HomeMy WebLinkAboutresolution.council.087-03 RESOLUTION # ~'~
(Series of 2003)
A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF ASPEN, COLORADO,
ESTABLISHING AND ADOPTING AN EMERGENCY MANAGEMENT PLAN
WHEREAS. the City of Aspen may be at risk from a variety of natural or human-
caused emergencies, such as snowstorms, dam failures, mudslides, and transportation
accidents, and
WHEREAS, the City of Aspen wishes to be as prepared as possible to deal with such
evems in order to minimize loss of life and damage to property, and
WHEREAS, Title 24, Article 32, Part 2107, Colorado Revised Statutes, also known
as the "Colorado Disaster Emergency Act" stipulates that each City shall be subject to its
County's emergency management plan unless that City has adopted its own emergency
management plan, and
WHEREAS, the City of Aspen wishes to have its own emergency management plan
to allow it te deal with emergencies or disasters within the City of Aspen,
NOW. THEREFORE. BE IT RESOLVED BY THE CITY COUNCIL OF THE
CITY OF ASPEN, COLORADO:
The City Council of the City of Aspen hereby approves and adopts the City of Aspen
Emergency Management Plan appended hereto as Exhibit A. The City Emergency
Management Plan shall be reviewed and revised on a periodic basis, and if changes
are significant, shall be brought to the City Council for approval of such changes.
Dated: ~ ~:~°'5"~QO~_~
Helen K~lin"'l~d~d~ Mayor'~'''~
I, Kathryn S. Koch, duly appointed and acting City Clerk do certify that the
foregoing is a true and accurate copy of that resolution adopted by the City Council of the
City of Aspen, Colorado, at a meeting held on ~
~Koch, City Clerk
The City of Aspen
BASIC EMERGENCY MANAGEMENT PLAN
Introduction
The City o£Aspen's Basic Emergency Management Plan explains the roles and responsibilities of city employees, city
departments and other organizations in an emergency occurring in the City of Aspen. It describes the series of events
that should happen before, during and after an emergency. The plan is designed to deal with any type of emergency, and
uses the Incident Command System. This plan generally follows the Pitkin County Basic Emergency Plan, so that
personnel responding to incidents in either jurisdiction will use the same plan elements. The City plan has been written m
a way that it is hoped will be understandable by those without emergency plarming backgrounds.
This plan is based on various functions that must be performed before, during and after an emergency, such as public
information and law enforcement, and is not based on departmental functions. During an emergency, all city employees
will be members of the city emergency management team, and many will be assigned tasks outside their normal jobs.
This plan addresses the basic questions, "Who is in charge of what?', "What should I do?", and "Where can I get
information and help?"
This plan has three parts. The first is the Basic Emergency Plan. It describes the system used in dealing with any
emergency, identifies general responsibilities and tasks, and identifies "Who is in charge of what".
The plan also will contain documents called "annexes" that describe specific response functions, like hazardous materials
or public information. The annexes describe what should be done and who does these specific functions.
The plan contains supplemental information such as legal authority for this plan (see Appendix 2, "Authorities"), sources
of information, and examples of issues to be considered in specific disasters (see Appendix i, Hazard Analysis).
I. AUTHORITY: The legal authorities for this document are described at the end of this document in Appendix 2,
"Authorities", and include authorities found in state and federal regulations and in the City of Aspen Home Rule Charter.
1~. PURPOSE:
The City of Aspen's Emergency Management PIan establishes procedures to be used in an emergency. It provides a way to
expand the system when resources are required beyond those available in the City of Aspen and describes how different
agencies will coordinate their efforts. The plan answers three questions: 1) who is in charge, 2) what is my role, and 3) what
are the specific procedures? The goal of the plan is to shorten reaction and response time, facilitate making critical decisions
during emergencies, and improve organization and coordination of response efforts.
The plan describes how the city will:
~ Prepare for emergencies. This involves preparing this plan, participating in tralr~g exemises and drills, and
attending training courses.
} Respond during emergencies including how efforts will be coordinated, communication among agencies, and
roles and tasks.
)~ Recover by developing a system to assess damage, keep records, and return the City to its normal state of
affairs.
~' Mitigate or iessen the impact of an emergency by preventive measures such as building inspections and
stormwater management plans.
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BASIC EMERGENCY MANAGEMENT PLAN
HI. SITUATION AND ASSUMPTIONS
A. Situation:
A hazard analysis and vulnerability study has indicated that the City of Aspen is at risk from numerous hazards
associated w/th natural and human-caused emergencies. Some of the types of hazards are discussed in
Appendix i. "Hazard Analysis".
B. Assumption:
Outside assistance might be available in emergency situations that affect the City of Aspen. However. this
outside help may not arrive for several hours to days. Although this plan defines procedures for the accessing
and coordination of outside assistance, it is essential for the City m be prepared to carry om emergency
response and short-term actions on an independent basis, before outside help arrives.
IV. CONCEPT OF OPERATIONS:
A. General:
Tkis plan is a collection of tools designed for use in an emergency or disaster. The plan provides an effective
incident management process for events that require more than one agency.
The plan uses an Incident Command System with an identified Incident Commander. The nature and
magnitude of the emergency will determine which of the plan's tools are implemented. As an incident becomes
larger and more complex, the incident command structure enlarges according to need.
This plan is based upon the concept that the emergency functions for the various City Departments will, where
possible, parallel normal day-to-day operations. To the extent possible, the same personnel and material
resources will be employed in both cases. However. at times during emergencies, personnel may be pressed
into duties other then their normal duties. Planning and emergency action checklists will help in such cases.
if necessary, activities or operations that do not contfii)ute directly to (he resolution of an emergency may be
suspended for the duration of the incident. Efforts may be redirected to support emergency operations.
In v/ew of the City of Aspen's susceptibility and vulnerability to natural and human-caused disasters,
technologmal incidents and other man-made emergencies, continuing emphasis will be placed on:
} Emergency plamung.
} Training of the City's employees.
~ Public awareness, education and training of our cit/zens.
} Assuring the adequacy and availability of sufficient resources to cope with such emergencies.
} Mitigation measures to prevem or reduce losses from disasters, including the development and
enfomement of appropriate land use, design, and construction regulations.
B. Critical Incident Stress Management
Emergencies may overwhehn the responders' capacities to psychologically deal with an incident, may rake a
serious toll on the responders' lives, and may interfere with theft ability to function on-scene or later.
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BASIC EMERGENCY MANAGEMENT PLAN
Critical incident stress management assistance will be provided by the City of Aspen, and will be
coordinated by the City Human Resources Director. The City will acquire the necessary resoumes in the
event of an emergency to provide these services. Assistance will be available to affected City employees,
assisting personnel closely associated with the emergency response, and immediate family members. The
City Manager or Incident Commander may request that stress management assistance be provided. It will be
made available in situations such as:
· the death or serious injury of an emergency services worker,
· mass casualty incidents,
· police shooting,
· events that seriously threaten the lives ofresponders,
· death of a child or violence to a child,
· loss of life of a patient following extraordinary or prolonged rescue efforts by emergency services
personnel,
· incidents that attract excessive media coverage,
· personal identification with the victim o? the circumstances.
· events where the victims are relatives or fl'/ends of emergencypersonnel,
· any incident that is charged with profound emotion, and
· any incident ~ which the circumstances produce a high level of immediate or delayed emotional
reaction.
Interventions that will be available to responders include an-scene support services, debriefing, individual
consultations, informal discussion, and follow-up services. The City will provide pre-incident tralumg in
stress management.
C. Phases of Emergency Management:
This plan is designed to deal with all types of emergencies and acknowledges that most responsibilities and
functions performed during an emergency are common m different emergencies. For example, in emergencies
ranging from mudslides to bioterrorism, the public may have to be kept out of certain areas, shelter and food
may have to be provided to displaced people, and medical help may be needed. This plan accounts for
functions that must be performed before and after, as well as during emergency operations. The four phases of
emergency management are addressed as shown below:
1. Preparedness:
Preparedness activities develop the capabilities needed in the event of an emergency. They
include preparedness plans, emergency exercises/training, developing warning systems,
emergency commun/cation systems, evacuation plans, and resource inventories.
2. Response Phase:
Response activities involve responding to an actual disaster or emergency. These activities
include public warning, notification of public authorities, evacuation, rescue, mobilization of
emergency personnel/equipment, emergency medical assistance, fire fighting, activation of
emergency coordination centers, restoration of vital services, declarations of disaster, public
informatior, and search and rescue.
3. Recovery Phase:
Recovery activities remm the community and agencies to normal. Activities include
temporary housing and food, tong-term medical care, disaster unemployment insurance,
restoration of non-vital services, reconstruction of damaged areas, damage insurance/loans and
grants, public information, health and safety education, counseling programs, and economic
nnpact studies.
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BASIC EMERGENCY MANAGEMENT PLAN
4. Mitigation/Prevention:
Mitigation/Prevention activities eliminate or reduce the probability of a disaster occumng or
reduce its impacts. Activities may include review of building and fire codes, flood plain
management, insurance, public education programs, vulnerability analyses, tax incentives or
disincentives, zoning and land use management to reduce impactsh building use regulations
and safety zones, defensible fire spaces around buildings, and allocating resources for
monitoring and improved response capabilities.
V. ORGANIZATION AND ASSIGNMENT OF RESPONSIBILITIES:
A. General:
The Incident Commander is in charge of the incident. The Incident Commander provides on-scene
management of the incident response. The Incident Commander directs the operations used in responding to
the incident, obtains the necessary resources and expertise, develops action plans for the incident, collects
information and data on the incident, keeps track of costs of responding to the incident, provides information to
the media, ensures the safety of all assigned personnel, and coordinates with other agencies. The Incident
Commander may assign personnel to provide some or all of these f~nctions.
The Mayor, or m his or her absence, the City Manager, may declare a local state of emergency. If the
emergency exceeds the City's capability m respond, assistance may be requested from the County, neighboring
jurisdictions and/or the State.
The City Charter gives the Mayor, or in his/her absence, the City Manager, the primary responsibility for
emergency management activities within the City upon the declaration that an emergency exists in accordance
with Section 13.8 of the City Charter.
As a general role, the Mayor and City Council do not get involved in the operational or managemem aspects of
an emergency response, but delegate management responsibility to the City Manager. Holding a City Council
meeting to provide for response to unanticipated circumstances occurring during an emergency is usually not
practical. The City Manager coordinates City resources and makes them available as requested by the Incident
Commander. Resources, responsibilities, and decision-mak/ng in an incident are based on this emergency plan.
adopted by the City Council. By approving this document, the authority for day-to-day decision-making about
release of city resources during an emergency is vested in the City Manager.
The City Manager or his/her designee acts as the liaison between the Emergency Coordination Center and the
Aspen City Council. There is a separate liaison between the Incident Commander and the Emergency
Coordination Center. See Appendix 3. Emergency Management Organization Chart.
The Mayor and City Council are responsible for ensuring that local ordinances and resources are in place
providing the flexibility and ability to effectively respond to and initiate recovery from an emergency.
All City Department Heads are responsible for developing and maintaining their own standard emergency
operating guidelines. During an actual emergency, individual departments and individuals may perform
functions other than their normal duties, and may act in support of others, performing different functions. The
annexes to this document describe special functions that may be performed by various deparunents.
As an example, if a mudslide occurred, the Incident Commander would oversee all operational aspects of the
disaster, such as dispatching search and rescue teams, ordering perimeter control, and requesting and deploying
heavy equipment. The City Manager would direct some or all City Department Heads to put their resources and
personnel at the disposal of the Incident Commander (lC), would make administrative decisions regarding city
personnel and resources, and would inform elected officials when policy decisions were required. The Mayor
and City Council would be available to make policy decisions such as allocating additional budget
expenditures to support the emergency if time allowed, making public statements as requested by the Incident
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BASIC EMERGENCY MANAGEMENT PLAN
Commander (for example if the IC wanted the mayor to make a statement urging people not to pan/c), and
declaring an emergency.
B. Responsibilities:
1. Elected Officials Group:
During an emergency, elected officials will be available to consult with the City Manager if
he/she feels policy decisions are required to implement response activities dictated by the
Incident Commander. The City Manager or his or her designee will act as a liaison between
the Emergency Coordination Center and the Elected Officials. The Elected Officials group
does not have operational authority
The Mayor
· decides whether to declare a state of emergency,
· makes emergency policy decisions such as imposition of curfews,
· requests County or other outside assistance when necessary, ar the request of the Incident
Commander.
If there is not a quorum of the City Council, or if there is not adequate time in an emergency
and a timely decision must be made about any aspect of the emergency response, the City
Manager will make the decision and discuss it with the Elected Officials as soon as there is a
quorum or time allows.
2. Incident Management Group (at the Emergency Coordination Center)
During an emergency or disaster, this group allocates city resources, provides public
information as requested by the Incident Commander, and supports the response effort. It will
be comprised of either all or some of the following representatives or their designees,
depending upon which departments are affected by the incident. Elected officials will be
consulted to the maximum extent possible during the emergency. The incident management
group does not have operational authority.
City Manager,
Chief of Police,
City Attorney,
Finance Director
Department Heads as needed including emergency sermces responders or support agencies
(For example if the water treatment plant were affected, the Utilities Director would be
present; in a bioterrorism incident. Environmental Health would be present;. Only necessary
department heads would be present.)
County Emergency Management Coordinator
a. The City Manager · Has authority to release city personnel, assets and resources, in both city emergencies, and
by mutual aid agreement. The City Manager will coordinate closely with the Incident
Management Group and Aspen City Council and support efforts through city departments
and resources to accomplish the incident objectives.
· City Manager does not take an active role in the emergenCY management plan operation in
the field.
· Directs the overall preparedness program.
· Acts as liaison between elected officials and the incident management group,
· Assures that all Departments develop, maintain and exercise their respective annexes to
this plan and their standard operating guidelines.
· Supports the overall preparedness program in terms of its budgetary and organizational
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BASIC EMERGENCY MANAGEMENT PLAN
· Designates an Emergency Coordination Center [ECC) Director if it has been activated.
May request the County Sheriff, Aspen Fire Chief, County Emergency Management
Coordinator, or other person to act in this capacity.
· Makes emergency policy decisions when time constraints require timely action.
b. The City Attorney
· Provides legal counsel to the Mayor, City Council, City Manager, Incident Commander,
and department directors on expanded powers and legal limitations during an emergency.
· Provides legal assistance on proclainfmg a state of local emergency, declaring any local
emergency measures, and emergency ordinances.
c. The Finance Director assures that city funds are accessible to effectively respond m the
emergency, and that adequate records are kept of expenditures.
d. The Chief of Police will act at the City Manager's direction to ensure that law enforcement
activities are provided.
e. The County Emergency Management Coordinator · Provides advice to the City on emergency matters.
· Provides advice on the City's planning and preparedness and on maintenance of this plan.
· Trains emergency management personnel.
· Makes sure the Emergency Coordination Center is ready ro use.
2, Other Department Heads:
All City Department Heads are likely to have responsibilities during a disaster, as assigned by
the Incident Commander or City Manager. They are required to implement their department
emergency standard operating procedures un/ess directed otherwise by the City Manager or
Incident Commander. If a given deparunent is not performing ks usual function during a
disaster, its employees may be required to work full time in the disaster in a support role.
3. Outside Emergency Services:
Outside response agencies that provide services requ/red for a rapid and effective first
response effort may include but are nor limked to Mountain Rescue Aspen, Emergency
Medical Services, Aspen Ambulance. Fire Departments, the Aspen/Pitkin County
Communication Center, Aspen Valley Hospital, and other agencies through mutual aid
agreements.
4. See Appendix 3, "Emergency Management Organization Chart", for an illustration of how
different groups work together/n an emergency.
C. Annexes/Specific Response Functions:
The "Aimexes' in tiffs plan will address specific emergency functions such as radiolo~cal monitoring,
temporary shelter, and evacuation. The City will develop the full annexes by reviewing the County annexes and
revising if necessary to reflect any changes needed for City functions. Once each aunex is written, any mutual
aid agreemcms necessary to implement the annex will be obtained. For each annex, th/s plan lists the · function_
· the lead agency and support agencies for writing the annex (other agencies or organizations may
actually implement the annexes),
· what needs to be done.
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BASIC EMERGENCY MANAGEMENT PLAN
l. WARNING TO RESPONDERS AND PUBLIC - ANNEX A:
/ISPEN/PITKIN COUNTY COMBINED COMMUNICATION CENTER r"DISP~4TCH")
a. Develops a plan for disseminating warnings to the public and City officials in the event of
an impending or occurring emergency situation. For example, warnings might be given if a
mudslide were predicted.
b. Contacts responding agencies to inform them of the emergency and required action.
Activates Joint Information C6nter (JIC). Develops plan for contacting responding
agencies.
c. Maintains current contact lists.
2. COMMUNICATIONS AMONG RESPONDERS, AGENCIES. PUBLIC - ANNEX B:
ASPEN/PITK[N COUNTY COMBINED COMMUNIC.4TIONS CENTER
a. Establishes and maintains the emergency communication system, including activating
the incident dispatch system if needed.
b. Coordinates the use of all public and private communication systems during
emergencies.
c. Manages and coordinates all emergency communication operations with the
Emergency Coordination Center once activated.
d. Helps track where resources are used and needed
e. Ensures that adequate communications equipment is available for use by the City
during an emergency.
3. SHELTER/MASS CARE/HUMAN SERVICES - ANNEX C:
AMERICAN RED CROSS, COUNTY EMERGENCY MANA GEMENT, ASSET
MANAGEMENT, ENVIRONMENTAL HEAL TH DEPARTMENT
a. Red Cross provides food, shelter and clothing to the victims of the disaster and to
disaster workers when needed. Red Cross sets Ul: shelter and food when notified of a
disaster.
b. The Red Cross identifies possible evacuation and shelter sites and contacts site owners
to obtain agreement to use facilities m an emergency. City agencies work with the Red
Cross to make available shelter sites if needed and m assist in making sure adequate
supplies are available.
c. Provides inspection of food service facilities in shelters.
4. RADIOLOGICAL PROTECTION ~ ANNEX D:
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ASPEN ENVIRONMENAL HEALTH DEPARTMENT, ASPEN FIRE PROTECTION
DISTRICT, LOCAL EMERGENCY PLANNING COMMITTEE
a. Seeks assistance from State and Federal agencies to determine whether increased
radiation levels exist, and to provide advice to the Incidenl Commander and City
Manager about recommended actions.
b. Investigates [easibility of obtaingng basic mdiological monitoring equipment for
availability in determining whether radiation has been released in a spill or
emergency.
5. EVACUATION- ANNEX E:
CITY TRANSPORTATION DEPARTMENT~ ASPEN POLICE DEPARTMENT, RED
CROSS, COffNTY EMERGENCY MANAGEMENT, CITY ENGINEERING, CITY RISK
MANAGEMENT
a. Provides policies and procedures for the evacuation, dispersal, or relocation of persons
threatened in hazardous areas during disasters. These procedures will be implemented
once the Incident Commander determines that evacuation is necessary.
b. Identifies City Departments and private sector groups who could provide assistance.
Investigates development of an agreement with the Roaring Fork Transit Agency to
provide transportation services in an emergency.
c. Identifies high hazard areas, the number of potential evacuees, and possible
evacuation locations.
6. FII/E - ANNEX F:
ASPEN FIRE PROTECTION DISTRICT, ASPEN AMBULANCE, ASPEN BUILDING
DEPARTMENT
a. Provides fire suppression, limits the loss of life and property fi.om fires and other
threats and provides emergency medical care.
b. Responsible for fire safety inspections of shelters.
c. Provides for inspection of damaged areas for f~re and safety hazards.
7. LAW ENFORCEMENT - ANNEX G:
ASPEN POLICE DEPARTMENT
a. Responsible for law enforcement, traffic and crowd control, scene/perimeter security,
and isolation of damaged areas.
b. Provides reconnaissance and reports on damage.
c. Evacuates areas at risk.
8. HEALTH AND MEDICAL/MULTI-CASUALTY - ANNEX It:
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ASPEN VALLEY HOSPITAL, ASPEN AMBULANCE DISTRICT, EMERGENCY
MEDICAL SER VICES, COMMUNITY HEAL TH SER VICES, CITY ENV[RONMENTAL
HEAL TH DEPARTMENT, ASPEN FIRE PROTECTION DISTRICT
a. Mimmizes loss of life and human suffehng through a timely.and coordinated system
for response to multi-casualty incidents. Coordinates triage, treatment and transport
activities during multi-casualty medical emergencies.
b. Obtains resources and assistance to isolate and decontaminate victims of hazardous
materials or infectious diseases, and provides treatment of victims.
c. Identifies illnesses due to hazardous materials or infectious diseases, controlling their
spread and reporting their presence to the approprime state or federal health or
environmental authorities.
d. Provides identification, transportation and disposition of the deceased.
e. Issues health & medical advisories to the public through the public information
officer.
f. Contains decontamination waste or material after first maintaining for evidentiary
purposes if necessary. Ensures that waste disposal atSer the event is done according to
State and Federal requirements.
9. EMERGENCY PUBLIC INFORMATION- ANNEX I:
ASPEN POLICE DEPARTMENT PUBLIC INFORMATION OFFICER: PUBLIC
INFORMATION OFFICER APPOINTED B Y INCIDENT COMMANDER,
DEPARTMENT-SPECIFIC PUBLIC INFORMATION OFFICERS, CITY COMMUNITY
RELATIONS
a. Compiles and prepares emergency information for the public in case of emergency.
b. Provides timely briefings to the media during an emergency and handles unscheduled
inquiries from the media and the public.
c. Develops and implements public information and awareness activities prior to
emergencies, providing information for citizens about activities that are being
undertaken, recommendations, and who to call for additional information.
10. DAMAGE ASSESSMENT - ANNEX J:
CITY BUILDING DEPARTMENT. RISK MANAGEMENT, CITY FINANCE
DEPARTMENT, EMERGENCY MANAGEMENT, CITY ENGINEERING, AMERICA~
RED CROSS, ASSET MANAGEMENT
a. Establishes damage assessment te~(s) and determines extent of damage.
b. Develops reporting systems to compile information on deaths, injuries, and property
damage to public and private properties. Provides damage reporting information to
emergency coordination center.
c. Compiles damage estimates for use in requesting disaster assistance and for city
financial planning.
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BASIC EMERGENCY MANAGEMENT PLAN
d. Notifies and acts as liaison with City insurance carrier.
I 1 PUBLIC INFRASTRUCTURE (OTHER THAN UTILITIES) - ANNEX K:
CITY STREETS. CITY ENGINEERING, CITY BUILDING DEPARTMENT, ASSET
_~A GEMENT
a. Barricades hazardous areas.
b. Assesses damage ~o public facilities, e.g., roads, bridges, buildings, etc.
c. Restores streets and bridges on a priority basis.
d. Removes debris.
e. Coordinates condemnation of unsafe structures.
f. Directs temporary repair of essential facilities.
12. UTILITIES - ANNEX L:
CITY UTILITIES DEPARTMENrl. ASPEN CONSOLIDATED SANITATION DISTRICT.
PRIVATE ELECTRIC AND GAS UTILITIES, ASSET MANAGEMENT
a. Takes measures to safeguard life-sustaixfing wmer supplies, wastewater disposal.
electricity and gas servme, m mmimxze socioeconomic and environmental damage.
b. Establishes the policy and means of repmring electrical, natural gas, propane, sewage
disposal, and water supplies.
c. Assesses damage and identifies recovery times for affected utility systems.
d. Restores electrical, gas, water, and waste water services to vital facilities.
e. Coordinates activities with private utility providers.
13. RESOURCE MANAGEMENT (ENSURING ADEQUATE RESOURCES TO
RESPOND) - ANNEX M:
CITY MANAGER. CITY STREET DEPARTMENE, CITY PARKS DEPARTMENZ, FINANCE
DEPARTMENZq, COUNTY EMERGENCY MANAGEMENT~
a. Develops policies and procedures for providing and coordinating the provision of
services, eqmpment, supplies, and regular and temporary personnel to support
response ro disasters. Anticipares and identifies future resource needs. Maintains lists
of City resources including heavy equipment and specially trained personnel.
b. AdminisTers fiscal procedures, including acquisition, paymem and accounting,
establishes emergency purchasing procedures and maintains records of emergency-
related expenditures.
c. Provides for crisis debriefing or rehabilitation for disaster workers as required, at the
Incident Conu~aander's request.
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d. Determines availability of out-of-jurisdiction resources and ensures needed
agreements are in place for sharing of these resources in an emergency. Provides
Iiaison with these agencies as appropriate.
14. EMERGENCY COORDINATION CENTER/MANAGEMENT POLICY - ANNEX N:
CITY MANAGEPe COUNTY EMERGENCY MANAGEMENT
a. The Incident Management Group and City Manager may determine which agencies
and individuals need to be represented in the Emergency Coordination Center. and
those individuals will be summoned to the center by the Aspen Pitkin Combined
Communications Center (Dispatch)
b. Decides policies relating to emergency management, public information, obtaining
additional city resources, and emergency measures. Coordinates the City's support of
the response effort.
c. Emergency Management Coordinator provides advice to Management Policy
(Emergency Coordination) Group.
d. Maintains contact with neighboring jurisdictions.
e. Continually keeps elected officials informed through the City Manager or his/her
designee, about status of the incident, city resources and decisions required of elected
officials.
HAZARD MITIGATION (PREVENTION AND REDUCTION) - ANNEX P: CITY
RISK MAN/IGEMENT~ COUNTY EMERGENCY MANAGEMENT, CITY BUILDING
DEPARTMENT
Implements hazard prevention and reduetinn programs including
a. finding and applying for emergency response grants,
b. identifying hazard prevention and reduction projects in the city, such as determining
risk reduction s~raregies, making sure that prevention projects get done in a timely
manner, and education of the people who live in hazardous areas.
16. ~OUS MATERIALS - ANNEX Q:
ASPEN FIRE PROTECTION DISTRICT, ASPEN POLICE DEPARTMENT, LOCAL
EMERGENCY PLANNING COMMITTEE, COUNTY EMERGENCY MANAGEMENT,
CITY ENVIRONMENTAL HEAL TH DEPARTMENT
b. Provides policies and procedures for response to hazardous material incidents in the
City of Aspen.
b. Coordinates procedures for comPiian6e with local state and federal regulations.
c. Applies for funding for purchase of necessary monitoring equipment.
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i 7. RESCUE - ANNEX R:
MOUNTAIN RESCUE ASPEN. FIRE PROTECTION DISTRICTS
Provides policies and procedures for the location of. provis;on of immediate care to, and safe
removal of endangered, trapped, injured and/or isolated persons. Performs these tasks in an
c~mergency.
18. TRANSPORTATION - ANNEX S:
TRANSPORTATION DEPARTMENT, ROARING FORK TRANSITAGENCY (RFTA)
a. Identifies local transportation resources and arranges for the/r use during emergencies
for both tra~port ofpersormel, resources and supplies, and for evacuation.
b. Logistics Section Ctfief will determine how to deploy transportation resources during
emergencies, including vehicle operators, fuel, and malnt~aance. This plan identifies
those resources and staging areas.
19. TRAININC~ANNEX T:
CITY RISK MANAGEMENT, COUNTY EMERGENCY MANAGEMENT, CITY
M.4~A GER
a. Develops procedures and t/me lines for framing persormel in Incident Command
System and emergency management.
c. Provides for timely exercising of City emergency management plan and its elements,
either by using existing exercises or developing new ones.
20. LEGAL - ANNEX U:
CITY A TTORdVE Y'S OFFICE
a. Advises City officials on emergency powers of governmem and the necessary
procedures to implement wage and price controls, resource rationing, curfews, and
other needed measures.
a. Advises City officials on the liability arising from disaster operations.
c. Prepares and/or recommends legislation to implement the necessary emergency
powers.
21. TERRORISM - ANNEX V:
CITY POLICE DEPARTMENT, ASPEN FIRE PROTECTION DISTRICT, CO[_TNTY
EMERGENCY MANAGEMENT, CITY ENVIRONMENTAL HEAL TH, ASPEN VALLEY
HOSPITAL, COMMUNITY HEAL TH
a. Assesses the threat, including possible targets, vulnerability, and likely types of attack.
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BASIC EMERGENCY MANAGEMENT PLAN
b. Prepares for threat by increases in security, ensuring needed equipment is purchased
and mining received (including both overall emergency response training and
awareness training for specific terrorist threats), and by developing mtemgency
relationships to improve cooperation and sharing of resources.
c. Evaluates public health monitoring and surveillance systems and improves them
where needed.
d. Develops procedures and policies to use when au incident occurs.
D. OTI:IER DEPARTMENTS' RESPONSIBILITIES:
Other Department Heads not assigned a specific function in this plan or in a specific emergency are valuable
members of the emergency mazmgement orgardzation. The Incident Commander will assign them roles as
needed.
VI. DIRECTION AND CONTROL:
A. General:
The Incident Commander is the person in charge of the incident, and manages the overall response. The
Incident Commander makes decisions about how to respond to the incident, controls the personnel and
equipment that have been provided for the incident, determines priorities for the response, decides which
objectives will be accomplished when, authorizes release of information to the media, and coordinates overall
emergency activities.
The City Manager is responsible for a~suring that coordinated and effective emergency response systems are
developed and maintained and that adequate city resoumes are allocated to the emergency.
The City. Manager provides overall direction of the response resources Of all ~ity Departments. City
Department Heads retain control over their employees and eqmpment unless otherwise directed by the Incident
Commander or City Manager. As an example; the Incident Commander may request several large pzeces of
equipment. The City Manager will direct the City Street Department to provide whatever personnel and
equipment the Incident Commander needs. The City Street Director will direct his or her staff to perform the
tasks requested by the Incident Commander.
All City Departments are responsible for developing and implementing their own Standard Operating
Guidelines to be followed during emergencies. These Standard Operating Guidelines should include
prevention, preparedness and recovery activities ha addition to response activities.
Outside assistance will be requested and used to supplement the City's response if and when the situation
warrants. Requests for outside assistance are covered in sectio_n I~:
B. Emergency Management Terminology and System Description:
City Incident Command System:
Aspen's incident management system is designed to provide for the local on-scene management of
large emergencies and other natural or human caused disasters. Such systems provide a standard/zed
organizational structure and terminology and procedures that allow everyone to know beforehand what
they should do. Such systems are very flexible and adaptable to any kind of emergency situation.
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The Incident Command System tICS) is used in the City of Aspen. The ICS organizational structure is
based around five principal activities that must be performed at any incident. These are:
~ Command/who is in charge of the responseJ
~ Operations (response to emergency incidenU
~ Planning (looking forward andplanning ahead for what is needed)
~ Logistics (supporting the operations, providing all the resources needed by responders)
~ Administration/Finance/documenting andpayingfor the incident/
Some incidents can escalate into area-wide emergencies requiring further activation of the emergency
management system. In area-wide emergenmes, one or more Incident Command Posts may be
established to assist in managing emergency operations.
C. Emergency Coordination Center (ECC):
The Incident Commander operates from an Incident Command Post at the scene of the incident. The
Management policy group's activities are coordinated from the Emergency Coordination Center.
1. The PRIMARY Emergenc~ Coordination Center is located at:
~ Basement of the County Courthouse - 506EastMaln St, Aspen, CO
2. ALTERNATE Emergency Coordination Centers may be any one of the following:
~ Basement of City Hall. 130 So. Galena St.. Aspen· CO
~ City of Aspen Recreation Department, llOE. Hallam, Aspen, CO and
~ City of.4spen Parks Department, 585 Cemetery Lane, ~4spen, CO
The Emergency Coordination Center is activated once the Incident Commander activates it alSer
determining there is a possible or actual emergency. During emergency situations, certain individuals
and Departments will be requked to relocate to the Emergency Coordination Center. During large-
scale emergencies, the Emergency Coordination Center may actually become the seat of government
for the duration of the crisis.
D. Emergency Authority:
1. A compilation of primary State and City legal documents pertaining ~o emergency
management is included in Appendix 2, "Authorities".
2. In accordance with Section I3.8 of the city Charter, the Mayor. or in his/her absence, the City
Manager, may declare an extraordinary emergency. [n accordance with Section 4.11 of the
City Charter, the Mayor and the City Council may take extraordinary measures in the interest
of effective emergency management. Legal procedures associated with emergency
management are developed as described in Annex U (Legal). These powers include, but are
not limited to:
a. Declaration of a local state of emergency by the Mayor (or City Manager in his/her
absence).
b. Wage, price, and rent controls and other economic stabilization methods.
c. Curfews. blockades, and limitations on utility usage.
d. Rules governing entrance and exit from the affected area(s).
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e. Other security measures.
3. All physical resoumes of the City may be utilized when deemed n~cessary by the City
Manager. In addition, the City Manager shall have the authority to purchase or lease private
resources as deemed necessary during the period of the emergency; provided, however, that
accurate records of such use shall be maintained in case reimbursement becomes necessary.
VH. INCREASED READINESS CONDITIONS:
Most emergencies follow some recognizable build-up period during which actions can be taken to achieve a
state of maximum readiness. (Examples are heavy rainfall, high fire danger, or international incidents.) When
this occurs, general Departmental actions are followed as outlined in the appropriate annexes while more
specific actions are detalle~_ in the Departments' Standard Operating Guidelines.
VIII. CONTINUITY OF GOVERNMENT:
A major disaster could result in loss of life and property, the death or injury of key government officials, and/or
the partial or complete destruction of established seats of government, and the public and private records
essential to continue operation of government and industry. To help preserve law and order and to
continue/restore local services, it is essential that units of government continue to function during or following
such instances.
A. Line of Succession:
1. Line of Succession to the City Manager will be Assistant City Managers based on seniority,
followed by the Utilities D/rector and the Parks Director.
2. Line of Succession tc the County Emergency Management Coordinator will be the Aspen Fire
Chief.
3. Line of Successmn to each Department Head will be according to the Deparunem Standard
Operating Procedures.
B. Preservation of Records:
In order to provide normal City operations following a disaster, vital records must be protected. These include
legal documents and personal documents such as deeds and ~x records. The principal causes of damage m
records are fire and water. Therefore, essential records should be protected accordingly. Each agency assigned
the preparation of any annex will develop Standard Operating Guidelines to insure the protection of vital
records, under the guidance of the City Clerk.
IX. ADMINISTRATION AND SUPPORT:
A. Support:
Requests for County, State or Federal assistance, including the Colorado National Guard, will be made to the
County Emergency Management Coordinator or County Emergency Management D/rector. All requests will
be made by the Mayor or in his/her absence, the City Manager.
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B. Agreements and Understandings:
Should the City's resources prove to be inadequate during an emergency, requests may be made for assistance
in accordance with ex/sting or emergency-negotiated mutual-aid agreements and understandings. Such
assistance may include, but shall not be limited to personnel, eqmpmen~, or supplies~ All agreements shall be
entered into by duly authorized officials and be formalized in writing whenever possible.
X. PUBLIC AWARENESS AND EDUCATION:
The public's response to any emergency is based on an understanding of the nature of the emergency, the
potential hazards_ the likely response of emergency services, and knowledge of what individuals and groups
can do to increase the/r chances of survival and recovery. However. even the most efficient emergency
information effort requires time to initiate, during which confusion and lack of information can contribute to a
worsening of the emergency situation and an increased burden for all areas of emergency response.
Public awareness and education pr/or to any emergc~ncy are. crucial to successful public information efforts
during and after the emergency. The decision to initiate and support this function must be made at the highest
policy-making level. The pre-disaster awareness and education programs must be viewed as equal in
importance to ali other precautions for emergencies and receive an adequate level of planning. Pre-disaster
education can significantly reduce the damage from an emergency, so must be Emphasized. These programs
must be coordinated among City, County, State and Federal officials to ensure their contribution to emergency
preparedness and response operations. Annex I, Emergency Public Information, provides emergency public
haformation procedures. The City will implement pre-disaster education programs on an ongoing basis.
XI. PLAN DEVELOPMENT, MAINTENANCE AND IMPLEMENTATION:
A. The City Manager or his/her designee will brief the appropriate public and private officials concerning
their role in emergency management and ensure proper distribution of the plan. All employees will be
required to attend the appropriate level of Incident Command System tratmng.
B. All City Departments will be responsible ~or the development and maintenance of their respective
annexes and Standard Operating Guidelines identified in SECTION V, ORGANIZATION AND
ASSIGNMENT OF RESPONSIBILITIES.
C. The City Manager or h/s/her designee is responsible for reviewing this plan every two years and
requesting that the City Council re-adopt the plan if sitofificant changes have been made.
D. The City Manager or his/her designee will update the plan as required and conduct drills and exercises
in order to identify deficiencies and maintain an adequate level of readiness.
E This plan supersedes and rescinds all previous editions of City of Aspen Emergency Management Plan
and is effective upon sigmng by the Mayor and the City Manager. If any portion of this plan is held
invalid by judicial or administrative ruling, such ruling shall not affect the validity of the remaining
portions of the plan.
331. TRAINING, TESTS AND EXERCISES, AFTER-ACTION REPORTS AND REVIEWS:
The objective of any emergency management plan is efficient and tin, ely response during emergencies.
However, planning alone does not guarantee preparedness. Training and exercising are essential at all levels of
government to make emergency plans fxmction well. All plans should include provisions for training.
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The best method of tmimng a jurisdiction's staff to manage emergency operations is through exercising. The
City will make every effort to test and evaluate emergency functions within a specific period of time to include
the following criteria:
Exercise activities, such as tabletop and drills that serve as a preparation for more realistic simulation
exercises once every two years.
Each department should conduct one tabletop or drill exemise per year dealing with the ind/vidual
department's response.
Following each exercise, an After Action Report and Review should occur to discuss improvements that should take
place where any weaknesses ex~st in planning, tmin/ng, personnel, equipment and facilities.
Date:
Helen Klanderud, Mayor
Date:
Steve Barwick. City Manager
APPENDICES
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.Appendix I
City of Aspen
HAZARDS ANALYSIS
To begin planning a program of proactive emergency management, the City of Aspen has identified those hazards
that, if they occur, could harm our community. This Appendix discusses key hazards, especially as they relate to the
City of Aspen.
Emergenmes affecting a wide geographical area, several different public agencies, or a large number of people
present the most complicated response problems. A hazard analysis can help managers gain a more sophisticated
understanding of the relationships among hazards and the secondary effects that various kinds of emergenmes or
disasters may trigger.
The more demand the incident places on critical facilities - hospitals, police and fire departments, transportation
routes and utilities - the more difficult a coordinated and orderly response becomes. A hazard analysis that explains
risks and hazards is the first step in preparing for the possible emergenmes.
When defining the types of disasters and emergencies for the City of Aspen, we will consider the following
classifications:
~ Natural Disasters
~' Technological
} National Security Incidents
As may be expected, the frequency and level of response for the vahous types of disasters vary according to the
classification.
Natural Disaster Emergency:
Natural disasters include occurrences such as drought, flood., landslide or mudslide, avalanche, sleet and hail.
extreme cold. damaging wind. tornadoes, hurricanes, blizzards and earthquakes. In general, natural disasters require
information from state land sometimes federal) natural resource and land-use agencies. They also may involve
massive search and rescue efforts, evacuation and planning, and execution of evacuation and relocation operations
involving thousands of citizens. These operations can run from days to several months depending on the event.
They may be preceded by situations that provide some warning of the possible disaster.
Obviously, the city of Aspen is more at risk from some of these natural disasters than others. This analysis will
consider only those natural disasters we are most likely to face.
Technological Disaster Emergency:
Disasters that involve our technologies are more var/ed and can be extremely complex. They include several types:
} Dam failures.
} Fire (accidental and arson).
~ Civil disturbances (strikes and riots).
~ Hazardous material transportation accidents
~ Hazardous materials spills or releases
~ Resource shortages (energy or materials).
Experience with tectmological events indicates that they generally entail less warning, shorter duration, and less
government preparedness activity. These events may not require federal involvement. These disasters involve
~eater local and state participation as well as phvate sector response.
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National Security Emergency:
National security emergencies mclude:
~' Attack (conventional, chemical, nuclear or biological).
~ Continuing civil disobedience (strikes and riots).
~ Terrorism (chemica[~ nuclear, or biological).
These types of emergencies are more difficult to consider and plan for, especially in light of the recent terrorist
activity/n the United States directed at federal facilities and symbols of the country's wealth.
National security emergencies require the most information from federal, state and local personnel.
Issues related to disasters in different categories are available in a separate document, "Detailed Example Hazard
Analysis".
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Appendix 2
AUTItORITIES
COLORADO DISASTER ACT OF 1992
Title 24, Article 32. Part 21 ~2101-2115)
24-32-2101 - Short rifle.
This part 21 shall be known and may be cited as the "Colorado Disaster Emergency Act of 1992".
24-32-2102 - Purposes and limitations.
(1) The purposes of this part 21 are to:
(a) Reduce vulnerability of people and communities of this state to damage, injury, and loss of life
and property resulting from natural catastrophes or catastrophes of human origin, civil disturbance,
or hostile military or paramilitary action;
(b) Prepare for prompt and efficient search, rescue, recovery, care, and treatment of persons lost,
entrapped, victimized, or threatened by disasters or emergencies;
(c) Provide a setting conducive to the rapid and orderly start of restoration and rehabilitation of
persons and property affected by disasters;
(d) Clarify and strengthen the roles of the governor, state agencies, and local govermments in
prevention of, preparation for. response to, and recovery fi'om disasters:
(e) Authorize and provide for cooperation ~n disaster prevention, preparedness, response, and
recovery;
(f) Authorize and provide for coordination of activities relating to disaster prevention, preparedness,
response, and recovery by agencies and officers of this state and similar state-local, interstate,
federal-state, and fore/gu activities in which the state and its political subdivisions may participate;
(g) Provide a disaster and emergency management system embodying all aspects of pre-disaster and
pre-emergency preparedness and post disaster and post emergency response; and
(h) Assist in prevention of disasters caused or aggravated by inadequate planning for regulation of
public and private facilities and land use.
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(2) Nothing in this part 21 shall be construed to:
(a) Interfere with the course or conduct of a labor dispute; except that actions otherwise authorized
by this part 21 or other laws may be taken when necessary to forestall or mitigate imminem or
existing danger ~o public health or safety;
(b) Interfere with dissemination of news or comment on public affairs; except that any
communications facility or organization, including but not limited to radio and television stations,
wire services, and newspapers, may be required to transmit or print public service messages
fimfishing information or instructions in connection with a disaster emergency;
(c) Affect the jurisdiction or responsibilities of police forces, fire-fighting forces, or units of the
armed forces of the United States, or of any personnel thereof, when on active duty; except that
stare, local, and interjurisdictional disaster emergency plans shall place reliance upon the forces
available for performance of functions related to disaster emergencies; or
(d) Limit, modify, or abridge the authority of the governor to proclaim martial law or exercise any
other powers vested in the governor under the constitution, statures, or common law of this state
independent of, or in conjunction with, any provision of this part 21.
24-32-2103 - Definitions.
As used in this part 21. unless the context otherwise requires:
(1) "Bioterrorism" means the intentional use of microorganisms or toxins of biological origin to cause death
or disease among humans or animals.
(1.1) "Committee" means the governor's expert emergency epidemic response committee created in
section 24-32-2104.
(1.2) "Disaster" means the occurrence or imminent threat of widespread or severe damage, injury, or
loss of life or property resulting from any natural cause or cause of human origin, including but not
limited to fire, flood, earthquake, wind, storm, wave action, hazardous substance incident, oil spill
or other water contamination requiring emergency action to avert danger or damage, volcanic
activity, epidemic, mr pollution, blight, drought, infestation, explosion, civil disturbance, or hostile
military or paramilitary action.
(1.3) "Emergency epidemic" means cases of an illness or condition, communicable or non-
communicable, caused by bioterrorism, pandemic influcmza, or novel and highly fatal infectious
agents or biological toxins.
(1.4) "Pandemic influenza" means a widespread epidemic of influenza caused by a highly virulent
strain of the influenza virus.
(2) "Political subdivision" means any county, city and county, city, or town and may include any other
agency designated by law as a political subdivision of the state.
(3) "Search and rescue" means the employment, coordination, and utilization of available resources and
personnel in locating, relieving distress and preserving life of, and removing survivors from the site of a
disaster, emergency, or hazard to a place of safety in case of lost, stranded, entrapped, or injured persons.
24-32-2104 - The governor and disaster emergencies.
(1) The governor ~s responsible for meeting the dangers to the state and people presented by disasters.
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(2) Under this parr 21, the governor may issue executive orders, proclamations, and regulations and amend
or rescind them. Executive orders, proclamations, and regulations have the force and effect of law.
(3) (a) There is hereby created a governor's disaster emergency council, referred to in this part 21 as the
"council", consisting of rio! less than stx nor more than nine members. The attorney general, the
adjutant general, and the executive directors of the following departments shall be members:
Administration, transportation, public safety, and natural resources. The additional members, if any,
shall be appointed by the governor from among the executive directors of the other departments. The
governor shall so, we as chairman of the council, and a major/ty shall constitu/e a quorum. The council
shall meet at the call of the governor and shall advise the governor and the director of the office of
emergency management on alt matters pertaining to the declaration of disasters and the disaster
response and recovery activities of the state government: except that nothing in the duties of the council
shall be construed to limit the authority of the governor to act without the advice of the council when
the situation calls for prompt and timely action when disaster threatens or exists.
(b) The members of the governor's disaster emergency council, as such existed prior to March 12, 1992,
shall become the initial members of the council on March 12. 1992.
(4) A disaster emergency shall be declared by executive order or proclamation of the governor if the
governor finds a disaster has occurred or that this occurrence or the threat thereof is imminent. The state of
disaster emergency shall continue until the governor finds that the threat of danger has passed or that the
disaster has been dealt with to the extent that emergency conditions no longer exist and the governor
terminates the state of disaster emergency by executive order or proclamation, but no state of disaster
emergency may continue for longer than thirty days unless renewed by the governor. The general assembly,
by joint resolution, may terminate a state of disaster emergency at any time. Thereupon, the governor shall
issue an executive order or proclamation ending the state of disaster emergency. All executive orders or
proclamations issued under this subsection (4) shall indicate the nature of the disaster, the area threatened,
and the conditions which have brought it about or which make possible termination of the state of disaster
emergency. An executive order or proclamation shall be disseminated promptly by means calculated to
bring its contents m the attention of the general public and, unless the circumstances attendant upon the
disaster prevent or impede, shall be promptly filed with the office of emergency management, the secretary
of state, and the county clerk and recorder and disaster agencies in the area to which it applies.
(5) An executive order or proclamation of a state of disaster emergency shall activate the disaster response
and recovery aspects of the state, local, and interjurisdictional disaster emergency plans applicable to the
political subdivision or area in question and shall be authority for the deployment and use of any forces to
which the plans apply and for use or distribution of any supplies, eqmpment, and materials and facilities
assembled, stockpiled, or arranged to be made available pursuant to this parr 21 or any other provision of
law relating to disaster emergencies.
(6) During the continuance of any state of disaster emergency, the governor is commander-in-chief of the
organized and unorganized militia and of all other forces available for emergency duty. To the greatest
extent practicable, the governor shall delegate or assign command authority by prior arrangement embodied
in appropriate executive orders or regulations, but nothing in this section restricts the governor's authority
to do so by orders issued at the time of the disaster emergency.
(7) In addition to any other powers conferred upon the governor by law, the governor may:
(a) Suspend the provisions of any regulatory statute prescribing the procedures for conduct of state
business or the orders, rules, or regulations of any state agency, if strict compliance with the
provisions of any statute, order, rule, or regulation would in any way prevent, hinder, or delay
necessary action in coping with the emergency;
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(b) Utilize all available resources of the state government and of each political subdivision of the
state as reasonably necessary to cope with the disaster emergency;
(c) Transfer the direction, persounel, or functions of state depanmems and agencies or units thereof
for the purpose of performing or facilitating emergency services;
(d) Subject to any applicable requirements for compensation under section24-32-2111, commandeer
or utilize any private property if the governor finds this necessary to cope with the disaster
emergency;
(e) Direct and compel the evacuation of all or part of the population from any stricken or threatened
area within the state if the governor deems this action necessary for the preservation of life or other
disaster mitigation, response, or recovery;
(f) Prescribe routes, modes of transportation, and destinations in connection with evacuation;
(g) Control ingress to and egress from a disaster area, the movement of persons within the area, and
the occupancy of premises therein;
(h) Suspend or limit the sale, dispensing, or transportation of alcoholic beverages, firearms,
explosives, or combustibles; and
(i) Make provision for the availability and use of temporary emergency housing.
(8) (a) There is hereby created a governor's expert emergency epidemic response committee. The duties
of the committee shall be to develop by July 1, 2001, a new supplement to the state disaster plan
that is concerned with the public health response to acts of bioterrorism, pandemic influenza, and
epidemics caused by novel and highly fatal infectious agents and to provide expert public health
advice to the governor in the event of an emergency epidemic. The committee shall meet at least
annually to review and amend the supplement as necessary. The committee shall provide
information to and fully cooperate with the council.
(b) (I) State members of the committee shall include the following:
a. The executive director of the department of public health and environment;
(B) The chief medical officer of the_department of public health and environment;
(C) The chief public information officer of the department of public health and
environment;
(D) The emergency response coordinator for the department of public health and
environment;
(E) The state epidemiologist for the department of public health and environment;
(F) The attorney general or the designee of the attorney general;
(G) The president of the board 6fhealth or the president's designee;
(H) The president of the state medical society or the president's designee:
(I) The president of the Colorado health and hospital association or the president's
designee;
(J) The state veterinarian of the department bf agriculture; and
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(K) and (L) (Deleted by amendment, L. 2000, p. 546, SS 24, effective Ju]y ], 20003
(M) The director of the office of emergency management.
(II) In addition to the state members of the committee, the governor shall appoint to the
committee an individual from each of the following categories:
(A) A licensed physician who specializes in infectious diseases;
(B) A licensed physician who specializes in emergency medicine;
(C) A medical examiner;
(D) A specialist in posttraumatic stress management;
(E) A director of a local public health depamnent;
(F) A hospital infection control practitioner;
(G) A wildlife disease specialist with the division of wildlife; and
(H) A pharmacist member of the state board of pharmacy.
(III) The executive director of the deparmaent of public health and environment shall serve
as the chair of the commmee. A majority of the membership of the committee, not
including vacant positions, shall constitute a quorum.
(IV) The executive director of the department of public safety or the executive director's
designee shall serve as an ex officio member of the committee and shall not be able to
vote on decisions of the coxmuittee. The executive director shall serve as a liaison
between the committee, the council, and the Colorado emergency planning commission
in the event of an emergency epidemic.
(c) The committee shall include in the supplement to the state disaster plan a proposal for the
pnoritization, allocation, storage, protection, and distribution of antibiotic medicines, antiviral
medicines, antidotes, and vaccines thai may be needed and in short supply in the event of an
emergency epidemic.
(d) The committee shall convene, at the call of the governor or the executive director of the depanmen~
of public health and environment to consider evidence presented by the department's chief medical
officer or state epidemiologist that there is an occurrence or ~mminent threat of an emergency
epidemic. If the committee finds that there is an occurrence or irmminent threat of an emergency
. epidemic, the executive director of the department of public health and environment shall advise the
governor to declare a disaster emergency.
(e) In the event of an emergency epidemic that has been declared 'a disaster emergency, the committee
shall convene as rapidly and as often as necessary to advise the governor, who shall act by executive
order, regarding reasonable and appropriate measures to reduce or prevent spread of the disease.
agent, or toxin and to protect the public health. Such measures may include, but are not limited to:
(I) Procuring or taking supplies of medicines and vaccines;
(II) Ordering physicians and hospitals to transfer or cease admission of patients or perform
medical examinations of persons;
(III) Isolating or quarantining persons or property;
(IV) Determining whether to seize, destroy, or decontaminate property or objects that may
threaten the public health;
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(V) Determining how to safely dispose of corpses and infectious waste;
(VI) Assessing the adequacy and potential contamination of food and water supplies;
(VII) Providing mental health support to affected persons; and
(VIII) Informing the citizens of the state how to protect themselves, what actions are being
taken to control the epidemic, and when the epidemic is over.
24-32-2105 - Office of emergency management.
(1) (a) There is hereby created in the division'of local government the office of emergency management,
referred to in this part 21 as the "office". Pursuant to section 13 of article XII of the state constitution.
the executive director shall appoint a director, referred to in this part 21 as the "director", as head of the
office.
(b) The office of emergency management and the office of the director shall exercise their powers and
perform their duties and functions under the deparunent of local affairs and the executive director as
transferred to the department by a type 2 transfer, as such transfer is defined in the "Administrative
Organization Act of 1968", article 1 of this tide.
(2) The division shall prepare and maintain a state disaster plan that complies with all applicable federal
and state regulations and shall keep such plan current.
(3) The office shall take pan in the development and revision of local and interjurisdictional disaster plans
prepared under section 24-32-2107. To this end the office shall employ or otherwise secure the services of
professional and technical personnel capable of providing expert assistance to political subdivisions, their
disaster agencies, and interjurisdictional planning and disaster agencies. Such personnel shall consult with
political subdivisions and disaster agencies and shall make field examinations.
(4) In preparing and revising the state disaster plan, the office may seek the advice and assistance of local
government, business, labor, industry, agriculture, ciwc and volunteer organizations, and community
leaders.
(5) The state disaster plan or any pan thereof may be incorporated in regulations of the office or executive
orders which have the force and effect of law.
(6) The office may do all things necessary for the implementation of this part 21, including but not limited
(a) Hiring personnel;
lb) Contracting with federal, state, local, and private entities;
(c) Accepting and expending federal funds.
24-32-2106 - Financing.
(1) It is the intent of the general assembly and declared to be the policy of the state that funds to meet
disaster emergencies shall always be available.
(2) (a) A disaster emergency fund is hereby established which shall receive moneys appropriated/hereto by
the general assembly. Moneys m the disaster emergency fund shall remain therein until expended.
(b) Any moneys remmning in the disaster emergency fund, as such luna exi~te~ p~0~' i~'Ma/:ch 12,
1992, shall be transferred on March 12, 1992, [o the disaster emergency fund created by paragraph (a)
of this subsection (2).
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(3) The council shall review in detail each expenditure of disaster emergency moneys.
(4) It is the legislative intent that first recourse be to funds regularly appropriated to state and local
agencies. If the governor finds that the demands placed upon these funds in coping with a particular disaster
are unreasonably great, the governor may, with the concurrence of the council, make funds available from
the disaster emergency fund. If moneys available from the fund are insufficient, the governor, with the
concurrence of the council, may transfer and expend moneys appropriated for other purposes.
(5) The director is authorized to establish, pursuant to article 4 of this title, the rules and regulations that
will govern the reimbursement of funds to state agencies and political subdivisions and to promulgate such
regulations.
(6) Nothing in this section shall be consumed to limit the governor's authority to apply for, administer, and
expend grants, gifts, or payments in aid of disaster prevention, preparedness, response, or recovery.
24-32-21 D7 - Local and interjurisdictional disaster agencies and services.
(1) Each political subdivismn shall be within the jurisdiction of and served by the division and by a local or
interjurisdictional agency responsible for disaster preparedness and coordination of response.
(2) Each county shall maintain a disaster agency or participate in a local or interjurisdictional disaster
agency, which, except as otherwise provided under this part 21, has jurisdiction over and serves the entire
county.
(3) The governor shall determine which municipal corporations need disaster agencies of their own and
require that they be established and maintained. The governor shall make such determination on the basis of
the municipality's disaster vulnerability and capability of response related to population size and
concentration. The disaster agency of a county shall cooperate with the disaster agencies of municipalities
situated within its borders but shall not have jurisdiction within a munictPality having its own disaster
agency. The office shall publish and keep current a list of municipalities required to have disaster agencies
under this subsection (3).
(4) The minimum composition of a disaster agency shall be a director or coordinator appointed and
governed by the chief executive officer or governing body of the appointing jurisdiction. The director or
coordinator shall be responsible for the planning and coordination of the local disaster services.
(5) Any provtsion of this part 21 or other law to the contrary notwithstanding, the governor may require a
political subdivision to establish and maintain a disaster agency jointly with one or more contiguous
political subdivisions if the governor finds that the establishment and maintenance of au agency or
participation therein is made necessary by circumstances or conditions that make it unusually difficult to
provide disaster prevention, preparedness, response, or recovery services under other provisions of this pan
21.
(6) Each political subdivision which does not have a disaster agency and has not made arrangements to
secure or participate in the services of an agency shall have an elected official designated as liaison officer
to facilitate the cooperation and protection of that subdivision in the work of disaster prevention,
preparedness, response, and recovery.
¢7~ The mayor, chairman of the board of county commissioners, or other principal executive officer of each
political subdivision in the state shall notify the'office of the manner in which the political subdivision is
providing or secunng disaster planning and emergency services, identify the person who heads the agency
from which the services are obtained, and furnish additional information relating thereto as the division
requires.
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BASIC EMERGENCY MANAGEMENT PLAN
(8) Each local and interjurisdictional disaster agency shall prepare and keep currem a local or
inte~urisdicfional disaster emergency plan for its area.
(9) The local or interjurisdictional disaster agency, as the case may be, shall prepare and distribute to all
appropriate officials in written form a clear and complete statement of the emergency responsibilities of all
local agencies and officials and of the disaster chain of command.
(10) The sheriff of each county shall: ~'
(a) Be the official responsible for coordination of all search and rescue operations within the sheriffs
jurisdiction;
(b) Make use of the search and rescue capability and resources available within the county and request
assistance from the division only when and if the sheriff determines such additional assistance is
required.
(11) When authorized by the governor and executive director and approved by the director, expenses
incurred in meeting contingencies and emergencies arising from search and rescue operations may be
reimbursed from the disaster emergency fund.
(12) Any person providing information m a local or interjurisdictional disaster agency may request, ~n
writing, that such information be disseminated only m persons connected with or involved in the
preparation, update, or ~mplementation of any disaster emergency plan, and said information shall thereafter
not be released to any person without the expressed written consent of the person providing the
information.
24-32-2108 - Establishment of interjurisdictional disaster planning and service area.
(1) If the governor finds that two or more adjoimng counties would be better served by an
interjurisdictional arrangement than by maintaining separate disaster agencies and services, the governor
may delineate by executive order an interjurisdictional area adequate to plan for, prevent, or respond to
disaster in that area and direct steps to be taken as necessary, including the creation of an interjurisdictional
relationship, a joint disaster emergency plan, mutual aid, or an area organization for emergency planning
and services.
(2) A finding of the governor pumuant m subsection (1) of this section shall be based on one or more
factors related to the difficulty of maintaining an efficient and effective disaster prevention, preparedness,
response, and recovery system on a separate basis, such as:
(a) Small or sparse population;
(b) Limitations on public financial resources severe enough te make maintenance of a separate disaster
agency and services unreasonably burdensome;
(c) Unusual vulnerability to disaster as evidenced by a past history of disasters, topographical features,
drainage characteristics, disaster potential, and presence of disaster-prone facilities or operations;
(d) The interrelated character of the counties in a multi-county area; and
(el Other relevant conditions or circumstances.
(3) If the governor finds that a vulnerable area lies only partly within this state and includes territory in
another state or territory in a foreign jurisdiction and that it would be desirable to establish an interstate or
international relationship or mutual aid or an area organization for disaster, the governor shall take steps to
October 2002 Page 27
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BASIC EMERGENCY MANAGEMENT PLAN
that end as desirable. If this action is taken with jurisdictions that have enacted the interstate civil defense
and disaster compact, any resulting agreements may be considered supple~nental agreements pursuant to
article VI of such compact.
(4) If the other jurisdictions with which the governor proposes to cooperate pursuant to subsection (3) of
this section have not enacted the interstate civil defense and disaster compact, the governor may negotiate
special agreements with such jurisdictions. Any agremnem, if sufficient authority for the making thereof
does not otherwise exist, becomes effective only atSer its text has been communicated to the general
assembly and if neither house of the general assembly has disapproved it before adjoummem sine die of the
next ensmng session competent to consider it or within thirty days of its submission, whichever is longer.
24-32-2109 - Local disaster emergencies.
(1) A local disaster may be declared only by the principal executive officer of a political subdivision. It
shall not be continued or renewed for a period in excess of seven days except by or with the consent of the
governing board of the political subdivision. Any order or proclamation declaring, continuing, or
terminating a local disaster emergency shall be given prompt and general publicity and shall be filed
promptly with the county cl~k and recorder, city clerk, or other authorized record-keeping agency and with
the division.
(2) The effect ora declaration ora local disaster emergency is to activate the response and recovery aspects
of any and ali applicable local and interjurisdictional disaster emergency plans and to authorize the
furnishing of aid and assistance under such plans.
(3) No interjurisdictional disaster agency or official thereof may declare a local disaster emergency unless
expressly authorized by the agreement pursuant ro which the agency functions. An interjurisdictional
disaster agency shall provide aid and services in accordance with the agreement pursuant to which it
functions.
24-32-2110 - Disaster prevention.
(1) In addition to disaster prevcmtion measures as included in the state, local, and interjurisdictional disaster
emergency plans, the governor shall consider steps that could be taken on a continuing basis to prevent or
reduce the harmful consequences of disasters. At the goveumor's direction, and pursuant to any other
authority and competence they have, state agencies, including but not limited to those charged with
responsibilities in connection with floodplain management, suceam encroachment and flow regulation,
weather modification, fire prevention and control, air quality, public works, land use and land-use planning,
and construction standards, shall make studies of matters related to disaster prevention. The governor and
the executive director, from time to time. shall make recommendations to the general assembly, local
governments, and such other appropriate public and private entities as may facilitate measures for
prevention or reduction of the harmful consequences of disasters.
(2) All state departments, ~n conjunction with the division, shall conduct studies and adopt measures to
reduce the impact of, and actions contributory to, a disaster. The studies shall concentrate on means of
reducing or avoidin~ the dangers caused by such occurrences or the consequences thereof.
(31 If the division believes on the basis of the studies or other competent evidence that an area is susceptible
to a disaster of catastrophic proportions without adequate warning, that existing building standards and
land-use controls in that area are inadequate and could add substantially to the magnitude of the disaster.
and that changes in zoning regulations, other land-use regulations, or building reqmrements are essential in
order to further the purposes of this section, it shall specify the essential changes to the executive director
and to the governor. If the governor upon review of the recommendations finds after public heating that the
changes are essential, the governor shall so recommend to the agencies or local governments with
October, 2002 Poqo 28
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jurisdictions over thc area and subject mat~er. If no action or insufficient action pursuant to the governor's
recommendations is taken within the time specified by the governor, the governor shall so inform the
general assembly and request legislative action appropriate m mitigate the impact of disaster.
(4) The governor, at the same time that the governor makes recommendations pursuant to subsection (3) of
this section, may suspend the standard or control which the governor finds to be inadequate to protect the
public safety and by regulation place a new standard or control in effect. The new standard or control shall
remain in effect until rejected by joint resolution of both houses of the general assembly or amended by the
governor. During the time it is in effect, the standard or control contained in the governor's regulation shall
be administered and given full effect by all relevant regulatow agencies of the state and local governments
to which it applies. The governor's action is subject to judicial review but shall not be subject to temporary
stay pending litigation.
24-32-2111 ~ Compensation - liability when combating grasshopper infestation.
(1) Each person within this state shall conduct himself or herself and keep and manage such person's affairs
and property ~n ways that will reasonably assist and will not unreasonably detract from the ability of the
state and the public successfully to meet disasters or emergencies. This obligation includes appropriate
personal service and use or restriction on the use of property in time of disaster emergency. This part 21
neither increases nor decreases these obligations but recognizes their existence under the constitution and
statutes of this state and the common law. Compensation for services or for the taking or use of property
shall be only to the extent that the obligations recognized in this subsection (1) are exceeded in a particular
case and then only to the extent that the claimant has not volunteered such claimant's services or property
without compensation.
(2) No personal services may be compensated by the state or any subdivision or agency thereofi except
pursuant to statute or local law or ordinance
(3) Compensation for property shall be made only if the property was commandeered or otherwise used in
coping with a disaster emergency and its use or destruction was ordered by the governor or a member of the
disaster emergency fomes of this state.
(4) The amount of compensation shall be calculated in the same manner as compensation due for taking of
property pursuant to eminent domain procedures, as provided in articles 1 to 7 of title 38, C.R.S.
(5) Nothing in this section applies to or author/zes compensation for. the destruction or damaging of
standing timber or other property in order m provide a firebreak or applies to the release of waters or the
breach of impoundments in order to reduce pressure or uther danger from actual or threatened flood.
(6) The state and its agencies and political subdivisions and the officers and ~mploye~i of the State and its
agencies and political subdivisions shall not be liable for any claim based upon the exercise or performance
or the failure to exercise or perform an act relating m the combating of grasshopper infestation of this state
except for negligence or willful disregard of the rights of others, and then only to the extent of one hundred
thousand dollars for any injury to or damage suffered by one person and the sum of three hundred thousand
dollars for an injury to or damage suffered by two or more persons in any single occurrence; except that, in
such latter instance, no person may recover in excess of one hundred thousand dollars. This subsection (6)
is the total extent of liability of the state and its agencies and political subdivisions and the officers and
employees of the state and its agencies and political subdivisions with regard to the combating of
grasshopper infestation of the state and abrogates any common-law cause of action thereto. Except to the
extent of insurance coverage, no person acting as a contractor with the state or any of its political
subdivisions, or any officer or employee of such contractor, shall be liable on any claim alleging strict
liability on contract or tort for actions taken relating to combating grasshopper infestation of the state under
October. 2002 Page 29
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BASIC EMERGENCY MANAGEMENT PLAN
this part 21 or under House Bill No. 1001, enacted m the second extraordinary session of the fifty-first
general assembly.
24-32-2111.5 - Governor's expert emergency epidemic response committee - compensation - liability.
(1) Neither the state nor the members of the expert emergency epidemic response committee designated or
appointed pursuant ro section 24-32-2104 (8) shall be liable for any claim based upon the committee's
advice to the governor or the alleged negligent exercise or performance of, or failure to exercise or perform
an act relating to an emergency epidemic. Liability against a member of the committee may be found only
for wanton or willful misconduct or willful clismgard of the best interests of protecting and maintaining the
public health. Damages awarded on the basis of such liability shall not exceed one hundred thousand
dollars for any injury to or damage suffered by one person or three hundred thousand dollars for an injury
to or damage suffered by three or more persons in the course of an emergency epidemic.
(2) The conduct and management of the affairs and property of each hospital, physician, health insurer or
managed health care organization, health care provider, public health worker, or emergency medical service
provider shall be such that they will reasonably assist and not unreasonably detract from the ability of the
state and the public to successfully control emergency epidemics that are declared a disaster emergency.
Such persons and entities that in good faith comply completely with board of health rules regarding the
emergency epidemic and with executive orders regarding 'the disaster emergency shall be immune from
civil or criminal liability for any action taken to comply with the executive order or rule.
(3) No personal services may be compensated by the state or any subdivision or agency of the state, except
pursuant to statute or local law or ordinance.
(4) Compensation for property shall be made only if the property was commandeered or otherwise used in
coping with an emergency epidemic that is declared by the governor or a member of the flisaster emergency
forces of this state.
(5) The amount of compensation shall be calculated in the same manner as compensation due for taking of
property pursuant to eminent domain procedures, as provided in articles 1 to 7 of title 38, C.R.S.
24-32-2112 - Telecommunications.
The state telecommunications director, working in coordination with the office, shall ascertain what means
exist for rapid and efficient telecommunications in times of disaster emergencies. Operational
characteristics of the available systems of telecommunications shall be evaluated by the office, and
recommendations for modifications shall be made to the state telecommunications director. It is the intent
of this section thai adequate means of telecommunications be available for use during disaster emergencies.
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24-32-2113 - Mutual aid.
(1) Political subdivisions not participating in inte~ufisdictional arrangements pursuant to this part 21
nevertheless shall be encouraged and assisted by the office to conclude suitable arrangements for furnishing
mutual aid in coping with disasters. The arrangements shall include provision of aid by persons and units in
public employ.
(2) In passing upon local disaster plans, the governor shall consider whether such plans contain adequate
provisions for the rendering and receipt of mutual aid.
(3) It is a sufficient reason, for the governor to require an interjurisdictional agreement or arrangement
pursuant to section 24-32-2108 that the area involved and political subdivisions therein have available
equipment, supplies, and forces necessary to provide mutual aid on a regional basis and that the political
subdivisions have not already made adequate provision for mutual aid; except that, in requinng the making
of an interjurisdictiona] arrangement to accomplish the purpose of this section, the governor need not
require establishment and maintenance of an interjurisdictional agency or arrangement for any other
disaster purposes.
24-32-2114 - Weather modification.
The office shall keep continuously apprised of weather conditions, which present danger of precipitation or
other climatic activity severe enough to constitute a disaster. If the office determines that precipitation that
may result from weather modification operations, either by itself or in conjunction with other precipitation
or climatic conditions or activity, would create or contribute to the severity of a disaster, it shall recommend
to the executive director of the department of natural resources, empowered m issue permits for weather
modification operations under article 20 of title 36, C.R.S., to warn those organizations or agencies engaged
in weather modification to suspend their operations until the danger has passed or recommend that said
executive director modify the terms of any permit as may be necessary.
24-32-2115 - Merit system.
On and after January 1, 2000, in accordance with section 13 (4) of article XII of the state constitution, the
state personnel board may provide personnel services pursuant m contract to civil defense employees of the
political subdivisions of the state, except where such employees are covered by another federally approved
merit system.
A. Federal:
1. Federal Civil Defense Act of 1950, Public Law 81-920 as amended.
2. The Disaster Relief Act of 1974., Public Law 93-288 as amended.
3. The Robert T. Stafford Disaster Relief and Emergency Act, Public Law 100-707.
4. Emergency Management and Assistance, Code of Federal Regulations. Title 44.
5. Title III, of the Superfund Amendments and Reauthorization Act of 1986, (SARA), Public
Law 99-499 as amended.
B. State:
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Colorado Revised Statutes, Title 24, Article 32, Part 21.
C. Local:
City of Aspen, Home Rule Charter, Sections 4.11 and I3.8.
Section 4.11. Emergency ordinances.
Emergency ordinances for the preservation of public property, health, peace, or safety shall be approved
only by the unanimous vote of council members presem or a vote of four (41 couneiI members, wh/chever is less.
The facts, showing such urgency and need shall be specifically stated in the measure itself. No ord/nance making a
grant of any special privilege, levying taxes, or fixing rates charged by any city-owned utility shall ever be passed as
an emergency measure. An emergency ordinance shall require passage at two (2) meetings of the council. However.
neither a public hearing nor a first publication as provided in Section 4.10 shall be required. An emergency
ordinance shall take effect upon fmaI passage. Publication shall be within ten (10) days after final passage, or as
soon thereafter as possible.
(Ref. of 5-5-87)
Section 13.8. Emergency powers.
In case of riot, insurrection or extra-ordinary emergency, the mayor, or in his absence, the manager, shall
assume general control of the city government and all branches and be responsible for the suppression of disorders
and the restoration of normal conditions. At any time of threatened or actual civil insurrection, the mayor shall:
(a} Proclaim the existence and termination of a threatened or actual civil/nsurrection;
(b) Request the governor's proclamation at his discretion if he believes that the resources and ability of
the community are inadequate to cope with the peril:
(c) Convene the council within two (2) days if it appears that the state of civil insm'rection will continue
for more than two (2) days;
(d) Execute all his normal powers and all his special powers lawfully conferred upon l:dm including, but
not limited to. establishing written rules and regulations governing conduct and activities reasonably related to the
protection of life and property and to the suppression of the civil insurrection.
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Appendix 3
CITY OF ASPEN EMERGENCY MANAGEMENT ORGANIZATION CHART
City of Aspen
ncident Management O~amation ChaA
Managers Group
I Public Info Officer L~
L Operations J J Planning II LOgistics j j Finance/Admin I
October, 2002 Page 33