Emergency Operations Centers Contributors: Roger Attanasio, LS3P Gus Aretakis, LS3P Roy Selvidge, LS3P Katherine Ball, LS3P Jennifer Dillon, LS3P Robert Howell, Newcomb & Boyd H. David Chandler, Newcomb & Boyd
Emergency Operations Centers Abstract
variety of functions and projected occupancies; a weather event
An Emergency Operations Center (EOC) serves as a secure
of limited severity and duration may require a smaller staff than a
location for decision making and communication in the event of an
major hurricane. Adaptable spaces which can scale up or down
emergency. Most often used by government entities (local, state,
to support changing staff sizes will be the most useful over time.
or national) or corporations, the EOC is a critical facility supporting
Movable walls, multifunctional spaces, and careful consideration
disaster response. The purpose of this white paper is to identify and
of IT access and infrastructure will allow quick changes in program
evaluate best practices for EOC design.
function.
Background
SUSTAINABLITY
An EOC’s primary function is to provide a dedicated, secure space to
The EOC must be able to function 24/7 without interruption.
create a command center for planning and communication during an
Resilient design strategies help an EOC safely weather challenging
emergency such as a natural disaster, terrorist attack, public health
environmental conditions while maintaining accessibility for staff
crisis, or civil unrest. Facilities must be accessible, durable, secure,
and continuous power through the use of auxiliary systems.
and resilient; typical program spaces include areas for meeting and
Passive solar design strategies help to minimize energy loads
communication with enhanced information technology infrastructure.
and reduce the drain on generators. Rainwater collection systems could be designed to store fresh water in case of major catastrophes in which the public water supply may need to be shut
Key Elements of EOC Design To function effectively as a command center, the design of an EOC must address the key elements of flexibility, sustainability, security, survivability, and interoperability. FLEXIBILITY Flexible layouts with adjustable partitions and movable furnishings will accommodate a range of scenarios. The EOC must support a
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off. SECURITY The EOC must protect personnel from any outside threats or hazards, allowing them to focus on strategy, decision making, and communication. Access must be limited and tightly controlled, and the flow of information must be secure. Security cameras should be positioned at predetermined locations to enable those inside the facility to observe what is happening at entry points and around the facility at all times.
The federal government has developed Anti-Terrorism Force
INTEROPERABILITY
Protection (ATFP) standards which must be incorporated into
Continuous connectivity is critical for EOC functions. IT
the designs for buildings on military installations. Many of these
infrastructure must be robust, secure, and flexible to maintain
standards will be applicable to EOC design as well for building
the real-time flow of information between entities, both within the
hardening and security.
command center and at other locations. Communications systems must also support real-time communication with the public in order
SURVIVABILITY
to disseminate vital public safety information in an emergency.
The building must be hardened against natural or manmade hazards so that it may operate continuously even under sustained disaster scenarios. Blast hardening measures include bollards and
SITE CONSIDERATIONS
screens to shield generators and other critical MEP equipment, strategic high performance glazing to resist windborne debris or projectiles, durable construction materials such as concrete, and careful attention to detailing for roofs and openings. Survivability applies to support elements as well as the building itself, and strategies must consider the long-term food, water, and sewer requirements of the people who will operate the building including showers and sleeping facilities. Some facilities include onsite water and sewer storage tanks. The placement of critical building services is also important for
A successful EOC design begins with careful site selection. Critical variables include: PROXIMITY TO NECESSARY OFFICIALS The EOC must be easily reachable by critical personnel. Site selection must take into account not only proximity, but also topography and routes of travel to avoid potential flood-prone roads, closed bridges, and other travel hazards.
security and survivability. Building systems such as mechanical
CENTRAL LOCATION
units and emergency generators which are typically located on
A central location will provide maximum access not only for
the exterior may be vulnerable to sabotage, rendering the EOC
personnel, but also the media, deliveries, or others who may need
ineffective in the event of an attack. These elements should be
access to the facility.
located inside the building envelope or otherwise secured where possible.
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NON-CONGESTED AREA The location should be central, but should avoid areas which
DESIGN CONSIDERATIONS
may be congested at rush hour or are located within government buildings already serving other critical functions.
BUILDING ORIENTATION FOR PASSIVE SOLAR & DAYLIGHTING
SITE DESIGN TO MINIMIZE FLOODING ISSUES
Buildings should be oriented to maximize passive solar design
Careful attention to site design will be particularly important in low-
strategies to the greatest extent possible. In the Southeast of the
lying or hurricane-prone areas. In a hurricane event, waters may
US, optimal orientation is the long side of the building aligned within
reach unprecedented heights with little warning, and even areas
15 degrees of the east/west axis. Proper building orientation can
with no history of flooding may be vulnerable. Proper site elevations
minimize solar heat gain in summer while allowing sunlight into
and drainage systems are critical, and designs must also take into
the building in winter and allow for year-round daylighting. These
account that drains may be potentially obstructed by debris or
elements will reduce the building’s energy requirements, minimizing
overwhelmed with stormwater from other sites.
the burden on generators if the building loses power and increase building survivability for occupants in the event of HVAC failure.
When designing storm drainage systems, it should be noted that in many cases, current FEMA or flood plain data are already obsolete.
STRATEGIC / LIMITED WINDOWS
Storm drainage design must incorporate future anticipated
Though windows are important for daylighting and ventilation,
development which will result in more impervious area, meaning that flood elevations are likely to be higher than currently predicted. Citywide storm drainage systems are based off of 100-year flood predictions; however, these events are growing far more frequent, particularly in coastal locations. The high stormwater capacity required for critical facilities is proving challenging in light of city drainage capacity which is often calculated according to outdated codes. For this reason, site location could be selected by relative elevation, highest capacity city drainage systems, and/or access to overflow runoff.
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they must be strategically sized and located. Smaller windows are less vulnerable to flying debris and security threats. Designers will need to consider the placement of critical program areas, possibly locating these in windowless interior spaces for additional security. Another suggestion is to provide impact-rated glazing. Tinted windows can reduce heat gain while allowing daylighting. SCREENS FOR WINDOWS AND MEP EQUIPMENT Windows and any exterior MEP infrastructure should be screened to protect against windborne debris or tampering. Strategically
placed louvers can minimize the threat from airborne missile
MEDIA SPACE
impact. Screening, if used, needs to be coordinated with overall
Depending on the size of the facility, members of the media may
wind pressure design. Screening not rated to wind pressure design
also have dedicated office and meeting areas to support emergency
creates the possibility for more windborne debris.
communications to the community. A media room would require internet access and other digital infrastructure for real-time
PROGRAM SPACES
communications. ADMINISTRATIVE OFFICES
SECURE ENTRY VESTIBULE Entry to the facility should be through a secure entry vestibule that
Typical office space will be needed for support staff and for those who may occupy the building year-round.
allows staff to verify identity of the visitor before allowing them access to the building. The vestibule often includes bullet resistant glass and systems that allow staff to buzz people into the vestibule, then into the facility once identity is confirmed. OPERATIONS ROOM
SUPPORT SPACE As officials may need to occupy the building round the clock for days or weeks during an emergency, the building should include shower facilities, restrooms, food preparation and storage areas, break rooms, and sleeping areas.
The operations room serves as a command center for personnel processing information and formulating responses. Infrastructure may include large format screens for map and data display,
CONSTRUCTION SYSTEMS
computer workstations, and meeting space for collaborative analysis and decision making. COMMUNICATIONS ROOM
STRUCTURE The structural system of the building should be designed to withstand potential natural disasters such as a Category 5
The communications room may be separate from the operations
hurricane. ASCE 7-16 wind loading requirements should be used
room, and will require a dedicated secure communications area to
as the MINIMUM design, but requirements are potentially higher for
establish and safeguard communications with officials outside the
survivability in a Category 5 hurricane.
building for a coordinated response.
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ASCE 7-16 wind loading or higher may be a substantial change
SECURITY SYSTEMS
to the structural systems compared to current building code
In the event of civil unrest, the EOC needs to be resilient
requirements and would need to be part of the initial design phases
against human sabotage. Bollards or landscape features can be
for proper coordination.
implemented to minimize risk of vehicular damage to the building. Access control systems and CCTV systems should be integral to
Some geographic locations will need to include potential seismic
the design.
design considerations for structural design as well. EXISTING STANDARDS ENVELOPE
Additional details for Anti-Terrorism Force Protection (ATFP)
The envelope should be durable and energy efficient with blast
design can be found in the “Unified Facilities Criteria (UFC)DoD
resistant design. Windows should have impact-resistant tinted
Minimum Antiterrorism Standards for Buildings” document. FEMA
glazing, hurricane shutters/window screens, and operable
guidelines for hurricane and tornado resistant design can be found
windows to allow the building to remain habitable in the event
in the “FEMA P-361, Safe Rooms for Tornadoes and Hurricanes:
of a prolonged power outage. Doors should follow FEMA
Guidance for Community and Residential Safe Rooms, Third Edition
recommendations.
(2015)” document.
ROOF SYSTEMS Puncture and tear resistance should be a primary goal in
MEP SYSTEMS
selecting a roofing membrane. Single-ply roofs can include fiber reinforcement to greatly increase tear and puncture resistance.
CRITICAL INFRASTRUCTURE
Roofing systems will need to be designed specifically for each
Mechanical and other critical infrastructure components should
project. Wind loading, square footage, building elevation, and
be placed in a secure location inside the building envelope or
proximity to the coast all affect the calculation of wind pressures.
protected in an equipment yard and elevated above potential
Whether fully adhered or mechanically fastened, roofing systems
floodwaters. The walls or fencing surrounding the equipment yard
must be tested to meet design pressure requirements set forth in
should be designed to protect the equipment from airborne missile
structural loading.
impact or tampering. Consider adding a screen lid over the yard for further protection. Special care should be taken to provide reliable
As a standard, roof parapets should be a minimum of three feet tall
systems with built-in redundancy so that the facility can continue to
to minimize corner uplift pressures in roofing systems.
operate should a component fail during an event.
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EMERGENCY GENERATOR The emergency generators should be in a hardened room or
CASE STUDIES
protected enclosed yard with a covering. Codes dictate the minimum quantity of fuel that should be stored. An emergency
New Hanover Emergency Operations Center, BOD for EOC:
operations center may need more fuel storage than code minimum
The New Hanover County Government Complex currently in
in order to be effective in extreme cases. Additional fuel tankers
design in Wilmington, NC, will provide office space, an Emergency
could be delivered to the site prior to an emergency as another
Operations Center and the 911 Center for New Hanover County.
option. Underground natural gas-powered generators may be a
Featuring a new 100,000 SF office building designed for resilience,
viable alternative, but these also have limitations based on the
the full build-out will eventually be a mixed-used development with
ability of the gas lines to remain intact during a natural disaster,
multi-family housing and retail. The mix of tilt-up and conventional
such as a seismic event.
construction is durable and economical, with strategies such as tinted impact-resistant glass and screening to protect mechanical
CHILLED WATER SYSTEMS
systems from windborne debris during a storm.
If chilled water systems are used, consider using air-cooled chillers than can maintain operation during prolonged domestic water service interruptions. Provide valves and flanged connections for portable chillers in the event the primary systems are rendered inoperable. ROOFTOP EQUIPMENT Rooftop equipment should be avoided where possible. Mechanical curbs and supports for exhaust fans or other rooftop equipment must be designed to withstand high wind speeds. Cable tie downs to roof davits could be an effective tool to prevent equipment from becoming windborne debris. LOAD SHEDDING STRATEGY Emergency electrical circuits may be prioritized for load shedding in the event of an extended power outage to conserve fuel.
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New Hanover County Government Center
The structural tilt-up concrete panels (9 ¼”) and concrete roof
Securing Critical Facilities During Emergencies:
systems are designed to withstand a Category 5 wind speed of 156
Resilient Hospital Study
mph sustained, 190 mph 3-second gusts. The roof design meets
Climate change is causing bigger, stronger and more frequent
FM4470 & ANSI/SPRI/FM 4435/ES-1 standards. The envelope
storms than ever before. Healthcare facilities, particularly those in
includes hurricane shutters for all openings, and all exterior glass is
coastal areas, are among the most vulnerable typologies in terms
impact rated, with frames meeting Miami-Dade wind loads. Glass
of safeguarding patients and facilities at all acuity levels while
is limited to 50 SF punched windows with FEMA 361 attributes and
maintaining access during an emergency.
tinted impact glass. Impact rated glazing is heavier than standard glazing, so all exterior doors have 6 points of connection, with three
During Hurricane Florence, Wilmington was isolated from
hinge points and three latching points as recommended by FEMA.
surrounding areas for over a week. With the city effectively an island due to flooding, the only way out was by boat or helicopter. In the wake of this disaster, a large regional healthcare system commissioned an in-depth study on resilient hospital design. Its purpose was to better understand inherent challenges and opportunities and to explore innovative concepts to inform future design and construction. The study explores what it means to design and build coastal resilient healthcare facilities not just in NC, but in coastal and low-lying communities everywhere.
New Hanover Government Center
MEP The MEP design provides redundant energy systems. The emergency generator and ground-mounted mechanical equipment will be housed in a secured, reinforced concrete masonry mechanical yard covered with a steel screen that will protect the generator and chillers from windborne debris impacts. Fail-safe, external connections will be provided for portable generators that can supply power in case the backup generator fails. All emergency equipment is located above the 500’ flood plain.
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Conceptual Design of Hurricane Resilient Hospital
In high performance sustainable design, every building element
In addition to being impact resistant, the façade doubles as a key
must serve multiple purposes. In the case of this resilient hospital
strategy for energy performance, identity, and patient experience.
concept, elements that support a more resilient building also create
The perforated screen functions in various configurations
energy efficiency and a better patient experience. Strategies for
supporting green roofs, fritted glazing, recessed glazing, and R-40
hardening the structure and maintaining emergency access in severe
wall construction depending on location. The screens also support
weather included perforated metal panels, which protect the building
privacy, control glare, provide a connection to nature, and eliminate
from projectiles up to 200 MPH while allowing filtered natural light
the need for blinds.
into the patient spaces; nonessential spaces positioned at lower levels with patient floors elevated above potential flood levels; a
In terms of patient experience, the concept incorporates biophilic
rooftop solar array which allows the building to operate if the power
design principles to establish views and connections to nature.
grid goes down; three entry points at ground level, the second-story
From the initial approach to the building, the design reduces patient
bridge, and the helipad; and greatly reduced energy loads, which
stress through native year-round LID landscaping, sheltered exterior
allow the building to operate much longer on solar power than a
spaces, uninhibited views in and out of the building, soft edges, and
typical hospital could. High performance, right-sized mechanical
a beautiful façade for visual interest. Patient rooms are designed
systems are located on a protected floor instead of exposed on a
for optimal efficiency for providers and better healing for patients.
rooftop. The resulting concept allows 50% more natural light and
The building form supports the necessary choreographed rigidity
reduces energy use by 50% over a typical hospital design.
for critical spaces while allowing flexibility and creative massing in public, communal, and patient support spaces. This holistic approach to resilient design creates the potential for better places for healing, safer access during disasters, and better building performance both in significant weather events and for year-round use. Additional Emergency Operations Center Work by LS3P Bluffton Law Enforcement Center Bluffton, SC Bob Jones University Renovation for Public Safety & Risk Management
Hurricane Resilient Hospital Program Study
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Greenville, SC
Georgia State University Public Safety Building Statesboro, GA Marie Davis High School Public Safety Charlotte, NC Moore County Government and Public Safety Center Carthage, NC Emercency Service Center Fort Jackson Fort Jackson, SC Heritage High School Emergency Center Wake Forest, NC NCEES Call Center Renovation Greenville, SC Wilmington Police Headquarters Wilmington, NC Immigrations & Customs Enforcement Facility Cary, NC Town of Kiawah Island Municipal Complex Kiawah Island, SC Hardeeville Municipal Complex Hardeeville, SC Gaston County Health Department Renovations Study Gastonia, NC Von Braun Complex III Redstone Arsenal, AL 3rd Army ARCENT Headquarters Complex Shaw Air Force Base, SC 75th Ranger Regimental Headquarters Addition Fort Benning, GA
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Special Operations Forces Battalion Headquarters/Company Operations Building Fort Bragg, NC M-1 Training Facility Conversion Fort Fisher, NC Fort Fisher Building 116 Fort Fisher, NC Confidential National Energy Client - Multiple Operations Centers (New Construction, Additions, Renovations) Cliffside, NC; Charlotte, NC; Toddville, NC; Anderson, SC; Travelers Rest, SC; Greenville, SC; Fort Mill, SC; Spindale, NC; Rural Hall, NC; Matthews, NC; Spruce Pine, NC; Wilmington, NC; Robbinsville, NC; Hendersonville, NC; North Wilkesboro, NC; Gastonia, NC; Elkin, NC; Clemmons, NC; Mooresville, NC; Asheville, NC