View Agenda '17'

Leon County
Board of County Commissioners
Agenda Item#17

July 9, 2024

To:	Honorable Chairman and Members of the Board

From:	Vincent S. Long, County Administrator

Title:	After-Action Report on Leon County`s Preparation, Response, and Recovery Efforts to the May 10 Tornado Outbreak

Review and Approval:	Vincent S. Long, County Administrator
Department/Division Review and Approval:	Ken Morris, Assistant County Administrator Shington Lamy, Assistant County Administrator
Lead Staff/ Project Team:	Mathieu Cavell, Director, Community Relations and Resilience Kevin Peters, Director, Emergency Management Roshaunda Bradley, Director, Office of Management and Budget

Statement of Issue:

Fiscal Impact:

This item has a fiscal impact. This item recommends the allocation of $8.3 million in fund balance to the Catastrophe Reserve Fund to cover the costs associated with the May 10 tornadoes, prior to FEMA reimbursement, and to replenish the Cat Fund for the 2024 hurricane season.

Staff Recommendation:

Option #1: Accept the after-action report on Leon County’s preparation, response, and recovery efforts related to the May 10, 2024 Tornado Outbreak.

Option #2: Adopt the proposed revisions to Policy No. 07-2 “Reserves” (Attachment #1).

Option #3: Approve the Resolution and Budget Amendment (Attachment #2).

Report and Discussion

Background:

This item provides the Board with an after-action report on Leon County’s preparation, response, and recovery efforts related to the tornado outbreak that occurred on May 10, 2024. This after-action report serves as a summary of actions taken to date by Leon County in response to the tornado outbreak, provides findings and recommendations from the emergency activation, and seeks Board approval of a Resolution and Budget Amendment for the costs associated with the tornado recovery and to replenish the Catastrophe Reserve Fund for the 2024 hurricane season. Also, as requested at the June 11, 2024 meeting, the item includes an update on the comprehensive recovery process for citizens displaced by the May 10 Tornado Outbreak, additional information on the Catastrophe Reserve Fund Policy, and recommends a revision to ensure efficient use of resources and provide necessary support for disaster recovery.

Emergency management professionals in Florida focus much of their training on tropical weather events and opportunities to enhance disaster response activities and resilience. Leon County Emergency Management (LCEM) prepares, coordinates, and trains year-round in anticipation of emergencies which require the highest level of coordination and resources. The preparation and training extend throughout the County organization and with external agency partners each year. LCEM also serves as the regional coordinator with the Florida Division of Emergency Management for emergency management services and programs of the 10-county area. Public education is vital to community preparedness and resilience. Through Leon County Community and Media Relations (CMR), LCEM educates the public by cohosting events including the Citizen Engagement Series focused on hurricane preparedness and performing mock emergency activation exercises, the “Build Your Bucket” event to highlight the importance of having a disaster plan and kit, and produces the annual Disaster Survival Guide in partnership with the Capital Area Chapter of the American Red Cross; the Apalachee Regional Planning Council; and neighboring counties. These year-round efforts position the County, the public, and external agency partners to better prepare and respond to weather emergencies.

Emergency officials have named the May 10, 2024, weather event the "May 10 Tornado Outbreak." This designation reflects the rarity and impact of the tornadoes that swept through Leon County. The outbreak resulted in multiple tornadoes causing widespread damage across Tallahassee-Leon County and the Big Bend region. LCEM monitored the developing situation as the National Weather Service Tallahassee (NWS) began issuing forecasts and warnings. The event was characterized by severe thunderstorms and tornadoes that led to significant damage and debris.

Through enhanced monitoring of the weather system overnight and assessing the severity of any potential tornadoes, the Leon County Emergency Operations Center (EOC) was partially activated at 3 a.m. on May 10 in response to the event, with personnel and partner agencies also activating resources on standby. Later that morning around 6:50 a.m., the tornado outbreak resulted in extensive damage, with numerous properties destroyed or severely damaged as detailed later. The EOC's structured approach and the collaborative efforts of the community played essential roles in addressing the challenges posed by the tornado outbreak. The EOC was partially activated from May 10 to May 19, engaging hundreds of County staff in coordinating response and recovery efforts. The specific activities performed by County work areas are detailed later in this agenda item.

While the May 10 Tornado Outbreak included significant wind threats, the County was prepared for the emergency and demonstrated once again why it was the first in the nation to be recognized by FEMA as a #HurricaneStrong Community. Through lessons learned from prior weather events and emergency activations, the County implemented more than 200 recommendations based on nearly 300 findings across all aspects of emergency preparedness, response, and recovery capabilities. These findings and recommendations were detailed in the after-action reports following three tropical weather events (Hermine, Irma, and Michael) and other emergencies that impacted the County, providing a comprehensive evaluation and assessment of the plans, preparations, response, and recovery efforts associated with the storms. The recommendations identify opportunities for continuous improvement of Leon County’s organizational readiness to manage future emergencies and enhance community resilience.

Unfortunately, and most importantly, the May 10 Tornado Outbreak directly contributed to two fatalities.

Significant Enhancements since Hermine, Irma, Michael, Idalia, and the Bicentennial Storm:

Leon County has made multiple strategic updates to its Comprehensive Emergency Management Plan based on recommendations made in Hurricane After-Action Reports. Several stand out as particularly critical to the success of Leon County’s preparedness, response, and recovery efforts relative to the May 10 Tornado Outbreak. The recommendation to return LCEM under the County organization on a year-round basis has facilitated a much closer alignment of the County’s emergency management function with other County operations and has enabled LCEM to streamline year-round coordination with County departments and external agencies, including staffing, training, and field operations.

In 1999, the Board entered into an Interlocal Agreement shifting the day-to-day oversight of LCEM to the Sheriff, only to return under the Board in the event of a disaster. Because the emergency management field involves the coordination of public works, communications, information technology and geographic information systems, volunteer services, services provided by partner organizations, emergency shelters, and many other critical functions, the Hurricane Hermine After-Action Report recommended returning this function to the County organization on a year-round basis. At the January 24, 2017 meeting, the Board approved the return of the day-to-day oversight of LCEM under the Board, reporting to the County Administrator. The alignment of LCEM with CMR ensures the highest level of coordination with other departments and divisions of Leon County government throughout the year, enhances coordination of emergency management training opportunities for County staff, and facilitates even greater sharing of information and resources during emergency events. This realignment of LCEM under the County organization has also supported and facilitated the implementation of several other recommendations in the Hurricane Hermine After-Action Report related to citizen engagement and community preparedness initiatives.

Additionally, the recommendation to coordinate with Leon County Schools, the American Red Cross, the Salvation Army, and the Big Bend Disaster Animal Rescue Team to identify specific opportunities has enhanced shelter operations and the management of shelter staff, facilities, and supplies. At the May 8, 2018 meeting, the Board approved a tri-party agreement among Leon County, Leon County Schools, and the American Red Cross to make improvements to the County’s plan for risk sheltering operations. These improvements leveraged the assets and resources of each agency to ensure the best coordination of facilities, staffing, supplies, and communication during risk sheltering operations. The close coordination among all agencies has significantly enhanced the operation of emergency shelters, including special needs and pet accessible shelters, to ensure citizens’ safety during the height of a disaster.

Lastly, improvements to the distribution of resources, including organizing regional volunteers and donations management through the Big Bend Community Organizations Active in Disaster, securing state-owned generators for traffic signals to ensure the fastest deployment following a widespread power outage, relocating sandbag operations from J. Lee Vause Park to Fred George Park to provide better accessibility to citizens, and coordinating with emergency management directors from across the region to share resources, information, and best practices further increase disaster resilience within Leon County.

Further, Leon County has made significant enhancements since Hurricanes Hermine, Irma, Michael, and Idalia in the area of community preparedness. Today, the Leon County community is better informed and prepared for natural disasters as a direct result of lessons learned from Hermine, which led to greater attendance at the County’s hurricane-related public events, improvement and broader distribution of the annual Disaster Preparedness Guide, vastly increased use of the enhanced Citizens Connect mobile app, increased participation in training events and exercises, and ultimately earned Leon County recognition as the first local government to be awarded FEMA’s Hurricane Strong Community designation. Such significant enhancements have prepared the community for “no notice” disasters such as the May 10 Tornado Outbreak, focusing on emergency response, disaster recovery, and public information updates.

Overview of NWS Tallahassee Tornado Report and Chronological Weather Alerts

The following alerts highlight the rapid escalation of severe weather conditions in the Leon County area on the morning of May 10, 2024, culminating in multiple tornado warnings as the storm system intensified.

4:05 a.m. - Severe Thunderstorm Watch until 11:00 a.m.

A watch was issued indicating conditions were favorable for the development of severe thunderstorms in the area.

6:21 a.m. - Severe Thunderstorm Warning until 7:45 a.m.

A warning was issued for a line of severe thunderstorms moving through the area. Residents were advised to seek shelter and stay updated on weather conditions.

6:40 a.m. - Tornado Warning until 7:30 a.m.

A tornado warning was issued due to tornadic rotation detected within the line of severe thunderstorms near Quincy. Residents in the warned area were urged to take immediate tornado precautions.

6:44 a.m. - Tornado Warning until 7:15 a.m.

Another tornado warning was issued for a separate tornadic rotation within the line of severe thunderstorms south of Midway. Immediate action was recommended to protect life and property.

6:50 a.m. - Tornado Warning until 7:30 a.m.

A third tornado warning was issued, including a new tornadic rotation southeast of Ft. Braden. This warning effectively merged the previous two warnings due to the close proximity of the rotations. Residents in the affected areas were advised to take immediate shelter and follow emergency instructions.

The NWS in Tallahassee issued a comprehensive report detailing the path, intensity, and impacts of each tornado. These tornadoes were characterized by high wind speeds, substantial path lengths, and wide damage swaths, resulting in significant disruption and destruction in their wake. A summary of that report for the tornadoes that impacted Leon County is provided below.

Tornado #1:

- Date and Time: May 10, 2024, from 6:38 a.m. to 7:03 a.m.
- Rating: EF-2 with peak winds of 115 mph.
- Path Length: 19.58 miles.
- Max Width: 900 yards.
- This tornado touched down near the intersection of West Tennessee Street and Capital Circle, causing extensive damage as it moved southeast. It snapped numerous trees, damaged several homes, and caused power outages. The tornado's path included significant impacts at the Capital City Country Club, where numerous trees were snapped or uprooted. This tornado also caused minor structural damage to buildings along its path. Regarding County facilities, this tornado significantly damaged the Historic Amtrak Station, causing major roof damage and other structural impacts. The County’s Office of Intervention and Detention Alternatives building also received minor roof damage affecting several offices.

Tornado #2:

- Date and Time: May 10, 2024, from 6:50 a.m. to 7:14 a.m.
- Rating: EF-2 with peak winds of 115 mph.
- Path Length: 27.22 miles.
- Max Width: 1,400 yards.
- Starting near Blountstown Highway, this tornado tracked through residential and commercial areas, causing widespread tree and structural damage. It significantly impacted the Norfleet neighborhood, Sabal Palm Elementary School, and Florida A&M University, where it caused roof damage and downed numerous trees. The tornado reached its maximum width as it crossed Monroe Street and continued to cause severe damage in the Indianhead Acres subdivision and the Capital City Country Club Golf Course.

Tornado #3:

- Date and Time: May 10, 2024, from 6:42 a.m. to 7:13 a.m.
- Rating: EF-1 with peak winds of 110 mph.
- Path Length: 31.69 miles.
- Max Width: 1,100 yards.
- This tornado initially touched down near Lake Talquin and moved eastward, producing significant tree damage. It caused high-end EF-1 damage as it crossed areas like Blountstown Highway and Oak Ridge Road, with numerous trees snapped and several structures damaged by falling trees. The tornado's path included significant impacts in the Apalachicola National Forest and continued to cause damage before dissipating near Old Plank Road.

Activation of the Leon County Emergency Operations Center

The Leon County EOC functions as the nerve center during crises, coordinating the response and recovery efforts of local, state, and federal agencies and ensuring that resources are allocated effectively. It is an integral component of the Incident Command System (ICS) that FEMA employs, facilitating interdisciplinary collaboration and decision-making. The EOC's role becomes particularly significant in events like the Bicentennial Storm, where coordination amongst County departments and partners is essential to safeguard communities and effectively manage resources.

Beginning May 9, 2024, in anticipation of severe weather, the EOC, under the supervision of the LCEM team, began disseminating information and raising awareness of a potential severe weather threat that later became the May 10 Tornado Outbreak. This involved alerting Leon County Public Works, regional emergency managers, and utility companies about the NWS's advisories concerning the impending storm.

In the early hours of May 10, 2024, County Emergency Management deployed to the EOC to ensure continuous assessment and coordination. Consistent with emergency plans and the ICS, the EOC made connections with the Consolidated Dispatch Agency (CDA) and regional emergency managers, actively updating and advising them on the situation. County teams monitored storm conditions, liaised with field staff to ensure the readiness of personnel and equipment, and communicated with local government officials about safety measures and public warnings, including potential geotargeted Wireless Emergency Alerts.

Post-storm, the EOC's focus expanded to include recovery efforts. This involved coordinating mass care missions to assist tornado-affected communities, deploying search and rescue teams, and facilitating aid from agencies including the Capital Chapter of the American Red Cross. Cut-and-toss operations began immediately following the tornadoes to clear roads and provide safe traffic routes. During this time, the EOC conducted daily conference calls with response partners, monitoring the situation closely and making decisions to reopen roads once they were deemed safe. As demonstrated in previous storms, the EOC's orchestration of recovery and response activities exemplifies the critical importance of planning within FEMA's ICS process to protect citizens and property owners.

Coordinating Calls with the National Weather Service

The NWS Tallahassee briefings and conference calls are critical components of FEMA's disaster response and recovery strategy, as they enable preemptive coordination and resource allocation by emergency managers in anticipation of severe weather events. This advanced communication is crucial for initiating timely safety measures, such as evacuations and the securing of property, thereby minimizing potential damage and loss of life. The May 10 outbreak resulted in six tornadoes striking the Florida Panhandle and Alabama, including three that hit parts of Leon County. The damage was extensive across the region, but especially in Leon County.

In the lead-up to the May 10 Tornado Outbreak, the NWS provided regional emergency managers with updates through emails. These communications detailed the expected severe thunderstorms and tornado risks for Leon County and the broader region. Initially, there was no indication of tornadoes, but the situation rapidly escalated.

As the weather event approached, the NWS adjusted its advisories to reflect the increasing certainty and severity of the forecasts. This continuous flow of information and the responsive dialogue between the NWS and emergency managers underscored the proactive stance taken to manage and mitigate the storm's impact effectively.

Analysis:

The analysis is divided into three parts as follows.

At the June 11, 2024 meeting, the Board requested an update on citizens displaced by the May 10 Tornado Outbreak. The Transitional Housing Update section outlines the comprehensive recovery process following the May 10 Tornado Outbreak, emphasizing coordination among insurance companies, social services, County teams, and proactive outreach by organizations like the American Red Cross and FEMA. In the section, the County reports there are no unmet housing needs for citizens displaced due to the tornadoes.
Also requested by the Board at the June 11, 2024 meeting, the Catastrophe Reserve Fund (Cat Fund) Policy section provides an overview of the establishment and use of the Cat Fund, including a recommendation to revise the Cat Fund policy. The revision will ensure efficient use of resources, provide necessary support for disaster recovery, and maintain financial stability by setting clear guidelines for fund activation and expense coverage. This section also provides the latest cost estimates for the May 10 Tornado Outbreak and seeks approval to appropriate funding to cover the costs associated with the tornado recovery and to replenish the Catastrophe Reserve Fund for the 2024 hurricane season.
The After-Action Report Findings and Recommendations section highlights key lessons learned from the emergency response, such as the need for better coordination in damage assessments, improved communication tools, and enhanced preparedness measures, aiming to strengthen Leon County's resilience and response capabilities for future disasters.

Transitional Housing Update

At the June 11, 2024 meeting, the Board requested an update on citizens displaced by the May 10 Tornado Outbreak. This Transitional Housing Update outlines the comprehensive recovery process following the May 10 tornadoes, emphasizing coordination among insurance companies, social services, County teams, and proactive outreach by organizations like the American Red Cross and FEMA.

At this time, there are no remaining unmet transitional housing needs in Leon County. Permanent housing needs are being addressed by private insurance companies, FEMA, Red Cross, etc. as described in the next section.

The County's disaster housing strategy is comprehensive, and it has one overarching goal: any Leon County resident that had a roof before the disaster will have a roof after. To achieve this, County Emergency Management and its community partners follow a detailed housing strategy that ensures coordination before and after a disaster. The Leon County Disaster Housing Strategy outlines policies and tactics to provide temporary housing and support services to displaced families and individuals. It emphasizes collaboration among local resources, state expertise, and federal support to ensure rapid recovery and community rebuilding. Key components include emergency shelters, transitional shelters, interim housing, and permanent housing solutions, with a focus on meeting the needs of special populations and ensuring coordination among stakeholders.

By leveraging every available resource, here is what this means for disaster survivors in Leon County:

For a homeowner with insurance, the process begins by contacting their insurance provider to initiate claims for repairs and temporary housing, which typically includes an assessment by an insurance adjuster. If additional needs arise, FEMA can supplement through grants for repairs and transitional housing assistance, ensuring any gaps not covered by insurance are addressed. For uninsured homeowners, FEMA provides grants for home repairs and temporary housing, leveraging existing community resources and financial aid to support their recovery and rebuilding efforts.

A renter with insurance contacts their provider to claim damages for personal property and displacement costs, often covered under Additional Living Expenses provisions. FEMA can assist with grants for temporary housing if insurance is insufficient, ensuring stability during the recovery period. For uninsured renters, FEMA, along with organizations like the American Red Cross and 2-1-1 Big Bend, offers financial aid and temporary housing solutions, ensuring they have access to necessary support services and accommodations throughout their recovery process.

An important and significant part of the County’s Disaster Housing Strategy is FEMA’s federal disaster assistance for homeowners and renters. FEMA's process for transitional housing and sheltering follows a prioritized approach to ensure effective and efficient housing solutions for disaster survivors.

Initially, FEMA seeks to utilize the existing available housing inventory within the affected community, including vacant rental properties and public housing units, often working with local and state agencies to expedite repairs to habitable but damaged units. If sufficient housing inventory is unavailable, FEMA then enters into rent or lease agreements, providing financial assistance through the Individual and Households Program (IHP) to help survivors secure stable housing while their homes are being repaired or rebuilt. As a short-term solution, FEMA may activate the Transitional Sheltering Assistance (TSA) program, allowing eligible survivors to stay in participating hotels or motels for a limited period, with costs covered directly by FEMA. Deploying trailers or Manufactured Housing Units (MHUs) is considered a last resort and involves providing temporary housing units, such as travel trailers or manufactured homes, which are placed on private property or in designated group sites. Throughout this process, FEMA prioritizes finding housing solutions within the community to maintain the social fabric and support network of disaster survivors. Coordination with local and state governments, non-profit organizations, and the private sector is crucial to maximizing housing options, and financial support is provided to cover the costs associated with temporary housing solutions. This structured approach ensures that FEMA can provide the most appropriate housing solutions while minimizing the need for temporary units like trailers, which are used only when absolutely necessary.

In practice, here is a detailed outline of how the County’s Disaster Housing Strategy process unfolds, emphasizing the direct outreach and robust support network available.

Comprehensive Disaster Recovery Process

1. Surviving the Emergency and Initial Response:

Immediate Safety: Residents focus on surviving the immediate impacts of the disaster, ensuring personal safety and that of their family members.
Recording Property Damage: Once safe, residents begin to record the extent of the property damage through photos and videos, which are essential for insurance claims and other assistance applications. In Leon County, County Emergency Management leads communitywide damage assessment operations to ensure a coordinated and comprehensive evaluation of the damage. This process is detailed later in this section.

2. Contacting Insurance Providers:

Homeowners: According to the U.S. Census Bureau, nearly 9 out of 10 homeowners will have insurance coverage. Homeowners contact their insurance providers to initiate claims. This process involves an assessment by an insurance adjuster to determine the compensation for repairs and temporary housing needs.
Renters: Similarly, about half of renters have renter's insurance. Renters contact their insurance providers to claim damages for personal property and displacement costs. Both homeowners and renters typically have policies that include coverage for additional living expenses (ALE), which helps cover temporary housing, increased living costs, and storage fees. One important note, a landlord’s insurance policy will cover the cost of structure repairs. However, the landlord’s insurance will often not pay for a renter’s displacement or other costs.

3. Engaging Social Services for Unmet Needs:

Public Shelters: If displacement occurs and immediate housing is needed, residents can go to public shelters managed by the American Red Cross. These shelters provide essential services and temporary accommodation. At its peak, the American Red Cross operated host shelter on FAMU’s campus served 46 disaster survivors. Relatedly, the Florida Department of Health’s special needs shelter served eight patients at its peak.
2-1-1 Big Bend: Residents without insurance or with unmet needs can contact 2-1-1 Big Bend for assistance. This service connects them to various resources, including financial aid for temporary housing, food assistance, mental health services, and more.

4. County Damage Assessment Teams in Action:

Field Assessments: Leon County damage assessment teams are actively in the field following the disaster. They assess the extent of the damage, provide critical information to affected residents, and make referrals to appropriate services. In Leon County, County Emergency Management leads communitywide damage assessment operations to ensure a coordinated and comprehensive evaluation of the damage. This process is critical for deploying necessary resources and documenting the scope of damage to support petitions for federal disaster assistance. Initial damage assessments identified 174 destroyed or uninhabitable structures, 742 major damaged structures, 779 minor damaged structures, and 417 affected structures. These assessments are conducted countywide and are consistent with FEMA damage thresholds and guidelines.
Providing Referrals: In the field, these teams help residents navigate the support system, ensuring they are aware of and can access available resources and assistance programs. Generally, teams refer disaster survivors to contact

5. Proactive Outreach by the American Red Cross:

Proactive Engagement: The American Red Cross initiates proactive outreach to residents of damaged structures. Using contact information obtained through assessments, ARC staff reach out via text messages, emails, phone calls, and door-to-door engagement. For the May 10 Tornado Outbreak, ARC directly reached out to more than 1,000 disaster survivors with destroyed or majorly damaged properties.
Comprehensive Casework: ARC staff work with households to address their needs, which may include finding alternative accommodations, assisting with new leases, providing financial assistance, and making additional referrals to other support services. For the tornadoes, ARC started more than 170 social services cases with disaster survivors.
Financial Support Offers: The ARC offers financial support to help residents manage the immediate aftermath and begin the recovery process. As mentioned above, of the more than 170 cases started by ARC, more than 130 involved some form of financial or other assistance to achieve a housing solution.

6. Utilizing the County's Disaster-Focused SHIP Fund:

Disaster SHIP Fund: Activated in response to the May 10 Tornado Outbreak, the Leon County State Housing Initiatives Partnership (SHIP) Fund helps residents repair their homes and fix storm-related damage. Residents apply for these funds by submitting necessary documentation, and once approved, the funds are used to restore homes to a livable condition. The SHIP program is funded by the State of Florida and aims to address the housing needs of the community through various initiatives, including disaster-related programs. Similar to TEAM Leon, the County’s SHIP Fund served as bridge to federal disaster assistance. A total of 30 applications were submitted. To date, 13 homeowners in unincorporated Leon County have been awarded approximately $60,000 in total funding for roof repairs, insurance deductibles, mortgage and utility assistance, and other costs associated with the May 10 Tornado Outbreak.

7. Federal Disaster Assistance:

FEMA Assistance: With a federal disaster declaration, residents can seek additional aid through FEMA, including grants for home repairs and transitional housing assistance. This aid can help cover repair costs not fully covered by insurance and support long-term temporary housing needs. Following the severe storms, straight-line winds, and tornadoes on May 10, 2024, federal disaster assistance has been made available to affected individuals in Leon County, including grants for temporary housing and home repairs, low-cost loans to cover uninsured property losses, and other programs to help individuals and business owners recover from the disaster's effects.
Application Process: Residents apply for FEMA assistance by providing details about the damage, insurance information, and proof of identity and residency. FEMA also offers, as a last resort, temporary housing in FEMA-deployed mobile homes. As of June 30, FEMA approved a total of $2,581,702.80 in Individual Assistance for 807 applications, including $1,099,595.22 for Housing Assistance (HA) and $1,482,107.58 for Other Needs Assistance (ONA). HA provides financial support to disaster survivors to cover temporary housing costs, home repairs, and replacement of essential household items damaged or destroyed in the disaster. ONA offers financial aid for necessary expenses and serious needs not covered by insurance, including medical and dental expenses, personal property replacement, transportation costs, and other critical needs.

The process above ensures that assistance reaches residents without waiting for them to initiate contact. Both the County damage assessment teams and the American Red Cross engage directly with affected residents, asking what can be done to help. This proactive approach, combined with the extensive support network, ensures that all affected individuals, regardless of their insurance status, receive the necessary support to recover and rebuild their lives.

Catastrophe Reserve Fund Policy

At the June 11, 2024 meeting, the Board requested information on the Cat Fund Policy and that staff provide any recommendations related to the use of the Cat Funds for microgrants related to future events.

The Board approved the creation of the Cat Fund in 2008 in response to the after-effects of Tropical Storm Fay. Pursuant to Policy 07-2, Leon County annually establishes the Cat Fund at 2% of the general/fine and forfeiture fund budget to ensure access to emergency funds in case of a declared local state of emergency in order to pay for storm related expenses. These funds are appropriated to allow immediate access to reserves to assist with restoring the community to pre-catastrophe levels, prior to assistance and reimbursements being available from the Federal Emergency Management Administration (FEMA). Additionally, in the event of a declared local state of emergency, the County Administrator is authorized to utilize the Cat Fund to pay for solid waste fees, building permit and inspection fees for eligible residents that had damage to their property which requires debris removal and home restoration/reconstruction.

At the May 14, 2024 meeting, the Board authorized the use of $1 million from the Cat Fund to establish the Targeted Emergency Assistance Microgrant (TEAM) Leon Program for residents and businesses in unincorporated Leon County. As mentioned, the Cat Fund was established to primarily cover storm related costs to the County and has not traditionally funded grant programs for severe weather such as the TEAM Leon Program. Unlike the May 10 Tornado Outbreak, hurricanes and tropical weather systems afford the community time for evacuation, preparation, and pre-staging of emergency response and recovery resources. The TEAM Leon Program was established to provide temporary and immediate financial assistance until extensive and more long-term federal aid becomes available in the community. It is not advisable or financially feasible for the County to provide grants to all residents affected by the tornadoes or to consider a similar program in response to future severe weather such as a hurricane which has the potential for significant countywide impacts. For example, if the County provided the maximum TEAM Leon Program individual award amount of $3,500 to each of the approximately 74,000 unincorporated residents (18+) in the County, a total of $259 million would be required. That is more money than the County will collect in property taxes in FY 2025. Only the federal government has the resources to provide direct financial assistance to entire communities impacted by a major disaster.

However, if the Board desires to establish a smaller scale microgrant program for isolated disaster events, such as tornadoes, the Cat Fund Policy could be amended to clarify the Board’s intent and incorporate these changes (Attachment #1). The focus on isolated events is due to the typically more localized damage compared to hurricanes, and the sudden occurrence of such events which may delay federal assistance. County’s financial costs associated with a hurricane that causes widespread damage and the possibility that an isolated event may occur with less warning and thereby delay the needed federal response. Staff would also recommend that the program would only be activated upon approval of the Board, based on funding availability. It is not recommended to increase the Cat Fund reserve limits specifically for this program due to best practices and existing policy guidelines, which aim to maintain adequate cash flow and cover costs for unforeseen emergencies and catastrophic events. At the time of activation of a microgrant program, the Board would review current available reserve balances, consider all County-related financial obligations, and then establish an appropriate funding level for a microgrant program based on these considerations. This approach ensures that the program is financially sustainable and does not compromise the County’s ability to respond to other emergencies.

Current Cat Fund Balance

This item recommends the allocation of $8.3 million in fund balance to the Cat Fund to cover the costs associated with the May 10 Tornado Outbreak, prior to FEMA reimbursement, and to replenish the Cat Fund for the 2024 hurricane season. In response to the May 10 Tornado Outbreak, the Board allocated $1 million from the Cat Fund for microgrants through the TEAM Leon Program. Following the disbursement of the microgrants, the Cat Fund balance was approximately $2.5 million. The recommended allocation of $8.3 million would cover the current storm related costs estimates ($7.8 million) and replenish the Cat Fund to $3 million ($500,000) for the 2024 hurricane season (Attachment #2). These reserves would be available for response and recovery expenses in the event the County experiences another storm event this season.

The following provides additional information on the $7.8 million in estimated costs related to the response and recovery from the May 10 Tornado Outbreak:

$7.6 million – May 10 Tornado Outbreak Emergency Protective Measures (overtime and equipment costs for road clearing, EOC activation, etc.) and debris removal.
$149,000 - To ensure the maximum reimbursement possible is received from FEMA for storm related damage, the County is working with its contracted Emergency Management Consultant to assist with the FEMA application and reimbursement process.
$75,000 – Insurance Deductible for County damaged structures. The insurance carrier has notified the County that the storm event has been categorized as “catastrophic”, therefore the County is only obligated to pay one $75,000 deductible for all buildings, instead of per building, which saves approximately $225,000 from previous estimates. FEMA does not provide funding that duplicates insurance proceeds but can reimburse the County for most of its insurance deductible.

Once the entire FEMA reimbursement process is complete, Leon County will be responsible for 12.5% of the actual expenditures, with the balance being paid 87.5% by the State and FEMA. Reimbursements for the County’s costs may not be recovered until late FY 2025 or FY 2026, necessitating the establishment of a higher catastrophe reserve budget to cover these upfront costs. As noted, based on an evaluation of the final storm damage and to ensure the maximum reimbursement possible, staff has engaged the County’s contracted Emergency Management Consultant to assist with the May 10 Tornado Outbreak FEMA reimbursement process.

Appropriating the additional $8.3 million in existing fund balances for the Cat Fund leaves the reserves in the middle of the 15% – 30% policy thresholds at 23%. The County’s general revenue fund balances have historically grown at a rate of $4 to $5 million a year. This is due to state budget requirements that counties budget 95% of expected revenues, and the nominal under expenditure of County and Constitutional Officer’s budgets. Given this, it is anticipated the reserves will begin to replenish in FY 2025, as long as there is not another catastrophe this fiscal year.

After-Action Findings and Recommendations for the May 10 Tornado Outbreak

As described earlier in the item, the Board’s 2017 decision to return the day-to-day oversight of LCEM to the County organization under the County Administrator has facilitated a much closer alignment of the County’s emergency management function with other County operations. One such change was the alignment of LCEM with CMR to ensure the highest level of coordination for disseminating public information and communicating with outside agencies during an emergency activation. The following is a summary, organized by responding work area, of the County’s preparedness activities, response, and recovery efforts related to the May 10 Tornado Outbreak. Further, findings and recommendations are included in each work area for lessons learned and how operations can be further enhanced to better respond to future disasters.

Emergency Operations/Leon County Emergency Management (LCEM)

Hours of Activation at County Emergency Operations Center: 300 hours over 29 days

Shelters Opened: One Special Needs Shelter, One American Red Cross Host Shelter

Shelter Occupancy: 46 survivors at peak in host shelter, 8 survivors at peak in special needs

Coordinating Calls Conducted: 13 calls

Call Participants: 162 single-call peak participation, 1,351 total participants over all calls

Partially activated the EOC on May 10 following the tornado outbreak to serve as the central command and coordination hub for all storm-related activities.
Conducted briefings and shared critical tornado-related information with all responding agencies, including updates on tornado advisories.
Held nine daily coordinating calls with local and state agencies to ensure a unified approach to tornado response and recovery.
Ensured continuous monitoring of the tornado's impact, particularly the areas affected by the tornadoes, and communicated updates to the public and partner agencies.
Coordinated resource management, including the deployment of emergency services and support to affected areas and populations.
Maintained communication with healthcare facilities, especially those in tornado-affected areas, to confirm their emergency preparedness status and assist with any needed support.
Carried out systematic damage assessments to evaluate the impact on homes, infrastructure, and key facilities, which are crucial for directing critical human services and aid.
Ongoing recovery efforts such as emergency road repair, community support, and the return to normal operations, with lessons learned being integrated into future emergency planning.
Hosted the TEAM Leon call-taking operation and application review team.

Leon County Community & Media Relations (CMR)

Total Impressions (Seen/Heard on All Platforms): 487,993,979 million impressions

Disaster-Related Media Interviews: 17 interviews

Updates to the County Emergency Information Portal: 210 updates

Visitors to the County Emergency Information Portal: More than 63,000 as of June 20

Disaster-Related Graphics and Visuals Created: 30 graphics

Shared Tallahassee NWS briefings on social media to inform the community. Notably, the forecast differed significantly from the impacts, but weather experts did communicate a moderate level of wind and rain threats.
Throughout 2023-24 and leading into the storm event, leveraged diverse media to promote the Citizens Connect App, distributed the County's Disaster Survival Guide, and held community resilience events such as the Citizen Engagement Series.
Maintained continuous updates on the Emergency Information Portal, providing real-time information on the evolving flood situation, shelter options, and road conditions.
Engaged actively with the public through social media, press releases, and the non-emergency line at the CDA, effectively managing community inquiries and concerns throughout the storm.
Provided immediate response to citizen inquiries via social media, responding to each inquiry in under 30 minutes.
Post-storm efforts focus on sharing recovery information, debris removal guidelines, and ongoing support through social media and the Emergency Information Portal.
Coordinating with local media, such as the Tallahassee Democrat and WCTV, to disseminate crucial storm updates and highlight ongoing recovery initiatives.

Leon County Public Works (LCPW)

Trees Removed from County Roads, Right-of-Ways, and Other Related Areas: More than 1,500 trees removed in the first 24 hours.

County Roads Cleared After Tornadoes: 130 roads cleared in first 24 hours

Cubic Yards of Debris Collected to Date: Over 280,000 cubic yards as of June 20

Truck Loads of Debris Hauled to Date: More than 5,500 truckloads as of June 20

Conducted active responses to storm-related incidents by clearing obstructions from roads to ensure public safety and accessibility, deploying numerous barricades to redirect traffic.
Worked closely with utility companies and other municipal services to coordinate efforts in restoring normalcy to roadways and other public infrastructure.
Following tornadoes, assessed private roads for emergency repairs necessary for emergency vehicles to access neighborhoods.
Engaged staff in storm recovery efforts, dedicating extensive hours of labor to address the impacts of the tornado outbreak.
Conducted community-wide vegetative debris collection following the tornadoes and engaged debris removal contractors to efficiently clear and dispose of vegetative and other storm-related debris from affected areas, facilitating the prompt removal and disposal to aid in community recovery and cleanliness.
Utilized debris removal monitors to oversee and ensure the effective execution of debris removal operations.

Leon County Office of Resource Stewardship (ORS)

Number of County Facilities Assessed for Damage: 50 assessed, 4 with significant damage

Number of Repairs Completed: 4 significant repairs

Number of Points of Distribution (PODs) Managed: 3 sites

At PODs, Cars Served: 8,024 cars

At PODs, Cases of Water Distributed: 16,560 cases

At PODs, Cases of MREs Distributed: 9,575 cases

At PODs, Tarps Distributed: 7,004 tarps

ORS, through Facilities Management, assessed County facilities for damage, ensured building generators were functioning, and checked drainage.
Parks and Recreation assisted with removing debris from parks and posting caution signage where appropriate in coordination with LCPW.
Solid Waste coordinated with waste services post-storm to ensure timely resumption of essential waste services.
County staff provided oversight of three different points of distribution: one in Woodville, one in Fort Braden, and one at the County's Apalachee Regional Park. These points of distribution passed out water, shelf-stable meals, and tarps and were active for seven full days, from May 11 to May 18.

Leon County Emergency Medical Services (LCEMS)

Number of Emergency Medical Calls Responded To: 246 medical-related calls

Number of Patients Transported (Hospital): 128 patients

LCEMS ensured staff readiness, equipment availability, and ambulance deployment strategies were in place.
During operations, EMS assisted the Tallahassee Fire Department on any rescue-related calls.
Maintained vital connections with hospitals and health partners to offer comprehensive emergency medical support following the storm event.
Coordinated with local health departments and regional healthcare coalitions to ensure community medical needs were met, including support for individuals with mobility challenges or those dependent on medical devices.

Leon County Animal Control (LCAC)

Number of Animals Sheltered: No animals

Number of Animal-Related Emergency Calls: 2 service calls

LCAC remained on standby to provide pet-accessible sheltering support should community members need evacuation from unsafe housing.
Coordinated with local animal shelters and rescue organizations to ensure the safety and care of any displaced animals.

Leon County Human Services & Community Partnerships (HSCP)

Maintained community partner engagement and awareness with agencies including, but not limited to, 2-1-1 Big Bend, American Red Cross, America’s Second Harvest of the Big Bend, and the Salvation Army.
Actively participated in COAD (Community Organizations Active in Disaster) coordination calls to streamline disaster response efforts and resource allocation.
Collaborated with community partners to identify and address the immediate needs of those affected by the tornadoes.
Ensured that information and resources were effectively communicated to community members and partner organizations.
Acted as the lead County department in organizing and executing the TEAM Leon program.

Leon County Development Support & Environmental Management (DSEM)

Number of Days Operational for Damage Assessment: 16 days

Number of Staff in Field for Damage Assessment: More than 25 staff

Approximate Miles Traveled by Teams: More than 1,300 miles

Number of Destroyed Structures Assessed: 174

Number of Major Damaged Structures Assessed: 742

Number of Minor Damaged Structures Assessed: 779

Number of Affected Structures Assessed: 417

Number of Cost-Free Building Permits Issued for Repairs: 89 permits as of June 12

After the storm, DSEM conducted site visits to all active development sites to ensure that all permitted and applicable sediment and erosion control measures were being appropriately implemented.
DSEM assisted with County-wide damage assessment by organizing and deploying teams to areas identified in coordination with Tallahassee-Leon County Geographic Information Systems (TLCGIS), the City of Tallahassee, and LCEM.
Damage assessment teams are vital following events like the May 10 Tornado Outbreak, as they evaluate the impacts on structures and infrastructure.
Accurate assessments ensure appropriate resources and support are directed to affected areas, facilitating a swift and effective recovery process.
Their work helps in documenting the extent of the damage, which is crucial for emergency response, public safety, and for communities to receive aid and insurance compensation.
Continued processing cost-free building permits to assist community rebuild and repair after the emergency.

Leon County Office of Information & Technology (OIT) and Geographic Information Systems (GIS)

Number of Maps/Applications Produced: 29 maps

Number of Requests for GIS Support: 75 service requests

Hours of Support Provided to the Emergency Operations Center: 614 hours

Post-storm, OIT provided crucial support for the damage assessment teams by equipping them with smartphones loaded with specialized apps for reporting.
Ensured that all systems were operational and that the EOC had the necessary technology to coordinate recovery efforts effectively.
Maintained and supported the software used for damage assessment, a critical part of the storm's aftermath evaluation.
Ensured services such as mapping support and communication networks were fully operational to aid in the swift recovery of the community.

VolunteerLEON

Call Takers Deployed to Support Citizens Information Line: 26 calls

Calls Received at Citizens Information Line: 926 calls

For COAD, Number of Coordinating Calls to Date: 11calls

For COAD, Number of Unique Participating Agencies Over All Calls: 32 agencies

For COAD, Meals Distributed: 213,305 meals

For COAD, Trees Removed by Voluntary Agencies: 1,054 trees

VolunteerLEON coordinated community volunteer efforts and donations during the emergency.
Operated the Citizens Information Line to answer community questions regarding sandbags, points of distribution locations, shelters, and more.
Coordinated area voluntary agencies to address critical social services needs, such as tree removal, pantry replenishment, counseling, and more.
Mobilized and deployed volunteer call takers for the Citizens Information Line, ensuring that residents receive timely and accurate information during emergencies.
Organized and conducted coordinating calls for COAD (Community Organizations Active in Disaster), facilitating collaboration among numerous participating agencies.
Assisted with the distribution of meals and other essential supplies through COAD, ensuring that affected individuals and families receive necessary support and resources.

Response to the May 10 Tornado Outbreak required the support of every County employee and work area. While not every work area's response has been described in this partial activation of the EOC, each work area has performed its own after-action review and assessment of response actions. Notable findings and recommendations that require additional consideration and evaluation can be found in the next section.

Findings and Recommendations

Every emergency, including the May 10 Tornado Outbreak, offers unique lessons that strengthen future emergency preparedness and response. This after-action report analyzes Leon County's emergency operations, building upon the principles of the National Incident Management System (NIMS). The goal is to reinforce the community's capabilities and readiness for future emergencies by learning from each incident, improving upon identified areas, and ensuring continuous development in all aspects of emergency management. The following findings and recommendations related to the May 10 Tornado Outbreak will boost Leon County's resilience and preparedness for any future challenges.

Finding #1: Initial Damage Assessment Teams are rapidly deployed following a disaster and often serve as the first point of contact for residents and business owners. Through face-to-face interaction in the field, there is an opportunity to provide the public with information on obtaining disaster relief and assistance.
- Community and Media Relations - Recommendation #1.1: Develop and distribute informational materials for Damage Assessment Teams to leave with the public during their assessments. These materials should include information on contacting 2-1-1 Big Bend, the American Red Cross, utility providers for assistance, and guidelines for debris placement at the right-of-way.

Finding #2: Multiple agencies track data on reported roadway obstructions using different systems, presenting an opportunity to consolidate this information into a single, unified view. Geographic information is crucial in public safety and emergency response as it allows for precise location tracking, efficient resource allocation, and effective coordination among responders. A consolidated viewer would enhance data sharing and could be made available to the public for real-time updates on road status.
- Emergency Management - Recommendation #2.1: Evaluate implementing a GIS-based centralized visualization tool to integrate and display roadway obstruction data from different reporting systems. This tool should provide real-time updates and accessibility for all relevant stakeholders and the public.
Finding #3: The Community Organizations Active in Disasters (COAD), coordinated by Leon County Emergency Management and VolunteerLEON, effectively manages information sharing and unmet needs through conference calls. However, there is a need for a consolidated situation reporting process and tool for broader information dissemination.
- Emergency Management - Recommendation #3.1: Implement a consolidated, uniform reporting process for agencies participating in the COAD. The report would allow for consistent data collection and situational awareness, ensuring that all stakeholders have access to up-to-date and accurate information. This will enhance coordination and improve the effectiveness of the overall emergency response efforts.
Finding #4: Due to the County's comprehensive Initial Damage Assessment process, deploying State-resourced Needs Assessment Response Teams proved duplicative and did not yield new actionable information. While the County appreciates the State resourcing the mission request, the County's joint Initial Damage Assessment Teams provided the necessary, rapid response and information to identify damaged areas and areas of need.
- Emergency Management - Recommendation #4.1: Continue the County's practice of deploying joint Initial Damage Assessment Teams to ensure rapid response and accurate identification of damaged areas and needs.
Finding #5: As part of the County’s Disaster Housing Strategy, the ongoing collaboration and coordination with the American Red Cross ensured that citizens with damaged structures could receive immediate shelter and intermediate housing support. The American Red Cross provided timely and effective assistance, managing over 170 different cases for financial assistance and other essential services.
- Emergency Management - Recommendation #5.1: Continue to strengthen the partnership with the American Red Cross to maintain and enhance the effectiveness of shelter and housing support during future emergencies. Ensure regular communication and joint training exercises to keep both County and Red Cross teams prepared for efficient and coordinated disaster response efforts.
- Emergency Management – Recommendation #5.2: Evaluate updating and revising the County’s Disaster Housing Strategy plan in coordination with social services and community partners to reflect current best practices and processes.
Finding #6: In response to the County’s mission request for commodities such as water and food, the State-funded, vendor-operated Points of Distribution (PODs) proved very effective following the tornado outbreak. While the County still provided oversight at each location, the staffing footprint was much lower than in previous activations.
- Emergency Management - Recommendation #6.1: Report the effectiveness of vendor-operated PODs to the Florida Division of Emergency Management, highlighting the reduced staffing needs and improved efficiency.
Finding #7: Some vendor-operated PODs were distributing commodities different than the allotted water, shelf-stable meals, and tarps. Doing so caused confusion among disaster survivors who expected different items day-to-day or at other locations.
- Emergency Management - Recommendation #7.1: County site managers should ensure PODs always offer the same commodities at all locations.
Finding #8: Following the May 10 Tornado Outbreak, the Brookestone Senior Living apartment complex and other complexes experienced significant issues, including prolonged power outages and lack of backup power, causing hardship and safety concerns for elderly residents. The incident highlighted inadequate emergency preparedness and poor communication between property management and residents. This situation underscores the need for improved emergency planning and infrastructure in low-income senior living communities.
- Emergency Management – Recommendation #8.1: Evaluate opportunities for increased coordination and resource sharing between state agencies, such as the Florida Department of Elder Affairs and the Florida Agency for Health Care Administration (AHCA), and local emergency management officials. This evaluation should include processes for local emergency management officials to notify Florida AHCA when facilities are providing care analogous to that which is provided by licensed assisted living facilities, leading to gaps in emergency preparedness and safety. This will help ensure comprehensive emergency planning and support for vulnerable populations.

Finding #9: EMS experienced an outage of FirstNet, the primary mobile network connection in all EMS ambulances and vehicles, which hindered communication and coordination during the emergency response.
- Emergency Medical Services - Recommendation #9.1: Evaluate redundancies related to mobile network providers to ensure continuous and reliable communication in all EMS ambulances and vehicles.
Finding #10: Citizens relying on home medical devices and oxygen, who had no power, faced difficulties obtaining additional backup devices from their equipment provider, resulting in 9-1-1 calls and ambulance transports to hospitals. Staff and patients attempted to call the vendors' emergency numbers but did not receive assistance.
- Emergency Medical Services - Recommendation #10.1: Continue to engage durable medical supply companies regarding the need for them to provide support for their patients. Regularly update the emergency contact information from each vendor and making that information available in the EOC and EMS dispatch.
Finding #11: Staff had difficulties in obtaining transportation services for citizens requiring transport to the special needs shelter. The hours of operation of the providers conducting this service limited its availability. While everyone was transported, diversifying options will better serve emergency responders and citizens for future emergencies.
- Emergency Medical Services - Recommendation #11.1: Evaluate the resources available to transport citizens to the special needs shelter and determine if there is a way to provide services after hours.
Finding #12: The power outage and debris made visibility at night difficult, especially when responding paramedics and EMTs had to walk a distance to access some calls for service. Staff reported that available portable lighting and flashlights were inadequate.
- Emergency Medical Services - Recommendation #12.1: Acquire improved portable lighting devices and flashlights to assist staff in navigating scenes at night.

Finding #13: During a Declared Local State of Emergency, County employees who perform a disaster-related role receive their hourly pay in addition to administrative leave during County office closures, as well as the possibility of overtime pay. However, a much smaller number of County employees are overtime exempt and do not receive additional compensation during a disaster. There is an opportunity within existing County personnel policy to provide salaried employees with compensatory leave during a Declared Local State of Emergency.
- Human Resources - Recommendation #13.1: Evaluate the County’s existing personnel policies to ensure that salaried employees are eligible for compensatory time during a Declared Local State of Emergency. Provide an annual update to supervisors, reminding them of the policy and how to properly record that time during a disaster. If necessary, revise the County’s personnel policy to further clarify eligibility.

Finding #14: The recent physical damage to the Office of Intervention and Detention Alternatives (OIDA) office structure and the resulting limited facility access have highlighted the critical need for current client records to be regularly updated and maintained electronically.
- OIDA - Recommendation #14.1: Regularly download and update client emergency contact information digitally and electronically. While this has typically been done in advance of hurricane season, it is necessary to perform these updates more frequently to prepare for other no-notice disasters, such as tornado outbreaks.

Finding #15: State and County Points of Distribution (PODs) should continue to be complemented by mass care and feeding partners who perform neighborhood-level feeding. This approach ensures that individuals with limited transportation receive the disaster assistance they need.
- Office of Resource Stewardship - Recommendation #15.1: Maintain coordination with Community Organizations Active in Disaster (COAD) to ensure effective resource distribution. Keep all relevant agencies informed about POD locations and operations to enhance accessibility and support for citizens in need during disaster response efforts. For example, during the May 10 Tornado Outbreak, a partnership between 2-1-1 Big Bend and DoorDash Food Delivery successfully addressed these needs.
Finding #16: All County POD locations are pre-assessed to ensure they are suitable for hosting distribution activities, focusing on capacity, accessibility, and geography. However, during State/County POD operations, some sites experienced significant traffic unrelated to commodity distribution. For example, some sites continued with Little League activities or other programming, leading to increased safety issues and congestion.
- Office of Resource Stewardship - Recommendation #16.1: For safety reasons, when PODs are activated, staff should consider suspending all other programming and activities that may cause additional traffic at the site.
Finding #17: Immediately following an emergency, County staff conduct site assessments of County buildings to gauge and report damage. During the emergency, there was no central system or process to report and record damage, leading to duplicative work and assessments.
- Office of Resource Stewardship - Recommendation #17.1: Utilize the existing Initial Damage Assessment public portal to create an internal County instance managed by County GIS. This will allow staff to record and share damage assessments of County facilities efficiently.

Finding #18: Following the disaster, some County staff were unclear about the emergency purchasing procedures and policy, leading to repeated requests and clarifications about the required documentation.
- Purchasing - Recommendation #18.1: County Purchasing will provide an annual training in advance of hurricane season for all County staff. This training will explain the County’s emergency purchasing procedures and policy under a Declared Local State of Emergency and/or Governor’s Executive Order.

Finding #19: County Public Works cut-and-toss teams can be delayed by downed trees entangled with power lines. To ensure the lines are grounded and safe to interact with, County teams may need to wait long periods of time for electrical crews to respond and ground the lines. Such delays lead to limited access to County facilities and roadways, notably impacting critical locations such as the Transfer Station.
- Public Works - Recommendation #19.1: Continue to work with City of Tallahassee Utilities and Talquin Electric to embed electrical crews with County cut-and-toss crews to help clear roadways. Coordination has improved each disaster, but further improvements and pre-emergency coordination remain.
Finding #20: The County hosts multiple sandbag sites throughout the area, each staffed with personnel and equipped with basic tools like shovels. This labor-intensive operation ties up staff who could otherwise be responding to emergencies.
- Public Works - Recommendation #20.1: Evaluate the purchase of sandbag filling devices to streamline operations. Options could include a large deployable sandbag filling machine capable of filling hundreds of sandbags per hour, significantly reducing labor demands. Another option is a smaller, portable solution that can be mounted on the back of a pickup truck and used to fill sandbags quickly at various locations. Implementing these devices could free up staff for other critical emergency response tasks and improve the efficiency of sandbag operations.
Finding #21: During the May 10 Tornado Outbreak, some citizens expressed a need for designated tornado shelters. This feedback highlighted concerns about safety and the availability of secure locations to seek refuge during severe weather events.
- Public Works – Recommendation #21.1: Evaluate the costs and benefits of constructing tornado shelters in Leon County, considering the infrequent occurrence of tornadoes in North Florida. This assessment should include a detailed cost analysis, risk assessment, and potential safety benefits for the community.

Finding #22: During the no-notice event of the May 10 Tornado Outbreak, County Public Works effectively cleared hundreds of roads in less than 24 hours. However, because crews were not pre-deployed at locations throughout the County, there was a gap in understanding where crews were in the field, what clearing assignments were next, and in receiving real-time updates on progress. This highlighted the need for improved tracking and communication during disaster response efforts.
- Risk Management - Recommendation #22.1: Evaluate and enhance the County fleet and equipment schedule to improve response and recovery activities. This recommendation was approved by the Board during the development of the FY 2025 CIP, which includes a skid steer, chipper, loader, and backhoe for road clearing and debris removal.
- Office of Information Technology – Recommendation #22.2: Upgrade the Public Works mobile work order system to integrate with other County systems, including GIS, for better real-time tracking of resources, crew locations, and progress during storm events. This integration is essential for tracking resources for FEMA reimbursement.
Finding #23: County Parks staff assisted Public Works in cut-and-toss operations. However, when deployed, Parks staff did not have sufficient guidance or supervision to be as effective as possible. While the County offers routine chainsaw training, it could be improved to include emergency response protocols and coordination.
- Risk Management - Recommendation #23.1: Expand the chainsaw training program to include storm protocols, detailed action plans, procedures, and clear points of contact to ensure effective operations during emergencies. This will ensure that Parks staff are well-prepared and can operate safely and efficiently in coordination with Public Works during disaster response activities.

Consistent with all other emergency and disaster activations, Leon County will incorporate all recommendations and lessons learned into the County’s disaster plans, as well as the County’s Comprehensive Emergency Management Plan. When incorporated with all other after-action lessons learned, this after-action report will bring the County to 244 recommendations implemented following 315 findings. As a result, the County will be even better prepared for the next emergency event.

Options:

Accept the after-action report on Leon County’s preparation, response, and recovery efforts related to the May 10, 2024 Tornado Outbreak.
Adopt the proposed revisions to Policy No. 07-2, “Reserves” (Attachment #1).
Approve the Resolution and Budget Amendment (Attachment #2).
Do not accept the after-action report on Leon County’s preparation, response, and recovery efforts related to the May 10, 2024 Tornado Outbreak.
Board direction.

Recommendation:

Options #1, #2, and #3

Attachments: