ANIMAL CARE CONFERENCE MARCH 2015

Local and State Efforts to Help California Animals in Disasters

Dr. Shari O'Neill, Community Animal Response Team (CART)

Dr. Grant Miller, California Animal Response Emergency System (CARES) Course Description: California's approach to managing animals in emergencies follows the Standardized Emergency Management System (SEMS.) This presentation will review the current "state of the state" in animal emergency management by highlighting preparedness and response efforts at both the local and state levels. Why Plan For Animals In A Disaster? Geography and demographics (Urban example) The current population of the City of San Francisco is about 840,000 and the total population of the Bay Area is almost 7 million. Based on the US pet ownership research data from the AVMA, it can be estimated that the City of San Francisco would have a minimum pet population of 189,000 dogs and 206,000 cats. (AVMA, 2014) Any disaster with a major impact on the City and County of San Francisco (the City) is likely to require a regional response, which may not be available for several days, especially if critical infrastructure is damaged (particularly if this involves the Bay Bridge or Golden Gate Bridge). Access both to and from the City is therefore limited when considering evacuation of citizens or influx of mutual aid responders in a disaster scenario. The City is a densely populated area of only 47 square miles, with close proximity of critical infrastructure and residential and business zones making it particularly vulnerable to significant impairment in a major disaster. While an earthquake is the most likely natural disaster to occur in this area, population density, unique demographics, and the presence of well-known national landmarks also makes the City a prime target for terrorist threats. Fire, tsunamis, and industrial accidents are also potential concerns. An All-Hazards approach to preparedness planning that considers multiple scenarios is therefore essential in improving the capacity for a successful response to future emergencies and disasters. Each locality will have its own unique geography and demographic (including animal species affected) to consider when developing an animal disaster plan. Human-Animal Bond in Disasters The definition of the human-animal bond accepted by the American Veterinary Medical Association is: “…a mutually beneficial and dynamic relationship between people and other animals that is influenced by behaviors that are essential to the health and well-being of both. This includes, but is not limited to, emotional, psychological, and physical interactions of people, other animals, and the environment.” The strength of this relationship has been shown to be related to the likelihood of evacuating with all household pets and should be recognized in planning efforts.

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ANIMAL CARE CONFERENCE MARCH 2015 Shelters established for human disaster victims often do not accommodate animals, which may influence pet owners’ decisions in either leaving pets behind or failing to evacuate. (Heath, Kass, Beck, & Glickman, 2001) Evacuations are intended to promote public health and safety by preventing exposure to hazardous conditions. People who fail to evacuate with their pets endanger not only themselves and their pets, but also the emergency responders who must then rescue them. Often owners will return to dangerous areas to attempt to rescue pets previously left behind risking their own lives and the lives of their animals. Human health is also impacted mentally, physically, and socially, when pets are affected in a disaster. Companion animals provide emotional and social support and provide physical and mental health benefits to special needs populations such as the physically or mentally disabled, the elderly, and children. This is particularly important to consider in the context of a disaster event. Public Relations/ Expectations There have been numerous historical examples of animals affected by disasters such as fires, floods, hurricanes and oil spills, which have attracted the attention of the media and subsequent public concern for animal welfare. An organized and collaborative disaster response by the lead agency and its partners can therefore be an opportunity to build public trust. Every community will expect that there are plans in place for pets of all species to receive appropriate shelter and access to veterinary care and that their local animal-related organizations are aware of such plans. Legislation PETS Act After Hurricane Katrina in 2005, and the lessons learned from the response, the White House recommended that state and local disaster plans should address “establishing first-aid stations, tracking and coordinating movements of evacuees, evacuating pets, unaccompanied minors, the elderly, and evacuating people who lack the means to leave voluntarily." (American Veterinary Medical Association, 2011) The Pets Evacuation and Transportation Standards (PETS) Act of 2006 amends the Robert T. Stafford Disaster Relief and Emergency Assistance Act to ensure that state and local emergency preparedness operational plans address the needs of individuals with household pets and service animals following a major disaster or emergency. CARES Act After the California floods in 1997, it was recognized that there needed to be a defined system for responding to animal emergencies at the state level. The California Department of Food and Agriculture (CDFA), the Governor’s Office of Emergency Services (CalOES), working with other state agencies, were then charged with creating animal protection procedures for future disasters. The California Animal Emergency Response System (CARES) in its current state now serves as the operational guide to assist in all aspects of animal care and control in the event of a disaster or emergency and provides resources for the public, animal-related businesses, shelters, and emergency planners.

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ANIMAL CARE CONFERENCE MARCH 2015 CARES is structured in accordance to the Standardized Emergency System (SEMS) and the Incident Command System (ICS). (CVMA, 2014) http://cal-cares.com/ Animal Disaster Response at the Local Level Coalition of Stakeholders The San Francisco Disaster Preparedness Coalition for Animals (SFDPCA) was established in 2007 to address animal disaster preparedness and response issues. The SFDPCA’s mission statement is as follows: “Under the leadership of the Department of Animal Care and Control (ACC), the SFDPCA exists to educate citizens about disaster preparedness for companion animals while advocating and empowering guardians to maintain care and control of their pet(s) during a large scale emergency or disaster. In addition, in such an event, the Coalition would endeavor to rescue and feed, and to provide medical care, shelter and comfort to San Francisco residents’ companion animals.” When the Coalition was originally established, ACC received funding for a part time (20 hours per week) Veterinary Disaster Planner from the Department of Homeland Security (State Homeland Security Grant Program). Additional funding and support for animal disaster planning came from the San Francisco Department of Emergency Management and was also subsidized by ACC. The SFDPCA (the Coalition) is a partnership between: ACC, the San Francisco SPCA (SF/SPCA), Pets Unlimited (PU)- now merged with the SF/SPCA, Pets Are Wonderful Support (PAWS), VET Street Outreach Service (VET SOS), and the San Francisco Veterinary Medical Association (SFVMA). ACC, SF/SPCA, and Pets Unlimited represent the major private and public animal shelters in the City. PAWS is a volunteer-based organization that provides for the comprehensive needs of companion animals for low-income individuals with HIV/AIDS or other disabling illnesses, as well as senior citizens. VET SOS is a project of the Street Outreach Services program at the San Francisco Community Clinic Consortium. This organization addresses the problems of homeless individuals with companion animals by providing free veterinary services, and collaborates with human health care providers to improve the health of both the human and animal population. Including PAWS and VET SOS in the Coalition ensures that the unique needs of vulnerable populations are considered in disaster planning for animals. The SFVMA members include practicing veterinarians in the community. As the lead agency in a response, ACC has developed the Animal Response Annex to the overall San Francisco preparedness plan, and defined the role of each of the Coalition and supporting organizations in an animal disaster response. (City and County of San Francisco, 2010) Local animal disaster plans (ICS/NIMS)/ Emergency Support Function 11 Major events will require a coordinated, organized, and unified response from a variety of government agencies, the private sector, and nongovernmental organizations. All disasters begin and end with a local response, but may become large enough to require assistance on the state or national level. The National Incident Management System (NIMS) was established to facilitate coordination between responders from local, state and national government agencies, non-profit agencies, and volunteer organizations. One of the operational components of NIMS is the Incident Command System (ICS). ICS is a standardized, on-scene incident organizational structure used to manage any emergency situation. ICS has become the standard for emergency management across the country for small and large events.

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ANIMAL CARE CONFERENCE MARCH 2015 Many volunteer agencies require familiarity with these concepts as part of first responder training. (Madigan & Dacre, 2009)

(Iowa State University University, The Center for Food Security and Public Health, 2008)

ICS is a flexible structure that can expand and contract depending on what is needed for a response, which makes it cost-effective and efficient. Understanding the elements of ICS allow all responders to understand how they fit into the chain of command. One of the objectives of the animal response plan is to coordinate domestic animal response and recovery activities, to include rescue, triage, medical treatment, transport, care, shelter, and effective reunification. This falls under the function of the Human Services Branch of the Operations Support Section of the City plan, and will be organized according to NIMS and ICS as described above. (City and County of San Francisco, 2014) The components of the Animal Response Function include: public information, field response, animal sheltering, animal intake, reunification, coordination with other agencies and departments, organization and structure, notification and activation, and deactivation procedures.

ESF 11 Organization (City and County of San Francisco, 2015) With regard to animal sheltering, Animal Care and Control (ACC), as the City’s municipal shelter, will be the lead agency in the response. Sheltering and intake of affected animals will occur at the ACC and SF/SPCA complex.

DOC Departmental Operations Center EOC Emergency Operations Center HSA Human Services Agency

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ANIMAL CARE CONFERENCE MARCH 2015 Should these facilities become overwhelmed, the SPCA Pacific Heights Campus (formerly Pets Unlimited) may be able to house additional animals or provide medical care to sick or injured animals. PAWS, VETSOS, and SFVMA members may also support the response by providing veterinary care and additional resources or supplies. If the American Red Cross (ARC) activates human shelters, the feasibility of the co-location of an auxiliary animal shelter will be explored. These shelters would be coordinated by ACC and volunteers trained through the Disaster Animal Response Team (DART) program, which is sponsored by the SFDPCA. These shelters would accommodate only healthy dogs and cats owned by the people being housed in the adjacent ARC facility. Sick, injured, stray or surrendered animals, or those with chronic medical conditions, would be transported to the ACC and SF/SPCA complex or to appropriate alternatives after intake. Species other than dogs and cats would also be transported to “brick and mortar” shelters to accommodate their special needs. Owners would be responsible for the care of their own animals while residing in the auxiliary shelter.

DART Volunteer Training Becoming a certified volunteer animal disaster service worker requires 3 steps as determined by the Coalition. First, prospective volunteers must complete Neighborhood Emergency Response Team (NERT) training provided by the SF Fire Department. This free training program (6 classes, 18-hours of contact time) teaches personal preparedness and disaster skills including: disaster preparedness and special populations, utility control, fire fighting techniques, hazardous

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ANIMAL CARE CONFERENCE MARCH 2015 materials, disaster medicine and triage, light search and rescue, the Incident Command System (ICS), disaster psychology, emergency supplies, and terrorism topics. NERT training also includes a hands-on disaster exercise and an ICS exercise. The second requirement is DART training. This 4 session program (20 contact hours) was developed, and is delivered by, the Coalition volunteers and includes: an overview of disaster management and communications, personal and pet disaster planning, pet first aid, handling convergent volunteers, safety issues and animal behavior, animal rescue and field assignments, stress management, animal and human shelters, disease control, and how to set up and facilitate an auxiliary animal shelter. The last DART session involves a hands-on exercise in which an auxiliary shelter will first be assembled from the ground up, with an actual disaster drill to test the functionality of the shelter immediately following. The final prerequisite for becoming a certified DART volunteer is to complete ICS 100b- Introduction to ICS, ICS200b- ICS for Single Resources and Initial Action Incidents, and ICS 700b- National Incident Management System (NIMS): An Introduction, through the Federal Emergency Management Agency’s (FEMA) Emergency Management Institute. http://training.fema.gov/emi.aspx DART Curriculum Class 1:

• DART and NERT: history and purpose, neighborhood based preparedness (DART trained individuals in every NERT community), even people with limited animal handling experience can be valuable: data entry, bookkeeping, filing, sanitation, communications, donation management, etc.

• Disaster management and communication- command structure and organization

• Personal disaster planning- disaster kits/ supplies and a plan for every family member

• Pet disaster planning- ID, records, pet disaster kit, evacuation plan

• Pet First Aid- normal vital signs, basic first aid (videos) for small animal species

Class 2:

• Disaster Service Workers Designation California Emergency Services Act of 2006 (section 8657): registered Disaster Service Workers are responsible for their own actions but are covered by the same immunities as state workers performing their jobs and are covered by Worker’s Compensation when sworn in and activated for a particular emergency

• Assignments based on skill-set of the volunteer- do not perform any tasks that you are uncomfortable with

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ANIMAL CARE CONFERENCE MARCH 2015

• Non trained volunteers- registration, procedures for potential assignments of jobs where they can be helpful, designation and supervision for volunteers not covered by Disaster Service Workers protections

• Safety issues and animal behavior- recognizing potential aggressive and dangerous

behavior and techniques for handling dogs, cats and exotics

• Animal rescue- field assignments with Animal Control Officers

• Stress management- recognizing fatigue and stress in yourself and other volunteer workers, self-care, participation in debriefings

Class 3:

• Shelters: Human/animal- designated co-location shelters, definition of ADA Definition of Service Animals, best practice is to plan for animals to stay out of the shelter if at all possible

• Protocol for Animal ID/ impound- microchips, required vaccines/ parasite treatment,

caging, holding periods

• Animal care- cleaning/sanitation, animal handling

• Disease control

• Auxiliary shelters Class 4:

• Shelter exercise: physical set-up of shelter/ assignments to various teams (intake, medical, impound, dog kennel, logistics/supply, cat kennel, transport/stray), actors/ victims given scenarios to play as they move through the process and interact with the volunteers, live animals!

• Volunteer evaluation of the training, graduation

RESOURCES FOR ANIMAL DISASTER PLANNING Federal Emergency Management Agency (FEMA) www.fema.gov Ready Campaign (family, business and community planning) www.ready.gov or call 1-800-BE-READY http://www.ready.gov/america/toolkit_pets/index.html

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ANIMAL CARE CONFERENCE MARCH 2015 The Humane Society of the United States www.humanesociety.org Citizen Corps Citizen Corps involves partnerships at all levels. Citizen Corps works with five national Program Partners through partnerships with other Federal agencies and national organizations. The five programs - Community Emergency Response Teams (CERT), Medical Reserve Corps (MRC), Fire Corps, USA on Watch/Neighborhood Watch, and Volunteers in Police Service (VIPS)—provide national resources for training and exercising citizens at the State and local level.

Citizen Corps and Program Partner Websites

• Citizen Corps: www.citizencorps.gov • Community Emergency Response Teams (CERT):

http://www.citizencorps.gov/cert/index.shtm • Fire Corps: http://www.firecorps.org/ • Medical Reserve Corps: http://www.medicalreservecorps.gov/HomePage • Volunteers in Police Service: http://www.policevolunteers.org/ • USA on Watch/Neighborhood Watch: http://www.usaonwatch.org/

American Red Cross www.redcross.org American Veterinary Medical Association www.avma.org California Veterinary Medical Association California Animal Response Emergency System http://cal-cares.com/

REFERENCES

American Veterinary Medical Association. (2006). Placing the human-animal bond in context in

the face of disasters. Retrieved February 5, 2010, from

http://www.avma.org/issues/human_animal_bond/hab_and_disasters.pdf

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ANIMAL CARE CONFERENCE MARCH 2015 American Veterinary Medical Association. (2014). U.S. pet ownership calculator. Retrieved

December 2, 2014, from

http://www.avma.org/reference/marketstats/ownership_calculator.asp

American Veterinary Medical Association. (2011a). PETS act FAQ. Retrieved March 10, 2011,

from http://www.avma.org/disaster/petsact_faq.asp

City and County of San Francisco. (2010). ESF #11, animal response annex. Retrieved

February 1, 2011, from

http://www.sfdem.org/ftp/uploadedfiles/DEM/PlansReports/ESF11-Animal.pdf

California Veterinary Medical Association. (2014). California Animal Response Emergency

System. Retrieved December 2, 2014 http://cal-cares.com/

City and County of San Francisco. (2011). Animal care and control. Retrieved April 20, 2011,

from http://www.sfgov2.org/index.aspx?page=942

Heath, S. E., Beck, A. M., Kass, P. H., & Glickman, L. T. (2001). Risk factors for pet evacuation

failure after a slow-onset disaster. Journal of the American Veterinary Medical Association,

218(12), 1905-1910.

Heath, S. E., Kass, P. H., Beck, A. M., & Glickman, L. T. (2001). Human and pet-related risk

factors for household evacuation failure during a natural disaster. American Journal of

Epidemiology, 153(7), 659-665.

Heath, S. E., Voeks, S. K., & Glickman, L. T. (2001). Epidemiologic features of pet evacuation

failure in a rapid-onset disaster. Journal of the American Veterinary Medical Association,

218(12), 1898-1904.

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ANIMAL CARE CONFERENCE MARCH 2015 Madigan, J., & Dacre, I. (2009). Preparing for veterinary emergencies: Disaster management

and the incident command system. Revue Scientifique Et Technique (International Office of

Epizootics), 28(2), 627-633.

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ANIMAL CARE CONFERENCE MARCH 2015

Local and State Efforts to Help California Animals in Disaster

Grant Miller, DVM California Animals

• Home to over 19 million owned companion animal pets (6.7 million of which are dogs, 1 million cats) • 5.5 million Cattle • Largest milk producing state in the nation: over 1.8 million dairy cows • Approximately 600,000 sheep and goats • Millions of chickens • 500,000 horses • 105,000 hogs

During a Disaster…

• People are reluctant to evacuate and leave their animals behind • People want to shelter with or near their animals • Those who “stay behind” with their animals end up in trouble • Resources and time are expended dealing with them

Operational Problems Animals in Disasters

• Low Priority, Limited Expertise • Volunteers of all kinds, talents, and agendas

Preparedness Problems

• Authority at local level • Animals tend to be “overlooked” in planning • A variety of local jurisdictions • Uneven distribution of expertise and resources • Reliance on Non-governmental resources

… More Preparedness Problems

• Lack of uniform planning and training • Need for state leadership • Lack of resources and supplies • Uncertain relationships with national organizations and companies

California’s Animal Disaster Plan: Enter the ACRONYMS • In response to Katrina, the Department of Homeland Security (DHS) took the Federal Emergency Management Agency (FEMA) under its wing.

• FEMA provides a response at the federal level during declared disasters

• FEMA/ DHS mandated each state to have a State Emergency Plan (SEP)

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ANIMAL CARE CONFERENCE MARCH 2015 Abbreviate the Disaster to Death!

• California’s SEP mandates the California Office of Emergency Services (Cal OES) to carry out over a dozen Emergency Functions (CA-EFs)

Emergency Functions

• The California Emergency Functions were designed to bring together discipline-specific stakeholders at all levels of government to address needs in all phases of emergency management.

EF-11 (The California Food and Agriculture Emergency Function)

• The Animal Disaster Response Plan for the State of California falls under EF-11

• EF-11 seeks to: “represent an alliance of discipline specific stakeholders who possess common interests and share a level of responsibility to provide emergency management related to: – Animal disease – Plant disease and pest infestation – Food and feed contamination – The protection and care of animals

Not even close to done…

• EF-11 names the California Department of Food and Agriculture (CDFA) as the state government agency responsible for implementing its mandates

SEMS and ICS

1. Standardized Emergency Management System (SEMS)

– Incident Command System – Multi/Inter-Agency Coordination – Mutual Aid (6 Regions) – Operational Area Concept 2. Incident Command System (ICS) – Use plain English – Don’t abbreviate – You’re not in charge – Stay in your lane

So… Who helps the Animals?

History • 1997 Floods: Flood Emergency Action Team (FEAT) Report • 1999-2001: CDFA defines/organizes-No OES approval • 2002-2003: 911, END • 2003-Present: Budget Shortfalls

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ANIMAL CARE CONFERENCE MARCH 2015

• 2006: AB 450 (GC 8608) • 2007- 2010: Picking up the Pieces • 2011-2014: CARES Steering Committee/ CVMA involvement • 2015: ?????

Attack of the Unfunded Mandate!

California Government Code: Section 8608.

(a) The Office of Emergency Services shall approve and adopt and incorporate the California Animal Response Emergency System (CARES) Program developed under the oversight of the Department of Food and Agriculture into the standardized emergency management system established pursuant to the subdivision (a) of Section 8607. (b) No later than January 31, 2007, the Department of Food and Agriculture shall enter into a memorandum of understanding with the California Emergency Management Agency and other interested parties to incorporate the CARES program into their emergency planning.

EF-11 (The California Food and Agriculture Emergency Function) • The Animal Disaster Response Plan for the State of California falls under EF-11 • EF-11 seeks to: “represent an alliance of discipline specific stakeholders who possess common interests and share a level of responsibility to provide emergency management related to: – Animal disease – Plant disease and pest infestation – Food and feed contamination – The protection and care of animals

What are we trying to do?

• Fully integrate animals into the Emergency Management Systems in the state • Establish a sustainable system • Institutionalize relationships • Standardized practices and terminology • Ensure consistency

CARES Projects

• Surveys – 850 Stakeholder organizations throughout state – 150 animal agriculture businesses – Completed August, 2013 – Asked about written plans, resources, training/ exercises, wants and needs – Goal: Determine degree of community resiliency (all SEMS levels) and state of readiness

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ANIMAL CARE CONFERENCE MARCH 2015 2013 Survey Findings

• Plans and response procedures at the field level are in place and for the most part complete;

This is not the case, however, for animal emergency management plans and mutual aid agreements.

• Organizations want written guidance and support with planning and relationship building to enhance coordination and communication.

2013 Survey Findings

• Participation in field level training (drills and exercises) is strong, but active organizations felt their training and exercise program could be much improved.

Training at the local government/OA level and inclusion of animal issues in emergency operations exercises is inadequate

• Organizations want accessible training, training program development guidance, actual training materials, and support for drills and exercises.

2013 Survey Findings

Resources for animal emergencies are a huge issue. Resource lists are incomplete and levels of personnel, equipment and supplies are

insufficient. Resource databases, mutual aid plans and agreements, and additional resources and funding

are needed. Survey Summary

Available at: www.cal-cares.com Advancements

What has been done? What do we have in place?

CARES Websites

www.cal-caresfieldguide.com www.cal-cares.com CARES Preparedness Efforts

• Updating operational documents- refining the overall description of the system – Master Plan/ Strategic Plan – Concept of Operations – Field guide- Mobile Website

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ANIMAL CARE CONFERENCE MARCH 2015 Printed Information for the Public (brochures)

– CARES General Information

– Guide to Personal and Family Animal Emergency Planning

– Emergency Planning for Animal Businesses

Animal Sheltering Supply Caches

• 6 containers • Crates/ cages/ some pet care supplies • Distributed throughout CA • Continued support of Local and OAs • CARES Training • CARES Outreach • Animal exercise to test CARES ConOps • Develop/ Implement CARES position descriptions in SEMS • CARES Coordinator network?

www.cal-cares.com www.cal-caresfieldguide.com CARES Contact

Annette Jones, DVM State Veterinarian California Department of Food & Agriculture Annette.jones@cdfa.ca.gov (916) 214-1194

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