RICHMO

POLICEDEPA

ME

EMERGENCY OPERATIONS
PL
. Guide for D partment Per nnel
GuideLin

for Handlino- Criticallnciden and
Gen ral Order I()..I

nu ual Occurren e

4/20/2010

Chief of Police or D ignee
Thi. Plall i Prepared alld Updaled by Ille Richmond Police Depllt1I1U!/It pecial EI'eJlIS Di!'i iOll
Ulld r Ihe Approl'ol ofIlle ChiefofPolice
'1\\ Enfurcemenl ,
Re ised 4120120 10

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E -empl Fmm J. I - Do .

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TABLE OF CO TENTS
STATEMENT OF PURPOSE

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RICHMOND POLICE DEPARTMENT: EMERGENCY OPERATIONS PLAN

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INTRODUCfION ..........•...•...........•......•......................................................•.....................•....•................•....8
SCOPE •••.••.•...•....•.......••.•••.••••••••••••••••••••••••••..••••••••••••••...•.••••.•••.••••••••••••••••••..•••••.......•...••.........•••.•••••••.••••• 8
IMPLEMENTATION .....•...•...•...•...•...........•.......•...•...•.................................................................................. 9

SITUATION .......•..••...••••••••••_._•••••••.••••••_•••_._

_ .._...•...••.•.•.•••••••••••••••••....• 9

CONDITION •...•...•...•...••..•..••••••••••••••••••••••••••••••: •••••••••••••••••••••••••••••••••••••••..•..••...•...••..••...•••.••••.•••••••••••••••••• 9
f1-.\NNING ASSUMPT10NS •••••••••••••••••••••••••••••••••••••••••••••.•••••••••••••••••••••••••..•••.••..•••..••..••..•••••••••.•••••••••••••••••• 9

CONCEPT OF OPERATIONS

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GEo''ERAL •..••..••..••.......•.•••.••••.••.••..••.•••..••..........._.................•.•••..•••..••..••..••.•••..••••••••..•..•••••••••.•••.•••.•••.••••. 9
ORGANlZATION ...•.....•••...•......••..••.•••.•.•......•................•.....••.••...••..••.•••...•..••••••...••...••.•••.•.••..•...•••.•••..•••••• 10
N011FJCAT'K>N ••...•...••..••..•......••..••...•..••..•....•...........•••...•...•...••..••..••...•..••...•...•....•....•...•....•..••...••..•••.•••.•• 10
CO,.l~lUNICAT'K>NS ..•...•...•...........•..•...•....•...•...•...•....••..••...••..•....•..••..•••..••..•...•.............••..••..•....•...••.......• 10
PUBLK: FACILITY SECURITY •.......•..••...•...•...•.......••....•........•...•...•...•...•...•...•.........•............•................•.•.. II
TRAFFK:: CONTROL ..................•...•...•...•...•....•...•.....................•...•...............•..........................•................. 11
EQUIPMENT AVAILABILITY .................•........•.........................•...•............•..••...•.........•...•...•..................... II
DE-MOBILIZATION PROCEDURES
11

RESPONSIBLE AGENClES

12

PRIMAR Y cm AGENCY •..................•.....................•...•..............................................••...•........•....•.......•.. J2
SUPPORT AGF.NCIES ................•..................•....•...•..............................................••..•.•......•.........•.......••..... 12
LF..AD FEDERAL AGE'\fCY......•......•...•....•..••...•...•......•.........••.•••..•....•...•..•••..••.•••..••.•...•.....•.•..•••...•..........••. 13

SUPPORT ANNEX-I: DEFINITIONS & ACRONY1HS •..•...._

_•.•_._.._...........••..... 13

DF.FINrrtONS ...•...•...................•.......•..••..••...•...•...•....•........•....•...•...•...••..•...•...••........••..•........•...........•..... 13
ACRONYMS ••.......................•...•.......•.......•...•.......•.....•............•.......•...•...•...•..................................•...•...•• 17

SUPPORT ANNEX-2: MOBlLlZATION PLAN

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I'URPOSE
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PREPARATION
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ALERT LEVELS
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RED RESPONSF. LEVEL COMMAND CHART
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INCIDENT CO~·..lMANDER
22
COMMAND DUTY OfFICER
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SECTION CHIEFS .......................................•...•......................................•..............................•.................... 24
OPERATlONS SECTION ..•..................•........•.................................••...•...•.......•..................•...•...............•.... 24
CO~1~1AND POSTS & STAGING AREA .........•...........•...........•.........•........•...•...•......................•...•...........•.... 24
TRAFFIC GROUP
26
PRECL"iCT DIVISION ...•...•..............•..•....•.............................•...••..•........••..•........•........•.......••...•...•.•.•........ 26
INVESTIGATIVE GROUP .•..........................•.....................•...........••...••..••..••...........•.........•...•.......•............ 26
CROWD MANAGE.\tENTTEAM ...............•...•.................•............•...•...••.......•.............•...•....•..••.......•........... 26
DETAL'lEESECTION
27
PLANNING SECTION ...•..................•........................•.............•.......•........•...•.........•...•........•...•...........•...•... 27
INTELLIGENCE SECTION ...................................................................•...•...•......................................•...•... 28
LOGISTICS SECTION ...........................................•..................................•.......•.......................................... 28
COMMUNICATIONS ........................................•...•...•..........................•...•..........................................•....... 28
SUPPLiES
29
TRANSPORT/MEDICAL SUPPORTIvOLUNT'EERS ...................•••..••..••...•................•..•..........•...•...•...•...•...•... 29
FINANCE SECTION
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RESPONSE LEVEL REO ACTlVAT'K>N ..•...••..••...•....................•....••.•.•..••........•...•.•.•.............•..•••..•••.••..••.••... 30

Emergency Operations Pbn
General Order 10-1

=012010

2

AFTER ACTION REVIEW

31

SUPPORT ANNEX-3'

31

T B A: TERRORISM ANNEX
Purpost'
Ha:.ard and Vilinerabilio' Analysis
Situations and Assllmptions
Police Lines. Perimeters and Barri(:ades
Bomb Threllts and E:rplosive Incidents
Hostage lind/or BlIrricaded Incidents
Situations lind AssllmlJtions
COllcept of Operations.........................................
Phases of Emergency Mallagemelll.................
Conditions of Readiness
Incielem Command Procedwe.f Gild Structure.
.
Operational Periods
.
Common Task of Fir~·t Responders to Terrorist Arracks
Specific Taskfor Arriving SuperYisors
Deparlmelll Organiwlioll and Responsibilities
TAB 8: CIVIL DISllJRBANCE ANNEX
Purpose
Hazard and Vulnerability Anlllysis
Situations alld Assumptions
Assllmptions
Concept of Operations
Phases of Emergenc)' Management
Conditions of Readines.f
Incident Commnnd Procedures and Structure
Patrol Response
Common Task oj First Responders to Civil DiSlllrbanct Incidtnt
Supervisor Response
Response Actions
Mobile Tactics
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After Action Rel,iew (AAR)
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TAB C: CORRECfIONALCENTER DISTURBANCE ANNEX
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Pulpose......
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Hazard lind VufnembililY Ana/yoi'LL....
Situations (Ind Assumptions
Assumptions
Concept of Operations
Phases of Emergency A1anagemellt
COllditions of Re.adiness
Incident COlnnllmd Procedures alld Stnlctllre
Operational Periods
Patrol Response
Common Task of First Responders 10 Corrutional Cenler Dislurlxl/lCt's
Slipen'isor Response
Public Infonnarion Offit'e
Afrer Action Rt',-iell' (AAR)

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3I
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Emergency Orerations Plan
Generul Order 10-1

04/2012010

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49
50
50
51
52

53
53
54

54
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54
54

55
55
55
56
56
57
57
57

58
58
59
59
60

TAB 0: SCENES Of HAZARDOUS MATERIAL INCIOEf'.TI AND/OR MAJOR FIRES ANNEX

Purpose
Ha:.ard alld Vulnerability Antilysis
Sitl/mio/ls and Assumptions
A.fSlllIltJlioll.f......................................................
Concepl of Operations........................
Phases ofEmerRellty Management

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32

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60
60
60
61
61
61

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COllditions of Readiness
Incidem Command Procedures {md Structure
Comlllon Tasks of First Respolltlers
Sp~cial OfH'rations Respons~
Public InfonlU:ltion Office
After Action Review (AARJ

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63
63
64
65
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TAB E: AIRPUNECRASH ANNEX

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Purpose
Hazard and Vulnerability Analysis
Situatiolls and Assumptions
Assumptiolls
Concept of Operations.......................................................... ....................
Phases of Emergency Mana:.:emellt...................................................... ....
Conditiolls of Readine.u
Inci(fent Command Procedures alld Srrl/cture....
Opertllional Periods
Putrol Response.......................................................
Common Task of First Responder.f to Airplane Crashes.............. .
Supen'isor Response
Special Operatiolls Respolue
Public Infamation Office
Afrer Action Review (AARJ

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69
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70
71
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TAB F: MASS ARREST ANNEX

Purpose
Hatan! and Vulnerability AlllIlysis
Situations and A.s..rumptiolls
Asslltnptions
Concept of Operations
Phases ofEmergency MallOgement
Conditions ofReadiness
Incident Command Procedures and Struct//re
Operational Periods
Patrol Respon.fe.................................
.
Booking Procedures
Juvel/ile Offenders.........................
Transportatioll...............................
Detentioll Facilities
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El'idellce Collectioll......................
Security
Identification
Imeragellcy Agreements
Defellse Coullsel Visits
Calirt &: Prosecuturial Uai.fOlI
Public Illformation Office
Food. Welter and Sanitatioll
Afedical Treatment
After Action Re\'iew (AAR)

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76

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TAB G: HURRICANE PREPAREDNESS ANNEX

PJlrpose
Ha:ard and Vulnerability Analysis
Situations and Assumptions
AS.flllllptiolls
COllcept of Operarions
Phase.f of Emergency M{//lt/8emellt
CmulitiOll.f of RelUli,leH
I/lcidellt Command Pro('edures and Structure

Emcrgcncy Operations Plan
General Order 10-1
0412012010

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Operlltional Periods
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Pre·lncident Pr~panttions
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£mIJlo)"t!e Fami/i~s - PersQtlll1 Prop~rty
85
Hurricane Pre/Xlrtltions
86
HllrriC{jn~ Operations
89
Post Hurricane Opera/iolls
89
Command Post GuideJin~s
90
~fas:l Arr~su ....................................................................•.............................................................. 91
COflnter and Prevent Criminal Actions
91
~fu/ual Aid.........................................................................................................................•............ 9/
Staffing Emergency Opera/iOlU C~n/er
9/
Search and ReKue Ejfons
91
After Action Rf!'V;ew
9/
TAB H: PUBLIC SAFETY RF..5P1TECEN'T'ER ANNEX

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Purpose
Si/uat;otlS
Ce.nter Opera/iolla' Issues
Logistical Plnnning
Police ~panmen/ Responsibilities

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92
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93

TAB I~ PA.~DEMIC BIRD A...U RESPONSEANXEX

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Purpose..........................................•................................................................................................ 96
Hazprd and Vuln~rabilityAnalysis
96
Siruations and Assumptions
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Assllmptions
97
Concept o/Opera/iolls
97
Phases of Emergency ~1anagemellt
98
SUPPORT ANNEX-4: VIRGINIA STATE CODE & VIRGINIA DEPARTMENT OF

HEALTH CODE

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TAB A: CODEOFVIRGINIA- MunJAL AID AGREEloIENTS
TAB B: CODE OF VIRGINIA - UNLAWFUL ASS~18LlES
TAB C: CODE OF VIRGINIA - DISEASE PREVEI'-'TION AND CONTROL
TAB D: CODE OF VIRGINIA - EMERGENCY SF.RVICES AND DISASTER U WS
TAB E: VIRGINIA BOARD OF HEALTH. DISEASE REPORTING ANDCO/'(ffiOL

SUPPORT ANNEX-5: MUTUAL AID AGREEMENTS
TAB A: FEI)ERAL AGENCIES
TAB B: RICHMOND AGENCiES
TAB C: MISCELLANEOUS AGREEMENTS
TAB D: OCJS SUPPLEMENTAL EMERGENCY ASSISTANCE

SUPPORT A NEX·6: EMERGENCY I\1ANAGEMENT FORMS •..••..•••.••_••_

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100

100
104

TAS A: ICS 20 I. L"'CtOf.."lT BRIEFL'lG

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TAB B: ICS 202.INCIDF.NTOBJECTlVE$
TAD c: ICS 203. ORGANIZATION ASSIGNMENT LIST
TAB D: ICS 204. DIVISION ASSIGNMENT LIST
TAB E: ICS 205.lNCIDENT RADIO COMMUNICATIONS PLAN
TAB F: ICS 206. MEDICAL PUN
TAB G: ICS 212. RESOURCES AT RISK
TAB H: ICS 213. GENERAL MESSAGE
TAB I: JCS 214. usrr LOG
TAB J: ICS 216. RADIO REQUlREME!'o'T Vt'ORKSHEET
TAB K: ICS 220. AlR OPERATIONS SUMMARY
TAB ~ K:S 221. I)El.IOBILIZATION CHECKOUT
TAB M: ICS AAR-O I. AFTER ACTION REVIEW

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Emergency ~r:lIions Plan
Gener.JI Order 10-1
041200010

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TAB N: ICS PD-OI. SITUATION REPORT

104

TAB 0: ICS FORMS INSTRUCTIONS

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EMERGENCY MANAGEMENT AT UNIVERSlTlES

104

SUPPORT ANNEX·7: CITY OF RICHMOND EMERGENCY MANAGEl\'IENT PLANS

107

TAB A: EMERGENCY OPERATIONS CENTER LNCIDENTCOMMAND INTERFACE
TAB B: EMERGENCY OPERATIONS PLAN SUPPORT ANNEX: I)lRECTION AND CONTROL

107
107

TAB c: EMERGENCY OPERATIONS PLAN INCIDENT ANNEX: HURRICANES AND TROPICAL STORMS

107

SUPPORT ANNEX-8: CITY OF RICHMOND COMMUNICATIONS CONTINGENCIES
PLA.NS

107

TELEPHONE SYSTEM

108

NICE

108

SMARTZONE MANAGEMENTTITTORIAL
CAD

108
108

PAGING

109

MOSCAD

109

RADIO SYSTEM LOSS OPTIONS

109

LOSS OF A SINGLE RADIO

.........•... 109

MUTUAL-AID OPERATIONS..........................
COMPLETE LOSS OFCEB
LOSS OF BOTH CENTRAL SITE CONTROLLERS

Emergency Operations Plan
General Order 10-1

0412012010

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Statement of Purpose
This manual will establish operational and administrative measures required for emergency operation. It will outline
measures the department will take to respond effectively in the event it becomes necessary 10 mobilize additional
personnel and resources to resolve an emergency, unusual occurrence and/or critical incident.
Mobilization and Restructuring will be in accordance with the Incident Command System (lCS/NIMS) as set forth
and detined by the guidelines outlined in this Statement of Purpose.
1. Unusual occurrences/critical incidents connote situations, generally of an emergency nalure. that result from
disasters - both natural and man made· and civil disturbances.

a. Disasters include floods, hurricanes, eanhquakes. tornadoes, explosions, and terrorist events.
b. Civil disturbances include riots, disorders. and violence arising from dissident gatherings and marches, rock
concerts, political conventions, and labor disputes.
2. The Chief of Police will exercise command and cOnlrol over all civil law enforcement resources commiued to
unusual occurrence operations within the jurisdiction of the Richmond Police Department.
3. The OIC of Support Services or his/her designee shall serve as the Operations Chief. The Operations Chief will
be responsible for:
a. Planning for response to unusual occurrences/critical incidents
b. Maintaining a liaison with civil defense authorities and coordinating the plan's contents with all affected agencies
c. Mainlain and develop simation maps available for use in planing operational commitments during unusual
occurrences/critical incidents
d. Maintaining COnlact with the officer in charge of the scene of the unusual occurrence for purposes of ensuring
proper response procedures are being followed.
e. M3intaining Unusual Occurrence/Criticallncident response plans.
4. Each Commanding Officer will be responsible for ensuring that all equipmem under their control and designated
for use in emergency/unusual occurrence/critical incident situations is inspected for operational readiness on a
quarterly basis.
5. Enabling legislation exists that pennits responsible and preventive action by law enforcement authorities during
emergency situations. as follows:
Title 44, Military and Emergency Laws, Chapter 3.2 • Emergency Services and Disaster Law, Code of Virginia,
provides general guidance for response by controlling agencies.

3.

b. Sections 15.2-1724 through

15.2~

1730, Code of Virginia. deals with mutual aid agreements.

c. Section 15.2-925. Code of Virginia, deals with regulation, etc., of assemblies or movement of persons or vehicles
under certain circumstances.
Emergency Oper.uions Plan
General Order 10· J

0412012010

7

d. Section 18.2-404 through 18.2-414.2, Code of Virginia, deals with riot and unlawful assembly.
e. Section 15.2-1725, Code of Virginia, deals with the power of police regarding property owned by the city beyond
its territorial limits.
f. Title 32.1, Health, Chapter 2 Disease Prevention and Control, Code of Virginia, Section 32.1-42 through 32. I ~49.

6. If requested, the Richmond Police Department will provide aid to another jurisdiction pursuant

10

the Code of

Virginia and/or existing agreed mutual aid agreements. (Refer to Appendix D)
7. The Commanding Officer of the Special Events Division, or designee, is responsible for writing and the annual
review of the Emergency Operations Manual.

8. This manual and all Richmond Police Department written directives shall be distributed to all members of the
Richmond Police Depanmem and all affected personnel shall receive documented annual training on the plan.
Commanding Officers of each organizational component shall be responsible for maintaining copies for reference
within their commands.

Richmond Police Department: Emergencv Operations Plan
Introduction
The Richmond Police Department provides for the safety of citizens and securiry of property during public
emergencies. This plan prescribes the procedures for the command, control, and coordination of City law
enforcement personnel to support emergency operations within me City. It also establishes interagency relationships
between the Richmond Police Department (RPD), orner City departments and supporting agencies.
Scope
This plan guide provides management and coordination details for municipal law enforcement activities within the
City. It outlines personnel, equipment, and security support for City agencies during public emergencies. The plan
operationalizes the integration of RPD with the City's Emergency Operations Plan (EOP). The plan provides
direction for the execution of crisis management activities for the department.
Department members shall be responsible for the following:
• Coordinating law enforcement services
• Providing security for shellers with the assismnce of the Sheriff's Office
• Assisting with evacuation and tntffic control issues
• Controlling access to affected areas
• Providing aviation support for damage assessment
• Coordinating with federal, state, local, and military agencies
• Establishing and implementing re-entry policy
• Managing evacuation and sheltering traffic movement
• Coordinating animal control issues

Emergency Opermions Plan
General Order 10-1
041200010

8

Implementation
The Richmond Police Depanment will implement emergency operations in accordance with the Incident Command
System (lCS) structure as outlined this plan.
Situation
Condition
RPD and other City support agencies must be prepared and ready to respond to emergency situations at all times.
Some emergencies can be anticipated, planned for, and managed, while others can arise without warning. A well
coordinated and executed plan will help ensure that any emergency situation is managed effectively to reduce the
effects of the emergency.
M

Planning Assumptions
• There may be little or no warning before the onset of an event or emergency_
• The Mayor of the City of Richmond bas sufficient legislative authority to act during public emergencies to preserve
the public peace, health, and safety of the citizens of the City.
• In a pUblic emergency, law enforcement resources may be directly impacted and potentially degraded. In the event
that the City cannot effectively control the situation, the Mayor can request federal or state assistance through proper
channels and statutory guidelines.

Concept of Operations

General
When an emergency simation is anticipated or erupts, The Richmond Police Department will employ the Emergency
Response Plan Matrix. The Emergency Response Plan Matrix is a means of alerting all personnel that an unusual
occurrence is either anticipated or already on going. The Matrix serves as a guideline for expected action, but does
not limit :ldditional actions deemed necessary by Ihe Richmond Police Department. Conversely, not every aClion
listed within a Response Level may necessarily be utilized. The Chief of Police or designee may choose the action(s)
to be implemented based on the totalily of the circumslances, current intelligence, and the real or perceived threat to
public safety.
When an emergency situation is anticipated or erupts. RPD will dispatch personnel to the affected area. As
appropriate, RPD will establish mutual aid liaisons and assess the situation. Responding personnel will coordinate
any requests for additional law enforcement resources and make requested resources immediately avail:lble.
Coordination of the use of other city, state, and federal law enforcement agencies will be managed by RPD. Should
Ihe situation esc:llate or require additional law enforcement resources from outside the affected area, such resources
will be dispatched in conjunction with Ihe support agencies. The RPD will provide all necessary securily to the
Richmond Fire and Emergency Medical Services, medical personnel, and public utility personnel while performing
emergency tasks.

Emergency Operations Plan
General Order 1O~ I

04/20120 I0

9

When a public emergency is caused by a terrorist act, RPD leads crisis management coordination for the City,
including close coordination with the Joint Terrorism Task Force (JITF) which includes the Federal Bureau of
Investigation (FBI), U.S. Secret Service (USSS), Henrico Police Department (HPD), Chesterfield Police Department
(CPO). Alcohol Tobacco and Firearms (ATF), Virginia State Police (VSP), the National Guard, U.S. Air Marshall
Service, the Department of Defense (DOD), the Virginia State Department and all other federal agencies and
organizations as necessary. The FBI will be the lead federal agency for crisis management, and the Federal
Emergency Management Agency (FEMA) will be the lead federal agency for consequence management.
Department members shall adhere to the command and control guidelines as described in this plan. Personnel shall
receive operational guidance in accordance with the department's Incident Command System (ICS).
Organization
The Richmond Chief of Police or designee shall direct and control all police operations and activities relating to the
management of the public emergency. An Emergency Operations Center (EOC) will be established enabling the
Chief to:
• Monitor, assess and coordinate police field operations
• Receive reports from police commanders
• Maintain logs on essential elements of infonnation relating to arrests, injuries, deaths, personnel distribution, traffic
control, and property damage
• Initiate requests for law enforcement assistance under existing required mutual aid agreements
• Coordinate through the Emergency Operations Center (EOC) all requests from non-law enforcement for resources
and/or equipment required for other City government agencies, tbe federal govemmem, or the private sector
• Brief the Mayor and other government officials on the status of events and the measures being taken to bring the
emergency under control
• Ensure adequate police coverage is provided to all neighborhoods.
Notification
Upon notification of a public emergency, RPD will alert appropriate personnel and provide staff for Emergency
Operation Center (EOC) to facilitate communication and assist the Virginia Department of Emergency Management
(VDEM) in the coordination of RPD activities with the overall City response. RPD liaisons will be posted at the
EOC and at other command and control sites, as directed.
In conjunction with VDEM and with appropriate olher primary agencies and support agencies, RPD will make a
rapid initial assessment of the situation and, as appropriate, notify and activate one or more additional support
agencies. Department resources will be deployed as necessary in accordance with this plan.
Communications
During unusual occurrences and civil disturbances, the City of Richmond Division of Emergency Communications
(DEC) will serve as the hub for the communications needs of all government agencies involved. These needs may
include:
a. Notification of appropriate key officials in the police departmenl and other agencies.
b. Dispatch of emergency personnel and equipment as requested by on·scene personnel.
Emer!!ency Opernlions Plan
General Order 10-1
041200010

10

c. Dedication of adequate radio frequencies for the exclusive use of those involved in the occurrence.
d. Dissemination of additional, peninent infonnmion as it is received.
e. Serve as the contact point for other agencies (e.g. military, medical facilities, mutual aid pact implementation,
etc.).
Communications will take place on a channel declared by the Incident Commander and cleared for such use by the
Division of Emergency Communications. In the event of a depanmenl mobilization and the declaration of separate
field commands to suppon the resolution of the incident, separate channels will be utilized for the various commands
10 promote communication among officers and supervisors with similar missions (i.e. Traffic, Intelligence. Logistics,
etc.)
Incidents that require responses by several different agencies present special problems regarding communications.
As provided in the Richmond Police Depanment Mobilization Plan, the Logistic Field Commander will be
responsible for issuing radios to officers ITom agencies that utilize radio systems that are not compatible with those
utilized by the Richmond Police Department.
In the event of a partial or total loss of communications, the procedures outlined in the City of Richmond Emergency
Management Plan. specifically Appendix VII and IX. located in Support Annex II, shall be followed.

Public Facility Security

Sworn personnel not assigned to the occurrence may be assigned from the Logistics Command to secure public
facilities adjacent to the area of the incident [0 ensure the maintenance and continuation of essential public services.
Assisting agencies may be assigned to the task, which includes the security of all involved vehicles and equipment.
Traffic Control
The lncident Commander or the designated Operations Section Chief shall be responsible for assigning an ndequate
number of personnel and resources 10 eilher promote the tlow of traffic prior to an Unusual Occurrence. or to control
traffic during the response to an Unusual Occurrence.
Equipment Availability
The Richmond Police Department has a variety of standard and specialized law enforcement equipment available,
which may be utilized in an unusual occurrence. including equipment located at each of the precincts and Special
Operations. All such equipmenl shall be maintained and inspected for operational readiness in accordance with
General Order 7-22 (Inspections.)

De-Mobilization Procedures
As the unusual occurrence or civil disturbance is resolved and circumstances warrant. the Incident Commander or
Department Commander shall make delenninations as to relief of department personnel and resources. During
mobilizations for major incidents. demobilization plans will be Ihe responsibility of the Planning Section Chief.
Whenever possible. law enforcement assisting from other jurisdictions and military personnel will be relieved first.
Emergency Operalions Plan
Genernl Order 10-1
0412012010

II

=

Responsible Agencies
Primary City Agency
Richmond Police Department (RPO)-RPD will be in direct liaison with the VDEM and other city agencies via
the EOC in order to coordinate interagency responses to any emergencies that may arise. RPD will keep the VDEM
apprised of police operations with regular status reports to the EOC. All emergency police responses for major
incidents or other critical situations shall be coordinated through the RPD EOC.
RPD will be responsible for the delivery of both emergency and non·emergency police service to the public. If
necessary, the entire department will be fully mobilized to ensure a continuity of service and effective police
response in the event of an emergency or other critical situation.
Support Agencies
Richmond Fire and Emergency Medial Services Departments (RFEMS) -RFEMS is the primary agency for the
suppression offires, hazardous materials and arson investigation. RFEMS will perform search and rescue operations
and coordinate that activity with the RPD and other appropriate agencies.
Virginia Department of Emergency Management (VDEM) -The operational command and control for
consequence management in any public emergency is the EOC operated by VDEM. A liaison from VDEM will be
provided to the EOC. A liaison from RPD will be assigned to the EOC as a representative of RESF:LE to ensure
effective and seamless communication between the two command and control centers.
The Richmond Sheriff's Office (RSO) -The Sheriff's Office wiH direct operations inside the correctional center
affected by any public emergency. The Sheriffs Department will coordinate all actions necessary to restore the
institution to nonnal operations. RPD will coordinate operations outside of the facility.
City of Richmond Public School System (RPS) -RPS will coordinate with RPD to ensure the safety of the
system's students. fnculty, and staff as well as to protect the school facilities and other RPS properties.
Department of Public Works (DPW)-DPW will assist RPD and VDEM via communication and contact with the
Emergency Coordinator in the DPW.
Richmond Redevelopment and Housing Authorities (RRHA}-RRHA will coordinate with RPD to ensure public
safety at housing sites is addressed.
Traffic Engineering/Operations (TEO)-TEO will respond to the affected areas and provide coordinated as~ts to
help manage or mitigale traffic congestion issues. TEO shall provide variable messages signs, barricades and olher
[raffie control devices to ease traffic control management.
Virginia Department of Transportation (VDOT)-VDOT will help identify traffic posts, develop evacuation
routes, identify staging areas. and establish access routes for emergency vehicles on the states roadways.
Office of the Chief Medical Examiner (OCME}-OCME will respond to the scene and provide coordination of
mass fatality efforts, including investigating, establishing temporary morgue(s), coordinating transportation of
Emergency Operations Plan
GenernJ Order 1()..I
0412012010

12

remains. performing postmortem examinations and identifications. securing evidence, certifying cause and manner
of death. and releasing remains.
Office of the City Attorney- Office of the City Attorney will provide legal advice and take legal action for the
supporting agencies, unless lawyers in the supporting agencies normally perform these functions for their agencies.
Office of the City Anomey will provide legal advice and take legal action for the City government.
Office of the Commonwealth Attorney- Office of the CommonweaJth Attorney will provide legal advice and
take legal action for the supporting agencies, unless lawyers in the supporting agencies normally perform these
functions for their agencies. Office of the Commonwealth Attorney will provide legal advice and take legal action to
prosecute criminal violations.
Lead Federal Agency
U.S. Department of Justice (DOJ)-The Department of Justice will be the lead federal agency for the City and will
provide direct, technical, and other support to the City through the counterpart primary city agency-in this case,
RPD. Upon the declaration of an emergency or major disaster by the President, under the authority of the Robert T.
Stafford Disaster Relief Act as Amended, April 1999, the Federal Response Plan (FRP) will be implemented by the
Federal Emergency Management Agency (FEMA) and other federal departments and agencies. Initially, these
agencies will operate OUl of the FEMA Regional Operations Center (ROC). Later. when the Disaster Field Office
(DFO) is established near the disaster area, the agency RESF representatives that comprise the Emergency Response
Team (ERT) will be in the EOC.
Support Annex - 1: Definitions & Acronyms

DEFINlTIONS
Active Shooter -- An anned person who has used deadly force on other persons and aggressively cominues to do so
while he/she has unrestricted access to additional victims. An incident in which the SUbject has shot victims but is no
longer shooting when police arrive is still considered an active shooter situation. An active shooter requires immediale
action and rapid deployment and therefore. does nOl incorporate Hostage/Barricaded Suspecltactics.
Amateur Radjo Emergency Services (ARES) - A public service organization of licensed amateur radio operators
who have voluntarily registered their qualifications and equipment to provide emergency communications for public
service events as needed.
Barricaded Subject - An (often anned) individual believed to have been involved in a criminal act or is a significant
Ihreal to the safety of citizens and police; in a position of concealment: or is contained in an open area and the presence or
approach of police officers could precipitate an adverse reaction by the suspect; and the suspect refuses to submit to arrest.
These situation have a high potential for serious injury or death, and result in unsafe conditions for the officers on the
scene.
Bomb Squad -- A team composed of police personnel thai are specially trained and equipped to handle explosive
incidents
Civil Disturbance - An unlawful assembly that constilutes a breach of the peace or any assembly of three or more
persons where there is imminent danger of collective violence. destruction of propeny or other unlawful acts. Civil
Disturbances include riots. disorders, and violence arising from dissident galherings and marches. rock concerts, political
convenlions and labor disputes. Primary importance in any civil disturbance is defusing the situation and restoring order.
Emergency Operations Plan

General Order 10-1
Q4120120 I0

13

Officers must be able to respond
propeny and maintain control.

(0

any civil disturbance, isolale it from the remainder of the community. protect life and

Command Post - A cenlTalized staging area used to coordinate an emergency situation
Consequence Management - Measures taken to protect public health and safety, restore essential government
services. and provide emergency relief to governments, businesses, and individuals affected by the consequences of
terrorism. State and local governments exercise primary authority to respond to the consequences of terrorism.
(Source: FRP Terrorism Incident Annex, page TI-2. April 1999). The Federal Emergency Management Agency
(FEMA) has been designated the lead federal agency (LFA) for consequence management to ensure thal the Federal
Response Plan is adequate to respond to terrorism. Additionally, FEMA supports the Federal Bureau of Investigation
(FBI) in crisis management.
Crisis Management - This is the law enforcement aspect of an incident that involves measures to identify, acquire,
and plan the resources needed to anticipate, prevent, andlor resolve a threat of terrorism. The FBI is the LFA for
crisis management for such an incident. (Source: FBI) During crisis management, the FBI coordinates closely with
local law enforcemem authorities to provide successful law enForcement resolution to the incident. The FBr also
coordinates with other Federal authorities, including FEMA. (Source: FRP Terrorism Incident Annex, April 1999)
Critical Incident - An occurrence or event, natural or human ~aused, which requires an emergency response to protect
life or property. Incidents can, for example, include major disasters, emergencies. terrorist allacks, terrorist threats, wild
land and urban fires, noods, hazardous materials spills, nuclear accidents. aircraft accidents, earthquakes, hurricanes,
tornadoes, tropical stonns, war-related disasters, public health and medical emergencies, and other occurrences requiring
an emergency response. such as major planned events and law enforcement incidents
Crowd Management Commander: The Commanding Officer of Special Operations or, in his absence, the
Command Duty Officer, or in his absence the appropriate Precinct Commander, exercising line command over a
given geographic area of responsibility.
Crowd Management Team Platoon: A Crowd Management Team Platoon is comprised of four crowd
management squads and commanded by a Lieutenant. All teams will be composed of officers from various divisions
within the police department. The Richmond Special Events Division is also a parr of the Crowd Management Team
and will support the Crowd Management Team with Mounted, Motor, Aviation, and Traffic Officers as needed. It
will be up to the discretion of the Incident Commander to activate learns as needed. The concept of the Crowd
Management Team Platoon has, as its Focus, the ability to provide a high~profile response to significant
disturbances/isolated problems and then return to a standby mode. The staffing, command and conlTol. training and
equipment of the Crowd Management Team is designed to provide an effective response to looting, rescue of
trapped or downed officers/citizens. terrorist activities or disturbances caused by large groups of disorderly persons,
when these incidents cannot be remedied by conventional police methods.
Crowd Management Squad: An interrelated group of officers who are specifically trained in crowd management
tactics, shield tactics and chemical agents. A squad consists of twelve (12) officers and one (I) sergeant. Each squad
is designed to be self-sufficient and may operate independently or as part of a platoon.
Department Commander: The Chief of Police or senior command officer acting in his place.
Designated Investigative Liaison - Tbe police officer designated to coordinate the investigation between the
Department of Fire and Emergency Services, Division of Emergency Communications (DEC) and the RPD. The
Officer in Charge of the Speciallnvestigarions Division or designee shall designate the Investigative Liaison
Emergency Oper:lIions Plan
Geneml Order J 0-1
l>ln0l2010

14

--------------

Disaster Field Office - The primary field location for the coordination of federal response and recovery operations.
Disaster Medical Assistance Team - A group that stabilizes and transports victims of disasters.
Disaster Mortuary Response Team - A group that provides victim identification and mortuary services.
Emergency Alert System (EAS) - A system established by the FCC in November of 1994 to replace the
Emergency Broadcast System (EBS) as a tool the President and others might use to warn the public about emergency
situations.
Emergency Broadcast System (EBS) - A system replaced by the EAS that was composed of AM, FM, and TV
broadcast stations; low·power TV stations; and non-Government industry entities operating on a voluntary,
organized basis during emergencies at national, state, or operational (local) area levels.
Emergency Coordinating Officer (ECO) - A person who manages the functions of the Emergency Operations
Center.
Emergency Operations Center (EOC) - A secure location to determine situational status, coordinate actions and
make critical decisions during emergency and disaster situations
Federal Radiological Emergency Response Plan (FRERP) - Provides an organized and integrated capability for
timely, coordinated response by federal agencies to peacetime radiological emergencies.
Federal Radiological Monitoring and Assessment Center (FRMAC) - An operations center usually established
near the scene of a radiological emergency from which the federal field monitoring and assessment assistance is
directed and coordinated.
Federal Response Plan (FRP) - The FRP establishes a process and structure for the systematic, coordinated, and
effective delivery of federal assistance to address the consequences of any major disaster or emergency declared
under the Robert T. Stafford Disaster Relief and Emergency Assistance Act, as amended (42 U.S. Code rUSC\, et
seq.). The FRP Terrorism Incident Annex defines the organizational structures used to coordinate crisis management
with consequence management. (Source: FRP Terrorism Incident Annex, April 1999)
Geograpbic Information System (GIS) - A computer system capable of assembling. storing, manipulating, and
displaying geographically referenced information, i.e. data identified according to their locations.
Hazard Mitigation Grants Program (HMGP) - A program administered by the FEMA to provide grams to States
and local governments for implementing long-term hazard mitigation measures after a major disaster declaration.
Hazardous Materials - Malerials designated to be hazardous in accordance with the federal Hazardous Materials
Transportation Act, as amended, (49 U.S. Code 5101 et seq.) and which require placarding when transported by
motor vehicle as provided in the federal Hazardous Materials Regulations (49 C.F.R. Part 172, Subpart F); also
including any quantity of any material listed as a select agent or toxin in federal Public Health Service Regulations at
42 C.F.R. Part 73
Hazardous Substances - All material or substances which now or hereafter are designated, defined or characterized
by law or regulation of the Commonwealth or regulation of the united States government
Emergency Operations Plan
Gem:ral Order 10-1

0412012010

15

Hostage - A person held against their will by a perpetrator that intends to use the safety of the subject to their
advantage
Hostage Negotiations Team - A team composed of police personnel that are specially trained and equipped to intervene
in high-risk situations
Incident Command System (lCS) - A model for disaster response that calls for the use of common terminology,
modular organization, integrated communications, unified command structure, action planning, manageable span-ofcontrol, pre-designated facilities, and comprehensive resource management.
Incident Commander: In the event of a total departmental mobilization under the Priority One Alert, the
Department Commander (Chief) will designate two Incident Commanders to shure twenty-four hour overall
responsibility as Incident Commander. All assigned Section Chiefs (Operations, Planning, Logistics and Finance)
will report directly to the Incident Commander. For events requiring less than full mobilization, the senior officer
presenl will aSsume the duties of Incident Commander until relieved by appropriate personnel.
Investigative Commander •• The individual responsible for developing infonnation on the principals involved in the
incident. securing evidence for prosecution of suspect(s), oversee search warrants if applicable, and for liaison with other
law enforcement agencies as directed by the Chief of Police or Incident Commander. The Investigative Commander is the
ranking Detective Supervisor on the scene.
Lead Agency - The federal department or agency assigned lead responsibility under U.S. law to manage and
coordinate the federal response in a specific functional area. Lead agencies support the overall lead federal agency
(LFA) during all phases of the response.
Lead Federal Agency (LFA) - The agency designated by the President to lead and coordinate the overall federal
response is referred to as the LFA and is detennined by the type of emergency. In general, an LFA establishes
operational structures and procedures to assemble and work with agencies providing direct support to the LFA in
order to provide an initial assessment of the situation, develop an action plan, monitor and update operational
priorities, and ensure each agency exercises its concurrent and distinct authorities under U.S. law and supports the
LFA in carrying out the President'S relevant policy. Specific responsibilities of an LFA vary according to the
agency's unique statutory authorities.
Mass Arrests _. When the number of persons to be arrested in a single incident exceeds the Department's ability to
perform normal arrest. booking, and repolling procedures
Mitigation - Those actions (including threat and vulnerability assessments) taken to reduce the exposure to and
detrimental effects of a weapons of mass destruction (WMD) incident.
Mobile Command Center - A specialized 40 foot long vehicle used for both emergency and non-emergency
purposes
Preparedness - Establishing the plans, training, exercises. and resources necessary to achieve readiness for all
hazards including WMD incidents.
Recovery - Recovery, in this document, includes all types of emergency actions dedicated to the continued
protection of the public or promoting the resumption of normal activities in the affected area.
Render Safe Procedure (RSP) - The safe procedure that is taken to make safe a possible explosive incident.
Emergency Operations Plan
General Order 10- J
04/20/201 U

16

Response - Executing the plan and resources identified 10 perfonn those duties and services to preserve and protect
life and property as well as provide services to the surviving population.
Section Chiefs: The appropriate personnel exercising line command over a given area of responsibility or in charge
of one of the major components of the Incident Command System.
Special Operations - Encompasses the use of a tactical learn. negmiation with hostage takers or barricaded persons,
coverage of special events, protection of VIPs, and conducting search-and- rescue missions
Special Weapons and Tactics (SWAT) Team - A team composed of police personnel that are specially trained and
equipped to intervene in high-risk situations
Support Commander - The individual responsible for coordinating traffic and crowd control as well as overall
support for the operation. The Support Commander is the Captain of SED or his/her designee.
Tactical Commander - The individual responsible for control of the tactical Command Post and SWAT actions in
conjunction with the Hostage Negotiators. The Tactical Commander is the OIC of the SWAT Team.
Terrorism - The unlawful use of force or violence against persons or property [0 intimidate or coerce a govemment,
the civilian population, or any segment thereof, in furtherance of political or social Objectives. Domestic terrorism
involves groups or individuals who are based and operate entirely within the United States and U.S. territories
without foreign direction and whose acts are directed at elements of the U.S. government or population.
Weapons of Mass Destruction (WMD) - Any explosive. incendiary, or poison gas, bomb, grenade, rocket having a
propellant charge of more than 4 ounces, or a missile having an explosive incendiary charge of more than 0.25
ounce, or mine or device similar to the above; poison gas; weapon involving a disease organism; or weapon that is
designed [0 release radiation or radioactivity at a level dangerous to human life. (Source: 18 USC 2332a as
referenced in 18 USC 921).

ACRONYMS
EOP - Emergency Operations Pl:lIl
DEC - Division of Emergency Communications
DEM - Department of Emergency Management
EOC - Emergency Operations Center
FBI - Federal Bureau of Investigations
FEMA - Federal Emergency Management Agency
ICS - Incident Command System
EOC - Emergency Operation Center
UO - Unusual Occurrences
Emergency Operations Plan
Gener:d Order 10-1

04120/20 I0

17

RFEMS - Richmond Fire and Emergency Medical Services
Support Annex - 2: Mobilization Plan
Purpose
To establish a plan for mobilization of police response to major incidents as defined by the Richmond Police
Department Emergency Operations Plan.
Preparation
Each command will establish a 12 hour emergency contingency schedule for all the essential personnel (TO
INCLUDE CIVILIAN PERSO NEl AS APPROPRIATE) in their command. The 12 hour emergency contingency
schedule shall be updated twice a year (April and September) or as needed. The schedule should be posted or
provided to the all effected personnel.
Variables to be taken into consideration but are not limited to the following:
a) Special duties, such as Mobile Tactical assignments
b) If possible, attempt to keep all officers close to their original assignment/schedule
c) If possible, attempt to assign officers with their administrative supervisor
d) Determine those officers who have spouses in the Department and ascertain their need to work opposing shifts
As police personnel, SWORN AND CIVILIAN members are subject to dury during a large-scale incident or a
nalural or man-made disaster, it is suggested that they make advance plans for being absent from home. In the event
of a predicted hurricane, il is Ihe employee'S responsibility 10 monitor the hurricane's approach and make any
necessary adjustments. Each employee must recognize the potential for working extended periods beyond normal
shifts and should consider the following:
A. Sheltering of immediate family members with other filmily members, friends or in the City of Richmond Public
Safety Respite Centers Annex, (Tab H).
B. Maintaining A MlNLMUM OF FIVE (5) DAYS OF supplies in the home (food, cooking equipment, flashlights,
batteries, drinking water, etc.)
C. Securing personal property.
Alert Levels
Emergency Response Plan Matrix: When an emergency situation is anticipated or erupts, The Richmond Police
Department will employ the Emergency Response Plan Matrix. The Matrix contains general actions thai may be
laken when each Response Level is implemenled. It is modeled after the U.S. Departmenl of Homeland S~curily
threat matrix. The Matrix serves as a guideline for expected action, bUI does not limit additional actions deemed
necessary by the Richmond Police Department Conversely, not every action listed within a Response Level may
necessarily be utilized. The Chief of Police or his designee may choose the action(s) [0 be implemented based on the
totality of the circumstances, currem imelligence, and Ihe real or perceived threat to public safety.
These response levels, adapted from [he U.S. Department of Homeland Security, are divided into five phases as
follows:

Emergency Operations Plan
General Order 10-1

04nonolO

18

CHMO

-n THREAT DES G

TIO

RESPO

E LEVELS

E
A SIGNIFICANT POSSIBILITY OF A MAJOR THREAT TO PUBLIC
SAFETY

GuA DED
A GENERAL RISK TO PUBLIC SAFETY WITH NO CREDIBLE
HREATS TO SPECIFIC TARGETS

NO CREDIBLE RISK OF A THREAT TO PUBLIC SAFETY I ROUTINE
SECURITY IS IMPLEMEN2fED NORMAL DEPARTMENTAL ACTIVITIES
I

Emergency Operations Plan
General Order I 0- J

19

04120/2010

---------------'

I. Response Level (Green): No credible risk of a threat to public safety. Routine security is implemented, normal
departmental activities.
2. Response Level (Blue): A general risk to public safety with no credible threats 10 specific targets. Routine
security, normal departmenlal activities. Review and update the recal1list for all members of the depanment.
3. Response Level (Yellow): A prediclable or significant possibility of a minor threatl'O public safety.

a. Personnel .
(I) All facilities will be open with manned checkpoims.
(2) There will be 100 percent ID check.
(3) There will be 100 percent verification of all deliveries, including plain-view search.
(4) All members will be alert for suspicious packages or persons.

b. Facilities
(I) All facilities will open with manned checkpoints.
(2) There will be 100 percent lD check.
(3) There will be 100 percent verification of all deliveries, inclUding plain-view search.
(4) All members will be alert for suspicious packages or persons.

c. Operalions
(I) On-duty personnel are primarily used.
(2) Limited recall may be required.
(3) Members may be held over.
(4) There may be limited early dismissal of non-essential personnel.
(5) Personnel leave may be authorized.
4. Response Level (Orange): Informationlintelljgence indicating that a serious threat

[0

public safety is imminem

3. Personnel
(I) Department personnel will be partially or fully mobilized through recall of selected sworn and essential civilian
members by phone and media.
(2) Members on leave or day off shall contact their command.
(3) Selected sworn civilians may be placed on 12-hour shifts.
(4) Sworn members will be in uniform (except undercover and other selected members).
(5) Days off will be cancelled.
(6) Oplionalleave will be suspended.

b. Facilities
(I) All facilities will be open with established conrrolled access for both members and public.
(2) There will be 100 percent TO check.
(3) Visitors are escorted within police facilities.
(4) Parking and traffic restrictions will be in place around facilities and selected locations.
(5) There will be 100 percent verification of all deliveries, including full content search and escort of vehicles such
as lrash pick-up.
(6) All packages will be screened.
(7) Mail may be diverted.

c. Operations
Emergency Operations Plan
Genenll Order JO~J
04/20120 I0

20

(I) Emergency Operations Center (EOC) will be in full operation commanded by a Deputy Chief or designee
(assigned Captain).
(2) Sworn Command members will make hourly contact with the EOC.
(3) All radio frequencies will be staffed and operational 24 hours.
(4) There may be possible activation of prisoner control.
(5) Traffic plan will be adjusted accordingly.
(6) Selected Crowd Management Teams will be activated and deployed accordingly.
(7) Sworn members will have emergency equipment readily available.
(8) There will be supplemental security at selected government buildings and other locations as appropriate, as
detennined in conjunction with VDEM.
(9) Emergency investigative and forensic plan may be activated.
(10) Emergency dispatching plan activated, if needed.
(II) There may be activation of mutual aid agreement
(12) Coordination with media will be established.
(13) Contact with VDEM and city officials will be established.

5. Response Level (Red): A major threat to public safety is in progress or has occurred.

a. Personnel
(I) Department will be fully mobilized through recall of selected sworn and essential civilian members by phone and

media sources.
(2) Members on leave or day off shall contact their parent command.
(3) All members will be on 12-hour shifts.
(4) Sworn members will be in Class B unifonn (except undercover and other selected members).
(5) Annual leave and days off will be cancelled.
(6) Optional leave will be suspe.nded.
(7) Approved leave to be reviewed on a case-by-case basis.
b. Facilities
(I) AU facilities will open with established checkpoints.
(2) Access will be restricted to aurhorized personnel and public needing essential police services.
(3) There will be 100 percent TO check and the public will be escorted within police facilities.
(4) There will be parking restrictions around facilities and specific locations, with vehicle traffic passing through
controlled access.
(5) Full content search of aU vehicles will take place before vehicles enter parking facilities.
(6) There will be 100 percent verification of all deliveries, including full content search escort of vehicles such as
trash pick-up.
(7) All packages will be screened.
(8) Mail will be diverted.

c. Operations
(1) The Emergency Operations Center EOC will be in full operation and commanded by a Deputy Chief or the
designated Captain.
(2) Sworn Command members will make hourly contact with EOC.
(3) All radio frequencies will be staffed and operational 24 hours.
(4) There may be activation of prisoner control.
(5) Traffic plan will be adjusted accordingly.
(6) All Crowd Management Teams will be fully activated and deployed accordingly.
Emergency Operations Plan
General Order 10- J
04n.onOIO

21

(7) Sworn members will have emergency equipment readily available.
(8) There will be supplemenral security at selected government buildings and other locations as appropriate, as
detennined in conjunction with OEM.
(9) Emergency dispatching plan will be in operation.
(10) Activation of federal assets will be requested if needed.
(II) There may be activation of mutual aid agreements.
(12) Coordination with media will be established.
(13) Contact with OEM and city officials will be established.
(14) Court activities and hearings will be suspended as authorized by Lhe Chief Judge.
Red Alert / Major Incident Command

Incident Command Function
During a major incident, whether anticipated or unanticipated, the Richmond Police Department will restructure to
accommodate the needs of the community in response to the incident. In the evenl that a Red Response is
aOlicipaled, but prior to the formal declaration of, the Chief of Police, or his designee. may declare a Pre-Alert
Slatus. This status will cancel leave and holiday leave of personnel. Personnel should also remain in the immediate
Richmond area. Notification of a Pre-Alert Status, or a fonnal Red Response, will be made by either telephone, in
person, in writing, or through the local television and radio stations as listed in the DEC memorandum. Personnel

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Etllt:rgency Operations Plan
Geneml Ordt:r 10-1

0412012010

-----

should pay strict anention 10 local radio and television stations afier a Pre-Alert Staws is declared. When the
emergency situation has passed. and a decision has been made not to fonnally declare an aJert, personnel will be
nOlified either personally, by telephone. or through local radio or television stations.
In preparation for or in response to a major occurrence, the Depanment Commander shall activate the incident
command system and restructure the department to meet the needs of the community as the major incident occurs or
is resolved. The Department Commander and or Incident Commander shall conduct command operations from Ihe
Emergency Operations Center. during a major incident. When possible, Richmond Police Department precincts or
other buildings shaU be utilized as staging areas for the deployment of resources into affected areas. Staging areas for
equipment may include any suitable location as identified by the incident commander. Sworn personnel and select
support staff shall be activated and assigned by the incident commander or his/her designee. Additional agency
personnel, or assistance from other localities shall be requested by the Department or Incident Commander in
accordance with existing mutual aide agreements, or via the Emergency Operations Center during a major incident.
All Section Chiefs will report directly to the Incident Commander unless olherwise directed. All requests for
additional manpower, specialized units, mobile tactical forces, etc., will be authorized by the Incident Commander.
Once the additional manpower is commiued il will be under Ihe command of Ihe requesting Section Chief for as
long as their assistance is required, with tbe exception of the SWAT units and Crowd Management Team which will
remain under their assigned command.
The Incident Commander will be continuaJly apprized of all pertinent infonnation by the Section Commanders and
the Chiefs Staff to keep an ongoing, accurate assessment of the entire operation. The Incident Commander will act
as or appoint a liaison with his any assisting agencies. During major incidents, the Incident Commander will appoint
a safety officer to advise on issues affecting the safety of operational personnel during the incident. Additionally, the
Incident Commander will appoint a public information officer to respond to media inquiries during the incident.
During major incidents, the pUblic information officer may work in conjunction with the established public
information function in the City of Richmond Emergency Operations Center.
The use of any chemical agents other than routinely issued aerosol canisters, should be authorized by the Incident
Commander. In all cases where chemical agents are deployed, this decision shall be announced just prior to actual
use to allow the Incident Commander to coordinate any impact on the entire operation.
At the conclusion of a major incident, the Richmond Police Department Incident Commander will conduct an after
action review of police operations during the incident, and participate as requested in after action reviews conducted
by City of Richmond Emergency Operations Personnel. The Incident Commander shall submit a detailed final report
to the Chief of Police. This report should include:
a. Synopsis of incident.
b. Resources/equipment required.
c. Strategies/tactics employed.
d. Evaluation.
e. Injuries/deaths sustained by partiCipating agencies.
f. Roster/man-hours expended.
g. Index of use of force incidents
h. Evidence collection at the scene should be considered in preparation of this report
i. Public Information Releases

23

Emergency Operations Phln
General Order J 0-1
04120/2010

--~~~-

•

Command Duty Officer
Command Duty Officers shall continue with their assigned duties and responsibilities unless reassigned by the
Incident Commander. Command Duty Officers are responsible for providing continuity to the Operations Division
by providing command level oversight to department operations after nonnal working hours. This shall be
accomplished by providing leadership, guidance and a constant command level philosophy at all major incidents by
monitoring, directing and coordinating the activities of Operations Division personnel not involved in the major
incident.

Section Chiefs
Depending on the size and duration of an incident, the department may be divided into sections as defined by the
Incident Command System, each under the command and control of a designated Section Chief who will be
responsible for the efficient operation of their particular sector. Section Chiefs may be assigned to the following
commands: Operations, Planning, Finance, Intelligence, and Logistics.

Operations Set:tion
The Operations Section Chief shall be responsible for establishing perimeters during the incident to prevent the event
from expanding (if possible), and to prevent citizens from entering dangerous conditions or situations. The
deployment of personnel to establish perimeters may be accomplished in conjunction with the traffic functions
described below. The Operations Section Chief shall also be responsible for advising the Incident Commander on the
need to evacuate a given area. Upon the decision to evacuate by the Incident Commander, the Operations Section
Chef will deploy personnel to assist in the evacuation, and request the assistance of the pUblic information function
in making notification via the media or the Richmond Alert system. The responsibility of the Traffic Group may be
shared by two Precinct Commanders (rank of Capmin) who will divide the lWenty·four hour workday. Each Traffic
Commander will be responsible for all traffic management required, and will specifically provide personnel for
security and traffic control at designated parking areas during special events, or at critical, perimeter or checkpoint
areas as determined by the Incident Commander.
Command Posts and Staging Areas
As deemed necessary by the Incident Commander, the Operations Section Chief may establish Field Command Posts
or Staging areas in support of the operation, in addition to the Emergency Operations Center. When this becomes
necessary during a major event, the security of established posts (including the Emergency Operations Center) is the
responsibility of the Operations Section Chief. Adequate perimeters to ensure the protection of agency personnel
shall be established and maintained. In establishing Field Command Posts or Staging Areas, Commanders should
consider the following:
Mobile Command Post
The Richmond Police Department's Mobile Command Post can be used as a temporary or permanent Command Post
by the Department's Incident Commander or their designees.
A. Command Post! Staging Area Site:
I. Pre-designated Area (precinct, Fire Station)
2. Public Park
3. Parking Lot
Emergency Operations Plan
General Order 10-1
04/2012010

24

4. Public Facility (School. Church)
5. Roadway, closed without seriously affecting traffic
6. Private Facility (Office, Home, with owner's permission)
B. Site Selection Factors:
I. Strategical1y located
2. Accessible to responding forces
3. Defensible against crowds, mobs, firebombs, etc.
4. Sufficient space for responding personnel and equipment
5. Restrooms
6. Telephones
7. Electricity
8. Water
9. Heljcopters
10. Structures for personnel briefing, protection from weather
I I. Storage facilities
12. Medical Facilities
In the event of a declaration of an alert, the incident commander will designate staging area for officers responding
to the incident. When designating the staging area, an alternate location should be announced in the event that the
incident moves or conditions render the primary area unavailable. Major occurrences whether planned or
unanticipated may require several staging points in order to accommodate the personnel assigned to the various
commands. The incident commander should be cognizant of this need as responses are either coordinated as
conditions permit, planned in advance. Assembly areas should be large enough to accommodate the personnel,
equipment, and vehicles necessary to address the incident, yet should be in close proximity to the event In the event
that an incidem occurs in a location that does not allow adequate facilities for an staging area, the incident
commander shall arrange for transportation for personnel to the scene from a satellite location.
Although a field command post possessing all of these attributes would be ideal, circumstances surrounding the
incident may require that the field command post be established with few, if any, of these traits. For example, a
patrol vehicle will often serve as the initial field command post. However, after the occurrence is initially stabilized,
the designated Incident Commander should consider moving the field command post to a more advantageous
location, if necessary.
Procedure for Use of Command Post at Large Scale Disaster or Incident:
The first patrol supervisor arriving at the scene of a large-scale disaster or incident will assume command of the situation
and set up a Command Post. This supervisor shall conduct operations from the Command Post. maintain a record of the
police officers' assigned pos(S and various police officials responding. The supervisor will remain in charge until relieved
by a higher ranking officer. After nonnal business hours. when the Watch Commander/Night Supervisor arrives, he/she
shall be in command of the Command Post and all personnel. until relieved by an official of higher rank.
The Officer-In-Charge (OIC) of the Command Post shall ensure that the area is being patrolled properly, control traffic
and ensure that all required reports arc taken. Reports should be made on all injured persons, explosions or any similar
type catastrophe. A report is not necessary for a fire that was not started by an explosion or where arson is not suspected.
Deploying the MCC for Emergency Call-outs:
All unit supervisors will denote daily on their duty rosters the officers assigned to their platoons that are MCC drivers and
forward the rosters to both the Police Warrant and Infonnation Desk and the Divlsion of Emergency Communications
(DEC). Once on the scene, the Incident Commander (i.e.. Unit 9. Precinct Commander) will be responsible for assessing
Emergency Operations Plan
General Order 10-1

0412012010

25

the silUation and making the decision whether or nOi to call out the MCC. If the situation is a hostage or barricaded
subject, the MCC will be called along with the SWAT team. If the Incident Commander decides there is a need for the
MCC to be deployed. they will call the DEC to have [he MCC Supervisor paged so that he/she can decide whether to
respond or dispatch the "On Call" MCC driver or both. When the MCC is deployed, there MUST be one certified driver
and another officer or Neighborhood Assistance Officer (NAO). The second officer or NAO is not required when the
certified driver has been designed by the MCC supervisor as being able to deploy the MCC by him/herself. If the driver is
available to respond. he/she and the other officer or NAO shall mark 10-7 on a Mobile Command Center Assignment
Sheel and respond to the location where the MCC is stored. If there are no available MCC drivers, the MCC Supervisor
will respond and deploy lhe MCC.
Once on the scene, the slaffing requirements will depend on lhe area and assignment where the MCC is in operation.
There may only be a need for a driver and one other officer. MCC drivers mUSI be trained and certified as a MCC driver.
The MCC driver/operator will maintain a Log Book in the MCC, respond to MCC pages immediately, volunteer for
staffing assignments. conduct pre and post ins?Xtions of the unit, conduct pre-planning of the route. select the sufest and
most suitable staging area with input from the Officer-In-Charge at the scene (Watch Commander, Night Supervisor or
Division Commander. SWAT Team Leader or Hostage Negotiation Team Leader), set up the unit for the intended
operation. assist lhe OIC at the scene (UniI9. Division Commander. SWAT Team Leader or Hostage Negotiation Team
Leader) upon deployment. conduct tours of the unit. maintain the unit (re-stocking and maintaining supplies For the unit)
and report any damage or repairs needed to the MCC Supervisor.
The MCC Supervisor must be trained and certified as a MCC driver and be available for all call-outs. unless un acting
MCC supervisor has been designated. He/she shall respond immediately to all MCC pages, be the point of contact for
reserving lhe MCC and maintain an annual calendar for scheduling the MCC. If the MCC driver needs to be relieved,
he/she shall contact the MCC Supervisor to determine who shall relieve himlher. This should be done at a point where it
is deemed thaI the event will be on-going for an extended period of time.

Precinct Division
The responsibility for this command may be shared by two PrecinctlUnit Commanders (rank of Captain) who will
divide each twenty-four hour workday. Each Commander will command and control all routine precinct operalions
during the incident. Due to Ihe possible reduction in precinct staff. Precinct Commanders will be responsible for
scheduling and assigning officers so as to provide maximum coverage of precincts with limited resources.

Investigative Division
The responsibility for this field of command shall be assigned to the Commanding Officer of the Detective Division
reporting to the Operations Section ChieF. It may be shared by two Detective Division Shift Commanders (rank of
Lieutenant). This Command will function with staffing as determined by the Incident Commander. These personnel
will be responsible for working any cases that would require investigation, and conducting any post incident
investigations deemed necessary.

Crowd Management Team
The responsibility for this command shall be assigned to the Operations Section Chief. Il may be shared with two, or
more. Shift Commanders (rank of Lieutenant) who have received special training in Crowd Management. The
Special Operations Division will initially respond to the incident. and secure the scene until the Crowd Management
Team can be mobilized. Personnel assigned to this command will primarily be responsible for immediate response to
any area affected by a special event, civil disturbance or unusual occurrence.

Detainee Transportation, Processing, and Commement
Em~rgency Operarions

Gener.d Order 10-1
0412012010

Plan

26

The Operations Section Chief shall be responsible for ensuring that detainees are transported, processed and safely
confined during the operational periods of the incident This function shall be conducted in accordance with the
Richmond Sheriffs Office utilizing existing facilities. In the evem that the nature of the incident deems the use of
existing facilities impractical. alternatives to their use (the central jail, or the use of neighboring jails) shall be
considered and implemented as needed.
Planning Function
For events that can be planned, that require the mobilization of the Department, the Department Commander shall
designate personnel to assist in planning the event with other city, public safety, emergency management personnel,
or law enforcement agencies. Additionally, plans for events that occur annually or periodically will be maintained
and disseminated prior to the event. The Deputy Chief - Operations or his/her designee shall conduct a documented
review and update (if necessary) of these plans annually. In the event of an unplanned incident necessitating the
incident commander to activate the planning function, the Planning Section Chief shall be responsible for developing
a documented incident action plan, in conjunction with the Incident and Department Commanders. The Incident
Action Plan shall also contain plans and contingencies for the demobilization of resources at or nearing the
conclusion of the operation.
In developing the Incident Action Plan for the agency, the Planning Section Chief should consider the following:
• When practical, members will be assigned duties that closely as possible, parallel their normal functions.
• Personnel shall cooperate with other city, public safety, emergency management personnel, or law enforcement
agencies during the event in order to resolve the incident and restore order.
• Coordination of efforts will be maintained with other public agencies such as Rescue, Fire and Emergency Services
(Civil Defense Authority).
• Through the utilization of mutual aid agreements, the Department may utilize resources of other police agencies of
adjacent and concurrent jurisdictions. This includes other cities, military installations, and the National Guard.
• The Operations Section Chief, or Incident Commander shall provide security for field command posts, aU public
facilities, and emergency shelters, if applicable and shall assume responsibility for traftic control where situations
preclude nonnal daily traffic procedures. Examples are evacuation, coordination of emergency vehicles in congested
areas, limited access to the disturbance areas, and power outages.
• Key personnel, unless otherwise designated shall be mandated by City Disaster Plan (line of succession.) These
personnel shall implement and maintain all management control areas of operation, personnel, equipment, and
utilization of outside resources.
• Procedures for de-escalation of alerts will be at the direction of the Departmenl Commander, or Incident
Commander, who will determine what services may be reduced or omitted depending upon the situation.

Intelligence Information
The responsibility for this field of command shall be assigned to the Commanding Officer of Special Investigations
who will repon to the Operations Section Chief. The Command may be shared by two Special Investigations Shift
Emergency Operations Plan
General Order to-I
04n0l2010

27

-~-----

Commanders (rank of Lieutenant) who will divide the twenty-four hour workday. The command may be siaffed with
sergeants and officers from Special Investigations unless otherwise detailed by the Incident Commander. During
special events where large crowds are anticipated. the Inrelljgence Command will be responsible for maintaining an
ongoing appraisal of crowd behavior. The Intelligence Command using the following guidelines will staff

observations posts, mobile video teams, crowd infiltration officers and communication with similarly assigned
personnel from any assisting agency, as described:
Crowd Infiltration: Officers will work in a plain-clothes detail with the primary duties of gathering intelligence and
identifying criminal elements within the crowd. Enforcement action should only be taken in situations that are of
immediate danger to the officers or citizens. When less immediate action is needed crowd infiltration officers should
contact the nearest uniform officer to advise them of the developing problem, and identify key players. When
immediate action is not needed, they should contact the Intelligence Commander for instructions.
Observation Posts: Observation posts may be equipped with video surveilJance apparatus. Information gathered by
these units will be reported directly to the Intelligence Commander. Officers on observation posts may also have
direct contact with street units [Q direct officers to criminal activity, identify potential trouble situations or specific
individuals. When immediate action is needed, they should contact the appropriate uniform officers prior to
contacting the Intelligence Commander.
Mobile Video Teams: Mobile video teams may be used in any capacity during the incident at the direction of the
Intelligence Commander. (i.e., crowd infiltration, within air suppon, etc.) All plain-clolhes video teams will be
assigned to the Intelligence Commander. Mobile video teams may also be assigned with uniformed units as the need
dictates.
Inter-Agency Communication: The Intelligence Commander will maintain contact with all local. state and federal
law enforcement organizations in order to maintain an ongoing information gathering process. The Intelligence
Commander will be assisted by support personnel within the Operations Section and will retain the l1exibiJity [Q
reassign personnel and equipment under his command. Intelligence information gathered during the event shall be
disseminated to the Incident Commander via the Planning Branch Chief.
Logistics Function
Special equipment needed during a mobilization shall be arranged for by the incident commander or. when activated
by the Incident Commander, the Logistics Section Chief. Requests for equipment not immediately available may be
channeled to other jurisdictions thm are Signatories to the Mutual Aid Agreement. During major incidents. or when
activated by the Incident Commander, the Support Services Manager will assume overall command of Logistics to
include aU support services connected with tbe police operation. This Field Commander repons directly to the
Incident Commander unless otherwise directed. All officers and supervisors of the assigned command shall act as
support personnel to accomplish this mission. as detailed below.
Communications
As described in the Richmond Police Department Emergency Operations Plan, the communications function shall be
the responsibility of Division of Emergency Communications. During major incidents, the Incident Commander may
appoint a liaison to the Division of Emergency Communications to ensure a cooperative and supportive working
relationship. The Logistics Section Chief shall be responsible for maimaining a contact list of agency personnel for
emergency contact, and communication outside of the capabilities of the Division of Emergency Communications
(via cellular telephone.)
Emergency Operalions Plan
General Order 10-1
041200010

28

In the event of a major incident, communications will lake place on a channel declared by the Incident Commander
and cleared for such use by the E911 Emergency Communications Division. In the event of a Response Level Red
mobilization and the declaration of separate field commands to support the resolution of the incident, separate
channels will be utilized for the various commands to promote communication amongst officers and supervisors
with similar missions (i.e. Traffic. Intelligence, Logistics, etc).
Incidents that require responses by several different agencies present special problems regarding communications.
The Logistic Section Chief will be responsible for issuing radios to officers from agencies that utilize radio systems
that are not compatible with those utilized by the Richmond Police Department.

Supplies
The Logistic Section Chief shall be responsible for gathering and providing the necessary supplies to support
operations during a major incident. Such supplies may include:
• Radio Check in/Checkout: If additional radios are required for mutual aid response this procedure will be utilized
to ensure the proper assignment of radios and batteries to authorized personnel and to maintain aU batteries and
radios in good working order.
• Food Service: Supply adequate food and refreshments to officers. as needed depending on length of the incident
• Other Equipment: Equipment other than the specialized equipment maintained by the various commands for major
incidents, shall be obtained. maintained and issued through Logistics. Equipment needs of specialized teams
(SWAT, or CMT) shall be maintained by either the command responsible for the function, or the officers assigned to
the learn.
• Pools of unassigned officers will be placed under this command. The Logistics Commander may assign them to
any requesting command on a temporary basis for as long as the need exists. The personnel should be assigned in
squad units with a supervisor, if possible. As the need for extra personnel ceases, they will return to the Command
Post for further instructions.
Transportation
The Logistics Section Chief shall be responsible for providing for the transportation needs of the operations during a
major evem. Specifically, the Logistics Section Chief. or his/her designee shall mainlain a log of all vehicles utilized
and available to the police motor pool. As other Field Commanders assess their needs, they will forward their
requests to the Logistics Commander via the Incident Commander.
Medical Support
The Logistics Section Chief shall be responsible for coordinating medical supplies and support for all Department
personnel during major incidents.

Volunteers
All volunteers working in support of the police effort will report to the Logistics Commander who will assess the
level of assistance available and assign volunteers according to need.
Emergency Operations Plan
General Order 10-1
0411012010

29

Finance/Administration Function
Upon appointment by the Incident Commander, the Finance/Administration Section Chief shall be responsible for
providing administrative support for the operation during major incidents. When activated. the
Finance/Administration Section Chief shall be responsible for tracking the hours worked by personnel supporting the
response to the incident Specifically, the Finance/Administration Section Chief will ensure that all officers on duty
are properly documented on roll call sheets, both for accountability and payroll. AJI copies of line-up sheets will be
kept maintained by the Finance/Administration Section Chief until forwarded to the Police Payroll Office.
Additionally, the Logistics Command will assume responsibility for maimaining a log of hours worked by any
assisting police agencies operating under Mutual Aid Agreements.
The Finance/Administration Section Chief shall also provide administrative support by procuring resources to
support operations beyond those maintained by the Department or available through other agencies, recording
expenses specifically associated with the operation, and shall be responsible for documenting injuries to personnel
involved in the operation, or any other property damage or liability issues associated with the operation.

Response Level Red Activation
In the event of an incident that necessirates complete departmental mobilization, the Incident Commander will
immediately assume the command and control of the entire event It will be his or her decision, with the approval of
the Department Commander to de-escalate the mobilization to an Orange or Yellow Response or to completely
return the department to a normal level of operation.
The initial stage of activation to a Response Level Red may require the immediate response of all Field Commanders
to the Command Post to assume their respective duties. If a Command Post has not been previously established, it
will be the responsibility of the highest-ranking on-scene supervisor [0 establish a Command Post until relieved by
rhe Incident Commander. The remainder of [he activation will be as follows:
• Division of Emergency Communications will then notify each command of the location of the command post as
well ,IS the location of the Field Commanders.
• Each normally established command will be responsible for contacting their officers and advising them that a
Response Level Red has been declared, as well as the location of the Command Post or a specific Field Commander.
• All Field Commanders will meet with the Incident Commander to determine an approximate length of the
Response Level Red incident and the subsequenr manpower requirements.
• Most officers wil1 have pre-determined assignments and therefore, will report directly to their supervisors within
the respective sector of command.
• Officers who do not have pre-derermined assignments will report to the Logistics Commander in the officer smging
area of rhe Command Post for assignment.
• Due to the inherent readiness of Special Operations officers, they are to initially respond to the Command Post for
deployment until a Crowd Management Team can be deployed to respond ro the Command Post for assignmenr. At
rhe direction of the Incident Commander the Mobile Tactical officers may be deployed as individual squads to
perform routine law enforcement functions.
• Each Field Commander must be responsible for rhe relief of their own assigned personnel.

After Action Review
In accordance with this plan (ICSINlMS) the incidenl commander shall conduct or coordinate a documented after
action review upon the conclusion of any event that requires Department mobilization. Reports documenting events
Emergency Operations Plan
General Order 10-1
04/20/2010

30

•

requiring Response Levels Green through Orange mobilizations shall be maintained by the command having control
of lhe incident or event. The Deputy Chief-Operations will maintain reports documenting events requiring Response
Level Red mobilizations. Reports shall be considered in revising or updating existing plans.
Periodic rehearsals for mobilization due to unusual occurrences shall be conducted (ICS/NIMS).

Support Annex· 3:
Annex Tabs
Tab
Tab
Tab
Trab

A: Terrorism Annex
B: Civil Disturbance Annex
C: Correctional Center Disturbance AlInex
D: Scenes of Major Fires andlor Ha7~trdoll~ M:ucrials Incidents Annex

Tab E: Airplane Cra..o;;h Annex
Tab F: Mass Arrest Annex
T'lb G: Hurricane Preparedness Annex
Tab H: City or Richmond Public Safely Respite Centers
Tab r : Pandemic Bird Flu Response Annex

Tab A: Terrorism Annex
Purpose
This annex outlines the Departmenl's direction and control concepts of operations for the coordination of a
Department response to terrorist events focusing on the utilization of the Emergency Operations Plan and the
Department's emergency management structure as the basis for the response.

Hazard and Vulnerability Analysis
The following statements define several aspects of the Department's terrorism vulnerabilities:
• Current estimates indicate that terrorist attacks in the United States will increase in the next decade. As of January
31. 2008 Richmond was added to the list of at risk cities for terrorist attacks by the Department of Homeland
Security
• The City of Richmond is a target rich environment due to the fact that Richmond is the state capitol and houses the
General Assembly and the Federal Reserve.
• There is a possibility that various types of terrorist attacks could occur in the city, possibly induding the following:

o HazMatlCBRNElWMD
o BomblExplosion
a Active Shooter/Sniper
o Kidnapping/Barricade Subject
a School Attack
o Suicide Bomber
Emergency Opemtions Plan
General Order 10-1

0412012010

31

•

• Richmond hosts a number of festivals and special events that attract large crowds with little to no security
assessment or protection.
Police Lines, Perimeters and Barricades
It is the policy of the Department to establish areas, zones or perimeters in emergency situations where life, limb, property
or evidence may be endangered. VA Code § 15.2·1714 provides that whenever fires, accidents, wrecks. explosions.
crimes. riots or OIher emergency situations where life. limb, or property may be endangered may cause persons to collect
on the public streets. alleys. highways. parking lots or other public areas, the chief law-enforcement officer of any locality
or that officer's authorized representative who is responsible for the security of the scene, may establish such areas. zones
or perimeters by the placement of police lines, or barricades as are reasonably necessary to achieve the purposes set forth
in this plan.
The purposes for the placement of police lines or barricades are to preserve the integrity of evidence at the scene, facilitate
the movement of vehicular and pedestrian traffic into. out of and around the scene, pennit firefighters, police officers and
emergency services personnel to perfonn necessary operations unimpeded, protect persons and property.

Establishi"g Restricted Areas:
The police line or barricade shall be clearly identified by "Police Line - 00 NOT CROSS" or other similar wording. If
material and equipment is not avnilable for marking the prohibited area, identifiable law enforcement officials shall
position themselves to indicate the location of the police line or barricade, and shall give a verbal warning 10 any person
or persons attempting 10 cross police lines or barricades withoul proper authorization. Crossing established police lines.
perimeters or barricades is a Class 3 Misdemeanor. If convicted, Ihe violator may be fined up to $500.00 (V A Code
§ 18.2-414.2) Pursuant to VA Code § 15.2-1714 there are two exceptions 10 Ihe prohibition against crossing police lines.
perimeters or barricades. either (a) persons charged with the responsibility by law of rendering assistance at or
investigating any such fires. accidents, wrecks, explosions, crimes or riots or (b) personnel from Information Services
such as press, radio and television when gathering news. It shall be unlawful for such persons to obstruct the police,
firemen and rescue workers in the perfonnance of their duties at such scene. Such personnel shall proceed at their own
risk. Personnel from [nfonn.uion Services will NOT be permitted within the primary scene area under any circumstances
while the scene is being processed by law enforcement personnel due to the fact that it will obstruct the performance of
their duties.
Pursuant to VA Code §46.2-890. no vehicle shall be stopped at or in the vicinity of a tire. vehicle or airplane accident, or
other area of emergency. in such a manner as to create a traffic hazard or interfere with law-enforcement officers, fire
fighters, rescue workers, or others whose duty it is to deal with such emergencies. Such vehicles may be removed at the risk
and expense of the owner if such vehicle create.<; a traffic hazard or interferes with the necessary procedures of the emergency
workers on scene. Vehicles being used for accredited Informat'ion Services, such as press. mdio. and television when being
used for the gathering of the news except when actually are obstructing the emergency workers on scene.

Respolldi/Jg Officer(s) shall:
I.
2.
3.
4.
5.
6.
7.

Establish such areas, zones or perimeters by the placement of police lines, or barricades as are reasonably necessary to
achieve the purposes set forth in this polky
Preserve the integrity of evidence at the scene
Facilitate the movement of vehicular and pedestrian traffic into, out of and around the scene
Pennit firefighters, police officers and emergency services personnel to perfonn necessary operations unimpeded
Protect persons and property
Mark the police line or banicade clearly or station themselves conspicuously at the scene and give verbal warnings to
unauthorized persons
Allow authorized service personnel and vehicles to enter the scene

Respondillg Supervisor(s) shall:
Emergency Operations Plan
General Order 10-1
04/2012010

32

I.
2.
3.
4.

When nOlified by DEC, respond prompLly 10 the scene
Ensure that all necessary procedures are followed
NOlify any additional persons or resources, if appropriale
Ensure that all necessary reports are completed in an accumte and timely manner

Bomb Threats and/or Explosive Incidents
It is the policy of the Richmond Police Department to provide its personnel with the proper guidelines so that when
responding to a bomb threat, possible evacuation, or explosive incident. the safeguarding of lives is the main priority. The
investigation and protection of property will follow all render safe procedures (RSP) for any explosive device. Should a
bomb threat occur within the City of Richmond the following procedures will be followed.
Police RespOtrse and Reporting:
When infonnation on a bomb threat is received, a patrol unit, patrol supervisor and a precinct detective unit shall be
dispatched to the scene, preferably by telephone messages rather than radio. The Seclor Lieutenant, Precinct
Commander and Night Supervisor shall be notified. The police officer assigned to the call will be responsible for all
reports. Any time a bomb threat is received, an Incident Report must be taken using "13C6" as the offense code.
For reporting purposes, the 'Victim (VI)' shall be the person who receives Qf answers the bomb threat phone call, message
left on the answering machine/voicemail or text message, not necessarily who the threat was directed toward. The person
or object that the bomb threat was directed toward shall be listed as an 'Involved Other (l0)' in the report.
C01,ducting Searches:
Police personnel at the scene of a bomb threat are best utilized in assisting in threat analysis in specific and unspecified
types of threats: and shall also provide guidance in coordinating search activities.
At the request of a building owner, manager or other person in charge of the facility. members of the Department may
assist in searches of all buildings or areas involved in bomb threats.
In searching a building. the assistance of custodial and staff personnel is desired in order to familiarize the se'lrchers with
the physical layout of the location and gain access to all areas. The plan of search will be developed on a case by case
analysis, taking into consideration unique aspects of the facility and/or situation. Upon completion of a search. police
personnel should only infonn the responsible person that no suspect package has been located.
Evacuatiolls;
The decision to evacuate from a bomb threat occurring on private property shall be the responsibility of the owner or
person in charge of the privately owned property. That decision will be made based upon discussions with the poHce
supervisor on the scene and a review of the threat analysis. The on-scene police supervisor has the authority to request the
Police Canine Explosives Team. If the owner or person in charge requests evacuation. the on-scene supervisor will
detennine if the evacuation will enhance public safety and provide assistance if it does. Management for the affected
locations will detennine when the building will be reoccupied.
Public buildings shall be evacuated at the request of the person in charge of the building using their evacuation plan or,
when it is deemed mandatory for the safety of the occupants, by the police official in charge at the scene.
Large Venue Locations - The City of Richmond has three large venue locations that by their nature are public buildings
under a private property domain. The Diamond, the Richmond Coliseum and the Greater Richmond Convention Center
have unique characteristics during events that draw large crowds. Evacuillion decision protocols will differ at these three
locations than from any other public or private sites. No large venue location shall be evacuated until proper nOlifications,
as listed below have been completed and support logistics have been put into place, unless an emergency situation exists
(n found explosive device, etc.). Evacuation procedures for these sites will be coordinated with on-duty command
Emergency Operations Plan
General Order 10- J
04120/2010

33

supervision. Additional seasonal sitcs classified as large venue sites are Browns Island and the Kanawha Plaza. Large
venue locations shall have an updated evacuation plan on file with the Richmond Police Department and the plan will be
maintained through Support Services - Homeland Security.

Bomb Threat Notifications
The Division of Emergency Communications shall notify a patrol unit, patrol supervisor, sector lieutenant and precinct
detective to respond to the call for service. DEC shall also notify the Precinct Commander and Night Supervisor. pursuant
to General Order 2-6, Night Supervisors and Notification.
For large venue threats, DEC shall complete the notifications listed and notify the Captain of Special Events Division
(SED), Major of Support Services. major of the impacted operations area, Assistant Chief of Police, Chief of Police and
Public Affairs Unit.

Fuund SlI.Ipec{ Package -- In the event that a bomb, explosive device or any item of a suspect nature is located as a result
of a search or call for service, never attempt to move or handle the package.
SIf.\pec{ Subsrance Calls - When the presence of a suspected hazardous substance is discovered, the initial officer shall
keep the substance isolaled to ensure minimal human contact. Further infonnation can be found in the
Radioactive/Hazardous Materials Incidents section of this plan.
Suspec{ Package - When the presence of a ~ackage is discovered through a search or call for service, the initial
officer shall immediately evacuate an area _
around the package and initiate notification protocols. The initial
officer and supervisor shall identify any witnesses related to the package, remain on the scene to brief the Bomb Squad
and position themselves in a manner that affords the best protection, while keeping the scene clear.
The tirst supervisor on the scene shall initiate evacuation plans, if a package is found during the search. The first
supervisor shaii also establish an initial Command Post and activate Incident Command. He/she shall also establish police
lines at a safe distance until the removal of the suspect package by the Bomb Squad.
Personnel responding to a suspect package call sh~al1ow anyone to enter the scene but the Bomb Squad and turn off
any radio equipment brought into (he area within_of the suspect package. The initial onicer that logged the call for
service is responsible for completing the IBR using "9835" as the offense code.

Bomb Squad:
The Bomb Squad shall respond to the established Command Post and receive an initial briefing, make adjustments to the
police lines if necessary. and prepare equipment for RSP authorized by the squad's Commander. When the RSP has bcen
completed. the Bomb Squad shall conduct a safcty inspection of the .~llspect package and its immediate surroundings to
determine if the site is safe and can be released to the Site Communder at the Command Post. Finally. the Bomb Squad
will complete the Federal Bureau of Investigation (FBI) Bomb Data Center Report.
The Bomb Squau's Command Post and the Site Command Post will be cstablisheli as two separate posts. Prior to the
RSP. the Fire Department and Medical Units are to be positioned via the Site Command Post.

Homicide Bomber...:
This scl·tion is to be a guide tll memhers responding to the .~ccne of a homiciJe li.e. Suicide) onmher(s). The first
rcspondcr may encounter a ,situatiull where the bomber(s) may be iJentified or sllsl}C(·teJ. hut has IlOl yct detnnateJ a
device. These inJiviJuals arc driven by a Ilumber
causes. indllding religiolls fan.lIi<:isrn. The goal of the bOlllber(s) is
lO kill or injurc as Ill<Hly innoccnt people as possible through the detonation nf explosives conceakJ on their person.

Dr

Officers responding to the scene Of:l plltcntial bomber mllst take every precaution to place grem di_~tance betwcen hirn/her
.~elf ,1I1d the bomber. Officers in such silllaliolls ...Iwll be guided by the Ho.~tage / Barricaded Subjects section \~Ill,
allL! treal the scene as a barricaded suspect scene. Ofllcers .~hall also establish a secure perimetcr, if pos.sible _
in
all directions. This will 'IJlow for a small safety I.one for movcment. The fir~t supervisor Ull the sccne ~hall verify the
~ituation at the scene. aUlhori/_e DEC to initiate immediate nntd"ication to SWAT and the Bomb SqllaL1.cst.\bli_~h an initial
CIJll1mand Post ,llld activ;ltc lilcidcllt COllllll'Hld.
[':lIlcrgl'llC}' t)pl'ratil)n~ P[;ll1
(;cl1l'1"al Ordl'r 10·)

(f-V20/20Jtl

Officers shall not attempt to use up front negotiations. The bomber is not depressed or despondent. The goal of the
bomber is to commit homicide. If it is determined that a suspect is a homicide bomber. officers shall use the force
necessary to the accomplishment of the officer's mission. Officers shall be guided by General Order 1·5, Use of Force. rf
deadly force is required. officers shall be aware that a shot may detonate the explosives that are being carried on the
person.
If the bomber has become incapacitated through police action or a detonation of the explosives has occurred. no attempt
shall be made to approach the suspect and render aid. Only members of the Bomb Squad shall approach the suspect. This
type of scene shall be handled as a suspect package.

Suspect Package Notifications:
DEC shall nOlify a patrol unit, patrol supervisor, sector Lieutenant and Precinct Detective to respond to the call for
service. DEC shall also nmify the Precinct Commander and Night Supervisor, pursuant to General Order 2-6, Night
Supervisors and Notification.
For large venue threats, DEC shall complete the nOlifications listed and notify the Captain of Special Events Division
(SED). Major of Support Services. Major of the impacted Operations Area. Assistant Chief of Police, Chief of Police and
Public Affairs Unit.
Based upon the initial officer's and supervisor's verification. DEC shall notify the following: Captain of the SED. the
Bomb Squad, Lieutenant of Homeland Security, Major of Support Services, Major of the impacted Opemtions Area,
Assistant Chief of Police, Chief of Police and Public Affairs Unit. The Caplain of SED is authorized to mobilize the
The Lieutenant of Homeland Security is responsible for
Traffic and Crowd Management Teams, if applicable.
notification to the Joint Terrorism Task Force (J1TF). DEC is responsible for notification. through the Lieutenant of
Homeland Security. to alert all pnrties that have been notified of a suspect pnckage that a scene is clear.

Explosions and Posl Blasi Scenes:
When responding to an explosion. Ihe initial assumption shall be that the cause of the e;(plosion is criminal in nature until
proven otherwise. such as an industrial accident. Therefore, first responders shall take appropriafe steps to protect
themselves and any others exposed to an explosion or potential secondary explosive devices.
An initiaJ supervisor shall establish a crime scene as early into Ihe incident as possible and initiate a staging area to be
llsed as an initial Command Post and initiate Incident Command with the Fire Department. Officers responding to an
explosion shall take every precaution as to not place themselves in danger. No officer shall enter an explosion area
without donning their Per.~onal Protection Equipment (PPE). Officers shall secure and control access to the area and/or
building in which the explosion occurred. Maintain a buffer
in all directions from the area of the explosion [0
incillde adjacent buildings dumaged by the explosion. Consideration must to be given to wind direction and tr.lffic now.

0_

The Bomb Squad. in conjunction with Cunine Explosives Team. shall conduct a search to determine if any '\econdary
devices are pre:-.ent in Ihe crime scene and adjoining area:-.. If a secondary device is located. the Bomb Squud :-.hall perfonn
:'1 RSP in accordance with suspect package guidelines.
When it is t1elcnnin~d Ihat a :-.cene is ...afe. members of the Bomb Squad .'.hall a...... isT Forcn:-.ic... the FBI and the ATF with
Ihe inve.'.tigalion. Officers are 10 cnsure that no evidence. tkbris or componenl." are tampcrctl with or removed from Ihe
..ccne or un explo1>ion. An explo1>ion enn lodge t1ebris grcut distanc~s from Ihe actual site. Any L1ebris lucah:d 'ihiJlI
remain where lhey wcre fOlilltluntil fI."Cuycretl by a Forcn"ics tcam assignctlto Ihe incitlent.
The Lieutenant of Homelantl Security ...hall devclop and Illaint:lin an Inilial Response Team (1RT) fur e:<plosions lhat are
uetcnnincu to be criminal in nature. Thc IRT shall nOlify Inciuent Command uf any needs required at Ihe scene. IRT
members shall clHl"ist Dr the CUl11mander and personnel (}r the Bomb Squad. Ihe Canine E:<plosives Team. \Inc Major
Crilm:s Sergeant. a RichmunJ FBI JTTF Detective and twu Forensics persllIlilcl.
£.qJlos;oll NUlijicm;owi:

1":lIlcr,g.<:nl.:Y Opcr..llilln... I'I.Ul
General OrJer Ill-I

1I-l/211/211 I0

..5

•

DEC shall dispatch a patrol unit. patrol supervisor, seelor Lieutenant and Precinct Detective to respond 10 the call for
service as well as provide proper notificalions to the Fire Department and the Department of Emergency Management.
DEC shall also send alert notifications to all Police Captains and above to include the Lieutenant of Homeland Security.
Once a site is verified as a crime scene, the following notificalions shall be made. The Captain of Special Events Division
shall nOlify the FBI through the lITF. ATF. the Initial Response Team (lRT), the Crowd Management Team (pursuanllo
procedures outlined the Police Response 10 Critical Incidents section of this plan) and the Lieutenant of Homeland
Security, who shall coordinate activities with the Richmond Department of Emergency Management for Medical Triage
and Metropolitan Medical Response System (MMRS), if applicable.

The Incident Command System (ICS) shall remain in efFect while there is an active explosive crime scene. The ICS may
be expanded or reduced based upon the situational scenarios involving establishing perimeters, conducting secondary
evacuations. maintaining scene security. providing for transportation and processing of victims and suspects, directing and
controlling traffic and pedestrian now, distribution of regional equipment and resources, conducting post incident
investigation and/or coordination of Financial/Administrative Cost Analysis. The ICS coordination for the Police
Department is primarily the responsibility of the Major of Support Services or as designated by the Chief of Police.
Hostage and/or Barricaded Subject Situations
First officer(s) at the scene shall immediately request a supervisor and nOlify DEC concerning the existence of the
situation and obtain as much intelligence as possible and continue to update all infonnation as it is received. He/she shall
contain the suspect by covering all possible escape routes using the assistance of other officers. Officers shall use a
Tactical Parking mindset, depending on the response to the incident, to prevent causing choke points that may hinder
and/or prevent the delivery of critical assets (tactical and medical) to the scene where they may be needed and begin to
coordinate the establishment of a perimeter as additional units arrive. Remove all spectators from any area that may be
considered dangerous if it can be done safely. This activity will be taken over by SWAT personnel when deployed to the
inner perimeter. Any further evacuations will be detennined by the Incident Commander. All penlOns removed should be
identified and questioned. This infonnation should be sem to (he Command Post when applicable.
Strict fireann discipline shall be maintained at the scene. As outlined in General Order 1-5, Use of Force. weapons should
not be used except in selF-deFense or to defend a third party from the threat of death or serious bodily injury. Someone
who has alone hostage and is shooting at the police is not an active shooter. He/she is actively shooting at the police and
Distance and Cover applies to a Barricaded/Hostage situation. Cover should withstand the rounds fired by the suspect.
The officer(s) who initially responds should remember that, in most situations, any attempt to resolve the situation with an
immediate lise of force might subject the officers and any hostages present to needless dangers. The initial period of
contact between the hostage taker or bamcaded subject and the police is the time of highest stress and emotion and
therefore the most critical. TIME IS THE SINGLE GREATEST WEAPON THE POLICE POSSESS. Containing the
suspeCt and initiating no immediate action may often be the best response. The first responding officer shall then brief the
first responding supervisor upon hislher amval and include the status of the incident and the deployment of the officers.
It is the policy of this Department to deploy the SWAT Team and NegOliation Team utilizing the least stringent means
consistent with the incident. The initial supervisor needs to assess the incident. IF the banicaded suspect fits the criteria
as defined in this order. it is hislher responsibility to initiate a SWAT and HNT page alert. Supervisors shall evaluate all
available infonnation and adjust perimeters as necessary and notify the Night Supervisor or Precinct Commander .cbased
on time of day). A tempor.uy Command Post shall be established prior to the pager alert. It is important for a supervisor
to provide a location for specialized units to respond. This needs to be part of the initial alert. This location should be a
secure place, out of the line of fire of the situation. with secure means of access and egress, with the understanding that it
may change based on the dynamics of the incident.

Supervisors shall designate an assembly point for responding emergency equipment. This area should be out of the line
of fire. allow safe access and egress and not interfere with movements into or around the inner perimeter. A checkpoint
may also be established. This is the sole location where persons and vehicles that want entry inside the outer perimeter
are directed to for clearance. An ambulance(s) shall be dispatched to the assembly point for immediate response iF
Emergency Operations Plan
General Order 10-1
04120/2010

36

needed. A Recorder shall be designaled for all pertinent infonnation and an action plan shall be formulaled which may
need to be implemented prior to tactical arrivaL Elements include: Suspect surrenders (arrest team), Release of hostages
(recovery team). Suspect confronts first responders, and conduct requiring an immediate response (active shooter
situation). The supervisor is also responsible for lraffic and crowd control as directed by the Support Commander.
The ranking Traffic Supervisor shall be responsible for traffic and crowd control as directed by the Support Commander.
All Police Personnel arriving at scene to assist with critical incidents (except those authorized to report to the Tep) shall
report to the SUppol1 Command Post first, unless they already have received an assignment and follow the Chain of
Command. Based on Incident Command, the Chain of Command may decrease or increase in correlation to the incident.
Each Commander position may be filled by designating on-scene personnel if required. If necessary. the
FinanciaVAdministration section may be added to include units for time, compensation claims, procurement of additional
resources. recording expenses and documenting injuries and liability issues.
DEC shall open an emergency channel and advise all units on all channels of the situation, when notified of a
HostagelBarricaded Incident by a supervisor on the scene and notify aU units at the scene and responding units to utilize
the established emergency channel. Immediately notify or cause to be notified the Command Staff pager alert, the
Hostage Negotiations Team Commander and Team, the SWAT Team Commander and Team, the Precinci Commander or
on-duty Lieutenant of the precinct in which the situation occurred, the ranking on-dUlY Detective Division supervisor.
Public Affairs Unit and individuals andlor organizations as requested by police personneVsupervisors on the scene. DEC
shall then log the responding SWATlNegotiator personnel to the call and advise them where to respond and the zone and
channel the operation will be working on and immediately notify the Night SupervisorlPrecinct Commander who shall
respond and assess the situation to include the immediate supervisor's decision to activate or not activate a SWAT callout
during hostagelbarricaded situations on VCU Property.
The Incident Commander (Major of Support Services) shall establish command and control of the incident utilizing the
Incident Command System model. Upon Arrival, the Major of Support Services shall act as the Incident Commander and
establish the [ncident Command Post. He/she shall mobilize and control personnel and equipment resources at the
incident and establish liaison with outside agencies, including the Emergency Operations Center, if established be
responsible for the overall supervision and coordination of the incidentThe Tactical Commander shall establish and maintain a Tactical Command Post (TCP). This TCP shall be close enough to
provide conual of the situation and provide sufficient cover and security to those personnel who will operate at this
center. All communications and/or negotiations with the suspect(s) and all tactical plans will emanate from this center.
The Tactical Commander shall then establish a staging area at a location close to the TCP and the Inner Perimeter
providing cover for special police equipment and team Formation and be responsible for control of the tactical situation to
include coordination of hostage negotiations and SWAT Team activities. Helshe shall make provisions for chase or
surveillance vehicles and/or aircraft in the event the situation becomes mobile and will direct thai a survey be made to
a~sess possible routes of travel, control the Inner Perimeter and appoint a Recorder to establish a written log of times,
actions, events and personnel at the scene. Only the Chief of Police, Assistant Chief of Police. [ncidenl Commander,
members of the SWAT Team, Hostage Negotiations Team. and those officers specifically requested by the Tactical
Commander should be allowed access to the TCP_
The appointed Recorder will work from the Tactical Command Post and establish a written log of times, actions, events
and personnel at the scene.
The Support Commander (Captain of Special Events Division) shall establish command and control of the inc idem
utilizing the Incident Command System model. Upon Arrival, the Captain of Special Events Division shall act as the
Support Commander and be responsible for coordinating traffic and crowd control on the Outer Perimeter. He/she shall
establish a Support Command Post. The purpose of this Command Post is to provide logistical support, supplies and
equipment needs 10 the Tactical Commander as needed. This command post will be located along the Outer Perimeter.
The Support Commander will be responsible for coordinating actions with the OIC of the affected Precinct/Division in the
event of a need to relieve police personnel on assignments or the holding over of an oFf-going relief to ensure adequate
manpower.
Emergency Operations Plan
GeneraJ Order 10-1

04nonolo

37

The Investigalive Commander (Ranking Supervisor of Major Crimes on the scene) shall be responsible for galhering
background infonnation on the hostage taker(s). hostage(s) and/or barricaded subject(s), direct the interviewing of
witnesses, secure evidence for the prosecution of the suspect(s) and establish a liaison with other law enforcement
agencies as directed by the Tactical Commander.
The OIC of the Public Affairs Unit or designee shall serve as the Public Infonnation Officer and establish a press area for
news media personnel, preferably near the Support Command Post. Access to the press area shall be controlled, ensuring
that only authorized members of the press are admitted. The PIO shall periodically release statements as directed by the
Chief of Police or designee and handle any problems with the Media.
The SWAT Team shall inform the DEC communications officers on the radio channel of the Precinct in which the
situation is occuning that he/she is responding to and his/her approximale Estimaled Time of Anival (ETA) and prepare
and submit an ..Afier Action Report" through channels to the Major of Support Services and Chief of Police or designee
following the situation.
The Hostage Negotiations Team shall be responsible for establishing and maintaining communications with the
banicaded or hostage subject, control all communications with the subject throughout the situation, disseminate any
intelligence thai they gather to the Tactical Command POSI and to the SWAT Team and prepare and submit an "After
Action Report" through channels to the Major of Support Services and Chief of Police or designee following the situation.
The Night SupervisorfPrecinct Commander shall respond and assess the situation to include the immediate supervisor's
decision to activale or not activate a SWAT call oU[ during hostagelbarricaded situations on VCU Property.
In the event of a verified hostage andlor barricaded subject situation on Virginia Commonwealth's University's (VCU)
property (which includes the East campus of the Medical College of Virginia-MCV), the Commander or the OIC for VCU
Police shall notify the Richmond Police Department. Through an agreement with the VCU Campus Police, (he Richmond
Police Department shall assume tOlal command of any hostage and/or barricaded subject situation that may arise on the
campus. Through an agreement with the Virginia Department of Corrections and VCU Campus Police, the Richmond
Police Department shall assume tOlal command of any hostage andlor barricaded subject situation that may arise at the
MCV Prison Ward.

Situations and Assumptions
The following situations and assumptions apply to terrorist planning as they relate to Richmond.
• Richmond is the state's capitol
• Terrorist attacks represent a significant threat to the pUblic. The effects of terrorist attacks include WMD releases,
vehicle bome and suicide bombers, active shooters and snipers, kidnappings, and school attacks
• The City of Richmond, based on its size and available resources, can respond to small scale terrorist events:
however, would be quickly overwhelmed with a large scale altack and require assistance from local. state, and
federal assets to recover.
• The response to a terrorist event would require a coordinated and consolidated response requiring the activation of
the Department's Emergency Management Structure and the opening of the Emergency Operations Center.
Assumptions
• The Department of Homeland Security. the Federal Bureau of Investigation, the Virginia State Police along with
local police department's intelligence systems will be the primary guid>lnce used in the Department planned response
to terrorist evems.
• The department has access to a variety of information sources to gather, analyze, and disseminate imelligence
information for decision making purposes including both secure and unsecured databases, software sharing
programs, conference calls, fusion centers, and the internet.
Emergency Oper::l.lions Plan
Gelleral Order 10.. 1

0412012010

38

• The department will assemble national and regional information and localize it to the City to determine the actions
required based on the threat
• The Department wilJ achieve the appropriate level of planning prior to and during an event to meet the risks and
threats identified.
• There will be multiple target possibility during a terrorist event. Decisions regarding force protection operations
and activating alert procedures will be based on actual or potential threats to the City
• The Department will depend on mutual aid agreements and federal assistance to conduct recovery operations after
the event has occurred
• The National Incident Response Plan and the Department's Emergency Operations Plan will serve as a guiding
resource for the Department's actions and planning
• The Department may be required to call upon non-involved departments to provide assistance in non~traditional
areas of service including logistics, officer rehabilitation, and documentation
• The public should be prepared to respond and make preparations for (he suspension of routine police services for at
least a week after a major terrorist auack
• In the event of a local terrorist attack, the department will coordinate request for assistance through the City's EOC
to the Virginia Department of Emergency Management
• In the event of a local terrorist auack, the Department will employ an lncideOl Management System that expands as
the need arises
• The Department wiU utilize CERT teams to provide assistance to citizens in need of assistance during and after an
auack
• Effort will be made prior (0 terrorist events to identify, procure. and prepare equipment and supplies that may be
needed to response and recover from an attack

Concept of Operations
The following concepts of operation are applied during the management of a terrorist event.
General Concept of Operations
The Department's response to any and all terrorist attacks is coordinated through the emergency operations plan, a
part of the City's overall emergency management organization. The Department has an alert system which facilitates
the coordinntion and integrates police preparation and response during a terrorist event. Additionally, this system
identities the command and control element~ that are executed under a unified command structure. The initial
planning and coordination will occur once a credible threat is received. As the threat increases and becomes more
specific, alert levels will be increased and the [ncident Command Structure expanded to include Command,
Operations, Planning, Finance, and Intelligence Sections. Once the Department has elevated to an Alert Level
Orange. coordination meetings and conference calls will be initiated between other public safety agencies within the
City and other law enforcement partners to ensure a coordinated response to the emergency. Because of the nature of
a terrorist threat, a consolidated response will be required almost immediately.
Coordination between the Police Department, Fire Department. Emergency Medical Services (EMS), and federal
agencies will be required at the scene of any terrorist auack. To best facilitate this coordination, the Incident
Command System (lCS) shall be implememed as outlined in this emergency operations plan (lCSINLMS). An
incident of this magnitude shall require a Unified Command Structure. Special instructions are needed to govern
police operations during such incidents in order to ensure a greater degree of operational effectiveness.
A terrorism incidem requires the response and participation of federal agencies under various federal regulations.
These other agencies may include:
Emergency Operations Plan
General Order 10-1

39

0412012010

-- ---

-------

• Federal Bureau oflnvestigations (FBI).
• The Department of Homeland Security (DHS).
• The Department of Defense (DOD).
• The Department of Energy (DOE).
• The Department of Health and Human Services (DHHS).
• The Environmental Protection Agency (EPA).

.....-

Phases of Emergency Management
Prevention
The Departments Emergency Plan incorporates the principle of prevention. We have a myriad of Department
members [rained in surveillance. threat assessmems. and response to ensure steps are taken to prevent terrorist
attacks. Additionally, we have members assigned to the FBI loim Terrorism Task Force and are active participates in
a variety of intelligence sharing organization. These activities assist us in our efforts to prevent terrorist attacks prior
to them occurring.
Preparedness
The nature of a terrorist attack is nOffilally such that little warning is provided; however, through training, exercises,
and continual vigilance we can be prep<1red to execute a systematic response to a growing threat from terrorism. By
routinely participating in table top and practical exercises, we are better able to address the conditions and t'asks we
face during a terrorist event.
Response
Once it is detennined that a viable threat exist [hat a terrorist auack will occur in Richmond, the Depanment will
enter an Alert Level Red that will include the activation and response of all Department resources, as well as other
state and federal asselS.
Recovery
The Department will face many challenges after the initial aUack is over. The Department will be required to face
post attack activities such as hospital security, crime scene protection, life safety operations, rescue and recovery,
and property protection. Additionally. we must be prepared to face psychological trauma involving citiz.ens. as well
as Department members. Therefore. operational readiness and post attack emergency management must be
maintained during this phase to ensure continuity of operations.

Conditions of Readiness
Response Level Green
No credible risk of a threat to public safety. Routine security is implemented, normal departmental activities.
Normally characterized by planning and exercise activities.
Response Level Blue

Emergency Opemlions Plan
G~neral Order JD-I

0412012010

40

A general risk to public safety with no credible threats to specific targets. Routine security, normal departmental
activities. Review standard operating procedures and emergency plans. Inspect and verify the operational conditions
of needed equipment and supplies. Review and update recall list for all members of the department.
Response Level Yellow
A predictable or significant possibility of a minor threat to public safety. A period of specific action and preparation
anticipating the possibility of increased threat. Actual response will be dictated by credible intelligence developed by
internal sources or received from other law enforcement or security components. Department begins to meet and
coordinate future activities which may be necessary should more information be developed.
Response Level Orange
Information/intelligence indicating that a serious threat to public saFety is imminent. Department mobilization will
begin. A modified Incident Command System will be established and deliberate action to raise the level of proactive
patrols and specially units will begin preparation for upgrading faciJity protection at critical infrastructure locations.
Response Level Red
A major threat to public safety is in progress or has occurred. The Department will be fully mobilized through recall
of selected sworn and essential civilian members. Critical infrastructures will be guarded by deployed personal and a
fully expanded Incident Command System will be in place.

Incident Command Procedures and Structure
The Richmond Police Department endorses the Incident Command System as a basis for Departmental response.
The ICS is an organizational process for the management of emergencies. The management of the Department
during a terrorist threat or actual auack will be built around the ICS structure. AU operational components will utilize
this system in the management of their responsibilities.
The [ncident Commander must recognize the far-reaChing effects of an incident of terrorism and understand that
certain regulations and directives apply. Activation of the Emergency Operations Center (EOC) is critical, and the
Incident Commander must coordinate response, strategy and tactics with the resources the EOC makes available.
With the arrival of at least two agencies with statutory responsibility (i.e. police and fire), a Unified Command
structure should be activated.
The Federal Bureau of Investigations (FBO must be notified immediately of any occurrence of, or a threat of an act
of terrorism. otification may be initiated by contacting members of the Joint Terrorism Task Force (JITF). FBI
response is certain whenever:
I. A credible threat has been made or detected.
2. An explosive device or Weapons of Mass Destruction (WMD) has been discovered.
3. The detonation of an explosive or release of a WMD has occurred, regardless of the extent of injury or damage.
Until such time. the Incident Commander shall ensure the management and control of the incident.
FBI response to terrorism incident, even a minor one requires at least a partial activation of EOC. A major terrorism
incident requires a full activation occur as soon as possible.
Emergency Operations Plan
General Order 10·1

41

0412012010

--------

------

The FBt will operate under Ihe National Response Plan using the procedures of National Incidem Management
System (NtMS) to facilitate Federal·to-Federal interaction and emergency support. Federal assets include:
• US&R - Urban Search and Rescue.
• CST - Civil Support Team (National Guard).
• SNS - Strategic National Stockpile.
• HMRU - Hazardous Materials Response Unit

Operational Periods
The Department will establish operational periods which coincide with the current activities to complement planning
and operations during the threat. Operational periods will be defined and operational objectives clearly established
for each period understanding that should an event occur these plans and period will be fluid and nexible. By
establishing operational periods the Department will be able to consider future operational requirements and identify
and obtain resources needed to complete the mission. By following this model, the Department will be able to
assess the current situation while planning for future events that may occur.
Common Tasks of First Responders to Terrorist Attacks
o Approach

o Be Aware, Alert, and Cautious
o Identify what the threat is
o Ask questions and gather infonnation
o ROUle into the area

o Identify Cover and Concealment

o Identify Choke Points
o Identify Possible threats

o Do not rush into the area

o Take your time and survey the scene

o Provide distance unlilthreat has been identified or cleared
o Watch the whole scene

o Be away of surroundings - look for things out of place
o Be aware of secondary explosive devices
o Be aware of snipers or olher threats
a Control the Scene

o Protect personnel and citizens by establishing protection zones depending on Ihe event
o Alert and warn incoming responders
o Direct and account for incoming units
o Transmit key information to communications and on-duty supervisor
Emergency Ofrerutions Plan
General Order 10-1

0412012010

42

o Assess manpower needs to conrrol the scene and mitigate escalations

o Assess medical needs of responders and victims
o Establish crowd and traffic control to minimize confusion and congestion while
allowing for free access by emergency equipment
o Protect the crime scene and evidence
o Establish Incident Command System until relieved by on-duly supervisor
Specific Tasks for Arriving Supervisors

o Receive size up briefing and assess the situation
o What is the nature of the incident
o What hazards are present

o 00 warnings need to be issued
o How large is the effected area

o What entrance and exit routes would be good for emergency responders

o Where is a good site for the Incident Command Post and Staging
o Identify contingencies

o What could happen
C How will we respond

o Identify needed resources

o What is needed to prevent escalation (Additional personnel, expanded control zones)
C What is needed to meet medical needs

o What is needed in terms of communication
C How long will it take to get them
C Are there special requirements - Bomb Squad, SWAT, HAZMAT

o Build a Plan

o Responsibilities and Task
C Coordination Issues
o Take Action
C Documentation
Department Organization and Responsibilities
I. Response Level Green: No credible risk of a threat to public safety. Romine security is implemented, nonnal
depanmental activities. Normally characterized by planning and exercise activities

2. Response Level Blue: A general risk to public safety with no credible threats to specific targets. Routine security,
normal departmental activities. Review standard operating procedures and emergency plans. Inspect and verify the
operational conditions of needed equipment and supplies. Review and update recall list for all members of the
department.

Emergency Operations Plan
Generul Order 10-1
04/20nOl0

43

3. Response Level Yellow: A predictable or significant possibility of a minor threat to public safety. A period of
specific action and preparation anticipating the possibility of increased threat. Actual response will be dictated by
credible intelligence developed by internal sources or received from other law enforcement or security components.
Department begins to meet and coordinate future activities which may be necessary should more information be
developed

a. Personnel
(I) All facilities will be open with manned checkpoints.

(2) There will be 100 percent ro check.
(3) There will be 100 percent verification of all deliveries, including plain-view search,
(4) All members will be alen for suspicious packages or persons.

b. Facilities
(I) All facilities will open with manned checkpoints.
(2) There will be 100 percen! TO check.
(3) There will be 100 percent verification of all deliveries, including plain-view search.
(4) All members will be alert. for suspicious packages or persons.

c. Operations
(I) On-duty personnel are primarily used.
(2) Limited recall may be required.
(3) Members may be held over.
(4) There may be limited early dismissal of non-essential personnel.
(5) Personnel leave may be authorized.

4. Response Level (Orange): Infonnation/intelligence indicating that a serious threat to public safety is imminent
Depanment mobilization will begin. A modified Incident Command System will be established and deliberate action
to raise the level of proactive patrols and specialty units will begin preparation for upgrading facility protection at
critical infrastructure locations
3.

Personnel

(I) Department personnel will be partially or fully mobilized through recall of selected sworn and essential civilian
members by phone and media.
(2) Members on leave or day off shall contact their command.
(3) Selected sworn civilians may be placed on 12-hour shifts.
(4) Sworn members will be in unifonn (except undercover and other selected members).
(5) Days off will be cancelled.
(6) Optional leave will be suspended.

b. Facilities
(I) All facilities will be open with established controlled access for both members and public.
(2) There will be 100 percent ID check.
(3) Visitors are escorted within police facilities.
(4) Parking and traffic restrictions will be in place around facilities and selected locations.
(5) There will be 100 percent verification of all deliveries, including full content search and escort of vehicles such
as trash pick·up.
(6) All paCkages will be screened.
Emergency Operations Plan
44
General Order 10-1
04120/2010

(7) Mail may be diverted.

c. Operations
(I) Emergency Operations Center (EOC) will be in full operation commanded by a Deputy Chief or designee
(assigned Captain).
(2) Sworn Command members will make hourly contact with the EOC.
(3) All radio frequencies will be staffed and operational 24 hours.
(4) There may be possible activation of prisoner control.
(5) Traffic plan will be adjusted accordingly.
(6) Selected Mobile Tactics Squads will be activated and deployed accordingly.
(7) Sworn members will have emergency equipment readily available.
(8) There will be supplemental security at selected government buildings and other locations as appropriate, as
detennined in conjunction with OEM.
(9) Emergency investigative and forensic plan may be activated.
(10) Emergency dispatching plan activated. if needed.
(I I) There may be acti vation of mutual aid agreement.
(12) Coordination with media will be established.
(13) Contact with OEM and city officials will be established.

5. Response Level (Red): A major threat to public safety is in progress or has occurred. The Department will be fully
mobilized through recall of selected sworn and essential civilian members. Critical infrastructures will be guarded by
deployed personal and a fully expanded Incident Command System will be in place.

a. Personnel
(I) Department personnel will be fully mobilized through recall of selected sworn and essential civilian members by
phone and media sources.
(2) Members on leave or day off shall contact their parent command.
(3) All members will be on 12-hour shifts.
(4) Sworn members will be in Class B unifonn (except plain clothes officers and other selected members).
(5) Annual leave and days off will be cancelled.
(6) Optional leave will be suspended.
(7) Approved leave to be reviewed on a case-by-case basis.

b. Facilities
(I) All facilities will open with established checkpoints.
(2) Access will be reslJicted to authorized personnel and public needing essential police services.
(3) There will be 100 percent ID check and the public will be escorted within police facilities.
(4) There will be parking restrictions around facilities and specific locations, with vehicle traffic passing through
controlled access.
(5) Full content search of all vehicles will take place before vehicles enter parking facilities.
(6) There will be 100 percent verification of all deliveries, including full content search escort
of vehicles such as trash piCk-up.
(7) All packages will be screened.
(8) Mail will be diverted.
c. Operations
Emergency Operntions Plan
Gen~ral Ord~r 10-1

04nonolo

45

(I) The Emergency Operations Center EOC will be in full operation and commanded by 3 Deputy Chief or the
designated Captain.
(2) Sworn Command members will make hourly contact with EOC.
(3) AU radio frequencies will be staffed and operational 24 hours.
(4) There may be activation of prisoner control.
(5) Traffic plan will be adjusted accordingly.
(6) All Mobile Tactics Squads will be fully activated and deployed accordingly.
(7) Sworn members will have emergency equipment readily available.
(8) There will be supplemental security at selected government buildings and other locations as appropriate, as
detennined in conjunction with OEM.
(9) Emergency investigative and forensic plan will be activated.
(10) Emergency dispatching plan will be in operation.
(I I) Activation of federal assets will be requested if needed.
(12) There may be activation of mutual aid agreements.
(13) Coordination with media will be established.
(14) Contact with OEM and city officials will be established.
(15) Court activities and hearings will be suspended as authorized by the Chief Judge.

Tab B: Civil Disturbance Annex
Purpose
Civil disturbances may take many forms and vary in size and degree of danger to the public. Civil disturbances include riots,
disorders, and violence arising from dissident gatherings, rock concens, political conventions, and labor dispUies. Primary
importance in any civil djsturbance is defusing the situation and restoring order. Officers must be able to respond to any civil
disturbance, isolate it from the remainder of the community, protect life and propeny and maintain control. This annex
outlines the Department's direction and control concepts of operations for the coordinmion of a Department response to a civil
disturbance focusing on the utilization of the Emergency Operations Plan and the Department's emergency management
slructure as the basis for the response.

Hazard and Vulnerability Analysis
The following statements define several aspects of the Departmem's vulnerability to civil disturbances:
• The City of Richmond is a target rich environment for anti-war and/or pro-war demonstrators, due to the fact
Richmond is the home of the state's capitol and the 4 th Federal Court of Appeals.
• Richmond hosts a number of festivals and special events that attract large crowds with the polential for civil
disturbances.
• Current training and intelligence reveals that protestors are becoming more proficient in the methods of assembly.
• Current intelligence reveals that demonstrators are becoming more violent In the techniques they employ.

Siluations and Assumptions
The following situations and assumptions apply to civil disturbance planning as tbey relate to Richmond
Emergency Oper:l.tions Plan
General Order 10-1
0412012010

46

• Richmond is home to several large corporations
• Civil dislurbances represenl a significant lhreat 10 me public. The effects of civil disturbance include destruction of
property, looting, fires and bombings, rebar attacks, as well as sling shot attacks,jusl to name a few.
• The City of Richmond based on ilS size and avajlable resources, can respond 10 small moderale scale civil
disturbances; however, could be quickly overwhelmed with a large scale riot and require assistance from local, Slale,
and federal assets to recover.
• The response 10 a civil disturbance would require a coordinated and consolidated response requiring the activation
of the Department's Emergency Management Strucrure and the opening of the Emergency Operations Center
Assumptions
• The primary guidance used in the DepaTlment's planned response to civil disturbance is obtained from the
intelligence gained through the Richmond Police Department's Homeland Securityllntelligence Unit with the
assistance of the FBI, the Joint Terrorism Task Force and the Virginia State Police.
• The departrnem has access (0 a variety of information sources to gather, analyze, and disseminate intelligence
infonnation for decision making purposes including both secure and unsecured dUlabases, software sharing
programs, conference calls. fusion centers, and the inlemet.
• The Department will achieve lhe appropriate level of planning prior to and during an event to meet lhe risks and
threats identi fied.
• The Department will depend on murual aid agreements and federal assistance to conduct recovery operations afler
the event has occurred as necessary.
• The Department's Emergency Operations Plan will serve as a guiding resource for the Department's actions and
planning
• The Department may be required to call upon non~involved departments to provide assistance in
areas of service including logistics, officer rehabilitation, and documentation

non~traditional

• The public should be prepared for Lhe suspension of routine police services as may be necessary until the civil
disrurbance is contained and controlled
• In the event of a civil disturbance, the Department will employ an Incident Management System that expands as the
need arises
• Efforts will be made prior to Ucivil disturbance to identify, procure, and prepare equipment and supplies that may
be needed to respond and recover from an incident of civil disturbance

Concept of Operations
The following concepts of operalion are applied during the management of a civil disturbance.
General Concept of Operations
Emergency Operations Plan
General Order 10-1

04nO/2UIO

47

The Department's response 10 a civil disturbance shall be coordinated lhrough the emergency operations plan, a part
of the City's overall emergency management organization. The Department has an alert system, which facilitat'es the
coordination and integrates police preparation and response to a civil disturbance. Additionally, this system identifies
the command and control elements that are executed under a unified command structure. The initial planning and
coordination will occur once a credible threat is received. As the lhreat increases and becomes more specific, alert
levels will be increased and the Incident Command Structure expanded to include Command, Operations. Planning,
Finance, and Intelligence Sections. Once the Department has elevated to an Alert Level Orange. coordination
meetings and conference calls will be initiated between other public safety agencies within the City and other law
enforcement partners to ensure a coordinated response to the emergency. Because of the nature of a civil disturbance,
a consolidated response will be required almost immediately.

Phases of Emergency Management
Prevention
The Departments Emergency Plan incorporates the principle of prevention. The Department maintains a myriad of
members trained in surveillance, threat assessments, and response to ensure that steps are taken to prevent a civil
disturbance.
Preparedness
The nature of a civil disturbance is nonnally such that warning signs are apparent. Through training, exercises, and
continual vigilance we can be prepared to execute a systematic response to a growing threat of a civil disturbance.
By routinely participating in table top and practical exercises, we are better able to address the conditions and tasks
we face during a civil disturbance and better our response.

Response
Once it is detennined that a viable threat exist that a civil disturbance will occur in Richmond, the Department will
enter an Alert Level Orange that will include the activation and response of all Department resources. Depending on
the size and scope of the disturbance, the department may request assistance of other state and federal resources. The first
officer on the scene of a civil disturbance will immediately request assistance and advise the Division of Emergency
Communic13tions officer of the circumstances of the situation, notify hislher immediate supervisor and if the officer's life is
endangered, he/she will move to a location of relative safety where the disturbance can still be observed and direct the
responding units into the area.
Responding units shall arrive with all due safety, be alert to radio trnnsmlSSlons that indicate a change in the
circumstances, listen for a report of use of weapons by Ihe disorderly crowd. Responding units shalJ also be alert for
directions for a safe entry or exit of the area as well as any instructions given by supervisors who are directing an
organized police response. Officers should be aware of their surroundings as they arrive and keep radio transmissions to a
minimum: only importanl information relevant to the siluation should be communicated to DEC. Police vehicles are to be
secured and protected from damage in a staging area The staging area should be chosen for security and proximity. Keys
shall be removed. windows rolled up, and doors locked. Keys should be turned over 10 the officer in charge of security for
police vehicles.
The first patrol supervisor on the scene should evaluate the circumslances and nOlify the Watch CommanderlPrecinct
Commander of hislher manpower needs and take charge and direct other units to an assembly point. The supervisor shall
remain in charge until formally relieved by a supervisor of higher rank. The Watch CommanderlPrecinct Commander will
Emergency Operations Plan
General Order 10-1
0412012010

48

detennine the nature and duration of the event and will notify the Major of Support Services who shall detennine if the Crowd
Management Team and Mounted Team should be called oul. The supervisor in charge. whenever he/she deems there is
sufficient manpower to overcome resistulCe, should organize available personnel for a coordinated police response to restore
order and make arrests, notify the Watch CommanderlPrecinct Commander and monitor crowd conditions.
All steps necessary to protect officers, citizens and property shall be taken. An outer perimeter will be established to
prevent citizens from entering the area until it is secure. Traffic officers will be utilized to seal off the area 50 [hm innocent
citizens will nO[ inadvertently come into the area. Unifonned officers shall be posted along retail corridOfS to keep vandalism
and 1000ing to a minimum. Only the amount of necessary force needed to effect an arrest should be used. All arrests made
should be predicated on probable cause and be prosecutable cases. Prior to a coordinated police response, the supervisor in
charge shall arrange for adequate transportation to be available to immedimely remove prisoners from the scene.
Arrangements for the utilization of "Mass Arrest" teams.

During nonnal business hours (0800-1700, Monday-Friday), the Commander of the affected Precinct will be notified by
the first supervisor on the scene and has the responsibility to immediately respond to any acts of substantial disorder and
take command of the situation, The Precinct Commander will determine the nature and duration of the event and will
notify the Major of Support Services who shall detennine if the Crowd Management Team and Mounted Team should be
called OU1. The Chief of Police or his designee can initiate the callback of off-duty personnel at his discretion and will
contact all pertinent personnel in the City Administration and advise them of the situation.
During non-business hours (1700-0800, Monday-Friday; Weekends and Holidays). the Watch Commander has the
responsibility to immediately respond to any acts of substantial disorder and take command of the situation. The Warch
Commander has the authority to call whatever on-duty personnel are necessary to restore order and hold over personnel
scheduled to go off-duty. The Watch Commander shall make all necessary notifications, depending on the circumstances.
During weekends and holidays, the on-call Major will be contacted instead of the Chief of Police. The Chief of Police or his
designee can initiate the callback of off-duly personnel at his discretion and will contact all pertinent personnel in the City
Administration and advise them of the situation.

Recovery
The Department will face many challenges after the initial disturbance is over. The Department may be required to
post officers at area hospitals to assist hospital security, crime scene protection, life safely operations, rescue and
recovery. and property protection. Additionally, we must be prepared to face psychological trauma involving
citizens, as well as Departmenlmembers. Therefore, operational readiness and post incident emergency management
must be maintained during this phase 10 ensure continuity of operations.
Conditions of Readiness
Response Level Green

No credible risk of a threat to public safety. Routine security
Nonnally characterized by planning and exercise activities

IS

implemented, nonnal departmental activities.

Response Level Blue
A general risk to public safety with no credible threats 10 specific targets. Routine security, nonnal departmental
activities. Review standard operating procedures and emergency plans. Inspect and verify the operational conditions
of needed equipment and supplies. Review and update recall list for all members of the department.

49

Emergency Operations Plan
Generul Order 10-1
0412012010

-

-

--- -------

Response Level Yellow
A predictable or significant possibility of a minor lhreat to public safety. A period of specific action and preparation
anticipating the possibility of increased threat Actual response will be dictated by credible intelligence developed by
internal sources or received from other law enforcement or security components. Department begins to meet and
coordinate future activities which may be necessary should more infonnation be developed

Response Level Orange
There is infonnationlintelligence indicating that a serious lhreat to public safety is imminent. Department
mobilization will begin. A modified lncident Command System will be established and deliberate aclion to raise the
level of proactive patrols and specialty units will begin preparation for upgrading facility protection at critical
infrastructure locations
Response Level Red
A major threat to public safety is in progress or has occurred. The Department will be fully mobilized through recall
of selected sworn and essential civilian members. Critical infrastructures will be guarded by deployed personnel and
a fully expanded Incidem Command System will be in place.

lncident Command Procedures and Structure
The Richmond Police Department endorses the Incident Command System as a basis for Departmental response.
The ICS is an organizational process for the management of emergencies. The management of the Depmment
during a civil disturbance will be built around lhe ICS structure. All operational components will utilize this system
in the management of their responsibilities.
A civil disturbance or unusual occurrence may, by nature, be a small, easily managed situation involving a minimum
of personnel and resources, or a major disturbance comprised of multiple events/locations. The proper utilization of
police resources for these types of disturbances must be evaluated on a situational basis. The IC should consider
information obtained from all sources to determine the best course of action to be taken to return the City back to
normal operations.
Patrol Response
The first arriving officer shall assume command of the incident as the Incident Commander (IC) until relieved by a
supervisor. Upon arrival at the scene, the supervisor from the appropriate responding command will evaluate the
totalities of circumstances and will assume lhe role of the Incident Commander (lC). as outlined in this emergency
operations plan (lCS/NIMS).

Common Tasks of First Responders to a Civil Disturbance Incident
o Approach

[ Be Aware, Alert. and Cautious

o Identify what the threat is

Emergency Operations P13n
General Order IO~I
04/2012010

50

G Ask questions and gather infonnation
o Route into the area

o Identify Cover and Concealment
o Identify Choke Points

o Identify Possible threats
o Do not rush into the area

o Take your time and survey the scene

o Provide distance until threat has been identified or cleared

o Watch the whole scene
C Be aware of surroundings -look for things out of place
Be aware of snipers or other threats

[i

o Control the Scene
C Protect personnel and citizens by establishing protection zones depending on the event

C Alert and warn incoming responders
C Direct and account for incoming units

C Transmit key information to communications and on·duty supervisor
C Assess manpower needs

10

control the scene and mitigate escalations

o Assess medical needs of responders and victims

o

Establish crowd and traffic control to minimize confusion and congestion while allowing for free access by
emergency equipment
o Protect the crime scene and evidence
C Establish Incident Command System until relieved by on-duty supervisor
o Tramc Direction and Control
C Ensure emergency vehicles are pennilted to move freely to and from the scene
C Vehicles not actively involved in managing the incident are situated so they do not inhibit the access of
emergency personnel and equipment. This may require the rerouting of all non-emergency vehicles around the
vicinity of the scene.
o Divert pedestrians away from the scene to prevent injuries from the demonstrators and not to hinder personnel
working the incident.
C Police personnel may use temporary traffic control devices such as cones and barricades in addition to manual
direction and control of traffic and pedestrians.

Supervisor Response
The first patrol supervisor on the scene shaH establish a command post for the purpose of coordinating and directing
police operations. The IC shall promptly notify the Division of Emergency Communications of the command post
location, The IC shall survey the situation to detennine the following:
Emergency Operations Plan
General Order 10-1
04/20/2010

51

• Specific Tasks for Arriving Supervisors
C Receive size up briefing and assess the situation
C What is the nature of the incident
o What hazards are present
o Do warnings need 10 be issued
o How large is the effected area
o What entrance and exit routes would be good for emergency responders
o Where is a good site for the Incident Command Post and Staging
o Identify contingencies
C What could happen
C How will we respond
o Identify needed resources
C What is needed to prevent escalation (Additional personnel, expanded control zones)

C What is needed

meet medical needs
o What is needed in tenns of communication
o How long will it take to get them
o Are there special requirements - Bomb Squad, SWAT, HAZMAT
[0

o Establish a Plan

o Identify responsibilities and assign tasks
C Coordinate response with participating personnel
o Take Action
C Document effort

The Ie will be responsible for aU personnel and actions taken during the course of the operation. Command may be
lfansferred due 10 the complexity of the disturbance or the incident's duration or to personnel with more technical or
tactical expertise. Command post operations should be employed any time a siluation develops which presents a
threat requiring unconventional police responses.
The IC will establish a suitable location for a command post with considerations given for. but not limited to the
following:
• Communications: Radio, telephone. messenger
• Facilities: Staff operations. briefing and staging. vehicles, equipment storage, medical treatment, electrical
equipment, helicopter operations, proximity to situation, accessibility, etc.
• Security: Public, press. hostiles, equipment
Response Actions

Emergency Opemlions Plan
Gem:ml Order J 0-1
0412012010

52

In supponing the Department's mission, the priority of all personnel shall be to ensure life, safety, property
protection and providing a secure environment Numerous state and city statutes or city adminislrative protocols
provide legal aulhority to assure our mission may be accomplished.
The IC will review intelligence information, assess and determine the appropriate level of response in accordance
with the Richmond Police Department Mobilization Plan to establish an action plan to mitigate the incident.
Personnel should consider the type of disturbance i.e.: peaceful demonstration, a large crowd, or active looting and
riotous action when developing a response action. During all encounters, General Order 1-5 (Use of Force) shall
govern the officer's actions.
Crowd management involves the use of police personnel, primarily on foot, who may utilize personal protective
equipment, weapons and chemical munitions to initiate crowd management tactics for a variety of circumstances
involving crowds. Crowd management tactics can be utilized in circumstances ranging from minor incidents to
riomus behavior. The responsible Incident Commander will assess and detennine the appropriate level of response,
e.g. the decision to deploy personnel in riot equipment.
The City Anomey's Office shall be designated, as lhe City's lead legal advisor and the Office of the Commonwealth
Anomey shall be utilized to assist in the prosecution of criminal offenses. Should an attorney respond from either
office, an officer will be assigned as a Liaison to the Attorney.
Mobile Tactics
The primary mission of the Crowd Management Team is to provide a rapid. high profile response to significant
disturbances or isolated events. Crowd Management teams may be called upon in response 10 looting, lhe rescue
of trapped or downed officers or citizens, terrorist activities, or disturbances caused by large groups of disorderly
persons; especially when these incidents cannot be remedied by conventional police methods. These tactics include
the use of personnel, personal protective equipment, weapons, chemical munitions and vehicles to provide a high
profile response to significant disturbances or isolated incidents. A crowd management team consists of officers who
are specifically trained in crowd management tactics, shield tactics and chemical munitions. A team consists of
twelve officers and one sergeant. Each team is designed to be self-sufficient and may operate independently, or as
part of a platoon.
A Crowd Management Platoon (CMP) is comprised of three or four Crowd Management tcams, and commanded by

a Lieutenant. The concept of a Crowd Management Plaloon (CMP) has as its focus, the ability to provide a high
profile, rapid and organized response to significant disturbances/problem locations. 10 effectively address the
problem and then return to a stand-by-mode. CMT's staffing, command and control. training and equipment is
designed to provide an effective response to looting, rescue of trapped or "downed" officers or citizens, clearing of
hotel balconies and roofs. and disturbances caused by large groups of disorderly people who cannot be safely
addressed by available resources.
The decision to commit Crowd Management Unit.. will rest with the Incident Commander. The CMT Commander
will detennine. based on infonnation received, the number of squads to deploy. Upon arrival at the scene, the CMT
Commander will make a full assessment of the situation, request additional squads or platoons as needed. and plan
the tactics to be utilized.
After Action Review (AAR)
Once Ihe incident has concluded, the IC will debrief the event wilh the appropriate personnel and the IC or
Emergency Operations Plan
General Order 10-1
O4flOOOIO

S3

In supporting (he Department's mISSion, the priority of all personnel shall be to ensure life, safely, propeny
protection and providing a secure environment. Numerous state and city statutes or city administrative protocols
provide legal authority to assure our mission may be accomplished.
The IC will review intelligence information, assess and detennine the appropriate level of response in accordance
with the Richmond Police Department Mobilization Plan to establish an action plan to mitigate the incident.
Personnel should consider the type of disturbance i.e.: peaceful demonstration, a large crowd. or active looting and
riotous action when developing a response action. During all encounters, General Order 1-5 (Use of Force) shall
govern the officer's actions.
Crowd management involves the use of police personnel, primarily on foot, who may utilize personal protective
equipment, weapons and chemical munitions to initiate crowd management tactics for a variety of circumstances
involving crowds. Crowd management tactics can be utilized in circumstances ranging from minor incidents to
riotous behavior. The responsible Incident Commander will assess and det'ennine the appropriate level of response,
e.g. the decision to deploy personnel in riot equipment.
The City Attorney's Office shall be designated, as the City's lead legal advisor and the Office of the Commonwealth
Attorney shall be utilized to assist in the prosecution of criminal offenses. Should an attorney respond from either
office, an officer will be assigned as a Liaison to the Attorney.
Mobile Tactics
The primary mission of the Crowd Management Team is to provide a rapid, high profile response to significant
disturbances or isolated events. Crowd Management teams may be called upon in response to looting, the rescue
of trapped or downed officers or citizens, terrorist activities. or disturbances caused by large groups of disorderly
persons; especially when these incidents cannOl be remedied by conventional police methods. These tactics include
the use of personnel, personal protective equipment, weapons, chemical munitions and vehicles to provide a high
profile response to significant disturbances or isolated incidents. A crowd management team consists of officers who
are specifically trained in crowd management tactics, shield tactics and chemical munitions. A team consists of
twelve officers and one sergeant. Each team is designed to be self-sufficient and may operate independently, or as
part of a platoon.
A Crowd Management Platoon (CMP) is comprised of three or four Crowd Management teams, and commanded by
a Lieutenant. The concept of a Crowd Management Platoon (CMP) has as its focus, tbe ability to provide a high
profile, rapid and organized response to significant disturbances/problem locations, 10 effectively address the
problem and then return to a stand·by-mode. CMT's staffing, command and control, training and equipment is
designed to provide an effective response to looting. rescue of trapped or "downed" officers or citizens, clearing of
hOiel balconies and roofs. and disturbances caused by large groups of disorderly people who cannot be safely
addressed by available resources.
The decision (0 commit Crowd Management Units will rest with the Incident Commander. The CMT Commander
will detennine. based on infonnation received, the number of squads to deploy. Upon arrival at the scene, the CMT
Commander will make a full assessment of the situation, request addilional squads or platoons as needed. and plan
the tactics to be utilized.
After Action Review (AAR)
Once the incident has concluded, the IC will debrief the event with the appropriate personnel and the IC or
Emergency Operations Plan
General Order J 0- J
04120/2010

53

his designee will submit an After Action Report, which will document problems encountered, uammg needs
identified and any other pertinent information associated with the operation. An After Action Report shall be
maintained in accordance with the Richmond Police Department emergency operations plan (lCS/NlMS) and shall
document the following as applicable:
a. Synopsis of incident.
b. Resources/equipment required.
c. Strategies/tactics employed.
d. Evaluation.
e. Injuries/deaths susmined by participating agencies.
f. Roster/man-hours expended.
g. Index of use of force incidents
h. Evidence collection at the scene should be considered in preparation of this report
i. Public Information Releases.

Tab C: Correctional Center Disturbance Annex
Purpose
This annex outlines the Department's direction and control concepts of operations for the coordination of a
Department response to correctional center disturbances, focusing on the utilization of the Emergency Operations
Plan and the Department's emergency managemenl SlfUcture as the basis for the response.
Hazard and Vulnerability Analysis
The following statements define several aspects of the Department's vulnerability:
- Correctional center disturbances and riols are happening more frequently.
• Correctional center disturbances and riots are destructive and violent in nature. Most incidents are broughl about by
unpredictable behavior of inmates.
- Correctional center disturbances and riots have been connected to one or more of the following factors:
I.
2.
3.
4.
5.

6. Staff brutality
Shortage of staff
Overcrowding
7. Lack of programs
Lack of training
8. Lack of medical aid
Corruption
9. Lack of education
Lack of Consistent Policies 10. Poor food quality

II. Poor grievance policy
12. Poor communications
13. Staff turnovers
14. Racial tension
15. Drastic changes in policy

-Inmate demands in past riots have addressed many of these factors.

Situations and Assumptions
The following situations and assumptions apply to correctional center disturbance planning as it relates
Emergency Operations Plan
General Order 10-1

041200010

10

Richmond.

54

•

• The American Correctional Association defines RiolS. Disturbances and incidents in the following manner:
o Riot: When a significant number of inmates control a significant portion of the facility for a significant time
period.
o Disturbance: A step down from rial because there are fewer inmates involved, and there is no control or minimal
contTol of a portion of the facility by inmates.
o Incident: A step down from a disturbance because only a few inmates are involved and there is no conlrol of a
ponico of the facility for any period of time by the inmates.
• An "unusual occurrence" will be defined as an emergency situation requiring more services, manpower, or
equipment than is available (0 the Sheriffs Office at the Richmond City Jail.

• Richmond City Jail routinely houses an over-capacity of inmates at any given time.
• The response to a serious correctional disturbance may require a coordinated and consolidated response requiring
the activation of the Department's Emergence Management Structure and me opening of the Emergency Operations
Center
Assumptions
• The Department will achieve the <l:ppropriate level of plannjng prior to and during an event to meet the risks and
threats identified.

• The Department's Emergency Operations Plan will serve as a guiding resource for the Department's actions and
planning
• The Department may be required to call upon non-involved departments to provide assistance in non-traditional
areas of service including logistics, officer rehabilitation, and documentation
• The lead-agency for a correctional center disturbance shall be the Richmond Sheriffs Office.
• Richmond Police Department personnel will assist the Sheriffs Department.
• In the event of a correctional center disturbance, the Department will employ an Incident Management System.
Concept of Operations
The following concepts of opermion are applied during me management of an unusual occurrence such as a
correctional center disturbance.
• General Concept of Operations
The Department's response to a disturbance at the correctional center(s) will be coordinated through the emergency
operations plan, a part of the City's overall emergency management organization. The Department has an alert
system, which facilitates the coordination and integrates police preparation and response during an unusual
occurrence. Additionally, this system identifies the command and control elements that are executed under a unified
Emergency Operations Plan
Generol Order 10-1
0412012010

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