to the City Managerwith the approval of the City Council.
If an incident in the city requires major redirection of city fiscal resources, the
City Council will meet in an emergency session to decide how to respond to the
emergency funding needs, declare a State of Emergency, and request assistance
through the county as necessary. If a quorum of councilors cannot be reached, and
if a prompt decision will protect lives, city resources and facilities, or private
property, the City Council, or their designee, may act on emergency funding
requests. The Mayor and City Council will be advised of such actions as soon as
practical.
b.If an incident in the city requires major redirection of the city’s fiscal resources,
the following general procedures will be followed:
i.The City Council will meet in an emergency session to decide how to
respond to the emergency funding needs.
ii.The City Council will declare a State of Emergency and request assistance
through the County.
iii.If a quorum of Councilors cannot be reached, and if a prompt decision will
protect lives, City resources and facilities, or private property, the City
Manager(or designee) may act on emergency funding requests. The
Mayor and City Council will be advised of such actions as soon as
practical.
iv.To facilitate tracking of financial resources committed to the incident, and
to provide the necessary documentation, a discrete charge code for all
incident-related personnel time, losses, and purchases will be established
by the Finance Section.
2.Records and Reports
a.Resource requests and emergency/disaster declarations must be submitted by the
City Emergency Program Managerto the County EMD according to provisions
outlined under ORS Chapter 401. The request for a State of Emergency
declaration will be documented using the Emergency Declaration Template and
should be accompanied by a current Incident Status Report (ICS Form 209:
Incident Status Summary). The declaration may be communicated via radio, fax,
or telephone and followed by a hard copy, with the signature of the official, for
submission.
b.The Emergency Program Managerof the City (or designee) is responsible for the
direction and control of the city’s resources during an emergency and for
requesting additional resources required for emergency operations. All assistance
requests are to be made through County Emergency Management. TheCounty
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Emergency Management processes subsequent assistance requests to the State.
The EOC will coordinate and incorporate County, State,and Federal resources
into the emergency response.
c.In the case of emergencies involving fires threatening life and structures, the
Conflagration Act (ORS 476.510) can be invoked by the Governor through the
Oregon Departmentof the State Fire Marshal. This act allows the State Fire
Marshal to mobilize and fund fire resources throughout the State during
emergency situations. The WoodburnFire District Fire Chief and Marion County
Fire District Defense Board will assess the status of the incident(s) and, after all
criteria have been met for invoking the Conflagration Act, notify the State Fire
Marshal via OERS. The State Fire Marshal reviews the information and notifies
the Governor, who authorizes the act.
3.Agreements and Understandings
a.State law (ORS 401.480 and 401.490) authorizes local governments to enter into
Cooperative Assistance Agreements with public and private agencies in
accordance with their needse.g., the ORCAA Oregon Resource Coordination
Assistance Agreement.Personnel, supplies, and services may be used by a
requesting agency if the granting agency cooperates and extends such services.
Without a mutual aid pact,however,both parties must be aware State statutes do
not provide umbrella protection except in the case of fire suppression pursuant to
ORS 476 (the Oregon State Emergency Conflagration Act).
b.Existing Mutual Aid Agreements are identified in Appendix Bof this plan.
c.The City of Woodburnwill develop and maintain mutual aid agreements, both
formal and informal, facilitating the availability and delivery of additional
resources to the scene of an emergency. Each department is responsible for
developing the agreements necessary to augment available resources. Copies of
these documents can be accessed in each department, through the emergency file
located in theCity Recorder’s Office andemployee web portal. During an
emergency, a local declaration may be necessary to activate these agreements and
allocate appropriate resources. Once mutual aid and intergovernmental
agreements are activated, the EOC will coordinate mutual aid and neighboring
jurisdiction resources into the emergency response.
4.Assistance Stipulations
a.Local policies that have been established regarding the use of volunteers or
accepting donated goods and services should be summarized. Elements that
should be addressed in this section include:
i.Administration of insurance claims
ii.Consumer protection
iii.Duplication of benefits
iv.Nondiscrimination
v.Relief assistance
vi.Preservation of environment and historic properties
5.Additional Policies
a.When the resources of citygovernment are exhausted or when a needed capability
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does not exist within the citygovernment, the city will contact the county. If the
county does not have the capability, they county can contact the state for
assistance.
b.The incident commander will submit periodic situation reports throughthe
planning chiefduring a major disaster.
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IX.Plan Development and Maintenance
A.Plan Development
1.The City of WoodburnEmergency Management Program Manageris responsible for
developing, maintaining, and distributing the city EOP.
2.The EOP has been developed byAlliance Solutions Groupwith assistance and input
from City departments and partner organizations.
B.Plan Maintenance
1.Requirements
a.The Emergency Management Program Managerwill maintain, distribute, and
update the EOP. Responsible officials should recommend changes and provide
updated information periodically (e.g., changes of personnel and available
resources). Revisions will be forwarded to people on the distribution list.
b.Directors of supporting agencies have the responsibility of maintaining internal
plans, SOPs, and resource data to ensure prompt and effective response to and
recovery from emergencies and disasters.
2.Review and Update
a.This EOP will be reviewed annually on or before November 1, to update call lists,
resources, ordinances, and resolutions. The EOP will be formally reviewed and
re-promulgated every five years to comply with State requirements. The
Emergency Program Managerwill coordinate with the Emergency Planning
Coordinator to facilitate this review. The review will include participation by the
emergency planning group and agencies supporting this plan. This planning group
shall consist of designated representatives of the City Council, City Manager, the
Police Chief, the Fire Chief (WoodburnFire District), the Marion County
Emergency ManagementDirector, and WoodburnPublic Works Director.
Through the planning group the EOP will be evaluated by multiple jurisdictions
and organizations which will allow for improved coordination during a disaster.
This review will:
i.Verify contact information.
ii.Review the status of resources noted in the plan.
iii.Evaluate the procedures outlined in this plan to ensure their continued
viability.
Recommended changes should be forwarded to:
City Manager
City Hall
270 Montgomery Street
Woodburn, OR 97071
In addition, lead agencies will review the annexes and appendices assigned to their
respective departments. Any changes in the plan will be noted in the Record of Plan
Changes.
3.Changes should be made to plans and appendices when the documents are no longer
current. Changes in planning documents may be needed:
a.When hazard consequences or risk areas change.
b.When the concept of operations for emergencies changes.
c.When departments, agencies, or groups that perform emergency functions are
reorganized and can no longer perform the emergency tasks laid out in planning
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documents.
d.When warning and communications systems change.
e.When additional emergency resources are obtained through acquisition or
agreement, the disposition of existing resources changes, or anticipated
emergency resources are no longer available.
f.When a training exercise or an actual emergency reveals significant deficiencies
in existing planning documents.
4.Methods of updating planning documents
a.A formal changeis a complete rewrite of an existing EOP or appendix that
essentially results in a new document. Revision is advisable when numerous
pages of the document mustbe updated, when major portions of the existing
document must be deleted or substantial text added, or when the existing
document was prepared using a word processing program that is obsolete or no
longer available. Revised documents should be given a newdate and require new
signatures by officials.
b.A revisionto a planning document involves updating portions of the document by
making specific changes to a limited number of pages. Changes are typically
numbered to identify them andare issued to holders of the document with a cover
memorandum that has replacement pages attached. The cover memorandum
indicates which pages are to be removed and which replacement pages are to be
inserted in the document to update it. The person receiving the change is expected
to make the required page changes to the document and then annotate the record
of changes at the front of the document to indicate that the change has been
incorporated into the document. A change to a document does not alter the
original document date; new signatures on the document need not be obtained.
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X.Authorities and References
A.Legal Authority
In the context of this EOP, a disaster or major emergency is characterized as an incident
requiring the coordinated response of all government levels to save lives, protect property,
and the environment. This plan is issued in accordance with, and under the provisions of,
ORS Chapter 401, which establishes the authority for the highest elected official of the City
Council to declare a State of Emergency.
The city conducts all emergency functions in a manner consistent with NIMS. As approved
by the City Council, the Emergency Planning Group has been identified as the lead agency in
the EMO.The Woodburn PoliceChief, given the collateral title of Emergency Program
Manager, has the authority and responsibility for the organization, administration, and
operations of Emergency Management duties.
Table 1-8 sets forth the Federal, State, and local legal authorities upon which the
organizational and operational concepts of this EOP are based.
Table 1-8Legal Authorities
Federal
Homeland Security Act of 2002 (Public Law 107-296). (2002). Retrieved from U.S.
Department of Homeland Security
Robert T. Stafford Disaster Relief and Emergency Assistance. (2013, April). Retrieved from
FEMA
Homeland Security Policy Directive / HSPD-5: Management of Domestic Incidents. (n.d.)
Presidential Policy Directive / PPD-8: National Preparedness. (N.d.). Retrieved from U.S.
Department of Homeland Security
State of Oregon
Oregon Revised Statues (ORS) 2017 Edition. Chapter 401 through 404. (2017). Retrieved
from Oregon Legislature
State of Oregon Comprehensive Emergency Management Plan. (2023-2026). Retrieved from
Oregon Department of Emergency Management
Marion County
The emergency ordinance of Marion County, Chapter 2.35;authority granted to the Marion
County Board of Commissioners (1994)
Marion County Emergency Operations Plan (2025-2030), as amended
City of Woodburn
Ordinance No.2315Emergency Management City of Woodburn
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XI.Appendix A
Emergency Declaration Form
DECLARATION OF EMERGENCY
To: __________________________,
Marion County Emergency Management
From:___________________________,
City of Woodburn, Oregon
At _____________ (time) on ____________ (date),
a/an ___________________________________________________ (description of emergency
incident or event type) occurred in the City of Woodburnthreatening life and property.
The current situation and conditions are:
_________________________________________________________________
__________________________________________________________________
__________________________________________________________________
The geographic boundaries of the emergency are:
_________________________________________________________________
_________________________________________________________________
WE DO HEREBY DECLARE A STATE OF EMERGENCY NOW EXISTS IN THE CITY OF
WOODBURNAND THE CITY HAS EXPENDED OR WILL SHORTLY EXPEND ITS
NECESSARY AND AVAILABLE RESOURCES.WE RESPECTFULLY REQUEST THE
COUNTY PROVIDE ASSISTANCE, CONSIDER THE CITY AN "EMERGENCY AREA" AS
PROVIDED FOR IN ORS 401, AND, AS APPROPRIATE, REQUEST SUPPORT FROM
STATE AGENCIES AND/OR THE FEDERAL GOVERNMENT.
Signed: ___________________________________________________________
Title: ____________________________ Date & Time: __________________
This request may be passed to the County via radio, telephone, or FAX.The original signed
document must be sent to the County Emergency Management Office, with a copy placed in the
final incident package.
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XII.Appendix B
Mutual Aid Agreements
NOTE: For information on the City of WoodburnMutual Aid Agreements contact the City
Manageror Emergency Program Manager.
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XIII.Appendix C
Glossary of Terms
Actual Occurrence: A disaster (natural or man-made) warranting action to protect life,
property, environment, public health or safety. Natural disasters include earthquakes,
hurricanes, tornadoes, floods, etc.; man-made (either intentional or accidental) incidents
can include chemical spills, terrorist attacks, explosives, biological attacks, etc.
After-Action Report:The After-ActionReport documents the performance of exercise-
related tasks and makes recommendations for improvements. The Improvement Plan
outlines the actions the exercising jurisdiction(s) plans to take to address
recommendations contained in the After-ActionReport.
Agency: A division of government with a specific function offering a particular kind of
assistance.In ICS, agencies are defined either as jurisdictional (having statutory
responsibility for incident management) or as assisting or cooperating (providing
resources or other assistance).
Agency Representative: A person assigned by a primary, assisting, or cooperating State,
local, or tribal government agency or private entity who has been delegated authority to
make decisions affecting the represented agenciesor organization’s participation in
incident management activities following appropriate consultation with the agency
leadership.
All Hazards: Any incident caused by terrorism, natural disasters, or any CBRNE
accident.Such incidents require a multi-jurisdictional and multi-functional response and
recovery effort.
Area Command (Unified Area Command): An organization established (1) to oversee
the management of multiple incidents being handled by separate ICS organizations or
(2) to oversee the management of large or multiple incidents to which several incident
management teams have been assigned. Area Command has the responsibility to set
overall strategy and priorities, allocate critical resources according to priorities, ensure
incidents are properly managed, and ensure objectives are met and strategies followed.
Area Command becomes Unified Area Command when incidents are multi-
jurisdictional. Area Command may be established at an emergency operations center
facility or at some location other than an incident command post.
Assessment: The evaluation and interpretation of measurements and other information
to provide a basis for decision making.
Assisting Agency: An agency or organization providing personnel, services, or other
resources to the agency with direct responsibility for incident management.See also
Supporting Agency.
Audit: Formal examination of an organizationor individual’s accounts; a methodical
examination and review.
Branch: The organizational level having functional or geographical responsibility for
major aspects of incident operations. A branch is organizationally situated between the
section and the division or group in the Operations Section, and between the section and
units in the Logistics Section.Branches are identified usingRoman numerals or by
functional area.
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Chain-of-Command: A series of command, control, executive, or management
positions in hierarchical order of authority.
Check-In: The process through which resources first report to an incident.Check-in
locations include the incident command post, Resources Unit, incident base, camps,
staging areas, or directly on the site.
Chief: The ICS title for individuals responsible for managing the following functional
sections: Operations, Planning, Logistics, Finance/Administration, and Intelligence (if
established as a separate section).
Command: The act of directing, ordering, or controlling by virtue of explicit statutory,
regulatory, or delegated authority.
Command Staff: In an incident managementstructure, the Command Staff consists of
the Incident Commander; the special staff positions of Public Information Officer, Safety
Officer, Liaison Officer; and other positions as required, who report directly to the
Incident Commander.They may have an assistant or assistants, as needed.
Common Operating Picture: A broad view of the overall situation as reflected by
situation reports, aerial photography, and other information or intelligence.
Communications Unit: An organizational unit in the Logistics Section responsible for
providing communication services at an incident or an EOC. A Communications Unit
may also be a facility (e.g., a trailer or mobile van) used to support an Incident
Communications Center.
Cooperating Agency: An agency supplying assistance other than direct operational or
support functions or resources to the incident management effort.
Corrective Action: Improved procedures based on lessons learned from actual incidents
or from training and exercises.
Corrective Action Plan: A process implemented after incidents or exercises to assess,
investigate, and identify and implement appropriate solutions to prevent repeating
problems encountered.
Critical Infrastructure:Systems and assets, whether physical or virtual, vital to the
United States because incapacity or destruction of such systems and assets would have
a debilitating impact on security, national economic security, national public health or
safety, or any combination of those matters.
Deputy: A fully qualified individual who, in the absence of a superior, can be delegated
the authority to manage a functional operation or perform a specific task.In some cases,
a deputy can act as relief for a superior and, therefore, must be fully qualified in the
position. Deputies can be assigned to the Incident Commander, General Staff, and
Branch Directors.
Disciplines: A group of personnel with similar job roles and responsibilities. (e.g. law
enforcement, firefighting, HazMat, EMS).
Division: The partition of an incident into geographical areas of operation.Divisions are
established when the number of resources exceeds the manageable span of control of the
Operations Chief. A division is located within the ICS organization between the branch
and resources in the Operations Section.
Emergency Operations Centers: The physical location at which the coordination of
information and resources to support domestic incident management activities normally
takes place. An EOC may be a temporary facility or may be ina more central or
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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, and medical services), by jurisdiction (e.g., Federal, State, regional,
County, City, tribal), or some combination thereof.
Emergency Operations Plan:The “steady state” plan maintained by various
jurisdictional levels for responding to a wide variety of potential hazards.
Evacuation: Organized, phased, and supervised withdrawal, dispersal, or removal of
civilians from dangerous or potentially dangerous areas, and their reception and care in
safe areas.
Evaluation: The process of observing and recording exercise activities, comparing the
performance of the participants against the objectives, and identifying strengths and
weaknesses.
Event:A planned, non-emergency activity. ICS can be used as the management system
for a wide range of events, e.g., parades, concerts, or sporting events.
Exercise: Exercises are a planned and coordinated activity allowing homeland security
and emergency management personnel (from first responders to senior officials) to
demonstrate training, exercise plans, and practice prevention, protection, response, and
recovery capabilities in a realistic but risk-free environment.Exercises are a valuable
tool for assessing and improving performance, while demonstrating community resolve
to prepare for major incidents.
Federal: Of or pertaining to the Federal Government of the United States of America.
Federal Preparedness Funding: Funding designated for developing and/or enhancing
State, Territorial, local, and tribal preparedness capabilities.This includes all funding
streams directly or indirectly that support Homeland Security initiatives, e.g. Center for
Disease Control and Health Resources and Services Administration preparedness funds.
General Staff: A group of incident management personnel organized according to
function and reporting to the Incident Commander. The General Staff normally consists
of the Operations Section Chief, Planning Section Chief, Logistics Section Chief, and
Finance/Administration Section Chief.
Group: Established to divide the incident management structure into functional areas of
operation.Groups are composed of resources assembled to perform a special function
not necessarily within a single geographic division. Groups, when activated, are located
between branches and resources in the Operations Section.
Hazard: Something potentially dangerous or harmful, often the root cause of an
unwanted outcome.
Homeland Security Exercise and Evaluation Program (HSEEP): A capabilities-and
performance-based exercise program providing a standardized policy, methodology, and
language for designing, developing, conducting, and evaluating all exercises. Homeland
Security Exercise and EvaluationProgram also facilitates the creation of self-sustaining,
capabilities-based exercise programs by providing tools and resources such as guidance,
training, technology, and direct support. For additional information please visit the
Homeland Security Exercise and Evaluation Program toolkit at
http://www.hseep.dhs.gov.
Improvement Plan:The After-ActionReport documents the performance of exercise-
related tasks and makes recommendations for improvements.The Improvement Plan
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outlines the actions the exercising jurisdiction(s) plans to take to address
recommendations contained in the After-ActionReport.
Incident: An occurrence, naturally or human-caused, requiring an emergency response
to protect life or property.Incidents can, for example, include major disasters,
emergencies, terrorist attacks, terrorist threats, wildland and urban fires, floods,
hazardous materials spills, nuclear accidents, aircraft accidents, earthquakes, hurricanes,
tornadoes, tropical storms, war-related disasters, public health and medical emergencies,
and other occurrences requiring an emergency response.
Incident Action Plan: An oral or written plan containing general objectivereflecting
the overall strategy for managing an incident. It may include the identification of
operational resources and assignments. It may also include attachments providing
direction and important information for managing the incident during one or more
operational periods.
Incident Command Post: The field location at which the primary tactical-level, on-
scene incident command functions are performed. The ICP may be collocated with the
incident base or other incident facilities and is normally identified by a green rotating or
flashing light.
Incident Command System: A standardized on-scene emergency management
construct specifically designed to provide for the adoption of an integrated
organizational structure reflecting the complexity and demands of single or multiple
incidents, without being hindered by jurisdictional boundaries. 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 both small and large,
complex incidents. ICS is used by various jurisdictions and functional agencies, both
public and private, to organize field-level incident management operations.
Incident Commander: The individual responsible for all incident activities, including
the development of strategies and tactics, ordering,and the 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.
Incident Management Team: The IC and appropriate Command and General Staff
personnel assigned to an incidentwho have specific training to respond to anemergency
incident.
Incident Objectives: Statements of guidance and direction necessary for selecting
appropriate strategiesand the tactical direction of resources.Incident objectives are
based on realistic expectations of what can be accomplished when all allocated resources
have been effectively deployed. Incident objectives must be achievable and measurable,
yet flexible enough to allow strategic and tactical alternatives.
Interagency: An organization or committee comprised of multiple agencies.
Interoperability & Compatibility: A principle of NIMS stipulating systems must be
able to work together and should not interfere with one another if the multiple
jurisdictions, organizations, and NIMS functions are to be effective in domestic incident
management.Interoperability and compatibility are achieved bysuch tools as common
communications and data standards, digital data formats, equipment standards, and
design standards. (Department of Homeland Security, National Incident Management
System (October 2017)
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Joint Information Center: A facility established to coordinate all incident-related
public information activities.It is the central point of contact for all news media at the
scene of the incident.Public information officials from all participating agencies should
collocate at the Joint Information Center.
Joint Information System: Integrates incident information and public affairs into a
cohesive organization designed to provide consistent, coordinated, timely information
during crisis or incident operations.The mission of the JIS is to provide a structure and
system for developing and delivering coordinated interagency messages; developing,
recommending, and executing public information plans and strategies on behalf of the
IC; advising the IC concerning public affairs issues affecting a response effort; and
controlling rumors and inaccurate information to maintain public confidence in the
emergency response effort.
Jurisdiction: A range or sphere of authority.Public agencies have jurisdiction onan
incident related to their legal responsibilities and authority. Jurisdictional authority at an
incident can be political or geographical (e.g., City, County, tribal, State, or Federal
boundary lines) or functional (e.g., law enforcement, public health).
Lessons Learned: Knowledge gained through operational experience (actual events or
exercises) leading to the improved performance of others in the same discipline.
Liaison: Communicationor cooperation which facilitates a close working relationship
between people or organizations.
Liaison Officer: A member of the Command Staff responsible for coordinating with
representatives from cooperating and assisting agencies.
Local Government: A County, municipality, City, town, township, local public
authority, school district, special district, intrastate district, council of governments
(regardless of whether the council of governments is incorporated as a nonprofit
corporation under State law), regional or interstate government entity, or agency or
instrumentality of a local government; an Indigenoustribe or authorized tribal
organization, or in Alaska a Native village or Alaska Regional Native Corporation; a
rural community, unincorporated town or village, or other public entity.See Section 2
(10), Homeland Security Act of 2002, Pub. L. 107-296, 116 Stat. 2135 (2002).
Logistics Section: The section responsible for providing facilities, services, and material
support for the incident.
Major Disaster: As defined under the Robert T. Stafford Disaster Relief and Emergency
Assistance Act (42 U.S.C. 5122), a major disaster is:
“Any natural catastrophe (including any hurricane, tornado, storm, high water, wind-
driven water, tidal wave, tsunami, earthquake, volcanic eruption, landslide, mudslide,
snowstorm, or drought), or, regardless of cause, any fire, flood, or explosion, in any part
of the United States, which in the determination of the President causes damage of
sufficient severity and magnitude to warrant major disaster assistance under this Act to
supplement the efforts and available resources of States, tribes, local governments, and
disaster relief organizations in alleviating the damage, loss, hardship, or suffering caused
thereby.”
Mitigation: The activities designed to reduce or eliminate risks to persons or property
or to lessen the actual or potential effects or consequences of an incident.Mitigation
measures may be implemented prior to, during, or after an incident.Mitigation measures
are often informed by lessons learned from prior incidents.Mitigation involves ongoing
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actions to reduce exposure to, probability of, or potential loss from hazards.Measures
may include zoning and building codes, floodplain buyouts, and analysis of hazard-
related data to determine where it is safe to build or locate temporary facilities.
Mitigation can include efforts to educate governments, businesses, and the public on
measures they can take to reduce loss and injury.
Mobilization: The process and procedures used by all organizations—State, local, and
tribal—for activating, assembling, and transporting all resources requested to respond to
or support an incident.
Multiagency Coordination Entity: A multiagency coordination entity functions within
a broader multiagency coordination system.It may establish priorities among incidents
and associated resource allocations, de-conflict agency policies, and provide strategic
guidance and direction to support incident management activities.
Multiagency Coordination Systems: Multiagency coordination systems provide the
architecture to support coordination for incident prioritization, critical resource
allocation, communications systems integration, and information coordination.The
components of multiagency coordination systems include facilities, equipment,
emergency operation centers (EOCs), specific multiagency coordination entities,
personnel, procedures, and communications.These systems assist agencies and
organizations to fully integratethe subsystems of the NIMS.
Multi-jurisdictional Incident: An incident requiring action from multiple agencies with
jurisdiction to manage certain aspects of an incident.In ICS, these incidents will be
managed under Unified Command.
Mutual-Aid Agreement: Written agreement between agencies and/or jurisdictions
stipulating they will assist one another on request, by furnishing personnel, equipment,
and/or expertise in a specified manner.
National Incident Management System: A system mandated by HSPD-5 which
provides a consistent nationwide approach for State, local, and tribal governments; the
private-sector, and non-governmentalorganizations to work effectively and efficiently
together to prepare for, respond to, and recover from domestic incidents, regardless of
cause, size, or complexity. To provide for interoperability and compatibility among
State, local, and tribal capabilities, the NIMS includes a core set of concepts, principles,
and terminology. HSPD-5 identifies these as the ICS; multiagency coordination systems;
training; identification and management of resources (including systems for classifying
types of resources); qualification and certification; and the collection, tracking, and
reporting of incident information and incident resources.
Non-Governmental Organization: An entity with an association based on the interests
of its members, individuals, or institutions and is not created by a government, but may
work cooperatively with government.Such organizations serve a public purpose, not a
private benefit. Examples of Non-Governmental Organizations include faith-based
charity organizations and the American Red Cross.
Operational Period: The time scheduled for executing a given set of operation actions,
as specified in the Incident Action Plan. Operational periods can be of various lengths,
although usually not over 24 hours.
Operations Section: The section responsible for all tactical incident operations.In ICS,
it normally includes subordinate branches, divisions, and/or groups.
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Personnel Accountability: The ability to account for the location and welfare of
incident personnel. It is accomplished when supervisors ensure ICS principles and
processes are functional and personnel are working within established incident
management guidelines.
Plain Language: Common terms and definitions understood by individuals from all
responder disciplines. The intent of plain language is to ensure clear and accurate
communication of information during an incident.For additional information, refer to
http://www.fema.gov/pdf/emergency/nims/plain_lang.pdf.
Planning Meeting: A meeting held as needed prior to and throughout the duration of an
incident to select specific strategies and tactics for incident control operations and for
service and support planning.For larger incidents, the planning meeting is a major
element in the development of the IAP.
Planning Section: Responsible for the collection, evaluation, and dissemination of
operational information related to the incident, and for the preparation and
documentation of the IAP. This section also maintains information on the current and
forecasted situation and onthe status of resources assigned to the incident.
Preparedness: The range of deliberate, critical tasks and activities necessary to build,
sustain, and improve the operational capability to prevent, protect against, respond to,
and recover from domestic incidents. Preparedness is a continuous process. Preparedness
involves efforts at all levels of government and between government and private-sector
and nongovernmental organizations to identify threats, determine vulnerabilities, and
identify required resources.Within NIMS, preparedness is operationally focused on
establishing guidelines, protocols, and standards for planning, training and exercises,
personnel qualification and certification, equipment certification, and publication
management.
Preparedness Organizations: Groups providing interagency coordination for domestic
incident management activities in a non-emergency context.Preparedness organizations
can include all agencies with a role in incident management, for prevention,
preparedness, response, or recovery activities.They represent a wide variety of
committees, planning groups, and other organizations.These organizations meet and
coordinate to ensure the proper level of planning, training, equipping, and other
preparedness requirements within a jurisdiction or area occur.
Prevention: Actions to avoid an incident or to intervene to stop an incident from
occurring.Prevention involves actions to protect lives and property.It involves applying
intelligence and other information to a range of activities including countermeasures
such as deterrence operations; heightened inspections; improved surveillance and
security operations; investigations to determine the full nature andsource of the threat;
public health and agricultural surveillance and testing processes; immunizations,
isolation, or quarantine; and, as appropriate, specific law enforcement operations aimed
at deterring, preempting, interdicting, or disrupting illegal activity and apprehending
potential perpetrators and bringing them to justice.
Private Sector: Organizations and entities not part of any governmental structure.It
includes for-profit and not-for-profit organizations, formal and informal structures,
commerce and industry, and private voluntary organizations.
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Public Information Officer (PIO): A member of the Command Staff responsible for
interfacing with the public and media or with other agencies with incident-related
information requirements.
Qualification and Certification:This subsystem provides recommended qualification
and certification standards for emergency responder and incident management
personnel.It also allows the development of minimum standards for resources expected
to have an interstate application. Standards typically include training, currency,
experience, and physical and medical fitness.
Recovery: 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 learned; post-incident reporting; and development of
initiatives to mitigate the effects of future incidents.
Recovery Plan: A plan developed by a State, local, or tribal jurisdiction with assistance
from responding Federal agencies to restore the affected area.
Resources: Personnel and major items of equipment, supplies, and facilities available or
potentially available for assignment to incident operations and for which status is
maintained. Resources are described by kind and type and may be used in operational
support or supervisory capacities at an incident or at an EOC.
Resource Management: Efficient incident management requires a system for
identifying available resources at all jurisdictional levels to enable timely and unimpeded
access to resources needed to prepare for, respond to, or recover from an incident.
Resource management under NIMS includes mutual aid agreements; the use of special
State, local, and tribal teams; and resource mobilization protocols.
Resource Typing: Resource typing is the categorization of resources commonly
exchanged through mutual aid during disasters. Resource typing definitions help define
resource capabilities for ease of ordering and mobilization during a disaster.
Resources Unit: Functional unit within the Planning Section responsible for recording
the status of resources committed to the incident.This unit also evaluates resources
currently committed to the incident, the effects additional responding resources will have
on the incident, and anticipated resource needs.
Response: Activities addressing short-term, direct effects of an incident.Response
includes immediate actions to save lives, protect property, and meet basic human needs.
Response also includes the execution of emergency operations plans and of mitigation
activities designed to limit the loss of life, personal injury, property damage, and other
unfavorable outcomes. As indicated by the situation, response activities include applying
intelligence and other information to lessen the effects or consequences of an incident;
increased security operations; continuing investigations into nature and source of the
threat; ongoing public health and agricultural surveillance and testing processes;
immunizations, isolation, or quarantine; and specific law enforcement operations aimed
at preempting, interdicting, or disrupting illegal activity, and apprehending actual
perpetrators and bringing them to justice.
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Safety Officer: A member of the Command Staff responsible for monitoring and
assessing safety hazards or unsafe situations and for developing measures for ensuring
personnel safety.
Scalability: The ability of incident managers to adapt to incidents by either expanding
or reducing the resources necessary to adequately manage the incident, including the
ability to incorporate multiple jurisdictions and multiple responder disciplines.
Section: The organizational level having responsibility for a major functional area of
incident management, e.g., Operations, Planning, Logistics, Finance/Administration,
and Intelligence (if established).The section is organizationally situated between the
branch and the Incident Command.
Span of Control: The number of individuals a supervisor is responsible for, usually
expressed as the ratio of supervisors to individuals. (Under NIMS, an appropriate span
of control is between 1:3 and 1:7.)
Staging Area: Location established where resources can be placed while awaiting a
tactical assignment.The Operations Section manages Staging Areas.
Standard Operating Procedures: A complete reference document detailing the
procedures for performing a single function or severalindependent functions.
Standardization: A principle of NIMS providing a set of standardized organizational
structures (such as the ICS, multi-agency coordination systems, and public information
systems) as well as requirements for processes, procedures, and systems designed to
improve interoperability among jurisdictions and disciplines in various area, including:
training; resource management; personnel qualification and certification; equipment
certification; communications and information management; technology support; and
continuous system improvement.(Department of Homeland Security, National Incident
Management System (October 2017)
State: When capitalized, refers to the governing body of Oregon.
Strategic: Elements of incident managementare characterized by continuous long-term,
high-level planning by organizations headed by elected or other senior officials. These
elements involve the adoption of long-range goals and objectives, the setting of
priorities,the establishment of budgets and other fiscal decisions, policy development,
and the application of measures of performance or effectiveness.
Strategy: The general direction selected to accomplish incident objectives set by the IC.
Strike Team: A set number of resources of the same kind and type and including an
established minimum number of personnel.
Task Force: Any combination of resources assembled to support a specific mission or
operational need.All resource elements within a Task Force must have common
communications and a designated leader.
Technical Assistance: Support provided to State, local, and tribal jurisdictions when
they have the resources but lack the complete knowledge and skills needed to perform
therequired activity (such as mobile home park design and hazardous material
assessments).
Terrorism: Under the Homeland Security Act of 2002, terrorism is defined as activity
involving an act dangerous to human life or potentially destructive of critical
infrastructure or key resources and is a violation of the criminal laws of the United States
or of any State or other subdivision of the United States in which it occurs and is intended
to intimidate or coerce the civilian population or influence a government or affect the
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conduct of a government by mass destruction, assassination, or kidnapping.See Section
2 (15), Homeland Security Act of 2002, Pub. L. 107-296, 116 Stat. 2135 (2002).
Threat: An indication of possible violence, harm, or danger.
Training: Specialized instruction and practice to improve performance and lead to
enhanced emergency management capabilities.
Tribal Nation (also known as an Indian Tribal Government): The governing body of any
Indian or Alaska Native tribe, band, nation, pueblo, village, or community that the
Secretary of the Interior acknowledges to exist as an Indian tribe under the Federally
Recognized Indian Tribe List Act of 1994. (25 U.S.C. §§ 479a to 479a-1) (42 U.S.C. §
5122(6))” pg. 100, FEMA Tribal Declarations Interim Guidance.
Tribal Nation (also known as an Indian Tribal Government):The governing body
of any Indian or Alaska Native tribe, band, nation, pueblo, village, or community that
the Secretary of theInterior acknowledges to exist as an Indian tribe under the Federally
Recognized Indian Tribe List Act of 1994. (25 U.S.C. §§ 479a to 479a-1) (42 U.S.C. §
5122(6))”pg. 100, FEMA Tribal Declarations Interim Guidance.
Unified Area Command: A Unified Area Command is established when incidents
under an Area Command are multi-jurisdictional.
Unified Command: An application of ICS used when there is more than one agency
with incident jurisdiction or when incidents cross political jurisdictions. Agencies work
together through the designated members of the UC, often the senior person from
agencies and/or disciplines participating in the UC, to establish a common set of
objectives and strategies and a single IAP.
Unit: The organizational element having functional responsibility for a specific incident
planning, logistics, or finance/administration activity.
Unity of Command: The concept by which each person within an organization reports
to one and only one designated person.The purpose of unity of command is to ensure
unity of effort under one responsible commander for every objective.
Volunteer: For purposes of NIMS, a volunteer is any individual accepted to perform
services by the lead agency, which has authority to accept volunteer services, when the
individual performs services without promise, expectation, or receipt of compensation
for services performed. See, e.g., 16 U.S.C. 742f(c) and 29 CFR 553.101.
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XIV.Appendix D
Emergency Support Functions (ESF)
A.City officials and emergency responders may need to coordinate with state and federal
departments or officials who utilize the Emergency Support Function (ESF) concept.The
chart below and definitions will aid in the endeavor.
Marion County ESFs and
Organizations
Effective Date: January 2025
Primary Agency
Supporting Agency
Marion County Board of Commissioners
Marion County Community Services
Communications/METCOM/WVCC
Marion County Fire District #1 (MCFD#1)
Marion County Emergency Management
Marion County Finance
Marion County Business Services
Marion County Fire Defense Board
Marion County Health& Human
Services
Behavioral Health
Human Services
Public Health
Environmental Health
Marion County Sheriff’s Office
Marion County Information Technology
Marion County Public Works
FleetServices
RoadMaintenance
Environmental& Solid Waste
Figure 1-8 Marion County ESF Chart
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Emergency Support Function Definitions
A.Emergency Support Function (ESF) 1 -Transportation describes how the City
and County will coordinate transportation needs during a time of a major emergency
or disaster, including assessing damage to and restoring and maintaining
transportation networks—specifically, roads and bridges.
B.ESF 2 -Communication coordinates governmental and non-governmental
organizations that provide the communications and information technology
to emergency management decision makers, and stabilize systems following natural
and human-caused incidents.
C.ESF 3 –Public Works coordinates the capabilities and resources to facilitate the
delivery of services, technical assistance, engineering expertise, construction
management, and other support to prepare for, respond to, and/or recover from a
disaster or an incident.
D.ESF 4 –Firefighting supports fire protection organizations to detect and suppress
urban, rural, and wildland fires resulting from, or occurring coincidentally with a
significant disaster or incident.
E.ESF 5 –Information and Planning supports and facilitates multiagency planning
and coordination for operations involving incidents requiring coordination, such as,
incident action planning, information collection, analysis, and dissemination.
F.ESF 6 –Mass Care coordinates the delivery of mass care and emergency assistance,
including disaster housing, and human services.
G.ESF 7 –Resource Support coordinates logistical and resource planning,
management, and sustainment capability to meet the needs of disaster survivors and
responders.
H.ESF 8 –Public Health and Medical Services coordinates the mechanisms for
assistance in response to an actual or potential public health or medical disaster or
incident; includes medical surge support including patient movement, behavioral
health services, and mass fatality management.
I.ESF 9 –Search and Rescue coordinates the rapid deployment of search and rescue
resources to provide specialized lifesaving assistance; structural collapse (urban search
and rescue), maritime, costal, waterborne, and land.
J.ESF 10 –Hazardous Materials coordinates the support and response to an actual or
potential discharge and/or release of oil or hazardous materials. Functions could
include environmental assessment of nature and extent of oil and hazardous materials
contamination, environmental decontamination and cleanup.
K.ESF 11 –Agriculture, Animals, and Natural Resources coordinates a variety of
functions designated to protect the food supply, respond to plant and animal pest and
disease outbreaks, and protect natural and cultural resources.
L.ESF 12 –Energy facilitates the reestablishment of damaged energy systems and
components and provides technical expertise during an incident involving
radiological/nuclear materials.
M.ESF 13 –Public Safety & Security how the City and County will coordinate plans,
procedures, and resources to support law enforcement activities during a major
disaster or incident.
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N.ESF 14 –Business and Industry how the County will partner with business and
industry to coordinate actions that will provide immediate and short-term assistance
for the needs of the business, industry, and economic stabilization.
O.ESF 15 –Public Information ensures sustained operations exist in the support of
government during an incident to provide accurate, coordinated, and timely
information to affected populations, governments, and the media.
P.ESF 16 –Volunteers and Donations coordination of spontaneous volunteers and
unsolicited donations or cash, goods, and services to support local emergency
operations.
Q.ESF 17 –Cyber and Critical Infrastructure Security describes how Information
Technology will coordinate plans, procedures and resources to support the response to
protect cyber and critical infrastructure and key resources threatened by human or
natural caused emergencies.
R.ESF 18 –Military Support describes how the State of Oregon will coordinate
military support to civil authorities in times of a disaster.
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XV.Appendix E
Acronyms
CBRNEChemical, Biological, Radiological, Nuclear, Explosives
CEMPComprehensive Emergency Management Plan
CERTCommunity Emergency Response Team
ClimRRClimate Risk & Resilience
COGContinuity of Government
COOPContinuity of Operations Plan
CR2KCommunity Right-to-Know
EASEmergency Alert System
EFEnhanced Fujita
EMBDEmergency Management Board Designee
EMDEmergency Management Director
EMSEmergency Medical Services
EOCEmergency Operations Center
EOPEmergency Operations Plan
EPAEnvironmental Protection Agency
ESFEmergency Support Functions
FEMAFederal Emergency Management Agency
HSPDHomeland Security Presidential Directive
IAPIncident Action Plan
ICIncident Commander
ICSIncident Command System
IPAWSIntegrated Public Alert & Warning System
MACSMulti-Agency Coordination System
NGONon-Governmental Organizations
NIMSNational Incident Management System
NRFNational Response Framework
NRINational Risk Index
ODEMOregon Department of Emergency Management
OERSOregon Emergency Response System
ORCAAOregon Resources Coordination Assistance Agreement
ORSOregon Revised Statute
PIOPublic Information Officer
RCPRepresentative Concentration Pathway
SOPStandard Operating Procedures
UCUnified Command
USGSUnited States Geological Service