2.1 Incident Management System

2.1.1 Ontario uses the Incident Management System (IMS), a standardized and coordinated approach to managing incidents that provides functional interoperability at all levels of emergency management.

2.1.2 IMS presents standardized organizational structure, functions, processes, and terminology:

  1. The organizational structure provides for the chain of command and control;
  2. The standard functions under IMS for a radiological incident include Command, Operations, Planning, Logistics, Science, and Finance & Administration;
  3. Processes allow those who respond to the same incident to formulate an Incident Action Plan to manage the incident;
  4. IMS uses plain-language terminology to reduce the risk of miscommunication among responders.

2.1.3 The basic IMS organizational structure used for a provincial emergency response is illustrated in Figure 2.1.

2.2 Lieutenant Governor In Council and Premier

The Lieutenant Governor In Council (LGIC) and the Premier of Ontario provide overall direction to the management of the emergency response.

2.3 Cabinet Committee on Emergency Management and Cabinet Office

2.3.1 The mandate of the Cabinet Committee on Emergency Management (CCEM) is to ensure that the Province is prepared to address emergency situations and assume other responsibilities, as Cabinet deems appropriate. Cabinet Office supports the CCEM and acts as a link to the Premier's Office. The CCEM is the only Cabinet Committee for which membership has been specified by portfolio.

2.3.2 The CCEM works in conjunction with the Premier's Office, Cabinet Office, other affected ministries and Emergency Management Ontario to develop detailed plans for continued operations and constitutional governance in Ontario in the event of emergencies that could affect Ontario – regionally or provincially.

2.3.3 The Committee's main roles and responsibilities during an emergency can be summarized as follows:

  1. Develop the overall provincial emergency management response strategy for the Government of Ontario;
  2. Conduct high-level briefings and discussions of strategic issues with appropriate ministries;
  3. Ensure management of strategic issues; and
  4. Ensure the continuity of critical government operations and services.

2.4 Deputy minister of community safety

The Deputy Minister of Community Safety is responsible for:

  1. Maintaining liaison between the Commissioner of Emergency Management (CEM) and Deputy Ministers involved in the emergency response;
  2. Leading the Ministry of Community Safety and Correctional Services Ministry Action Group (or doing so through a designate).

2.5 Commissioner of Emergency Management (CEM)

  1. During an emergency or pending emergency situation, the CEM will serve as the direct link between the Cabinet Committee on Emergency Management (CCEM) and the PEOC (Section 2.7 below);
  2. The CEM will ensure that strategic and operational information and decisions are relayed between the CCEM and PEOC in a timely and effective manner.

2.6 Emergency information

2.6.1 The Provincial Chief, Emergency Information is responsible for the development and implementation of the Provincial Emergency Information Plan (PEIP), in cooperation with Cabinet.

2.6.2 Information must flow in both directions to ensure that Command-identified emergency information issues are incorporated into the emergency information messaging and that the PEOC is made aware of the PEIP, its amendments, or issues that may affect the overall response.

2.6.3 Where a local Emergency Information Centre is set up, the Chief of the Emergency Information Section may provide liaison staff, if requested or deemed necessary to ensure an appropriate level of coordination and provision of emergency information.

2.6.4 The main functions of the Emergency Information Section include:

  • Developing and issuing news releases and other public information products on behalf of the province regarding the emergency and the measure being taken by the province to deal with it;
  • Coordinating news conferences on behalf of the province and providing supportive documents for provincial spokesperson(s).
  • Monitoring the media and the public's perception of and reaction to the situation and keeping the Command Section and the local Emergency Information Centre informed;
  • Answering media and public inquiries;
  • Providing information on the emergency and the province's response to ministries and other stakeholders not directly involved in the response.
  • Monitoring media and the Internet, correcting inaccuracies and dispelling rumours;
  • Posting emergency information on the Internet and intranet;
  • Providing notices and public service announcements to broadcasters;
  • Providing key messages and information to activated call centres;
  • Providing communications advice to the PEOC Command Section and the Commissioner of Emergency Management; and providing information to the Premier's Office via Cabinet Office.

2.6.5 The Provincial Emergency Information Plan provides detailed information regarding the roles, responsibilities and functions of the Emergency Information Section.

2.7 The Provincial Emergency Operations Centre (PEOC)

2.7.1 The PEOC provides:

  1. Overall coordination of the provincial response, based on the strategic direction from the CEM and CCEM;
  2. Timely support, information and analysis to the CEM to coordinate the provincial emergency response;
  3. Assistance to communities in responding to a major radiological emergency by providing protective action direction, advice, assistance and support in coordinating the provision of additional resources;
  4. Deployed provincial staff to assist in coordinating provincial emergency response, as necessary.

2.7.2 Command Section

The role of the PEOC Command Section is to:

  1. Determine status of emergency declaration
  2. Approve and authorize implementation of the Incident Action Plan;
  3. Identify and resolve response issues;
  4. Identify unresolved issues to be addressed by the CEM and the CCEM;
  5. Provide advice, assistance and recommendations to the CEM;
  6. Implement decisions made by the CEM and the CCEM;
  7. Authorize and issue emergency information, operational directives and guidance including Emergency Bulletins;
  8. Establish and maintain liaison with the Command function of other supporting or assisting Emergency Operations Centres.

The Command Section may include technical experts and organizational representatives, as appropriate.

2.7.3 Command Staff

  1. Safety
    Safety staff is responsible for monitoring, tracking and ensuring the safety of all personnel working at the PEOC. Safety staff may also coordinate with other levels of response to ensure safe operations overall.
  2. Liaison
    Liaison staff acts as the link between the Command Section and other command elements involved in emergency response.
  3. Information
    Information Staff acts as the link between Command and the Emergency Information Section that is responsible for the development and implementation of the provincial communications plan. Information must flow in both directions to ensure that Command-identified emergency information issues are incorporated into the emergency information messaging and that the PEOC is made aware of the communication plan, plan amendments, or issues that may affect the overall response.

2.7.4 Operations Section

  1. Implement the Incident Action Plan.
  2. The Operations Section Chief coordinates the functions of the section and provides operations input to the Command Section.
  3. The Operations Section, will be made up of representation from the following organizations, as appropriate:
    1. Provincial ministries;
    2. Nuclear facilities;
    3. Federal departments including Health Canada, Public Safety Canada, Department of National Defence and CNSC;
    4. Contiguous provinces and/or states;
    5. Others as needed.
  4. Functions performed by Operations staff include:
    1. Providing operational input to the decision-making process;
    2. Implementing Command Section operational decisions by issuing advice or direction, as appropriate;
    3. Monitoring and coordination of deployed provincial resources;
    4. Identifying and coordinating the operational requirements of the response operation;
    5. Sharing information between all elements, as required.

2.7.5 Planning Section

  1. The Planning Section, led by the Planning Section Chief, prepares and documents the Incident Action Plan, including the Protective Action Response Planning Procedure and oversees all incident-related data gathering and analysis regarding incident operations and assigned resources.
  2. The Planning Section includes representation from the following organizations, as appropriate:
    1. Provincial ministries, including Agriculture, Food and Rural Affairs, Community and Social Services, Community Safety and Correctional Services, Health and Long-Term Care, Labour and Transportation;
    2. Deployed Provincial resources;
    3. Traffic Control representative;
    4. Others as required (EI, Scientific staff, as appropriate);
    5. Municipal Planning Team representative; and
    6. Others as needed.

2.7.6 Logistics Section

Under the direction of the Logistics Section Chief, staff arranges for and coordinates all PEOC material, personnel services, equipment and resources required to manage and resolve the emergency.

2.7.7 Finance and Administration Section

Under the direction of the Finance and Administration Section Chief, staff perform administrative, financial and staffing duties specific to the emergency. This may include the capture of incident-related costs, maintenance and scheduling of support personnel, maintenance of appropriate support records, and administering procurement contracts as necessary.

2.7.8 Scientific Section

The Scientific Section of the PEOC is responsible for giving scientific direction, coordinating the environmental radiation monitoring efforts, utilizing the analysis results and solving problems. The Chief of the Scientific Section will oversee all the groups within the section, as follows:

  1. Environmental Radiation Monitoring Group (ERMG)

    The Environmental Radiation Monitoring Group (Figure 2.2), led by Health Canada, is responsible for planning/surveying fixed and aerial and ground monitoring activities, directing the radiation monitoring teams (Federal, nuclear facilities and private sectors), processing the data, analysis, and assuring the teams' worker safety.

    This group includes representatives from:

    • Canadian Food Inspection Agency;
    • Health Canada;
    • Ministry of Agriculture Food and Rural Affairs;
    • Ministry of the Environment;
    • Ministry of Health and Long-Term Care;
    • Ministry of Labour;
    • Representatives from the community health unit(s); and
    • Others, as appropriate.

    The Environmental Radiation Monitoring Group, in cooperation with its federal partners, directs Field Monitoring Teams composed of representatives from:

    • Canadian Nuclear Safety Commission;
    • Health Canada;
    • Natural Resources Canada;
    • Nuclear facilities; and
    • Private sector (as appropriate).

    A Health Canada representative shall ensure liaison with the Federal Technical Advisory Group (TAG) operating under the The Federal Nuclear Emergency Plan (FNEP).

  2. Assurance Monitoring Group

    Headed by the Radiation Protection Service of the Ministry of Labour, this group implements monitoring programs in areas adjacent to a radioactive release which do not require protective measures against radiation. These programs are aimed at assuring the public that air, food and water are safe (refer to MOL Assurance/General Province-Wide Monitoring Group Plan).

  3. General Province-Wide Monitoring Group

    Headed by the Radiation Protection Services of the Ministry of Labour, this group monitors province-wide sampling to determine the extent of radionuclide dispositions and foodstuff contamination (refer to MOL Assurance/General Province-Wide Monitoring Group Plan).

2.8 Provincial liaison

2.8.1 The provincial emergency response organization for dealing with a nuclear or radiological emergency is shown in Figure 2.1.

2.8.2 Liaison Arrangements: To ensure liaison and coordination between different elements of the emergency response organization, the following arrangements and agreements shall be implemented:

  1. Provincial staff may be deployed to join the Emergency Operations Centre (EOC) of the affected community, of another jurisdiction (e.g. state or province) or of an affected organization (e.g. Greater Toronto Airport Authority (GTAA), federal government).
  2. Provincial Ministry EOCs - The following ministries shall set up their EOCs and provide assistance to the PEOC through their Ministry Action Group therein:
    • Agriculture, Food & Rural Affairs;
    • Attorney General;
    • Community and Social Services;
    • Community Safety and Correctional Services;
    • Ministry of Energy;
    • Environment;
    • Government Services;
    • Health and Long-Term Care;
    • Labour;
    • Municipal Affairs & Housing;
    • Natural Resources;
    • Northern Development, Mines and Forestry; and
    • Transportation.
  3. As required, elements of the provincial CBRNE system, as well as federal and private resources, may be activated.
  4. The Environmental Radiation Monitoring Group of the PEOC is set out above in Paragraph 2.7.8 (a).
  5. The Radiation Health Response Plan (RHRP) has been developed by the Ministry of Health and Long-Term Care (MOHLTC) to deal with potentially exposed and/or contaminated persons following a nuclear or radiological event. The RHRP will be implemented, whenever this plan is activated, through the MOHLTC EOC, in coordination with the PEOC (See Paragraph 3.4.10).
  6. Provincial and Federal Counter-Terrorism Plan - In the event that the incident results from an act of malevolence, the provincial consequence management aspect will be dealt with under this plan while the law enforcement aspect will be handled under the Provincial and Federal Counter-Terrorism Plans.

Coordination of the response operations will be accomplished using Ontario's Incident Management System (Section 2.1).

2.9 Response organizations – federal

2.9.1 The main federal agencies/organizations that will be involved in a radiological response include:

  1. Canadian Nuclear Safety Commission;
  2. Health Canada;
  3. Public Safety Canada;
  4. Transport Canada (for transportation accidents); and
  5. Royal Canadian Mounted Police (for malevolent acts).

2.9.2 The Environmental Radiation Monitoring Group, led by Health Canada, is discussed above in Paragraph 2.7.8 (a).

2.9.3 Other federal entities may be called in, as prescribed in federal plans.

2.9.4 The Government Operations Centre is operated by the federal government to coordinate federal activities in support of the Provincial Emergency Operations Centre or activities relating to areas of federal jurisdiction. This may include liaison with any other potentially affected provinces, with the United States, any other country, and international agencies.

2.10 Response organizations – communities

2.10.1 The organization assembled to respond to a radiological emergency shall be described in the community's Emergency Response Plan.

2.10.2 Mutual Assistance Arrangements/Agreements - Existing arrangements may be put into action in order to assist the affected community.

2.10.3 Support Communities - In the event of a declared emergency, the Premier or LGIC may order a community to provide support or assistance to the affected, communities at the time of the emergency (as authorized by sections 7.0.2 (4) or 7.0.3 of the EMCPA).

2.10.4 Community Emergency Operations Centres

  1. The municipal emergency response is under the direction and coordination of the Head of Council at the Community Emergency Operations Centre, which in turn receives information, support and direction from the Provincial Emergency Operations Centre.
  2. The structure of the municipal organization for undertaking emergency operations shall be laid down in municipal emergency response plans. This organization shall provide for the following centres, as required:
    • Community Emergency Operation Centre(s)footnote 2;
    • Reception Centre(s);
    • Evacuee Centre(s);
    • Emergency Worker Centre(s); and
    • Emergency Information Centre(s).
  3. Where applicable, Community Emergency Operation Centres should also include representatives of appropriate upper-tier departments and local boards such as boards of health, social services departments, school boards and police services. Such departments and boards shall also provide staff as required for the various other emergency centres to be set up.
  4. The PEOC may deploy resources to the Community Emergency Operations Centre to act as a link between the two centres. Information, and in some cases direction, to the Community Emergency Operations Centre from the PEOC may be conveyed through the provincially deployed staff.
  5. Further guidance on the function and responsibilities of these centres are provided in the implementing plans to the PNERP.

2.11 Contingency Provisions

2.11.1 The PEOC may issue operational directives to the emergency management and response organization through the centres in the tier below it. However, if for any reason any of these centres is not functioning or is not responsive, the PEOC may issue operational directives directly to any element of the emergency management and response organization.

2.11.2 Likewise, response organizations are responsible for taking appropriate actions, according to plans, procedures and the requirements of the situation.

2.12 Declaration or termination of an emergency

2.12.1 If circumstances are such that an emergency declaration or termination is necessary, such declarations shall be made by:

  1. The LGIC or the Premier, pursuant to section 7.0.1 of the EMCPA; and
  2. The Head of Council(s), pursuant to section 4 of the EMCPA.

2.13 Response level determination

2.13.1 The response level adopted by the PEOC will be determined at the time of the incident and will depend on the extent of operations required to be undertaken as well as the associated staffing required at the PEOC.

2.14 PEOC concept of operations

2.14.1 If the PEOC receives notification of a radiological incident from a community requesting assistance, some or all of the following operations will apply, in coordination with the actions already being undertaken by the community as detailed in Chapter 3:

  1. Locating the source, if missing. If the source has broken up, the various pieces would need to be located. This is the responsibility of the licensee, where the licensee is identifiable;
  2. If any persons are suspected of having been exposed by the source, screening them and providing treatment to those who need it;
  3. Fixing the source to prevent migration, ensuring shielding to prevent radiation exposure and applying appropriate access control zone boundaries;
  4. Detecting areas of contamination;
  5. Monitoring persons who may have been contaminated, and if necessary, decontaminating them;
  6. Applying exposure control measures where considered appropriate;
  7. Applying ingestion control measures where considered appropriate;
  8. Decontamination of contaminated areas; and
  9. Lifting of the protective measures applied.

2.15 Main PEOC operations

2.15.1 PEOC Assembles: The PEOC organization is notified and begins operations, under the direction of the Commander.

2.15.2 Liaison with the Federal Government: Communication shall be established and resource requirements shall be arranged.

2.15.3 Liaison with Communities: Communication shall be established with the affected community for regular information sharing. If appropriate, a provincial staff shall be deployed. See Paragraph 3.4.11 below.

2.15.4 Emergency Information: An initial provincial release of information should be issued. See Section 2.6. If appropriate, provincial emergency information staff shall be deployed to the affected community(ies).

2.15.5 Provincial Emergency Declaration: The LGIC or, if appropriate, the Premier may declare an emergency if the criteria under section 7.0.1 of the EMCPA is met (see section 1.3 of the PNERP Master Plan).

2.15.6 Environmental Radiation Monitoring: Under the direction of the Command Section, based on recommendations of and guidance from the Scientific Section, a request shall be made for federal monitoring teams to measure airborne radiation as well as radioactive material on the ground to determine the need for and extent of protective measures required.

2.15.7 Protective Measures: The PEOC will consider the advisability of issuing operational directives (or, in the event of declared emergency advising that such orders have been made) for precautionary measures and protective measures (Paragraph 3.4.9 below), based on the assessments from the Scientific Section.

Diagram of Provincial Nuclear and Radiological Emergency Response Organization
Figure 2.1: Provincial Nuclear and Radiological Emergency Response Organization | View full size (PNG, 97 KB)
Diagram of Environmental Radiation Monitoring Group
Figure 2.2: Environmental Radiation Monitoring Group | View full size (PNG, 34 KB)

Footnotes

  • footnote[2] Back to paragraph Community Emergency Operation Centres is used in this Plan as a generic term and includes a centre set up by an upper tier Municipality.