Emergency Social Service Level Classifications

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CITY OF TORONTO EMERGENCY PLAN
Emergency Support
Function
Emergency Social Services
Office of Emergency Management
Version 4.0
December 2015
Table of Contents
1.0 Introduction ........................................................................................................... 5
1.1 Purpose ........................................................................................................... 5
1.2 Scope .............................................................................................................. 5
2.0 Concept of Operations.......................................................................................... 5
2.1 General ........................................................................................................... 5
2.2 Emergency Level Notifications ........................................................................ 6
2.3 Emergency Social Service Level Classifications ............................................. 6
2.3.1
2.3.2
2.3.3
Notification Response ........................................................................ 6
Curbside Response ........................................................................... 6
Emergency Reception Centre Response ........................................... 6
2.4 Incident Management System ......................................................................... 7
2.5 Services Provided ........................................................................................... 7
2.5.1
2.5.2
Standard Services ............................................................................. 7
Specialized Services .......................................................................... 8
2.6 Eligibility and Length of Support Provided ..................................................... 10
2.7 Emergency Incident Building Repair Committee ........................................... 10
3.0 Roles and Responsibilities................................................................................. 10
3.1 Primary/Lead/Division ................................................................................... 11
3.1.1
Office of Emergency Management .................................................. 11
3.2 Supporting Agency/Division .......................................................................... 11
3.2.1
3.2.2
3.2.3
3.2.4
3.2.5
3.2.6
3.2.7
3.2.8
3.2.9
3.2.10
3.2.11
3.2.12
3.2.13
3.2.14
3.2.15
3.2.16
3.2.17
311 Toronto ..................................................................................... 11
Corporate Security ........................................................................... 11
Information & Technology ................................................................ 11
Long-Term Care Homes and Services (LTCHS) ............................. 11
Municipal Licensing and Standards Division, Toronto Animal Services
......................................................................................................... 12
Parks, Forestry & Recreation, Community Recreation Branch ........ 12
Shelter, Support and Housing Administration .................................. 12
Social Development, Finance, and Administration ........................... 12
Solid Waste Management ................................................................ 13
Strategic Communications ............................................................... 13
Toronto Building ............................................................................... 13
Toronto Children’s Services ............................................................. 13
Toronto Employment and Social Services ....................................... 13
Toronto Fire Services ...................................................................... 14
Toronto Office of Partnerships ......................................................... 14
Toronto Paramedic Services............................................................ 14
Toronto Community Housing Corporation........................................ 14
Emergency Social Services Emergency Support Function
2
3.2.18 Toronto Public Health ...................................................................... 14
3.2.19 Toronto Public Library ...................................................................... 14
3.3 External Supporting Agency/Division ............................................................ 15
3.3.1
3.3.2
3.3.3
3.3.4
3.3.5
3.3.6
3.3.7
3.3.8
3.3.9
3.3.10
3.3.11
Canadian Red Cross ....................................................................... 15
Community Care Access Centres .................................................... 15
Greater Toronto Hotel Association ................................................... 15
Local Health Integration Networks ................................................... 15
Insurance Bureau of Canada ........................................................... 15
Landlords/Building Owners .............................................................. 15
St. John Ambulance ......................................................................... 16
Salvation Army ................................................................................. 16
Toronto Police Service ..................................................................... 16
Toronto Transit Commission ............................................................ 16
Toronto School Boards .................................................................... 16
4.0 Revision History .................................................................................................. 17
Emergency Social Services Emergency Support Function
3
Emergency Support Function
Emergency Social Services
Primary / Lead Agency / Division: Office of Emergency Management
Supporting Agencies / Divisions: 311 Toronto
(ABCCDs)
Corporate Security
Information & Technology
Long-Term Care Homes and Services
Municipal Licensing and Standards
Parks, Forestry & Recreation
Shelter, Support and Housing Administration
Social Development, Finance and Administration
Solid Waste Management Services
Strategic Communications
Toronto Building
Toronto Children’s Services
Toronto Employment and Social Services
Toronto Fire Services
Toronto Office of Partnerships
Toronto Paramedic Services
Toronto Community Housing Corporation
Toronto Public Health
Toronto Public Library
External Supporting Agencies /
Divisions:
Canadian Red Cross
Community Care Access Centres (Toronto Central,
Central, Central West, Mississauga, Halton and
Central East)
Greater Toronto Hotel Association
Local Health Integration Networks (Toronto Central,
Central, Central West, Mississauga, Halton and
Central East)
Insurance Bureau of Canada
Salvation Army
St. John Ambulance
Toronto Police Service
Toronto Transit Commission
Toronto School Boards
Emergency Social Services Emergency Support Function
4
1.0 Introduction
Emergency Support Functions are supporting documents to the City of Toronto
Emergency Plan. While these are stand-alone documents not contained in the
Emergency Plan they provide the structure and framework for integrated support by
Lead and Supporting Agencies, Boards, Commissions, Corporations and Divisions
(ABCCDs) in the most frequently grouped operational functions responding to
emergencies.
1.1
Purpose
The Office of Emergency Management has responsibility for the development of the
Emergency Social Services Emergency Support Function. This Emergency Support
Function outlines the response provided when residents are displaced or otherwise
affected by an emergency.
1.2
Scope
This Emergency Support Function guides the Emergency Social Services response
provided during Level 1 – Incidents up to Level 3 – Major Emergency (as defined in the
Emergency Level Notifications Emergency Support Function). It:



Defines Emergency Social Services Level classifications
Describes the services that are offered and how they will be provided, and
Summarizes the roles of Emergency Social Services Responders
This Emergency Support Function does not include services for people who require
immediate medical care. When evacuees who need immediate medical assistance are
identified, services are provided by Toronto Paramedic Services through 911 calls and
other procedures. Long-term housing is also outside the scope of this Emergency
Support Function.
2.0 Concept of Operations
2.1
General
This Emergency Support Function will be activated when an Emergency Social Services
response is required.
Emergency Social Services are provided in response to the urgent needs of people and
their pets and service animals once they have been removed from danger as a result of
an emergency in their community.
The City uses available resources – staff and facilities – to provide Emergency Social
Services in times of need. Primary services provided include: emergency
accommodation, food, clothing, registration and inquiries and personal support services.
Emergency Social Services Emergency Support Function
5
During an emergency, evacuees can experience a range of reactions. These may limit
their capacity to cope effectively and seek out and get the help they need during an
emergency. Most evacuees are able to make plans and arrangements to look after
themselves in a short period of time. However, some people may not be able to make
plans to look after themselves and they may be unable to access services without
assistance. The Emergency Social Services Emergency Support Function includes
specialized services to assist residents with decision making and accessing Emergency
Social Services.
2.2
Emergency Level Notifications
The Emergency Level Notifications Emergency Support Function defines the
Emergency Response level of an incident and the responsibilities of the Office of
Emergency Management and other responders.
Emergency social services responses are mapped to Emergency Levels.
2.3
Emergency Social Service Level Classifications
Notification Response
This response is activated for geographically dispersed incidents, where
residents are advised to stay in their homes (e.g. power outage) and there are no
extenuating circumstances such as extreme weather conditions. During
Notification responses, residents shelter in place. Community Care Access
Centres contact identified clients who may be at risk. Public messaging
encourages local networks and residents to reach out to people who may be
vulnerable.
Notification responses are classified as Level 1 Incidents.
Curbside Response
This response is activated for when residents have been evacuated from their
homes and there is no extreme weather. Curbside responses may involve a
small number of households (up to 15 persons) or an evacuation that is forecast
to last for a short period of time (less than 12 hours).
Curbside responses are classified as Level 1 Incidents.
Emergency Reception Centre Response
This response is activated in incidents that involve larger numbers of evacuees,
and it is difficult to forecast the length of the evacuation. This response may also
be activated to open a Family Assistance Centre when the Mass Fatality or Mass
Casualty Emergency Support Functions are activated.
Emergency Reception Centres are operated at accessible locations close to the
site of the incident, as appropriate, usually at a City community centre
Emergency Social Services Emergency Support Function
6
Reception Centre services depend upon the complexity of the response and
available resources, ranging from information and referral up to and including
temporary overnight accommodation and meals.
Emergency Reception Centre Responses are classified as Level 2 Emergency or
Level 3 Major Emergency, depending on the range of services required and the
duration or the magnitude of the response.
2.4
Incident Management System
Emergency Social Services responses are guided by the Incident Management System
Emergency Support Function. The Incident Management System provides an effective,
flexible, and consistent structure and process that is scalable to manage incidents by all
levels of government, emergency response organizations, communities, ministries, nongovernment organizations, and the private sector.
The Incident Management System Emergency Support Function guides the activities of
the Emergency Operations Centre, which may be activated in an Emergency Social
Services response. It is implemented when the Office of Emergency Management
and/or the Emergency Operations Centre is required to provide any one or a
combination of the following:







2.5
Effective policy and strategic direction to the emergency;
Support of emergency operations at the site(s)
Consequence management;
Resource management;
Coordination of management linkages to the emergency site, Divisional
Operations Centre, external agencies and the Provincial Emergency Operations
Centre;
Information to the public and news media; and
Business continuity for the rest of the City.
Services Provided
The Emergency Social Services response consists of standard and specialized
services. The specific nature of the incident will determine the services provided. The
Office of Emergency Management or the Emergency Operations Centre coordinates the
response. Services are provided and/or facilitated by pre-identified Emergency Social
Services Responders with pre-determined roles.
Standard Services
Standard services are provided to meet basic needs of people and their service
animals and pets when they are out of immediate danger due an emergency
situation.
Emergency Social Services Emergency Support Function
7
Services include:







Evacuee registration
Inquiries (family reunification)
Information and referrals
Emergency food and clothing distribution (provided through various
sources)
Temporary emergency shelter/lodging (including, if required, overnight
accommodation in the Emergency Reception Centre)
Urgent personal needs beyond immediate food and lodging such as
health needs, financial assistance or Social Services supports.
Assistance with service animals and evacuee's pets
Specialized Services
Specialized services are provided to ensure that those who are unable to access
Emergency Social Services or to make their own arrangements during an
evacuation are provided with additional support they need to access temporary
emergency accommodation, food and other services that are offered to
evacuees.
Depending upon need, specialized services are provided through the specialized
services branches:








First Aid
Health and Special Needs
o Unattended children
o Health
o Public Health
o Specialized Temporary Accommodation
o Housing
Multi-Culture and Language
Animal Care
Transportation
Psychosocial
Recreation
Financial Assessment
Who Receives Specialized Services
Emergency Social Services responders identify people who may be at risk
during the registration process. Evacuees over the age of 16 are asked to
complete a functional assessment consisting of standardized questions that
are scored according to a standardized code. The assessment is completed
as evacuees register to receive services.
The registration identifies functional barriers that prevent residents from
accessing Emergency Social Services. There are five types of barriers:
Emergency Social Services Emergency Support Function
8
Communication, Medical, Functional Independence, Supervision and
Transportation (C-MIST). The C-MIST enables emergency responders to
identify people who need extra assistance and to plan the assistance
required. The assistance may come through City Divisions or other agencies,
including the Toronto Central Local Health Integration Network. Definitions of
each category and examples of a service response follow.
2.5.2.1.1
Communication
Some people have difficulties receiving and responding to information.
People with communication needs may have reduced or no ability to see,
hear, or speak; or have limitations understanding or learning. This
category also includes people who cannot speak, read, or understand
English.
Services that may typically be required include translation, sign language,
and one-on-one communication.
2.5.2.1.2
Medical
People who are very ill when evacuated, perhaps bed-ridden due to a
chronic condition, clearly require dedicated supports from a health care
professional that exceed the capability of the Emergency Reception
Centre. They will be transported to an appropriate temporary care facility.
Services required may include assistance with managing unstable,
terminal or contagious conditions, professional observation and ongoing
treatment; managing intravenous therapy, tube feeding, and vital signs;
dialysis, oxygen, and suction administration; managing wounds; and
operating power-dependant equipment to sustain life.
2.5.2.1.3
Independence
Some individuals require support to be independent in daily activities and
may lose this support during an emergency or disaster.
Such situations may call for the provision of consumable medical supplies
for people of all ages (incontinence supplies, formula, bandages, ostomy
supplies, etc.), durable medical equipment (wheelchairs, walkers,
scooters, etc.), service animals, and / or attendants or caregivers.
Providing the necessary support to these individuals at the Emergency
Reception Centre may enable them to maintain their pre-emergency level
of independence. Residents may require temporary accommodation away
from the Emergency Reception Centre.
2.5.2.1.4
Supervision
Some individuals may lose the support of caregivers, family or friends or
may be unable to cope in a new environment at an Emergency Reception
Centre (particularly if they have dementia, Alzheimer’s or psychiatric
conditions such as schizophrenia or intense anxiety). In the aftermath of
Emergency Social Services Emergency Support Function
9
an emergency, they are likely to need supervision. Staff notify Police of
unattended children but in the meantime, they too will require supervision,
support, and developmentally appropriate care.
Emergency Reception Centres staff may establish a section of the
Emergency Reception Centre as a “supervised” area. For some
vulnerable individuals, this may be a temporary situation until other
services are provided.
2.5.2.1.5
Transportation
Individuals who have mobility issues and accessibility needs may require
transportation support for successful evacuation.
In addition there may be individuals who cannot drive or do not have a
vehicle and may require other transportation assistance.
This support may include transportation equipment such as accessible
vehicles or information about how and where to access mass
transportation during an evacuation, as well as access to public transit and
taxi cabs and chartered vehicles.
2.6
Eligibility and Length of Support Provided
All evacuees will be provided with assistance, information and referrals to community
services. These services are offered at the Emergency Reception Centre.
Residents who register with the City are eligible for Emergency Social Services, such as
temporary accommodation, food, clothing and transportation assistance, for up to 14
days immediately following the emergency incident.
Households that meet assessed low-income eligibility criteria may be eligible for
continued supports, including accommodation, food and transportation assistance,
beyond 14 days. Evacuees are encouraged to make other arrangements or to stay with
friends and family wherever possible.
To receive temporary accommodation and other emergency social services, evacuees
will be required to provide information and complete all necessary documents regarding
their insurance coverage within the first three days of the emergency for the purpose of
cost recovery and transfer of service to private insurance coverage, if appropriate.
2.7
Emergency Incident Building Repair Committee
An Emergency Incident Building Repair Committee may be established as provided in
the Damage Assessment Emergency Support Function.
3.0 Roles and Responsibilities
The roles and responsibilities of specific Emergency Social Services Responders
include the range of skills necessary to deliver the Emergency Social Services
Emergency Support Function.
Emergency Social Services Emergency Support Function
10
3.1
Primary/Lead/Division
Office of Emergency Management
As the Lead Division, the Office of Emergency Management is responsible for
coordinating Emergency Social Services responses.
The responsibilities include




3.2
Maintaining a 24/7 standby response capacity
Activating an Emergency Social Services response curbside or at an
Emergency Reception Centre, with the assistance of the Canadian Red
Cross
Ensuring Standard and Specialized Emergency Social Services
assistance is provided
Activating the Emergency Operations Centre to support the emergency
social services response.
Supporting Agency/Division
All Emergency Social Services Responders operate under the Incident Management
System. Responders supporting Emergency Social Services responses have the
following pre-determined roles and responsibilities as required.
311 Toronto


Provides information and responds to inquiries from evacuees and the
public as required
Supporting agency in Emergency Information and Media Relations
Emergency Support Function
Corporate Security


Provides security services at Emergency Reception Centres
Staff the Support Branch, Logistics Section, in the Emergency
Operations Centre
Information & Technology


Provides hardware and support in establishing work stations and
network capacity at Emergency Reception Centres
Staff the Information and Technology Branch, Logistics Section, in the
Emergency Operations Centre
Long-Term Care Homes and Services (LTCHS)

Assists with emergency accommodation for residents requiring long term
care settings in the Health and Special Needs Branch
Emergency Social Services Emergency Support Function
11

Staff the Emergency Social Services Branch, Operations Section, in the
Emergency Operations Centre
Municipal Licensing and Standards Division, Toronto Animal
Services


Delivers animal care in accordance with the Animal Care & Relief
Emergency Support Function in the Animal Care Branch of Specialized
Services
Staff the Emergency Social Services Branch, Operations Section, in the
Emergency Operations Centre
Parks, Forestry & Recreation, Community Recreation Branch




Makes City Community Centres available as Emergency Reception
Centres as directed by the Toronto Emergency Management Program
Committee
Provides Logistics Section at Emergency Reception Centres and
coordinates as required the Facilities, Maintenance, Security,
Information Technology, Staff Management and Admin Office branches
Provides specialized services at Emergency Reception Centres in the
recreation branch where space allows
Staff the Emergency Social Services Branch, Operations Section, in the
Emergency Operations Centre
Shelter, Support and Housing Administration





Provides specialized services at Emergency Reception Centres, in the
Health and Special Needs Branch
Provides assistance in accessing emergency shelter for those identified
as having no fixed address (either prior to the event, or as a result of the
event and require emergency shelter)
Provides assistance in accessing/connecting to housing outreach/follow
up services at the conclusion of the emergency for those identified as
having no fixed address
Staff the Operations Lead for Specialized Services at an Emergency
Reception Centre and coordinate as required the First Aid, Health and
Special Needs, Multi-Culture and Language, Animal Care,
Transportation, Psychosocial, Recreation and Financial Assessment
branches
Staff the Emergency Social Services Branch, Operations Section, in the
Emergency Operations Centre
Social Development, Finance, and Administration

Staff the Operations Lead for Specialized Services at an Emergency
Reception Centre and coordinate as required the First Aid, Health and
Emergency Social Services Emergency Support Function
12
Special Needs, Multi-Culture and Language, Animal Care,
Transportation, Psychosocial, Recreation and Financial Assessment
branches
Solid Waste Management

Provides extra waste collection services, if requested, at Emergency
Reception Centres that are located at City collection sites
Strategic Communications



Provides communication supports in accordance with the Emergency
Information and Media Relations Emergency Support Function
Coordinates with 311 Toronto on standard messaging for the public
Staff the Information function in the Management Team (Command) at
the Emergency Operations Centre
Toronto Building

Inspects and assesses building and coordination of remedial actions
required to remove unsafe conditions as per the Damage Assessment
Emergency Support Function
Toronto Children’s Services



Provides specialized services at Emergency Reception Centres in the
Health and Special Needs and Recreation Branches
Staff the Operations Lead for Specialized Services at an Emergency
Reception Centre and coordinate as required the First Aid, Health and
Special Needs, Multi-Culture and Language, Animal Care,
Transportation, Psychosocial, Recreation and Financial Assessment
branches
Staff the Emergency Social Services Branch, Operations Section, in the
Emergency Operations Centre
Toronto Employment and Social Services



Provides specialized services at Emergency Reception Centres in the
Financial Assessment Branch
Staff the Operations Lead for Specialized Services at an Emergency
Reception Centre and coordinate as required the First Aid, Health and
Special Needs, Multi-Culture and Language, Animal Care,
Transportation, Psychosocial, Recreation and Financial Assessment
branches
Staff the Emergency Social Services Branch, Operations Section, in the
Emergency Operations Centre
Emergency Social Services Emergency Support Function
13
Toronto Fire Services


Where possible, assists with retrieval of medication and other related
items for evacuees
Inspects and assesses Fire and Life Safety Systems before building reoccupation
Toronto Office of Partnerships

Activates the Emergency Donation Management Emergency Support
Function at the direction of the Toronto Emergency Management
Program Committee

Staff the Toronto Paramedic Services Branch, Operations Section, in the
Emergency Operations Centre
Provide paramedic services as Emergency Reception Centres in
response to 911 calls
May provide additional assistance when requested by the Office of
Emergency Management or the Emergency Operations Centre
Toronto Paramedic Services


Toronto Community Housing Corporation

Administers the protocol between Toronto Community Housing
Corporation and the City to guide the provision of services when
emergency social services at Toronto Community Housing Corporation
buildings
Toronto Public Health


Monitors for health hazards, food safety, potable water and sanitation at
Emergency Reception Centres and in evacuated buildings.
Ensures infection control measures are in place to prevent or control
communicable diseases
Toronto Public Library



Makes library meeting rooms available for limited Emergency Reception
Centre services
Provides logistics services to Emergency Reception Centre services
located in Libraries
Provides specialized services at Emergency Reception Centres in the
Recreation branch
Emergency Social Services Emergency Support Function
14
3.3
External Supporting Agency/Division
All Emergency Social Services Responders operate under the Incident Management
System. Responders supporting Emergency Social Services responses have the
following pre-determined roles and responsibilities, as required.
Canadian Red Cross



Manages and delivers emergency social services in accordance with
City of Toronto – Canadian Red Cross Memorandum of Understanding,
including standard services during curbside responses and at
Emergency Reception Centres
Arranges American Sign Language interpretation when needed
Staff the Emergency Social Services Branch, Operations Section, in the
Emergency Operations Centre
Community Care Access Centres
(Toronto Central, Central East, Central West, Mississauga, Halton
and Central)

Provide services for their clients
Greater Toronto Hotel Association

Provides assistance in coordinating access to available hotel / motel
rooms for use as temporary shelter
Local Health Integration Networks
(Toronto-Central, Central East, Central West, Mississauga, Halton
and Central)

At the request of the Ministry of Health and Long Term Care, Emergency
Management Branch, the Local Health Integration Networks liaise with
the Emergency Operations Centre to support a health system response
Insurance Bureau of Canada

Provides assistance for evacuees in contacting their insurance
companies
Landlords/Building Owners




Provides list of residents to Emergency Social Services responders
Provides coordination of mail services for evacuees
Provides information on building status to evacuees
Coordinates evacuees return to home when repairs are complete and it
is safe to return
Emergency Social Services Emergency Support Function
15
St. John Ambulance

Provides specialized services at Emergency Reception Centres in the
First Aid Branch
Salvation Army

Provides assistance, when requested by the Office of Emergency
Management or the Emergency Operations Centre
Toronto Police Service


Preserves the peace at Emergency Reception Centres should
circumstances warrant a police presence
Responds to requests for police assistance
Toronto Transit Commission


Provides buses for temporary shelter from the elements
Provides transportation for evacuees to Emergency Reception Centre,
emergency shelter and hotels, as required
Toronto School Boards


Make schools available as Emergency Reception Centres
Establish and provide ongoing maintenance and housekeeping to
Emergency Reception Centres located at schools
Emergency Social Services Emergency Support Function
16
4.0 Revision History
Revision Name of Contributor
Number
Summary Of Changes
Revision Date
1.0
Shelter, Support and
Housing Administration
 Updated as required
February 2009
2.0
Rosemary Foulds
(SSHA), Boris Rosolak
and Wayne Banon
(OEM)
 Converted existing
Emergency Support
Function to New Template
Complete Review and
Update as required
January 2013
3.0
Rosemary Foulds
(OEM) and Wayne
Banon (OEM)
 Updated to reflect
alignment of EHS with the
OEM
September 2013
4.0
Rosemary Foulds, Brad
Eyre, Sheryl Pollock
(OEM), Kelly Murphy
(SDFA) and the
Emergency Social
Services Working Group
 Updated to reflect changes December 2015
to procedures directed by
Council in July 2014 (EX
43.3)
 Posted to OEM website on
December 24, 2015.
5.0

6.0

7.0

Emergency Social Services Emergency Support Function
17
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