CITY OF TORONTO EMERGENCY PLAN. Risk Specific Plan. Power Disruption (Electricity) Toronto Hydro-Electric System Limited (Toronto Hydro)

Transcription

1 CITY OF TORONTO EMERGENCY PLAN Risk Specific Plan Power Disruption (Electricity) Toronto Hydro-Electric System Limited (Toronto Hydro) Office of Emergency Management (OEM) December 2016

2 Contents Primary / Lead Agency / Division(s): Introduction Challenge / Problem Statement Purpose Significant Power Disruption Assumptions Considerations Planning Concept of Operations Responsibilities Primary / Lead Agency / Division Toronto Hydro Office of Emergency Management, City of Toronto Supporting Agencies / Divisions Toronto Paramedic Services Parks, Forestry and Recreation Solid Waste Management Strategic Communications Toronto Fire Services Toronto Police Service Toronto Public Health Transportation Toronto Water

3 Risk Specific Plan Power Disruption (Electricity) Primary / Lead Agency / Division(s): Toronto Hydro-Electric System Limited (Toronto Hydro) Distribution Grid Operations Toronto Office of Emergency Management Supporting Divisions, Agencies and Corporations (DACs): Parks, Forestry and Recreation Strategic Communications Solid Waste Management Toronto Fire Services Toronto Paramedic Services Toronto Police Service Toronto Public Health Transportation Services Toronto Water 1.0 Introduction Toronto Hydro Corporation operates two wholly owned affiliates that carry on the business of electricity distribution and street lighting. Toronto Hydro-Electric System Limited (Toronto Hydro) is the regulated "wires" affiliate and is one of the largest municipal electric distribution utilities in Canada. Toronto Hydro delivers electricity to a broadly diversified and economically robust residential, commercial and industrial customer base in the City of Toronto; representing more than 18% of electricity consumed in the province of Ontario. 1.1 Challenge / Problem Statement Toronto Hydro independently resolves localized disruptions, which are frequent, annual occurrences due to inclement weather. Widespread disruptions, which are more infrequent, may require Toronto Hydro to coordinate restoration efforts with the Independent Electricity System Operator (IESO) or Hydro One. Coordination with the IESO and/or Hydro One is a regulatory requirement to ensure the integrity of the provincial grid. Untimely or long delays in restoring electricity pose a significant risk to the welfare, security and prosperity of the City. Taking into consideration the 3

4 characteristics of a significant power disruption (see section 1.3), the City needs to continually assess its back-up generation abilities to ensure systems are adequate for reducing the impact of power disruptions and to aid in recovery. 1.2 Purpose The purpose of this Risk Specific Plan (RSP) is to identify the general roles and responsibilities that City of Toronto divisions have in responding to a power failure event and, if necessary, to assist Toronto Hydro's efforts to coordinate a timely and effective response to a power failure event. In addition, this RSP will identify operational procedures among the participating City divisions with respect to their individual role(s) during a power disruption event. These procedures are intended to ensure the health and safety of responding personnel, and to contribute significantly to a coordinated recovery plan. 1.3 Significant Power Disruption For the purposes of this plan, a significant power disruption is deemed to have at least one of the following characteristics: 1.4 Assumptions Large numbers of Toronto Hydro customers (referred to as billed or metered clients/entities not people) are affected (>50, 000 customers); Customers will be/are affected for a significant amount of time (>24 hours); Critical or priority loads are affected for a significant amount of time (>24 hours); and Vulnerable populations are affected for a significant amount of time (>24 hours). Procedures in this document will be implemented as outlined in the City of Toronto Emergency Plan and associated Emergency Support Functions (ESFs); Procedures in this document may be implemented under the following conditions: o Severe weather watches or warnings issued by Environment Canada that could result in localized or wide-spread power failures; o When reports of infrastructure failure such as downed power lines are received from Toronto Hydro; o During a large-scale power disruption; and o As directed by the Director, Office of Emergency Management. 4

5 1.5 Considerations All parts of the City of Toronto can be affected by power disruption events; There may be rotating power outages to control loads and/or to enable some power across an affected area for periods of time to minimize the effects of a sustained disruption; Loss of power to the City is upstream to Toronto Hydro (Hydro One, Ontario Power Generation); There is generally little or no warning that power disruptions are likely to occur; City divisions do not aid or play a direct role in relation to Toronto Hydro reestablishing normal power operations during a blackout but will assist Toronto Hydro, when necessary, in its efforts to coordinate a timely and effective response to a power failure event; Toronto Hydro must follow regulatory procedures for power restoration. These procedures influence the location, type of customer and timing of reenergizing specific customers (depending on the level and location of the incident); Some City divisions work collaboratively with Toronto Hydro to ensure best use of resources and facilitate effective communication; The Independent Electricity System Operator (IESO) controls the flow of energy throughout the province. Depending on the amount of energy directed to the City of Toronto's infrastructure, Toronto Hydro can only open/close certain switches permitting electrical energy to move into specific areas that can handle the amount provided by IESO. If this is not controlled the grid is at risk. Toronto Hydro does not determine how much power is received or when they simply control where it can fit into the City's section of the grid; and This also means that if Hydro One (power transmission) doesn t send Toronto Hydro power (e.g. the Northeast Blackout 2003), then Toronto Hydro has no power to distribute to the City. 1.6 Planning This plan assumes a significant power disruption is anticipated, has occurred, or is occurring; Information pertaining to weather changes or systems that could result in further disruption to the power grid will continue to be available; Power infrastructure may be damaged and unusable for a sustained period of time; Large numbers of evacuees requiring emergency social services is possible; Power disruptions may impact a number of city operations including the ability to remotely monitor and control water/wastewater infrastructure, treat and/or supply water meeting drinking water quality standards and pressure requirements (firefighting being critical); Power disruptions may impact cell phone service; 5

6 Security for both residential and commercial establishments may be significantly compromised; Prolonged power disruptions, particularly during extreme heat or cold, may affect the health and safety of residents; In the event of a severe weather related power disruption, debris removal may be required to facilitate response and recovery efforts (refer to City of Toronto Debris Management Emergency Support Function); Health care facility operations may be affected by a prolonged power disruption; Power disruptions may affect all forms of transportation. Civilians may be stranded at locations when the power disruption occurred. Emergency personnel may be overwhelmed with calls and response times will increase; Staff may have difficulty reporting for duty resulting in resource shortages; and The demand for fuel to operate generators and for transportation will be high. 2.0 Concept of Operations In the event of a large scale disruption Toronto Hydro must first restore power to critical power system loads. They must then restore power to priority customer loads. Critical power system loads are direct enablers of power restoration 1. These enablers are essential to not only coordinating power restoration, but ensuring a reliable power restoration. Priority customer loads are important consumer loads that need to be restored promptly to mitigate the impact on public health and safety, the environment, or the economy 2. These consumer loads would include institutions such as Toronto Water facilities and hospitals. Response Phase - the Response Phase occurs prior to or from the onset of the power disruption and lasts until systems are at least partially restored. During this phase, functions which are critical to lifesaving, protection of the population, meeting basic human needs, securing critical infrastructure, and safeguarding municipal assets are performed. In accordance with the City of Toronto Emergency Plan, the Emergency Operations Centre (EOC) may be activated; When activated, the EOC will have the lead in coordinating resources requested from City Divisions and local agencies involved in responding to the emergency in progress; 1 IESO, Market Manual 7: Ontario Electricity Emergency Plan, Issue 4.0, Section IESO, Market Manual 7: Ontario Electricity Emergency Plan, Issue 4.0, Section

7 The incident requires the involvement of the Emergency Operations Centre to coordinate the provision of food, water, heating, shelter, etc. to a large number of residents; Emergency responsibilities assigned to City Divisions for the power disruption response parallel those assigned for other disaster operations. Participating City Divisions will operate under the Incident Management System as outlined in the Incident Management System Emergency Support Function; The Office of Emergency Management (OEM), City of Toronto, will act as liaison with Toronto Hydro staff and City staff, as per the communication protocol identified in Section 3.1 whether or not the Emergency Operations Centre is activated; If the level of response does not require direct involvement by OEM staff, Toronto Hydro will work directly with appropriate City staff and provide updates to OEM staff in order to maintain situational awareness; Requested equipment, materials, supplies and personnel will be secured through City of Toronto resources and/or mutual aid agreements or purchasing agreements; and Supporting agencies will respond to the EOC as required to provide response and recovery resources to local governments upon assignment from the EOC. Recovery Phase - There are usually no clear distinctions between when the Response Phase ends and the Recovery Phase begins. There is typically a time period after the power disruption in which both phases are in effect simultaneously. The Recovery Phase begins immediately following the restoration of normal power operations. Emergency operations will begin with the occurrence of a significant power disruption and continue until no longer required. Continuance must include all recovery operations including cleanup and restoration of essential services. 7

8 3.0 Responsibilities 3.1 Primary / Lead Agency / Division Diagram Description: This chart outlines the communication channels during a power outage Toronto Hydro City of Toronto Services requiring information from Toronto Hydro in regards to power disruptions or other emergencies will be coordinated through Toronto Hydro s Emergency Management Unit (EMU); In the event of Toronto Hydro s Emergency Operations Centre (EOC) activation, all inquiries from the OEM and other external stakeholders will remain with the EMU. The OEM and other external stakeholders will be notified of any changes to the Toronto Hydro Communications Protocol during a prolonged emergency by the EMU; The EMU will proactively notify the City through the OEM of significant power disruptions (as per the OEM On Call Guideline, 2010-March- 09) and the resulting estimated time of restoration (ETOR) once available; Toronto Hydro will use the Priority Loads list to assist with the power disruption restoration plan; Toronto Hydro will lead communication activities with the media, the Utility's affected customers, stakeholders and other external audiences with respect to its services, emergency response and restoration; and As required, Toronto Hydro's Strategic Communications team will work directly with City of Toronto's Strategic Communications staff, through the City's Emergency Operations Centre to coordinate messaging, validate information and collaborate on effective communication strategies. 8

9 3.1.2 Office of Emergency Management, City of Toronto Notify all supporting agencies in the event of a significant power disruption event, as per information from Toronto Hydro EMU; Activate and setup the EOC during a large scale power failure event, in accordance with the City's Incident Management System (IMS) Emergency Support Function; Act as a liaison with Toronto Hydro EMU staff and City staff, as per the communication protocol identified above whether or not the EOC is activated, and maintain situational awareness via updates from Toronto Hydro EMU and City staff; Determine the nature and scope of the disaster/emergency and provide ongoing assessment of identifiable resources needed; Establish and maintain contact with Toronto Hydro EMU, City Divisions, support and adjunct agencies as appropriate; Establish and maintain contact with emergency managers and/or local officials throughout the Greater Toronto Area (GTA); Coordinate an integrated, citywide effort to provide assistance to the affected area(s); Provide Status reports to the Toronto Emergency Management Program Committee (TEMPC), Deputy City Managers (DCMs), Mayor and other municipal officials; Present coordinated and accurate information to the public via the EOC's Information Officer (Management Section); Coordinate the acquisition and distribution of resources to support response; Coordinate with the Federal and Provincial agencies regarding supplemental disaster assistance necessary to preserve life, property and recovery assistance; Assess the situation and determine the level of Emergency Social Services (ESS) response required, activate the ESS ESF if required; and Work with other supporting divisions, as outlined in the Emergency Support Function (ESF) for Emergency Social Services. 9

10 3.2 Supporting Agencies / Divisions Toronto Paramedic Services Toronto Paramedic Services coordinates and provides pre-hospital emergency medical care for team members, within the limitations under which emergency responders can perform these functions. Toronto Paramedic Services would also support community members through the provision of community medicine program staff to support ongoing medical issues of the public, as necessary. Toronto Paramedic Services will assume responsibility for: Staffing the appropriate paramedic services team members as instructed by the lead agency/incident commander; and Provide on-scene, pre-hospital emergency medical care for team members and community support for ongoing medical issues as necessary Parks, Forestry and Recreation Provides resources as outlined in the ESF for Emergency Social Services; Participates in recovery phase as outlined in the ESF for Debris Management; and Coordinates with Toronto Hydro as per established protocols and assists as directed by Toronto Hydro Solid Waste Management Participates in recovery phase as outlined in the ESF for Debris Management Strategic Communications Strategic Communications will coordinate efforts to perform the following functions related to City programs, services and response: Communicate directly with Toronto Hydro's Strategic Communications staff to coordinate messaging and validate information; Communicate critical information before an impending incident (if applicable) during, and after major or emergency incident; Organize and direct communications activities in the event of a major incident, declared Emergency, or impending situation in the City of Toronto; 10

11 Fulfil the role of Information Officer as part of the Incident Management System structure in the City s Emergency Operations Centre, Management Section; If required, provide representation at the site to coordinate messaging with the Information Function in the Emergency Operations Centre; Lead on all corporate social media monitoring and messaging and support City operating divisions with direction, advice and messaging with respect to divisionally operated social media channels as outlined in the Emergency Information and Media Relations ESF; Conduct news conferences and media briefings as warranted by unfolding events; and As required, work with through the Emergency Operations Centre and the Office of Emergency Management to liaise with Toronto Hydro, as per the established communications protocol outlined in section Toronto Fire Services Toronto Fire Services will work in coordination with other supporting agencies by providing high quality, safe, efficient, effective and caring emergency response services; and Respond as required to protect life, property and the environment from the effects of fires, illness, accidents, natural disasters, and all other hazards Toronto Police Service The Toronto Police Service, under the terms of this guideline, will support a power disruption response as described below: Contain the scene by establishing and maintaining a safe perimeter around the affected site(s); Provide traffic duty to direct traffic away from, or around, specific areas; Provide security at the site(s) during the emergency event until immediate danger has subsided and City Divisions are able to assume site management and recovery responsibilities; Coordinate response procedures with the other emergency services as necessary; Send a Traffic Services Unit liaison to 703 Don Mills Road, Traffic Management Centre, if necessary; and Provide any evacuation assistance that may be required. 11

12 3.2.7 Toronto Public Health Provide inspection activities at affected commercial food storage and preparation facilities to ensure that potentially contaminated foodstuffs are discarded; Work with other divisions and agencies to provide health protection, disease prevention and food safety advice to the community during the restoration of normal power operations; and Provides resources as outlined in the ESF for Emergency Social Services (ESS) Transportation Provide resources as outlined in the ESF for Traffic Management; Assist Solid Waste Management with debris removal as outlined in the Debris Management ESF; Arrange for roadway closures or any traffic diversion plans (with police assistance) where power disruptions pose risk to vehicular traffic and/or pedestrian traffic (i.e. Yonge/ Dundas and Yonge /Bloor intersections); and Generate road closure and reopening notices and circulate via to appropriate City staff, external partners, Divisions, Agencies and Corporations (does not include the Mayor or City Councillors) Toronto Water Toronto Water will deploy staff to operate, maintain and inspect water/wastewater system critical infrastructure; Toronto Water staff will require significant human, communication and transportation resources to monitor process parameters as many systems, including data control, will likely be impacted; Toronto Water will rely on redundancy, system storage, backup generation (where available) and manual operations, to cope with interruptions of electricity supply; Toronto Water staff will identify and communicate, as appropriate, service impacts due to a loss of key processes (e.g. loss of water supply); Coordinate with the City of Toronto EOC (if activated) in the restoration of power according to water facility priority, as much as possible; and Toronto Water staff will monitor and report on Environmental impacts such as spills through the course of the power failure. 12

13 Revision History Revision Number Name of Contributor Risk Specific Plan: Power Disruption (Electricity) Summary Of Changes 1.0 Brad Eyre Document Creation April 2011 Revision Date 2.0 Julie Kerr / Suzanne Bernier, Toronto Hydro Comments document information integrated into v2.0 May-June Eugene Kelly Info. Related to EOC operations June 28/11 integrated 4.0 Communications / Strat. Comm. Roles and responsibilities June 28/11 W. Brown 5.0 Warren Leonard Content revisions - comments June 30/ Nadia Mammone / Content revisions comments integrated August 29/11 Toronto Water 7.0 B. Eyre Parks, Forestry Rec. general language re: responsibilities September 12/ B. Eyre Review for content clarification: revisions November 1/11 integrated to EHS, Transportation. 9.0 W. Leonard Content revisions / correction of December 7, 2011 conflicting info Manick Noorhamud Fire Services general December 7, 2011 roles/responsibilities info D. Eleuteri Transportation Services December 7, 2011 roles/responsibilities content update 10.0 D. Sorel / N. Mammone Revised Toronto Water content December 14, Manick Noorhamud Additional Revisions to Roles February 21, B. Eyre Reformatting for ESF consistency March 12, B. Pantin Clarifications from Toronto Hydro re: March 28, 2012 planning and communications 14.0 B. Pantin Additional revisions to content re: priority May 2, 2012 loads etc B. Eyre TH changes integrated (comments still to June 20, 2012 be addressed) 16.0 B. Eyre Further clarification of the term 'significant power disruption' July 26,

14 17.0 B. Pantin/L. Millmore /R. Okashimo Toronto Hydro further clarifications / comment 18.0 B. Eyre Review of October 10 comments / format changes October 10, 2012 October 12, B. Eyre Corrections to formatting and typos October 31, B. Eyre Addition of content specific to Strategic Communications November 3, C. McNeil Revised Toronto Police content November 27, W. Brown Further revisions to content specific to Strategic Communications November 30, N. Mammone Revised Toronto Water content December 1, K. Beckermann Corrections to terminology December 1, L. Chandler Corrections to formatting December 2, 2014 L. Richards Corrections to terminology ESF and Paramedic Services 26.0 B. Buchan Content Revisions provided by Toronto December 2, 2014 Hydro 27.0 L. Richards Content revisions provided by Hydro 3.1 & March 6, Posted to Website 28.0 R. Topping Content Revisions provided by Toronto September 23, 2015 Hydro 29.0 L. James Corrections to formatting. September 28, Loretta Chandler (OEM) Brad Eyre (OEM) Laura James (OEM) Minor administrative changes (e.g. ABCDs to DACs) and made accessibility improvements (AODA). November 28, 2016 Approvals Posted to Website. December 21, 2016 Approved By: Date Toronto Emergency Management Program Committee (TEMPC) April 2, 2012 Emergency Management Working Group (EMWG) December 15, 2014 Toronto Emergency Management Program Committee (TEMPC) March 17, 2015 Emergency Management Working Group (EMWG) October 31, 2016 Toronto Emergency Management Program Committee (TEMPC) December 7,