CITY OF TORONTO EMERGENCY PLAN
Emergency Support
Function
Evacuation
Toronto Police Service
Version 4.0
November 2014
Evacuation OSF – November 2014
Table of Contents
1.0
Introduction .................................................................................................................... 3
1.1
Purpose ......................................................................................................................... 3
1.2
Scope ............................................................................................................................ 4
1.3
Assumptions.................................................................................................................. 4
2.0
Concept of Operations ................................................................................................... 5
2.1
General ......................................................................................................................... 5
2.1.1 Decision to Evacuate................................................................................................... 6
2.1.2 Notification .................................................................................................................. 6
2.1.3 Response / Withdrawal ............................................................................................... 6
2.1.4 Sheltering of Evacuees ............................................................................................... 7
2.1.5 Re-Entry ...................................................................................................................... 7
2.2 Operating Procedures ....................................................................................................... 7
2.2.3 Unified Command Coordination .................................................................................. 7
3.0
Roles and Responsibilities ............................................................................................ 8
3.1
Primary / Lead Agency / Division .................................................................................. 8
3.1.1
3.2
Toronto Police Service ........................................................................................... 8
Supporting Agencies / Divisions .................................................................................... 8
3.2.1
Toronto Paramedic Services .................................................................................. 8
3.2.2
Toronto Fire Services ............................................................................................. 8
3.2.3
Transportation Services ......................................................................................... 9
3.2.4
Office of Emergency Management .......................................................................... 9
3.2.5
Toronto Transit Commission .................................................................................. 9
3.2.6
Strategic Communications ..................................................................................... 9
Emergency Support Function
Evacuation
In the event of large scale incidents, responding agencies should operate in accordance
with Incident Management System principles, under a unified command structure.
Primary / Lead Agency / Division:
Toronto Police Service
Supporting Agencies / Divisions:
(ABCD's)
Toronto Paramedic Services
Toronto Fire Services
Transportation Services
Toronto Transit Commission
Strategic Communications
Office of Emergency Management
1.0
Introduction
An emergency event or natural disaster may require action to protect public safety
which could involve the removal of every person from a given area. Flooding, a power
outage, explosions, severe building damage, serious criminal incidents, and severe
weather are examples of the types of emergencies that may require an evacuation in
the city of Toronto. Ensuring public safety through evacuation requires an evaluation of
the risks involved, and the consequences for the community.
Evacuation refers to the movement of people, their service animals and their pets,
whether spontaneously or in an organized manner, from an area of danger or imminent
danger, to a place considered safe.
Evacuation might be required prior to an incident during a warning phase such as with
severe storms, a release of gaseous substance or a bomb threat. More typically an
evacuation is the result of an incident that has already occurred such as a power
outage, explosion or severe building damage. A process for evacuees to re-enter the
evacuated zone is required once the area is deemed safe.
This support function provides an overview of the City’s plan for mobilizing, organizing
and controlling an evacuation, and describes the overview of the process for re-entry of
evacuees.
1.1
Purpose
This Emergency Support Function (ESF) deals with planning and preparing for a
decision to evacuate an area in the event of an emergency or pending emergency, a
description of responsibilities to conduct the evacuation, and the process for re-entry. It
includes a description of the responsibilities of staff, agencies and procedures involved
in alerting the community of the need to evacuate, movement of the population during
the evacuation and re-entry of the population once the affected area is deemed safe.
Since emergencies and pending emergencies are diverse in nature it is difficult to
create a plan that has a detailed account of the duties involved. The aim of this
document is to provide guidance for the responsibilities that will ensure the safety and
security of the community during an emergency evacuation.
1.2
Scope
This ESF sets out all the operations, tasks and functions to be addressed in making
plans that will lead to consistent and optimal decisions taking account of the
circumstances of a particular emergency.
An evacuation or potential evacuation will involve the movement of people from an
affected area to a safe area. This movement might require the use of municipal
resources or the requirement for those in the area to self-evacuate. In both instances
provisions must be made to provide the evacuees with a place of shelter and support
once displaced from their community, to begin the recovery process.
Communication and coordination between the identified lead and support agencies is
critical to the success of an evacuation in the City of Toronto.
1.3
Assumptions

Evacuation is used when a serious threat to public safety exists. In some instances,
a viable alternative to evacuation is to recommend “shelter-in-place”

While police, firefighters, or others may be authorized to order persons to secure an
area and exclude persons from it, this is not considered an “evacuation order” under
the Emergency Management and Civil Protection Act (EMCPA)

The EMCPA provides the province with the ability to make an evacuation order only
after a provincial emergency has been declared

Evacuation operations include alerting the community of the need to evacuate,
mobilizing, organizing, and controlling the movement of the population during the
evacuation and re-entry of the population once the impacted area is deemed safe

The recommendation to evacuate will likely be made by the emergency services
(Police, Fire and Toronto Paramedic Services)

Police are the lead agency in the operational execution of an evacuation

There may or may not be any forewarning that an evacuation is required

There is limited municipal authority to forcibly remove residents

Pets are included in evacuation plans
2.0
Concept of Operations
2.4
General
The Concept of Operations is intended to provide overall guidance to municipal staff on
the areas of responsibility and proper response to an evacuation in the event of a major
emergency, irrespective of the cause.
A timely and efficient evacuation from an urban area involves five stages; decision to
evacuate, notification, response / withdrawal, sheltering and re-entry.
Emergency or Pending Emergency
Decision
Evacuate, Self-Evacuate, Shelter-in-Place
Notification
Public Alerting, Warning Message
Response / Withdrawal
Traffic Management / Transportation
Emergency Social Services
Reception Centre, Temporary Accommodation
Security
Site, Reception Centre, Critical Infrastructure/
Potential Terrorist Targets
Re-Entry
2.4.1
2.4.2 Decision to Evacuate
The decision to evacuate should be made by the on-site Incident Commander or
collectively under unified command. The decision to evacuate is made either prior to
the incident occurring in the event of a pending emergency or in response to an incident
that has occurred. In the event of a pending emergency, like a potential flood, the
decision to evacuate might be made at the strategic level (i.e. by the Control Group in
the Emergency Operations Centre). Once a decision has been made, this decision will
be communicated to all tactical, operational and strategic levels along with the
supporting agencies for successful implementation of this evacuation plan.
2.4.3 Notification
The notification phase is comprised of dissemination of public information in the form of
advice or direction and staging of egress routes prior to the response/withdrawal phase.
Notifications will be made through established unified communications systems with
Toronto Police Service taking the lead to warn the public. This stage consists of
informing people within the decision-making structure (those managing the emergency)
and outside it (the other responders), the public, and the media of the evacuation
strategy. The supporting agencies, as outlined in this plan will be notified as soon as
the decision to evacuate has been made. Secondary notifications will be made as
outlined in the Notification Operational Support Function.
If the emergency is of the magnitude that the City of Toronto Emergency Plan is to be
activated, messaging will be centralized through Strategic Communications at the
Emergency Operations Centre in accordance with the Emergency Information and
Media Relations Emergency Support Function.
Compliance with an evacuation recommendation or order often varies widely depending
on distance from the hazard, perception of risk, socio-economic status, background,
level of education, etc. Evacuation responses can also depend on who the disaster
spokesperson is and how the emergency message itself is formulated and delivered.
Therefore, it is critical for the message to come from a centralized, coordinated source.
2.4.4 Response / Withdrawal
The response /withdrawal phase involves the removal of people from a dangerous or
potentially dangerous area to a safe location. When planning an evacuation, tactical
and operational considerations should include phasing/prioritization, egress routes,
assembly points, special needs populations and animal care.
In this phase the decision on dealing with the actual emergency is implemented. This
involves two different steps: Announcing the decision internally and externally and
establishing the resources required to support the evacuation operations (warning,
reception centres, and subsequent communications etc.).
Effective traffic control is needed to ensure the orderly flow of emergency vehicles into
the emergency area and evacuee vehicles out of the affected area. Traffic control
measures may include police officers, road barriers, traffic signals, designation of oneway streets, signs, etc., at critical points to expedite a safe and orderly evacuation.
2.4.5 Sheltering of Evacuees
Sheltering is the process of providing for the immediate basic needs of the affected
people away from the immediate or potential effects of the hazard. Sheltering is
managed in accordance with the Emergency Social Services Emergency Support
Function.
2.4.6 Re-Entry
Re-entry is the systematic approach to returning inhabitants to the affected area safely.
The re-entry process is aimed at an orderly return to the impacted area while
maintaining the security of the site. Municipal officials and utility companies will perform
an assessment of the impacted area to determine if it is safe for inhabitants to return.
The assessment of the disaster area should be conducted in line with the Damage
Assessment Emergency Support Function. The final decision to allow re-entry into the
disaster area will be coordinated at the operational level and communicated through the
tactical, operational and strategic levels.
Re-entry or return can be phased or unrestricted. A phased re-entry process involves
allowing inhabitants to return to only those areas deemed safe after debris is removed,
buildings are inspected and identified safe and utilities have been restored.
Unrestricted re-entry allows inhabitants of the emergency area to return after they are
verified as inhabitants of the area.
2.5
Operating Procedures
All responding agencies / divisions will coordinate their inter-agency response on site
according to internal agency procedures. In Toronto the Incident Management System
has been adopted by a number of Divisions, Agencies, Boards and Commissions.
2.5.7 Unified Command Coordination
Each agency shall designate an inter-agency liaison officer to ensure coordinated
incident site management and adequate communication is achieved through frequent
exchange of information, especially with respect to the hazards and status of the
operational activities. Unified command and coordination will be established according
to accepted Incident Management System protocols.
3.0
Roles and Responsibilities
3.1
Primary / Lead Agency / Division
3.1.1 Toronto Police Service
As the Lead Agency / Division, Toronto Police Service will:
 Coordinate evacuation procedures with the other emergency services and
supporting agencies
 Lead the evacuation process by directing traffic and monitoring the affected area
 Provide for security at the site (prevent people from moving around in the
disaster area and coordinate adequate protection for the sector that has been
evacuated while the inhabitants are away until the all-clear signal has been
given)
 During a general evacuation assist with notifying the public and direct traffic as
required.
 Provide security at evacuation/reception sites as required
 Liaise as appropriate with the Office of Emergency Management or the
Emergency Operations Centre
3.2
Supporting Agencies / Divisions
3.2.1 Toronto Paramedic Services
Under the direction of the Site Incident Manager (Incident Commander) or designate,
Toronto Paramedic Services will:




Coordinate medically necessary evacuation strategies with the emergency
services and other supporting agencies
Evacuate Toronto Paramedic Services facilities within the affected area
Where possible, support the medically necessary evacuation strategies of
Hospitals and other special addresses in accordance with their site-specific
evacuation procedures
Assist with the notification of all Hospitals and the Ministry of Health and LongTerm Care
3.2.2 Toronto Fire Services
Under the direction of the Site Incident Manager (Incident Commander) or designate,
Toronto Fire will:



Provide the appropriate emergency response
Coordinate evacuation procedures with the emergency services and other
supporting agencies
Support Toronto Police Service in notification of instructions to the public in the
affected area
3.2.3 Transportation Services
Under the direction of the Site Incident Manager (Incident Commander) or designate,
Transportation Services will:




Assist in the planning, design, implementation, coordination, monitoring and
maintenance for the mobilization and demobilization of evacuation routes
Provide signage and barricades
Make changes to traffic signals and re-routing traffic where required
Coordinate with the Ministry of Transportation Ontario Highways 401, 427 and
404
3.2.4 Office of Emergency Management
Under the direction of the Site Incident Manager (Incident Commander) or designate,
the Office of Emergency Management will:



Activate the Emergency Social Services Emergency Support Function
Identify appropriate location for reception centres
Provide information about the emergency to evacuees, registration, shelter, food,
registration and enquiry, and personal services to the evacuated population
3.2.5 Toronto Transit Commission
Under the direction of the Site Incident Manager (Incident Commander) or designate,
TTC will:


Assist with mass evacuation of persons within and near the area as required
Notify and coordinate with appropriate transportation agencies (i.e. GO Transit,
Bus Terminal – 610 Bay Street)
3.2.6 Strategic Communications
Under the direction of the Site Incident Manager (Incident Commander) or designate,
Strategic Communications will:

Activate the Emergency Information and Media Relations Emergency Support
Function
Revision History - Evacuation
Revision Name of Contributor
Number
1.0
Toronto Police Service
Summary Of Changes
Revision Date

Revised
May 2005
2.0
B. Neadles (Toronto
Police Service) & OEM

Revised
November 2008
3.0
B. Neadles (Toronto

Police Service), J.
Smysnuik and W. Banon 
(OEM)

January 2013
4.0
B. Neadles (TPS)
J.Smysnuik (OEM)
Reformatted to revised
ESF Template
Revised
Incorporated comments
from Supporting
Agencies
Revised to include name
changes to ESF and
Toronto Paramedic
Services

5.0

6.0

7.0

November 2014