Chapter 4 Emergency response structure and functions

4.1 General

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

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

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

4.1.3 The basic IMS organizational structure used for a provincial emergency response is illustrated in Figure 4.1.

4.2 LGIC and Premier

The LGIC and the Premier of Ontario provide overall direction to the management of the emergency response through the Commissioner of Emergency Management to the PEOC Commander.

4.3 Cabinet Committee

4.3.1 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.  The CCEM is the only Cabinet Committee for which membership has been specified by portfolio.

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

4.3.3 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.
4. Ensure the continuity of critical government operations and services.

4.4 Cabinet Office and Minister MCSCS Office

Both the Cabinet Office and Minister MCSCS office support the CCEM and act as links to the Premier's Office.

4.5 Deputy Minister, Community Safety and Correctional Services (MCSCS)

The Deputy Minister MCSCS is responsible for:

1. Maintaining liaison between the Fire Marshal and Chief of Emergency Management and other Deputy Ministers involved in the emergency response; and
2. Leading the MCSCS Ministry Action Group (or doing so through a designate).

4.6 Commissioner of Emergency Management (CEM)

1. During an emergency or pending emergency situation, the CEM shall serve as the direct link between the CCEM and the PEOC (Section 4.8 below)
2. The CEM shall ensure that strategic and operational information and decisions are relayed between the CCEM and PEOC in a timely and effective manner.

4.7 Emergency Information Section

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

4.7.2 Information shall 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 any issues that may affect the overall response. 

4.7.3 Where a local Emergency Information Centre (EIC) 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.

4.7.4 The main functions of the Emergency Information Section include:

1. Issue news releases and other public information products on behalf of the province, to the media and provide information on the emergency, and on measures the province is taking to manage it.
2. Co-ordinate news conferences on behalf of the province and provide supportive documents for provincial spokesperson.
3. Monitor media and public's perception of, and reaction to the situation and keep the PEOC Command Section and local Emergency Information Centre informed.
4. Provide information on the emergency, and the province's response to it, to ministries and other stakeholders not directly involved in the emergency response.
5. Identify rumours and counter them.
6. Provide key messages and information to activated call centres.

4.8 The Provincial Emergency Operations Centre (PEOC)

4.8.1 The Provincial Emergency Operations Centre (PEOC):

1. Provides overall coordination of the provincial response, based on the strategic direction from the PEOC Commander.
2. Provides timely support, information and analysis to the PEOC Commander to co-ordinate the provincial emergency response.
3. Assists communities in responding to nuclear and radiological emergencies by providing protective action direction, advice, assistance and support in coordinating the provision of additional resources.
4. May deploy personnel to assist in coordinating the emergency response.

4.8.2 Command Section

1. The role of the PEOC Command Section is to:
   1. approve the Incident Action Plan
   2. identify and resolve response issues
   3. identify unresolved issues to be addressed by the Fire Marshal and Chief of Emergency Management (FM&CEM) and the CCEM
   4. provide advice, assistance and recommendations to the FM&CEM
   5. implement direction provided by the PEOC Commander
   6. issue operational directives and guidance including emergency bulletins
   7. liaise with the command function of other Emergency Operations Centres (EOCs)
2. The Command Section may include technical experts and organizational representatives including the Chief Medical Officer of Health (CMOH), as requested by the PEOC Commander.

4.8.3 Command Staff

1. Safety

   Safety staff are responsible for monitoring, tracking and ensuring the health and safety of all personnel working at the PEOC. Safety staff may also co-ordinate with other levels of response to ensure safe operations overall.

2. Liaison

   Liaison staff act as the link between the Command Section and other command elements involved in emergency response.

3. Information

   Information staff act as the link between Command and the Emergency Information Section that is responsible for the development and implementation of the Provincial Communication Plan. Information shall 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.

4.8.4 Operations Section

1. The role of the PEOC Operations Section is to:
   1. Implement the Incident Action Plan.
   2. The Operations Section Chief co-ordinates the functions of the section and provides operations input to the Command Section.
   3. The Operations Section should be comprised of representation from the following organizations, as appropriate:
      • provincial ministries
      • reactor facilities
      • federal departments including Health Canada, Public Safety Canada, Department of National Defence and CNSC
      • contiguous provinces
      • State representatives from the U.S., as appropriate
      • others as requested
2. Functions performed by PEOC 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 members of the PEOC, as required

4.8.5 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 may include representation from the following organizations, as appropriate:
   1. provincial ministries including OMAFRA, MOECC, MOHLTC, MCSS, MCSCS, MTO and MOL
   2. deployed provincial resources
   3. UTCC representative (via teleconference)
   4. municipal planning team representative (via teleconference) from Designated Municipalities, Designated Host Municipalities and support municipalities
   5. others as needed (e.g., emergency information and scientific staff)

4.8.6 Logistics Section

Under the direction of the Logistics Section Chief, staff arrange for and co-ordinates all material, personnel services, equipment and resources required to manage and resolve the emergency.

4.8.7 Finance & 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.

4.8.8 Scientific Section

1. The Scientific Section is comprised of:
   1. Nuclear Incident Group (NIG); and
   2. Environmental Radiation and Assurance Monitoring Group (ERAMG).
2. The Scientific Section organizational structure is illustrated in Figure 4.2.
3. In emergency situations, the Scientific Section is responsible for:
   1. conducting dose assessments and modelling
   2. planning and conducting radiation monitoring, surveillance and sampling activities in areas surrounding the emergency site and throughout the province
   3. analysing and evaluating the collected monitoring, surveillance and sampling data
4. The results from b) above are used to formulate recommendations on the adoption of precautionary and protective measures as well as longer term measures or, the removal of such measures.
5. The Scientific Section utilizes data from a variety of sources to inform recommendations on protective and precautionary actions. Sources include:
   1. ongoing monitoring and surveillance
   2. field-based monitoring and surveillance
   3. field-based sampling
   4. station parameters
   5. v.source terms
   6. meteorological data and forecasts
   7. dose projections and modelling
   8. plume modelling
6. Nuclear Incident Group (NIG)
   1. The NIG, consists of nuclear systems specialists, meteorologists, and health physicists from:
      • HC
      • CNSC
      • MOECC
      • others as requested (e.g., depending on the nature of the emergency, reactor facility operators may provide technical staff)
   2. The NIG provides the technical input into the pre-release decision‑making process by:
      • calculating projected off-site effects based on meteorological data, field monitoring data and source term estimates
      • performing technical assessments of the developing situation
      • making recommendations on protective measures where warranted
      • assigning a safety status to response sectors (Annex H)
      • providing technical assistance to the Environmental Radiation and Assurance Monitoring Group
7. Environmental Radiation and Assurance Monitoring Group (ERAMG)
   1. The ERAMG is a multi-jurisdictional group comprised of representatives from designated provincial ministries, the federal government and reactor facilities primarily focused on post-release activities such as:
      • planning and conducting post-release surveillance and monitoring of the environment and sampling air, water, milk and foodstuffs in areas proximal to the incident as well as further afield (province-wide)
      • analysing and interpreting the results of surveillance, monitoring and sampling activities 
      • formulating recommendations on the adoption or removal of protective and precautionary measures in accordance with the OILs specified in Annex E, Appendix 2
      • confirming areas that are safe to continue agri-food operations, including the consumption and distribution of foodstuff and water
   2. The ERAMG includes representatives from:
      • Ministry of Labour (MOL)
      • Ministry of the Environment and Climate Change (MOECC)
      • Ministry of Agriculture, Food and Rural Affairs (OMAFRA)
      • Ministry of Health and Long-Term Care (MOHLTC)
      • Health Canada and federal FNEP partners
      • CFIA
      • Reactor facility operators

4.9 Other Emergency Operations Centres

4.9.1 Unified Transportation Coordination Centre (UTCC)

1. The Ontario Ministry of Transportation is responsible for the coordination of the development, maintenance, and implementation of the Unified Transportation Coordination Centre (UTCC) which may be a physical or virtual centre.
2. The UTCC is responsible for the management of all transportation aspects related to evacuation from affected areas, recovery to affected areas, as well as the transportation impacts beyond these areas.
3. The UTCC shall include representatives from MTO, OPP, Designated Municipalities and Designated Host Municipalities, local police, road and transit authorities, applicable provincial ministries, Metrolinx, and others as required.
4. Plans, procedures, roles, and responsibilities for the set-up, operation, and decommissioning of the UTCC shall be prepared in advance by UTCC members.
5. Reporting and notification structures under which the UTCC shall operate shall be prepared in advance by UTCC members.
6. Further guidance on site-specific functions and responsibilities of the UTCC shall be detailed further in the PNERP Implementing Plans and site-specific Unified Transportation Management Plans (UTMPs).
7. The UTCC shall be the entity responsible for the implementation of the UTMPs for nuclear and radiological emergency response and recovery.

4.9.2 Ministry Emergency Operations Centres (MEOCs)

The following ministries shall set up Ministry Emergency Operations Centres to carry out their respective responsibilities and to direct and co-ordinate provincial ministry actions (including their regional or area offices supporting the affected areas) according to the requirements of this Plan and the directions of the PEOC:

1. Ministry of Agriculture, Food and Rural Affairs
2. Ministry of the Attorney General
3. Ministry of Community and Social Services
4. Ministry of Community Safety & Correctional Services
5. Ministry of the Environment and Climate Change
6. Ministry of Energy
7. Ministry of Health and Long-Term Care
8. Ministry of Transportation
9. Ministry of Natural Resources and Forestry
10. Ministry of Northern Development and Mines
11. Ministry of Municipal Affairs
12. Ministry of Labour

4.9.3 Government Operations Centre (GOC)

The Government Operations Centre is set up by the federal government to co-ordinate 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, the United States, other countries and, international agencies.

4.9.4 Reactor Facility

In the event of a nuclear emergency, the reactor facility shall make the necessary provisions to conduct their off-site responsibilities through their Emergency Operations Facility. Responsibilities shall include:

1. provision of personnel to off-site provincial and municipal operations centres
2. provision of the necessary information and data to the Provincial Emergency Operations Centre including results of off-site monitoring
3. off-site activities such as field monitoring, emergency worker safety (Annex H), and personal monitoring

4.9.5 Community Emergency Operations Centres (CEOC)

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.

1. The structure of the municipal organization for undertaking emergency operations shall be defined in municipal emergency response plans.  This organization shall provide for the following centres, as required:
   1. Community Emergency Operation Centre(s)^{footnote 6[6]}
   2. Reception Centre(s)
   3. Evacuation Centre(s)
   4. Emergency Worker Centre(s)
   5. Emergency Information Centre(s)
2. Community Emergency Operation Centres (CEOC) shall also include representatives of appropriate upper- tier municipal 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 established.

4.9.6 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 provincially deployed staff.

4.9.7 Further guidance on the function and responsibilities of these centres is provided in the PNERP implementing plans.

4.10 Field Response

1. Organizations working in the field or responding directly to the incident include:
   1. staff operating pursuant to MOHLTC's Radiation Health Response Plan (RHRP), as defined in that plan
   2. staff undertaking Environmental and Assurance Radiation Monitoring under the direction of PEOC Scientific Section
   3. staff operating pursuant to the Unified Transportation Management Plan (UTMP)
   4. staff operating in Reception, Evacuation and Emergency Worker Centres
   5. others as determined and authorized by the PEOC Commander
2. In the event of a nuclear emergency in Ontario, the reactor facility shall conduct their response as follows:
   1. On-site, to ensure that the reactor is in a safe shutdown mode, that radioactive releases are safely avoided if possible or ended and thereafter, to begin to restore conditions on-site back to normal;
   2. On-site and off-site in the provision of monitoring data gathered by field teams (outside of the context of ERAMG, but also within the context of the ERAMG);
   3. Off-site, in conjunction with the Designated Municipality, in the operation of Emergency Worker Centres to ensure that emergency workers are monitored for radioactive contamination (and decontaminated, if necessary); and
   4. Off-site, in conjunction with the Designated Municipalities and host and support municipalities in the operation of Monitoring & Decontamination Units to ensure that the public that has been exposed to a radioactive release are monitored for contamination and decontaminated if necessary. Where deemed necessary by Command, the PEOC will co-ordinate the provincial field response.

* FNEP TAG = Federal Nuclear Emergency Plan Technical Assessment Group. This group is composed of federal FNEP partners, including Health Canada.

** FNEP TAG EMST = FNEP TAG Environmental Monitoring and Surveillance Group, a subgroup of the FNEP TAG.