5.1. Overview

Ontario's ministries and other provincial organizations respond to emergencies on a regular basis. These provincial organizations work directly with impacted individuals, communities, and other organizations/entities outside the government to accomplish their response tasks. Often, the involvement of the Government of Ontario is limited to a small number of provincial organizations, and there is no need for a dedicated coordinating organization.

Some emergencies are large, complex, or impact a number of jurisdictions. In these cases, there is a need for a coordinated response from the many provincial organizations that are responding. The provincial emergency response organization (provincial ERO) is the organization that is formed during multi-jurisdictional emergencies to conduct Ontario's coordinated response.

The provincial ERO is made up of all of the provincial organizations that are actively involved in an emergency response operation. The specific organizations that are active in the provincial ERO can vary, depending on the requirements of the emergency.

The Provincial Emergency Operations Centre (PEOC) is the central coordinating hub of the provincial ERO.

Other components of the provincial ERO connect to the PEOC as needed in order to facilitate provision of the appropriate services. In this way, the organization is flexible and adaptable to the needs of the current situation and all hazards.

All Ontario government ministries and agencies/boards/commissions are also considered part of the provincial ERO. These organizations connect to the PEOC as needed in order to ensure coordinated provision of support to the emergency response operation, including sharing information, resources or coordination support, generally through a staff liaison.

Strategic leadership of the provincial ERO is the responsibility of elected and appointed government officials, including the Lieutenant Governor in Council (LGIC), the Premier, The Cabinet Committee on Emergency Management, the Solicitor General, and the Commissioner of Emergency Management.

5.2. The Incident Management System

The provincial ERO is made up of many organizations with separate reporting and operational structures. Ontario therefore uses the Incident Management System (IMS) to give organizations a common framework so they can cooperate, communicate and coordinate their work during an incident.

IMS is a standardized and coordinated approach to managing incidents that provides a functional interoperability at all levels of emergency management. Organizational structures include the provisions for common response functions, including but not limited to: Command & Coordination, Operations, Planning, Logistics, Finance and Administration, and Public Information.

IMS includes guidance for all aspects of coordinating a response including but not limited to:

  • Support to the site or overall incident response.
  • Coordination of incident response efforts.
  • Command of response efforts.
  • Communication.

IMS is the established provincial system and is used by the PEOC. The Ontario IMS is described in the document "Incident Management System for Ontario".

5.3. Organizational chart

The basic structure established for the response to an emergency that requires the coordination of activities between multiple provincial organizations is illustrated in Figure 5-1. What is shown is the primary lines of communication and coordination for a multi-jurisdictional response. Each organization will make additional connections with other organizations as required by the needs of the emergency.

The depiction below is not a command and control structure. The PEOC does not direct the operations of the other provincial ministries, involved municipalities, or any other organizations involved in a response.

Figure 5-1
Figure 5-1: Provincial ERO Organizational Chart | Accessible description of Figure 5-1 | View full size

5.4. Provincial oversight

5.4.1. Lieutenant Governor in Council and Premier

The LGIC and the Premier of Ontario provide overall direction to the management of the emergency response during an emergency that requires provincial support. The LGIC is also responsible for making provincial declarations of emergency and emergency orders as described in Section 6.6.3. In urgent situations the Premier can make a provincial declaration of emergency and make orders immediately.

Each provincial ministry receives overall direction from the LGIC through its respective minister. The lines of reporting vary between ministries.

5.4.2. Cabinet Committee on Emergency Management

The Cabinet Committee on Emergency Management (CCEM) works in conjunction with the Premier's Office, Cabinet Office, other affected ministries and the Chief of Emergency Management Ontario (Chief, EMO) to ensure the continued operations and constitutional governance in Ontario in the event of emergencies that could affect Ontario – regionally or provincially.

The Committee's main roles and responsibilities during an emergency can be summarized as follows:

  • Develop the overall provincial emergency management response strategy of the Government of Ontario.
  • Conduct high-level briefings and discussions of strategic issues with appropriate ministries.
  • Ensure strategic issues management.
  • Ensure the continuity of critical government operations and services.

5.4.3. Government reporting chain

During an emergency involving a multi-jurisdictional response by the provincial ERO, individual ministries and other provincial organizations are responsible for briefing to, and receiving direction from, their own ministers through their regular reporting processes. This includes reports to the CCEM by permanent or temporary member ministries, as required.

The Solicitor General acts as the link from the PEOC to the CCEM. The chain of command and communication proceeds as follows:

  1. Solicitor General.
  2. Deputy Solicitor General, Community Safety.
  3. Commissioner of Emergency Managementfootnote 13.
  4. Chief, EMO.

5.4.4. Commissioner of Emergency Management

The Commissioner of Emergency Management is appointed by the LGIC under the Emergency Management and Civil Protection Act (EMCPA). The Commissioner of Emergency Management may be delegated powers under section 7.0.4(1) of the EMCPA. For more details on powers under the EMCPA, see Section 6.6.3.3.

The Commissioner of Emergency Management provides a link between the Chief, EMO, and the Deputy Solicitor General, Community Safety.

5.4.5. Chief of Emergency Management Ontario

During an emergency, the Chief, EMO is responsible for acting as the link between the Commissioner of Emergency Management and the PEOC.

Additionally, the Chief, EMO is responsible for overseeing the continuing operations of the PEOC. Through the PEOC, the Chief, EMO is responsible for:

  • Monitoring and assessing potential and/or actual emergency situations.
  • Implementing the Provincial Emergency Response Plan (PERP) when the situation warrants.
  • Coordinating response activities between provincial Organizations where required.
  • Coordinate with ministries' responses to emergencies that require continuity of provincial government services.
  • Operating the PEOC continuously at the appropriate level to maintain effective operations.
  • Maintaining a 24/7 contact point for receiving reports and requests for assistance.
  • Notifying provincial officials when a serious community emergency situation is reported or declared, or if a request for assistance is received. Includes but is not limited to: Ministry Emergency Management Coordinators, and, through the Commissioner of Emergency Management, the Deputy Solicitor General Community Safety, the Solicitor General, the Premier, and the provincial Cabinet.
  • Notify communities that may be affected by a serious emergency situation that is reported or declared to the PEOC.
  • Liaising with community officials to offer advice, assistance and obtain information on an on-going basis.
  • Briefing senior provincial officials (through the Commissioner of Emergency Management, the Deputy Solicitor General Community Safety, the Solicitor General, the Premier, and the provincial Cabinet) whenever there is a significant change in the emergency situation.
  • Working with other ministries to coordinate the deployment of provincial staff to perform liaison and other response tasks.
  • Maintaining liaison on an ongoing basis with federal departments and institutions, other provinces and contiguous states for the purpose of planning and sharing information and resources for emergency response.
  • Providing situation reports and making recommendations to the Commissioner of Emergency Management.

5.5. The Provincial Emergency Operations Centre

5.5.1. Role of the Provincial Emergency Operations Centre

The Provincial Emergency Operations Centre (PEOC) is the central coordinator of the provincial ERO. The PEOC is physically located in Toronto, with an alternate location in Hamilton.

It serves five core functions:

  • Provides 24/7 continuous monitoring of ongoing emergencies in the province, as well as situations that have the potential to result in an emergency.
  • Provides a physical location and specialized resources to facilitate inter-organizational coordination efforts.
  • Facilitates the sharing of key information, to support decision-makers and provincial resources in evolving situations as effectively as possible.
  • Receives requests for provincial assistance and coordinates the provision of assistance with other provincial ministries and from the federal government.
  • Maintains 24/7 capability to operate the Alert Ready wireless public alerting system on behalf of communities and provincial organizations in Ontario. Refer to Section 6.3 for more details on public alerting.

The PEOC is responsible for the overarching coordination of the provincial response, based on the strategic direction received through the government reporting chain (Section 5.4.3). The PEOC, in return, provides timely support, information and analysis to the leadership of the provincial government to assist in strategic planning.

While the PEOC is responsible for the overarching coordination of the response to an emergency, some ministries are required to have emergency response plans in respect of types of emergencies assigned to them under OIC 1157/2009. The role of the PEOC within this structure is to mitigate duplication of effort amongst responding organizations and promote collaboration to ensure issues are identified, managed or triaged effectively between the lead ministry and the PEOC. In this manner, the PEOC operates as the central provincial coordination body, focusing on broader coordination issues outside of the scope of the lead ministry.

5.5.2. Provincial Emergency Operations Centre staffing and operations

The Chief, EMO, through the Office of the Fire Marshal and Emergency Management (OFMEM), is responsible for operating the PEOC. In order to effectively coordinate provincial emergency response operations, the OFMEM shall:

  • Formulate, update, and maintain procedures for operating the PEOC.
  • Equip, test and maintain the appropriate technological and telecommunications systems in the PEOC to support effective communications and information management.
  • Schedule an appropriate complement of staff to work in the PEOC (as dictated by the scope of the emergency), and ensure that sufficient surge capacity exists to respond to large and complex emergencies, including provision for 24/7 staffing.

The PEOC is led by the PEOC Commander, and is organized into sections that reflect Ontario's Incident Management System. For further details on PEOC sections, see Appendix F.

Provincial ministries, federal departments, and other organizations (such as non-governmental organizations) may be requested to provide representatives to the PEOC. The OFMEM is responsible for ensuring that these representatives receive appropriate training on the PEOC procedures.

5.6. Ministry emergency operations centres and ministry action groups

During the response to and recovery from an emergency, ministries may activate their ministry emergency operations centre (MEOC) under the direction of their ministry action group, as required. They carry out ministry responsibilities and direct and coordinate ministry actions (including those of their regional/area offices covering the affected area) according to the PERP and their ministry's emergency plan(s).

Ministries will define the specific make-up of their MEOC but should ensure that the core functions of Ontario's IMS are met.

All ministries should maintain procedures to augment staffing levels in their own EOCs, as well as for any other capabilities.

Under Ontario Regulation (O. Reg.) 380/04, the ministry action group may "at any time seek the advice and assistance of the following:

  1. Officials or employees of any ministry.
  2. Officials or employees of any other level of government who are involved in emergency management.
  3. Representatives of organizations outside government who are involved in emergency management.
  4. Persons representing industries that may be involved in emergency management." O. Reg. 380/04, s. 3 (10).

5.7. Federal government

5.7.1. Government Operations Centre

The Government Operations Centre (GOC) is an interdepartmental asset of the Government of Canada, housed within Public Safety Canada, that coordinates federal activities at the national whole-of-government level, including coordination of activities in support of the PEOC, when required. It provides a common location for subject matter experts and Liaison Officers from Federal/Provincial/Territorial government departments and non-governmental organizations can gather to perform the primary functions related to the Federal Emergency Response Management Systemfootnote 14.

The GOC may request federal departments send Federal Liaison Officers to attend the GOC based on the requirements of the response. Federal Liaison Officers serve as the link between the GOC and their home institution. They provide knowledge of their home institution including roles, responsibilities, mandates and plans. They are also responsible for briefing their home institution on developments related to the incident.

5.7.2. Department-specific operations centres

Federal government department-specific operations centres support their departmental roles and mandates and contribute to the integrated Government of Canada response through the GOC.

Some provincial ministries may have established working arrangements with their federal counterparts through, these departmental operations centres, in the event of an emergency.

5.7.3. The Federal Coordination Centre and Public Safety Canada – Ontario Region

Federal government emergency response and recovery activities in Ontario are managed by the Public Safety Canada Regional Office through the Federal Coordination Group. This is distinguished from the GOC, as the Federal Coordination Group focuses on activities within Ontario, and the GOC focuses on the whole federal government.

The Federal Coordination Group is chaired by Public Safety Canada's (PS) Ontario Regional Director and is supported by the PS Ontario Regional Office.

The purpose of the Federal Coordination Group is to:

  • Facilitate federal coordination.
  • Provide the space and capacity for executive federal officials to assess an incident.
  • Plan the overall strategy of federal actions in response and recovery.
  • Receive strategic guidance and direction from senior/executive level decision makers via the GOC.

The Federal Coordination Group becomes the single point of contact between the PEOC and federal government operations during a major response within Ontario.

While it is preferred that the PEOC directly link with the Public Safety Regional Director/Office, in a rapidly evolving situation requiring urgent coordination, the PEOC may directly contact the GOC. The PEOC shall ensure that the PS Regional Director/Office is kept informed of communications with the GOC.

The PS Ontario Regional Office will, when required, send a Federal Liaison Officer to the PEOC. The Federal Liaison Officer should make reports at PEOC briefings on behalf of all federal departments.

5.7.4. Indigenous Services Canada

The Province of Ontario, through the PEOC, provides emergency response assistance to First Nation communities through an agreement with the Government of Canada, as administered by Indigenous Services Canada (ISC). ISC is the federal government department responsible for working with First Nations and the Province of Ontario on emergency management issues.

During an emergency, ISC provides advice and emergency assistance services within its mandate as requested by the affected province or territory. This is outlined in the ISC Emergency Management Assistance Programfootnote 15.

In the event of property or critical infrastructure damage on-reserve, ISC works with the band Chief and Council to assess the situation, determine the most effective way to repair damage and ensure ongoing program and service delivery to the community. ISC remains in contact with the First Nation until the situation has been thoroughly assessed and addressed.

5.7.5. Joint Task Force Central

The OFMEM and the PEOC maintain a close relationship with Joint Task Force Central (JTFC). JTFC is responsible for domestic military operations in Ontario. JTFC headquarters provides direct access to the Department of National Defence Headquarters and the Canadian Armed Forces.

For information on requesting federal resources, refer to Section 6.7.3 \(requests for out-of-province assistance) and Section 6.8.2 (coordination of federal assistance).

5.8. Municipal emergency operations centres and emergency control groups

The organization of the municipal structure for undertaking emergency response operations should be set out in municipal emergency response plans. This organizational structure may include but is not limited to the following centres, as required:

  • Municipal emergency operation centre
    • A facility where the municipal emergency control group (MECG) may assemble to manage an emergency. It must have appropriate technological and telecommunications systems to ensure effective communication in an emergency. Ontario Regulation 380/04 sets out the requirements for municipalities to have an EOC.
  • Reception centrefootnote 16
    • Reception centres are normally located outside the area of the emergency. They are a physical space to which evacuees can go to register, receive assistance for basic needs, information and referral to a shelter if required.
  • Evacuee centre
    • A facility to provide shelter, food and other emergency social services to a group of people who have been evacuated from an area.
  • Emergency information centre
    • A designated facility that is properly equipped to monitor and coordinate emergency public information activities, including the dissemination of information to the public.

During an emergency, the PEOC may deploy a provincial representative to the municipal EOC to act as a link between the two centres (refer to Section 6.8.1).

5.9. First Nations

5.9.1. First Nation communities

Similar to a municipality, First Nation communities would first respond locally to an emergency, however, the people doing emergency coordination can vary. Typically, either the fire chief and/or a dedicated emergency manager will coordinate emergency response and recovery, and the Chief and Council will provide strategic direction.

During an emergency, a First Nation can link with the PEOC directly for support, or through a Tribal Council or Provincial Territorial Organization.

5.9.2. Tribal Councils

Many, but not all, First Nations in Ontario belong to Tribal Councils. Tribal councils are groupings of First Nations with common interests who voluntarily joined together to provide services to their members.

The roles of Tribal Councils for emergency response and recovery can vary depending on the arrangements with their member First Nations. A Tribal Council can act as a coordinator between member First Nations. Tribal Councils can also provide a link between member First Nations and the PEOC and ISC.

5.9.3. Provincial Territorial Organizations

Many First Nations in Ontario are affiliated with larger groups called Provincial Territorial Organizations \(PTO). Many Tribal Councils are also members of the PTOs.

The PTOs in Ontario are:

  • The Union of Ontario Indians (Anishinabek Nation).
  • Association of Iroquois and Allied Indians (AIAI).
  • Grand Council Treaty #3.
  • Nishnawbe Aski Nation.

As with Tribal Councils, a PTO may act as a coordinator between member First Nations, or as a coordinator between member First Nations and the PEOC and ISC.

5.10. Unincorporated communities

Unincorporated communities are not required by the EMCPA or O. Reg. 380/04 to have a person or organization to coordinate emergency management activities. During emergency situations, the PEOC should reach out to unincorporated communities on an as-and-when-needed basis. There may be existing lines of reporting to provincial employees that can be leveraged in this reach-out (e.g., through the Office of the Fire Marshal to contact fire fighters under the Northern Fire Protection Program).

5.11. Other supporting organizations

There are many other organizations in Ontario outside of communities and the provincial ERO that can be involved in emergency response and recovery. These organizations may include:

  • Agencies, boards, and commissions that have not been designated under the EMCPA.
  • Critical infrastructure owners / operators.
  • Non-governmental organizations (NGOs).
  • Other provinces and/or states.

Where these organizations have a direct relationship with a ministry that is actively involved in the emergency, that ministry may act as the link with the overall provincial ERO. Where there are no clear relationships, or where it is otherwise necessary to expedite information sharing and coordination, the PEOC may act as the link to the provincial ERO.

Any member of the provincial ERO that is involved in a response may identify a supporting organization to be linked with the provincial ERO. At the discretion of the PEOC Commander, the PEOC will then be responsible for ensuring that these organizations are included in coordination and information sharing activities.

Figure descriptions

Figure 5-1: Provincial ERO Organizational Chart

The PEOC is at the centre of the response organization during an emergency involving a coordinated provincial response. The PEOC coordinates between provincial authorities (up to and including the premier and cabinet), ministries and provincial organizations, the federal government, and local governments and responders. The PEOC also coordinates with contiguous provinces and states, such as Québec or New York, and other organizations such as NGOs or critical infrastructure owners.

At the provincial level, ministry emergency operations centres provide the primary link between the PEOC and ministry staff, including field staff at Incident Command Posts. Ministries report up to cabinet through their own ministerial lines of reporting.

For municipalities, municipal emergency operations centres act as the primary link between the PEOC and the rest of the municipal organization. Municipalities are also the primary link with volunteer and community organizations that are operating locally.

First nations respond in a similar manner to municipalities, with a designated person or organization providing the primary between the PEOC and other local responders. The unique aspect for First Nations is that they also link directly with Indigenous Services Canada (ISC).

At the federal level, the primary link between the PEOC and other federal organizations is the Government Operations Centre.

As previously stated, while these connections may represent the primary links in an emergency, involved organizations will make other connections as required by the needs of the emergency.

Return to Figure 5-1


Footnotes

  • footnote[13] Back to paragraph The role of Commissioner of Emergency Management is currently filled by the Deputy Solicitor General, Community Safety, though this has not always been the case in the past.
  • footnote[14] Back to paragraph The Federal Emergency Management Response System is a comprehensive management system which integrates the Government of Canada's response to emergencies. It is based on the tenets of the Incident Command System and the Treasury Board Secretariat's Integrated Risk Management Framework.
  • footnote[15] Back to paragraph ISC's Emergency Management Assistance Program
  • footnote[16] Back to paragraph Note: for a response to a radiological or nuclear emergency under the PNERP, "reception centre" has a slightly different definition due to the size of a potential evacuation, and the need for decontamination and monitoring activities.