Emergency management plan bylaw
This bylaw is a consolidated digital version of the official legal document. It is not an exact reproduction and is for information purposes only.
For any questions related to this bylaw contact 519-747-8785 or municipalenforcement@waterloo.ca
Bylaw number: 2023 - 083
Last passed by council: October 30, 2023
A bylaw to adopt an emergency management program and repeal bylaw
- Short title
- Interpretation and definitions
- Composition and powers of the EMPC
- Composition and powers of the MECG
- Emergency declaration
- Enforcement
- General
- Repeal and adoption of new program and plan
- Schedule A
- Schedule B
And whereas the Province of Ontario has passed the Emergency Management and Civil Protection Act, R.S.O., 1990, Chapter E.9, as amended (The "Act") an Act which requires the development and implementation of an emergency management program by the Council of a municipality;
And whereas the Act requires the emergency management program to conform to standards promulgated by Emergency Management Ontario in accordance with international best practices, including the four core components of emergency management, namely: mitigation/prevention, preparedness, response and recovery; and also makes provision for the municipality and council to develop and implement an emergency management program to protect public safety, public health, the environment, the critical infrastructure and property and to promote economic stability and a disaster-resilient community;
And whereas the Act makes provision for the Head of Council to declare that an emergency exists in the community or in any part thereof and also provides the Head of Council with authority to take such action or make such orders and he/she considers necessary and not contrary to law, to implement the emergency response plan and respond to an emergency;
And whereas the Act provides for the designation of one or more members of council who may exercise the powers and perform the duties of the Head of Council during his/her absence or his/her inability to act;
And whereas the Act authorizes employees of a community to respond to an emergency in accordance with the emergency response plan where an emergency exists but has not yet been declared to exist;
And whereas the Act requires every municipality shall have an emergency management program committee. The committee shall be composed of the Emergency Management Program Coordinator, senior municipal official, such members of council as may be appointed by Council, municipal employees who are responsible for emergency management functions and may include other persons representing organizations and industry. The council shall appoint one of the members of the program committee to be the chair of the committee.
And whereas the Act provides that the municipality has a right of action to recover monies expended or costs incurred in the implementation of an emergency plan or in connection with an emergency against the person who caused the emergency, against the person who caused the emergency;
And whereas the City of Waterloo has Bylaw No. 2017 - 083 being a Bylaw to provide for an Emergency Management Program for the protection of public safety, health, the environment, the critical infrastructure and property, and to promote economical stability and a disaster resilient community; and,
And whereas the Council for the City of Waterloo considers it desirable and necessary to repeal Bylaw No. 2017 - 083 and replace it with the with an updated Bylaw to provide for updates to the emergency management program including to add enforcement mechanisms;
Therefore the municipal council of the corporation of the City of Waterloo enacts as follows:
1.0 Short title
This by-law shall be known as the Emergency Management Program Bylaw
2.0 Interpretation and definitions
2.1 The standards published by Emergency Management Ontario in accordance with best international practices were used in the development and implementation of the Emergency Management Program and this Bylaw.
2.2 For the purpose of this Bylaw:
“CEMC” – means Community Emergency Management Coordinator as designated by this Bylaw and Emergency Response Plan;
“Chief Administrative Officer” – means the person appointed as Chief Administration Officer pursuant to the CAO Duties Bylaw of the Corporation of the City of Waterloo;
“Council” – means the Council of the Corporation of the City of Waterloo;
“EMPC” – means Emergency Management Program Committee as designated by this Bylaw and Emergency Response Plan;
“Emergency Response Plan” – means the Emergency Response Plan attached to this Bylaw as Schedule “A”;
“Head of Council” – means Mayor of the Corporation of the City of Waterloo, or their designate;
“MECG” – means Municipal Emergency Control Group as designated by this Bylaw and Emergency Response Plan;
“Municipal Employee” – means any person who performs work for the Corporation of the City of Waterloo or supplies services for monetary compensation (as defined under the Occupational Health and Safety Act (OHSA)). It also includes all secondary or post-secondary students who perform work or supply services for no monetary compensation under a work experience program operated by or approved by a secondary or post-secondary institution;
“Orders” – means any orders made by the Head of Council or designated alternate under Section 5.1 of this Bylaw;
“Support Group” – means designated municipal staff from the Office of the CAO, Community Services, Integrated Planning and Public Works, Corporate Services, Corporate Communications, Fleet and Procurement, Human Resources, Information Management and Technology Services, and other departments as required.
3.0 Composition and powers of the EMPC
3.1 The positions outlined in the EMPC Terms of Reference (“Schedule B”) are hereby appointed as the EMPC members.
3.2 Other positions may be assigned to fulfill roles within the EMPC from time to time as determined by the Chief Administrative Officer or as defined in the Emergency Response Plan.
3.3 The Chief Administrative Officer/or their designate and the CEMC/or alternate CEMC shall co-chair the EMPC.
3.4 The EMPC will cause the emergency management program to be reviewed annually, ensure training to employees on their functions and to recommend changes to the program as considered appropriate and refer recommendations to Council for further review and approval.
4.0 Composition and powers of the MECG
4.1 The Chief Administrative Officer (CAO), the Commissioner of Community Services (Deputy CAO), Commissioner of Integrated Planning and Public Works, Commissioner of Corporate Services (Chief Financial Officer and Treasurer), the Director of Fleet and Procurement Services, the Director of Human Resources, the Director of Information Management and Technology Services, the City Clerk, City Solicitor, the Emergency Information Officer and the CEMC, or their designate(s) as EOC Commander(s) are hereby appointed as the MECG.
4.2 Other positions may be assigned to fulfill roles within the MECG from time to time as determined by the Chief Administrative Officer or as defined in the Emergency Response Plan.
4.3 The MECG will direct the City’s response in the event of an emergency, complete annual training as required by Emergency Management Ontario, develop procedures to govern responsibilities in an emergency, and exercise any other powers as outlined in the Emergency Response Plan.
5.0 Emergency declaration
5.1 The Head of Council or designated alternate, as provided in the Emergency Response Plan, is empowered to declare an emergency and take such actions or make such orders as they consider necessary and are not contrary to law to implement the Emergency Response Plan and to protect property and the health, safety and welfare of the inhabitants of the emergency area.
5.2 Those designated in the Emergency Response Plan are empowered to cause an emergency notification to be issued to members of the MECG and Support Group, and are further empowered to respond to an emergency in accordance with the Emergency Response Plan where an emergency exists but has not yet been declared to exist.
6.0 Enforcement
6.1 Every person who fails to comply with an Order under Section 5.1 of this Bylaw or who interferes with or obstructs any person in the exercise of a power or the performance of a duty conferred under that section, and every officer and director of a corporation who knowingly concurs in the contravention, is guilty of an offence and is liable on conviction,
(a) in the case of an individual, subject to subsection (b), to a fine of not more than $10,000;
(b) in the case of an individual who is an officer or director of a corporation, to a fine of not more than $50,000; and
(c) in the case of a corporation, to a fine of not more than $100,000.
6.2 A person is guilty of a separate offence on each day that an offence under Section 6.1 occurs or continues.
6.3 Section 6.1 and 6.2 may be enforced by a police officer employed by the Waterloo Regional Police Service, or by a Municipal Law Enforcement Officer appointed by The City of Waterloo to enforce this Bylaw.
6.4 If an Order under Section 5.1 of this Bylaw is contravened, in addition to any other remedy and to any penalty imposed by this Bylaw, the contravention may be restrained by court application at the instance of The City of Waterloo, as directed by the Head of Council.
6.5 Where any person is in default of an Order under Section 5.1 of this Bylaw, The City of Waterloo, as directed by the Head of Council, may take remedial actions at the sole cost of the person contravening the order to ensure the order is complied with, and The City of Waterloo may recover the costs of such remedial work, by court action or in like manner as property taxes.
7.0 General
7.1 Council authorizes staff to make administrative changes to the Emergency Response Plan including changes due to personnel changes, organizational changes, contact information, phone numbers and other administrative matters.
7.2 The Fire Chief (or designate) is hereby appointed as the Community Emergency Management Coordinator for the Corporation of the City of Waterloo.
7.3 The Director of Corporate Communications (or designate) is hereby appointed as the Emergency Information Officer for the Corporation of the City of Waterloo.
7.4 This Bylaw hereby designates all Municipal Employees as emergency workers in the event of an emergency and therefore all Municipal Employees may be called out and assigned responsibilities to assist in the implementation of the Emergency Response Plan.
7.5 If any provision of this Bylaw is declared invalid for any reason by a court of competent jurisdiction, only that invalid portion of the Bylaw shall be severed and the remainder of the Bylaw shall still continue in force.
8.0 Repeal and adoption of new program and plan
8.1 Bylaw No. 2017-083 is hereby repealed.
8.2 The Emergency Management Program outlined in the by-law is hereby adopted including the adoption of the Emergency Plan attached as Schedule A and the Emergency Program Committee Terms of Reference attached as Schedule B.
8.3 This Bylaw shall come into force and effect on the date of passage.
9.0 Schedule A
Schedule A bylaw contents
- Introduction
- Hazard identification and risk assessment
- Incident management system
- Requests for assistance
- Implementation
- Declaration and termination of an emergency
- Post-incident activities
- Supporting documents
- Acronyms and abbreviations
1.0 Introduction
The Emergency Management and Civil Protection Act (EMCPA, the Act) defines an “emergency” as a situation or an impending situation that constitutes a danger of major proportions that could result in serious harm to persons or substantial damage to property and that is caused by the forces of nature, a disease or other health risk, an accident or an act whether intentional or otherwise1.
Emergencies are distinct from the normal routine operations of first response agencies and municipal departments in the City of Waterloo (the City). They require a coordinated response by a number of governmental and private organizations, directed by appropriate elected and senior municipal officials.
1.1 Purpose
The City has formulated an Emergency Response Plan (ERP, the Plan) which is adopted by Council by Bylaw [to be assigned once approved] 2. This Plan conforms to the Regional ERP for the Region of Waterloo.
The purpose of the ERP is to outline an action plan for the effective coordination of resources, services, and activities in order to achieve the following objectives:
- Protect and preserve life and property;
- Maximize emergency response capability and efficiently deploy emergency services;
- Minimize the effects of the emergency on the City’s residents and visitors, and on the physical infrastructure and environment of the City; and
- Quickly and efficiently restore essential services, and enable recovery of normal services.
For this purpose, the Plan assigns responsibilities related to the implementation of the Plan to employees of municipal departments and support agencies, and sets out procedures for notifying members of the Municipal Emergency Control Group (MECG)4.
Municipal employees are authorized to take such action(s) under this Plan as may be necessary to achieve the objectives listed above as soon as an emergency exists or appears imminent, whether or not it has been declared5. The Plan is not intended to be a prescriptive document, but instead provides a general framework of the City’s all-hazards approach to emergency response.
1.2 Legal Authority
The legislation under which the City and its employees are authorized to respond to an emergency is:
- The Emergency Management and Civil Protection Act, R.S.O. 1990, c. E.9, as amended;
- Ontario Regulation 380/04; and
- The City of Waterloo Emergency Management Program Bylaw [to be assigned once approved].
1.3 Council Approval
Where significant portions of the ERP are revised, Council is required to adopt the Plan by a Bylaw.
1.4 Plan Maintenance
1.4.1 Emergency Management Program Committee
During normal routine operations, the Emergency Management Program Committee (EMPC, the Committee) is responsible for advising Council on the development and implementation of the City’s emergency management program6, for ensuring training is provided to employees on their functions7, and for conducting an annual review of the ERP and the City’s broader emergency management program8, and recommending changes to Council as required.
The Committee consists of representatives from the City’s departments, or their designated alternates, as described in the EMPC Terms of Reference (Schedule B to Bylaw [to be assigned once approved]). The Chief Administrative Officer (CAO) (or designate) and the Community Emergency Management Coordinator (CEMC) (or designate) co-chair the EMPC. The Fire Chief is appointed to serve as a CEMC, with the Deputy Fire Chiefs and Assistant Deputy Fire Chief as designates. Throughout this Plan, “a CEMC” may refer to any of these individuals.
The annual review of the ERP and recommended revisions will be coordinated by a CEMC. The Committee’s recommendations regarding changes to the ERP will be referred to Council for further review and approval.
1.4.2 Municipal Emergency Control Group and Support Group
In the event of an emergency, the MECG shall direct the City’s response, including the implementation of the ERP9. The MECG and Support Group shall also staff the City’s Emergency Operations Centre (EOC) during an emergency, as outlined in Section 3.3 of the Plan.
During normal routine operations, the MECG and Support Group shall develop procedures to govern their responsibilities in an emergency. The composition of the MECG is described in Bylaw [to be assigned once approved]. The members of this group shall complete an annual training as required by Emergency Management Ontario (EMO)11. The Support Group includes designated staff from the Office of the CAO, Community Services and Integrated Planning and Public Works.
1.4.3 Plan Distribution and Public Access
Copies of the Plan will be provided to the MECG and Support Group personnel, partner organizations and agencies, the Region of Waterloo, the Province, and bordering municipalities and regions that may have a role to play in responding to or providing assistance for emergencies in the City.
ACEMC will maintain and distribute the Plan to the public on the City of Waterloo website (www.waterloo.ca). The public may also contact the City to request a copy of the Plan12. Supporting plans do not form part of the ERP as they may be confidential. Supporting plans provide additional and detailed incident-specific information that may require frequent updating, or be of a technical nature, or contain sensitive or personal information which could pose a security threat, or violate privacy legislation if released13.
1.4.4 Revisions to the Plan
The Plan shall be revised only by by-law; however, revisions to the appendices and minor administrative or housekeeping changes may be made by a CEMC in consultation with the City Clerk.
It is the responsibility of each person, Response Support Organization, service or department identified within Plan to notify a CEMC forthwith, of the need for any administrative changes or revisions to the Plan or supporting plans.
A CEMC is responsible for maintaining a current confidential contact list for EOC personnel and support agencies (EOC Contact List).
Municipal departments referenced in the Plan shall prepare their own internal emergency response procedures, outlining how they plan to fulfil their responsibilities under the ERP. These documents shall be revised, reviewed and maintained annually by a designated member of each department.
1.5 Training and Exercises
The MECG will participate in at least one exercise annually in order to test the overall effectiveness of the Plan and the procedures of the MECG14. A CEMC will coordinate the exercise.
Recommendations arising from the annual exercise shall be considered by a CEMC and the EMPC for revisions to the Plan.
2.0 Hazard identification and risk assessment
The EMPC has identified realistic hazards that may occur in the City and assessed them in terms of probability, frequency of occurrence, and magnitude of consequence or impact. Results of the Hazard Identification and Risk Assessment (HIRA) assist with the development of training and exercise scenarios, and may initiate the development of hazard-specific plans or procedures in the event of an emergency. The HIRA is updated annually. A CEMC will coordinate the review and revisions.
3.0 Incident management system
The City has adopted and implemented the Ontario Incident Management System Guidance Version 2.0 (IMS) to coordinate response, continuity, and recovery activities in an emergency. IMS is a standardized approach to emergency management based on four core principles 15:
- Communication
- Coordination
- Collaboration
- Flexibility
IMS provides a modular organizational structure that can be adapted to the specific needs of any given incident. The structure offers a “toolbox” of common roles, responsibilities (“functions”), and terminology that responders can use to help achieve their objectives.
3.1 Response objectives
The following response objectives are applied to all emergency situations16. In order of priority, they are:
- protect the safety of all incident responders and those affected by the incident
- save lives
- treat the sick and injured
- protect the health of those affected by the incident
- ensure the continuity of government and critical services
- protect property and the environment
- prevent and / or reduce economic and social losses
3.2 Incident Management Levels
There are two incident management levels at the City: (i) site response, directly addressing the emergency, and (ii) the EOC, supporting the site response. This Plan primarily addresses incident management at the EOC level.
3.2.1 Site Response
The emergency responders at the site or sites of the emergency provide tactical response to the emergency as they attempt to mitigate its effects and bring the situation under control.
3.2.2 City of Waterloo Emergency Operations Centre
The EOC is a physical location where the MECG and Support Group can gather to coordinate support for the emergency response, and manage the consequences of an emergency. The EOC is utilized, when necessary, to centralize and coordinate response efforts at the site(s).
The MECG and Support Group are responsible for the overall management and coordination of site support activities both within the EOC, and between the site(s) and other EOCs. Their specific roles are described in Section 3.3 of the Plan.
3.2.3 Policy Group
The Policy Group represents the Council component of the emergency response within the overall IMS structure. It is comprised of the Mayor and members of Council, either in their assigned role and authority during an emergency or sitting as City Council at any regular or special meeting called during an emergency situation.
In the event of an emergency, the Mayor or Acting Mayor (or designate) is the Head of Council (HOC), with all the powers set out in the EMCPA for the purposes of an emergency situation and / or declared emergency17.
Councillors are responsible for:
- Changing / amending by-laws or policies
- Assisting in the relaying of information to area residents
- Attending community or evacuee meetings
- Reassuring constituents
- Liaising back through the Policy Group concerns from the public
- Following leadership and requests from the HOC
3.3 IMS at the City of Waterloo EOC
The MECG and Policy Group are organized in an IMS structure as illustrated below. The Support Group supports the functions of the EOC Director and Sections.
Checklists outlining the responsibilities of each position are included in IMS Position Checklists in the City of Waterloo Emergency Response Plan Binder (“the Binder”), which is provided to each EOC member. The following sections describe the responsibilities of the EOC Director, Command Staff, Command Support, and the four Functional Sections.
3.3.1 EOC Director
The EOC Director has overall authority and responsibility for the activities of the EOC. This function is filled by the CAO (or designate).
In the event of an emergency, the EOC Director sets out priorities and objectives for each operational period, in collaboration with other members of the MECG, and ensures they are carried out.
Tactical response is coordinated by the Incident Commander (IC) at the site. The EOC Director:
- Determines the scope of the EOC-level response, in collaboration with theLiaison Officer, including:
- the length of each operational period,
- the geographical boundaries of the emergency area
- required EOC positions
- need for extraordinary resources / outside assistance
- Confirms the adequacy of expenditure limits identified in the purchasing by-law and authorizes extraordinary expenditure of municipal funds as required
- Establishes procedures to be taken for the safety or evacuation of persons in an emergency area, in collaboration with the Operations Section and in partnership with other agencies as needed
- Reviews and approves emergency information releases prepared by the EIO
- Determines whether a declaration or termination of an emergency is required
- Communicates with and advises the Policy Group, through the Clerk
- Authorizes demobilization measures, as required
- Ensures post-incident activities are completed
3.3.2 Command Staff
3.3.2.1 Liaison Officer
The Liaison Officer function is filled by a CEMC. They are the first point of contact during an emergency, and are responsible for:
- Communication between the EOC and: the site, Regional police, Regionalparamedics, neighboring Municipal and Regional CEMCs / EOCs, EMO, otherProvincial and Federal bodies, and other Response Support Organizations
- Providing input on strategic decisions and advising the other members of theMECG
- Supervise and coordinate EOC setup and activation
- Monitor incident status and external incident-related developments (eg: theweather)
- Facilitating a debriefing with the EOC personnel and other appropriateorganizations
- Preparing an After Action Report (AAR) on the emergency.
3.3.2.2 Emergency Information Officer
The Emergency Information Officer (EIO) function is filled by the Director of Corporate Communications (or designate). They are the interface between the MECG and the public and media, as well as other municipal staff. The EIO is responsible for:
- Establishing internal and external communications strategies
- Gather and maintain accurate information on the situation by monitoring media and information sources, and liaising with the appropriate personnel
- Establishing and maintaining media contacts
- Preparing news releases and public information materials and messaging inaccessible formats as required by provincial legislation
- Coordinating interviews, news conferences, and / or media briefings
- Ensuring the spokesperson, the EOC Director, and other incident responders (as required) are fully briefed on the situation prior to media interviews and news conference
- Coordinating with any other EIOs involved in the response
3.3.2.3 Health and Safety Officer
The Health and Safety Officer function is filled by the Director of Human Resources (or designate). They are responsible for:
- Monitoring and recommending modifications to safety conditions in the EOC
- Advising the MECG on matters related to occupational health and safety of EOC personnel
- Liaising with and advising the site Health and Safety Officer regarding safety issues for site personnel, as required
- Coordinating safety efforts if more than one response organization is involved in the incident
- Ensuring that the required Personal Protective Equipment (PPE) is worn
- Contributing to the safety portion of the EOC Incident Action Plan (IAP) as needed
The Health and Safety Officer has the authority to change, suspend or stop any activities that are deemed hazardous in order to protect the health and safety of incident responders.
3.3.3 Command Support
3.3.3.1 City Clerk
- The City Clerk acts as the liaison between the EOC Director and Council, represented by the Policy Group. Their responsibilities include:
- Ensuring all members of Council are advised of a declaration and termination of the emergency
- Assisting the Mayor with a declaration or termination the emergency, as required
- As requested by the EOC Director, arranging meetings with the Policy Group, advising the members of the Policy Group on the meeting date, time and location, and taking minutes
- Making arrangements to print and distribute any emergency-related documents to the Policy
- Group, as requested by the EOC Director
3.3.3.2 Legal
A City Solicitor / Prosecutor will advise the MECG on matters of a legal nature, as requested, and in particular with respect to any right of action under Section 12 of the EMCPA18. They are also responsible for ensuring that necessary evidence asserting any such action is preserved. If the emergency impacts other jurisdictions (adjacent municipalities, counties, etc.), the Associate City Solicitor / Prosecutor will coordinate on legal issues with the appropriate Solicitor(s) of affected areas.
3.3.3.3 Information Management and Technology Services (“IMTS”)
The Director of IMTS (or designate) will advise the MECG on matters of Information Technology (IT) and provide all IT and communication technology services to the City EOC, as required. They will ensure that an IT technician as well as a GIS specialist is available 24/7 to assist the EOC.
3.3.3.4 Scribe
The Scribe provides administrative support to the EOC Director and is responsible for keeping a record of decisions made and actions taken by the MECG throughout the emergency response.
3.3.4 Functional Sections
3.3.4.1Operations
The Operations Section, headed by the Commissioner for Community Services (or designate), is responsible for carrying out response activities in support of the site by implementing the EOC IAP, and ensuring that operational objectives are carried out effectively.
- Support the development of the EOC IAP
- Establish and maintain a communication link with the Incident Commander at the site
- Advise the EOC Director, as required, on strategies and tactics to achieve operational objectives, including developing an evacuation strategy (see Section4.4)
- Maintain an agenda of ongoing issues, actions, and solutions throughout the incident
- Coordinate within the Operations Section in the EOC and between the site and the EOC
- Establish and maintain a communications link with neighboring Municipal and / or Regional Operations Sections
- Coordinate with the Logistics function to manage the operation of all resources assigned to the incident
- Communicate updates on the situation to the EOC Director and the MECG, through periodic briefings and reports, as required or requested
3.3.4.2 Planning
The Planning Section, headed by the Commissioner for Integrated Planning and Public Works (or designate), is responsible for establishing and maintaining situational awareness, and for anticipating the long-range planning needs of the EOC.
- Collect, collate, evaluate, analyze and disseminate incident information
- Produce and share a written version of the EOC IAP for each operational period, in collaboration with other Sections
- Conduct long-range and / or contingency planning, including assessing long-term implications
- Establish special information collection activities as necessary, and determine need for specialized technicians or skills
- Maintain all EOC documentation and records
- Initiate recovery planning
3.3.4.3 Logistics
The Logistics Section, headed by the Director of Fleet and Procurement (or designate), is responsible for ordering, receiving, setting up, maintaining, demobilizing and storing / housing requested resources, and for ensuring these resources are allocated according to priorities and direction. Resources include personnel, facilities, equipment, supplies, and food and lodging, as well as telecommunications and IT equipment and support. The Logistics Section is also responsible for arranging the transportation of personnel, evacuees, and goods.
3.3.4.4 Finance and Administration
The Finance and Administration Section, headed by the Chief Financial Officer (“CFO”) (or designate), is responsible for managing incident-specific finance and administration activities including cost tracking, time tracking, claims processing, procurement, and providing admin support. This section also monitors expenditures throughout response and recovery, develops contracts and service agreements, and determines whether financial support is available. The Finance and Administration Section is responsible for liaising with Command Staff, other Functional Sections, and third parties as required to fulfil these activities.
4.0 Requests for assistance
In the event of an emergency, the City may require assistance from other levels of government or external partner agencies with specialized knowledge or expertise. These agencies may be requested to attend the site and / or the EOC to provide assistance, or to share information and advice with the MECG through the Liaison Officer.
4.1 Relationship with the Region of Waterloo
At the Regional level, the Regional Emergency Control Group (RECG) is responsible for providing overall policy and strategic direction during a Regional incident. The MECG remains in the City of Waterloo to manage local consequences of the emergency, while the RECG ensures a controlled and coordinated response by Regional services and community agencies. The Regional CAO will call meetings with the Municipal CAOs during the emergency response, if and when required. The Regional Liaison Officer (Regional CEMC) will help coordinate this.
In the event of an emergency and if the RECG has not yet convened, the City may request that the following Regional representatives report to the City of Waterloo EOC or other designated location to attend the MECG:
- Commissioner of Community Services (CSD)
- Chief of Waterloo Regional Police Service (WRPS)
- Commissioner of Public Health and Paramedic Services / Medical Officer of Health
- Chief Paramedic Services
- Regional CEMC
If the RECG is convened, these individuals may no longer be available to support the MECG, as they are required to attend the RECG.
The MECG may request further assistance from the Region of Waterloo by contacting the (acting) Regional Chair or (acting) Regional CAO (Chair RECG). Where required due to time restrictions, such requests can be made through the Regional CEMC who will submit the request to the appropriate Regional designate.
On request through the Region, several volunteer based organizations such as the Canadian Red Cross (CRC) and St. John Ambulance (SJA) may provide resources as per Regional cost recovery processes and / or service agreement(s) with partners.
4.2 Requesting Provincial Assistance
Requests for provincial assistance, which are outside of the normal departmental or service working agreements, are made to EMO through the Provincial Emergency Operations Centre (PEOC). Any municipality that requires help to respond to an emergency can call the PEOC at 416-314-0472 or 1-866-314-0472 at any time to request provincial assistance19.
4.3 Requesting Federal Assistance
Requests for personnel or resources from the Federal Government are requested through the PEOC, who in turn liaises with the Federal Government Operations Centre.
4.4 Response Support Organizations
In this Plan, Response Support Organizations refer to government and non-government third parties who are deemed necessary by the MECG to support the emergency response. These may include, but are not limited to, Provincial and Federal Ministries, law enforcement, emergency medical services, public transit operators, railway operators, utility operators, school boards, and non-profits.
When requested by the MECG, Response Organizations and support agencies deemed necessary to the response may work in support of the EOC and site. Response Support Organization representatives may be invited to attend the EOC or site meetings as required.
4.5 Evacuations
As required by the EMCPA, this section specifies the procedures to be taken for the safety or evacuation of persons in an emergency area20.
4.5.1 Municipal Evacuation Notices
The EMCPA does not provide municipalities with the authority to issue mandatory evacuation orders. However, municipalities are not prohibited from issuing evacuation notices to residents who are at risk of injury or death due to a potential or ongoing emergency. Any such notice will be sent to affected residents through the Alert Waterloo Region system. The MECG will, as required, issue municipal evacuation notices to residents of the City. The Operations Section is responsible for developing an evacuation strategy.
The City may identify a need to declare a provincial emergency and for emergency orders to be made to support their response efforts (for example, to support a mandatory evacuation)21. The MECG should communicate this need to the PEOC, who will work with other ministries to notify the Lieutenant Governor in Council.
4.5.2 Provincial Evacuation Orders
If the Lieutenant Governor in Council or the Premier of Ontario has declared that a provincial emergency exists throughout Ontario or in any part of Ontario, including the City of Waterloo, the Lieutenant Governor in Council may issue an emergency order to evacuate individuals and animals, and remove personal property from any specified area, as well as make arrangements for the adequate care and protection of individuals and property22. In these instances, the City may exercise municipal power, under the direction and control of the Premier, to enforce the mandatory evacuation orders issued under the provincially declared emergency23.
4.5.3 Safety of Evacuated Persons
The City may independently open municipal facilities to provide a safe space for residents needing information, to charge phones, or gather in the event of an extended power outage or severe weather where Emergency Social Services (ESS) may not be required.
In the event ESS is required, the MECG will coordinate with the Region of Waterloo to ensure the safety of evacuated persons within an emergency area and to provide required services. As outlined in the Region’s ESS Plan (ESSP), a CEMC will collaborate with the Regional CEMC on decisions including, hoteling, commercial accommodations, reception center activation and location and level of door-to-door service required.
In the event that 25 people or less require ESS, the MECG may contact through the CEMC the CRC under the First Responder Protocol (FRP) by connecting with Kitchener Fire Dispatch. If over 25 people require ESS, the MECG through the CEMC will contact the Regional CEMC to ensure that the CRC is notified to respond and assess ESS needs. Other agencies capable of providing temporary shelter to evacuees may also be notified.
5.0 Implementation
The ERP can be implemented as soon as an emergency occurs, or is expected to occur. An official declaration of an “emergency” does not have to be made for this Plan to be implemented to protect the lives, property, and the environment of the City’s residents and visitors.
Implementation authorizes City of Waterloo employees to take such actions as necessary and in accordance with the Plan to protect the lives and property of the inhabitants of the City.
5.1 City of Waterloo EOC Contact List
In the event of an emergency, the Alert Waterloo Region system will be used to notify the following individuals, or their alternates if they are unavailable. The same system will be used, as required, to notify local residents.
- Mayor or Alternate (HOC)
- Chief Administrative Officer
- IMS Command Support
- Community Emergency Management Coordinator
- Emergency Information Officer
- Director of Human Resources
- City Clerk
- Director Legal Services / City Solicitor
- Director of IMTS
- Administrative support (Scribes)
- Functional Section Chiefs
- Commissioner of Community Services (Deputy CAO)
- Commissioner of Integrated Planning and Public Works
- Director of Fleet and Procurement Services
- Commissioner of Corporate Services (CFO and Treasurer)
5.2 City of Waterloo EOC Activation
Any of the members of the MECG, or their alternates, included in the EOC Contact List has the authority to implement the City’s ERP, and to activate the EOC, when they:
- Receive an initial warning or notification of a potential emergency;
- Are the first arrive at the scene of an emergency;
- Otherwise determine that the activation of the EOC is required; or
- A local or provincial emergency has been declared.
A CEMC must be present for EOC activation, as they carry the keys to the EOC facility.
There is a primary and a secondary location designated as the EOC. If the Plan is implemented for a declared or undeclared emergency, EOC personnel (the MECG and Support Group, as outlined in Section 3.3) will be notified to assemble at one of the designated locations. The Region of Waterloo CEMC shall also be notified when the City EOC is activated.
In the event that the activation of the EOC in person and on site is not possible, a virtual EOC will be activated. The MECG and Support Group will be notified through the Alert Waterloo Region system, and will respond in a virtual setting on the Microsoft (MS) Teams platform.
Details on the response levels, staffing requirements, EOC facilities and procedures can be found in the Emergency Operations Center Overview & Standard Operating Guidelines in the Binder.
5.3 Escalation of Emergencies in Waterloo Region
Each Municipality within the Waterloo Region has agreed to use the following four emergency management response levels as a guide for before, during and following emergencies. Each level signifies the variation of the impact to the community caused by the major incident or emergency.
| Response level | Actions | Criteria | Examples |
|---|---|---|---|
| Level 1: Routine monitoring of small scale emergency |
|
|
Apartment fire with displacements, contained hazmat, boil water advisory, active threat from person(s), helicopter crash, localized flooding |
| Level 2: Local municipality notification or activation (includes ROW RECG notification to be on standby) |
|
|
Chemical spill, multiple fire locations, multiple suspects / active threat on the move, city / township wide boil water advisor, isolated communicable disease outbreak. |
| Level 3: Full activation local ECG (includes ROW RECG notifications and possible activations) |
|
|
Ice storm, tornado, chemical spill, commercial airline crash, train derailment, large propane explosion, pipeline leakage, potable water emergency, epidemic, terrorism, large scale flood |
| Level 4: Regional emergency (ROW RECG activation) |
|
|
Level 3 examples that:
|
6.0 Declaration and termination of an emergency
6.1 Declaration of an Emergency
A state of emergency in the City or any part thereof may be declared if the health, safety and welfare of residents and visitors are threatened, and special actions or outside assistance may be required. A list of considerations for declaring an emergency, aligned with the Regional checklist, is included in the Binder.
The Mayor or designate of the City, as HOC, is responsible for declaring that a Municipal emergency exists within the boundaries of City24. This decision is made in consultation with the MECG, who are responsible for ensuring that all personnel and Response Support Organizations concerned are advised of the declaration of the emergency.
In order to declare an emergency, the HOC will fill out and sign the Declaration of Emergency template in the Binder, as prepared by the City Clerk, and send to the Provincial Emergency Operations Centre (fax: 416-314-0474).
Upon such declaration, the HOC notifies:
- The Solicitor General25;
- The Regional Chair;
- The Treasury Board Secretariat, through the PEOC;
- Council.
Local provincial and federal representatives, local media, and the public may also be notified through the Emergency Information Officer and CEMC.
Once an emergency is declared, the HOC has the authority to take such actions or make such orders as they consider necessary and are not contrary to law to implement the Plan and to protect property and the health, safety and welfare of the inhabitants of the emergency area. Officers of the Waterloo Regional Police Service and Municipal Law Enforcement Officers may enforce any such orders.
6.2 Termination of an Emergency
When the MECG determines that there is no longer a threat to the health, safety and welfare of residents and visitors of the City, the EOC Director may recommend that the declaration of emergency is terminated. The HOC and / or Council may terminate an emergency and are responsible for making an official termination of declared emergency in writing26. The Premier of Ontario may also terminate an emergency at any time27.
In order to terminate an emergency, the HOC and / or Council will fill out and sign the Termination of Emergency template in the Binder as prepared by the City Clerk and send to the Provincial Emergency Operations Centre (fax: 416-314-0474).
The EOC Director is responsible for ensuring that all personnel are advised of the termination of the emergency. The HOC is responsible for notifying the parties listed above.
7.0 Post-incident activities
7.1 Demobilization
Developing plans for demobilization of EOC personnel and resources is the responsibility of the Planning Section. Once the emergency situation has stabilized and a coordinated response by the MECG is no longer required, the EOC Director may begin to return or demobilize some resources.
Demobilization does not result in the suspension of response activities, but indicates that these activities can be managed through the City’s regular business units going forward.
7.2 Recovery
Strategies to recover from an emergency may be initiated while the incident is still ongoing, as well as after it has been resolved. Actions towards recovery may include restoration of utilities, services, and other infrastructure, as well as long-term debris management, inspection services, redevelopment, facility reconstruction, and psychosocial support.
7.3 Incident Debriefing
An incident debriefing is a meeting or series of meetings of key representatives from responding organizations, organized by a CEMC, to formally discuss issues of mutual interest pertaining to the emergency, and review lessons learned.
Incident debriefing is a critical component of an EOC operation. It offers a chance for all parties to collect, collate, and clarify their experiences during the emergency, especially as it pertains to actions, decisions and adherence to established plans.
An incident debriefing is not an enquiry, and its purpose is not to highlight personal faults. No individuals, or their judgement or decisions should be called into question during these sessions, and all persons are assumed to have responded in the best interests of their organizations and the community. The goal is to determine how well or how poorly the Plan worked.
The following topics should be addressed during the incident debriefing:
- What worked well?
- What are some opportunities for improvement?
- What gaps or missing pieces exist in the Plan or response?
7.4 After Action Report
A CEMC will complete a formal After Action Report (“AAR”), in coordination with members of the MECG and, if required, other organizations and agencies. This report will capture all aspects of the emergency that were under the EOC’s control, as it relates to the events of the emergency, the operational impacts, concerns and issues, associated costs, and recommendations and findings from the incident debriefing(s). The AAR will serve as an input for future review and revisions of the ERP and related plans and procedures.
7.5 Compensation for Losses
The Municipal Disaster Recovery Assistance (MDRA) program will help municipalities address extraordinary emergency response costs and damage to essential property or infrastructure like bridges, roads and public buildings, as a result of a natural disaster.
The Disaster Recovery Assistance for Ontarians (DRAO) program provides assistance to individuals, small businesses, farmers and not-for-profit organizations that have experienced damage to, or loss of, essential property as a result of a natural disaster. For further information, visit the website of the Ministry of Municipal Affairs and Housing.
8.0 Supporting documents
This section outlines the other documents and plans that support emergency response and recovery in the City. Unless otherwise indicated, copies of these documents are found in the Binder.
8.1 EOC Standard Operating Guidelines
This document outlines the procedures involved in activation and operation of the EOC
facility.
8.2 IMS Guidelines
The Binder includes copies of the IMS Guidance Version 2.0, IMS Position
Responsibility Checklists, and an IMS Forms Package.
These documents include details on guiding principles, managing information and
resources, and roles and responsibilities for functions within the IMS. The checklists are
designed to enable the MECG and Support Group teams to fulfil their key
responsibilities as EOC personnel.
8.3 Declaration and Termination of an Emergency Checklist(s) and Template(s)
These checklists is a reference tool designed for the HOC, outlining the criteria to
consider when determining whether a situation, actual or anticipated, warrants the
declaration of an emergency. A copy can be found in the Binder, along with templates of
the document to fax to PEOC.
8.4 Regional Emergency Social Services Plan
The aim of the Regional ESSP is to guide the Region’s coordinated response, in
partnership with local municipalities and community partners, to provide primary and
specialized services to meet the essential needs of vulnerable people impacted by an
emergency. As defined by the ESSP, ESS includes the provision of food, clothing,
shelter, registration and inquiry, and personal services during and following an
emergency in order to meet essential human needs. ESS also provides temporary
rehabilitation assistance until regular pre-Emergency Social Services resume
operations, or until other plans and programs come into effect.
8.5 Community Pandemic Influenza Preparedness Plan
This document describes how the Region of Waterloo Public Health, in collaboration
with community stakeholders, will respond to an influenza pandemic.
9.0 Acronyms and abbreviations
| Acronym/Abbreviation | Definition |
|---|---|
| AAR | After Action Report |
| CAO | Chief Administrative Officer |
| CEMC | Community Emergency Management Coordinator |
| CFO | Chief Financial Officer |
| CRC | Canadian Red Cross |
| CSD | Commissioner of Community Services |
| DRAO | Disaster Recovery Assistance for Ontarians |
| EIO | Emergency Information Officer |
| EMCPA | Emergency Management and Civil Protection Act |
| EMO | Emergency Management Ontario |
| EMPC | Emergency Management Program Committee |
| EOC | Emergency Operations Centre |
| ERP | Emergency Response Plan |
| ESS | Emergency Social Services |
| ESSP | Emergency Social Services Plan |
| FRP | First Response Protocol |
| HOC | Head of Council |
| IAP | Incident Action Plan |
| IC | Incident Commander |
| IMS | Incident Management System |
| MDRA | Municipal Disaster Recovery Assistance |
| MECG | Municipal Emergency Control Group |
| MOU | Memorandum of Understanding |
| PEOC | Provincial Emergency Operations Centre |
| PPE | Personal Protective Equipment |
| RECG | Regional Emergency Control Group |
| SJA | St. John Ambulance |
| WRPS | Waterloo Regional Police Service |
10.0 Schedule B
| Item | Definition |
|---|---|
| Goals |
As a provincially mandated body the Emergency Management Program |
| Objectives |
The committee ensures the continual development of programs to The committee shall conduct an annual review of the municipality’s |
| Membership |
|
| Co-Chairs |
|
| Meeting minutes |
Meetings may be held annually, or as needed. |
| Accountability |
This is a standing committee required by the provincial Emergency This committee is accountable to Council and shall advise Council on the |
| Agenda |
The agenda will be prepared by the Community Emergency Management |
| Attendance |
If the primary representative cannot attend the member should send a |
| Quorum | At minimum 50% plus 1 must be represented. |