3.1. PurposeThe Maine Emergency Operations Plan (EOP) outlines the state's comprehensive approach to emergency management, integrating the efforts of federal, tribal, state, local, non-governmental, and private-sector partners. This plan is grounded on the premise that all incidents begin and are managed at the local level. Counties and municipal agencies are responsible for directing on-scene responders and using their resources first, before requesting assistance from the state. The Governor's intent for the safety and well-being of Maine's citizens guides the state's response, which the Maine Emergency Management Agency (MEMA) coordinates. The Maine Revised Statute, Title 37-B, establishes the Governor's authority for emergency and disaster operations. This authority has been delegated to the MEMA Director to activate and terminate this plan. The state can respond to county requests for assistance with available resources even without a formal declaration of a state of emergency, though such a declaration grants the Governor special powers and releases all state resources. The Concept of Operations section describes the sequence and scope of this planned response, focusing on a National Incident Management System (NIMS)-based framework to facilitate effective command and control, resource management, and information dissemination. The Governor directs the performance of emergency functions through the regularly constituted government structure. Heads of departments and agencies retain control over their employees and equipment and are responsible for developing the necessary plans to fulfill their specific response roles. All efforts support the following priorities:
The framework is a living document, subject to continuous improvement through training, exercises, and after-action reviews following real-world events. Its effectiveness relies on the readiness and collaborative partnership of all stakeholders to ensure a swift and unified response to any emergency. 3.2. Plan ActivationMEMA will activate this plan when an emergency or disaster occurs or is imminent, or when:
3.3. Relationship to Other State Emergency PlansThe state’s responsibility in a disaster is to save lives and property by coordinating all state, federal, and private sector efforts to support, not usurp, local operations. With the exceptions noted below, MEMA is the lead state agency for accomplishing this mission, and the State responds in accordance with this plan. Depending on the nature and location of the emergency, local and federal plans may apply. The following agencies lead responses to specific incidents:
The State EOP is also supported by the following specialized plans that detail additional aspects of emergency management in the State of Maine:
3.4. Operational PrioritiesSpecial consideration is given to the following priorities when conducting emergency operations:
3.5. Whole Community ConceptThe State of Maine is committed to the Whole Community Concept, which recognizes that state government alone cannot manage a modern-day emergency or disaster. Effective emergency management requires active engagement and collaboration from all stakeholders, including government agencies at all levels, private sector businesses, non-profit organizations, community groups, and the public. This plan emphasizes a collaborative approach to planning, preparedness, response, and recovery, ensuring that the diverse needs and resources of the entire community are integrated into all aspects of emergency operations. This State EOP accounts for the following:
The State works to strengthen partnerships and build community resilience by focusing on several key areas.
3.6. Tiered Government Response3.6.1. County and Municipal Government ResponseThe county and municipal governments act as the first line of defense in an emergency. Their immediate actions and responsibilities include operating according to their respective EOPs and activating pre-established mutual aid agreements with other municipalities and counties. The governing bodies can implement their EOPs unilaterally, at the recommendation of the MEMA Director, or upon a state of emergency declaration by the Governor. Municipal governments use all available resources to protect against and respond to an emergency. If municipal resources are insufficient, they can request additional assistance from the county's Emergency Management Agency or Emergency Operations Center. Similarly, if county resources are inadequate, they can seek help from MEMA or the SEOC once activated. All county and municipal governments must maintain accurate records and reporting capabilities as state and federal laws require. 3.6.2. State Government ResponseThe state government supplements local efforts and can be activated by the Governor or the MEMA Director. Immediate actions include the Governor issuing a proclamation of a state of emergency, which allows for the full deployment of all state personnel and resources. The MEMA Director can also activate the plan for the immediate protection of life and property if a disaster is imminent and there is not enough time for a gubernatorial proclamation. The MEMA Director, when the Governor delegates, can assume direct operational control of emergency functions. The Governor exercises direction and control through the MEMA Director and the SEOC. In specific incidents, the responsible state agency will assume direct operational control (e.g., Maine State Police for terrorist incidents, Department of Inland Fisheries and Wildlife for search and rescue). The state also utilizes several key frameworks and agreements:
During a large-scale event, the SEOC can activate a Logistical Staging Area to receive and organize resources. The state also begins initial recovery planning before an event impacts the state. The Governor appoints a State Coordinating Officer (SCO), normally the MEMA Director, to manage the information flow and coordination of all state recovery programs. 3.6.3. Federal Government ResponseFederal assistance supplements state, county, and local efforts when a disaster exceeds their combined capabilities. This aid is provided under governing laws and requires a request from the Governor. Key components of the federal government response include:
3.6.4. Tribal Emergency DeclarationsA federally recognized tribal government may declare that a state of emergency exists for the tribe. A tribal state of emergency allows the tribal government to enact emergency procedures to carry out activities to minimize, respond to, or recover from an emergency. Tribal governments may seek a proclamation from the governor declaring a state of emergency by providing a written certification to the Office of the Governor that the tribal government has expended all local resources and the status of a preliminary assessment of property damage or loss, injuries, and deaths. When requesting federal assistance through the Stafford Act, the Sandy Recovery Improvement Act (SRIA) of 2013 included a provision amending the Stafford Act to provide federally recognized Indian tribal governments the option to seek Stafford Act assistance independently of a state or through a state declaration. 3.7. State Emergency Operations Center (SEOC) Information ManagementThe SEOC is the state's coordination center for emergency events that require state assets, resources, and services. It is the central location where decision-makers and emergency management staff assemble to manage an emergency, ensuring a timely response and avoiding duplication of effort.
The SEOC activation procedure is a tiered process that escalates based on the severity of an incident. The MEMA Director primarily holds the authority to activate the SEOC. The process begins with a "State EOC Posture Determination Call" involving MEMA leadership and the Duty Officer to determine if the situation warrants an elevated response. There are four levels of activation:
After the determination, a series of calls, including a "State EOC Staff Posture Brief" and a "State EOC Response Activation Call,” brief all relevant agencies and partners on the situation and coordinate the response. MEMA has identified alternate locations for the SEOC should the primary location become inoperable. These alternate locations are detailed in the MEMA Continuity of Operations Plan (COOP). 3.7.1. Information Management and Common Operational PictureInformation management during an emergency response provides a common operating picture to responders both within and outside the SEOC. A common operating picture allows all responders to have the same information about an incident, enabling supporting agencies and organizations to make effective, consistent, and timely decisions. To develop and maintain a common operating picture, the SEOC Manager requires routine reports and briefing materials that document details about resources committed to the emergency; the status of Community Lifelines; and activities planned and achieved to stabilize or re-establish Community Lifelines during each operational period. All ERT members, non-governmental organizations, and private sector entities will provide incident information to the SEOC Planning Section based on the reporting period the SEOC Manager establishes. Affected tribes will be requested to provide information coordinated through the Regional Liaisons. When the SEOC is activated, ERT members evaluate and document the status of each subcomponent to determine the overall condition of impacted Community Lifelines. County Emergency Management Agencies and the Tribal Liaisons gather information from private-sector organizations and county municipalities. The SEOC Planning Section compiles the status of Community Lifelines into a situational update brief. The SEOC Manager is responsible for establishing the operational period during SEOC activations. For each operational period, the SEOC Planning Section will distribute planning products (e.g., Incident Action Plan (IAP), Situation Reports, or Community Lifeline Leadership briefs) via WebEOC and email to recipients the SEOC Manager specifies. The SEOC Planning Section will also coordinate aspects of Geographic Information System (GIS) data, tools, and mapping applications that display the extent of the event and distribute that appropriately to response partners for situational awareness. Within the SEOC Planning Section, the GIS unit creates relevant GIS products to inform SEOC staff, agency representatives, and response partners of impacts from the event. This includes extracts of data, groups for sharing content, printed maps, online mapping applications, and data collection solutions. Response partner products are provided via email or another selected distribution mechanism from the section as necessary for situational awareness. The Maine Information and Analysis Center, located within the Department of Public Safety, shares incident-specific unclassified intelligence products for incorporation into the Common Operating Picture during an SEOC activation. 3.8. Demobilization and Transition to Recovery3.8.1. DemobilizationThis phase is conducted in a methodical and phased manner, based on the determination that deployed assets are no longer necessary for the achievement of operational objectives. The primary goals of this process are to ensure resource accountability, facilitate the efficient return of personnel and equipment to their home jurisdictions or agencies, and provide for the restoration of resources to their pre-event status. Key actions during demobilization include:
3.8.2. Transition to RecoveryThe transition encompasses a shift in the SEOC's mission from executing immediate response tactics to coordinating and facilitating long-term recovery efforts. Transition activities apply primarily to members of Maine’s Emergency Response Team and Disaster Recovery Team identified in Gubernatorial Executive Order 2015-004. It also applies to other agencies, commissions, authorities, and boards of the Executive Branch of Maine State Government, as needed. Key actions of this transition phase include:
3.9 Public Information3.9.1. Alerts and WarningsMEMA is the Federal Emergency Management Agency’s (FEMA) Integrated Public Alert and Warning System alerting authority for the state. This system allows for the distribution of emergency messages through multiple channels. MEMA works in conjunction with Maine Public Broadcasting to issue and disseminate Emergency Alert System alerts through a variety of systems, including television and radio broadcasts and Wireless Emergency Alerts for mobile phones. The responsibility for issuing emergency alerts rests primarily with county jurisdictions. However, if a local government is unable to send a notification, a request may be made to MEMA to transmit the alert on their behalf. The SEOC is equipped with multiple redundant communication networks to ensure continuous operations and the effective distribution of emergency messages. Individual systems are discussed in Section 5, Communications. Public alerts and warnings must be accessible to the entire community. This requires providing information in multiple formats to accommodate individuals with disabilities, access and functional needs, and those with limited English proficiency. All public alerts, warnings, and emergency information will be disseminated through channels that meet Americans with Disabilities Act (ADA) standards, including but not limited to closed captioning for video, text-to-speech for alerts, and accessible documents. 3.9.2. Media RelationsDuring an emergency, the MEMA Director determines the lead Public Information Officer (PIO) agency based on the nature of the incident. The Governor's Director of Communications holds overall authority for public information and media relations in an emergency. However, MEMA is responsible for carrying out public information and media relations activities in all phases of emergencies. When the Director of Communications is on scene, he or she may assume the function of the PIO. When the Governor’s Director of Communications is not present, the senior MEMA Public Information Specialist functions as the PIO. The PIO advises senior policy officials, including the Governor, on emergency communications priorities and key messages and ensures that all Emergency Public Information functions are carried out. MEMA staff assist the PIO and access information from all agencies involved in the response as well as other sources, as needed. MEMA Director determines the establishment of a Joint Information Center (JIC) based on the scale and complexity of the emergency. When activated, the JIC may include representatives of each jurisdiction, agency, private sector, and non-governmental organization involved in incident management activities. The JIC serves as a centralized location for coordinating public information among multiple response organizations, including federal, local, and private-sector partners. The JIC provides the media and public with a consolidated summary of the situation and the response activities being undertaken. The JIC Manager reports to the lead PIO. The JIC will use social media platforms as a critical tool for disseminating timely information and gathering intelligence from the public. MEMA and partner agencies will use official accounts to broadcast alerts, warnings, situation updates, and protective actions. These channels will also be monitored to gauge public sentiment, identify emerging needs, and correct misinformation. A designated social media team, as part of the JIC, will manage all content to ensure it is consistent with approved messaging and accessible to the public. Maine 2-1-1 functions as the primary Help Line for the JIC. Maine 2-1-1 is a statewide social service referral agency. A group of trained telephone operators takes calls from the general public 24 hours a day, 7 days a week. In a widespread emergency, Maine 2-1-1 can provide information to the general public and gather information from the public, as needed and requested. Information in Maine 2-1-1’s databases can also be accessed online. The PIO serves as the primary spokesperson and is the main conduit for information to the media and public. A primary broadcast spokesperson is designated on a case-by-case basis for each emergency. The PIO, the MEMA Director, or the Commissioner of the Department of Defense, Veterans, and Emergency Management/Adjutant General often serves as the spokesperson. Other trained members of the Public Information staff can answer routine media queries but will defer complex or sensitive issues to the spokesperson. In an emergency that requires particular expertise, the principal spokesperson may be designated from the department that is the seat of that expertise. In all cases, the principal spokesperson is supported by technical experts who can answer questions relating to a particular aspect of the response. 3.10. Resource Management and AllocationIn accordance with NIMS principles, the State of Maine's resource management framework encompasses the application of tools, processes, and systems that facilitate the effective allocation of resources to support operations throughout the emergency lifecycle. The comprehensive allocation process involves identifying, acquiring, distributing, and tracking all assets. All coordination activities related to resource management are centralized within the SEOC. The SEOC, leveraging a multi-agency coordination approach, performs the following responsibilities:
If all county resources become committed, assistance will first be requested from surrounding jurisdictions. Pre-established cross-jurisdictional agreements ensure the efficient and effective movement of nearby resources to communities in need. Where feasible, counties are expected to execute proactive agreements with organizations, including volunteer organizations, for the use of emergency resources. Counties are also encouraged to establish pre-existing contracts, purchasing agreements, and other arrangements with private-sector vendors, volunteer agencies, and other anticipated resource providers that can be activated during a disaster emergency. When state-level or federal assistance is required, the SEOC will coordinate resource requests to external partners such as FEMA, EMAC, and IEMAC. 3.10.1. County and Municipal GovernmentsCounties and municipal governments, operating through their County Emergency Management agencies, Incident Management Assistance Teams, or other organizations, are responsible for managing emergency resources at county incident sites, with management responsibilities varying based on incident size, duration, and complexity. Counties should submit requests for state-level resources through the SEOC and must notify the SEOC of any large-scale emergency to alert them of a potential need for state-level resources. 3.10.2. State GovernmentThe SEOC is responsible for the overall management and accountability of state-level emergency resources committed to county incidents. Through its Logistics and Operations Sections, in coordination with county emergency management agencies, the SEOC receives requests for additional resources, manages resource demobilization, and monitors the status of all uncommitted resources. The SEOC Logistics and Finance Sections are responsible for documenting resource costs and procurements, and they will collaborate with other state agencies to document all costs incurred that may be recoverable under a declared disaster. The SEOC Operations Section is designated to adjudicate competing requests for scarce resources and determine allocation priorities. 3.10.3. Resource Request and Fulfillment ProcessThe SEOC manages and fulfills resource requests that exceed county-level capabilities. The generation and fulfillment of these requests follows a multi-step protocol designed to ensure maximum efficiency and accountability. Preceding any formal request, the requesting entity must confirm that all county-level resources are exhausted. Requests for specific matériel, such as generators or cots, are subject to special considerations, including the prerequisite coordination with a certified electrician for installation or the verification of a duly executed agreement form by the recipient. Upon receipt, all requests are administered via the WebEOC platform. The Logistics Section receives approved requests, and if sourcing is granted, the SEOC determines if the asset is available from internal inventory. If not, sourcing expands to include other state agencies, existing Memoranda of Understanding (MOUs), and external compacts such as EMAC and IEMAC. The Finance and Administration sections coordinate procurements from private vendors to ensure adherence to established emergency purchasing protocols. Throughout the process, the WebEOC record must be updated with all pertinent data. 3.10.4. Federal Resource Request and FulfillmentThe SEOC administers the process for requesting federal support, with primary coordination from the External FEMA Liaison Officer (LNO). A resource request is submitted into WebEOC, assigned to the LNO, and followed up on via electronic or verbal communication. The LNO and SEOC collaborate to complete the FEMA Resource Request Form. During this process, a strategic imperative is to articulate the requested assistance as a capability gap rather than a specific resource, which provides greater flexibility in fulfillment. Upon completion, a State Approving Official signs the Resource Request Form. In the absence of a designated FEMA LNO, the SEOC completes Sections I and II of the RRF and transmits it directly to the FEMA Region 1 Regional Resource Coordination Center (RRCC). All federal requests are formally categorized as either Lifesaving or Life Sustaining. Lifesaving operations are defined as urgent actions required to prevent the loss of human life. Conversely, Life Sustaining operations encompass the provision of food, water, and shelter and extend throughout the entire incident lifecycle. 3.11. Continuity of OperationsThe purpose of the state's Continuity of Operations (COOP) planning is to ensure the continued performance of essential government functions during all emergencies or threats. This plan outlines strategies and procedures for minimizing service disruption, with a focus on protecting life, critical information, and equipment. It establishes key components such as alternate operating facilities, lines of succession for leadership, and procedures for safeguarding vital records and systems. Jurisdictions must be prepared to continue their minimum essential functions throughout the spectrum of possible threats from natural disasters through acts of terrorism. COOP planning facilitates the performance of state and local government and services during an emergency that may disrupt normal operations. It is also important that local businesses and other community organizations are prepared and encouraged to have their own COOP plans. MEMA maintains a separate COOP Plan that may be referenced for additional information regarding COOP operations. 3.11.1. Lines of SuccessionIn an emergency or disaster, particularly in heavily populated areas, confusion can occur. Some personnel who are in positions of responsibility may be unable to respond or take actions. Therefore, all levels of government will take the necessary actions to ensure continuity of operations. It is the statutory responsibility of heads of government at all levels to ensure that they can continue government operations following an emergency or disaster.
The standard succession for Maine State Agencies is the Commissioner or otherwise titled head of a state agency, as state statute prescribes. If the Commissioner is not available during an emergency, the Deputy Commissioner will assume his or her responsibilities. Each agency will establish a line of succession below the deputy level and make this information available in the agency's COOP plan. |
EOP NAVIGATIONEOP Update Home Page Annex A: Risk Register
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