1. City of Newport News EOP FA 21
April 2014 Page 1
Functional Annex 21
Refuge of Last Resort
Primary Agency: Divisionof EmergencyManagement
Support Agencies: Police Department,Fire Department,CityManager’sCommunicationsGroup (PIO
and 311 Call Center),911 Communications
Purpose
The purpose of the Refuge orLast ResortFunctional Annex 21isto act as a guide foridentifyingand
selectingpotential location,publicorprivate, tobe usedas a Refuge of LastResort(ROLR). Thisannex
will alsomarshal the implementationof ROLRselectionand the properactivation anddeactivation of
ROLRs. The purpose of a ROLR is to provide aconvenientsaferlocation forperson(s) caughtina
hazardousenvironment,particularlyevacuees.
Scope and Applicability
Duringan all-hazardsincident,circumstancesandconditionsmaynecessitatethe Cityof NewportNews
to openROLRS.ROLRs have beenidentifiedanddesignatedatselectlocationsandwill be disclosedto
the publicat the time of an emergencyby EmergencySupportFunction(ESF) 15– External Affairs
(PublicInformationOfficer(PIO)orhis/herdesignee). Thisannex will be usedpriortothe needfor
activationof a ROLR throughthe identification,selection,andimplementationsections.Throughthis
annex ROLRswill be activatedinthe eventof animpactingincidentduringwhichevacuationsare still in
progressandevacueesare caught inthe hazardousenvironment.
Definition
Refuge of Last Resort(ROLR):A refuge of lastresortservesasa last meansof providingarelativelysafer
area of refuge fromimmediate incident/eventimpactsuntil itissafe to re-locate.Theyprovideno
shelterservicestothose seekingrefuge andare notintendedasanalternative toconventional
evacuationandsheltering.The use of a refuge of lastresortisstrictlyto accommodate anyperson(s)
strandedduringevacuationfor the imminentand/orimmediatehazardousconditions.Uponthe
cessationof these hazardousconditionsthe refuge of lastresort will be terminatedasalocationfor
refuge.
Refugesof lastresortare onlytemporary,theyare expectedforthe shorttermto provide shelterfrom
an immediate hazardousenvironmentandare notequipped,norexpected,tosupportevacueesinany
longtermsituation.
Planning Assumption
ROLR locationsare not inhighhazard areas.
o Floodzone,surge zone,etc.
2. City of Newport News EOP FA 21
April 2014 Page 2
The City of Newport Newswillhave astandingMemorandumof Agreementwithevery privately
owned ROLRlocation.
No serviceswill be providedbythe Cityof NewportNewsata ROLR location
Roles and Responsibilities
The Rolesand Responsibilitiesforthe activationof aROLR will includethe agenciesandpersonnel of the
Cityof NewportNewsandwill includethose privateindividuals whoare operatingthe ROLRand those
seekingrefugeinthe ROLR.
EmergencyManagement
Will provide trainingandproperpaperworkforthe establishment
o Trainingwill includehowtoproperlyprepare the buildingfora hurricane,how toactivate
the buildingasa ROLR, andhow to maintainthe ROLRduringitsactivation.
o Paperworkwill include recordkeepingmaterial andwaiversforentrantsto sign.
Will give advancedwarningtothe buildingownerof pendingactivation.
Will ensure the deactivationof aROLR and vacatingof entrantsfromthe premisesafterthe
cessationof the hazardous environment.
Will provide transportationforevacueeswhose original transportationhasbecome wrecked.This
transportationwill be toa saferlocation,suchasa shelter,andwill be executedthroughthe same
meansas seenon pg. FA 18-1 and FA 18-2 of the NewportNewsEOP.
City Manager’sCommunicationsGroup (PIOand 311 Call Center)
Aidinthe communicationof ROLRactivationandlocationstothe public
911 Communications
Aidinthe communicationof ROLRactivationandlocationstothe public
Fire Department
Respondtoemergenciesatthe ROLR locations.
Police Department
Aidinthe communicationof ROLRactivationandlocationstothe public.
RespondtoemergenciesatROLR locations.
Possiblyaidinthe deactivationof ROLRlocations.
The ROLR Location Owner/Refuge Manager
The owneris expectedtoensure thattheirpremisesare readytobe activatedasa ROLR once they
receive priorwarningof itspendingactivationforanimpendingincident.
Ensuringthe buildingisinordertoproperlyandsafelysecure evacuees.
o There are a propernumberof workingbathroomsforthe maximumoccupancy.
3. City of Newport News EOP FA 21
April 2014 Page 3
o There isno damage or disrepairtothe buildingthatcouldpose a threatto the buildings
structural integrity.
Ensuringeitherthemselvesoratherebydesignatedonsite managerwill be presenttoopenand
activate theirROLR.
The ownerof the ROLR will be protectedunderVirginiaCode §44-146.23, ImmunityfromLiability,
so longas there isno compensationreceivedfortheiractivationof theirpremisesasa ROLR.
No personwill be turnedawayunlessthe ROLRhasmetits maximumcapacity.
No personwill be forcedtoleave the premisesforanyreasonotherthantheyhave disobeyedthe
no alcohol,firearms,orillegal substancesrule ortheypose asignificantrisktootherstakingrefuge
or the refuge itself.
Anyuse of the structure afterthe deactivationof the premisesasaROLR by NewportNews
personnel isfullyuponthe responsibilityof the owner.
Entrants
Anyevacuee choosingtotake refuge inaROLR mustsigna waiverupontheirentrance.
There isa policyof noalcohol,firearms,orillegalsubstanceswithinthe ROLR
Vacatingof the premisesbythe entrantswillbeginimmediatelyuponthe deactivationof the ROLR.
Entrants mustbringtheirownfood,water,provisions,medicalsupplies,andbeddingthattheymay
need.
Concept of Operation
IdentificationandSelectionof ROLR Locations
ROLR Necessities
o The structure isNOT locatedinthe surge zone or floodingzone
o The structure isADA compliant
o The structure hasproperrestroomfacilitiesformenandwomen
o Available parkingtomeetthe intendedcapacityof the shelter,includingADA designated
spaces
o There isa standing MOA withthe facilityif nota jurisdiction-owned/operatedstructure
o Must have an on-site managerduringitsactivation.
o The facilityhascleaningandjanitorial suppliesonsite tosupportthe capacityof the shelter
ROLR Structural and Locational Determinants
o Buildings whichshowsignsof neglectordisrepair,inthe opinionof the structural engineer,
shouldbe excludedaspotential refuges.
o Buildingswhichappearnottohave receivedattentionfromprofessional architectsand
engineersshouldbe excludedaspotential refuges.
o Buildingmusthave the propersteel andmasonryconstructionwithlimitedwindow surfaces
to withstandhighwindsanddebris.
o Buildingmusthave secure internalspace toproperlyprotectoccupants
4. City of Newport News EOP FA 21
April 2014 Page 4
o Buildingslocatednearmajorevacuationroutes(within0.5milesisoptimal,with1mile
maximumdistance asseeninAttachmentA) butnotlocatedinfloodorstorm surge zones,
or adjacentto drainage areas(creeks,rivers,canals).
o The locationshouldnotbe near anytall treesor towerswhichcouldfall onthe refuge
Whento Activate a Refuge of Last Resort
A ROLR will be activatedduringthe time inwhichevacuationisstill inprogressand/orthere are
evacueescaughtwithoutshelter.
There isor will be an environmentthatisimmediately hazardousenvironment.
A ROLR shouldbe activatedpriortothe hazardousenvironmenttoensure evacueescanreachthe
locationina saferenvironment.
The activationshouldnotbe made publicexcessivelypriortothe hazardous environmentsoto
avoidan assumeduse asa shelter.
These are merelyguidelinesandthusthe decisiontoactivate anyROLRwill ultimatelybe uptothe
discretionof the local EOC.
Where to Activate a Refuge of Last Resort
Locationsthat are notin disrepairandstill retaintheirstructural integrity.
The properminimumrequirementsof aROLR are still intactat the site.
The locationowneror therebydesignatedrefuge managerof the refuge isonsite.
How to Activate a Refuge of Last Resort
Informthe owneror therebydesignatedrefuge managerof the potentialuse of theirpremisesasa
ROLR once evacuationshave begun.
Keepinformedonthe refuge manager’sabilitytoopenthe refuge.
Ensure a ROLR isoperating
Informthe publicof ROLR locationsandactivation
o Use of local radio broadcasts
o IPAWS(IntegratedPublicAlert&WarningSystem)
o Emergency andgovernmental personnel
o Anyothermeansas determinedthroughthe NewportNewsEOPsectionFA3
How to Deactivate a Refuge of Last Resort
Emergencyor governmentalpersonnelwilldeactivate the locationasaROLR in persononthe
premises.
o Theywill ensure thatthe entrantsproperlyvacate andcontinue theirevacuation.
o Will determineanyassistance requiredinevacuatingorprovidingmedical care tothe
entrants.
o Theywill confirmthe locationisfullyclosedunderthe purpose asa ROLR.
Liabilities
The City of NewportNews
o BuildingandPremisesDamages
5. City of Newport News EOP FA 21
April 2014 Page 5
The City of NewportNewswillnotbe heldliableforanydamagesthatmay occur to
the buildingandpremisesdesignatedasa refuge of lastresortprior,during,and
afteritsactivation.
o Entrants Damages
The City of NewportNewsholdsnoliabilityforanyinjuriesordamagesthatmay
occur to any person(s) orpropertyusingarefuge of lastresort.Those that use a
refuge of lastresortwithinthe Cityof NewportNewsdosowiththe understanding
that theythemselvesare responsible forthe safetyof theirpersonandproperty.
Thisresponsibilityisforeverpresentfromthe momenttheyenterthe premisesto
the momenttheyleave the premises.
o Structural Soundness
The City of NewportNewsdoesnotholdthe dutytoinspectthe buildingsorenforce
any buildingcodesdesignedtomake the buildingssafe foruse asa refuge.
The SelectedRefugesof LastResort
o BuildingandPremisesDamages
The buildingownerisliableforanydamagestotheirbuildingandpremisespriorto,
during,andafterits activationasa refuge of lastresort.
o Evacuee Damages
The buildingownerdoesnotholdliabilityforthose damagestopersonal property,
injuries,ordeathtothose whochoose to use the refuge of lastresort.Thisliabilityis
takenuponby those whoresortto takingrefuge inthese locations.
o Structural Soundness
Upon notice thata structure will be usedasa refuge,the ownerholdsthe dutyto
warn potential entrants,suchasthe City of NewportNews,of any knownor
potential dangers.The buildingownerretainstheirdutytoinspecttheirpremises
for dangerousconditionsandtokeeptheirbuildinguptogovernmental and
regulatorystandards.
Disclaimer
The City of NewportNewsandthe premisesownerholdno liabilityforanyinjuries,damages,or
deathsthat mayoccur to anyperson(s) orpropertychoosingtouse a refuge of lastresort.Those
that choose to use a refuge of lastresortwithinthe Cityof NewportNewsdosowiththe
understandingthattheythemselvesare responsible forthe safetyof theirpersonandproperty.
Thisresponsibilityisforeverpresentfromthe momentthe evacuee movestowardthe use of a
refuge of lastresort,throughtheirstayin the refuge,andintotheircontinuedevacuationfrom
the area. The refuge of lastresortis a meansof assistingthose caughtinthe hazardous
environmentwhile evacuatingandbynomeanswill these structuresbe consideredortreated
as shelters. Itisunderstoodthatthe refuge of lastresortisnot up to the same standardsand
regulationof ashelterandas such holdsa higherriskforthose personsandpropertychoosing
to use a refuge of lastresort.
6. City of Newport News EOP FA 21
April 2014 Page 6
Appendix A – ROLR Locations
LocationName Address City,State,ZipCode PublicorPrivate
DeerPark Elementary
School
11541 JeffersonAve NewportNews,VA,
23601
Public
GreenwoodElementary 13640 Woodside Lane NewportNews,VA,
23608
Public
Lee Hall Elementary
School
17346 Warwick
Boulevard
NewportNews,VA,
23603
Public
SaundersElementary
School
853 HarpersvilleRoad NewportNews,VA,
23607
Public
