Tac#25: Emergency Sheltering

Tactical Operations Manual Administrative Details

This document constitutes the Tactical Operations Manual #$25$, specifically focused on the subject of Emergency Sheltering, which was formerly known as the Displaced Resident Unit (DRU). Managed by the Emergency Operations Division of the Baltimore County Fire Department (BCoFD), this Standard Operational Procedure (SOP) was originally established and subsequently revised on $12/13/21$. The primary objective of this manual is to precisely outline the specific duties and responsibilities assigned to the Sheltering Unit when operating within the Incident Command System (ICS). This document, spanning $4$ pages, serves as the definitive guide for personnel regarding fire department activities during displacement events.

Scope and Purpose of Emergency Sheltering

The fundamental purpose of this policy is to establish clear and systematic procedures for the BCoFD to assist and support the Baltimore County Department of Health and Human Services (HHS) during evacuation and emergency sheltering operations. The Shelter unit leader acts as the central coordinator for the Fire Department's efforts, facilitating the transition of care for displaced residents to external entities including the American Red Cross (ARC), Health and Human Services, and other relevant organizations in accordance with the established emergency operations plan. This ensures that the immediate needs of the community are met during the critical window between an incident and long-term recovery.

Key Operational Definitions

For the purposes of this SOP, several terms are explicitly defined to ensure clarity in the field. Fires and isolated incidents are recognized as events that result in short-term or long-term displacement for residents, ranging from single families to large groups. While this SOP covers many scenarios, large-scale disasters requiring mass care beyond this scope must follow the Baltimore County Emergency Operations Plan Annex for Mass Care. A Shelter is defined as a place of refuge providing life-sustaining services in either a congregate or non-congregate setting for individuals displaced by a disaster. A displaced resident is any person who cannot access their primary residence or place of shelter, regardless of their own ability to find alternative housing independently.

The document also defines Access and Functional Needs, referring to individuals who require assistance based on any temporary or permanent condition that limits their ability to act; notably, this does not require a formal diagnosis or specific evaluation. Mass Care encompasses the actions taken to protect victims and evacuees, including the provision of food, clothing, medical care, and temporary shelter. Finally, Shelter In Place is defined as advising citizens to remain secured inside their current location, a tactic used only when safety can be assured within the structure or when evacuation poses a higher potential for loss of life.

Response Activation and Command Structure

The establishment of a Sheltering unit is at the discretion of the Incident Commander (IC) or Unified Command (UC) as the necessity of the incident dictates. Once the unit is established, the Sheltering unit leader is required to report directly to the Operations Section Chief (OSC). In instances where an incident does not have an OSC assigned, the Sheltering unit leader reports directly to the IC or UC. This hierarchical structure ensures that the needs of displaced residents are prioritized within the broader context of emergency operations.

Incident Assessment and External Consultation

The Shelter Unit Leader is tasked with assessing the scope and complexity of the incident by determining the exact number of displaced residents involved. If the nature or size of the incident, the quantity of displaced persons, or the presence of special needs indicates the potential for a complex, multi-agency response, the leader must immediately consult the Office of Homeland Security and Emergency Management (HSEM). This consultation is facilitated via the Assistant District Officer (ADO). These steps ensure that the appropriate level of resources is mobilized for large-scale or particularly difficult sheltering scenarios.

Interaction with the American Red Cross

A response from the American Red Cross (ARC) must be requested whenever residents are displaced, even if the displacement is only temporary and caused by minor fire damage or other causes. The ARC is capable of providing non-sheltering assistance to families even if they are eventually able to return to their homes. Typically, the ARC responds to an incident within $2\,\text{hours}$. To initiate this response, personnel must contact the ADO through the phone or the ADO talk group. The notification must include the incident location, the initial estimate of displaced residents, the location of the designated assembly area, and the name of the DRU leader. The ADO is then responsible for ensuring HSEM is notified of the request.

Establishment of Safe Refuge Areas

The Shelter Unit Leader is responsible for designating a safe refuge area for residents and evacuees. This serves as a temporary, no-notice area used before an official evacuation center is established. Suggested locations include neighbor's homes, or the community rooms or rental offices of apartment complexes, provided there is cooperation from property management. The on-call HSEM member can assist in finding these locations. Ideally, these refuge areas should provide phones, restrooms, and a sitting area. The location of this area must be communicated to the OSC or the IC/UC. Personnel are instructed to canvas the area to identify all residents and direct them to this assembly point, including those who may not be present at the scene at the time of the incident. In rental settings, management companies should be utilized to acquire resident contact information.

Documentation and Displaced Resident Unit Worksheets

All displaced residents must be documented on the Displaced Resident Unit worksheet, known as $\text{Form } 505$. This documentation is mandatory for all displaced individuals, regardless of whether they are physically present during the event or if they currently require support services. The data points required on $\text{Form } 505$ include the contact name for each unit, mobile phone numbers, the size of the family, the ages of any children, specific addresses, Functional Needs Support Services (FNSS) requirements, and the presence of pets. Once the incident is concluded, the completed form must be emailed to the on-call HSEM team member to maintain accurate records and facilitate follow-up care.

Resident Relocation and Alternative Housing Options

The BCoFD supports the ARC and HHS in relocation and evacuation efforts. The process of searching for relocation options should begin immediately and must not wait for the arrival of Red Cross personnel. The first option is self-relocation, where residents are encouraged to stay with friends or family. Personnel should identify residents with homeowners or renters insurance and suggest they contact their providers for housing support. A second option involves property management companies, which may provide vacant units or hotel accommodations. When the ARC arrives, the BCoFD must provide a private situational awareness report, a copy of $\text{Form } 505$, and introductions to property management. Note that any evacuations in hazardous environments are led by the BCoFD and coordinated with the Department of Health and Human Services (DHHS).

Guided Entry for Personal Property Retrieval

Residents frequently request to retrieve vital items such as important documents, medications, or other personal property from their affected units. The policy states that residents must be instructed not to re-enter their units unless specifically advised to do so by the IC or UC. If the request is practical and safety can be guaranteed, fire department personnel may act as escorts for residents to retrieve these items, following consultation with the IC/UC. In these scenarios, police officers should be utilized to ensure that the individuals attempting to enter are indeed the legal residents or owners of the property.

Demobilization and Operational Conclusion

The Sheltering Unit operations are terminated when all displaced residents have been successfully relocated and no further immediate assistance is required. Alternatively, the unit may be demobilized once ARC personnel have arrived on the scene, assumed full responsibility for resident services, and advised the DRU unit leader that fire department assistance is no longer necessary. Before conclusion, the IC/UC will check if assisting agencies have unmet needs and assign available resources to support them. The final act of the operation is to email the completed $\text{Form } 505$ to the on-call HSEM member. HSEM remains available through the ADO to answer any questions or assist with evacuations and sheltering at any time during or after the incident.